Executive summary 

This report to Congress is the last of three in which the Librarian of Congress, Archivist

of the United States, and the Public Printer summarize the Federal Government’s progress on

implementing Public Law 101-423. Much has been accomplished since the law was passed in

October 1990, particularly during the period 1994 through 1995. Highlights of these 

achievements, discussed in detail in the following report, include: 

!	 Joint Committee on Printing (JCP) specifications developed for 4 new permanent

papers and 16 new alkaline papers; 

!	 JCP issued Government Paper Specification Standards (No. 10), from which the 

20 newly specified papers can be procured; 

!	 National Archives and Records Administration (NARA) issued NARA Bulletin 

No. 95-7, “Procurement of Writing, Copying, and Printing Papers for Federal

Records,” which provides guidance to Federal agencies in the use of alkaline and 

permanent papers; 

!	 Library of Congress (LC) continues research to identify new and improved

methods for the artificial aging of paper; 

!	 Research on the aging of lignin-containing alkaline papers initiated in both the

United States (including LC and NARA) and Canada; 

!	 New or revised standards for paper permanence issued by the American National

Standards Institute (ANSI), the American Society for Testing and Materials

(ASTM), and the International Organization for Standards (ISO); 

!	 Continued increase in U.S. production of alkaline paper; 99.9 percent of book

papers procured through bulk purchase by the Government Printing Office (GPO)

in 1995 were alkaline; and 

!	 General Services Administration (GSA) provided papers for purchase that match

the JCP specifications. 

Submission of this report discharges responsibilities assigned to the Librarian of

Congress, Archivist of the United States, and the Public Printer, as set forth in Pub. L. 101-423. 

However, since important work remains to be done, they have agreed to continue monitoring, on

an ad hoc basis, progress in the implementation of the Government’s permanent paper policy. 
Introduction 

Public Law 101-423, A Joint Resolution to Establish a National Policy on Permanent

Papers (Section 3), states the following: 

The Librarian of Congress, the Archivist of the United States, and the Public Printer shall

jointly monitor the Federal Government's progress in implementing the national policy . .

. regarding acid free permanent papers and shall report to the Congress regarding such

progress on December 31, 1991, December 31, 1993 and December 31, 1995. 

The Librarian of Congress, the Archivist of the United States, and the Public Printer (the

monitoring agencies) have been working together to monitor implementation of the law since it

was signed by the President on October 12, 1990. In addition, the agencies worked jointly to

enhance the general level of knowledge in the Federal Government about the national policy on

permanent paper, and to ensure that Federal agencies understand the criteria to be used to

determine whether documents have enduring (i.e., long-term) value. This report is the last of

three reports to Congress required by Pub. L. 101-423. 

Progress in Monitoring Pub. L. 101-423 

Definition of permanence

Pub. L. 101-423 (Appendix 1) recommends the use of "acid free permanent paper" using

the specifications established by the Joint Committee on Printing (JCP). For purposes of clarity, 

this report adheres to the JCP specifications. Thus, an acid free permanent paper is defined to be

a fully bleached sheet with a pH of 7.5 or above, an alkaline reserve of 2 percent or more, a

minimum MIT folding endurance in either direction of 30 double folds, and a minimum tearing

strength in either direction of 25 grams for a 30 lb paper and proportionately higher tearing

strengths for heavier papers. This definition matches most closely the first specification for

permanent paper, ANSI Z39.48-1984, developed by National Information Standards

Organization, which has strong support in the archival and library communities. 

Standards and specifications

Federal. When Public Law 101-423 was passed five years ago, the Government had only

one specification for permanent paper: JCP A270, uncoated permanent book, white and cream 

white. With the issuance in July 1994 of the latest version of the Government Paper

Specification Standards (No. 10), the number of permanent papers available for Government use 

increased from one to five. The four new permanent papers are: 

JCP G40, Option A, 25 percent bond, white and colored (with 50 percent recovered 

material);

JCP G60, Option A, 25 percent opacified bond, white and buff (with 50 percent

recovered material);

JCP H30, Option A, imitation parchment, laser-finish, white and colored; and

JCP O-60, Option A, plain copier, xerographic, white, natural and colored. 

A number of alkaline papers have been added as option A to many existing specifications. The 

specification standards advise that option A should be specified if the printed product must have 

above average permanence. The alkaline option is available in 16 paper grades (Appendix 2). 

All of these JCP papers available through the Government Printing Office (GPO) and General

Services Administration (GSA) are recyclable within the programs Federal agencies now operate.

The monitoring agencies have been working with the GSA to ensure that some of the

same papers available to Federal agencies in the Washington, DC area through the GPO will be

available nationwide. GSA now offers three permanent papers and two alkaline papers (Table 

1). 
Table 1: Permanent and Alkaline Papers Available from GSA 

Permanent/Alkaline GSA Order Number Description 

Permanent GSA NSN 7530-01-398-2656* 25% bond, white, 20 lb, 8-1/2"x11" 

Permanent GSA NSN 7530-01-398-2654 Plain copier, xerographic, white,

20 lb, 8-1/2"x11" 

Permanent GSA NSN 7530-01-398-2655 Plain copier, xerographic, white,

20 lb, 8-1/2"x14" 

Alkaline GSA NSN 7530-01-398-2652* Recycled plain copier, xerographic,

20 lb, 8-1/2"x11" 

Alkaline GSA NSN 7530-01-398-2653* Recycled plain copier, xerographic,

20 lb, 8-1/2"x14" 

*Meets recovered and post consumer materials percentages cited in Executive Order 12873,

Federal Acquisition, Recycling, Acquisition, and Waste Prevention. 

Private. In the United States, two organizations write consensus standards, specifications,

or guidelines for papers that may be used for permanent records and publications intended for longterm retention. They are the National Information Standards Organization (NISO) and the

American Society for Testing and Materials (ASTM). Both organizations develop standards or

specifications by committees, which then submit them to the organization as a whole for a vote. 

The National Archives and Records Administration (NARA) and the Library of Congress (LC) are

voting members of NISO and ASTM and are also represented on various committees.

NISO develops American National Standards Institute (ANSI) standards, the primary

function of which is to disseminate information. NISO published its first standard, "Permanence of

Paper for Printed Library Materials," Z39.48-1984, in 1984. The criteria for permanence established

in this standard were used as a starting point for the JCP A270 (uncoated permanent 
book, white and cream white) specification. In 1992, the ANSI standard was revised to include 

coated papers and expanded to include archives materials. Thus, its new title, "Permanence of 

Paper for Publications and Documents in Libraries and Archives," Z39.48-1992. Other changes

included dropping the folding endurance requirement and replacing tear resistance with a tear index

(Appendix 3).

ASTM develops specifications, guides, and test methods for a wide variety of manufactured

products. Its paper standards are written to incorporate requirements within the same standard for

papers expected to have different life expectancies. The category “maximum life expectancy,”

which replaced the category “maximum permanence, high usage,” defines the permanence

requirements for manifold papers (D3208-94), for bond and ledger papers (D3290-94), and for

papers used in office copying machines (D3458-94). These specifications, together with the Guide 

for the Selection of Permanent and Durable Offset and Book Papers, (D5634-94), comprise the

ASTM work on permanent paper.

In the course of revising these ASTM specifications, the question arose whether an alkaline

paper might still be considered permanent if it also contained more lignin (a component of wood

that is almost completely removed by "traditional" chemical pulping and bleaching) than any of the

specifications allowed. Because lignin-containing papers have traditionally been produced by an

acidic process, no studies of historic papers exist to which scientists can refer in their search for an

answer to that question. Valid methods for determining the potential longevity of alkaline papers

with a high lignin content are needed because increasing quantities of these papers are now coming

on the market. To facilitate this research, valid and reliable methods of artificial aging must be 

developed. The Library of Congress Research and Testing Office has been engaged in such research

for the past three years, and has recently received support from ASTM to accelerate this effort.

To spearhead this effort, ASTM (under the auspices of their Institute for Standards Research

(ISR)) held a workshop in 1994 on the effects of aging on printing and writing papers. From this 

workshop evolved a series of research proposals pertaining to the development of aging methods

using light, pollutants, heat, and humidity; and to the fundamental chemistry of the aging 

phenomena. The proposed research was estimated to require 3 years and to cost over $2.5 million. 

Although the research is not yet fully funded, initial work is proceeding on two projects. One is an 

investigation of the fundamentals of light aging to determine how aging can be accelerated without

altering the chemical reactions from those that occur during natural aging. The second is an 

investigation of the effects of aging in low levels of air pollutants (including nitrogen dioxide, sulfur

dioxide, and ozone).

