Governmenr Publicnrions Revieuz, Vol. 16. pp. 133-144, 1989.

Printed in the USA. All rights reserved.

0277-9390/89 $3.00 + .OO

Copyright 0 1989 Pergamon Press plc

DISSEMINATION OF UNITED STATES FEDERAL GOVERNMENT INFORMATION ON CD-ROM

An Issues Primer*

LISA SANCHEZ** San Diego Public Library, Extension Division, 820 E Street. San Diego, CA 92101, USA

Abstract - The federal government produces and distributes a large and ever-growing amount of information. Depository libraries receive this information, usually in hard copy or microform, and are charged with making it accessible to the general public. A new high-density publishing medium, CD-ROM, is currently being considered for use. There are many issues that must be addressed, such as space considerations, costs, access points, durability, user acceptance, and standardization. Advantages and disadvantages of the new technology are presented. Two possible applications are examined: census data and the Congressional Record. After discussion of these points, it is concluded that librarians must actively participate in the development and implementation of CD-ROM publishing to assure that government information remains readily available to the public.

INTRODUCTION

The federal government of the United States is the most prolific publisher in the world. Although it may be argued that government publications are underutilized, they remain, nevertheless, crucial to the maintenance of a free society. These publications “comprise a means of communication between the government and its citizenry” [ 11. The value placed by American society on government information is reflected by the many rules, regulations, and controversies involving the flow of such information. Because of its unique role, it is important to examine the potential impact of new technologies on the distribution and use of government information. Compact Disk-Read Only Memory (CD-ROM) is currently being considered by the federal government as a means of information distribution and storage. It has the potential to become part of the depository program, as microform did in 1977 [2]. Since depository libraries are charged with providing the public with free access to government information, the use of CD-ROM must be considered from three points of view, that of the government as producer, that of the depository library as distributor, and that of the user as consumer.

CD-ROM is a new storage medium, developed primarily in the early 1980s. The first CD-ROM readers were not commerically available until 1985. CD-ROM falls into the larger realm of optical technologies, which utilize lasers to read information from a disk. CD-ROM disks are 4.75 inches in diameter, and each can hold the same amount of information as 150,000 printed pages, or 1200 floppy disks [3]. This incredible storage capacity surpasses any previously available storage

*The author would like to thank Dr. John Richardson, professor at UCLA’s Graduate School of Library and Information Science. His guidance and encouragement made this manuscript possible.

**Lisa Sanchez received her MLS from UCLA in June 1988, where her specialization paper explored the issues and potential uses of CD-ROM. She is currently employed by the Extension Division of the San Diego Public Library.

133

134 L. SANCHEZ

system. A special drive, which is most often attached to a microcomputer, is necessary to read the disks. As the name suggests, once created the information on a CD-ROM cannot be erased or revised. In contrast with other computer storage systems that can be written to one or more times, the inalterability of CD-ROM makes it a particularly appropriate publishing medium [4].

CD-ROM has advantages as well as disadvantages. Among the reasons for its consideration by the federal government are high storage capacity, ease of distribution and storage, and potential cost savings for the U.S. Government Printing Office [5]. From the user’s point of view. however, CD-ROM,in its current stage of development. lacks the browsability. portability, and convenience that printed formats accord [6]. Libraries stand to benefit vis-a-vis economies of space, while equipment costs are a definite drawback. These and many other issues will be examined in depth

later.

GOVERNMENT EXPLORATION OF CD-ROM

In 1983, the Joint Committee on Printing established the Ad Hoc Committee on Depository Library Access to Federal Automated Data Bases. The committee met over the period of one year and explored issues of alternative forms of publication reaching far beyond online databases. In fact. as early as May 1983, David Fain spoke to the committee about the feasibility of distributing information through optical technology [7]. The committee’s commitment to providing informa- tion in formats other than paper or microform is reflected by its resolution: “The Committee unanimously supports the principle that the Federal Government should provide access to Federal information, as defined in 44 U.S.C. 1901, in electronic form through the depository library system.. ” [8]. The resolution also recommends further investigation through pilot projects. Several criteria were set forth for evaluating those projects. including “the willingness of Federal agencies to publish in electronic formats. availability and value of publications, methods of distribution, formats. costs, adherence to standards, and provision of ‘easy-to-use’ software” [9]. The committee expects that depository libraries will continue to make information available to the public free of charge.

The Library of Congress is currently exploring the use of optical media, including CD-ROM, through its Optical Disk Pilot Program. Special attention is being given to preservation concerns, and it is hoped that CD-ROM. as well as other forms of optical technology, will provide new possibilities for archival storage [lo]. Other criteria are also being examined, such as usage for compact storage, retrieval capabilities, and costs and benefits of CD-ROM in a library setting.

