College and Research Libraries Government Publishing in Wartime A statement submitted to the United States government by the American Library Association. THIS MEMORANDUM presents observa-tions and suggestions on government publishing in w a r t i m e based in part on the needs of educators, students, scholars, pro- fessional organizations, colleges, univer- sities, schools, and libraries, but primarily on the usefulness of such persons and agencies to the government in getting the right publication to the right person at the right time. I t recognizes the w a r t i m e necessity for economical use of funds, manpower, and machinery and also the importance of keeping people informed. I t discusses briefly the different kinds of publications issued by the government and makes specific suggestions to increase the ef- ficiency of publishing and distribution procedures. In its preparation the A . L . A . has had advice f r o m representatives of the A m e r i - can C o u n c i l of L e a r n e d Societies, N a t i o n a l Research C o u n c i l , Social Science Research C o u n c i l , A m e r i c a n C o u n c i l on Education, and other scholars; f r o m several govern- ment officials and employees; and f r o m many general and special librarians. H o w e v e r , the A m e r i c a n L i b r a r y Associa- tion is alone responsible f o r the statement as presented. I . I N T R O D U C T I O N T^jie w a r t i m e increase in the powers and activities of the executive branch of the government, the demand for speed in decision and action, the need for economy, the need for unity, the temporary curtail- ment of personal privileges, the eagerness of people to k n o w w h a t is going on and w h a t they can do to h e l p — a l l these factors increase the importance and add to the difficulties of government publishing in w a r t i m e . T h e channels of communication be- tween the government and the people must be kept open, possibly expanded. Speed and economy may be sought through improved administrative and editorial procedures, n e w technological advances in printing, and coordinated distribution. I I . T H E G O V E R N M E N T A S P U B L I S H E R T h e government's responsibilities as publisher appear to f a l l rather naturally into the f o l l o w i n g categories: A. Administrative, legislative, and j u - dicial reporting. B. A d m i n i s t r a t i v e rules, regulations, and announcements. C. Information and education. D. Research. T h e s e categories are not a l w a y s mutu- ally exclusive. A n administrative report, for example, is often useful in education or research but it w o u l d be classified as a report if reporting w e r e the primary intention of the issuing agency. T h e classification is intended merely to lend clarity to the f o l l o w i n g discussion of the different kinds of government publications 100 COLLEGE AND RESEARCH LIBRARIES and to assist in defining the kinds of documents to be distributed by the several methods described in the third section. Publication is defined by W e b s t e r ' s New International Dictionary as "the issuing to the public of copies, n o w usually printed or similarly produced copies, of a book, engraving, or the like." W h e n w e speak of publications in this memorandum w e mean printed and "processed" materials which either have been "issued to the p u b l i c " or whose usefulness w o u l d be increased if "issued to the public." A . Administrative, Legislative, and Ju- dicial R e p o r t i n g I t is a necessary function of admin- istrative officials in a democracy to report periodically to the President or to the Congress and to the people on w h a t they have done; and of legislative and judicial authorities to publish their reports, docu- ments, proceedings, hearings, laws, and court decisions. W e believe that such reporting is even more essential in w a r - time than in peace because of the great expansion of government activities and the greater urgency that people shall have information enabling them to act wisely and w i t h confidence in their elected and appointed officials. Examples Annual Report of the Civil Service Com- mission. Annual Report of the Secretary of the Navy. T h e Congressional Record. Reports and Documents of the House and Senate. Hearings of the House and Senate Com- mittees. Official Reports of the Supreme Court. Recommendations I. W e recommend that all government agencies be required to report periodically. 2. W e suggest that any necessary curtail- ment for purposes of economy be effected through reduction in length (where that is possible without affecting substance), pro- duction in more economical form, and elimination of wasteful distribution; but not in discontinuing the reports or so limit- ing their editions as to prevent distribution to people who will make good use of them. 3. W e urge that reports which, because of their confidential nature, cannot be given out now except to a restricted group of government officials, be held for general release after the war. B . Administrative Rules, Regulations, and Announcements T h e s e documents are produced in the normal everyday job of administration by the various agencies for the guidance of their own personnel, the information of other government agencies, and the in- struction of particular groups of people, such as the leaders in one industry. T h e y are the tools of the trade, the necessary implementation