International. The body that develops standards for the international community, the

International Organization for Standards (ISO), works closely with NISO. Thus, it is no 

coincidence that the requirements of the standard, ISO 9706, "Information and Documentation ­

Paper for Documents - Requirements for Permanence," are similar to those of ANSI standard

Z39.48-1992. ISO 9706 differs slightly from ANSI Z39.48-1992 in fiber content (lignin, ground

woodpulp, and unbleached pulp) and tear resistance measurement. In 1995, ISO developed a

standard for archival papers, ISO/DIS 11108, "Information and Documentation - Archival Paper ­

Requirements for Permanence and Durability" (Appendix 3).

A number of countries have developed standards for permanent papers that will probably be

replaced by the ISO standard. The most debated of these is undoubtedly the German standard, DIN

6738, which has not met acceptance from either the archival or library communities, even within

Germany. Like the United States, the Canadian Government has established a policy on the use of 

permanent paper. However, in trying to devise specifications for that paper, it met with even stiffer

resistance than had NISO, ASTM, or ISO to the requirement that the paper not contain a significant

quantity of lignin.

As a result, the Government of Canada, together with the Government of Alberta and a

consortium of Canadian pulp and paper manufacturers, joined forces to fund and carry out its own

research program on the effect of lignin on paper permanence. This research may supplement the 

ASTM/ISR program. However, it concentrates on Canadian pulps and does not address the

problem of light aging, so cannot supply all the answers. 

Guidance to Federal agencies 
On September 8, 1995, the National Archives and Records Administration (NARA) issued

NARA Bulletin No. 95-7, "Procurement of Writing, Copying, and Printing Papers for Federal 

Records" (Appendix 4). The bulletin advises Federal agencies to procure either permanent or

alkaline paper grades when creating all Federal records. Permanent paper is recommended for

routine use in offices that create and file a high proportion of long-term and permanent records,

whereas alkaline paper is recommended for routine use throughout agencies for all other documents. 

In keeping with the intent of Executive Order 12873 (“Federal Acquisition, Recycling, and Waste

Prevention,” October 20, 1993) and Environmental Protection Agency (EPA) guidance, the bulletin

also states that any paper is suitable for mass publications. The caveat accompanying this position

is that, if the record set of the publication has long-term or permanent value, the official file copy

should be printed on alkaline or permanent paper, or should be maintained electronically or on

microform. 

The NARA bulletin was completed after extensive discussions with records officers,

printing officials, GPO, and GSA. NARA representatives met with records officers to discuss drafts

of the bulletin in order to ascertain problems that could arise in the agencies upon issuance of this

guidance. Representatives also worked with GPO and GSA to ensure that adequate quantities of

permanent and alkaline papers, a list of which is attached to the bulletin, were available to agencies

for purchase.

Ordinarily, NARA bulletins are distributed to agency heads and records officers only. Since 

this bulletin has wide-ranging implications for the Government in the printing and procurement

field, copies were also distributed to printing and procurement officials as well as to State

Governors and records officials. 

During the past 2 years, representatives of the monitoring agencies also spoke at

conferences, meetings, and training courses on implementation of the Public Law (Appendix 5) . 

The monitoring agencies perceive that if agencies are to grasp the significance of preserving

permanent documents through the use of permanent and alkaline papers, more was needed than

mere words in a bulletin. It was important to get out and physically communicate with those

Federal officials that will have a major part to play in the implementation of the law. 

Information dissemination 

Federal. In addition to advising and assisting the Federal community, the monitoring

agencies are communicating with all those who have a part in making Pub. L.101-423 work. In 

1994, the Librarian of Congress, Acting Archivist of the United States, and Public Printer sent each

State Governor the “Second Report to Congress on the Joint Resolution to Establish a 
National Policy on Permanent Papers” to acquaint them directly with the law’s agenda and

encourage their participation (Appendix 6). Recently, the Archivist sent NARA Bulletin No. 95-7 

and information on accessing this and other Federal records guidance via Internet to each State

Governor, archivist, and records officer as a model for State and local action. 

Efforts of the monitoring agencies have been strengthened by other Federal components in

addition to the Joint Committee on Printing (JCP) and GSA mentioned throughout this report. The 

National Library of Medicine (NLM) sponsored a Permanent Paper Task Force from 1987 to 1991

to advance the use of alkaline-based paper for biomedical literature. When the task force began,

only 4 percent of 3,000 journals indexed by NLM were on alkaline paper. This figure rose to 91

percent by April 1995.1 The Environmental Protection Agency, Department of Agriculture,

Department of Defense, Smithsonian Institution, and other Government agencies have participated

in meetings concerned with the quality of paper for Federal records, including the September 28,

1994, meeting of the NARA Advisory Committee on Preservation. Also the National Endowment 

for the Humanities and National Historical Publications and Records Commission, which fund 

public and private projects in support of our Nation’s documentary heritage, mandate the use of

permanent and alkaline papers for documentary materials and additionally maximize their longevity

by prescribing appropriate storage materials and conditions.

State and local. As noted in the 1993 report to Congress, immediately following the

passage of Pub. L. 101-423 several States established legislation and administrative provisions for

State and local government use of permanent paper for public records. Following this initial

breakthrough, the National Commission on Libraries and Information Science (NCLIS) distributed

mailings about Pub. L. 101-423 to each State Governor in 1991, 1992, and 1995. These mailings 

inquired about States’ progress. Results from the first inquiry were published in the Congressional

Record (July 22, 1991, p. S10550) and have since been reported in both the library and archives

professional literature.

The 1995 survey is continuing and participation has been encouraged by the Archivist of the

United States with his letter (previously mentioned). In addition, the Council of State Historical 

Records Coordinators’ upcoming 1996 report on conditions and concerns in State archives and

records programs will focus attention on State permanent paper initiatives using information

provided by the National Association for Government Archives and Records Administrators

(NAGARA).

States that have developed legislation or administrative policy on permanent paper include: 

Arizona, Colorado, Connecticut, Florida, Illinois, Indiana, Kansas, Kentucky, Massachusetts,

Missouri, Montana, Nebraska, New Mexico, North Carolina, Rhode Island, South Dakota, 

Tennessee, Virginia, Washington, West Virginia, and Wisconsin. Some States are working to

establish or strengthen provisions in response to opportunities afforded by a decrease in comparative

cost and an increase in the availability of permanent papers. This progress is significant and 

laudable. However, it remains that over half of the States have yet to establish a permanent paper 

policy. 

Private. The private sector role was pivotal in establishing Pub. L. 101-423 and has

continued to be instrumental in its implementation as a partner to the Federal Government. This

important relationship was underscored when Senator Claiborne Pell (D-RI) and Congressman

Sidney Yates (D-IL) were awarded the American Institute for Conservation of Historic and Artistic

Works highest honor, the Forbes Medal, for their many years of distinguished service to the

conservation of cultural property, including Senator Pell's sponsorship of Pub. L. 101-423, a

sponsorship shared by 48 Congressional legislators.

National and international organizations associated with the information, history, science,

and cultural resource community, including the American Library Association (ALA), Association

of American Publishers (AAP), Society of American Archivists (SAA), National Association of 

National Library of Medicine, “National Library of Medicine


Board of Regents May 23-24, 1995,” Tab VIII, NLM Preservation


Program: Current Activities and Future Directions. [p.1] April


1995, Bethesda, MD.

Government Archives and Records Administrators (NAGARA), International Federation of Library

Associations and Institutions (IFLA), and the International Council on Archives (ICA) have issued

statements to support Pub. L. 101-423 as well as taking steps to promote it. For example, the

American Library Association (ALA) distributes a poster and bookmark fostering permanent paper 

awareness. 

International. Information, be it paper or electronic, is an international enterprise. As 

discussed elsewhere in this report, many nations have long been active participants in paper quality

concerns. Moreover, concurrent with the issuance of Pub. L. 101-423, some have monitored their 

own progress on permanent paper use for public records and have developed facilitating mandates.

In 1990, the Australian Archives, citing Section 5(2) of the 1983 "Archives Act" to ensure

preservation of Commonwealth records, issued guidance and a specification for "Permanent Bond

Paper for Use in Records."2 

In 1992, the Communications Minister of Canada announced that government publications

"to be retained for information or historical purposes" should be produced on "alkaline-based

permanent paper, rather than continuing to use acid paper."3 Since then, the National Archives of 

Canada issued Bulletin 94-02, "Policy on the Use of Permanent Paper." Currently, there is a bill

pending before the French National Assembly requiring all government documents to be produced

on permanent paper. The introduction to this "Proposition de Loi”4

 begins with the statement that

"A nation that loses its cultural heritage loses it soul." Other nations are also making progress. Japan

and Hungary, for example, are among countries in which most paper mills have been converted to

an alkaline process.

