Archives in a Networked Information Society: The Problem of Sustainability in the Digital Information Environment

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1 Archives in a Networked Information Society: The Problem of Sustainability in the Digital Information Environment Shigeo Sugimoto Research Center for Knowledge Communities Graduate School of Library, Information and Media Studies, University of Tsukuba Abstract National and regional governments have made significant efforts to utilize developments in network-based services and business processes, i.e. e-governments. But still the process of collecting information about governmental records and resources raises concerns about long-term data preservation. This paper discusses issues posed in the October 2007 Tokyo 8 th General Conference of EASTICA about the problems of archival sustainability. The issues addressed in this presentation include fundamental models for digital archiving, the lifecycle of digital resources, as well as preservation and metadata technologies for long-term digital resource use. 1. Introduction Paper has been used as the primary medium to record information and to create documents for well over a thousand years. On the other hand, in a few years the advanced information technologies have replaced paper with digital media in most parts of our lives. Today, almost all our documents are created, transferred, disseminated and stored in the digital and networked information environment. For example, digitally transmitted s and web documents are sometimes printed on paper for the purpose of reading but these hard copies are discarded after reading and the digital documents are preserved on electronic media. Although this use of digital documents does not mean less consumption of paper but rather less reliance on paper, it is indicative of the paperless environment. Our concern is that we may not be able to read the electronic documents in the future. Preservation of digital documents is a well-known problem: although it is known to be important to keep the information of today for the future, it is not known how to do this. The main reason for this difficulty is the difference between the length of time for which preservation is required and the service life of the hardware and software necessary for the use of the particular documents. In addition, collecting digital documents and records appropriately and efficiently for preservation is a challenging issue. 1

2 Governments produce a very large number of documents to perform their tasks. They are extensive publishers of information for their communities as well. The documents and information resources created by the governments have to be preserved in accordance with their law. In the e-government settings, governments are often required to adopt state-of-the-art information technologies to create, publish, and give access to the information resources in accordance with the progressive technologies of the relevant social information infrastructure. In general, advanced digital document management technologies are more flexible and extensible than traditional paper-based technologies. However, the breadth of technologies involved in this adoption, in turn, increases the difficulties of preserving digital documents. Over the last six years, the author has had many opportunities to attend committees and groups to discuss and study preservation of digital resources - a committee considering collection of network publications in the Legal Deposit System Council of the National Diet Library, a committee researching the ideal of the management, transfer, and preservation of governmental records using digital media in the Cabinet Office, and other venues for discussion of preservation of digital documents. He had opportunities to study long-term preservation of digital resources in the context of digital libraries and metadata. This paper is based on these experiences and also on the discussions at the 8 th General Conference of the East Asian Branch of ICA (EASTICA) held in Tokyo in October 2007 [1]. 2. Digital Archive and Digital Documents In this paper, the term "digital archive" means an integrated service to manage a collection of digital resources. There are several types of digital archives cultural heritage archives, scholarly journals and their articles repositories, government and corporate record archives, and so on. Digital archives discussed in this paper are those that collect and preserve digital documents, primarily governmental documents and, more broadly, cultural heritage and scholarly resources. The digital resources stored in a digital archive are roughly classified into two types - a born-digital resource and a resource digitized from a non-digital resource. Since the boundary between digitized and born-digital resources is fuzzy because digitized resources are often wrapped by some software and/or HTML encoding for browsing, digitized and born-digital resources are not differentiated in this paper. In this paper, the term document is used to express an object that is created to record information. A document can be realized either on paper or in digital form, i.e. paper documents and digital documents. There are various different formats used to realize digital documents plain texts, word-processor documents, spreadsheets, hyper-texts and 2

3 multimedia documents which may have embedded images, motion pictures and sounds. Digital documents are usually published in a tangible package medium such as CDs and DVDs, or via the Internet. A digital document has dynamic features which are significantly different from those of a paper document. Digital documents are not visible to human beings without appropriate hardware and software. Digital documents have functions such as hyper-links, text search and embedded motion pictures, which are not possible in paper documents. An important feature of a digital document is that a format conversion of a digital document is frequently performed in accordance with the purpose and environment of use, e.g. from word-processor document to PDF. Another important feature is that digital documents can be created from a set of component data on the fly, e.g. a direct mail delivered to many recipients and a report generated from database records. These flexible features are very useful to disseminate information but they raise some fundamental problems for preservation we need to choose an appropriate document content and format for preservation. Longevity is definitely an important factor for digital archives. However, not all of the services of a digital archive are designed for long-term service. For example, the user interface could be revised frequently and digital documents could be occasionally converted for migration. What content has to be preserved should be carefully defined in the digital archive. PREMIS [2], which is a metadata schema designed for digital preservation, has an interesting data model shown in Figure 1. The model has five entities Intellectual Entities, Objects, Rights, Events and Agents. For example, a Microsoft Word file and a PDF file created from the Word file, are both objects. They are associated with an intellectual entity. Digital archives are required to preserve not only the digital objects but also the intellectual entities. When the primary goal of an archive is to preserve its intellectual content and bit-level preservation is secondary for the archive, an object can be transformed into another object as long as the Intellectual Entities Rights Objects Agents Events Figure 1 PREMIS Data Model 3

