Managing Florida's Public Records

State of Florida

MANAGING FLORIDA’S

PUBLIC RECORDS

FEBRUARY 2021

Florida Department of State

Division of Library and Information Services

Bureau of Archives and Records Management

Tallahassee, Florida

850.245.6750

[email protected]yflorida.com

info.florida.gov/records-management/

Managing Florida’s Public Records 
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PREFACE ........................................................................................................................................... 4 
INTRODUCTION TO RECORDS MANAGEMENT ............................................................................ 5 
A.  The objectives of records and information management....................................................... 5 
B.  The benefits of records management. ................................................................................... 5 
RECORDS MANAGEMENT IN FLORIDA .......................................................................................... 7 
A.  Florida’s Records Management Program. ............................................................................. 7 
B.  Regulatory mandate for records management. ..................................................................... 7 
(1)  Chapter 257, Florida Statutes. ..................................................................................... 7 
(2)  Chapter 119, Florida Statutes. ..................................................................................... 8 
(3)  Florida Administrative Code. ........................................................................................ 9 
STARTING YOUR RECORDS MANAGEMENT PROGRAM ........................................................... 11 
A.  Inventory procedures: Identifying records. .......................................................................... 11 
B.  Retention of public records: Retention schedules. .............................................................. 13 
(1)  General records schedules. ....................................................................................... 13 
(2)  Individual records schedules. ..................................................................................... 14 
C.  Final disposition of public records. ....................................................................................... 15 
(1)  Records disposition documentation. .......................................................................... 15 
(2)  Distinguishing between the different types of retention period requirements. ........... 16 
(3)  Records volume conversion to cubic foot measurements. ........................................ 17 
(4)  Factors that might influence when records can be disposed. .................................... 18 
D.  Disposing of public records. ................................................................................................. 19 
E.  Records disposition compliance statement and RMLO designation. .................................. 20 
F.  Developing a records management policy........................................................................... 20 
G.  Records management training. ............................................................................................ 21 
MANAGING PAPER RECORDS ...................................................................................................... 23 
A.  Filing Arrangements. ............................................................................................................ 23 
(1)  Alphabetical. ............................................................................................................... 23 
(2)  Numerical. .................................................................................................................. 23 
(3)  Alpha-Numerical. ........................................................................................................ 23 
(4)  Chronological. ............................................................................................................ 23 
(5)  Geographical. ............................................................................................................. 24 
B.  Establishing a filing system. ................................................................................................. 24 
(1)  Equipment selection criteria. ...................................................................................... 24 
(2)  Types of filing equipment. .......................................................................................... 24 
(3)  Tools to use with paper files. ..................................................................................... 25 
MANAGING ELECTRONIC RECORDS ........................................................................................... 27 
A.  Sustainable formats. ............................................................................................................ 27 
B.  Scanning records. ................................................................................................................ 29 
C.  File naming. ......................................................................................................................... 29 
D.  Automated systems to manage electronic records. ............................................................. 30 
(1)  Implementing automated systems. ............................................................................ 31 
(2)  Document electronic recordkeeping systems. ........................................................... 32 
E.  Electronic communications as public records. ..................................................................... 32 
(1)  Email. ......................................................................................................................... 32 
(2)  Social media. .............................................................................................................. 35 
F.  Storage and maintenance of electronic records and media. ............................................... 36 
(1)  Electronic storage media maintenance. ..................................................................... 36 
(2)  Environmental controls............................................................................................... 37 
(3)  Selecting storage media............................................................................................. 37 
(4)  Using CDs and DVDs for storage. ............................................................................. 38 
(5)  Media conversion. ...................................................................................................... 38 

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(6)  Cloud computing. ....................................................................................................... 38 
G.  Electronic records backup for disaster recovery. ................................................................. 39 
H.  E-Discovery. ......................................................................................................................... 40 
I.  Essential characteristics of electronic records and legal admissibility. ............................... 41 
J.  Electronic records management training. ............................................................................ 41 
K.  Electronic signatures requirements. .................................................................................... 42 
L.  Professionally sealed documents. ....................................................................................... 42 
ADDITIONAL RECORDS MANAGEMENT INFORMATION ............................................................ 43 
ARCHIVES AND ARCHIVAL RECORDS ......................................................................................... 44 
A.  State Agencies. .................................................................................................................... 44 
B.  Local Agencies. .................................................................................................................... 45 
GLOSSARY ...................................................................................................................................... 47 
APPENDIX A .................................................................................................................................... 50 
APPENDIX B .................................................................................................................................... 51 
APPENDIX C .................................................................................................................................... 52 
APPENDIX D .................................................................................................................................... 53 
APPENDIX E .................................................................................................................................... 56 
APPENDIX F ..................................................................................................................................... 59 
APPENDIX G .................................................................................................................................... 72 
APPENDIX H .................................................................................................................................... 76 

Managing Florida’s Public Records

PREFACE

The goal of Florida’s Records Management Program is to provide professional assistance to state

and local government agencies in managing the records and information required to conduct the

business of government. Our society generates and processes information on an unprecedented

scale, intensified by rapidly advancing technology and complicated by quickly evolving principles of

law governing the legality and admissibility of records created or maintained by this technology.

Managing all this information in an effective and cost-efficient manner can seem an overwhelming

task. As records and information managers, we must remain educated and informed so that the

decisions we make are consistent with laws and best practices.

In Florida, we are faced with yet another challenge. We must both control costs through the

application of sound records and information management principles and apply these principles in

light of the public’s right to know. Florida’s Public Records Law (Chapter 119, Florida Statutes) is

one of the most open public records laws in the country and is a model for other states. Florida has

had some form of a public records law since 1909 and is recognized nationally for leadership in

accessibility to public records and government information.

The benefits of an effective records and information management program are many. Compliance

with legal retention requirements, faster retrieval of information, space savings, fewer lost or

misfiled records and reduction of expenditures for records filing equipment or storage media are

just a few of the benefits agencies can realize through good records management. Managing

Florida’s Public Records is intended to serve as an introduction to records management and a

guide to the ways in which Florida’s Records Management Program can help you achieve your

goals.

While the recommendations in this handbook reflect best practices, they are not meant to define

mandatory standards. Agencies must adhere to the following mandatory standards:

 Rule 1B-24, Florida Administrative Code, Public Records Scheduling and Disposition.

 Rule 1B-26.003, Florida Administrative Code, Electronic Recordkeeping. This rule

provides standards for the creation, utilization, maintenance, retention, preservation,

storage and disposition of electronic records.

 Rule 1B-26.0021, Florida Administrative Code, Microfilm Standards. This rule provides

standards for microfilming public records to assure that the film, photographing methods,

processing, handling and storage is in accordance with methods, procedures and

specifications designed to protect and preserve such records on microfilm.

For more information, contact the Records Management Program by email at

[email protected]yflorida.com.

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INTRODUCTION TO RECORDS MANAGEMENT

A. The objectives of records and information management.

The primary concern of Florida’s Records Management Program is the efficient, effective and

economical management of public records and information. Proper records management

ensures that information is available when and where it is needed, in an organized and efficient

manner, and in an appropriate environment.

While the importance of records management might not be obvious to everyone, its impact on

the ability of an agency to function effectively is indisputable. It is only through the operation of

a well-run records management program that an agency retains control of its corporate

memory, which allows an agency to conduct business.

Records management is more than the retention, storage and disposition of records. It entails

all recordkeeping requirements and policies that allow an agency to establish and maintain

control over information flow and administrative operations.

Records management can help answer important questions, such as:

 Where are the agency’s records?

 How long are they kept?

 When are they eligible for destruction?

 On what media are they recorded?

 Are the recording media of sufficient stability to maintain the viability of the records for

the duration of their retention period?

 What records are vital to the continued operation of the agency?

 Are these vital records sufficiently protected?

 What recovery procedures are in place to help the agency assemble its records and

resume administrative operations in the case of a disaster?

 How should the agency manage electronic records?

 Are emails records?

 Are any of the records in the agency historically significant?

With technology constantly evolving and large quantities of records and data being created and

maintained, records management is one of the key tools in assisting agencies to answer these

questions and to function effectively.

Records management seeks to manage and control records throughout their entire life cycle

regardless of their format, from creation, when the records are created or received; through

their active life, when the records are accessed frequently (at least once a month); through

their inactive life, when the records are no longer frequently accessed but have to be retained

for a period of time for legal, fiscal, administrative or historical reasons; until their final

disposition, be it destruction or permanent preservation.

B. The benefits of records management.

The benefits of a well-run records management operation are many:

Space savings. Space savings can be the most immediately realized benefit of a records

management program, particularly for paper-based records. By implementing retention

schedules and systematically destroying records that have met their retention

requirements, an agency can significantly reduce the space occupied by records.

Reduced expenditures for filing equipment and storage media. Appropriate disposition

of records can greatly reduce the need for filing cabinets, file folders, electronic storage

media, rented storage space, etc.

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Increased efficiency in information retrieval. Retrieval of information is made more

efficient through improved management of paper records systems and through cost-

effective and efficient implementation of electronic records management and document

management systems. An added benefit of improved filing systems is the reduction of

misfiles and lost records, which can result in costly and time-consuming searches to locate

needed records.

Compliance with legal retention requirements and the establishment of retention

requirements based on administrative, fiscal and historical values. The hallmark of a

good records management program is the establishment of and adherence to retention

requirements based upon an analysis of the records’ legal, fiscal, administrative and

historical requirements and values. In the absence of such requirements, many agencies

either destroy records that should be retained or retain everything, thereby taking a legal

risk or assuming unnecessary operating costs.

Protection of vital records. Records management’s role in identifying vital records and in

preparing a carefully designed disaster preparedness, response and recovery plan can

help an agency reduce its vulnerability. The destruction of important records can cost an

agency millions of dollars and threaten the agency’s ability to function, thus jeopardizing its

existence and the well-being of citizens who depend on that agency.

Control over creation of new records. A significant percentage of the cost of information

is in records creation. Records management, forms management and reports management

can help reduce the proliferation of unnecessary reports, documents and copies and at the

same time improve the effectiveness of those reports and documents that do need to be

created.

Identification of historical records. Records managers play a vital role in the

identification and protection of historical records. They are often responsible for preserving

and making available records having historical or archival value. Records management

programs should include procedures for identifying and ensuring the care of Florida’s

documentary heritage.

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A. Florida’s Records Management Program.

Florida’s Records Management Program is operated by the Bureau of Archives and Records

Management, part of the Division of Library and Information Services of the Department of

State. The Secretary of State is the custodian of the Great Seal of the State of Florida and the

official record keeper of the state. The program’s role in this organizational hierarchy is to

provide guidance and assistance to local and state government agencies in establishing

records and information management programs and in managing public records and the

information they create and use daily. To that end, the program offers a variety of services

related to records and information management:

 Establishing standards for controlling, retaining, and destroying or preserving public

records.

 Providing consulting services and training in the following areas:

o Compliance with state laws, regulations and policies.

o Records inventory and appraisal, including archival appraisal.

o Records retention and disposition.

o Records storage.

o Records preservation principles.

o Electronic recordkeeping requirements and guidelines.

o Vital records protection and disaster planning and recovery.

o Managing historical records.

 Providing cost-efficient off-site records storage at the Edward N. Johnson Records and

Information Center (State Records Center). State and local government agencies within

120 miles of Leon County may store non-current or inactive records at the State Records

Center. This facility is equipped to store paper records, electronic media and microfilm.

Electronic media and microfilm are stored in high-security temperature- and humidity-

controlled vaults.

B. Regulatory mandate for records management.

(1) Chapter 257, Florida Statutes.

Florida’s Records Management Program is a cooperative effort between the Division of

Library and Information Services/Bureau of Archives and Records Management and state

and local government agencies throughout Florida. Chapter 257, Florida Statutes, vests in

the division the authority to oversee the records management functions of state and local

government agencies. Specifically, Section 257.36(1)(a), Florida Statutes, mandates that

the division will:

Establish and administer a records management program directed to the

application of efficient and economical management methods relating to the

creation, utilization, maintenance, retention, preservation, and disposal of records.

Section 257.36(5), Florida Statutes, specifies the responsibilities of state and local

government agencies:

It is the duty of each agency to:

(a) Cooperate with the division in complying with the provisions of this chapter

and designate a records management liaison officer.

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(b) Establish and maintain an active and continuing program for the economical

and efficient management of records.

The designation of a Records Management Liaison Officer (RMLO) is accomplished by a

communication from the agency to the division. Please refer to Starting Your Records

Management Program, for information regarding the appointment of an RMLO and the

suggested duties of that position. See Appendix A for an RMLO designation form.

(2) Chapter 119, Florida Statutes.

To understand the vital role of records management in Florida government, one must have

a basic understanding of Florida’s Public Records Law, Chapter 119, Florida Statutes. The

Public Records Law has specific provisions covering important issues such as the

definition of public records, access requirements, and exemptions from access.

(a) What is a Public Record?

The definition of public records in Section 119.011(12), Florida Statutes, is broad and

all-inclusive. The statute reads as follows:

“Public records” means all documents, papers, letters, maps, books, tapes,

photographs, films, sound recordings, data processing software, or other

material, regardless of the physical form, characteristics, or means of

transmission, made or received pursuant to law or ordinance or in connection

with the transaction of official business by any agency.

The Florida Supreme Court further defined public records in a seminal 1980 legal

decision, Shevin v. Byron, Harless, Schaffer, Reid, and Associates (379 So. 2d 633,

Fla. 1980), ruling that a public record:

. . . is any material prepared in connection with official agency business which

is intended to perpetuate, communicate, or formalize knowledge of some type.

Any document meeting the above criteria set forth by the Court is a public record,

regardless of whether it is in its final form or is designated by the agency as a “draft,”

“working copy” or “preliminary version.” If an agency has circulated a “draft” for review,

comment or informational purposes, even just internally, that draft is a public record.

To clarify this definition, the Court further ruled:

To be contrasted with “public records” are materials prepared as drafts or

notes, which constitute mere precursors of governmental “records” and are

not, in themselves, intended as final evidence of the knowledge to be

recorded. Matters which obviously would not be public records are rough

drafts, notes to be used in preparing some other documentary material, and

tapes or notes taken by a secretary as dictation. Inter-office memoranda and

intra-office memoranda communicating information from one public employee

to another or merely prepared for filing, even though not a part of an agency’s

later, formal public product, would nonetheless constitute public records

inasmuch as they supply the final evidence of knowledge obtained in

connection with the transaction of official business.

(b) Inspection and examination of public records.

Florida’s Public Records Law provides for unparalleled access to the records of

government. Section 119.07(1)(a), Florida Statutes, states that:

Every person who has custody of a public record shall permit the record to be

inspected and copied by any person desiring to do so, at any reasonable time,

under reasonable conditions, and under supervision by the custodian of the

public records.

Managing Florida’s Public Records

RECORDS MANAGEMENT IN FLORIDA

Additionally, Section 119.01(2)(a), Florida Statutes, states the following regarding

electronic records:

Automation of public records must not erode the right of access to those

records. As each agency increases its use of and dependence on electronic

recordkeeping, each agency must provide reasonable public access to records

electronically maintained and must ensure that exempt or confidential records

are not disclosed except as otherwise permitted by law.

The law does not define “reasonable time” or “reasonable public access.” Every

agency should clearly define in their records management policies and procedures

what constitutes reasonable times and conditions and proper supervision. Many

factors will determine the “reasonable” amount of time in which an agency can respond

to a request: the nature of the request, the time involved in collecting and generating

the information requested, the scope and volume of material involved, the general

accessibility of the records, the personnel that will be required, and the information

resources necessary to gather or generate the information. All these issues should be

considered when an agency develops its public records accessibility policies and

procedures.

