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STEVENS, Robert David, the USE of MICROFILM B Y the UNITED 65 - 11,379 STEVENS, Robert David, 1921- THE USE OF MICROFILM BY THE UNITED STATES GOVERNMENT, 1928-1945. The American University, Ph. D ., 1965 Political Science, public administration University Microfilms, Inc., Ann Arbor, Michigan THE USE OF MICROFILM BY THE UNITED STATES GOVERNMENT, 1928-1945 by Robert David Stevens Submitted to the Faculty of the Graduate School of The American University in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy in Public Administration Signatures of Committee: Graduate Dean: Chairman: Date: Aprilj 1965 The American University AMERICAN UNIVERSITY Washington, D. C. LIBRARY MAY 191965 WASHINGTON^* C. PREFACE This study traces the history and development of the microfilming of record materials by agencies of the Federal Government from the first such efforts in 1928 through the year 1945, The individual responsible for introducing into the United States the microfilming of record material is identified and the spread of the use of microfilm by Federal agencies is documented. Microfilm projects during this period are evaluated and the reasons determined why the technique of substituting microfilm for original records as a means of saving storage space did not become more widespread and popular. The study had its genesis in the author’s longstanding interest in the use of microfilm by libraries and archival agencies, an interest related to his employment by the Library of Congress from July 1947 to August 1964. This interest was intensified by discussions of the problems of microfilming of records in Dr. Ernst Posner’s classes in Archives Administration at The American University during the academic year 1951-1952. Since 1947 the author has been con­ cerned, as part of his official duties, with programs for the purchase of microfilm, attempts to astablisn national union catalogs of microfilm materials, and the attempts during the past several years to revive and reestablish the project to microfilm manuscripts relating to American hisiory in European archives. The majority of sources used in this study are found in Washington, D, C. Intensive use has been made of the documentary resources of the National Archives and the Library of Congress. Particularly valuable were the records in the National Archives of the Work Projects Administration (RG 69) , and of the National Archives itself (RG 64) . The Library of Congress' archives relating to Project A, the project to microfilm manuscripts relating to American history in European archives, were thoroughly studied. Records relating to the war-time microfilming activities of the War Department, housed with the current records of the Adjutant General's Office, were also utilized. Information from these sources was supplemented by published materials and by personal interviews with individuals who played important roles in the development of the micro­ filming of records. Those interviewed include Dr. Vernon D. Tate, the first Chief of the Division of Photographic Repro­ duction and Research of the National Archives; Mr. Daniel F. Noll, a microfilm expert who served on the staffs of both the National Archives and the War Department; Dr, Theodore R. Schellenberg, an associate of many of the pioneers, including Robert C. Binkley, and the person responsible for the arrangement and microfilming of the records of hearings of the Agricultural Adjustment Administration and the National Industrial Recovery Act in 1934; Mr, Dan Lacy, a key figure in the Historical Records Survey and later in the National Archives; Mr. Irving K. Zitmore, an official concerned with the War Department microfilm projects during World War II and later director of a private records management firm that surveyed Government-wide microfilming activities in the 1950’s; Mr. Roland Langelier, also connected with the War Department's microfilming programs; Dr. Dallas D, Irvine of the National Archives staff; Mr. George A. Schwegmann, Jr. , the first Chief of the Library of Congress Photoduplication Service; and Mr. Donald C. Holmes, an early associate of Dr, Tate, who played a key role in the Navy's wartime microfilming program and later became Chief of the Library of Congress Photo­ duplication Service, Since microfilm resulting from many of the projects described in this study is stored at institutions in the Washington area, it was possible to examine a large sampling of early microfilm. The reels or pieces of film examined included: some copies of Prudent R. Dagron's film made during the Siege of Paris in the Franco-Prussian War; the Agricultural Adjustment Administration and National Industrial Recovery Act films made by Dr. Schellenberg, which constitute the first items in the general microfilm collections of the Library of