Likewise, the paper manufacturing and printing industry have promoted awareness and

utility of permanent paper products and services. For example, the Technical Association of the

Pulp and Paper Industry 1994 Papermakers Conference featured more sessions on alkaline paper

than ever before. Also, there is a paper mill that now has an "alkaline hotline" to answer questions

about their new permanent and alkaline papers. Most callers, who are printers and convertors,

receive a free pH testing pen and brochure with tips on using alkaline papers.

Within the last 5 years, well over 100 articles on permanent and alkaline papers have

appeared in national publications. The New York Times, Scientific American and many other wellknown periodicals have educated the public at large while professional publications such as the

Commission on Preservation and Access Newsletter, Alkaline Paper Advocate, and Instant & Small

Commercial Printer have been a conduit among specialists. Grassroots interest has been vigorous as

well. Local newspapers, community libraries, and historical societies have not only written about

permanent paper as a global issue, but have also helped citizens learn how to purchase such papers

for their own family documents. 

Government Printing Office statistics

In recent years the demand by Government publishers and librarians for a more "permanent"

paper has increased. As has been noted previously, long-lasting paper is associated with the alkaline

papermaking process.

Procured printing. For fiscal years 1994 and 1995, the alkalinity of the paper stocks used

in approximately 2,500 commercially procured printing jobs was monitored by GPO. These papers

were tested for pH value and alkaline reserve content. Samples of these commercially procured

printing jobs were selected by GPO’s Quality Assurance Section and represented all work at quality

levels 1 and 2, and 10 percent at quality levels 3 and 4 (level 1 being the highest reproduction 

Australian Archives. “Paper Specification 1990/2: Permanent Bond Paper for Use in Records.” 

May 1, 1990. 

Communications Canada. “Government to print publications on permanent paper,” January 15, 

1992. 

National Assembly of France. Proposed Law concerning the protection of government

documents. No. 1607. October 4, 1994. (Distributed November 7, 1994) 
quality and level 4 the lowest). The inspection samples represent a fraction of the more than

200,000 jobs purchased by the GPO annually. This testing will continue. 

Table 2A: Uncoated Paper in Procured Printing, FY 1994 

Papers Acidic Alkaline Totals 

Number Percent Number Percent Number Percent 

Miscellaneous 26 34 51 66 77 100 

A60 52 23 173 77 225 100 

A61 0 0 9 100 9 100 

A80 9 25 27 75 36 100 

D10 4 17 20 83 24 100 

H10 16 62 10 38 26 100 

H20 5 71 2 29 7 100 

K10 20 77 6 23 26 100 

L20 8 47 9 53 17 100 

Subtotal 140 31 307 69 447 100 

Tables 2A through 3B illustrate the findings for FY 1994 and 1995 with high usage text and

cover grades separated out. Of interest, over 90 percent of all coated papers monitored were 

alkaline. Tables 2B and 3B show more data for coated paper grades because quality level 1 and 2

jobs are typically produced on coated papers. A high percentage of these were alkaline papers. The 

majority of government publications are actually produced on uncoated JCP A60 offset book text 

paper that usually has JCP K10 (index) or L20 (vellum-finish) cover paper. 

Table 2B: Coated Paper in Procured Printing, FY 1994 

Papers Acidic Alkaline Totals 

Number Percent Number Percent Number Percent 

Miscellaneous 22 32 46 68 68 100 

A170 9 31 20 69 29 100 

A180 8 6 118 94 126 100 

A181 0 0 25 100 25 100 

A182 1 1 84 99 85 100 

A240 1 1 91 99 92 100 

A260 1 2 41 98 42 100 

A261 0 0 17 100 17 100 

A262 0 0 42 100 42 100 

L10 3 5 62 95 65 100 
Table 2B: Coated Paper in Procured Printing, FY 1994 

Papers Acidic Alkaline Totals 

L11 1 2 44 98 45 100 

L12 3 7 39 93 42 100 

Subtotal 49 7 629 93 678 100 

Total (Tables 2A and 2B) 1,125 
Table 3A: Uncoated Paper in Procured Printing, FY 1995 

Papers Acidic Alkaline Totals 

Number Percent Number Percent Number Percent 

Miscellaneous 41 36 74 64 115 98 

A60 32 11 258 89 290 100 

A61 0 0 3 100 3 100 

A80 2 5 38 95 40 100 

D10 8 42 11 58 19 100 

H10 5 33 10 67 15 100 

H20 4 22 14 78 18 100 

K10 19 73 7 27 26 100 

L20 5 33 10 67 15 100 

Subtotal 116 21 425 79 541 100 

Table 3B: Coated Paper in Procured Printing, FY 1995 

Papers Acidic Alkaline Totals 

Number Percent Number Percent Number Percent 

Miscellaneous 20 22 69 78 89 100 

A170 4 12 29 88 33 100 

A180 3 2 130 98 133 100 

A181 0 0 38 100 38 100 

A182 2 3 68 97 70 100 

A240 0 0 102 100 102 100 

A260 1 1 95 99 96 100 

A261 0 0 60 100 60 100 

A262 0 0 45 100 45 100 

L10 3 4 77 96 80 100 

L11 1 3 35 97 36 100 

L12 0 0 35 100 35 100 

Subtotal 34 4 783 96 817 `100 

Total (Tables 3A and 3B) 1,358 
Table 4: Comparison of Alkaline Paper Purchased* in FY 1994 & FY 1995 

Papers 

Percent Percentage Points 

1994 1995 Difference

Uncoated, overall 69 79 10 

A60 offset book 77 89 12 

A80 opacified offset

book 

75 95 20 

D10 writing 84 58 -26** 

K10 index 23 27 4 

L20 vellum-finish 

cover 

53 67 14 

Coated, overall 93 96 3 

A170 publicationgrade, gloss coated 

text 

69 88 19 

A180 gloss coated 

text 

94 98 4 

L10 litho coated 

cover 

95 96 1 

* For stocking in GPO, direct shipments, open market purchases, etc.

**This figure is affected by the amount of colored paper purchased per year because many

colors can only be produced in an acidic papermaking process. 

Over 75 percent of the uncoated text paper represented by A60, A61, A80 in tables 2A and 3A and

over 90 percent of the coated paper in tables 2B and 3B (except the miscellaneous and A170) were

alkaline. Both uncoated and coated papers showed an increase in the percentage of alkaline stocks

used from FY 1994 to 1995. Selected grades are listed in Table 4. 

Bulk purchases. In GPO's bulk purchases, the amount of alkaline paper received was

unaffected by EPA requirements that the paper contain recycled fibers (50 percent wastepaper with

20 percent postconsumer (PC) fiber content in FY 1994, or simply 20 percent postconsumer fiber in

FY 1995). In all JCP specifications requiring a PC fiber content or that has a minimum of 25

percent cotton fiber content, the specification requires a minimum pH of 6.5. This requirement has

not proven to be a problem thus far for any of the suppliers whose paper is being procured in the

quarterly bulk purchases. For the GPO's quarterly procurement of book papers for stocking in

GPO (measured in tons), 87 percent were alkaline in FY 1994 and almost all (99.9 percent) were

alkaline in FY1995. Even though GPO did not specify that the paper must be alkaline, nearly all of 

the book papers received (JCP A25, A55, A60, and A80) were alkaline.

Of the bulk purchase of office papers, all of the 25 percent and 50 percent cotton cut-size

bond/writing papers (JCP G-series papers) purchased were alkaline in the current year. All the bulk 

purchased recycled (20 percent PC) copier paper (JCP O-65 paper) were alkaline. Colored JCP O60 copier paper was about 50 percent alkaline and 50 percent acidic.

There were only a few grades of acidic paper. One was a map paper grade (JCP E40, GPO

Lot 94) which was specified to be acidic for the purpose of improving the sheet’s ink drying

characteristics. Often, colored index (JCP K10) and vellum-finish cover (JCP L20) stocks are also

acidic so some of the colors desired by the customer can be attained. Alkaline papers are available 

for index and cover stock, but in fewer colors. 
Observations/Relevant Findings 

Environmental issues 

During the 5-year period covered by Pub. L. 101-423, a number of pertinent events have

occurred. First, the trend has continued in the paper industry to convert mills from acid to alkaline

papermaking. This conversion can be attributed primarily to EPA regulations 40 CFR 430 - “Pulp,

Paper, and Paperboard Point Source Category” that govern the amount and kinds of effluent that

paper mills can discharge.5 Once conversion was underway, the lower cost of raw materials for

alkaline papermaking made the change a profitable one.

