REPORT OF THE STEERING GROUP
ON
LOCAL AUTHORITY RECORDS AND ARCHIVES
March 1996.
Table of Contents
Chapter
1 / Summary of recommendations
2 / Preliminary
3 / Role of local authorities
4 / Present extent and condition of archives
5 / Recommended approach
6 / Dealing with records and archives
7 / Accommodation and staffing
8 / Finance
Appendix / Survey of local authority archives - Summary findings
Chapter 1
SUMMARY OF RECOMMENDATIONS
Recommended approach
1.1 / Given the generally poor condition of the surviving local authority archives, measures should be taken as soon as possible to secure their future (par. 5.1).
1.2 / Local authorities should carry out the required work in relation to their archives in two phases, ie.,
Phase I - The commencement of the task of properly retaining, managing, preserving and restoring their archives.
Phase II - The putting in place of arrangements for providing public access to archives (par. 5.2).
1.3 / Local authorities should commence the task of properly retaining and managing records under 30 years old. This includes the orderly disposal of records which do not warrant archival preservation and making suitable arrangements in relation to records becoming archives after 30 years (par. 5.3).
1.4 / Unless archives are at present in conditions which are an immediate threat to their survival, they should not be moved until arrangements for the commencement of Phase I have been put in place (par. 5.4).
1.5 / The Department of the Environment should issue guidelines to local authorities on the detailed aspects of looking after their records and archives (par. 5.5).
1.6 / Responsibility for the care and management of archives held by other local bodies, such as health boards and harbour authorities, rests with those bodies. However, in time and as resources permit, local authorities and those bodies should cooperate in the provision of shared archives facilities containing all of their archives (par. 5.6).
1.7 / The National Archives should, as far as resources permit, provide assistance to and cooperate with local authorities in relation to their archives services (par. 5.7).
Role of local authorities
1.8 / Local authorities should in time be in a position to acquire archival material from individuals or other bodies and care for and provide public access to such material (par. 3.2).
Dealing with records and archives
1.9 / Local authorities, particularly the smaller ones, should cooperate in matters of accommodation, staffing, etc., in meeting their responsibilities in relation to records and archives (par. 6.1).
1.10 / The most suitable place for the archives function in the organisational structure of the local authority is within the public library service (par. 6.3).
1.11 / Local authorities should prepare as soon as possible a plan of action for dealing with their archives (par. 6.4).
Accommodation
1.12 / Proper accommodation will be necessary to deal correctly with records and archives. The accommodation should meet the recognised standard for the storage of archives (par. 7.1).
1.13 / The use of temporary accommodation should be considered pending the provision of proper long-term accommodation (par. 7.2).
1.14 / Guidelines to be issued by the Department of the Environment to local authorities should include advice on the principal requirements to be met in relation to accommodation (par. 7.3).
1.15 / Plans for new library facilities should, where appropriate, take account of the accommodation needs in relation to archives (par. 7.4).
Staffing
1.16 / Each local authority should nominate a Certifying Officer who would have overall responsibility for records and archives in the authority (par. 7.5).
1.17 / The preparation and implementation of the plan of action should be carried out by local authority staff in conjunction with an archivist (par. 7.6).
1.18 / Local authorities should share the services of archivists in dealing with the present backlog of archives. As far as is possible, having regard the Government's restrictions on the recruitment of staff, local authorities should initially aim to engage the services of at least one archivist for every region established under the Local Government Act, 1991, or for every smaller area as may be agreed by the relevant local authorities. Where they are to be employed on contract, the contracts should be of sufficiently long duration to attract those who have the necessary qualifications and experience (pars. 7.7 and 7.8).
Finance
1.19 / Options for financing the required work in relation to records and archives should be explored by local authorities and the Department of the Environment (par. 8.1).
Chapter 2
PRELIMINARY
Background
2.1 / Section 65 of the Local Government Act, 1994, placed a duty on local authorities for the first time to make proper arrangements for the management, custody, care and conservation of their records and archives and to provide public access to their archives. The section also contains a number of related provisions, including one which enables the Minister for the Environment, having consulted the Director of the National Archives, to give advice or directions to local authorities on matters relating to their records and archives.
2.2 / In the light of the new legislation, it was decided that the Department of the Environment should determine what local authority archives exist in different areas, what work has been done to date in relation to those archives, what the immediate priorities are and how a uniform and consistent programme of development could best be put in place.