When requested to copy public records, agencies have the right to charge for those

copies under the fee provisions of Section 119.07(4), Florida Statutes. These charges

apply unless otherwise authorized by statute. In addition, the Public Records Law also

allows an agency to charge a requester if the request for information will result in the

extensive use of information technology resources or of clerical or supervisory

assistance. Again, the law does not define “extensive use,” so each agency should

indicate in their records management policies and procedures what constitutes

extensive use of either staff or information technology resources.

Not every record generated by local and state government agencies is open for

inspection. Some public records are, by law, exempt or confidential and exempt from

the public disclosure requirements of Section 119.07(1), Florida Statutes, and Section

24(a), Article I of the State Constitution.

Section 119.071, Florida Statutes, lists certain records that are exempt from public

disclosure, usually for reasons of public safety, public health, law enforcement and/or

personal privacy, and additional exemptions are specified elsewhere throughout

Florida Statutes. However, it is important to remember two key points. First, Florida’s

Public Records Law emphasizes a “general state policy on public records” that says,

“…all state, county, and municipal records are open for personal inspection and

copying by any person” (Section 119.01(1), Florida Statutes). In other words,

government records are open to public inspection unless specifically exempted by law.

Second, while exempt or confidential and exempt records are exempt from the public

disclosure requirements of Section 119.01, Florida Statutes, and Section 24(a), Article

I of the State Constitution, they are not exempt from other legal records management

requirements, such as those concerning records retention scheduling and disposition.

Electronic recordkeeping systems must have appropriate security in place to protect

information that is confidential or exempt from disclosure.

See Appendix B for sources of additional information on public records access and

exemption issues.

(3) Florida Administrative Code.

Florida’s Administrative Code includes the following rules intended to aid agencies in

establishing and maintaining a records management program:

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RECORDS MANAGEMENT IN FLORIDA

(a) Rule 1B-24, Public Records Scheduling and Disposition.

This rule establishes standards and procedures for the scheduling and disposition of

public records to promote economical and efficient management of records.

Scheduling of records also assists in the identification of records of archival value,

which may ultimately result in their transfer to the State Archives of Florida (for state

agency records) or to a formally established local government historical records

repository (for local government records).

(b) Rule 1B-26.0021, Records Management - Standards and Requirements -

Microfilm Standards.

This rule provides standards for the microfilming of public records to ensure that the

film, photographing methods, processing, handling and storage are in accordance with

methods, procedures and specifications designed to protect and preserve such

records on microfilm.

Electronic Recordkeeping.

This rule provides standards for record copies of public records that reside in electronic

form. These requirements must be incorporated in the design and implementation of

new systems and enhancements to existing systems in which electronic records

reside.

(d) Rule 1B-31, Real Property Electronic Recording.

This rule provides standards for the electronic recording of real property documents in

those Florida counties in which the county recorder elects to accept electronic real

property documents for recordation.

See Appendix C for information on accessing or obtaining copies of schedules, handbooks and

other resources.

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STARTING YOUR RECORDS MANAGEMENT PROGRAM

Establishing the procedures required to operate an agency records management program might at

first appear daunting. The startup will indeed require a concerted effort, patience, cooperation from

colleagues, and time. All of this presupposes support from management. Without initial support

from management to allocate resources to the project and continuing managerial commitment to

the program, the implementation of an effective records management program will be extremely

difficult.

One of the first responsibilities in initiating a records management program is the appointment of a

Records Management Liaison Officer (RMLO). Every agency is required by law to designate an

RMLO to serve as the primary point of contact between the agency and the division’s Records

Management Program (Section 257.36(5)(a), Florida Statutes). To appoint an RMLO, an agency

may submit to the division an RMLO designation form (see Appendix A), under signature of the

records custodian or other authorizing official. Agencies may also designate an RMLO by sending

a letter, email or other communication. Because the RMLO is in close contact with the division,

they will be an important source of information within your agency about division policies and

procedures.

The RMLO might perform a variety of records management functions as assigned by the agency,

including:

 Inventorying agency records.

 Working with the division to establish new records retention schedules and to ensure the

appropriate disposition of records eligible for destruction.

 Training and advising agency staff in records management practices.

 Participating in agency decision-making for issues such as preservation, access, digital

imaging, storage and disposal.

 Working with agency information technology staff to ensure information systems comply

with records management requirements.

 Responding to public questions regarding agency records and records management

practices.

 Reporting annually to the division regarding the agency’s compliance with records

management statutes and rules.

A. Inventory procedures: Identifying records.

An effective records management program requires an inventory of records maintained by an

agency and the identification of existing retention schedules or the establishment of new

retention schedules that can be applied to those records. Retention schedules identify records

an agency might hold and establish minimum (usually) periods of time for which the records

must be retained based on the records’ legal, fiscal, administrative and historical values. Once

all retention requirements have been met, disposition of the records is strongly recommended

(or, in rare cases, legally required). Disposition may be by physical destruction, transfer to

another agency (e.g., a successor agency or a public historical records repository) or, in the

case of electronic records, erasure. State agency records appraised by division staff as having

long-term historical value can be transferred to the State Archives. (See Archives and Archival

Records.)

An inventory might take many forms and can be as detailed as the agency requires, but at

minimum should identify and describe each record series created and/or maintained by the

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STARTING YOUR RECORDS MANAGEMENT PROGRAM

agency, including record series maintained in electronic form. A record series, as defined by

Rule 1B-24.001(3)(k), Florida Administrative Code, is:

…a group of related public records arranged under a single filing arrangement or kept

together as a unit (physically or intellectually) because they consist of the same form,

relate to the same subject or function, result from the same activity, document a

specific type of transaction, or have some other relationship arising from their creation,

receipt, or use. A record series might contain records in a variety of forms and formats

that document a particular program, function, or activity of the agency.

Examples of record series might be personnel files, client case files, project research files,

equipment maintenance and repair records, or procurement files. Each record series might

contain records in a variety of forms and formats that together document a particular program,

function or activity of the agency.

The following information should be compiled for each record series:

Record Series Title. Use a brief, meaningful phrase summarizing the form, function and/or

subject of the records without using agency jargon or abbreviations. For instance:

 “Communications Services Use Tax Returns” – not “Form DR-700019.”

 “Highway Planning Maps” - not “Road Files.”

 “Executive Director’s Correspondence and Administrative Files” – not “Bob Smith’s

Files.”

 “Directives/Policies/Procedures” – not “SOPs.”

Description. The description of the record series identifies the purpose and function of the

record series regarding the agency’s operation. The description indicates why the record

series was created and how it is used as well as the type(s) of information or subject

matter the records contain. Additional information in the description might include the

medium on which the record series is recorded, the office or position holding the record

copy, the routing path of duplicate copies (if any), statutory requirements for creating the

records, and any other information that would enable someone not familiar with the record

series to identify it and understand its contents. If the records fall under an existing

retention schedule, there is probably already a description of the records available. For

instance, this is the description of records falling under the existing Directives/Policies/

Procedures retention schedule (General Records Schedule GS1-SL for State and Local

Government Agencies, Item #186):

This record series consists of the official management statements of policy for the

organization, supporting documents, and the operating procedures that outline the

methods for accomplishing the functions and activities assigned to the agency.

The series may include, but is not limited to, such materials as employee

handbooks, standard operating procedures, management approval documentation,

and correspondence and memoranda stating the policies and procedures to be

followed by employees.

Retention. If a retention schedule is already approved, the retention requirement(s) should

be noted on the inventory form. If no retention schedule exists for the record series, note

the time period that the record series is administratively active and start the process of

establishing a retention schedule for the records (see Retention of Public Records:

Retention Schedules).

Vital Records. The inventory should indicate whether each record series is considered a

vital record in your agency. Vital records are those that are essential to the continuation of

operations in an agency or to the protection of the agency’s or citizens’ legal rights in the

event of a disaster or emergency.

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Custodial Office. The inventory should indicate what office, program or position is the

records custodian responsible for the record copy of the record series.

Once this information has been compiled for each record series, the basic information of the

inventory has been completed and can be assembled into a file plan, an agency-wide “map”

delineating an organization’s filing categories and record series, where they are located in the

organization, who is responsible for managing them, and their retention requirements. The file

plan can be used to help locate needed records as well as to identify redundancies and

inefficiencies in an agency’s filing systems. The inventory and file plan data should be reviewed

and updated periodically as new record series are created, existing series become obsolete,

retention requirements change, offices and filing systems are reorganized and records

management responsibilities are reassigned.

See Appendix D for an example of a Records Inventory Worksheet and File Plan Form.

B. Retention of public records: Retention schedules.

A records retention schedule describes a record series and sets a MINIMUM period of time

for which the records must be retained before final disposition of the records can be made. In

rare instances, a retention schedule might reflect a maximum period of time by which

destruction of the records is required by law. Every record series must have an approved

retention schedule in place before records from that series can be destroyed or otherwise

disposed of.

Retention and disposition requirements stated in records retention schedules are based upon

the legal, fiscal, administrative and historical values of each record series and by the content,

nature and purpose of records regardless of the format in which they reside. Records in any

format can have a variety of purposes and relate to a variety of program functions and

activities. Retention schedules are not intended to cover specific formats or media.

There are two types of retention schedules:

 General records schedules establish retention requirements for records common to

several or all government agencies.

 Individual records schedules establish retention requirements for records that are

unique to particular agencies or are not covered by existing general records schedules.

Almost all these retention schedules establish the MINIMUM length of time a record series

must be maintained. Retention schedules establishing minimum retention periods do not tell

you when you must dispose of records; they tell you how long you must retain records before

you can dispose of them. Agencies have the discretion to retain records beyond the minimum

retention requirements if needed for administrative, legal or other purposes. In keeping with

records management best practices, we highly recommend that agencies dispose of records

that have met their retention requirements and are no longer needed and that agencies specify

in their records management policies if and why, as a matter of practice, they will retain certain

records for a period of time beyond the minimum. Adhering to formalized, consistent records

management practices will benefit your agency in the event of litigation.

We also recommend that different record series not be interfiled or boxed together. This will

help prevent inadvertent premature disposition of records having a longer retention period.

However, if your agency interfiles or stores two or more record series together, you must

identify each retention schedule that applies to the different record series and retain the

combined file in accordance with the retention schedule having the longest retention period.

(1) General records schedules.

General records schedules establish retention requirements for records documenting

administrative and program functions common to several or all government agencies, such

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as personnel, accounting, purchasing and general administration. General records

schedules may cover the majority of an agency’s record series.

The General Records Schedule GS1-SL for State and Local Government Agencies (GS1-

SL) can be used by all Florida state and local agencies in determining their records

retention requirements.

Certain agencies will also need to use other general records schedules in conjunction with

the GS1-SL. General records schedules have been established for groups of agencies

conducting equivalent or related functions. These general records schedules establish

retention requirements for program records documenting the unique or specialized

functions and activities of those types of agencies or institutions.

The following general records schedules are currently in effect for Florida government

agencies:

GS1-SL

State and Local Government Agencies

GS2

Law Enforcement, Correctional Facilities and District Medical Examiners

GS3

Election Records

GS4

Public Hospitals, Health Care Facilities and Medical Providers

GS5

Public Universities and Colleges

GS7

Public Schools Pre-K-12 and Adult and Career Education

GS8

Fire Departments

GS9

State Attorneys

GS11

Clerks of Court

GS12

Property Appraisers

GS13

Tax Collectors

GS14

Public Utilities

GS15

Public Libraries

Please contact the Records Management Program to verify which general records

schedules are appropriate for use by your agency.

If a similar record series is listed in two general records schedules, the retention

requirements contained in the program schedule are generally more stringent and so will

usually take precedence. For instance, if a record series is listed in both the GS1-SL and

the GS2, law enforcement agencies would usually abide by the retention requirements

cited in the GS2. When in doubt, use the retention schedule with the longer retention

period. Please contact the Records Management Program to ensure that you are using the

correct schedule in the event of a conflict.

(2) Individual records schedules.

Individual records schedules establish retention requirements for records that are unique to

particular agencies or are not covered by existing general records schedules. Many

agencies will not require individual records schedules at all or may need them for only a

small number of record series. Individual records schedules may only be used by the

agency for which they were established. However, an agency may model a request for a

new individual schedule on an existing schedule for the same or similar records in another

agency.

To establish an individual records schedule, an agency must submit a Request for Records

Retention Schedule (Form LS5E-105REff.2-09) to the Records Management Program for

review and approval. This form is available on the Records Management website at

info.florida.gov/records-management/forms-and-publications/ and can also be obtained by

completing the order form in Appendix E and mailing or emailing it to the Records

Management Program.

Each Request for Records Retention Schedule form should be used to schedule one

record series. To complete the form accurately, agency personnel responsible for creating

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and maintaining that record series must analyze and evaluate the content, purpose and

use of the records. Based on this analysis, agency records management personnel

develop a record series description and an initial recommendation of the minimum time

period that the record series must be kept before disposition can be authorized.

Once the agency submits the proposed retention schedule to the Records Management

Program, records analysts with the program and archivists with the State Archives review

and analyze the proposed schedule, consult as necessary with agency staff

knowledgeable about the records, and research the Florida Statutes, administrative rules,

operating procedures, applicable federal regulations and other such sources to make a

final determination of retention requirements for each record series. If an existing schedule

exists that covers the records, the requesting agency will be referred to that schedule.

Once a retention schedule has been established for a record series, the records are

eligible for disposal action when they have met their retention requirements. The schedule

remains in effect until the series content changes or other factors arise that would affect

the retention period, such as a change in state or federal law. The agency should then

submit a new schedule request for approval. If a new general records schedule is later

established requiring an equal or longer retention period for the same records, that general

records schedule supersedes the individual schedule. If you have an individual schedule

that requires a longer retention, contact the Records Management Program for guidance.

In addition to establishing reasonable and appropriate minimum retention requirements for

each record series, the scheduling process serves the following objectives:

 To describe the use and function of the records series.

 To summarize important characteristics of the records series.

 To identify regulatory or statutory retention requirements.

 To assist in identifying:

o Vital records.

o Records of archival value.

o Preservation issues.

o Reformatting needs.

See Appendix E for instructions on completing a Request for Records Retention Schedule

form.

C. Final disposition of public records.

Section 257.36(6), Florida Statutes, states that “[a] public record may be destroyed or

otherwise disposed of only in accordance with retention schedules established by the division.”

This means that all records, regardless of confidential/exempt status and regardless of the

presence of retention language in statute, rule, code, ordinance, contracts, policies or

elsewhere, must be covered by a retention schedule before disposition can occur. Agencies

must first identify an appropriate current records retention schedule (either a general schedule

or an individual schedule) or create and receive approval for a new records retention schedule

before disposing of any record series. Agencies must use only current, active retention

schedules to dispose of records; retention schedules that have been superseded or designated

as inactive cannot be used to dispose of records. Contact the Records Management Program if

you are unsure of the status of a retention schedule.

(1) Records disposition documentation.

There are two general requirements for disposing of public records; you must 1) ensure

that the records have met all retention requirements; knowledge of disposal eligibility is

your agency’s responsibility; and 2) document internally the disposition of any public

records in your custody, per Rule 1B-24.003(9)(d), Florida Administrative Code, which

requires that:

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Prior to records disposition, agencies must ensure that all retention requirements

have been satisfied. For each record series being disposed of, agencies shall

identify and document the following:

1. Records retention schedule number,

2. Item number,

3. Record series title,

4. Inclusive dates of the records,

5. Volume in cubic feet for paper records; for electronic records, record the number

of bytes and/or records and/or files if known, or indicate that the disposed

records were in electronic form; and,

6. Disposition action (manner of disposition) and date.

Agencies are not required to document the disposition of records with a retention

of “Retain until obsolete, superseded or administrative value is lost” (OSA) except

for records that have been microfilmed or scanned as part of a retrospective

conversion project in accordance with Rule 1B-26.0021 or 1B-26.003, Florida

Administrative Code, where the microfilm or electronic version will serve as the

record (master) copy.