4 content of the intellectual entity is unchanged. 3. Archives and Digital Archiving Archives of national and regional governments are required to select, collect, organize and preserve government documents and records based on given rules and policies regardless of whether the documents are on paper or in electronic form. They are also responsible for providing access to the preserved resources to the government and the general public. In the lifecycle of government documents, the documents are first created and maintained by government offices for local use and then transferred to the archives for retention. The archives are primarily responsible for the last stage of the documents lifecycle. Information about the documents, which should be created in the first stages, is crucial for the archives to appropriately retain and organize the documents. Governments have strong demands to enhance their functions and performance using information technologies. Efficient document and information management is one of the key factors for the enhancement; improved information access environments are beneficial both for the general public and government officers. Nowadays, almost all government documents are created and used in the digital and networked information environment. Digital archiving is in high demand for national archives because the more e-government functions are advanced, the more government information resources are created and used in the more advanced digital and networked environment. Country reports from China, Korea, Mongolia and Japan at EASTICA 2007 in Tokyo showed interesting, different models and views of archiving for the networked information environment in East Asia [3]. National Archives of Korea reported an advanced integrated government record management system which handles the whole lifecycle of their records in the government. The State Archives Administration of China reported a policy to preserve government records which uses both physical and digital media for archiving. National Archives of Japan reported on their perspective which is to archive digital resources from a standpoint of the institution primarily responsible only for the last stage of the lifecycle. A general framework for records management over the whole document lifecycle across governmental sectors is an important issue for records management for efficient archiving. On the other hand, it is difficult to achieve an ideal system because of the different requirements for records management among the individual government sectors; for instance, the document format is selected according to the policy of each government sector or project but not by a national archiving policy. Archives have to cope with various different types of documents created and maintained under different policies. They have to fully utilize information 4

5 technology for archiving government records for the future. Being able to provide open access to the past is a major benefit of digital archives. There are many digital collections of historic documents on the Web. The digital collection of government records provided by the Japan Center for Asian Historical Records (JACAR) is a good example of how valuable digital archives are [4]. JACAR provides a large digital collection of governmental documents from Meiji era to the end of the World War II in Japan, i.e. from the late 1860s to This service has over 14 million digital images of documents recorded by the Japanese Cabinet, Ministry of Foreign Affairs and Japanese Army and Navy during the period. The collection is a good example of how digital archives of historical documents are useful not only for researchers but also for learners at home and in classrooms. 4. Issues for Digital Archiving and Preservation This section raises several basic issues for digital archiving and preservation - some issues specific to national archives and some general issues relevant to libraries and archives. Some well-known issues such as security of preserved contents and emulation and migration as the basic preservation strategy are not included in this section as they have already been discussed. The issues raised here are mainly from discussions at committee meetings for digital archiving at the National Archives of Japan. 4.1 Document and Record Identification for Preservation - What entities should be preserved? In paper-based archives, archives collect and preserve physical objects, i.e. papers and microfilms. In the case of digital archives, it is not easy to define the entities to be preserved because of the flexibility and diversity of digital documents. The following paragraphs provide some examples of the difficulties. (1) Complex document problem: Digital documents often include hyperlinks. In a single hyper-text document, some of the hyperlinks may be intra-document and some inter-document. For example, a paper composed of multiple files that are interconnected by intra-document hyperlinks should be treated as a single resource. We have to identify intra-document and inter-document links, then, in order to determine the entirety of a single document. (2) Dynamic document creation problem: In an up-to-date content management environment, documents are created on-the-fly from components and data stored in a database(s). For example, we can create documents with the same content but different layouts. This fact raises a simple question whether we should preserve a document created from the 5