Congress; some of the films made in Europe by Dr, Samuel F. Bemis in 1929 and 1930 and now housed in the Manuscript V Division of the Library of Congress; and microfilm produced by the Work Projects Administration and the Bureau of the Census, now housed in the National Archives. A note of thanks to the members of the author’s dis­ sertation committee is appropriate. Dr. Frank B. Evans, the Chairman of the Committee, was a source of encouragement and advice in the final stages of preparing the manuscript. Dr. Ernst Fosner originally approved this study and has provided helpful advice and suggestions from his knowledge of the history and present practices of archival institutions. Dr. Lester K, E1 irn proved a source of basic information about microfilming through his published writings. Most of all, thanks and appreciation are due to Mr. Daniel F. Noll, who was of great assistance because he had been intimately associated with microfilming activities at both the National Archives and the War Department during important periods in the history of microfilming, and because his prodigious memory for events, documents and persons enabled him to suggest sources which might not otherwise have been located. TABLE OF CONTENTS CHAPTER PAGE PART A: BACKGROUND AND HISTORY I. INTRODUCTION ...................................... 1 Objectives and Organization of the Study . 1 Scope of S t u d y ................................. 7 Terminology...................................... 9 II. HISTORY............................................ 21 Invention and Development of Microphotography in Great Britain........... 21 Dagron's Pigeon P o s t ........................... 23 Otlet and Goldschmidt's Contribution ......... 25 Invention of the Leica ...... 27 The Recordak Camera, ..... ................ 31 Spread of the Use of Microfilm................ 32 III. THE USE OF MICROPHOTOGRAPHY BY THE LIBRARY OF CONGRESS, 1928-1945 ........................ 35 Library of Congress "Project A" ................ 35 The State Records Microfilm Project, ......... 51 The British Manuscripts Project, 1940-1945 , . 53 IV, MICROFILMING BY THE WORK PROJECTS ADMINISTRATION.................................. 56 Pilot Project.................................... 58 The Legalization of Microfilm Copies of Records........................................ 61 vii CHAPTER PAGE Management and Control Aspects ........... 63 WPA Filming for Other Agencies ......... 66 Extent of WPA Program....................... 68 Microfilming by the Historical Records S u r v e y .................... * ................. 69 Significance of WPA Microfilming Program .. 71 V. THE BUREAU OF CENSUS MICROFILM PROGRAM..... 74 Origin and Development ......................... 74 Decision to Make Microfilm the Permanent Record ............................. 77 VI. MICROFILMING AT THE NATIONAL ARCHIVES....... 82 Establishment of a Division of Photographic Reproduction.......... .. 82 Copying of Indexes and Adjuncts to Records . 83 Microfilm Publication Program. ........ 90 VII. MICROFILMING IN WORLD WAR II ................. 102 War Department Microfilming.................. 103 Navy Department Microfilming ......... 114 V - M a i l ....................................... ... 117 PART B; ADMINISTRATIVE IMPLICATIONS VIII. PROBLEMS OF ORGANIZATION AND ADMINISTRATION, . 124 Administrative Problems Ignored by Contemporaries............................ 124 Government Failure to Meet Demands of Public , 126 viii CHAPTER PAGE Organization of Reader Facilities ...... 130 Placement of Laboratories in Organizational Structure.................... 135 IX. RELATIONSHIP BETWEEN THE NATIONAL ARCHIVES AND OTHER AGENCIES . ............................ 145 Manual of Microphotography Proposed ......... 146 The Problem of Legislation............. 148 Attempted Control through Bureau of the Budget................................... 153 Effects of World War I I ................. 156 PART C: SUMMARY AND CONCLUSIONS X. SUMMARY AND CONCLUSIONS........................... 158 S u m m a r y ....................................... 158 Conclusions................................... 170 BIBLIOGRAPHY ............................................ 185 PART A BACKGROUND AND HISTORY CHAPTER I INTRODUCTION OBJECTIVES AND ORGANIZATION OF THE STUDY The objectives of this thesis are (1) to provide for the first time a documented account of the introduction and use of microfilm by agencies of the Federal Government of the United States during the period 1928-1945; (2) to describe, analyze, and evaluate the manner in which microfilming activities were administered; and (3) to evaluate the potential of microfilm as a tool of archives management. The invention and spread of microfilming is in some respects comparable to the invention of printing. Micro­ filming,
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