Much government information already exists in machine readable form, a factor that would make any future transitions to CD-ROM less costly and less time consuming. For example, the Government Printing Office uses an electronic photocomposition system to produce the Congres- sional Record and the Federal Register, as well as to print bills, reports, hearings, and congressional calendars 11 I]. This system has been in place since 1977, and has lead to a substantial savings in printing costs [ 121. In fact, the implementation of this system reduced the number of personnel needed to carry on composition functions from over 1,500 in 1975 to less than half that amount in 1985 [ 131. Some scholars predict that the publication of federal documents in electronic formats, including CD-ROM, is inevitable because of economic considerations as well as the improved searching capabilities offered by these new technologies [ 141.

ISSUES

The issues surrounding the implementation of CD-ROM are as numerous as they are complex. In some cases the issues are the same for private sector publications and as they are for

Dissemination of U.S. government information on CD-ROM 135

governmental publications, while other issues apply uniquely to one group or the other. For example, the private sector is very concerned with copyright issues. Because government information is not usually copyrighted, that issue does not apply. On the other hand, libraries have greater control over the format of purchases from the private sector because those publishers are seeking to make a profit and therefore are concerned with satisfying consumers. Depository libraries, as well as those desiring to purchase government information, must accept the material in whatever format it is produced. While the Government Printing Office sometimes offers a choice of formats, this is not always the case. It is also important to remember that, because CD-ROM is a new technology, there are many areas that are unknown, as well as others that may be improved over time [ 151. Finally, although the issues discussed in this article have been separated into categories for the sake of discussion, many are interrelated. It is important to consider the entire picture, not just one particular set of advantages or disadvantages, prior to making any judgments.

Space Considerations

A shortage of space is one of the most immediate, crucial problems facing depository libraries [ 161. The high storage capacity of CD-ROM is particularly significant in light of the current space crisis and the predicted future growth of documents collections. The Government Printing Office is expected to distribute 20,000 paper titles, as well as 43,000 microform titles, to depository libraries each year over the next 20 years. Over this 20-year period, a full depository would need to add approximately 7500 linear feet of shelving for paper titles, and 2500 linear feet of microform shelving. Even a depository receiving the 25 percent recommended minimum number of publications will receive and thus have to find space for approximately 15,000 documents each year [ 171. This large expected rate of growth makes CD-ROM a promising form of storage.

While the implementation of CD-ROM would potentially save large amounts of space in the stack area, there are many other space-related factors that must be considered. The new medium will require the establishment of CD-ROM user stations. Some libraries currently make indexes on CD-ROM available to users and have set up the necessary equipment in reference areas. Here the CD-ROM indexes are in close proximity to the reference desk and other indexes. While this setup may prove satisfactory for an index on disk, there are additional considerations when the CD-ROM contains textual information. Some users may need only to look up a single fact or other small amount of information, and thus will not find traffic patterns and noise that necessarily occur near a service point distracting. Other users, however, are likely to desire out-of-the-way, quiet reader stations conducive to intense concentration [ 181. This should include accommodations for notetaking. Furthermore, one must consider that users may require staff assistance. If information on CD-ROM is to be used for in-depth study, as well as for ready reference, it is highly desirable to provide reader stations in a variety of environments.

Establishing CD-ROM reader stations is not as simple as converting a few carrels or tables, previously used for working with printed materials, into CD-ROM reader stations. Experience shows that using microform, because of the equipment needed, requires more space than is necessary for working with printed materials [ 191. It is logical to conclude that CD-ROM will also require extra user space. The estimated space necessary for one microform reader station is 30 to 35 square feet [20]. Because of the construction of microform printers and readers as a single piece of equipment, microform readers and microform printers have comparable space requirements. At this time, printing material from CD-ROM requires placing a printer adjacent to the terminal. Thus, additional space must be allocated for this function.

The placement of CD-ROM reader stations will also be influenced by the structure of the library building. Electricity must be available to power the computers. Lighting must be appropriate for viewing the screen. For proper operation of the equipment, manufacturer’s specifications for

136 L. SANCHEZ

heating and ventilation should not be ignored [21]. These requirements must be balanced with the needs of users and departmental staff.

The space considerations that would accompany the implementation of CD-ROM are complex. Integrating user stations into existing microform areas may be the logical alternative in some settings, while a total reorganization may be necessary in other documents collections. While the CD-ROM reader stations will consume additional space, the high storage capacity of the medium makes it unlikely that the space regained from the stack areas would be completely undermined. Careful space planning, however, will be a necessity for the successful use of government information on CD-ROM.

costs

The costs related to CD-ROM technology manifest themselves in many ways. One of the most apparent costs is that of production. The information to be published on CD-ROM must be machine readable from the onset. and it must fit certain specifications previously discussed. The government has utilized electronic systems for some of its publications since the late 197Os, and this will undoubtedly benefit any future publications of those titles on CD-ROM. In other cases, a transition to machine readable publishing systems will be a necessary, but worthwhile investment. Converting back issues of various publications to CD-ROM format would be costly, however, due to the lack of machine readable files. Unfortunately, it is the conversion of many older publications that would benefit depository libraries by providing extra space.