of administrative decisions and orders. T h e s e administrative docu- ments are g r o w i n g in number and importance w i t h the increase in the administrative and quasi-legislative powers of the executive branch of the government. Examples T h e Federal Register. Regulations of the Office of W a r Informa- tion. Service and Regulatory Announcements of the Bureau of Animal Industry. Rules of the Supreme Court. Calendars of the House and Senate. Directives of the W a r Manpower Commis- sion. Recommendation 4. In our opinion all administrative rules, regulations, and announcements (except those which are intended only for internal administration) should be made available MARCH', 1943 101 not only to officials and to the special groups concerned but also to the special and general libraries which serve those groups. It should be remembered too that these publi- cations are a part of the record of the government's wartime activities and should be preserved in appropriate libraries and archives for the social scientist. C . Information and Education T h e Office of W a r Information w a s created in recognition of the fact that people need many kinds of information if they are to participate h e l p f u l l y in w a r activities and if they are to have intelligent opinions on the problems and issues w h i c h confront them as citizens. T h e y need accurate news of events at home and on foreign f r o n t s ; information about the various government agencies and their several responsibilities; accurate and authoritative information on the tech- niques of daily l i v i n g and w o r k i n g under w a r conditions; and assistance in develop- ing a sound understanding of the w a r t i m e policies of the government, the civilian sacrifices those policies make necessary, and the postwar problems created by the w a r . Examples Press Releases of the Office of W a r Infor- mation. The United States Government Manual. Vegetable Varieties of Soybeans. Pre-Aviation Cadet Training in High Schools. The Unconquered People. Divide and Conquer. Recommendations 5. T h e need for informational and educa- tional publications on such subjects as food, nutrition, health, fuel, conservation, care of children, civilian defense, technical training, and employment is even more urgent in w a r - time than in peace. Publications in these and other well-established fields of govern- ment activity should be continued as essen- tially related to the w a r effort. Some now issued in very limited editions for a particu- lar group should be reissued in large editions for a wider audience. 6. Readable publications designed to de- velop a fundamental knowledge of the meaning of democracy, the policies directing our w a r effort, the issues involved in those policies, the peace objectives of the United Nations, and the problems of postwar plan- ning should be produced in attractive form and widely distributed to individuals, li- braries, and other agencies. 7. Some news and press releases, in addi- tion to their normal distribution, should be sent to selected research and reference li- braries which need them for serious stu- dents and research workers. D . Research T h e important research publications of the U n i t e d States government are of three kinds: ( 1 ) Publications reporting the results of government research; ( 2 ) Publications presenting statistical and other information w h i c h is used as the basis for both government and private research; and ( 3 ) Indexes and bibliog- raphies necessary to the effective use of research publications. T h e s e publications are important to the well-being of the A m e r i c a n people; many are of direct v a l u e in the prosecution of the w a r . Examples Journal of Research. (Department of A g r i - culture and Bureau of Standards) Determining of Characteristics of Tapered Wings. (National Advisory Committee for Aeronautics) Research: A National Resource. (National Resources Planning Board) Financial Statistics of Cities. (Bureau of the Census) Index-Catalogue of Medical and Veterinary Zoology. (Bureau of Animal Industry) Index-Catalogue. (Army Medical Library) Statistics of State School Systems. (Office of Education) 102 COLLEGE AND RESEARCH LIBRARIES Recommendations 8. W e believe that the publication of re- search should be recognized as an integral part of the research process. It seems patently unwise and uneconomical to spend millions for research which cannot reach its full and ultimate ends without publication. T h i s is especially true of government re- search which, even though its immediate purpose might be achieved within a particu- lar bureau without publication, is useful and important to the conduct of other simi- lar research by other departments of the government and by private agencies. 9. In a w a r such as this we believe that a liberal interpretation of what will aid w a r - related research must be made. For ex- ample, the Index-Catalogue of Medical and Veterinary Zoology is an indispensable aid to research workers in tropical medicine, veterinary science, and conservation. A s the first two of these fields are definitely related to the war, the discontinuation of this publi- cation may hamper the w a r effort. 10. In issuing and distributing research publications during the war, we urge that the needs of scientists and institutions en- gaged in war-related research all over the country be remembered as well as the needs of those at work in Washington. 