Steering Group
2.3 / To advise and assist the Department of the Environment in this work, a Steering Group, representative of the different interests in local authority records and archives, was appointed. The members of the Group were:
John O'Connor (Chairman)* Department of the Environment
Mary Clark Archivist, Dublin Corporation
David Craig Director, National Archives
Michael Doody Former City Manager, Waterford Corporation
Norma Mc Dermott Director, An Chomhairle Leabharlanna
Roibeard O Ceallaigh County Manager, Meath County Council
Michael O Connell Department of the Environment
Tom Sheridan (Secretary) Department of the Environment
* replaced John Cullen in August, 1995.
Survey
2.4 / To establish what local authority archives exist and what condition they are in, the National Archives carried out a survey of local authorities on behalf of the Department of the Environment. Because of the historical connection between the local authorities, the health boards and the harbour authorities, the survey also took account of archives held by the latter bodies.
Records and Archives
2.5 / In this report, references to the records of local authorities mean records in any format, other than library, museum or gallery collections or property deeds and the like, which are made or received and held by authorities in the course of their business. These records include the records of the various bodies which existed prior to the establishment of the present county councils in 1899. References to the archives of local authorities mean material held in local authority archives, local authority records which are more than 30 years old and other material which has been acquired as archives by the authorities. These meanings coincide with those given to the terms in section 65 of the Local Government Act, 1994.
Acknowledgements
2.6 / The Steering Group wishes to record its appreciation of the National Archives for facilitating and arranging the carrying out of the survey of local authority archives and, in particular, Ms Frances Mc Gee, who organised and managed the survey and assisted the Group in its work, Mr Brian Donnelly who acted as assistant manager of the survey, and Ms Mary Fitzpatrick, Mr Colman Mc Loughlin, Mr Donal Moore and Ms Rachel Scahill, who carried out most of the detailed work of the survey. The Group also wishes to thank the City and County Managers and the staff of all local authorities, the Department of Health, the health boards, the Department of the Marine and the harbour authorities for their cooperation with the National Archives in the course of the survey.
Chapter 3
ROLE OF LOCAL AUTHORITIES
3.1 / The statutory functions of local authorities in relation to records and archives are set out in section 65 of the Local Government Act, 1994, which came into operation on 1 December, 1994. To comply with this section, local authorities will be required to -
- adopt appropriate policies and practices to retain, manage, preserve and restore their records and archives,
- provide secure and suitable premises and facilities for the custody and care of their records and archives, and
- generally provide public access to their archives.
The section also empowers the Minister for the Environment to give advice or directions to local authorities concerning local authority records and archives.
3.2 / Under the same provision, a local authority may also acquire archival material from individuals or other bodies and care for and provide public access to such material. This power is important, not only because it allows local authorities to enhance the quality of their archives, but because it enables the authorities to take in archival material that may otherwise be dispersed or destroyed. However, the Group accepts that, given the present state of development of archives in all but a few local authorities, it will be some time before the authorities are in a position to take in such material.
3.3 / As well as meeting the new statutory obligations, the development by local authorities of archives services can contribute substantially to their respective areas. Archives services can assist in safeguarding the local heritage, in meeting the needs of researchers, in general development and, particularly, in helping to further the ever increasing opportunities in the cultural tourism industry.
Chapter 4
PRESENT EXTENT AND CONDITION OF ARCHIVES
4.1 / The results of the survey carried out in conjunction with this report indicate that a large quantity of important archives is held by local authorities. While there is a variation in the extent and condition of archives in different areas and much material has been lost over the years, the surviving archives are the basis of a very valuable collection. Some of the best archives which have survived have been cared for by the public library service and are held as part of local studies collections.
4.2 / Only a very small proportion of the archives is properly stored, organised or accessible by the public. This is, to some extent, understandable given that the statutory functions in this regard have only recently been placed on local authorities. However, much of the material is badly stored, in poor condition and not usable in any sense and unless immediate and substantial rescue measures are taken, it will not survive.
4.3 / The survey revealed the following general problems -
Policy
Most local authorities do not have a considered policy in respect of their archives, nor is there a senior officer with overall responsibility in this regard. In these circumstances, archives are not retained or cared for in an orderly manner and they fail to attract the resources and attention which they require. This has undoubtedly contributed to the deterioration and loss of much material over the years.
Storage facilities
In most cases, storage facilities used for archives are both inadequate and unsuitable, leading directly to the deterioration of material. In addition, such facilities are dispersed, resulting in the fragmentation of collections and difficulties in management.
Public Access
With the exception of Cork, Dublin, Fingal and Limerick, where archivists are employed, specific facilities for public access to archives are not provided. Some public libraries make local studies collections, which include some local authority archives, available to the public but the extent of and facilities for this service are limited.