The entire process of making a master copy of a CD-ROM is very costly. A plant containing all of the necessary equipment costs over 20 million dollars [22]. It is for this reason that many businesses have subcontracted the production of CD-ROMs. It would be possible for the federal government to do the same. Once the facilities are obtained, however, mastering is still a fairly expensive process. In early 1986, the 3M Company produced masters for approximately $8,000 each, with a three-day turnaround time [23]. The cost of this process is falling, and 3M predicts that it will stabilize at approximately $2,000 per master, with a 24-hour turnaround time [24].

After the mastering process has been completed, it is relatively inexpensive to reproduce CD-ROMs, making the average costs, including mastering and replicating disks, for high volume orders reasonable. Current cost estimates for replication, however, vary greatly. In 1986, one source placed this cost in the range of two to five dollars per copy [25]. Another source maintained that the LaserVideo company, one of the first CD-ROM producers in the United States, could make copies for $5.00 to $8.50 per disk, depending upon the quantity. The $5.00 per disk estimate was for runs of 5,000 or more [26]. Yet another estimate placed the 1987 cost of reproduction as high as $15.00 per disk [27]. Nonetheless, it is predicted that replication costs will fall even lower with time and high-volume production [28]. It is expected that it will eventually be cheaper to produce copies of CD-ROMs than to manufacture blank floppy disks [29]. Overall, the price of publishing on CD-ROM is expected to drop dramatically. This anticipated decrease provides incentive to publishers, such as government, to explore the new technology.

The costs of CD-ROM use do not stop with production. In order to read data it is necessary to have a special drive interfaced with a personal computer. Currently, the drives are most often compatible with IBM PCs or IBM compatibles: a high speed dot-matrix or thermal printer, which is substantially quieter. is also desirable [30]. How much does each necessary piece of equipment cost? CD-ROM players as of early 1987 ran approximately $1 ,OOO.OO each. Prices are expected to fall to under $250.00 by mid-1989 [31]. As for the personal computer, IBMs run approximately $3,000.00 a piece, while clones sell for approximately $1 ,OOO.OO. Caution should be used when purchasing a clone. as they have notably higher failure rates [32]. An appropriate printer can be expected to cost another several hundred dollars [33]. The expenses add up to a considerable sum

Dissemination of U.S. government information on CD-ROM 137

for just one user station. If a significant amount of government information is issued on CD-ROM, multiple user stations will undoubtedly be required. Even if prices drop, the costs of equipment can be expected to place quite a burden on libraries.

In spite of equipment costs, predictions are that the use of CD-ROMs will become more and more widespread. In early 1986, an estimated 3000 drives had been sold. By 1990, forecasters expect sales to reach as high as 2.5 million [34]. Falling prices are expected to contribute to rising sales, following the pattern already established by audio CDs. Players for audio CDs fell from $1000.00 in 1984 to $150.00 in 1986 [35].

Retrieval software is another cost that accompanies the use of CD-ROM. The requirements and considerations for purchasing software will be discussed in a later section. The cost for quality software is high. For example, Computer Access Corporation produces a product known as Bluefish’“. This package has powerful features such as Boolean logic and good indexing for speedy information retrieval [36]. It runs on IBM personal computers or compatibles, and commands follow natural English language syntax. The software costs $750.00 for a single-site user [37]. While less expensive packages are available, quality software is required for efficient use of CD-ROMs.

There are also hidden costs to CD-ROMs. Staff must be trained to use the system. Many users will require some level of assistance or education. Costs to print hard copies of data must be absorbed or a method for recovering costs devised. While publishing on CD-ROM may be cost effective, the initial investments in equipment and training for depository libraries are substantial. While all of the advantages and disadvantages must be weighed together, the government must be careful to provide a choice of formats for information that is published on CD-ROM until libraries are in a position to provide reasonable access to the new format.

Access

Some scholars feel that CD-ROM is an appropriate medium for government publications because it can help resolve the space crisis while improving access to information [38]. CD-ROM, a dynamic, interactive medium, has qualities that static forms of document storage, such as microform, do not. Existing indexing systems can be stored on the same disk as the data [39]. In addition, online search features, such as truncation and searching with key words, Boolean, and adjacency operators, can be utilized. This allows quicker access to information not covered by previous indexing systems.