A second development within the monitoring period was the issuance of Executive Order

12873, "Federal Acquisition, Recycling, and Waste Prevention." This order followed a number of 

earlier EPA regulations, the most significant of which was the “Guideline for Federal Procurement

of Paper and Paper Products Containing Recovered Materials” that was published in the Federal 

Register (Vol. 53, No. 120) on June 22, 1988. EO 12873 addresses recycling in general and places

some very specific requirements on Government purchasers of paper. Section 504 sets minimum 

content standards for postconsumer recovered materials in printing and writing papers, with a 20

percent requirement as of December 31, 1994, and 30 percent as of December 31, 1998 (for most of

these papers), which have been incorporated as a basic requirement in Government Paper

Specification Standards (No. 10).

Section 505 directs agencies to revise or eliminate sections of standards or specifications that

contain brightness or other specific pulp requirements if these requirements are not needed for a

particular grade of paper to be functional. These two requirements appear to conflict with the policy 

set out in Pub. L. 101-423. However, the Federal Environmental Executive in a July 19, 1994, letter

to the Director of the New York Public Library (Appendix 7) stated that all agency environmental

executives would be notified that "the requirements for use of recycled paper are not to conflict in

any way with the concurrent requirement for permanent paper use." Thus, provided that the

requirements for permanent paper are met, any amount of postconsumer recovered material can be

incorporated.

The purpose of section 505 is to eliminate unnecessary requirements for paper that result in

the production of harmful byproducts such as dioxins. Dioxin is of particular concern because it has

been shown to be a byproduct of papermaking when pulp is bleached with elemental chlorine

(chlorine gas). For those not versed in industry technology or recent research, section 505 might

appear to eliminate the purchase of bleached paper. This interpretation is erroneous for two reasons.

First, in the absence of research that provides other options, fully bleached pulp is a

necessary component of permanent paper at this time. Bleaching removes the lignin from the pulp,

which is necessary for permanence because lignin-containing papers have been shown to darken

with age and light exposure. Librarians, archivists, and records managers are concerned that such

discoloration could impede future reformatting procedures. Thus, the requirement that permanent

paper be fully bleached cannot be eliminated because it is directly related to its long-term

performance.

Second, the paper industry is gradually using more elemental chlorine-free (ECF) bleaching,

with the result that the dioxin levels in fish near pulp and paper mills have been dropping.6 Data 

show that by the end of 1994 ECF and TCF (totally chlorine-free) bleached pulps comprised about

54 percent of the bleached pulp produced. Of that 54 percent, 85 percent (about 20 million tons) 

was ECF pulp. However, when pulp is ECF bleached, the process is not totally free of chlorine. 

Most manufacturers are using chlorine dioxide instead of elemental chlorine. Despite this continued

presence of chlorine, the dioxin levels decline. This leads many U.S. producers to question the need 

Proposed improvements to these regulations appear in the Federal Register, V. 58, No. 241

(December 17, 1993), under authority of sections 301, 304, 306-308, and 501 of the Clean Water

Act and 33 U.S.C. sections 1311, 1314, 1316, 1317, and 1361. The proposal identifies and

describes previous studies and guidance that helped to propel mill conversion. 

McDonough, T.J., Proceedings of the Fourth China Paper Technical Conference, TAPPI 

PRESS, Atlanta. 1995. 
to go “totally chorine-free.” Another factor in their reluctance is the cost. Currently, virtually all 

TCF production is in Europe. The one U.S. producer, Louisiana Pacific at Samoa, California, has

met with weak demand for its pulp. For this reason, North American producers believe that the

market is unwilling to pay more for TCF pulps.7 

The effect of recycling on paper performance and longevity was the topic of the September

28, 1994, meeting of the NARA Advisory Committee on Preservation. The meeting included

representatives from several Federal agencies as well as standards and testing professional

organizations, librarians, paper manufacturers and associations, and other interested organizations.

Most representatives agreed that it is possible to produce paper that contains postconsumer waste

while satisfying permanent paper specifications; however, it will not be easy or inexpensive. The 

postconsumer wastepaper supply eventually will contain paper that has been previously recycled

perhaps for the third or fourth time. Several participants predicted that after a period of time

recycled paper containing postconsumer waste will fail the strength requirements for permanent 

paper. 

Three manufacturing practices contribute to the weakness of recycled paper containing

postconsumer waste: (1) repulping paper fibers reduces the length of fibers and thus decreases the

strength of paper; (2) drying and rewetting pulp for re-shipment between recyclers and

manufacturers reduces bonding strength among fibers; and (3) removing groundwood and lignin

exacerbates the reduction of fiber and bonding strength even further. A change of these practices

may help manufacturers produce more long lasting paper containing a high proportion of recycled

fiber content, but the consumer must tolerate a less bright sheet of paper and a degree of eventual

yellowing. As discussed elsewhere in this report, the American Society for Testing and Materials

and the paper research institutions of Canada are researching these concerns.

During 1994, a paper made by an alkaline process, but containing a high percentage of

groundwood, entered the Federal marketplace. This grayish paper, natural shade recycled plain

copier xerographic paper (JCP O-70), was being used widely in copiers and laser printers, and, as a

result, it was used to create some permanent records. Concern was first expressed about the paper

in a "Meeting on Groundwood Paper in Federal Offices," sponsored by the Office of the Federal

Environmental Executive on October 11, 1994. 

The meeting discussed primarily how JCP O-70 would recycle when entering the waste

stream (a topic outside the scope of this report), but concerns regarding the longevity of this paper

were raised. In direct answer to these concerns, the USDA Forest Products Laboratory presented

results of research done on this paper. They studied the optical and physical properties of three

different paper mixes which they recycled.

The control mix was a fully-bleached paper which contained 50 percent recycled content, of

which 10 percent was postconsumer fiber. The second paper was the grayish paper under discussion

at the meeting, which had 100 percent recycled content, of which 50 percent was postconsumer

fiber. The third was a 50/50 mixture of these two papers. The 50/50 mixture was studied to

demonstrate what would happen when the higher percentage postconsumer fiber content became

mixed with the white office paper and recycled.

This study showed, as might be expected, that the strength properties of the 50/50 mix paper

were midway between those of the two papers from which it was made. However, the optical

properties of the mixed paper were much closer to, not midway between, the properties of the 50

percent postconsumer fiber paper. Thus, they concluded that the introduction of a higher percentage

postconsumer fiber paper into a recycling mix would "degrade both the physical strength and

brightness of the final product."8 This could be overcome, of course, by adding stronger fiber, and

additional bleaching steps, both of which appear counter to the intended purposes of the Executive

Order. 

Continuing changes in technology 

McDonough, T.J., Tappi Journal. 78(3), 55(1995). 

"A Comparison of Upcycled and Recycled Paper," S. Abubaker and K. Cropsey presented at

USDA Forest Products Laboratory, Madison, WI, "Meeting on Groundwood Paper in Federal

Offices." 
Although the trend towards elemental chlorine-free (ECF) bleaching poses no problems to

the production of permanent paper, other new technologies may. Driven by the rising cost of pulp,

manufacturers are looking towards thermomechanical and chemithermomechanical pulping

processes to increase yield and lower costs. At least for the short term, these new pulping processes

pose a threat to the legibility of books and documents because much of the original lignin remains in

the pulp, even after bleaching. The lignin causes the resulting papers to darken upon artificial aging 

by light or heat. Such discoloration is unacceptable in a paper used for printing or writing that is to

be retained indefinitely. 

With this knowledge, manufacturers of these pulps are researching additives that will

prevent the pulps from darkening. This work is still in the research stage, but no doubt in the next

few years chemicals will be found which, when added to these pulps, retard the color change. Some 

of the compounds currently under investigation are sulfur-containing, which could pose a problem

to photographic records. The presence of increased amounts of reducible sulfur are excluded by

some box and board specifications, but are not currently addressed in the existing specifications for 

permanent paper. 