11. W e believe that such curtailment as is necessary, either for economy or to avoid giving aid to the enemy, should be through delaying publication and temporarily limiting distribution and not by measures which will permanently jeopardize the work of scholars and scientists who need such materials. 12. A s all government records and publi- cations are useful for research, they should be properly preserved and distributed for such use. E . In G e n e r a l . A s w i t h research publications, it is our opinion that government publishing in general should not be considered as a separate activity but rather as a necessary arm of nearly every government agency. I t is perhaps w o r t h noting that govern- ment publishing, contrary to some opinion, has not expanded as much as other govern- ment functions. Expenditures for print- ing are about five times w h a t they w e r e forty years ago, whereas the operating expenses of the government as a w h o l e have increased nineteenfold. In 1900 government operating expenditures de- voted to printing amounted to nearly 1 per c e n t ; by 1940 this proportion had dropped to less than one fourth of I per cent. T h i s is not to argue against econo- mies which can result f r o m better man- agement, but these facts do indicate that the current volume of government publish- ing is by no means the domineering colossus so frequently suggested. I t is to be noted also that in recent decades the level of education has risen, interest in government activities has in- creased, and the agencies f o r disseminating information have become more numerous. T h e r e is greater opportunity n o w than ever before for the government to make good use of its publications. Recommendations 13. T h e codification of many documents into a relatively few numbered series within each department or issuing agency and the elimination of most unnumbered publications would be in the interest of economy and efficient handling. T h i s practice has long been successfully followed by the Depart- ment of Agriculture and the Office of Education. 14. W e believe that economies in printing and some simplification in handling would also result from the wide use of existing serial publications for releasing reports, regulations, information, and results of re- search, in preference to creating new publi- cations and new series. A l l administrative orders and regulations which have effect outside the issuing agency, for example, might well be published in The Federal Register. MARCH', 1943 103 I I I . D I S T R I B U T I O N W e recognize that the problem of •distributing government publications is enormously complex. C o n t r i b u t i n g to this complexity are such factors as the large number of issuing offices, the in- equality of printing funds available to the several agencies, the many kinds of printed and "processed" documents, the fairly indiscriminate mixture of sales and free •distribution, the somewhat unsystematic distribution by congressmen, and a very imperfect depository library system. W e are not u n m i n d f u l of the necessity and economy of conveying information through newspapers, magazines, radio, and motion pictures; or of the desirability of sending reports, regulations, and other selected publications to national, state, and local officials; but as such methods and such distribution are w i t h o u t the province of this memorandum, w e have not attempted to deal extensively w i t h these problems. T h e observations and suggestions which f o l l o w are based in part on the needs of educators, students, scholars, profes- sional organizations, colleges, universities, schools, and libraries, but primarily on the usefulness of such persons and agencies to the government in getting the right publi- cation to the right person at the right time. Recommendations 15. W e endorse the announced purpose of O . W . I , to bring about some organization of control over general "request" mailing lists. Such control, we think, should result in expansion where that is needed, as well as in curtailment, for it is certainly more important to the w a r effort to get publica- tions into the hands of people who will make good use of them than it is to avoid a small percentage of ineffective distribution, 16. In preparing and revising mailing lists, particular attention should be paid to the thousands of educators, students, and scholars, and especially to the schools, col- leges, universities, libraries, and organiza- tions with which they are associated. These individuals and agencies are always available for use in the dissemination of information, and through them the government can reach a very large portion of the public. In planning distribution to these groups the government agencies which know most about their needs, activities, and capabilities should be called upon for advice. 