Your agency may use the model Records Disposition Document available on the Records

Management Program website at info.florida.gov/records-management/forms-and-

publications/ or any form of documentation that is convenient for your agency and that

ensures that you maintain the required disposition information.

(2) Distinguishing between the different types of retention period requirements.

When trying to determine when records are eligible for disposition, agencies must

understand the different types of retention requirements. For instance, records with a

retention of “3 anniversary years” will have a different eligibility date from records with a

retention of “3 fiscal years” or “3 calendar years.”

A. Anniversary Year - from a specific date

Example: 3 anniversary years

If a record series has a retention of “3 anniversary years,” the eligibility date

would be 3 years after the ending date of the series or the file cutoff date.

B. Calendar Year - January 1 through December 31

Example: 3 calendar years

If a record series has a retention of “3 calendar years,” the eligibility date would

be 3 years after the end of the calendar year of the latest record in the series or

the file cutoff date.

C. Fiscal Year - depends on agency type

 State government agencies, school districts - July 1 through June 30

 Local government agencies – October 1 through September 30

Example: 3 fiscal years

If a record series has a retention of “3 fiscal years,” the eligibility date would be

3 years after the end of the fiscal year of the latest record in the series or the file

cutoff date.

D. Months or Days

Examples: 6 months; 90 days

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If a record series has a retention of “6 months,” the eligibility date would be 6

months after the ending date of the record series or file cutoff date.

If a record series has a retention of “90 days,” the eligibility date would be 90

days after the ending date of the record series or file cutoff date.

E. Retain until obsolete, superseded, or administrative value is lost (OSA)

With this retention, records become eligible for disposition when they are no

longer of any use or value to the agency or have been replaced by more

current records. The retention could vary from less than one day to any length

of time thereafter.

F. Triggering Event

With this retention, records become eligible for disposition upon or after the

occurrence of a specific event – the “triggering event.”

Examples:

Retain until youth turns age 25.

Retain for life of the structure.

3 anniversary years after final action.

Examples: Calculating eligibility dates

If the ending date for a specific record series or file cutoff is 7/31/2020, when are these

records eligible for disposition under different retention period types?

Retention Period

Start Counting

From

Add # of

Years

Retain

Through

3 anniversary years

7/31/2020

= 7/31/2023

3 fiscal years (local govt.)

9/30/2020

= 9/30/2023

3 fiscal years (school district)

6/30/2021

= 6/30/2024

3 calendar years

12/31/2020

= 12/31/2023

(3) Records volume conversion to cubic foot measurements.

Cassette tapes, 200

1.0 cubic foot

Letter-size file drawer

1.5 cubic feet

Legal-size file drawer

2.0 cubic feet

Letter-size 36” shelf

2.0 cubic feet

Legal-size 36” shelf

2.5 cubic feet

Magnetic Tapes, 12

1.0 cubic foot

3 x 5 cards, ten 12” rows

1.0 cubic foot

3 x 5 cards, five 25” rows

1.0 cubic foot

4 x 6 cards, six 12” rows

1.0 cubic foot

5 x 8 cards, four 12” rows

1.0 cubic foot

16mm microfilm, 100 rolls

1.0 cubic foot

35mm microfilm, 50 rolls

1.0 cubic foot

Map case drawer, 2” x 26” x 38”

1.1 cubic feet

Map case drawer, 2” x 38” x 50”

2.2 cubic feet

Roll storage, 2” x 2” x 38”

0.1 cubic foot

Roll storage, 2” x 2” x 50”

0.2 cubic foot

Roll storage, 4” x 4” x 38”

0.3 cubic foot

Roll storage, 4” x 4” x 50”

0.5 cubic foot

(One roll of microfilm contains approximately 1.0 cubic foot of records.)

Cubic foot calculation: (Length” x Width” x Height”) ÷ 1,728 = cubic feet

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(4) Factors that might influence when records can be disposed.

a) Litigation. When a public agency has been notified or can reasonably anticipate that a

potential cause of action might arise or is pending or underway, that agency should

immediately place a hold on disposition of any and all records related to that cause.

Your agency’s legal counsel should inform the RMLO and/or records custodian(s)

when a legal hold must be put in place and when that hold can be lifted so that records

can again be disposed of in accordance with retention schedules.

b) Public records requests. According to Section 119.07(1)(h), Florida Statutes, the

custodian of a public record may not dispose of a record “for a period of 30 days after

the date on which a written request to inspect or copy the record was served on or

otherwise made to the custodian of public records by the person seeking access to the

record. If a civil action is instituted within the 30-day period to enforce the provisions of

this section with respect to the requested record, the custodian of public records may

not dispose of the record except by order of a court of competent jurisdiction after

notice to all affected parties.”

c) Accreditation standards. Some public agencies receive national or statewide

accreditation or certification by professional societies, organizations and/or

associations. Examples include the Joint Commission on the Accreditation of Health

Care Organizations, the Commission on Accreditation for Law Enforcement Agencies,

and COLA (formerly the Commission on Office Laboratory Accreditation). In an effort to

enhance the professionalism of their members, these groups may place more stringent

recordkeeping requirements on public agencies than those mandated under state or

federal law. Agencies may therefore choose to maintain their records for a longer

period of time than required by established records retention schedules in order to

meet recordkeeping requirements for accreditation. However, records cannot be

disposed of before the minimum retention period dictated by the records retention

schedules, even if the accrediting organization’s retention requirements are less

stringent than those set forth in the retention schedules.

d) Records in support of financial or performance audits. These records should be

retained in accordance with the following guidelines provided by the Florida Office of

the Auditor General:

Records must be retained for at least three fiscal years (most financial records

must be retained for a minimum of five fiscal years in accordance with

guidelines of the Department of Financial Services and the Office of the

Auditor General). If subject to the Federal Single Audit (pursuant to 31

USC, Section 7502, and OMB Circular A-133, Audits of States, Local

Governments, and Non-Profit Organizations, Subpart E) or other federal

audit or reporting requirements, records must be maintained for the

longer of the stated retention period or three years after the release date

of the applicable Federal Single Audit or completion of other federal

audit or reporting requirements. Finally, if any other audit, litigation, claim,

negotiation, or other action involving the records has been started before the

expiration of the retention period and the disposition of the records, the records

must be retained until completion of the action and resolution of all issues

which arise from it. However, in no case can such records be disposed of

before the three fiscal year minimum.

The Records Management Program does not track or maintain information on which

audits apply to which records in which agencies. Different agencies are subject to

different types of audits at different times, and each agency is responsible for knowing

what audits might be conducted and retaining needed records for that purpose. For

instance, some agencies might be subject to the Federal Single Audit, while others are

not. In general, any records relating to finances or financial transactions might be

subject to audit.

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Audits may be conducted by the Florida Auditor General, independent public

accountants, or other state or federal auditors, as well as grant funding agencies and

national or statewide professional accreditation or certification groups. Your finance

office, your legal office and the Auditor General’s Office are good sources of

information regarding which specific records your agency should retain for audit

purposes.

e) Federal, state or local laws and regulations. In rare instances, laws, rules or

regulations for specific agencies or specific types of records might require a longer

retention than indicated in general records schedules, particularly with newly enacted

laws. Agencies should be aware of all laws and regulations relating to their records

and recordkeeping requirements and should submit a Request for Records Retention

Schedule when such requirements are not already reflected in existing retention

schedules.

D. Disposing of public records.

Physical destruction of public records must be in accordance with the provisions set forth in

Rule 1B-24.003(10), Florida Administrative Code, which reads as follows:

Agencies shall ensure that all destruction of records is conducted in a manner that

safeguards the interests of the state and the safety, security, and privacy of individuals. In

destroying records containing information that is confidential or exempt from disclosure,

agencies shall employ destruction methods that prevent unauthorized access to or use of

the information and ensure that the information cannot practicably be read, reconstructed,

or recovered. The agency shall specify the manner of destruction of such records when

documenting disposition. Where possible, recycling following destruction is encouraged.

(a) For paper records containing information that is confidential or exempt from disclosure,

appropriate destruction methods include burning in an industrial incineration facility,

pulping, pulverizing, shredding, or macerating. High wet strength paper, paper mylar,

durable-medium paper substitute, or similar water repellent papers are not sufficiently

destroyed by pulping and require other methods such as shredding or burning.

(b) For electronic records containing information that is confidential or exempt from

disclosure, appropriate destruction methods include physical destruction of storage media

such as by shredding, crushing, or incineration; high-level overwriting that renders the data

unrecoverable; or degaussing/demagnetizing.

disclosure, such as audio tape, video tape, microforms, photographic films, etc.,

appropriate destruction methods include pulverizing, shredding, and chemical

decomposition/recycling.

(d) Agencies shall not bury confidential or exempt records since burying does not ensure

complete destruction or unauthorized access.

While the most common method of disposing of records is destruction, disposition may also

mean the transfer of records to another agency. For example, if a public agency transfers

records to a public historical records repository, then the custody of those records becomes the

responsibility of the agency to which the records are transferred. However, if a private historical

society requests a loan of certain records, the agency may loan the records but is still the

legally responsible custodian of those public records and is therefore not transferring, or

disposing of, the records.

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E. Records disposition compliance statement and RMLO designation.

Once a year, the Records Management Program will send to each agency a Records

Management Compliance Statement form, including instructions on how to complete the form.

On this form, the agency must indicate its compliance with records management laws and

rules and provide updated agency and RMLO information. Your agency should complete and

return the form promptly, as compliance data from all agencies is compiled and submitted

annually in a report to the Governor and Legislature.

Compliance reporting is required by law. Rule 1B-24.003(11) and (12), Florida Administrative

Code, require that “Each agency shall submit to the Division, once a year, a signed statement

attesting to the agency’s compliance with records management laws, rules, and

procedures…The Division shall compile an annual summary of agency records scheduling and

disposition activities to inform the Governor and the Legislature regarding statewide records

management practices and program compliance.”

If your agency does not receive a Records Management Compliance Statement form by the

end of November each year and a parent agency is not reporting for you (for instance, a city

police department being reported by the city), please contact the Records Management

Program.

F. Developing a records management policy.

Developing and adhering to a formal, written records management policy is the best way to

ensure that records management requirements are met in a consistent, effective and efficient

manner. A formal records management policy will help to minimize your agency’s vulnerability

to potential public records litigation and is also a useful tool in training new employees.

Agencies should therefore work closely with their legal office in developing their records

management policies.

The following are some common components of a records management policy. The

Department of State’s internal records management policy is provided in Appendix F as an

example. This is not a statewide policy and applies only to the Florida Department of

State. The specific components or information included in any agency’s policy will depend on

the needs and circumstances of that particular agency.

Introductory matter. Indicate the overall state, county, municipal or institutional policy

objectives that the records management policy is intended to achieve and the legal

authority (statutes, administrative rules, county or municipal ordinances, etc.) that

drives those policies. Indicate how the agency’s internal administrative policies support

those policy objectives. Note the specific purpose for implementing the policy and its

scope of coverage, including to whom the policy does or does not apply.

Definitions. Define key terms to ensure that all employees and others who read and

use the policy have the same understanding of the terminology used.

Agency authority and responsibility. Indicate where in the agency’s organizational

structure the records management program and the designated RMLO are located. As

a best practice and to increase the chances for success, the records management

responsibility should be placed at a senior level or report to a senior manager. Note

which office or position is designated as the legal custodian of public records for

specific program areas or for the agency as a whole.

Inventory procedures. Outline procedures for developing or maintaining an inventory,

file plan or equivalent method of maintaining current information on the agency’s public

records, including those designated as vital records. For example, some agencies use

a list of retention schedules that apply to their records as the basis of their inventory.

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Filing and storage. Indicate how the agency organizes and files records for efficient

retrieval, including protection of and access to vital records.

Record copy designation. Indicate which office or position maintains the record copy

of specified records when copies are distributed to other offices.

Retention. Note which retention schedules apply to the agency’s records (general

schedules and/or individual agency retention schedules) and where staff can consult

those retention schedules to ensure that records are retained for the required period of

time. Also note if it is the agency’s policy to retain certain records for a period beyond

the minimum retention period and the justification for doing so.

Disposition. Indicate who has responsibility for and authority to conduct disposition of

public records, including methods of physical destruction of records that have satisfied

all retention requirements and are no longer needed, as well as transfer of records

having archival value (see Archives and Archival Records) to an appropriate public

historical records repository, or otherwise ensuring the preservation of archival records.

Specify the agency’s disposition documentation procedures.

Legal holds. Indicate the agency’s procedures for placing and lifting legal holds on

records relating to current or potential litigation to ensure that such records are not

disposed of until any such litigation or threat of litigation is resolved.

Electronic records. Note how the agency integrates management of electronic

records, including email and other born-digital records as well as digitizing of hard-copy

records, into its overall records management program and procedures.

Public records requests. Indicate the agency’s overall policy and specific procedures

for responding to requests for public records. Note the office or position to which public

records requests should be directed; timeframes for responding to requests; methods

of accepting payment for copies; formulas for calculating any extensive use fees as

authorized by Section 119.07(4)(d), Florida Statutes; procedures for ensuring the

protection of information that is statutorily confidential and/or exempt from public

disclosure, including redaction procedures; times and conditions for inspection of

records; and any other related procedures.

G. Records management training.

While the Records Management Program cannot require training, we highly recommend that

records management staff, administrative staff, office managers, IT professionals and other

agency personnel take advantage of the benefits of records management training. Such

training can help all employees to:

 Apply records management principles and best practices to ensure compliance with

Florida’s Public Records Law.

 Be familiar with and understand legal mandates.

 Identify public records.

 Determine appropriate retention schedules for their records.

 Adhere to retention and disposition requirements.

 Manage electronic records including email.

 Be familiar with and understand public records access requirements.

The Records Management Program offers several training options, including on-site and web-

based. Training is also available from other governmental entities and the private sector,

although you will want to ensure they have experience with Florida’s Public Records Law and

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the most current information regarding the rules, policies and procedures of the Records

Management Program.

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Paper records are expensive to create and maintain, but they can be an asset to an agency if the

information is available for use. By implementing proper files management - selecting and using

appropriate filing systems, arrangements and equipment - agencies should be able to locate paper

records with ease. Whether developing a new filing system for paper records or revamping an

existing system, agencies should evaluate how the records will be accessed, handled and stored.

A. Filing Arrangements.

There are five commonly used filing arrangements that are designed to file and reference

records in different ways: alphabetical, numerical, alpha-numerical, chronological and

geographical. Each has advantages for certain types of records and reference needs, and

each possesses distinct patterns of arrangement and indexing. Agencies should choose a filing

arrangement that best suits the character of the content being filed and the business needs of

the agency, and that can be understood by the employees of the agency. Often the simplest

method is the best.

(1) Alphabetical.

The most commonly used filing arrangement is alphabetical filing. Alphabetical files can be

arranged in two different ways:

a. Dictionary order – each subject gets an individual folder and all are arranged

alphabetically. Subject/reference files might be arranged alphabetically by topic; for

example, “Budgeting” would come before “Contract Negotiations.”

Correspondence files might be arranged alphabetically by last name of writer, a

particularly useful filing arrangement if the correspondence will frequently need to

be accessed by name.

b. Encyclopedic order – subjects are grouped into major headings, with individual

folders arranged alphabetically behind each heading. For example, a major

heading could be “Contracts” followed by individual folders for “Alpha Printing,”

“Beta Shredding,” and “Charlie’s Recycling.”