Cost issues 

For the 10-month period October 1994 to July 1995, the monthly producer price indices

issued by the Bureau of Labor Statistics (BLS) recorded a rapid rise in the cost of all printing and

fine writing paper grades. In the aggregate, costs of these paper grades increased an average of 27

percent (from a 17 percent increase for vellum-finish cover paper to a 35 percent increase for offset

book paper). These price increases, coupled with the elimination of discounts from retail suppliers,

created actual price increases of up to 80 percent for many Government printers. These have been 

reflected in bids received by the GPO in response to its solicitations for printing and binding. 

Financial forecasts predict that paper prices will continue their upward spiral for the immediate

future. 

Both prior to and since enactment of Pub. L. 101-423 in October 1990, a challenge to its full

implementation has been encountered because of the high cost of paper that meets the specifications

of JCP A270 (uncoated permanent book) -- the only permanent paper available through GPO prior 

to Government Paper Specification Standards (No. 10). Federal consumers argued that it could not

be used as the prime paper for documents of enduring value because its high cost made it

economically unfeasible, particularly if multiple copies were required. During consideration of the

legislation, the cost of JCP A270 was estimated to be 30 percent above that of offset book paper

(JCP A60), the predominant paper used in Government printing, regardless of whether JCP A60

was manufactured by an acidic or an alkaline process. In fact, investigation of GPO paper catalog

prices of the time reveals that, for the quarter February through April 1989, A270 was 187 percent

more expensive than A60. Also, in 1989, 100% Antique book was used as A270 is today and was

furnished to the Supreme Court only. Despite the general rise in paper prices during 1994 and 1995,

the price differential between A270 and A60 had narrowed somewhat. The prices that GPO charged 

agencies during the first three quarters of 1995 are shown in Table 5. 

Table 5: Prices Charged for A270 and A60 

1995 

Price/lb 

A270 A60 Percent Difference

January - March $0.591 $0.627 -5.74 

April - June .749 .684 9.5 

July - September .749 .607 23.39 

Many factors have contributed to the rapid rise in paper prices since October 1994. The 

primary cause of uneven price escalation across the entire spectrum of paper grades is attributable to

the marketplace dynamic of supply and demand. The fluctuation in price differential evidenced 
above suggests that the use of A270 for documents of enduring value in other than small quantities

would still be prohibitive. However, the same cannot be suggested for the other JCP permanent

papers since no historical data are available. Experience suggests that a large increase in demand

for A270 and other permanent papers would ensure that the price differential would widen. Initially

this might be the case because the papermaking industry would be building its manufacturing

capacity to satisfy the demand, and thereafter because total manufacturing capability of the industry

is at near capacity. Based on these economic factors, the monitoring agencies reaffirm their

recommendation that, as stated in NARA Bulletin 95-7: 

Federal agencies are advised to procure either permanent or alkaline paper grades when

creating all Federal records. Permanent paper is recommended for routine use in offices that

create and file a high proportion of long-term and permanent records, whereas alkaline paper

is recommended for routine use throughout agencies for all other documents. 

This is in keeping with the intent of Executive Order 12873 (“Federal Acquisition, Recycling, and

Waste Prevention,” October 20, 1993) and Environmental Protection Agency (EPA) guidance. The 

bulletin also states that any paper is suitable for mass production as long as a record copy is

produced on permanent or alkaline paper, microform, or electronic medium. 

Availability and use

Procurement of blank paper. Unless otherwise authorized by the Joint Committee on

Printing, Federal agencies in the Washington metropolitan area are required to procure blank papers

from the U.S. Government Printing Office (44 USC 1121). Federal offices outside Washington

should procure papers through the Federal Supply Service of GSA or may also purchase them from

GPO. NARA Bulletin 95-7 lists papers available from these sources.

However, not all papers used for Government records are obtained through printing and

procurement officials who would, as a normal policy, procure paper from GPO or GSA. Now, with 

the increasing availability of Government credit cards, purchase at local retail office supply stores

for paper and other office products is becoming more and more common.

Most paper suppliers do not, as a common practice, label their paper products. Thus, the 

consumer cannot identify them as alkaline, permanent, or acidic. Therefore, when Federal 

employees procure paper from sources other than GPO or GSA, in most cases they do not know the

degree of permanence of the paper they are procuring. The monitoring agencies propose to continue

working with JCP, GSA, and paper suppliers to develop common labeling practices, and to

encourage GSA to continue their marketing efforts to promote procurement of paper through GSA’s

Federal Supply Service.

SF-1 and decentralized printing. Sections 501 and 502, title 44, U.S.C., state that: 

All printing, binding, and blank-book work for Congress, the Executive Office, the

Judiciary, other than the Supreme Court of the United States, and every executive

department, independent office and establishment of the Government, shall be done at the

Government Printing Office...unless approved by the Joint Committee on Printing. 

Since a large amount of printing service is obtained through GPO, Standard Form 1, GPO

Requisition for Printing and Binding, will include blocks indicating alkaline or permanent paper

requirements when next revised. Once an agency indicates permanent or alkaline paper on the

printing requisition, GPO or their contractors must comply with the request. These proposed

changes to the form are relatively straightforward and will be easy to implement now that agency

officials are making informed choices regarding permanent and alkaline papers. However, future 

monitoring of Pub. L. 101-423 will be difficult, if not impossible, if agencies are permitted to

determine for themselves where they will procure their printing services and their blank paper.

Use of appropriate paper in agencies. According to 44 U.S.C. 2904, 3102, and 3301 and

36 CFR 1228.12, Federal agencies shall have approved records disposition schedules covering all

records. These schedules identify permanent and temporary records created by the agency. NARA 

statistics indicate that 3 percent to 5 percent of the records created by an agency are permanent. The 

majority of permanent records are created within a few distinct agency offices, usually 
policy-making offices. Because it is sometimes difficult at the time of creation to determine 

whether a document is permanent or temporary, the NARA Bulletin 95-7 recommends that 

permanent paper should be used routinely in offices that create a large majority of permanent

records. Other offices should use alkaline papers as a normal practice. Permanent papers will last

for several hundred years under normal conditions of storage and use and alkaline paper will last at

least 100 years. These time frames are much longer than those associated with the longevity of 

acidic papers.

This recommendation may appear contrary to that made in the second report to Congress. In 

1993, when the second report was written, the extreme cost differences between alkaline and

permanent papers, and the limited availability of permanent papers, led the monitoring agencies to

endorse the use of alkaline paper for all records as an interim step to the Government’s permanent

paper policy. Two years later, the situation has changed. Although the price of all papers has risen

dramatically, currently the difference in price between permanent and alkaline papers has narrowed. 

However, this trend is not likely to continue.

This is the principal reason why the Federal community is encouraged to use alkaline papers

except for those offices that create a large proportion of permanent or long-term records. NARA's 

Office of Records Administration will continue to work with agency records officers to assist them

in identifying offices that should stock permanent papers on a routine basis. 

Conclusion 

With this report, the Librarian of Congress, Archivist of the United States, and the Public

Printer have completed their mandate to monitor the progress of the Federal Government in

implementing Pub. L. 101-423 and to report such progress to the Congress. As this report shows,

the establishment by the Congress of a policy on the use of permanent paper for Federal records of

long-term value has had an important and far-reaching impact.

When Senator Claiborne Pell (D-RI) brought S.J.Res. 57 - A National Policy on Permanent

Paper - to a vote in 1990, he stated, "... this resolution reflects a growing concern about the

impending loss of an enormous volume of our historical, cultural, and scientific records because of

the self-destruction of the acidic papers in which books and other publications have been printed

since the mid-nineteenth century." He emphasized the fundamental importance of a public policy

on permanent paper and said, “Every book produced on acid free paper today reduces the total

number of volumes requiring deacidification, and frees up preservation resources which can be used

to attack the crumbling backlog of publications dating back to 1850.” 
Even as we enter the electronic age on our way into the 21st century, the legacy of acidic

paper from the 19th Century still threatens the survival of our cultural heritage, and efforts to

preserve existing collections still exceed the $100 million dollar cost Senator Pell cited. The 

production and use of alkaline and permanent papers on a worldwide basis is the only sure way of

stemming the tide of brittle paper records flooding government offices, libraries, and archives of this

Nation.

 Although much has been accomplished since Pub. L. 101-423 was signed in October 1990,

important work remains to be done. For example, GPO's Standard Form 1, Printing and Binding

Requisition, should be revised to enable designation of an alkaline option on agency printing 

requests. Also, appropriate labeling by paper suppliers of alkaline and permanent papers should be

assured; continuing education programs about the use of permanent paper should be developed; and

information about the procurement of alkaline and permanent papers should be distributed. Further, 

LC and NARA will continue to contribute to the important research being conducted by ASTM and

will ensure that it is observed closely and reported widely. 