Unfortunately, the unique characteristics of CD-ROM mean that existing magnetic disk software cannot be used. New software or interfaces between the system and the existing software must be developed [40]. The quality of the software has direct bearing on the performance of the CD-ROM. It influences the speed of retrieval as well as the points of access [41]. It is also important to consider ease of access. In order to make CD-ROM a viable medium for the dissemination of information, software must be developed that allows individuals with no technical or computer knowledge to use the system. While this may take some work, it is seen as a possibility [42]. Unfortunately, quality software is expensive. One solution to the problem might be the development of a standard, user-friendly, CD-ROM interface. This would, however, require that all CD-ROM producers follow certain standards to assure that their products are compatible. In order for this to be feasible, libraries and publishers would have to be willing to make a strong enough commitment to CD-ROM that producers could make a satisfactory profit from the disks and equipment alone, and thus not feel the need to release products requiring different interfaces. Whether this approach can become a reality is yet to be seen. It may be necessary for each library to invest in compatible software with features appropriate to its users. Packages allowing for variation in user sophistication are highly desirable. For example, a menu-driven option would aid

13X L.SANCHEZ

the occasional or new user. Persons more familiar with online search techniques might desire to access to the information in a more flexible search mode. The software could be modeled after existing systems, already in use in library settings.

Assuming that appropriate search software is developed to accompany CD-ROM publications, the new medium offers many advantages for information access. An increased number of access points will be available, and the user would be able to combine concepts as desired. The random access capabilities have the ability to make information needed for ready reference and research activities available more efficiently than print and microform formats. CD-ROM has the advantages of online searching without the pressure of paying by time online.

Durubilir)

CD-ROM is, at least for the short term, a very durable medium. Dust, scratches, and fingerprints do not affect the reading of the disk as the information is stored beneath the surface [43]. The medium is so resistant to damage that it can be distributed by mail without worry [44]. While magnetic computer disks can be destroyed by head crashes, CD-ROM avoids this risk because the laser reads the information from the comparatively long distance of more than one millimeter [45]. Finally, CD-ROM cannot be accidently erased or altered by the user. On a day-to-day basis, this medium is sturdier than paper and microform, the two most common formats for government

documents. Less is known about the archival qualities of CD-ROM. In this era of brittle books and fading

microforms, this concern is an important issue. Most companies claim that the disks they produce will last at least 10 years. Reference Technology Incorporated, of Boulder Colorado, claims that their disks have a storage life greater than 40 years [46]. The Library of Congress sees two potential preservation roles for CD-ROM. It could be be used as a document surrogate to avoid the handling and thus the further deterioration of the original. Second, if the original does deteriorate completely, CD-ROM will preserve the intellectual content [47]. Even if the life span of the medium is limited, it still has advantages for preservation. CD-ROM can be recopied to a new disk without the generational information loss that occurs with microforms. Furthermore, by using electronic sensing devices it is possible to detect the degradation of disks and make duplicates before the content is lost [48]. The Library of Congress is continuing research into the archival properties of CD-ROM. In addition, the National Bureau of Standards/Institute for Computer Sciences and Technology has established a continuing research program to examine various aspects of CD-ROM. including life expectancy [49]. Thus far the outlook is promising.

On a short-term basis, CD-ROM has great advantages over paper and microform. It cannot be torn or scratched by careless handling. Before large investments are made to convert information to CD-ROM for long-term storage. however, more testing must be done. Publishers, producers, and users must be sure that this format, either in its present form or with improvements, is

appropriate for archival storage.

User Acceptance

Printed materials are presently the most accepted means of formal communication. When microforms were introduced in library settings, users complained that they were inconvenient and difficult to use, caused eye strain, and produced bad copies. CD-ROM is the first major advancement in information storage since microform [SO]. Many manufacturers and information scientists predict that CD-ROM will be well received. This is yet to be seen. In support of their claims, they point to the overwhelming success of audio CDs [51]. This is, however, a weak comparison, as one medium is aural and the other visual. Forecasters also predict that this medium

Dissemination of U.S. government information on CD-ROM 139

may eventually replace microform. While CD-ROM may be more popular than microforms, it still has some drawbacks when compared to printed sources. Portability and browsability are lost. Reading computer screens for long periods of time can be hard on the eyes [52]. The fact that the system is computer-based will appeal to some potential users, while intimidating others.

Because of the many advantages offered by CD-ROM, it is highly likely that it will be used at some point in the future for the distribution of government information. In this event, it is important to take steps to increase user acceptance. It may be possible to compensate for the loss of browsability by increasing access points [53]. User stations can be set up with appropriate lighting, facilities for note taking, and comfortable chairs. Providing clear instructions for use and user-friendly software will ease frustrations. Finally, assisting staff should be positive about

CD-ROM, so that users do not adopt negative attitudes.