4.4 / Valuable archives relating to the health services were found to survive in most hospitals. However, much material has been lost over the years and a large proportion of the remainder is of recent origin. Despite this, the archives which have survived are very important and should be preserved.
4.5 / The archives of the health services are widely dispersed and their condition and storage are generally unsatisfactory. As in the case of local authority archives, immediate and substantial measures are required to prevent further material from being lost.
4.6 / Archives of all the harbour authorities exist, the majority in the custody of those authorities. While the quality of their archives is high, the quantities vary from one authority to another and the storage conditions are generally unsuitable. Archives of some authorities have suffered because of their proximity to water and some have not survived.
4.7 / A summary of the findings of the survey is contained in the Appendix.
CONTENTS
Chapter 5
RECOMMENDED APPROACH
5.1 / Given the generally poor condition of local authority archives and the circumstances in which they are stored, considerable work and expenditure is required before local authorities will be in position to carry out fully the functions now falling on them under the Local Government Act, 1994. It is important that measures are put in place as soon as possible to secure the future of the surviving archives.
5.2 / In view of the extent of the task to be undertaken by local authorities in relation to their archives, it is most realistic that it should be approached in two phases, ie.
Phase I - The commencement of the priority task of properly retaining, managing, preserving and restoring the archives.
Phase II - The putting in place of arrangements for providing public access to the archives.
5.3 / At the same time as the work in relation to archives is proceeding, local authorities should commence the task of properly retaining and managing records under thirty years old. This task includes the orderly disposal of records which do not warrant archival preservation and making suitable arrangements in relation to records becoming archives after 30 years.
5.4 / Unless archives are at present in conditions which are an immediate threat to their survival, they should not be moved until arrangements for the commencement of Phase I have been put in place.
5.5 / To initiate this programme of work, the Group recommends that the Department of the Environment issues detailed guidelines to local authorities which would provide advice on -
- the different types of archives which exist, how they should be retained, managed, preserved and restored, the conditions in which they should be stored and so forth,
- the service which should be made available in connection with the provision of public access to archives, and
- an orderly approach to the preservation and disposal of records, including those in electronic form, under 30 years old.
5.6 / In relation to the archives held by other bodies, especially the health services and harbour authorities, responsibility for the care and management of this material rests in the first instance with the bodies concerned. However, it clearly would be wasteful for a number of bodies to establish and run parallel archives facilities throughout the country. It would also be difficult for smaller bodies to meet the desired standards for such facilities. Accordingly, the Group considers that eventually, as resources permit, local authorities and the other bodies within a county should cooperate in the provision of shared archives facilities containing all of their archives.
5.7 / The likely development of archives services throughout the country by local authorities raises the issue of the relationship that should be put in place between the National Archives and those services. Given that the archives function of local authorities is new, the Group considers that they will need on-going advice and assistance from the National Archives. In addition, a level of coordination and cooperation between the National Archives and those services needs to be established if they are to develop in a consistent manner. Under section 4 of the National Archives Act, 1986, the Director of the National Archives has the function of giving advice to local authorities and other public service organisations on the management, preservation and reproduction of records under their control. The Group considers that the National Archives should, as far as resources permit, provide assistance to and cooperate with local authorities in relation to the development of their archives services.
Chapter 6
DEALING WITH RECORDS AND ARCHIVES
6.1 / Under the Local Government Act, 1994, responsibility in relation to records and archives rests on each local authority, ie. county borough corporations (5), county councils (29), borough corporations (6), urban district councils (49) and town commissions (26). However, the provision of an archives facility in each of the 115 local authorities would be impractical and uneconomical. It would also be difficult for smaller authorities to meet the desired standards for such facilities. The Group considers it advisable, therefore, that local authorities, and particularly the smaller authorities, should cooperate in meeting their responsibilities. This cooperation could include the preparation of a common strategy covering all or part of a county, placing collections for all or part of a county in one or in a small number of locations or sharing staff and storage facilities.
6.2 / The extent and nature of the work required to deal with the backlog of local authority records and archives will vary from one local authority to another. However, in view of the similarities in records and archives throughout the country, the Group considers that a uniform approach to dealing with them should be adopted. The guidelines to be issued by the Department of the Environment (par. 5.5 refers) will contribute greatly towards achieving such uniformity.
6.3 / As the survey has indicated, much archival material has been assembled by the public library service over the years as part of local studies collections. For this reason and because of the similarities between the library and archives services and the tradition of public use of library buildings, the Group considers that the most suitable place for the archives function in the organisational structure of the local authority is within the public library service.