Thus, although this report marks the end of our responsibilities as set forth in Pub. L. 101­

423, the Librarian of Congress, Archivist of the United States, and the Public Printer agree to

continue, on an ad hoc basis, monitoring the progress of the Government’s permanent paper policy. 
Appendix 1

Public Law 101-423 

One hundred first Congress of the United States of America 

At the Second Session 

Begun and held at the City of Washington on Tuesday, the twenty-third day of January,

one thousand nine hundred and ninety 

JOINT RESOLUTION 

To Establish a national policy on permanent papers

 Whereas it is now widely recognized and scientifically demonstrated


 that the acidic papers commonly used for more than a century in


 documents, books, and other publications are self-destructing and


 will continue to self destruct;


 Whereas Americans are facing the prospect of continuing to lose


 national, historical, scientific, and scholarly records, including


 government records, faster than salvage efforts can be mounted


 despite the dedicated efforts of many libraries, archives, and 


 agencies, such as the Library of Congress and the National Ar­


chives and Records Administration;


 Whereas nationwide hundreds of millions of dollars will have to be


 spent by the Federal, State, and local governments and private


institutions to salvage the most essential books and other mate­


 rials in the libraries and archives of government, academic, and


 private institutions;


 Whereas paper manufacturers can produce a sufficient supply of 


 acid free permanent papers with a life of several hundred years,


at prices competitive with acid papers, if publishers would specify


 the use of such papers, and some publishers and many university


 presses are already publishing on acid free permanent papers;


 Whereas most Government agencies do not require the use of acid


 free permanent papers for appropriate Federal records and


 publications;


 Whereas librarians, publishers, and other professional groups have

 urged the use of acid free permanent papers;

 Whereas even when books are printed on acid free permanent paper


 this fact is often not made known to libraries by notations in the


 book or by notations in standard bibliographic listings; and


 Whereas there is an urgent need to prevent the continuance of the

 acid paper problem in the future: Now, therefore, be it

 RESOLVED BY THE SENATE AND HOUSE OF REPRESENTATIVES OF THE 

UNITED STATES OF AMERICA IN CONGRESS ASSEMBLED, 

 SECTION 1. It is the policy of the United States that Federal

 records, books, and publications of enduring value be produced on

 acid free permanent papers.

 SEC. 2. The Congress of the United States urgently recommends 

that-­

(1) Federal agencies require the use of permanent 


 papers for publications of enduring value produced by the 


 Government Printing Office or produced by Federal grant or 


 contract, using the specifications for such paper established by 


 the Joint Committee on Printing;

 (2) Federal agencies require the use of archival quality acid

 free papers for permanently valuable Federal records and 

confer with the National Archives and Records Administration 

 on the requirements for paper quality;

(3) American publishers and State and local government use 

 acid free permanent papers for publications of enduring value, 

 in voluntary compliance with the American National Standard;

(4) all publishers, private and governmental, prominently

 note the use of acid free permanent paper in books, 

 advertisements, catalogs, and standard bibliographic listings; 

and 

(5) the Secretary of State, Librarian of Congress, Archivist of 

 the United States, and other Federal officials make known the 

 national policy regarding acid free permanent papers to foreign 

 governments and appropriate international agencies since the 

 acid paper problem is worldwide and essential foreign materials 

 being imported by our libraries are printed on acid papers.

SEC. 3. The Librarian of Congress, Archivist of the United 

 States, and the Public Printer shall jointly monitor the Federal

 Government's progress in implementing the national policy de­

 clared in section 1 regarding acid free permanent papers and shall

 report to the Congress regarding such progress on December 31, 

 1991, December 31, 1993, and December 31, 1995. In carrying out the 

 monitoring and reporting functions under this section, the Librarian 

of Congress, the Archivist of the United States, and the Public

 Printer may consult with the National Endowment for the Human­

 ities, National Agricultural Library, National Library of Medicine, 

 other Federal and State agencies, international organizations, pri­

 vate publishers, paper manufacturers, and other organizations with 

 an interest in preservation of books and historical papers. 

Approved October 12, 1990. 
Appendix 2

JCP “Option A” Paper Grades 

JCP A60 Offset Book (w/postconsumer recovered material content)9 

JCP A61 No. 1 Offset Book, Smooth-finish 

JCP A75 Light Weight Offset Book (Bible Paper) 

JCP A80 Opacified Offset Book 

JCP A90 Vellum-finish Book, White and Colored 

JCP A180 Litho (Gloss) Coated Book 

JCP A240 Matte Coated Offset Book 

JCP A260 Dull Coated Offset Book 

JCP F10 Manifold, White and Colored 

JCP J10 Ledger, White and Colored 

JCP K10 Index, White and Colored 

JCP L10 Litho (Gloss) Coated Cover, White and India Tint 

JCP L20 Vellum-finish Cover, White and Colored 

JCP L23 Offset Cover 

JCP L50 Matte Coated Paper 

JCP L60 Dull Coated Cover 

After 12/31/94, minimum content standard will be 20% postconsumer (PC) recovered material and

after 12/31/98, 30% PC. 
Appendix 3


Comparison of Permanent Paper Standards


Property NISO ISO 

ANSI Z39.48-1992 ISO 9706 

“permanent” 

ISO/DIS 11108 

“archival

 permanent” 

pH 7.5-10 (u)* 

7.0-10 core (c)** 

7.5-10 7.5-10 

Alkaline reserve 2% minimum 20 g/kg CaCO3 20 g/kg CaCO3 

Kappa number

(maximum) 

7 5 5 

Tear measure 5.25 mNm2/g (u)

3.50 mNm2/g (c) 

70 g/m2:350 mN 

25-70 g/m2:r=6w-70 

r = tear resistance 

w = weight 

70 g/m2:350 mN 

25-70 g/m2:r=6w-70 

r = tear resistance 

w = weight 

Other physical

properties 

none none MIT folding

endurance 2.18 

Other chemical 

properties 

paper stock - no more

than 1% lignin 

none paper stock - if other

than cotton, linen, or 

ramie must state 

content and percent

 * (u) signifies an uncoated paper

** (c) a coated sheet 

The pH and alkaline reserve requirements ensure that the paper is not acidic and will not become

acidic over time. The kappa number requirement ensures that the paper is well-bleached, and

therefore less likely to deteriorate due to oxidizable functional groups. And the tear index or tear 

resistance (as well as the folding endurance) is a measurement of strength which seems to predict

fairly well an alkaline paper's durability under accelerated aging conditions. 
Appendix 4

NARA Bulletin 95-7 

National Archives and 

Records Administration 

Washington, D.C. 20408 

NARA BULLETIN 

NO. 95-7 September 8, 1995 

TO: Heads of Federal agencies 

SUBJECT: Procurement of writing, copying, and printing papers for Federal records 

1. Purpose. This bulletin advises agencies to procure permanent and alkaline paper grades routinely

to create all Federal records. This recommendation complies with Public Law (Pub.L.) 101-423,

Executive Order (E.O.) 12873, and Environmental Protection Agency (EPA) guidance. Information 

on cost and availability of paper grades is also provided. 

2. Expiration. This bulletin expires September 30, 1997. 

3. Background. 

a. Papers used for most documents and publications since the mid-nineteenth century were

highly acidic. The acid in these papers greatly accelerates their deterioration and is a principal threat

to our documentary heritage. In the past, the cost of acid-free papers was generally prohibitive. In 

recent years, the pursuit of inexpensive papermaking techniques has resulted in an increasing

replacement of acidic pulps with more economical alkaline pulps. Fortunately, the alkaline process 

also extends paper life by many decades. 

b. Public Law 101-423, A Joint Resolution to Establish a National Policy on Permanent

Papers, establishes as the policy of the United States that Federal records, books, and publications of

enduring value be produced on acid-free permanent papers. The Joint Resolution further 

recommends that Federal agencies require the use of acid-free permanent paper for publications of

enduring value produced by the Government Printing Office or by Federal grantor contract, using

the specifications for such paper established by the Joint Committee on Printing; and that agencies

require the use of archival quality acid-free papers for permanently valuable Federal records and

confer with NARA on the requirements for paper quality. 

c. Executive Order 12873, "Federal Recycling, Acquisition, and Use of Environmentally

Preferable Products and Services," section 504, and EPA's Recovered Materials Advisory Notice

(60FR21386) establishes minimum percentages for recovered waste and post-consumer waste for

printing and writing papers. Although many permanent and alkaline papers contain a significant

percentage of recycled material, most do not meet the percentages specified by the E.O. and EPA's

guidance. However, sections 502(2) and 504(1) of the E.O. authorize agencies to select papers that

do not meet content percentages when available items fail to meet reasonable

performance standards. 