Standards

Although CD-ROM was developed in the early 198Os, there were no official standards governing any aspect of CD-ROM production until early 1988, when the International Standards Organization (ISO) passed IS0 9660 [54]. Many feel that this lack of standards has been a major set back to the development and adoption of the medium [55]. The IS0 standard, as well as a similar standard under consideration by the American National Standards Institute (ANSI), is based on work done by the High Sierra Group, an informal assembly of manufacturers interested in promoting the acceptance and growth of CD-ROM. In June 1986, they agreed to a data format standard [56]. The formal recognition of this standard will require all CD-ROM manufacturers to follow certain specifications for volume and directory structures [57]. Adherence to such a standard will insure that disks can be used universally with different drives, microcomputers, and operating sytems [58]. As of July 1988, the High Sierra Standard is expected to pass through ANSI in a form almost identical to that already approved by IS0 [59].

Many potential users have been waiting for standards to be officially established before investing in CD-ROM. Individuals and libraries alike remember the 1970s when videotape first entered the market. Early investors purchased products and equipment for Beta and three-quarter inch VHS, only to see one-half inch VHS become the standard by default a short time later [60]. Now that standards are beginning to become official, the market has potential to expand greatly. For the distribution and use of government information on CD-ROM to be successful. the Government Printing Office and any agencies that do their own publishing must follow established standards. The recent passage of IS0 standard 9660 and the pending passage of ANSI standard 239.60-198x will provide assurance to libraries and other CD-ROM users that various CD-ROM products and equipment may be used interchangeably. The passage of standards is a big step forward for the publishers, producers. and users of CD-ROM.

APPLICATIONS

There are many advantages and disadvantages associated with the use of CD-ROM for producing and disseminating government information. The success or failure of the medium undoubtedly will depend upon the appropriateness of the applications. A major consideration must be the advantages and disadvantages of CD-ROM’s extremely high storage capacity. While a large amount of information can be stored on one disk, only one person can use the disk at a time. Multiple user access has yet to be successfully implemented with CD-ROM. For this reason, high-volume low-use materials may be the most appropriate for publication on CD-ROM [61]. Converting such items to CD-ROM would free space in collections to allow for continued growth.

140 L. SANCHEZ

Info~ation that might not have previously been available due to space constraints could be provided. In other situations, CD-ROM might supplement print by serving as a second copy for items that are heavily used. The additional copy would have an increased number of access points that could aid in the search for elusive information.

Census Data

The United States Bureau of the Census produces a large amount of statistical data on a wide variety of topics. Only a small fraction of this info~ation is made available to the public in print or microform. Much more material is available from the Bureau in machine readable formats. Some of this data is available online through vendors such as NTIS and DIALOG, but even more can be obtained directly from the agency, through state data centers, or from the Inter-university ~onso~ium for Political and Social Research in Ann Arbor [62]. Data now obtained from the Census Bureau consists of large reels of magnetic computer tape that can be purchased by potential users. As of November 1, 1986, the cost of a single reel went from $140.00 to $175.00 [63]. Besides being expensive to produce, these tapes must be initially read using a mainframe

computer. The info~ation can then be manipulated on the mainframe or downloaded to floppy disks. Since many mainframes have been replaced by smaller-sized computers, finding appropriate facilities is becoming an increasingly difficult task for some researchers [64]. CD-ROM has a 550 megabyte capacity, which gives a personal computer the capability to store information at the same level as a mainframe computer 1651. The equivalent of four reels of high density computer tape can be stored on one disk [66]. The Census Bureau has already taken steps towards releasing data on CD-ROM to both libraries and individuals 1671. If this medium grows in acceptance and use as predicted, this move will offer many advantages for future users.

In June 1986, the Census Bureau became the first agency to undertake the production of a statistical database on CD-ROM [68]. It was produced through contracts with two private corporations. The data was formatted by Reference Technology, Inc., one of the first companies in the CD-ROM business [69]. The 3M Company produced the disks, that were the first ever to be released in the High Sierra format [70]. “Census Test Disc #l” contains demographic data

from the 1980 census arranged by zip code. It is currently available from the Data Users Service Division of the U.S. Bureau of the Census for $125.00 [71].

Certain pieces of census data are part of the recommended basic depository coflection as specified by the Guidelines for the Depository Library System 1721. While it may be desirable to maintain these publications in their current format, CD-ROM offers the potential for depository libraries to provide users with additional data that is too detailed to print [73]. Current plans are to sell Iarge data files on disks to libraries and individuals. This format could be processed on microcomputers with CD-ROM drives using interfaces to statistical software packages and spreadsheets [74]. The data equivalent to three high density magnetic tapes could be placed on one CD-ROM with the advantage of random access [75].