6 database or the content itself, the data as stored in the database. (3) System and context dependency: Digital documents are usually dependent on a system environment and context. For example, word-processor documents require appropriate word-processors for browsing. Even plain texts and XML texts are not software independent since we need to preserve information about character codes and fonts and XML schemas, respectively. 4.2 Feature Identification of Documents and Records What features should be preserved? It is not realistic to assume that any document format will survive over tens, let alone hundreds of years because of the continuing evolution of information technologies. As paper-based documents and microfilms are considered more stable than digital documents, some archives print digital content and preserve the printed materials. In this case, however, some important functions of the original digital content could be lost dynamic features such as hyperlinks and calculation functions of spreadsheets, for instance. For ideal preservation of a document, we have to preserve the whole system on which the document is used but it is not realistic to assume that we can do this. Even if we are given a good emulation or migration system, it is not realistic to assume the emulation and migration will be perfect. In many cases, we ll have to convert documents from an original format to a format more suitable for preservation. This conversion may cause functional loss and/or look-and-feel change of the documents. Thus, preservation of digital documents implies loss of some functionality of the original documents. Archives have to have policies defining criteria of the loss of function and information and guidelines for choosing appropriate formats for preservation in accordance with those criteria. 4.3 Interoperability Every archive has their own policies for how to collect, retain, preserve and provide their resources. Interoperability among archives is a crucial issue in order to improve their service quality, e.g. cross-archive retrieval, federated archives and application program interfaces (APIs) built on commonly used protocols for value-added services. Government sectors need to tailor information resource organization policies for their sector of government in accordance with their requirements, using such as their own classification schemes and organization structure. Metadata interoperability over time or, in other words, temporal interoperability of metadata, is a crucial issue for preservation since preserved resources are not usable without 6

7 appropriate metadata. Metadata schemas have to be preserved definitions of metadata elements, controlled vocabularies, value encoding schemes and the underlying rules for writing the metadata. 4.4 Splitting Archival Functions collection, preservation and access The Open Archival Information System (OAIS) defines the basic framework of a preservation repository. The framework is defined independently of any specific application domain or type of contents. In general, a bit-level long-term trusted preservation repository can be built independently of application domains but any functions to collect and organize resources, and those to provide access to archived resources, need to satisfy requirements given in the application domains. Figure 2 shows a general framework of archival systems which splits preservation functionality from collection and access functions. It would be advantageous for archives, especially for small archives, to share the preservation repository function. 4.5 Web Archiving Many libraries and archives have been keenly working on archiving of Web resources. Those Web archives are mainly for the resources that are already open to the public on the Web. Web archiving technologies are applicable not only to the resources open to the public but also for the resources published in the intranet environments or in the deep-web. For Resources to be archived Resources for Users Collection Collect Organize Rights Management Access Search and Access Browse Access Control Ingest Submit Access Disseminate Preservation Trusted, Bit-level, Long-term Figure 2 Conceptual Framework of Archive Systems 7

8 example, archives can synchronize with document providers for resource gathering. Such synchronized resource gathering would be useful to support consistency in the collection of contents, which is a major concern for Web archiving. 4.6 Accessibility Issues Archives are required to pay attention to the accessibility of documents and records, even if they are not the primary creator of the documents. Even when the original documents are designed to satisfy the accessibility guidelines given by the relevant governments, they may be converted into a format which does not satisfy those guidelines, or they may depend on software to assure accessibility for people with difficulties and this connection may be lost during the preservation process. 5. Conclusion The preservation of digital resources is well known as a difficult issue in digital archives. The difficulties are found not only in the technological area but also in business policies and rights management. In Japan, long-term use of digital archives and digital resources is widely recognized as an important issue. Memory organizations in Japan have been making efforts for the future. The National Diet Library has been conducting investigative research on the long-term preservation of electronic materials and Web archiving [5]. Based on the discussions in the study group on electronic management, transfer, and preservation of governmental records instituted hosted by the Cabinet Office [6], a feasibility study of preservation of governmental digital documents is in progress. Digital preservation and long-term use of digital archives is crucial but it poses a major challenge for our future. Collaboration among archives and memory organizations to share technologies, skills, and experiences is required to keep our valuable cultural and historical property for the future. Collaboration to share the cost would also be important to save the valuable resources maintained by smaller communities. References [1] Sugimoto, S., Ensuring Preservation and Use of Electronic Records, in East Asian Archives, no.14, pp.56-67, EASTICA, March 2008, [2] PREMIS Editorial Committee, PREMIS Data Dictionary for Preservation Metadata, v. 2, March 2008, (accessed July 2008) [3] Country/Region Reports, in East Asian Archives, no.14, pp , EASTICA, March 2008 (Reports from China, Korea, Mongolia, Japan and Macao) [4] Japan Center for Asian Historical Records, 8

9 (accessed July 2008) [5] National Diet Library, "Long-term Preservation and Use of Digital Information," (In Japanese, accessed July 2008). [6] Committee on proper management, preservation, and use of governmental records (Cabinet Office), "Report on centralized management in the intermediate stage and on management, transfer, and preservation by means of electronic media," 2006, p32. (In Japanese, accessed July 2008) 9

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