Printing
Flap--Impeachable Offense *
washingtonpost.com
December 20, 2002
By Alan Cooperman
Producing the federal budget is never simple, but this year,
there's an extra rub: a battle over the physical production of
the document itself.
That responsibility for years has gone to the Government
Printing Office, whose 1.5 million-square-foot plant five blocks
from the Capitol is the world's largest facility for processing,
printing and distributing documents.
But now the White House's Office of Management and Budget is
proposing to decentralize and largely privatize the government's
printing operations, beginning with President Bush's proposed
budget for fiscal 2004, a four-volume set totaling 3,030
pages.
In an Oct. 29 letter, OMB Director Mitchell E. Daniels Jr.
informed the GPO that the White House was seeking competitive
bids for the printing contract, and he invited the GPO to submit
its best price. This week, the OMB proudly hailed the result: The
GPO offered to do the job for $387,000 if the document is in
black and white, or $412,000 if the White House wants its red ink
displayed in, say, red ink.
The OMB is still mulling bids from private contractors and
says it will announce before Christmas who will print the budget,
due Feb. 3. But it appears competition has cut the cost by at
least 18 percent from last year, when the GPO charged $505,000 to
print a document that had about 100 fewer pages.
"We want competition because it saves the taxpayers money, and
this proves it," said OMB spokeswoman Amy Call.
Not so fast, says the GPO. The printing office acknowledges
that "we sharpened our pencils and re-engineered our processes to
give them a very competitive bid," said spokesman Andrew M.
Sherman. But, he added, there are still many reasons why the
federal government should turn to the GPO for the printing of
official documents.
To begin with, Sherman noted, it is the law.
Title 44, the federal statute on printing, requires executive
branch agencies to use the GPO, an arm of Congress.
The OMB says the law is unconstitutional because it violates
the separation of powers between the executive and legislative
branches. The administration is revising regulations to allow all
130 federal departments and agencies to contract independently
with commercial printers, a plan the GPO fears could result in
the loss of as much as half its 3,000 employees and two-thirds of
its $712 million in annual revenue.
Congress, however, has perennially thwarted such plans. In
1994, Vice President Al Gore proposed much the same thing as part
of his Reinventing Government initiative. So did the Reagan White
House in 1987. In fact, the dispute over whether it is more or
less costly to centralize government printing goes all the way
back to the floor debate before Congress established the GPO in
1860.
The White House might have expected to gain the upper hand
this year when Bush nominated Bruce R. James, a Republican from
Nevada, to head the GPO. As an entrepreneur who ran several
printing companies before retiring in 1993, James appeared to be
a natural ally in the administration's effort.
But James, 59, who was confirmed by the Senate on Nov. 20 and
began work as the nation's public printer last week, has stood up
for the GPO.
"It makes a lot of sense from the point of view of saving
taxpayers' money to centralize the procurement of government
printing," he said in an interview. "I think Mr. Daniels
initially didn't understand that the GPO has built over the years
probably the most efficient printing procurement operation in the
country."
What OMB officials did not seem to realize until recently,
James added, was that the GPO already farms out the bulk of the
government's printing to the private sector. In its own plant,
the GPO prints only the Federal Register, the Congressional
Record, blank U.S. passports and a few large or specialized
products, such as the budget. It seeks competitive bids from a
pool of 16,000 private printers across the country for more than
80 percent of the work it receives from the executive branch.
Angela Styles, the OMB's administrator of procurement policy,
said the White House was well aware that the GPO acts as a
clearinghouse for competitive bidding. But she said many agencies
chafe at the GPO's "severe" fee for that service -- 7 percent of
the contract's cost in most cases, and 14 percent if the lead
time is less than 10 days.
Sherman said the GPO not only supervises contracts but also
distributes documents to federal depositories, ensuring that they
are catalogued and made available to the public. If hundreds of
government entities were to contract independently, he said,
there would be more documents missing from the public record.
Styles said there are already many "fugitive" documents
because "agencies are fed up" with the GPO's high prices and
cumbersome procedures.
Robert S. Willard, executive director of the National
Commission on Libraries and Information Science, an independent
board that advises both Congress and the White House, said the
argument over printing persists because "the real numbers aren't
known."
"Nobody has done a thorough study on this," Willard said.
"It's a gut-level reaction that if we went out to commercial
printers for bids, we'd get lower prices. But that ignores the
fact that the GPO has been going out to bids for a long time, and
if instead of one office seeking bids there were hundreds, then
commercial printers would have to hire a sales force to look for
those contracts, and that would result in higher prices."
James said he has proposed to the OMB that both
sides call off the fight.
"I'm not sure that OMB is completely wrong that we could be
more efficient," he said. "But instead of blowing up the system
we have now, I have proposed that OMB and GPO work together to
improve the efficiency of the system we have in place, and
especially to focus on the big issue for the future, which is how
to publish and retain information electronically."
Both offices, James said, "have spent a lot of time and energy
on a 19th century issue when we should be concentrating on a 21st
century one."
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