Using CD-ROM to supplement existing census data in depository libraries would allow documents librarians to fulfill requests for more in-depth statistical information 1761. It would offer researchers the advantages of cheaper and quicker access to needed data and would provide college level students with the valuable experience of doing research on a larger scale than previously possible [77]. Some practical considerations remain, however. If depository libraries are to provide access to statistical data on CD-ROM, the appropriate equipment and software packages to read or process the data must be available [78]. Libraries must formulate policies to deal with potential problems 1791. For example, researchers may require extended use of particular databases and of the limited equipment. Some mechanism must be established to insure that other users are able to acquire the information they need. It may be logical to allow the patron to use the disk for an

Dissemination of U.S. government information on CD-ROM I41

Table 1. Comparison of Space Requirements for Congressionnl Record (Permanent Edition) in Various Formats

Total No.

of Pages

No. of

Volumes

Equiv No.

of Fiche

Portion

of CD-ROM

Filled Comments

34,835 26

41,778 30

47,190 35

25.445 I9

15,094 I4

356 21.627r

427 27.85%

482 3 I .46’%

260 16.96%

I71 I I.1 I%

Vol. 127

1982

97th Congress

I st Session

Vol. 124

1978

95th Congress 2nd Session

Vol. 116

1970

9 I st Congress

2nd Session

Vol. I08

1962

87th Congress

2nd Session

Vol. 100

1954

83rd Congress

2nd Session

Exact no. pages

for index vol.

unavailable - Estimated as 1500

Notes. Total number of pages includes main body, index, and Daily Digest. Equivalent number of fiche is based on reduction ratio of 24X. currently in use. 98 pages appear-on q?e fiche. Portion of CD-ROM filled is based on average number of pages held by one disk. ALL FIGURES APPROXIMATE. No adjustments have been made for portions of fiche not used, etc. Years examined were selected because of their availability. Table is not intended to document trends in the size of the publication specifically. It is intended to show the relationship between various formats and space requirements.

extended period of time, especially if other items in the collection are allowed to circulate. Limited equipment provides a greater challenge. If the library owns multiple user stations, some could be limited to short-term use only. When only one or two user stations are owned, other solutions must be sought. For example, certain non-peak hours could be set aside for users to reserve equipment for extended use. In addition, the library must be prepared to deal with users who wish to use their own software with library equipment. While distributing detailed Bureau of Census data on CD-ROM has many advantages, time is needed to prepare policies and to be sure that the facilities are available to use CD-ROM resources.

Congressional Record

The Congressional Record is another item listed in Guidelines for the Depository Library System

as a recommended part of a basic collection [80]. In hard copy, this title occupies numerous sections of shelving. The microfiche edition consists of several hundred fiche for each session of Congress. If space is a problem, making the permanent edition of the Congressional Record available on CD-ROM could be a partial solution.

The Library of Congress selected the Congressional Record for use in phase II of the Optical Disk Pilot Program. This title is available on optical disk from January 1985 to the present, in several reading rooms at the Library of Congress, where staff members are observing and analyzing its use [81]. The system is set up to be searched in a variety of ways, including by subject, key word, name, date, bill, committee, public law number, recorded votes, and reports.

142 L. SANCHEZ

All access points available in the print version are available, as well as many more [SZ]. The outcome of this pilot project could have great influence on the use of optical media, including CD-ROM, for the future distribution of federal government information.

Do the benefits of increased subject access and space savings balance the cost of acquiring equipment to use the CD-ROM version of the Congressiotzal Record? Many may argue that subject access is -adequate when the title’s own indexing is supplemented by commercially produced indexes that yield increased subject access. This issue alone might not be a persuasive argument to support the investment of time and money to use the CD-ROM version. The potential space savings, however, is tremendous. This can be illustrated by an informal examination of the size of the permanent edition of the Congressional Record (see Table 1). Multiple volumes, which can be reduced to hundreds of microfiche, can be further reduced to a fraction of one CD-ROM disk. If CD-ROM becomes an accepted format, significant amounts of space can be saved.

Making the permanent edition of the Congressional Record available on CD-ROM may have other positive consequences. The lag time between the close of the daily edition of each volume and the publication of the permanent edition is great. For example. as of July 1988, the latest permanent edition available in hard copy or microfiche covers 1982. It is possible that the CD-ROM version could become available sooner than other formats. To achieve this, the machine readable files for the daily edition could be updated and tapes contracted out for publication on disk. If production costs continue to decrease as expected, this would save money for the Government Printing Office while providing the final product to libraries more expediently. A print version could still be produced from copies of the tapes.