4. Definitions. 

a. Alkaline paper. Paper that will last for at least one-hundred years under normal use and 

storage conditions. Alkaline paper grades are groundwood-free with a minimum pH of 7 and an

alkaline reserve of 2% or more. 
b. Generic paper. Paper without a specified pH or alkaline reserve. Longevity of generic 

paper varies and is uncertain. Many last for 50 to 100 years. 

c. Permanent paper. Paper that will last for several hundred years without significant

deterioration under normal use and storage conditions. Permanent paper grades are

groundwood-free with a pH of 7.5 or above, an alkaline reserve of 2% or more, and other strength or

performance properties that guarantee the use and retention of records generated on this paper for a

maximum period of time. 

5. Agency action. 

a. Agency heads should direct records officers and officials who administer procurement,

printing, and supply distribution to jointly develop policy and procedures to procure and use

permanent and alkaline papers for both permanent and temporary Federal records. Copies of this 

bulletin are being distributed to agency records, printing and procurement officials. 

b. Because it is difficult to distinguish between permanent, alkaline, and generic papers, or to

determine at the moment of creation how long a document will be maintained, agencies may choose

to stock only one type of paper grade in individual office units (or agency-wide) for routine use in

photocopiers, laser printers, telefacsimile equipment, etc. 

(1) Permanent paper is recommended for routine use in office units that create and

file a high proportion of long-term and permanent records. 

(2) Alkaline paper is recommended for routine use throughout agencies for all 

documents. 

c. Publications intended for long-term use in a paper format by many recipients, such as those

that are placed in multiple Federal, State, and local government depositories' core collections in

libraries and offices, should be created on permanent or alkaline paper. Generic paper is suitable for

mass publications such as press releases and telephone directories; however, if the record set of a

publication has long-term value, a file copy should be created by: (1) photocopying onto alkaline or

permanent paper, (2) maintaining an electronic version, or (3) creating a microform version from the

paper or from Computer Output Microform (COM) 

d. NARA also suggests the following techniques to reduce paper consumption and/or waste: 

(1) Employ electronic systems to create, distribute, and maintain documents in

accordance with 36 CFR part 1234. 

(2) When paper is the selected format for Federal records:

- Make two-side copies.

- Use letter-size instead of legal-size paper.

- Use envelopes without plastic windows and self-adhesive glue. 	Adhesives 

and plastics cannot readily be recycled with paper. 

6. Cost and availability of paper for Federal records. 

a. In recent years, the cost of permanent paper was two to four times more than generic paper

and the cost of alkaline paper was one-third more than generic paper. However, a recent survey

showed only a 5% difference between comparable permanent, alkaline, and generic xerographic

paper grades with the permanent paper grade costing the least. Agencies should, on a continuing

basis, check and compare prices. If, at a given time, there is a significant cost difference between

permanent, alkaline, and generic paper grades, NARA will work with agencies to identify specific

series of permanently valuable records that can be created on permanent paper without excessive 

cost. 
b. Unless authorized by the Joint Committee on Printing (JCP), Federal departments,

establishments and services in the District of Columbia must procure blank paper, including writing,

copying, and printing papers through GPO in accordance with 44 U.S.C. 1121. Locations outside of 

the Washington metropolitan area should procure paper through normal supply channels such as the

Government Printing Office (GPO) and the Federal Supply Service of the General Services

Administration (GSA) in accordance with the Federal Information Resources Management

Regulation (FIRMR) bulletin B-4. 

c. Attached is a complete list of all JCP specified alkaline and permanent paper grades,

including GSA National Stock Numbers (NSN) when available. The JCP standard specifications

are available in the "Government Paper Specification Standards, No. 10" on a subscription basis

through the Superintendent of Documents. For purchases and further information, customers may

contact GPO's Chief, Paper and Materials Control Section at 202-512-0208, FAX 202-512-1569 and

GSA's Procurement and Contracting Office at 212-264-3252, FAX 212-264-4920. 

7. NARA assistance. Record officers are encouraged to contact their designated NARA appraisal

archivists for assistance in selecting the appropriate paper for agency record series. Questions may

also be directed to the NARA Office of Records Administration, Agency Services Division at

301-713-6677, FAX 301-713-6850, TDD 301-713-6760. 

JOHN W. CARLING 

Archivist of the United States 

Attachment 
Attachment 

NARA Bulletin No. 95-7 

LIST OF PAPERS FOR FEDERAL RECORDS 

Following is the complete list of all permanent and alkaline paper grades specified by the Joint 

Committee on Printing (JCP) which are available from the Government Printing Office (GPO). 

Compatible General Services Administration (GSA) National Stock Numbers (NSN) are also listed. 

The list begins with permanent and alkaline papers especially well-suited for routine use in laser

printers and high speed xerographic copiers since most Federal records result from these processes. 

Annotations helpful to the average user are offered. 

For prices and further information, customers, may contact: GPO's Chief, Paper and Materials

Control Section at 202-512-0208, FAX 202-512-1569 and GSA's Procurement and Contracting

Office at 212-264-3252, FAX 212-264-4920. 

LASER AND XEROGRAPHIC PAPERS 

Permanent: 

1. GSA NSN 7530-01-398-2656 25% Bond, White, 20lb., 8-1/2"x11" (meets JCP G40). Meets 

recovered and postconsumer materials percentages cited in

Executive Order 12873, Federal Recycling, Acquisition, and

Use of Environmentally Preferable Products and Services. 

2. GSA NSN 7530-01-398-2654 Plain Copier, Xerographic, White, 20 lb., 8-1/2"x11" (meets

JCP O60) 

3. GSA NSN 7530-01-398-2655 Plain Copier, Xerographic, White, 20 lb., 8-1/2"x14" (meets

JCP O60) 

4. JCP G40-Option A, 25% Bond, White and Colored. For stationery, forms, legal documents,

ledgers, etc. which are used in high speed photocopiers, laser printers, plain paper telefacsimile

machines, and impact-type computer printers and with pen or pencil. Above average performance 

for two-sided copying and erasing quality. Watermarked with U.S. seal, year, and recycled symbol. 

5. JCP G60-Option A, Opacified Bond, White and Buff. Greater opacity than G40. Uses and 

watermark same as G40. 

6. JCP O60-Option A, Pain Copier, Xerographic, White, Natural, and Colored. For high speed 

photocopiers, laser printers, and plain paper telefacsimile machines. 
Alkaline: 

7. GSA NSN 7530-01-398-2652 Recycled Plain Copier, Xerographic, White, 20 lb., 8-1/2"x11"

(meets JCP O65). Meets recovered and postconsumer materials percentages cited in Executive

Order 12873, Federal Recycling, Acquisition, and Use of Environmentally Preferable Products and

Services. 

8. GSA NSN 7530-01-398-2653 Recycled Plain Copier, Xerographic, White, 20 lb., 8-1/2"x14"

(meets JCP O65). Meets recovered and postconsumer materials percentages cited in Executive

Order 12873, Federal Recycling, Acquisition, and Use of Environmentally Preferable Products and

Services. 

9. JCP O65, Recycled Pain Copier, Xerographic (when ordering from GPO, request special alkaline

modification). For high speed photocopiers, laser printers, and plain paper telefacsimile machines. 

ADDITIONAL PAPERS COMMONLY USED IN OFFICES 

Permanent Papers: 

10. JCP A270 Uncoated Permanent Book, White, and Cream White. For two-sided offset printing

of books, pamphlets, maps, etc. 

11. JCP H30-Option A, Imitation Parchment, Laser-Finish, White and Colored. For high-quality 

offset printing of certificates, etc. Suitable for line illustrations and embossing. The 24 pound

weight can be used in photocopiers and laser printers. 

Alkaline Papers: 

12. JCP A60-Option A, Offset Book (w/postconsumer material content). For two-sided printing of 

books, catalogs, folders, etc. The 80 pound weight is suitable for posters. Contains a minimum of 

20% postconsumer material. 

13. JCP A61-Option A, No. 1 Offset Book, Smooth-Finish. For highest quality two-sided offset 

printing. 

14. JCP A75-Option A, Light Weight Offset Book (Bible Paper). 

15. JCP A80-Option A, Opacified Offset Book. 

16. JCP A90-Option A, Vellum-Finished Book. 

17. JCP A180-Option A, Litho (Gloss) Coated Book. For high quality offset printing of books, 

periodicals, maps, etc. 