(2) Numerical.

In a numerical filing system, the files are arranged sequentially by number rather than by

name. Numerical files can be organized in two different ways:

a. Serial number – used for files having a pre-printed or pre-assigned number, such

as a system-generated purchase request number that is assigned when the record

is created in the system.

b. Digit filing – uses an applied number to identify files, such as a social security

number, student identification number, patient number or budget line number.

(3) Alpha-Numerical.

Alpha-numerical filing is the classification of records by codes that should give information

about the contents of the folders. Typically, users locate filings though a hierarchical or

alphabetical list that indicates the code designed for filing or retrieval.

(4) Chronological.

Chronological filing is useful for records that are created and monitored on a daily, or

regular, basis. Folders are arranged sequentially by date. Chronological filing should be

used with caution, as it might hamper access by other methods such as name.

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(5) Geographical.

Geographical filing is an arrangement in which files are labeled and arranged, often

alphabetically, according to a geographical location, such as the city or county location of

an agency district office, organization or person. This arrangement can be useful when

access to records of certain locations is required.

Once an arrangement is chosen, a file procedures manual should be established and should

be used by everyone working with the files to maintain the integrity of the filing system.

B. Establishing a filing system.

The cost and efficiency of filing operations are directly affected by the type of equipment used.

A major aim in filing equipment management is to purchase only necessary filing equipment

that will provide the most efficient file retrieval at the lowest cost and use the least amount of

office space.

(1) Equipment selection criteria.

Office equipment manufacturers offer numerous types, sizes, styles and price ranges of

filing equipment. Equipment should be selected based on criteria such as:

Accessibility. Equipment should provide quick and easy access to the records it

houses. Since records are filed for future reference, retrieval of the information should

be a foremost consideration. The records should be as open as possible to authorized

users, located near their work area and have the potential to be used by several

people simultaneously.

Cost. Soaring office costs require selection of the most economical equipment that

provides the required accessibility and retrieval speed. Compare equipment in terms of

cost per square inch of actual filing space.

Space Utilization. Office space is a recurring cost. Equipment requiring excessive

space could cost more over the long term than the original cost of more expensive, but

more compact, equipment. Filing equipment should consume minimum office space.

Security. Since agencies are responsible for protecting their records, security is

another strong consideration in selecting equipment. Most filing equipment can be

equipped with locks to provide controlled access. If you rely on locks, make sure the

locking hardware and mechanisms are strong and not easily broken or bypassed and

that keys are unique to each lock. For better file security, secure the entire filing area

and restrict access to that area.

Mobility. Filing equipment should be evaluated for its mobility. Offices that move or

reorganize often should procure relatively mobile equipment.

(2) Types of filing equipment.

Common types of filing equipment include vertical, lateral, shelf or mechanized. Both

traditional vertical pull-drawer file cabinets and lateral rollout drawer cabinets help protect

records from light, dust and physical damage. However, they require significant floor space

to house and allow for opening of drawers. Drawers can only be opened one at a time,

limiting quick viewing of files and the effectiveness of any color coding or bar coding the

agency might want to employ. Other options include:

Mechanical (power elevator) files – These files offer potential floor to ceiling high

density storage of records housed in carriers that may be accessed by the touch of a key

or a few keys, with the mechanical carriers rotating the desired record tiers to a

comfortable workstation level. Mechanical files use only a moderate amount of floor

space while utilizing often wasted high space and can be used

with end-tabbed, color-

coded or bar-coded folders. However, as with pull-drawer cabinets, only one person at a

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time can access the records and only a limited portion of the files can be viewed at any

one time.

Open shelf files (lateral shelf files) – These are available either as basic shelf units

without any covers, as self-contained units with covers and locks for each tier, or as

“data box” units that may be easily expanded and contracted by adding or deleting

individual click-in boxes. These systems allow visual access to all files, are readily

adaptable for use with color coding and bar coding, conserve floor space, and use often

wasted high space.

Mobile shelving/compact shelving - Designed to provide high-density storage for

paper and other records media, mobile shelves are constructed on tracks and moved by

mechanical or electrical systems to allow access to files using a minimum amount of

floor space. However, only one aisle of records can be open for access at a time,

maintenance costs over time must be accounted for, and it is critical to have professional

engineers study your floor load capacity to ensure your facility can accommodate the

weight of high-density storage.

(3) Tools to use with paper files.

A variety of simple tools help to systematically organize and efficiently locate and retrieve

needed files:

Folders. The most common type of filing tool is the simple paper or manila file folder

that serves as a container for a specified set of paper records. File folders are often

scored on the bottom edge, allowing for expansion to hold more pages without

overstuffing the folder and reducing the risk of the file bending and/or sliding under

other folders.

Hanging and suspension folders. Hanging and suspension folders hold one or more

traditional file folders and so require considerably more supplies and file cabinet space.

They can also make it more difficult to place files in boxes for storage or disposition.

However, they help prevent file folders from bending or slipping under each other and

are especially useful in organizing large files.

Binder folders. Folders with prong fasteners should be avoided. While these folders

do hold paper securely, fasteners require extra time to punch holes and secure the

pages in place and to remove pages when necessary, such as for copying. They also

increase the risk of damage, such as from rust or tears, and are more expensive than

standard folders.

Guides. Guides are file drawer dividers that divide a set of files into distinct labeled

sections to permit quick and easy location of a specific file. Their sturdy construction can

also help to support the files and prevent sagging. Guides with side tabs that can be

read from either side are available for use with open shelf files. Primary guides indicate a

principal division of the file, while secondary guides indicate a subdivision of the file and

are often used with larger file series.

Tabs. All folders and guides should have a tab with space for a label or caption

indicating file content. Tabs can be constructed of the same material as the folder or

guide, of more durable material such as metal, or of clear plastic to protect the labels.

Tabs can be straight or slanted, printed or blank, and of various widths or cuts,

depending on filing needs.

Labels. Labels on guide tabs and folder tabs identify the contents of the records.

Labeling in a uniform style makes it easier to locate needed files. Printed labels are

preferable where possible so that labels can be easily read.

Color-coding. Color-coded filing systems aid in filing and retrieval of all types of files,

from financial records to personnel files. The assignment of colors to letters, numbers,

or other identifiers in a particular position on a file folder results in a color block pattern

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that gives a quick, clear visual identification of any misfiles. It is especially well-suited

for use with shelf filing because the ends of the folders are readily visible. Color coding of

files minimizes hidden misfiles, increases speed and accuracy in filing and retrieval, and

allows rapid presorting by color.

Bar coding. Bar coding can easily be accomplished in back file conversions with

procedures as simple as applying self-adhesive bar code labels to folders or boxes and

recording the bar code numbers in a database to make computer-based tracking and

management of that file immediately possible. Many systems provide for on demand

automated printing of bar code labels and the scanning and uploading of that bar code

data into the database.

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Electronic records are any data or information that has been captured and fixed for storage and

manipulation in an automated system and requires the use of a system to render it intelligible by a

person. Electronic records include numeric, graphic, audio, video and textual information that is

recorded or transmitted in analog or digital form such as electronic spreadsheets, word processing

files, databases, electronic mail, instant messages, scanned images, digital photographs and

multimedia files.

Electronic records that meet the definition of a “public record” as defined by Section 119.011(12),

Florida Statutes, must be managed and made available according to applicable laws and rules. As

provided by Section 119.01(2)(a), Florida Statutes, “Automation of public records must not erode

the right of access to those records.”

Electronic public records, just like paper records, must be created and maintained in accordance

with Florida statutes and administrative rules. Electronic records:

 Are subject to retention requirements.

 Should be disposed when they have satisfied all retention requirements.

 Must be documented when disposed/erased.

 Must be made available for inspection and examination upon request.

 Must be protected to prevent release of confidential or exempt information.

 Are subject to legal holds for current or potential litigation.

 Are subject to audits.

Rule 1B-26.003, Florida Administrative Code:

 Provides standards for the creation, maintenance and backup of electronic public

records, including standards for digitizing records of long-term or permanent value.

 Establishes procedures for regular recopying, reformatting and other necessary

maintenance to ensure the retention and usability of electronic records throughout their

authorized life cycle.

 Provides for transfer of electronic records and any related documentation and indexes

to the State Archives of Florida at the time specified in the records retention schedule,

if applicable.

 Establishes requirements for destruction of electronic records. Electronic records may

be destroyed only in accordance with the provisions of Rule 1B-24, Florida

Administrative Code. At a minimum each agency shall ensure that:

o Electronic records scheduled for destruction are disposed of in a manner that

ensures that any information that is confidential or exempt from disclosure,

including proprietary, or security information, cannot practicably be read or

reconstructed.

o Recording media previously used for electronic records containing information

that is confidential or exempt from disclosure, including proprietary or security

information, are not reused if the previously recorded information can be

compromised in any way by reuse.

A. Sustainable formats.

Typically, agencies select electronic formats based on business needs and current technical

requirements. Selected formats should be sustainable, that is, accessible both throughout their

lifecycle and as technology evolves, regardless of the technology used when it was originally

created. A sustainable format is one that increases the likelihood of a record being accessible

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in the future. Formats that are not sustainable may cause records to become obsolete and

inaccessible before they are eligible for deletion as authorized in the approved records

retention schedule.

Rule 1B-26.003, Florida Administrative Code, defines long-term records as those with a

retention requirement of more than 10 years. When records need to be maintained over the

long term (sustainability), agencies should consider each of the following characteristics of

formats:

 Published documentation and open disclosure – Also known as “open-source” or

“non-proprietary,” these are formats for which specifications are published and

accessible to the public. This allows developers or anyone else to freely work with the

format to create a wide variety of applications or tools to read, process and validate

files, including accessing information in obsolete formats and/or migrating files to new

formats. Tagged Image File Format (TIFF) and the Portable Document Format family

(PDF, PDF/A, etc.) are examples of formats based on a publicly available, authoritative

specification for scanned images.

 Widespread adoption and use - Formats adopted for widespread use by information

creators, disseminators and users have a higher probability of being sustainable over

time. When a format has been widely adopted by users, it is likely that multiple

software tools have been created to open, read and access the records and that the

market supports ongoing sustainability of the file format. This extends the time that the

information can be maintained in the format using readily available tools. Hyper-text

Markup Language (HTML) is an example of a format that has been widely adopted for

Internet use.

 Self-describing formats - Self-describing formats contain embedded metadata

needed to interpret the content, context and/or structure of the file. Embedded

metadata, such as file name, creation date or field names, minimizes the need to rely

on external documentation and the risk of disassociation of metadata from the file over

time. While self-describing formats provide the capability for including metadata (for

instance, in the file header or through tags within the file structure), they may not

necessarily mandate it in the format specification. If present, the metadata should be

easily accessible to ensure that descriptive information about the record is sustainable.

Extensible Markup Language (XML) is an example of a self-documenting format

because it describes its structure and field names.

When agencies use formats that exhibit these characteristics, they increase the likelihood that

the information will be accessible over the long term.

When creating electronic records or converting source data, agencies can enhance

sustainability by maintaining the original quality of source data. The following methods are

typically applied through software settings and vary depending on the format being used.

 Technical protection mechanisms – Long-term records should be unrestricted

and/or unencrypted so that user IDs and/or passwords are not needed to maintain the

file. User IDs and passwords can be lost over time. This does not mean that

confidential or exempt information should be released to the public, but that the agency

must ensure its own access to all its records.

 Maintain integrity of source data – When using compression to reduce file size,

agencies should use lossless compression to maintain the integrity of source data.

Lossless compression produces smaller file sizes without removing any information.

Maintaining the original quality of source data can facilitate future migration and

conversion. Minimizing subsequent modification of the records after production is also

recommended to maintain integrity.

While selecting appropriate formats does not guarantee sustainability, it does significantly

increase the probability that those records will remain accessible and readable for as long as

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necessary. Of course, agencies need to follow other record policies and procedures governing

creation and management of electronic records and adhere to approved records retention

schedules to further ensure that records are maintained properly.

B. Scanning records.

Scanning of public records must be conducted in accordance with Rule 1B-26.003, Florida

Administrative Code.

 Records with a minimum retention of over 10 years must be scanned at a minimum 300

PPI (300 DPI) to “a published International Organization for Standardization (ISO) open

standard image format.” These formats include TIFF, PDF, PDF/A and others. To find out if

a particular format is a published ISO format, go to the ISO website at http://www.iso.org/

and search for the format (e.g., search for PDF, TIFF, etc.).

 For records with a minimum retention requirement of 10 years or less, any PPI/DPI and

image format can be used; however, the agency still must ensure that the records remain

fully accessible and readable for as long as they are required to be retained.

 In general, scanned images of public records can be designated as the record copies, and

the original hard copy can be designated as duplicates and disposed of when no longer

needed, provided that the electronic records are in compliance with Rule 1B-26.003,

Florida Administrative Code, and the completeness and accuracy of the scanned copies

have been verified. The electronic version, once designated as the record copy, must be

retained for the retention period stated in the applicable retention schedule and in

accordance with Rule 1B-26.003, Florida Administrative Code. The paper original can then

be designated as a duplicate and disposed of at any time.

 Rule 1B-24.003(9)(a), Florida Administrative Code, states, “An agency that designates an

electronic or microfilmed copy as the record (master) copy may then designate the paper

original as a duplicate and dispose of it in accordance with the retention requirement for

duplicates in the applicable retention schedule unless another law, rule, or ordinance

specifically requires its retention.” Although this is a rare exception, we recommend that

agencies consult with their legal counsel for guidance if they are unsure if their records

must be maintained in their original paper form.

C. File naming.

File naming is an important part of managing any system of records. A file name is the principal

identifier for a record or set of records. Having a unified naming system can help place records

in context with other records as well as associated record series and retention schedules.

Records that are named using a consistent, logical system can be more easily located and

shared among users. Agencies may want to consider an agency-wide file naming policy as part

of their strategy for managing electronic records.

File naming policies will vary depending on the business needs of the agency or office. When

developing a file naming policy, consider including as part of the file name some of the

following common conventions:

 Version number (e.g., version 1 [v1, vers1])

 Date of creation (e.g., April 14, 2017 [04142017, 04_14_2017])

 Name of creator (e.g., Edward N. Johnson [ENJohnson, ENJ])

 Description of content (e.g., media kit [medkit, mk])

 Name of intended audience (e.g., general public [pub])

 Name of group associated with the record (e.g., Committee ABC [CommABC])

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 Release date (e.g., released on March 24, 2018 at 10:30 a.m. eastern time

[03242018_1030ET])

 Publication date (e.g., published on December 31, 2020 [pub12312020])

 Project number (e.g., project number 625 [PN625])

 Department number (e.g., Department 126 [Dept126])

 Record series (e.g., Series2036)

Also consider the following issues when developing a file naming policy:

 Access and ease of use. The policy should be simple and straightforward. A simple

policy will help staff members logically and easily name records and help ensure that

records are accessible to staff members and/or to the public. A simple policy will be

more consistently used, resulting in records that are consistently named and thus

easier to organize and access.

 Ease of administration. The policy should work with your computer infrastructure so

that you can monitor policy compliance, manage records and record series, gather

metadata (as discussed in section A, metadata in the context of records management

is data describing context, content, and structure of records and their management

through time), and perform other administrative tasks easily and in compliance with all

legal requirements. For example, if all the records in a specific record series are easily

identifiable by file name, they will be easier to gather and manage.

 Uniqueness. To prevent conflicting file names when files are moved from one location

to another, each file name should be unique. Having multiple files with the same name

is confusing and creates a risk that a file might automatically overwrite another file with

the same name. How you arrive at unique file names will require some thought. Once

you have developed a system, it is important to standardize and adhere to it.