The permanent edition of C~tzgressiotzffl Record is currently offered in microfiche and print. Making CD-ROM an option, which could eventually replace the microfiche, has many advantages. In libraries where this title is a heavily used part of the collection, CD-ROM could be purchased for use as a second copy. In depositories with space problems, back issues that might otherwise have to be stored at a remote location or removed from the collection could remain available for users. The one major disadvantage to publishing the permanent edition of the CongressiotzaZ

Record on CD-ROM is the lack of knowledge about the archival qualities of the new medium. If further research into this issue. however, yields favorable results, making the Congressional Record available on CD-ROM would allow libraries to choose the fomrat that best meets their

needs.

CONCLUSION

The advantages and disadvantages of using CD-ROM for the distribution of government information have been discussed throughout this article. The government is seriously examining the possibility of publishing in this new medium, as evidenced by such projects as the Optical Disk Pilot Program. Documents librarians should be following the research, considering issues, and evaluating the long range impact of distributing government information on CD-ROM.

The initial costs of providing access to information on CD-ROM must be considered. Space needs must be weighed against equipment costs. The potential for increased access using CD-ROM must be weighed against the time to train staff and users. Preservation issues should be examined in greater depth. Librarians should also examine how CD-ROM will affect documents collections after the initial transition period. Will government information become easier to use and thus become more valued in the eyes of the public? Or will the new technology restrict access to the computer literate? There are no easy answers.

The successful introduction of government information on CD-ROM is contingent upon cooperation between the governn~ent as publisher and the library in its role as information provider. By communicating and listening to each other’s concerns, the transition process can be made much

Dissemination of U.S. government information on CD-ROM 143

smoother. Assuming the decision is made to implement CD-ROM publication, the Government Printing Office and depository libraries must carefully plan the introduction of the new technology to be sure that adequate equipment is available, that the software is user friendly, and that staff has ample time to become familiar with the technology so that they can assist users. If the transition is made gradually, the costs of equipment and training can be distributed over time. In addition, users might be more willing to accept the new medium if it is phased in while the more familiar forms are still nearby. Finally, librarians should examine the use of their collections and provide input for future applications. Through a cooperative process, the interests of government, the libraries, and the users, can be safeguarded.

I.

2.

3.

4. 5.

6.

7.

8. 9.

10.

11.

12.

13. 14.

15.

16. 17. 18.

19. 20. 21. 22. 23. 24. 25. 26. 27.

28. 29. 30. 31. 32. 33. 34.

NOTES Peter Hernon and Charles R. McClure, Public Access IO Government Information: Issues, Trends, and Strategies (Norwood, New Jersey: Ablex Publishing Corp., 1984), 56. Jean Walter Farrington, “The Use of Microforms in Libraries: Concerns of the Last Ten Years,” The Serials Librarian 10 (Fall/Winter 1985186): 197. Leonard Laub, “What is CD-ROM,” in CD-ROM: The Neu, Papyus, ed. Steve Lambert and Suzanne Ropiequet, (Redmond, Washington: Microsoft Press, 1986), 47. Carl Stock, “CD-ROM: The New Distribution Medium,” The Government Micro User’s Guide 1 (Summer 1988):25. Karen .I. Sy, “CD-ROM and Related Technologies: Challenges for Federal Information Policy,” Bullefin of the Americctn Society for Information Science 13 (August/September 1987):26-7. Barry Richman, “Dense Media and the Future of Publishing,” in CD-ROM: The New Papyrus, ed. Steve Lambert and Suzanne Ropiequet, (Redmond, Washington: Microsoft Press, 1986), 447-8. U. S. Congress, Joint Committee on Printing, Ad Hoc Committee on Depository Library Access to Federal Automated Data Bases. Provision of Federal Government Publications in Electronic Format to Depository Libraries (Washington, DC: Government Printing Office, 1984). 17. Joint Committee on Printing, III. Joint Committee on Printing, III. “Library Issues Policy Statement on its Use of Print Materials in Optical Disk Format,” Library of Congress Information BuUetin 45 (September 22, 1986):322-28; “Full Text of Congressional Record is now on Optical Disk,” Libra? of Congress Information Bulletin 45 (June 2, 1986): 194. William Hincherick, “Automated Composition: The Development and Utilization of a Unique System for the U.S. Government Printing Office,” Government Publications Review I2 (May/June I985):215, Boyd L. Alexander, “Information Technology in the U.S. House of Representatives.” Bulletin of the American Socie@,for Inform&on Science 13 (February/March 1987):20-l. Hincherick, 2 17. Donald Case and Kathleen Welden, “Distribution of Government Publications to Depository Libraries by Optical Disk,” Government Publications Reviews, 13 (May/June 1986):313-22. Joseph W. Price, “The Library of Congress Use of Microcomputers in the Optical Disk Pilot Program.” Microcomputers for Information Management 2 (December 1985):241-50. Case and Welden. 3 14. Case and Welden, 314. Elaine Cohen and Aaron Cohen, Automation, Space Management, and Productivity (New York: R. R. Bowker, 1981). 107. Cohen and Cohen, 9 1. Hemon and McClure, 243. Hemon and McClure, 235. McClatchy. 50. Nancy K. Hetther, “CD-ROM and Information Dissemination: An Update,” Online 11 (March 1987):56-64. Herther, 59. Barbara K. Sehr, “High Noon for CD-ROM,” Datamntion 32 (November 1, 1986): 79-88. Roger Strukhoff, “Made in America,” CD-ROM Review 3 (February 1988):40-8. Paul E. Schindler, Jr. and Page Bruce, “CD-ROM Technology: Its Time has Come,” Information Week 15 (June 1987):17-22. Sehr, 88. Hendley, 113. Case and Welden, 317. Held, 177. William 0. Van Ardsdale, “The Rush to Optical Discs,” Libra? Journal 11 I (October 1, 1986):53-5. Case and Welden, 317. Herther. 58.