17. Because of the importance of getting government publications to the American people at this time, no existing channels of distribution should be closed unless better ones are opened up. 18. T h e purpose of free distribution should be, not to serve the purely personal interests of the recipient, but to advance the national welfare. A . Depository Libraries F i v e hundred and forty-four libraries have been designated by congressmen as depositories of U n i t e d States government publications. O n e hundred and twenty- three of these are, by choice, " a l l " deposi- tories and receive all printed documents available for distribution to depository libraries by the Superintendent of D o c u - ments. T h e other 421 libraries receive only those series of printed documents in which they have indicated an interest. Recommendation 19. W e think the depository library system, in spite of its obvious imperfections, should be continued until the long-needed field survey of depository libraries can be made, possibly after the war. (Note also recommendation 21.) B . Libraries in G e n e r a l W e believe that the government should make maximum use of libraries as agencies for getting war-related publications to the 104 COLLEGE AND RESEARCH LIBRARIES people w h o are to use them. T h e dis- continuation of general mailing lists and the curtailment of special mailing lists may handicap the w a r effort if individuals and organizations dropped from the lists are not otherwise able to have access to the publications they need. Individual requests for free and sale copies of par- ticular documents w i l l in part meet this need. W e think that a large part of the need should be met by libraries. T h e r e are in the U n i t e d States some: 6200 public libraries (city, county, and state) 1700 college and university libraries (in- cluding teachers colleges, technical schools, and junior colleges) 6000 to 7500 school libraries (depending on how small a collection of books is called a library) 1500 to 2000 special libraries (including business, banking, technical, law, medicine, legislative reference, etc.) It should also be emphasized that many public, university, and school libraries have several branches. O n e large public library has 6 5 ; a large university library has 8 0 ; one large school system has 1 2 7 . ( I t is also necessary to record the un- fortunate fact that many communities do not have adequate libraries of any kind.) M a n y libraries are staffed by librarians skilled in making printed matter serve the needs of their clientele and eager to advance the nation's w a r effort. T h e y can and do bring publications to the attention of many millions of people, indi- vidually and in groups, and they try to make a practice of having each publication on hand w h e n it is wanted, immediately on publication or any time thereafter. M a n y of the people w h o use libraries are employed in w a r industries or engaged in other w a r activities; they need access to government publications. Reco mmendationS 20. W e endorse O . W . I . Regulation 5, Section 7, providing that library mailing lists be continued and also that libraries be asked to justify the retention of their names on "request" lists. Libraries would prefer, for reasons of economy, to justify their place on mailing lists to one agency for groups of publications rather than to each issuing agency for particular publications. Such justification should also allow requests for additional publications, printed and "proc- essed," not now being received. 21. W e believe that arrangements should be made to supply " a l l " depository libraries1 or important reference and research li- braries selected on a regional basis, with complete files of both printed and "proc- essed" publications for United States gov- ernment officials now widely distributed over the country and for students and scientists in general. If some of these publi- cations are temporarily restricted, they should be held for distribution to these libraries after the war. 22. Approximately seven hundred large library systems, public (state, county, and city), university, and school, should receive all war-related publications, including mul- tiple copies for branches and departments as needed. 23. Five to ten thousand additional pub- lic, college, school, and special libraries, in accordance with their need and with the availability of copies, should receive all w a r - related publications issued by government agencies for the information and education of the general public. These publications should be pre-selected and distributed as soon after publication as possible. 24. Special libraries devoted to engineer- ing, medicine, law, art, technology, business, banking, and other special subjects, should promptly receive documents related to their special interests and needs. If some docu- ments in these fields must be temporarily restricted, they should be held for these libraries until after the war. 25. Some of the information and educa- tion publications, particularly those con- cerned with the developing of an under- 1 S e e S e c t i o n A , page 104. MARCH', 1943 105 standing of government policy or with personal participation in w a r activities, which the government desires to have reach practically everybody in the country, should be sent to selected libraries in quantity for distribution to the public. C . Sales T h e Superintendent of Documents in the fiscal year 1940-41 sold t w e n t y - four million documents for a total of $1,300,000. L a r g e as these figures are, w e believe they can be greatly increased and that by increasing sales, much free distribution of the shotgun variety can be eliminated. W e are convinced that many individuals and institutions w o u l d w i l l - ingly buy government publications if buy- ing w e r e made easy. Recommendations 26. T h e r e should be established a sales stock of all or most emergency publications as well as regular publications, "processed" as well as printed. 