 Version control. Determine whether and how to indicate the version of the record.

Sometimes current and obsolete drafts are put in different electronic file folders without

altering the file name. However, when these records are moved from the active

electronic file folder to another storage area, identical file names may conflict and

cause confusion.

 Scalability. Consider how scalable your file naming policy needs to be. For example, if

you want to include the project number, do not limit your project numbers to two digits,

or you can only have 99 projects.

 Persistence over time. File names should outlast the records creator who originally

named the file. With good staff input and training, you should be able to develop file

names that make sense to staff members once the file creators are no longer

available.

D. Automated systems to manage electronic records.

Agencies may want to consider acquiring computer software written specifically to manage

electronic records. These systems can be costly and require a substantial commitment to

implement, but they offer features that help control documents and records and some have

built-in records management features to help safeguard the agency’s records. Agencies

considering acquiring such systems should understand the differences in the types of systems

available.

 Electronic Records Management Systems (ERMS) are designed primarily to

manage an organization’s electronic records, although they can be used for some

physical records management functions also. Users cannot revise or edit documents

once they are declared to the system. ERMS functionality includes:

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o Capture of electronic records and their accompanying metadata.

o Discovery.

o Records retention in accordance with set schedules or rules.

o Authorized disposition.

o Litigation holds.

o Other functionality designed to ensure the appropriate maintenance,

accessibility, authenticity, and security of records for as long as required by the

organization.

 Electronic Document Management Systems (EDMS) are also widely used in

organizations to control the creation, use and destruction of electronic documents to

facilitate workflow. EDMS often lack some of the functionality needed to fully manage

records but support such functions as:

o Indexing of documents.

o Storage management.

o Version control.

o Close integration with desktop applications.

o Retrieval tools to access the documents.

The United States Department of Defense (DoD) has functional requirements and standards

for that Department’s electronic records management systems that can be helpful to Florida

agencies planning to acquire these types of systems. DoD standard DoD 5015.2-STD,

Electronic Records Management Software Applications Design Criteria Standard, April 25,

2007, is a requirement for DoD records management applications and is endorsed by the

National Archives and Records Administration (NARA) for use by all federal agencies. DoD

5015.2-STD is not a requirement for Florida agencies and includes many functions that do not

apply to Florida public records or agencies. However, it can serve as a useful reference for

agencies evaluating ERMS software and/or developing their own functional requirements. The

standard is available at

https://www.esd.whs.mil/Portals/54/Documents/DD/issuances/dodm/501502std.pdf.

(1) Implementing automated systems.

When creating electronic records and implementing automated systems that will contain

public records, agencies must take steps to ensure the records are maintained according

to applicable public records laws and rules.

(a) Incorporate recordkeeping requirements into system design.

Rule 1B-26.003, Florida Administrative Code, states that electronic recordkeeping

requirements “must be incorporated in the system design and implementation of new

systems and enhancements to existing systems in which electronic records reside.”

Agencies must “establish procedures for addressing records management

requirements, including recordkeeping requirements and disposition, before approving,

recommending, adopting, or implementing new electronic recordkeeping systems or

enhancements to existing systems.” Recordkeeping requirements are best addressed

and incorporated when automated systems are being planned and designed. Selected

technologies must accommodate records retention, exemption and access

requirements. For instance, an agency implementing a new surveillance recording

system must ensure that the system can accommodate the minimum 30-day retention

requirement for surveillance recordings as well as the ability to preserve the recordings

longer in the event of an incident investigation (General Records Schedule GS1-SL for

State and Local Government Agencies, Item #302, Surveillance Recordings).

If an agency utilizes an information system development methodology (ISDM), system

development life cycle (SDLC), or similar process when designing and planning

information systems, records management requirements should be included in the

earliest stages of this process.

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(b) Agencies should include steps to ensure that:

 Records can be migrated to new storage media or formats to avoid loss due to

media decay or technology obsolescence.

 Records can be disposed of when they have met their required retention.

 Records needed for legal discovery are withheld from disposal and retained in their

native format until litigation is resolved.

(2) Document electronic recordkeeping systems.

Maintaining documentation of all agency systems that store electronic records is a best

practice for both records management and information technology. Often, but not always,

the IT program maintains such documentation.

Electronic records systems documentation should include written descriptions and

procedures that provide information about a computer program or a computer system so

that it can be properly used and maintained. The documentation should also:

 Identify all defined inputs and outputs of the system.

 Define the contents of the files and records.

 Determine restrictions on access and use.

 Provide an understanding of the purpose(s) and function(s) of the system.

 Describe update cycles or conditions and rules for adding information to the

system, changing information in it, or deleting information.

For purchased software, the documentation supplied by the software vendor, along with

any agency-specific documentation that IT maintains such as user permissions, etc., will

likely be sufficient. The agency should develop similar documentation for software that is

developed in-house.

E. Electronic communications as public records.

Electronic communication is the electronic transfer of information, typically in the form of

electronic messages, memoranda and attached documents, from a sending party to one or

more receiving parties by means of an intermediate telecommunications system. Electronic

communications include email, instant messaging, text messaging (such as SMS, Blackberry

PIN, etc.), multimedia messaging (such as MMS), chat messaging, social networking (such as

Facebook, Twitter, etc.), or any other current or future electronic messaging technology sent or

received by any device. Any such communications that meet the definition of public record

must be managed accordingly.

There is no single retention period that applies to all electronic messages or communications.

Retention periods are determined by the content, nature and purpose of records, and are set based on

their legal, fiscal, administrative and historical values, regardless of the format in which they reside or

the method or device by which they are transmitted. Electronic communications, as with records in

other formats, can have a variety of purposes and relate to a variety of program functions and activities.

The retention of any particular electronic message will generally be the same as the retention for

records in any other format that document the same program function or activity.

(1) Email.

Agencies should develop and adhere to a formal, written email policy to ensure email is

managed consistently throughout the agency. The specific components or information

included in any agency’s policy will depend on the needs and circumstances of that

agency. The Department of State’s internal email is provided in Appendix G as an

example. This is the Department of State’s internal electronic mail policy and is

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provided as an example. This is not a statewide policy and applies only to the

Florida Department of State.

Acceptable ways to manage emails include:

 Folders/Individual Email Management. Sorting electronic communications such as

email into appropriate folders can help individual employees to manage these records

and to ensure that appropriate retention requirements are identified and met. That is,

just as file cabinets with folders are set up to house different sets of physical files and

employees know where to file paper records in those files, email files and folders can

be set up with the appropriate retention period designated for each of those files and

folders. This may be done with shared email folders as well. For example, an

employee could set up folders such as these:

Inbox

Information Request Records, GS1-SL #23

Fiscal Year 2018-2019

Fiscal Year 2019-2020

Fiscal Year 2020-2021

Correspondence: Administrative, GS1-SL #17

Fiscal Year 2018-2019

Fiscal Year 2019-2020

Fiscal Year 2020-2021

 Big buckets. The “big bucket” approach groups records in broad categories that

correspond to major activities, functions or work processes. Unlike a traditional

retention schedule, which may specify different retention periods for individual record

series associated with a given function, the records included in a big bucket category

have identical or similar retention requirements, and a uniform retention period is

applied to the entire category. The retention period is based on the longest retention

requirement for any record series covered by the category.

 Enterprise Email Management. With this approach, the agency controls email

storage and retention and establishes uniform storage periods for all agency email.

This can assist in dealing with unmanaged backlogs of emails and can facilitate ease

of management going forward. Here is how you can implement this approach in your

agency:

1) Determine if you keep the record copy of any long-term or permanent

records (over 10-year retention) in email form. It is likely that you do not –

for instance, you probably do not keep the record copy of official meeting

minutes, asbestos records, or personnel records in the form of email. If

you do keep the record copy of any long-term or permanent records in

email form, identify those emails and make sure they are secured and

backed up. If they do not need to be produced for litigation, you might want

to convert them to another format to ensure they remain accessible in the

future.

2) Of the remaining emails, determine what the longest retention period

would be. For instance, you probably have emails that fall under a number

of retention items, which may include records such as:

- Transitory Messages (OSA)

- Administrative Convenience Records (OSA)

- Administrative Support Records (OSA)

- Drafts and Working Papers (OSA)

- Subject/Reference Files (OSA)

- Information Request Records (1 FY)

- Attendance and Leave Records (3 FY)

- Correspondence and Memoranda: Administrative (3 FY)

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- Correspondence and Memoranda: Program and Policy Development (5 FY)

- HIPAA/Protected Health Information Records (6 AY from trigger date)

- Administrator Records: Agency Director/Program Manager (10 AY)

- Permits: Building (10 AY)

- Others?

3) Once you have determined what the longest retention would be for your

non-long-term/non-permanent emails, set that time period as your email

storage period. For instance, in the example above, the longest retention

is 10 anniversary years, so you would store all the emails for that period of

time and dispose of them as they reach the 10-year mark. By setting the

longest retention as your storage period, you will ensure that no records

are disposed of prematurely, although many will be retained much longer

than required. You could also establish different uniform storage periods

for different departments, as long as the selected storage period meets the

retention requirements of all of each department’s emails.

4) Before disposing of the emails, be sure that no record copy long-

term/permanent records are included and that records needed for litigation

holds or other purposes are not included in the purge.

 Email archiving. Email archiving generally refers to applications that remove email

from the mail server and store it in a central location also known as an archive.

Although email archiving applications may provide business benefits to an agency,

they can be limited in their capabilities to keep and organize records according to

records management laws, regulations, and policies.

Recordkeeping systems that include electronic mail messages, including email

archiving systems being used to store record copy emails, must:

 Provide for the grouping of related records into classifications according to the

business purposes the records serve.

 Permit easy and timely retrieval of both individual records and files or other

groupings of related records.

 Retain the records in a usable format for their required retention period and allow

their disposal when the retention is met.

 Be accessible by individuals who have a business need for information in the

system.

 Preserve the transmission and receipt data specified in agency instructions.

While email archiving applications offer business benefits, agencies are responsible for

ensuring the technology meets all the requirements of the public records laws and

rules.

 Printing emails. Printouts of email files are acceptable in place of the electronic files

provided that the printed version contains all date/time stamps, routing information, etc.

This information usually prints automatically at the top of each printed email and

includes name of the sender, names of all recipients (including To, CC and BCC),

date/time sent or received, subject line, and an indication if an attachment was present

(attachments should be printed and retained with the printed email). This can be

applied broadly to other types of electronic records that you are going to print and

retain only in paper form. Any metadata that is necessary to understanding the nature

and content of the record should be printed along with the record.

However, as indicated in the E-Discovery section, in the event of litigation or

reasonably anticipated litigation, existing records in electronic form must be

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maintained in their current electronic format until all legal discovery issues are

closed.

(2) Social media.

Postings on a website or social networking site that meet the definition of a public record

should be retained according to retention schedules based on the content, nature and

purpose of the posting.

Attorney General’s Opinion Number AGO 2009-19 (April 23, 2009) states the following

regarding Facebook pages established by a city – this will of course apply to any public

agency maintaining a Facebook page:

Since the city is authorized to exercise powers for a municipal purpose, the

creation of a Facebook page must be for a municipal, not private purpose. The

placement of material on the city’s page would presumably be in furtherance of

such purpose and in connection with the transaction of official business and thus

subject to the provisions of Chapter 119, Florida Statutes. In any given instance,

however, the determination would have to be made based upon the definition of

"public record" contained in section 119.11, Florida Statutes. . .

The city is under an obligation to follow the public records retention schedules

established by law. . .

Communications on the city’s Facebook page regarding city business by city

commissioners may be subject to Florida’s Government in the Sunshine Law,

section 286.011, Florida Statutes. Thus, members of a city board or commission

must not engage on the city’s Facebook page in an exchange or discussion of

matters that foreseeably will come before the board or commission for official

action. . .

It is the nature of the record created rather than the means by which it is created

which determines whether it is a public record. The placement of information on

the city’s Facebook page would appear to communicate knowledge. Thus, the

determination in any given instance as to whether information constitutes a public

record will depend on whether such information was made or received in

connection with the transaction of official business by the city. . .

Similarly, a 2009 Department of State’s General Counsel’s Office opinion states that “A

posting or comment to a state agency page on a social networking site is a public record

when the content of the posting or comment satisfies the definition of “public record” in

section 119.011(12), Fla. Stat. (2008) . . . those comments whose content falls within the

definition of public record must be retained by agencies in accordance with the appropriate

Division retention schedules.”

If you post a copy of a public record (such as the minutes of a meeting) to a website or

social networking site, it is not necessary to maintain that Web copy indefinitely as long as

you retain the record copy in your office in accordance with the applicable retention

schedule.

So, it is the nature, content and purpose of the record that will determine if it meets the

definition of public record and, if so, what the retention of that record would be. For

example, while some Twitter messages (“tweets”) might indeed be transitory messages,

other tweets might fall under other retention schedules, such as one of the

CORRESPONDENCE items, again depending on the content of the message. Just as with

public records in any other form, agencies will need to determine the appropriate retention

item based on the nature, content and purpose of the record and ensure that it is retained

for that time period.

One possible option when using Facebook or some other social networking technologies is

to disallow postings from outside sources, thus saving the agency the trouble of

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determining and implementing retention requirements for those outside postings. If outside

postings are allowed, the agency will need to find a way to ensure the appropriate retention

of those postings that are public records. We advise agencies to carefully consider public

records access and retention requirements, responsibilities and implications when

considering the use of any social networking technologies.

Social media “archiving” software may be employed to assist agencies in managing their

social media public records. Technology for social media archiving is constantly evolving,

and we cannot recommend or endorse any specific products, but listed below for your

convenience are some social media and web archiving products and services that you

might want to investigate:

 ArchiveSocial – widely used in government agencies, including some Florida

agencies.

 SMARSH – also widely used in government agencies, including some Florida

agencies.

 Archive-IT – used by many organizations, including a number of state archives, for

web archiving.

 Erado – an early entrant in the field; used by regulated industries (financial

institutions, financial management companies, etc.) as well as government

organizations.

 Social Feed Manager – an open-source tool used primarily by libraries and

archives to collect and provide research access to social media and web

resources.

 PageFreezer – used by financial, government, business and educational

institutions.

 Conifer (formerly Webrecorder) – an open-source tool for capturing interactive

copies of webpages.

F. Storage and maintenance of electronic records and media.

There is often a presumption that because information is stored in a computer or on some

digital storage medium (server, disc, tape, etc.), it is somehow automatically preserved for all

time. Unfortunately, electronic storage media can easily become unreadable over time due to

physical, chemical or other deterioration. Special care and precautionary measures must be

taken to avoid the loss of records stored on electronic media.

(1) Electronic storage media maintenance.

Rule 1B-26.003(11), Florida Administrative Code, specifies maintenance requirements for

electronic storage media.

 Preservation duplicates of permanent or long-term records shall be stored in an off-site

storage facility, which may include cloud storage, geographically separated from the

risks associated with the agency’s location, with constant temperature (below 68

degrees Fahrenheit) and relative humidity (30-45 percent) levels.

 Storage and handling of magnetic tape containing permanent or long-term records

must conform to the magnetic tape standard AES22-1997 (r2003), "AES

recommended practice for audio preservation and restoration - Storage and handling -

Storage of polyester-base magnetic tape," available from the Audio Engineering

Society, Incorporated, and at the Internet Uniform Resource Locator:

http://www.aes.org/publications/standards/search.cfm.

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 Agencies must annually read a statistical sample of all electronic media containing

permanent or long-term records to identify any loss of information and to discover and

correct the cause of data loss.