144 L. SANCHEZ

35. 36. 37.

38. 39. 40.

41. 42. 43. 44. 35. 46.

47. 48. 49.

50. 51. 52.

53. 54.

55. 56. 57. 58. 59. 60. 61. 62.

63. 64.

65. 66. 67. 68. 69. 70. 71. 72.

73. 74. 75. 76. 77. 78.

79. 80. 81. 82.

Laub. 5 1. McClatchy, 50. Bluefish (software package). Belmont, Massachusetts: Computer Access Corporation. Information retrieved through DIALOG’s Microcomputer. Software, and Hardware Guide Database, record number 0007120. Active entry November 1987. Case and Welden, 313. Laub. 47. Hugh Marior, “Data Structures for CD-ROM,” Bullerin of the Amrrirnn Sociey fiw Ittformrrtion Science 13 (August/September 1987):18-20. Case and Welden. 319-20. Marlor, 18. Hendley, 108. Case and Welden. 317. Hendley, 108. All &~t:t Oi~ical Risks (Delran, New Jersey: Datapro Research Coloration. 19871, 10-I I. For reprints call (800) 328-2776. Item number 70D6-OOILH. Price, 243. Price, 243. “National Bureau of Standards Establishes CD-ROM Lab,” O&ccl/ Info~~~rjun S~~ems &dote 7 (February 1. 1988):8. Case and Welden, 313. Henher, 57. Tsuneto Iwasaki and Shinji Kurimoto, “Objective Evaluation of Eye Strain using Measurements of Accommodative Oscillation,” Ergonomic.r 30 (March 1987):581-7. Case and Welden, 315. National Information Standards Office, telephone conversation, (301) 975-2814. July 18, 1988. (Interviewee declined to give name). Herther, 58. Herther, 59. Marior, 20. “Setting the Standards for CD-ROMs,” Dotct Cher News 21 (October 1986):3. National Information Standards Office. telephone conversation.. Van Ardsdale, 53. Case and Welden. 320. Hemon and McClure, 109-f 10; Kathleen M. Heim. “Government-Produeed Statistical Data for Social Science Inquiry: Scope, Problems, and Strategies for Access,” in Nmneric Dotrthmes, ed. Ching-Chih Chen and Peter Hernon, (Norwood, New Jersey, 1985). 120. “Tapes Soon $175.00 Per Reel,” D&r tlsrr Neir.r 21 (October 19861:7. Arthur G. Dukakis and Judith W. Cohen, “Databases Available from the U.S. Bureau of Census,” in Numeric Dotrrhoses. ed. Ching-chih Chen and Peter Hernon, (Norwood, New Jersey: Ablex Publishing Corporation, 1984). Sehr. 88; All nOout Opricnl Disks. 1. “Setting the Standards for CD-ROMs,” 3. “Setting the Standards for CD-ROMs,” 3. “Setting the Standards for CD-ROMs,” 3. McClatchy, 41. “Setting the Standards for CD-ROMs,” 3. Janet M. Tiampo, camp.. “40 Discs for Under $500,” CD-ROM Revior 3 (July 1988):42. Guidelines fiw the Depository Librrtr~ Spent, as adopted by the Depository Library Council to the Public Printer (Washington. DC: Government Printing Office. 1977). “Data Depositories of the Future,” Dntn U~et- .Neu~ 21 (October 1986X-4. Herther. 6 I Sy, 26. Hernon and McClure. I IO-1 1 “Data Depositories of the Future.” 4. Thomas Kinney and Ray Jones, “Microcomputers, Government Information, and Libraries.” Government Pubiica- rims Rerieu~ 15 (March/April 1988): 149. Kinney and Jones. 1.53. Guidelines ,for the Depository System, 3.10. “Full Text.” 194. “Full Text.” 194.