27. An appropriate government agency should be authorized to operate retail stores in several regional centers for over-the- counter and mail-order sales of documents and to promote sales through appropriate local agencies, such as bookstores, depart- ment stores, and libraries. 28. Mail-ordering should be facilitated by enabling purchasers in the easiest possible manner to order through their local post office. D . Foreign Distribution In spite of the earnest endeavors of many federal agencies, the government's distribution of documents to foreign countries is inadequate and, as a whole, unplanned. Division of responsibility and authority appears to be the cause of much difficulty in getting needed documents to officials, libraries, and scholars of foreign countries and to American officials sta- tioned abroad. Recommendation 29. It is urged that a program of distribu- tion to other countries and to our own representatives abroad, commensurate with the needs of the situation in wartime, be made and inaugurated with all possible speed and that stocks of restricted publica- tions be reserved for foreign distribution after the war. I V . L I S T I N G A N D C A T A L O G I N G N o amount of intelligent advance care w i t h mailing lists w i l l put all documents in sufficient quantities into the hands of all the people and institutions able to make appropriate use of them. L e g i t i - mate requests for free copies as w e l l as orders f o r sale copies w o u l d be greatly facilitated by better lists, more promptly issued, more w i d e l y distributed. T h e existing cataloging, as exemplified by the Price Lists, The Weekly List, and The Monthly Catalog, all issued by the Super- intendent of Documents, have long been inadequate. The Weekly List, which is largely an advertising device, does not meet the present urgent need for a comprehensive current list of government publications. The Monthly Catalog no longer records all documents printed at the G o v e r n m e n t P r i n t i n g Office, never has included publi- cations issued by the field agencies and offices, and, although an attempt w a s made in 1936 to incorporate in it the important "processed" documents, has never even approximated complete cover- age. T h e Service Division, B u r e a u of Public Inquiries, Office of W a r Informa- tion, and the Office of Education have both attempted selective lists of national (Continued on page ng) 1 0 6 COLLEGE AND RESEARCH LIBRARIES more w i t h d r a w a l s of books and more modifications of arrangements to suit a flexible curriculum. T h e clerical func- tions w i l l probably not require special library training. O n e of the great sources of support for libraries in the future w i l l come from alumni, organized into such groups as the Friends of the K n o x College L i b r a r y , which E d w a r d C a l d w e l l , of N e w Y o r k C i t y , has developed in the past ten years into a vital part of our whole library structure, spiritually and financially. Relations with Administration Perhaps I should say a last w o r d about f u t u r e relations of the college administra- tion to the library. It is safe to say the trustees and executive officers have always been concerned—the history of K n o x shows that back in 1853, w h e n the total educational budget of the college was only $4350, the trustees appropriated $500 for library expansion. T h e library of the fu- ture has a right to expect continued support from the administration, but it must be re- membered that every department must be judged by the results it produces, and if the library uses its plant carelessly, fails to adjust itself to the changing curriculum, discourages faculty members, or hampers the educational development of the stu- dents, it is on the spot. B u t today, in 1942, the library on the average college campus is not on the s p o t — it is rather on the threshold of great new opportunities, not for physical expansion, but for important educational service. Government Publishing in Wartime (Continued from page 106) defense and w a r publications. H o w e v e r , comprehensive recording as w e l l as selec- tive listing is needed. A d e q u a t e listing is essential not only to efficient distribution but also to the current and f u t u r e handling and use of documents by librarians, teachers, stu- dents, and research workers. Recommendations 30. W e believe that some agency of the government should issue weekly or bi- weekly lists of current printed and "processed" publications. T h i s might be accomplished as a new service or might be incorporated in some existing weekly or biweekly government periodical. Provision should also be made for quarterly or semi- annual subject indexes to these lists. 31. W e recommend that, pending the inauguration of periodic listing of all gov- ernment publications, each department or independent agency be encouraged to issue lists of all of its own publications. 32. A l l publications, including those vhich are restricted or confidential, should be included in such lists if not contrary to the public interest. If government publishing is, as w e believe, a tool for use in achieving im- portant national objectives, it is w o r t h the effort now being made to develop a posi- tive policy and program for the employ- ment of that tool for the best possible results. MARCH', 1943 119