 Agencies must conduct data integrity testing on all media containing permanent or

long-term electronic records at least every 10 years and verify that the media are free

of permanent errors. More frequent testing (e.g., at least every 5 years) is highly

recommended. If a checksum was previously run on the digital media, testing can be

conducted by running the same checksum.

(2) Environmental controls.

 Electronic records storage media should be stored in a cool, dry, dark environment

(maximum temperature 73 degrees Fahrenheit, relative humidity 20-50 percent). See

section (1) Electronic storage media maintenance for environmental controls for

preservation duplicates of permanent or long-term records.

 Electronic records storage media must not be stored closer than 6 feet to sources of

magnetic fields, including generators, elevators, transformers, loudspeakers,

microphones, headphones, magnetic cabinet latches and magnetized tools.

 Electronic records on magnetic tape or disk must not be stored in metal containers

unless the metal is non-magnetic.

 Storage containers must be resistant to impact, dust intrusion and moisture.

 Compact disks must be stored in hard cases, and not in cardboard, paper, or flimsy

sleeves.

(3) Selecting storage media.

As specified in Rule 1B-26.003(10), Florida Administrative Code, agencies shall select

appropriate media for storing record copies of electronic public records throughout their life

cycle that meet the following requirements:

 Permit easy and accurate retrieval in a timely fashion.

 Retain the records in a usable format until their authorized disposition.

 When appropriate, meet the requirements necessary for transfer to the State

Archives of Florida.

Agencies should consider the following factors before selecting a storage media or

converting from one media to another:

 The authorized retention of the records.

 The maintenance necessary to retain the records.

 The cost of storing and retrieving the records.

 The access time to retrieve the stored records.

 The portability of the medium (can be read by multiple manufacturers’ equipment).

 The ability to transfer the information from one medium to another.

When storing permanent or long-term records, agencies must adhere to additional

standards. Long-term records are defined as those that have an established retention of

more than 10 years.

 Permanent or long-term records may be stored on hard drive (cloud-based or

internal), optical disc (preferably write-once discs with an inert dye layer), or on

polyester-based magnetic data tape.

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MANAGING ELECTRONIC RECORDS

 Agencies shall not use flash memory media (such as thumb drives, SD cards, CF

cards and micro-SD cards), floppy disks, audio cassette tapes or VHS video

cassette tapes for the storage of record copies of permanent or long-term records.

 Agencies shall use only previously unrecorded audio or video tape for record

copies of permanent or long-term audio or video recordings.

 Record copies of scanned images created by the agency from hard copy

permanent or long-term records must be stored in accordance with a published

International Organization for Standardization (ISO) open standard image format.

Published standards can be found at http://www.iso.org/iso/home.htm. Examples

of acceptable formats are TIFF, PDF and PDF/A.

(4) Using CDs and DVDs for storage.

CDs and DVDs are not recommended for storing the record copy of permanent or long-

term records. If you choose to use CDs and DVDs for storing short-term records, you

should understand their properties and limitations.

 The color of a CD/DVD indicates its quality. It is best to look for a gold or silver

CD/DVD; look at the color from the underside of the disk, not the top.

 To assure the highest quality of a CD-R, look for those manufactured using

phthalocyanine dye with gold or silver reflective layers. Do not use Azo- or (plain)

cyanine-dyed media.

 For DVD-Rs, use double-sided/single-layer with a gold reflective underside.

 Acquire new CDs/DVDs as they are needed. According to the Optical Storage

Technology Association (OSTA), the shelf life of unrecorded CD-R/DVD-R disks is

conservatively estimated to be between 5 and 10 years.

 Recorded CDs/DVDs can show a life expectancy of anywhere from as low as a

year or two to 25 or 30 years.

 We recommend testing your media at least every two to five years to assure your

records are still readable.

(5) Media conversion.

 Agencies must convert storage media to provide compatibility with the agency’s

current hardware and software to ensure that information is not lost due to

changing technology or deterioration of storage media.

 Before conversion of information to different media, agencies must determine that

authorized disposition of the electronic records can be implemented after

conversion.

(6) Cloud computing.

Cloud computing is a term that refers to accessing via the Internet computer resources that

are owned and operated by a service provider in one or more data center locations. Cloud

computing customers use resources as a service and pay only for resources that they use,

thereby avoiding capital expenditure on hardware and software. Services may include data

storage and management, software, and computing resources.

Agencies considering cloud computing should have a clear understanding of exactly what

the agency needs and what the service provider is offering. Records management

requirements apply to public records maintained in the cloud just as they do to records

stored on agency computers. Some of the issues that should be considered:

 Scope – What agency records will be stored, processed or accessed through the

cloud? Will they include confidential or exempt records?

Managing Florida’s Public Records

MANAGING ELECTRONIC RECORDS

 Access – How frequently and quickly will the agency need to retrieve records from

the cloud? What are the terms, costs and performance benchmarks for accessing

records?

 Retention – With cloud computing services, often multiple copies of the data are

stored on geographically-dispersed resources for data protection and access. How

will the vendor ensure destruction of all copies of records that have met their

retention?

 Location – It is not uncommon for the end-user to have no idea where their

information is stored or processed in the cloud. If agency records must be

maintained within jurisdictional boundaries, this requirement should be included in

the vendor contract.

 Legal/Policy Compliance – Cloud computing may not adequately address some

compliance issues such as those related to the Health Insurance Portability and

Accountability Act (HIPAA), the Sarbanes-Oxley Act of 2002, and the Payment

Card Industry (PCI) security requirements.

 E-Discovery – How will the agency ensure that it can comply with an e-discovery

order if some or all of its records are stored in the cloud?

 Interoperability – As with any information technology, it is important to ensure that

records are not trapped in a proprietary system in the cloud that will require

considerable expense or effort to remove it from that system or move it to another

system.

 Security – There is debate as to whether cloud services provide more or less

security than traditional IT infrastructure. Some argue that data is more secure

when managed internally, while others argue that cloud providers have a strong

incentive to maintain trust and as such employ a higher level of security.

Agencies considering cloud computing services should address these and related issues

up front. Have the provider demonstrate or describe in detail how they can meet all

agency requirements, and clearly delineate those functional and performance

requirements in the contract with the provider.

G. Electronic records backup for disaster recovery.

Backups are created and maintained SOLELY for disaster recovery and/or business continuity.

Backing up means to copy data and files onto stable media for use in restoring lost or

corrupted data and/or for recovery of operating systems or application files. Retention of

backups is based on each agency’s backup rotation schedule/protocol.

Backing up data or files is different from data archiving. Data archiving means to move less

active data and files to separate storage until retention requirements have been satisfied.

Retention of archived data is based on records retention requirements.

Data archiving is different from preserving and managing records that have long-term historical

research value – archival records in the traditional sense. Archival records are selected for

permanent preservation because they have been determined to have permanent or enduring

value. Archival records are often referred to as historical records, but their value can be

historical, administrative, legal or financial. See the Archives and Archival Records section for

more on this.

 Agencies must back up electronic records on a regular basis to safeguard against loss

of information due to equipment malfunctions, human error or other disaster. Additional

backups are strongly recommended for permanent and long-term records.

Managing Florida’s Public Records

MANAGING ELECTRONIC RECORDS

 Backup media should be stored in an off-site storage facility, which may include cloud

storage, geographically separated from the risks associated with the agency’s location.

 The storage environment for backup media must be maintained at constant

temperature (below 68 degrees Fahrenheit) and relative humidity (30-45 percent)

levels.

 If, for any reason (for instance, a disaster erases emails on your server), the only

existing copy of an item that has not met its retention period is on a backup medium,

the agency must ensure that the record on the backup is maintained for the

appropriate retention period. A backup containing record copies or the only existing

copies of records that have not passed their retention would have to be retained for the

length of the longest unmet retention period. It is strongly recommended that any such

records be restored to an accessible storage device from the backup to ensure that the

backup is not used as a records retention tool.

 Agency IT policies should establish, and agencies should adhere to, a regular cycle of

backup overwrites based on the agency’s operational, security and disaster recovery

needs.

 There is no retention schedule for backup tapes or other forms of data backup. As

discussed earlier, a backup tape or drive should be kept solely as a security precaution

and not to serve as the record copy or as a records retention tool. In the case of

disaster, the backup would be used to restore lost records. Agency records that have

not met their retention should not be disposed of based on the existence of a backup.

H. E-Discovery.

Electronic discovery (or e-discovery) refers to discovery in civil litigation of electronically stored

information, or ESI.

The Federal Rules of Civil Procedure (FRCP) do not require agencies to keep all of their

emails (or other electronic records) permanently. Courts expect organizations to produce

relevant ESI in the same electronic format in which the organization normally created or

maintained it for business purposes. Therefore, in the event of litigation or reasonably

anticipated litigation, existing records in electronic form must be maintained in their current

electronic format; printing them out or converting them to another format at that point might not

only be unnecessary, but also might be unacceptable to the court. If an agency has a print and

file policy for email, deletion of emails once printed must be suspended until all legal discovery

issues are closed.

Agencies can do the following to prepare for e-discovery:

 Have a formal, active records management program and policy that applies to all

records regardless of format.

 Maintain records inventories or other means of identifying and locating all agency

records.

 Ensure that retention schedules and all other retention requirements have been met

before disposing of records in any form, including electronic records.

 Properly document disposition of records.

 Have a formal procedure for placing a litigation hold on records in all formats that might

be relevant to anticipated, pending or ongoing litigation.

 Ensure regular consultation among agency legal staff, records management staff and

information technology staff.

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MANAGING ELECTRONIC RECORDS

Consultation between agency legal, records management and information technology staff is

critical to ensuring that appropriate policies and procedures are in place and all the key players

are familiar with their responsibilities relating to e-discovery and other records management

requirements. Agencies should always consult with their legal counsel to verify their legal

requirements for compliance with these and other rules of civil and criminal procedure.

I. Essential characteristics of electronic records and legal admissibility.

Managing and preserving electronic records can be challenging since they are easily revised,

deleted, or manipulated. If appropriate measures are not taken, the essential characteristics of

records can be altered or lost. Careful planning and system design are required to guarantee

that the essential characteristics of electronic records are both captured and maintained for the

lifetime of the record.

The essential characteristics of electronic records are:

Content - Information in the record that documents government business. Content can

be composed of numbers, text, symbols, data, images or sound. The information

content of a record should be an accurate reflection of a particular business

transaction or activity.

Context - Information that shows how the record is related to the business of the

agency and other records. Contextual information is crucial to the evidentiary function

of records. If a record lacks key information about its creator, the time of its creation, or

its relationship to other records, its value as a record is severely diminished or lost

entirely.

Structure – Appearance and arrangement of a record’s content and technical

characteristics of the record (e.g., file format, data organization, relationships between

fields, page layout, style, fonts, page and paragraph breaks, hyperlinks, headers,

footnotes). It is easier to preserve a record over time if it has a simple record structure.

It is also advisable to base record structure on open standards to avoid dependence

on a specific company or organization.

For records to serve as evidence, these three essential characteristics must be maintained.

Whenever one of the characteristics is altered, the ability of records to accurately reflect the

activities of an agency is diminished.

Legal admissibility concerns whether a piece of evidence would be accepted by a court of law.

If the authenticity and accuracy of the records can be demonstrated, then they will have

evidential weight; if a record does not hold evidential weight, it could potentially harm a case

being fought. There are two main elements that demonstrate authenticity of electronic records:

 The system’s ability to “freeze” a record at a specific moment in time.

 Maintenance of a documented audit trail.

J. Electronic records management training.

Agencies must provide for appropriate training for users of systems in which electronic records

reside, including training in the operation, care and handling of the equipment, software, media

used in the system, system security controls, and management of records. Training for staff

who create, edit, store, retrieve or dispose of records is a critical aspect of electronic records

management. Training should enable staff to identify electronic public records and understand

how those records are filed and safeguarded, procedures for editing records, and how to

dispose of records in accordance with legal requirements.

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MANAGING ELECTRONIC RECORDS

K. Electronic signatures requirements.

The statutory governance for electronic signatures is Florida’s Electronic Signature Act of

1996, Section 668.001-006, Florida Statutes, and Uniform Electronic Transaction Act, Section

668.50, Florida Statutes. In particular, the following sections may apply:

668.004 Force and effect of electronic signature. — Unless otherwise provided by law,

an electronic signature may be used to sign a writing and shall have the same force

and effect as a written signature.

668.50(7) LEGAL RECOGNITION OF ELECTRONIC RECORDS, ELECTRONIC

SIGNATURES, AND ELECTRONIC CONTRACTS. —

(a) A record or signature may not be denied legal effect or enforceability solely

because the record or signature is in electronic form.

(b) A contract may not be denied legal effect or enforceability solely because an

electronic record was used in the formation of the contract.

such provision.

(d) If a provision of law requires a signature, an electronic signature satisfies such

provision.

668.50(13) ADMISSIBILITY IN EVIDENCE. — In a proceeding, evidence of a record or

signature may not be excluded solely because the record or signature is in electronic

form.

In essence, unless otherwise specified by law or administrative rule, electronic signatures are

acceptable, including digital signatures. Agencies are advised to review Chapter 668, Florida

Statutes, as well as consult with their legal counsel for further guidance on this issue.

L. Professionally sealed documents.

Documents that have been sealed by professionals, such as building plans sealed by

professional engineers, can be scanned for retention purposes.

 Raised impression or embossed seals must be clearly visible after scanning. This can

be done by, for example, lightly shading with a pencil, rubbing the impression with

carbon paper or using an embossment inker.

 Agencies must maintain unaltered copies of professionally sealed records. Any

markups made by the agency should be done on a duplicate of the record. Each copy

must be retained according to its applicable retention schedule.

It is not necessary for agencies to follow standards established by the Board of Professional

Engineers. Their standards are for professional engineers, not governmental entities receiving

or approving plans.

Managing Florida’s Public Records

ADDITIONAL RECORDS MANAGEMENT INFORMATION

The Division of Library and Information Services has a Records Management website at

info.florida.gov/records-management/ providing general information, guidance and resources

regarding Florida public records. The website includes all current general records schedules as

well as information regarding retention scheduling and disposition, RMLOs, applicable statutes and

rules, disaster recovery and training opportunities.

The division also produces handbooks providing additional information on records management

topics. These handbooks, as well as other publications and forms, are available on the Records

Management website. Available handbooks include:

Managing Florida’s Public Records

Florida State Records Center Handbook

Public Records Center Facilities Guidelines

Records Storage and Facilities Guidelines for Archives and Historical Records

Repositories

Records Management Self-Evaluation Guide

Micrographics Handbook

See Appendix H for contact information for records management and archivist professional

organizations.

Managing Florida’s Public Records

ARCHIVES AND ARCHIVAL RECORDS

Archival records are selected for permanent preservation because they have been determined to

have permanent or enduring value. Archival records are often referred to as historical records, but

their value can be historical, administrative, legal or financial.

An archives is the agency, office or program responsible for collecting, preserving and making

available records determined to have archival value. “Archives” also refers to the building in which

an archival institution is housed and to the collections managed by the archives program.

Florida’s archival records are an invaluable source of information on the history and development

of the state, its government and the lives of its citizens. Archival records document and therefore

protect our rights and privileges as citizens and the responsibilities, duties and limitations of our

government. Archival records document the actions and decisions of our government, our personal

lives, our businesses and professions, our environment, and our society and culture. They are used

to provide information on the programs and functions of government, to prove ownership of

property and to document family history. Historical records need to be preserved because our

government is obligated to maintain them and because they tell us where we have been, offer

insights into where we are now and provide vision for our future.

Archivists and records managers work together to identify, select and preserve historical records.