18. JCP A240-Option A, Matte Coated Offset Book. 

19. JCP A260-Option A, Dull Coated Offset Book. For high quality reproduction of satellite and

high-altitude imagery as well as offset printing of books, maps, etc. 

20. JCP F10-Option A, Manifold, White and Colored. For one-sided offset printing of multicopy

forms and correspondence that are used in typewriters and with pen or pencil. 

21. JCP J10-Option A, Ledger, White, and Colored. For two-sided offset printing of forms, ledgers, 

posters, etc. 

22. JCP K10-Option A, Index, White and Colored. For two-sided printing of cards, forms, notices,

posters, covers, etc. that are used in typewriters and with pen or pencil. 
23. JCP L10-Option A, Litho (Gloss) Coated Cover, White and India Tint. Uses same as A180, but 

as a cover paper. 

24. JCP L20-Option A, Vellum-Finish Cover, White and Colored. 

25. JCP L23-Option A,Offset Cover. 

26. JCP L50-Option A, Matte Coated Cover. 

27. JCP L60-Option A, Dull Coated Cover. 
Appendix 5


Accomplishments and Presentations Pertaining to Pub. L. 101-423


Event Date 

Presentation on permanent paper, Publisher’s Committee,

Federal Depository Library Group (GPO) 

April 1994 

First and second reports to Congress on Pub. L. 101-423

mounted on NARA CLIO and LC MARVEL 

July 1994 

Government Paper Specification Standards (No. 10) published September 1994 

Meeting on permanent paper, Advisory Committee on 

Preservation (NARA) 

September 1994 

Environmental Protection Agency (EPA), meeting on

Groundwood Paper in Federal Offices (impact on preservation) 

October 1994 

Presentations on permanent paper, semi-annual classes on paper

procurement, Institute for Federal Printing and Publishing (GPO) 

November 1994 - April

1995 

Presentation on permanent paper, Interagency Council on

Printing and Publishing Services (GPO) 

January 1995 

Presentations on permanent paper, Bi-Monthly Records and

Information Officers Discussion Group (NARA) 

February 1995 

Joint letter from Agency Heads to State Governors urging their

support of Pub. L. 101-423 (LC, NARA, GPO) 

March 1995 

Letter to American Society for Testing and Materials (ASTM)

supporting research in paper aging (NARA) 

April 1995 

Publication of NARA Bulletin 95-7 - "Procurement of Writing,

Copying, and Printing Papers for Federal Records" 

September 1995 

NARA Bulletin 95-7 mounted on NARA CLIO September 1995 

Distribution of NARA Bulletin 95-7 to Federal Agency Heads,

Records Officers, Procurement Officials, and Printing Officers;

and State Governors, Archivists, and Records Officers 

November - December 

1995 

Presentation on permanent paper, Records Officers, Small

Agency Council (NARA) 

December 1995 
Appendix 6


Letter to Governors


March 1995 

Dear Governor: 

With this letter, we draw your attention to the enclosed <em>Second Report to Congress on the

Joint Resolution to Establish a National Policy on Permanent Records.</em> As you may know, in

January 1990 the Congress passed a Joint Resolution to establish a national policy for permanent 

papers. The resolution became Public Law 101-423 when signed by President Bush in October 

1990 

Public Law 101-423 recommends that Federal agencies require the use of acid-free permanent

papers for publications of enduring value produced by the Government Printing Office (GPO) or its

contractors (Section 1), and for permanently valuable Federal records (Section 2). To assist 

Government compliance with the law, the Joint Committee on Printing revised several GPO paper

specifications to facilitate agency efforts to procure alkaline paper. In addition, the National 

Archives and Records Administration (NARA) will shortly release a NARA Bulletin on

"Procurement of Writing, Copying, and Printing Papers for Federal Records." 

We strongly support the implementation of the permanent paper law. Not only will it ensure the

long-term retention of important publications and documents, it will also save the Government the

future expense of costly deacidification or preservation reformatting. We are also confident that use 

of permanent paper can be achieved without sacrificing environmental benefits that will be brought

about by compliance with current recycling regulations. 

We invite you also to make a commitment to this effort; and, like the Congress, we strongly

recommend that your state and local governments use acid-free permanent papers for publications of

enduring value, in voluntary compliance with the American National standard (Z39.48-1992),

"Permanence of Paper for Publications and Documents in Libraries and Archives" (Section 3). 

If you would like further information about this important matter, please contact Merrily Smith

(Assistant National Preservation Program Officer, Preservation Directorate, Library of Congress

LM-G21, First and Independence Ave. S.E., Washington, D.C. 20540; FAX 202-707-3434; Internet

nppo@loc.gov), or Lewis J. Bellardo (Division Director, Preservation Policy and Services (NNP),

National Archives at College Park, 8601 Adelphi Road, College Park, Maryland 20740-6001; FAX

301-713-6919; Internet Lewis.Bellardo@arch2.nara.gov). 

Sincerely, 

JAMES H. BILLINGTON TRUDY HUSKAMP PETERSON MICHAEL F. DIMARIO 

The Librarian of Congress Acting Archivist of the Public Printer 

United States 
Appendix 7


Use of Permanent Paper for Historical Documents


(Senate - October 7, 1994) [Page: S14759] 

Mr. MOYNIHAN. Mr. President, I was recently contacted by the New York Public Library


regarding the Federal Government's policy on the use of recycled paper and a possible conflict


between the President's Executive order on recycling, Executive Order 12873, and the requirement


of Public Law 101-423 that permanent paper be used for historical documents. Happily, this matter


seems to have been resolved to the satisfaction of all parties concerned. Fran McPoland, Federal


environmental executive at the Environmental Protection Agency, has written the New York Public


Library that the requirement for the use of recycled paper does not conflict in any way with the


requirement for the use of permanent paper for historical documents. The administration fully


intends to use permanent paper for documents of enduring historic value.


The Federal environmental executive was appointed by the authority of Executive Order 12873. One


of the roles of the Federal environmental executive will be to assist individual agencies in the


development of specifications to fulfill the requirements of both the Executive order on recycling


and the joint resolution on permanent paper. Executive Order 12873 also called for the appointment


of agency environmental executives in each executive department and major procuring agency.


Mr. President, for the information of all Senators, I ask unanimous consent that a letter from Federal


Environmental Executive Fran McPoland to Paul LeClerc, president of the New York Public


Library, be printed in the Record.


There being no objection, the letter was ordered to be printed in the Record, as follows:


Office of the Federal


Environmental Executive,


Washington, DC, July 19, 1994.


Mr. Paul LeClerc,


President, The New York Public Library, New York, NY


Dear Mr. LeClerc:


As the Federal Environmental Executive appointed by the authority of the President's

Executive Order on Recycling, I am in the receipt of your communication regarding the necessity to

ensure that the federal government's use of recycled paper not be perceived to be in conflict with

P.L. 101-423's requirement to use permanent paper for documents of enduring historical value. I am

writing to assure you that there is no such conflict, and to tell you of the steps this Administration is

taking to ensure that the recycled paper requirements are not implemented in such a way as to result

in the inappropriate use of acidic paper.

The Administration is completely aware of and strongly supports the Joint Resolution on

permanent paper and its goals. Paper which contains recycled material and is either permanent of

alkaline is available for purchase, and it is our intention to continue to use these papers for

documents of enduring value. 

I will be working with the individual agencies to develop specifications to fulfill the goals of

the Executive Order and the Joint Resolution. Executive Order 12873 called for the appointment of

Agency Environmental Executives for each Executive department and major procuring agency, in

addition to a Federal Environmental Executive within EPA, the position to which I have recently

been appointed. I intend to transmit a copy of this letter to all Agency Environmental Executives in

order to restate our position that the requirements for use of recycled paper are not to conflict in any

way with the concurrent requirement for permanent paper use. Furthermore, I am meeting this week

with the Agency Environmental Executives, and I intend to discuss and reaffirm our commitment to

the use of permanent or alkaline paper during this meeting. I will be continuing to work closely with

these executives to ensure on-going sensitivity to this issue as we implement Executive Order

12873. 

I very much appreciate your interest and concern for the permanence of historical documents, 
and applaud your efforts to reduce the use of acid papers by the federal government. We fully share


your concern, and I look forward to continuing to work with you on issues of recycling and paper


permanence.


Sincerely,


Fran McPoland,


Federal Environmental Executive.