Records managers, through the application of standard records management practices, ensure

that records and information are properly identified and managed in the office and that, through the

scheduling and disposition process, archival records are preserved.

Archivists consider a number of factors when appraising records to determine archival value. Age

and format are just two of these considerations. Records and information being created today can

have archival value equal to that of records created centuries ago. Similarly, information

maintained electronically can have archival value equal to that of records on paper or bound in a

volume. Key characteristics of records that justify their continued retention as archives include such

values as:

 Evidential value. The value of the evidence that records provide of the origins, structure,

functions and operations of the agency that created them.

 Informational value. The research or reference value of the information contained in the

records beyond their evidential value.

 Financial, legal and administrative value. The value of the records for the conduct of

current and future agency business.

 Intrinsic value. The value of records deriving from their association with a historical event

or person or from their unique physical format.

A. State Agencies.

The State Archives of Florida, a program of the Division of Library and Information Services,

serves as the central repository for the archives of state government. In the broadest sense,

the purpose of the State Archives of Florida is to preserve and make available the permanent

public and private records in its custody. The Archives’ specific mandate in Section 257.35,

Florida Statutes, authorizes the State Archives of Florida, Division of Library and Information

Services, to collect, preserve and make available for research the historically significant public

records of the state, as well as private manuscripts, local government records, photographs

and other materials that complement the official state records.

Title to any records transferred to the State Archives of Florida is vested in the Division of

Library and Information Services. Public records in the State Archives are available to the

public and the creating agency in accordance with Florida Statutes.

Managing Florida’s Public Records

ARCHIVES AND ARCHIVAL RECORDS

All public records transferred to the State Archives of Florida must be properly scheduled

through the Records Management Program as described in this handbook. Once the

scheduling process is complete, state agencies should contact the State Archives staff for

instructions and assistance in completing archival appraisal and, if appropriate, transfer of the

records to the Archives, including types of storage boxes to use, packing and labeling the

boxes, and documenting the records transfer (contact information is located at the end of this

section).

B. Local Agencies.

Some local government agencies and jurisdictions also have formal archives programs. Local

government archival records reflect and touch the lives of most citizens. Such records may

document property ownership, birth, death, marriage, school attendance, work, community

activities and relations, and many other aspects of our lives. The valuable information they

contain must be preserved and made available for people to use. There are many avenues a

local government can take to preserve and make available its archival records; not all need to

establish a formal archival program as found at the state and national level, although this is the

ideal approach.

The first step local governments should take to formally begin the process is to pass an

ordinance or resolution officially authorizing the operation of an archives program. This

demonstrates the local government’s commitment to preserving its historical records and

emphasizes the importance of this activity to managers, employees and the public. There are

several options a local government might consider when planning to care for its archival

records. Governments can:

 Establish an independent archives program, including an archives building and a staff

of professional archivists, with a recurring budget line item or other dedicated source of

funding. This option requires the largest amount of resources and commitment but will

best ensure the appropriate preservation of and access to the records.

 Create a multi-government archival program where several local agencies or

jurisdictions pool their resources to preserve and make available local historical

records. For example, the county Clerk of Court, Board of County Commissioners and

School Board could work together to form one archival program documenting the

county’s history, or a city and county could form a cooperative archives program.

 Incorporate an archives program into a comprehensive records management program.

Records centers can be adapted to store archival records and staff can receive basic

archival and preservation training to handle the archival records. The RMLO or another

individual can be given the archives responsibility and can serve as the point of contact

for researchers using the records. This option should include provisions for a proper

storage environment for the archival records and, if possible, for engaging the services

of at least one experienced professional archivist as an employee, consultant or

volunteer.

 Include the identification, preservation and availability of archival records as a part of

the government’s overall recordkeeping process. This option requires the records

custodian(s) to care for the records from creation to disposal or permanent retention.

Office records are identified, scheduled and maintained in the creating office, and

inventories are created to assist researchers in using the records. Office staff assist

researchers using the records. This option is useful for governments with few archival

records, such as school boards, and is economical in that existing office staff and

facilities are used to maintain the records.

Local governments interested in establishing an archives program are encouraged to contact

the Division of Library and Information Services for assistance. The division can provide

technical assistance and training in all areas of archives management including program

Managing Florida’s Public Records

ARCHIVES AND ARCHIVAL RECORDS

establishment, records identification and selection, access and public programs, general

preservation principles and program assessment.

For more information regarding archival records, contact the State Archives by phone at

850.245.6700 or by email at arc[email protected]yflorida.com.

Managing Florida’s Public Records

GLOSSARY

Active Records: Records that have sufficient administrative, fiscal, legal or historical value to

warrant their continued storage in an easily accessible area (e.g., office area).

Agency: “[A]ny state, county, or municipal officer, department, district, division, board, bureau,

commission or other separate unit of government created or established by law.” (Rule 1B-

24.001(3)(a), Florida Administrative Code)

Appraisal: The process of determining the value and thus the disposition of records based upon a

broad range of considerations, among them their current administrative, legal and fiscal use;

their long-term evidential and informational or research value; their arrangement; and their

relationship to other records.

Archives: An organization dedicated to the preservation of and access to records deemed to have

enduring historical significance. Usually an archives will accept, arrange and preserve such

records according to approved archival practices. See also State Archives of Florida.

Custodian: “[T]he elected or appointed state, county, district, or municipal officer charged with the

responsibility of maintaining the office having public records, or his or her designee.” (Rule 1B-

24.001(3)(b), Florida Administrative Code)

Disaster Preparedness: Policies and procedures for preventing, responding to, and assessing

and recovering from the damage resulting from a natural or man-made disaster or emergency,

including the systematic identification of those records that are vital to an agency’s purpose

and operations and a plan to protect such records. See also Vital Records.

Disposition: “[F]inal actions taken with regard to public records that have met all retention

requirements and are no longer needed for current government business as indicated in

General Records Schedules or Records Retention Schedules. Disposition may include either

destruction of public records or transfer of public records to the custody of another public

agency such as the Florida State Archives or a local government archives or records

repository.” (Rule 1B-24.001(3)(c), Florida Administrative Code)

Division: “[T]he Division of Library and Information Services of the Department of State.” (Rule 1B-

24.001(3)(d), Florida Administrative Code)

Drafts: Materials that constitute precursors of public records, have not been communicated or

circulated for review or comment and are not in themselves intended as final evidence of the

knowledge to be recorded. Information in a preliminary form that is not intended to perpetuate,

communicate or formalize knowledge of some type and that is fully represented in the final

product is a “draft” and not a “public record.” (Florida Supreme Court, Shevin v. Byron, Harless,

Schaffer, Reid, and Associates (379 So. 2d 633, Fla. 1980))

Duplicate (or Convenience) Records: Reproductions of record copies, prepared simultaneously

or separately, which are designated as not being the official copy.

Electronic Records: Any data or information that has been captured and fixed for storage and

manipulation in an automated system and requires the use of a system to render it intelligible

by a person. Electronic records include numeric, graphic, audio, video, and textual information

that is recorded or transmitted in analog or digital form such as electronic spreadsheets, word

processing files, databases, electronic mail, instant messages, scanned images, digital

photographs, and multimedia files.

Florida State Archives: See State Archives of Florida.

General Records Schedules: “[R]etention requirements established by the Division for public

records common to all agencies or specified types of agencies within the State of Florida

indicating the minimum time such records must be kept.” (Rule 1B-24.001(3)(g), Florida

Managing Florida’s Public Records

GLOSSARY

Administrative Code) See Appendix C for a complete list of Florida’s general records schedules

and information on obtaining them.

Inactive Records: Records that have lost some of their value or have been superseded by new

records but have not yet met all of their retention requirements. These records can be stored

off-site until final disposition. Sometimes referred to as “semi-active records.”

Intermediate Files/Processing Files: “[T]emporary electronic files used to create, correct,

reorganize, update, or derive output from master data files. Intermediate files are precursors of

public records, and are not, in themselves, public records which must be retained. Intermediate

files only exist provided a final product is subsequently generated which perpetuates,

communicates, or formalizes knowledge of some type. In the absence of such a final product,

processing files constitute final evidence of the knowledge to be recorded and shall not be

construed as intermediate files . . .” (Rule 1B-24.001(3)(h), Florida Administrative Code)

Public Records: “[A]ll documents, papers, letters, maps, books, tapes, photographs, films, sound

recordings, data processing software, or other material, regardless of the physical form,

characteristics, or means of transmission, made or received pursuant to law or ordinance or in

connection with the transaction of official business by any agency.” (Section 119.011(12),

Florida Statutes)

Record Copy: “[P]ublic records specifically designated by the custodian as the official record.”

(Rule 1B-24.001(3)(j), Florida Administrative Code)

Record Series: “[A] group of related public records arranged under a single filing arrangement or

kept together as a unit (physically or intellectually) because they consist of the same form,

relate to the same subject or function, result from the same activity, document a specific type of

transaction, or have some other relationship arising from their creation, receipt, or use. A

record series might contain records in a variety of forms and formats that document a particular

program, function, or activity of the agency.” (Rule 1B-24.001(3)(k), Florida Administrative

Code)

Records Center: A facility especially designed and constructed for the low-cost and efficient

storage of inactive records and the furnishing of reference service on inactive records pending

their final disposition.

Records Inventory: The systematic identification of records in an agency conducted to 1) facilitate

efficient management of, and access to, their records, and 2) to develop or identify appropriate

retention schedules for their records.

Records Management: The application of systematic controls to manage an agency’s records

throughout their life cycle from their creation, distribution, filing and use through their final

disposition, whether by destruction or permanent retention.

Records Management Liaison Officer (RMLO): The individual designated by the agency who

serves as a contact person to the division and is assigned records management

responsibilities by the Custodian. Section 257.36(5)(a), Florida Statutes requires all agencies

to designate an RMLO.

Records Retention Schedule: “[R]etention requirements established by the Division for public

records held by a specified agency within the State of Florida indicating the minimum time such

records must be kept.” (Rule 1B-24.001(3)(l), Florida Administrative Code) Agencies may

initiate the process by submitting to the division a Request for Records Retention Schedule,

Form LS5E-105REff.2-09.

Retention Period: The minimum period of time for which a record series must be retained before

final disposition, based upon the legal, fiscal, administrative and historical values of the record

series. In rare instances, a retention period might establish the maximum period of time to

retain records before they must be destroyed. Retention values are determined by the nature,

content and purpose of the record series and not by the physical format (e.g., paper, electronic,

microfilm) in which the series resides.

Managing Florida’s Public Records

GLOSSARY

Semi-Active Records: See Inactive Records.

State Archives of Florida: “[T]he program maintained by the Division for the preservation of those

public records and other papers that have been determined by the Division to have sufficient

historical or other value to warrant their continued preservation by the state and which have

been accepted by the Division for transfer to its custody.” (Rule 1B-24.001(3)(f), Florida

Administrative Code) See also Archives.

Supporting Documents: Public records assembled or created to be used in the preparation of

other records that are needed to trace or explain actions, steps and decisions covered in the

final or record copy.

Vital Records: Records that are essential to the operations of an agency and/or to protecting the

rights of individuals and that are needed in order to resume the critical business of the agency

after a disaster or emergency, regardless of whether they have a permanent, long-term or

short-term retention. Vital records should be identified during the records inventory process

and as part of a disaster preparedness program. See also Disaster Preparedness.

Managing Florida’s Public Records

APPENDIX A

Records Management Liaison Officer (RMLO) Designation Form

Please provide current information about your agency RMLO in the spaces below.

Agency Name:

Agency Mailing Address:

RMLO Name:

RMLO Email Address:

RMLO Mailing Address:

Telephone Number:

Authorizing Official Name:

Authorizing Official Title:

Authorizing Official Signature:

Date:

PLEASE RETURN TO:

State Library and Archives of Florida

Records Management Program

500 South Bronough Street

Mail Station 9E

Tallahassee, FL 32399-0250

Email: recm[email protected]yflorida.com

Managing Florida’s Public Records

APPENDIX B

Public Records and Freedom of Information Policy Sources

The Government-in-the-Sunshine Manual, compiled annually by the Office of the Attorney

General, is a comprehensive guide to Florida’s open government requirements and responsibilities,

including open meetings and public records. The Manual provides answers to many questions

regarding access to public records, including an extensive list of exemptions from disclosure. To

order a copy, contact the publisher at:

First Amendment Foundation

317 East Park Avenue, Lower Level

Tallahassee, Florida 32301

Main Office: 850.224.4555

Hotline: 850.222-3518

Toll-Free: 800.337.3518

Email: info@floridafaf.org

floridafaf.org

The Brechner Report is a monthly newsletter providing news and information regarding public

records, access and freedom of information issues. For more information, contact the publisher at:

Brechner Center for Freedom of Information

Post Office Box 118400

3208 Weimer Hall

University of Florida

Gainesville, Florida 32611-8400

Phone: 352.392.2273

Fax: 352.392.9173

brechner.org

The Office of Open Government provides advice regarding public records access issues to

assure full and expeditious compliance with Florida’s open government and public records laws.

For more information, contact the Office of Open Government at:

Office of Open Government

The Executive Office of the Governor

The Capitol

400 South Monroe Street

Tallahassee, Florida 32399-0001

Phone: 850.717.9248

Email: desantis.ope[email protected]yflorida.com

flgov.com/open_government

Managing Florida’s Public Records

APPENDIX C

Obtaining Schedules, Handbooks and Other Resources

The publications and resources of Florida’s Records Management Program are available on the

records management website at info.florida.gov/records-management. We recommend that you

consult these publications on the web to ensure that you are working with the most current

information. To control expenses, we do not print or stock quantities of these resources. However,

if you are unable to access these materials on the web, we can provide you with an individual copy.

Please complete and mail or email this form to:

State Library and Archives of Florida

Records Management Program

Mail Station 9E

Tallahassee, Florida 32399-0250

[email protected]yflorida.com

PLEASE CHECK THE ITEMS DESIRED

GS1-SL for State and Local Government Agencies

GS2 for Law Enforcement, Correctional Facilities and District Medical Examiners

GS3 for Election Records

GS4 for Public Hospitals, Health Care Facilities and Medical Providers

GS5 for Public Universities and Colleges

GS7 for Public Schools Pre-K-12 and Adult and Career Education

GS8 for Fire Departments

GS9 for State Attorneys

GS11 for Clerks of Court

GS12 for Property Appraisers

GS13 for Tax Collectors

GS14 for Public Utilities

GS15 for Public Libraries

Request for Records Retention Schedule (Form LS5E-105REff.2-09)

Managing Florida’s Public Records

Records Management Self-Evaluation Guide

Micrographics Handbook

Public Records Center Facilities Guidelines

Records Storage and Facilities Guidelines for Archives and Historical Records

Repositories

Chapter 119, Florida Statutes - Public Records

Chapter 257, Florida Statutes - Public Libraries and State Archives

Rule 1B-24, Florida Administrative Code - Public Records Scheduling and

Disposition

Rule 1B-26.0021, Florida Administrative Code - Microfilm Standards

Rule 1B-26.003, Florida Administrative Code - Electronic Recordkeeping

Name/Title:

Agency:

Address:

Managing Florida’s Public Records

APPENDIX D

Records Inventory Worksheet (two pages)

Fillable Worksheet form in PDF format available at info.florida.gov/records-management/forms-and-

publications/.

Managing Florida’s Public Records

APPENDIX D

Managing Florida’s Public Records

APPENDIX D

File Plan Form

Fillable File Plan form available at info.florida.gov/records-management/forms-and-publications/.

This is a sample file plan form and can be adapted to meet your agency’s needs. Feel free to add or

remove columns as needed. Additional columns can help further identify your records such as specific

names of individuals responsible for the records, legal requirement for the records, filing arrangement, or

comments.

Managing Florida’s Public Records

APPENDIX E

Request for Records Retention Schedule Form

Managing Florida’s Public Records

APPENDIX E

Completing the Request for Records Retention Schedule Form LS5E-105REff.2-09

The Request for Records Retention Schedule is a two-page form. Agencies will complete and

submit Page 1, available on our website at info.florida.gov/records-management/forms-and-

publications/. The Records Management Program will complete Page 2 as part of the Program’s

approval process.

STEP 1. NEW OR EXISTING SCHEDULE

In the upper right corner of Page 1, indicate if the proposed schedule is a new

schedule or a revision to an existing schedule. If a revision to an existing schedule,

indicate the existing schedule number.

STEP 2. AGENCY INFORMATION

In Sections 1-3, identify the agency, the custodian of the record series (name and

telephone number) and the contact person or RMLO (name, telephone number,

email and mailing address). The contact person should be the individual most familiar

with the record series being scheduled and is often the person completing the form.

STEP 3. RECORD SERIES INFORMATION

In Section 4, enter the title of the record series. The title should be a brief phrase

summarizing the form, function and/or subject of the records without using agency

jargon or abbreviations (see above under Inventory Procedures).

In Section 5, enter a description of the record series indicating the purpose and use

of the records, the type(s) of information or subject matter the records contain, if the

record series is considered a vital record in your agency (vital records are those that

are essential to the continuation of operations in an agency in the event of a disaster

or emergency) and any other information that would enable someone not familiar with

the record series to identify it and understand its contents and use.

In Section 6, indicate the primary purpose of the record series:

 Administrative value reflects use for general office operations and activities.

 Legal value means that the records may be used in or are often subject to

litigation; or a specific state or federal law (such as statute of limitations)

regulates the length of retention; or the records are significant documentation

of the legal rights or responsibilities of government or citizens.

 Fiscal value indicates that the records are needed for financial audit and/or

to document financial transactions of the agency such as budgets, payrolls,

procurements or payments.

Also, in Section 6, indicate if the record series is subject to audit in your agency.

Agencies need to be aware of any audit requirements relating to such records. See

Final Disposition of Public Records, subsection (2)(d) for information regarding

audits.

Finally, in Section 6, list and/or attach copies of any applicable local, state or federal

statutes, rules, regulations, ordinances, policies, etc., relating to creation or retention

of the records. Reference to specific sections of statutes or rules will expedite the

Records Management Program’s review and approval of your retention schedule and

will serve as supporting documentation should your agency’s authority to dispose of

the records ever be questioned.

STEP 4. RECOMMENDED RETENTION PERIOD

In Section 7, indicate your agency’s recommended retention for both the record copy

and for duplicates, based on your familiarity with the record series and its function in

your office. This should be the MINIMUM length of time the record series must be

retained to meet all administrative, legal and fiscal requirements (as discussed

Managing Florida’s Public Records

APPENDIX E

above) before it is eligible for disposition. A fourth value, historical/archival value, will

be reviewed and evaluated by the State Archives staff in consultation with your

agency.

The recommended retention is for the information contained in the records,

regardless of whether the records are kept in paper, electronic, microfilm or some

other format. Retention is based on the nature, content and purpose of the records

and not their physical format.

STEP 5. AUTHORIZATION

Section 8 is for the signature of the records custodian or their designee. This person

might be the RMLO or some other person with authority to approve disposition of the

agency’s records. The form will not be processed without this signed authorization.

STEP 6. SUBMIT THE REQUEST

When you submit your Request for Records Retention Schedule to the Records

Management Program, a records analyst will review the submitted information and

the recommended retention schedule for compliance with legal requirements and/or

any administrative or fiscal value the records might have. The analyst will also review

established retention schedules for similar records from other agencies for

consistency with existing retention practices. In many cases, the analyst will contact

the agency for additional information or clarification.

An archivist from the State Archives will then review the schedule to determine if the

records might have long-term historical or archival value. This helps to ensure the

preservation of significant and unique records documenting the operation of

government and the history of Florida and Floridians and thereby to protect the rights

and interests of the citizens of the state. If the records are determined to be archival

or potentially archival, the descriptive language will indicate this in the final, approved

retention schedule. In the event that state government records are of archival value,

the records should be transferred to the State Archives of Florida once all retention

requirements have been met or, for records scheduled as permanent, once they are

no longer in active agency use. Local government records having archival value may

be transferred to local government historical records repositories or loaned to other

local historical records repositories for preservation, provided they are maintained

under the public records access provisions of Chapter 119, Florida Statutes. Only a

very small percentage of an agency’s records are generally targeted for transfer to an

archives.

STEP 7. OFFICIAL RECORDS RETENTION SCHEDULE

Finally, the analyst will complete Page 2, which serves as the official retention

schedule. This page includes the schedule number and the final record series title,

description and retention requirements, and signatures of authorized division staff

and managers. The Records Management Program will retain the original signed

schedule and will provide a copy to the originating agency.

Should the analyst determine that the records covered by the requested schedule are

already covered under an existing retention schedule, or should the analyst be

unable to get sufficient explanatory information or justification for the schedule from

the originating agency, the analyst will disapprove the request and will return a copy

of the disapproved request to the agency.

Questions regarding the completion of the Request for Records Retention Schedule should be

addressed to the Records Management Program at 850.245.6750 or rec[email protected]yflorida.com.

Managing Florida’s Public Records

APPENDIX F

This is the Department of State’s internal records management policy and is provided as an

example. This is not a statewide policy and applies only to the Florida Department of State.

Department of State Records Management and Public Records Request Policy

1. Introduction

The records that Florida’s state and local government agencies keep in the course of carrying out

their duties and responsibilities are public records. Public records are different from records of

businesses and private organizations because Florida law requires public records to be readily

accessible and available to the public upon request. All employees must ensure that public

records in their custody are maintained and accessible as required by Florida law. Employees

and agencies do not have the authority to withhold records deemed “sensitive.” The only records

that can be withheld from public disclosure are those specifically designated by the Florida

Statutes as confidential or exempt. This policy will provide employees with the information

necessary to understand and carry out their public records responsibilities.

2. Purpose

The purpose of this policy is to provide Department of State employees with the information and

procedures necessary to understand and carry out their responsibilities under the Florida Public

Records Law, including:

a. The requirements for managing Department of State public records, and

b. The manner in which public records requests are to be processed to ensure that

responses to the requests are organized, inclusive, and in compliance with applicable

statutes and rules.

3. Scope

This policy applies to all Department of State employees, as well as publicly created advisory

boards and private organizations (such as Citizen Support Organizations), that have been

delegated the authority to perform some governmental function. This policy applies to all public

records of the Department of State, regardless of the medium in which they exist (i.e., paper,

electronic, or other).

4. Policy

It is the Department of State’s policy to ensure that public records in the Department’s custody

are maintained and managed as required by the Florida Public Records Law. This law provides

that all materials made or received by Florida’s state and local government agencies in

connection with their official business are public records.

It is also the policy of the Department of State to ensure that all public records in its custody that

are not exempt or confidential are open for inspection and copying by any person, for any reason,

at any reasonable time, under reasonable conditions, as required by the Florida Public Records

Law. Requested public records may not be withheld for any reason, except if the record or a

portion of the record is specifically designated under law as confidential or exempt from public

disclosure.

Managing Florida’s Public Records

APPENDIX F

The Department of State places a high priority on efficient, effective, and economical

management of public records to ensure that information is available when and where it is

needed, in an organized and efficient manner, and in an appropriate environment.

5. Authority

a. Sections 257.36(5)(b) and (6), 119.07, 119.011(12), and 119.021, Florida Statutes.

b. Rules 1-2.0031, 1B-24, 1B-26.003, and 1B-26.0021, Florida Administrative Code.

6. Definitions

a. “Confidential” means public records that have been identified in the Florida Statutes as

confidential. The information in these records is not subject to inspection by the public

and may be released only to the persons and entities designated in the statute.

b. “Department of State Individual Records Retention Schedule” means individual retention

schedules for records that are unique to the Department of State. The Department of

State individual records retention schedules are available on the Department’s Intranet at

http://dosintraweb/index.html.

c. “Exempt” means public records that have been identified in Chapter 119 or other

applicable Florida Statutes as exempt from public disclosure.

d. “GS1-SL” means the General Records Schedule GS1-SL for State and Local

Government Agencies, which is available at info.florida.gov/records-

management/general-records-schedules/.

e. “Inactive Records” means records which have lost some of their value or have been

superseded by new records, but have not reached their specified retention. Records that

are referenced less than once per month are usually considered inactive.

f. “Public record” as defined by section 119.011(12), Florida Statutes, means all

documents, papers, letters, maps, books, tapes, photographs, films, sound recordings,

data processing software, or other material, regardless of the physical form,

characteristics, or means of transmission, made or received pursuant to law or ordinance

or in connection with the transaction of official business by any agency.

g. “Record (Master) Copy” as defined in Rule 1B-24.001(3)(j), Florida Administrative Code,

means the public records specifically designated by the custodian as the official record.

h. “Record Series” as defined in Rule 1B-24.001(3)(k), Florida Administrative Code, means

a group of related documents arranged under a single filing arrangement or kept together

as a unit because they consist of the same form, relate to the same subject, result from

the same activity, or have certain common characteristics.

7. Procedures

a. Records Management: Records management entails retention, storage, disposition, and

all other record-keeping requirements and practices that support Department programs,

activities, operations, and accomplishments in order to best serve the public.

i. Organization and Maintenance:

Managing Florida’s Public Records

APPENDIX F

1. Public records shall be organized, arranged, and maintained using a

filing or record-keeping system that:

 Is appropriate to the nature, purpose, and use of the records.

 Can be easily understood by all users.

 Facilitates the location of and access to those records by all

users, when and where it is needed.

2. All records shall be stored on an appropriate media format to ensure

their preservation for the entire length of their required retention.

3. Inactive records can be boxed until the applicable retention period has

been met. Records shall be boxed according to the applicable records

series to facilitate disposal of the records in a timely manner.

ii. Inventory: Each division or office in the Department must maintain a current

inventory of all record series in their custody or control. The inventory can be in

any format at the discretion of each division or office, including, but not limited to,

one of the following methods:

1. Document each record series the office maintains in a Microsoft Word

document or Excel spreadsheet.

2. Highlight each applicable records series in the GS1-SL and the individual

records schedules.

iii. Records Retention Schedules: All records created and maintained by the

Department must have a records retention schedule approved by the Division of

Library and Information Services.

Many of the Department’s public records are covered by the General Records

Schedule GS1-SL for State and Local Government Agencies. The Division of

Elections may also use the General Records Schedule GS3 for Election

Records. The State Library of Florida may also use the General Records

Schedule GS15 for Public Libraries.

Any records not covered by general records schedules must have an individual

records retention schedule. To establish an individual records retention schedule,

contact the department Records Management Liaison Officer or your division

Records Coordinator (see Section 8) for assistance.

iv. Disposition: Each division or office in the Department must systematically

dispose of public records that have met their retention requirements and are no

longer needed.

1. The record holder or custodian must properly document disposition of

these records. A records disposition document form is available from the

Division of Library and Information Services’ Web site at

info.florida.gov/records-management/forms-and-publications/.

2. The Records Management Liaison Officer or Records Coordinator must

permanently retain the completed disposition forms.

Managing Florida’s Public Records

APPENDIX F

3. Records with retention of “retain until obsolete, superseded, or

administrative value is lost” (OSA) do not have to be documented when

disposed, except for records that have been microfilmed or scanned

where the microfilm or electronic version will serve as the record copy.

4. Records determined by the State Archives of Florida to have archival

value shall be transferred to the Archives in accordance with Archives

procedures.

v. Employment separation: When an employee separates from employment with

the Department, that employee’s electronic public records, including but not

limited to his/her computer user drive and email, shall be transferred to his/her

immediate supervisor or the supervisor’s designee for appropriate management,

retention, and disposition. Hard copy public records shall remain in the program

office for appropriate use, retention, and disposition by staff and/or managers of

that office.

vi. Employee separation within the Office of the Secretary: When a Secretary of

State separates, his/her electronic public records shall be transferred to the

Assistant Secretary of State or his/her designee.

b. Public Records Requests:

i. Request:

1. A public records request is a request to either inspect or copy, or both,

public records pursuant to Chapter 119, Florida Statutes.

2. There is no requirement that the request be made in person or in writing,

or be in any particular form.

3. The person making the request is not required to identify himself/herself,

or to provide information about the reason for the request or how the

records will be used.

4. The request must be clear enough to enable the agency to conduct a

meaningful search. The agency may ask questions about the request in

order to respond to the request fully and in a timely manner.

5. All requests should be directed to the appropriate division or office, with

one exception. Requests for Division of Elections records should be

directed to the Public Information Office in the Office of the

Secretary of State.

6. Reference requests to the State Archives of Florida are not considered

public records requests.

ii. Responding to the request:

1. Upon receipt of a request for public records by email, the Department

shall send an acknowledgment of receipt of the request to the requestor

via email within two business days. (See sample at Attachment A.) For

requests received by any other means, an acknowledgment letter is

necessary only if the request cannot be fulfilled within two days.

Managing Florida’s Public Records

APPENDIX F

2. The Department shall respond to all public records requests in a

reasonable time, taking into account the extent and nature of the

request. Within five business days of receipt of the request, the

Department must take one of the following actions:

 Send an invoice with a cover letter to the requestor outlining the

fees as calculated by section 7.b.iii, “Fees,” and the total amount

due. (See sample invoice and letter at Attachment B.)

 Notify the requestor of estimated costs and request payment in

advance if the nature or volume of the requested records will

require extensive use of information technology resources,

extensive clerical or supervisory assistance, or both, in addition

to the actual cost of duplication or production.

 Inform the requestor that the Department is working on their

request; give them an estimated time of completion and advise

them about any specific circumstances affecting completion of

the request.

 Inform the requestor that the requested materials do not exist or

are not in the custody of the Department.

3. Upon receipt of payment, the Department shall provide the requested

materials. If for any reason the materials cannot be provided within five

business days, the Department shall contact the requestor with an

estimated time of completion.

4. Certified Copies of Public Records:

 Certification Statement: When more than five pages of certified

copies are requested, a certification statement may be used,

instead of certifying each page. In this statement, which is a

cover page for the group of documents, the custodian certifies

that the copies provided are true and correct copies of the

originals. (See sample certification at Attachment C.)

 Page Certification: When each page of the record is requested to

be certified, the following statement shall be typed on each page,

either on the bottom or on the back of the page, depending on

where space is available, and signed by the custodian of the

records:

I, (insert name, title, and section), Florida Department of State,

hereby certify that this is a true and correct copy of the record of

the Florida Department of State.

Certified this (date) day of (month), (year).

_____________________________ Signature

5. The Department may not delay production of records. Records must be

produced within the time reasonably required to identify, collect, and

copy them for the requesting party. The Department must make a good

faith effort to satisfy the request promptly, consistent with available

resources and other priorities.

Managing Florida’s Public Records

APPENDIX F

6. The Public Records Law does not require the Department to generate or

create records not already in the Department’s custody in response to a

public records request. Records that are responsive to the public records

request that are available as of the date the request is fulfilled must be

provided, even if such records did not exist as of the date the request

was received.

7. Confidential or exempt records:

 If the requested records are confidential or exempt from public

disclosure by statute, the records may not be disclosed. The

Department must inform the requestor that the records are

exempt from disclosure and cite the applicable statute

establishing the exemption. (See sample letter at Attachment D.)

 If only part of the record is confidential or exempt, the

Department must redact that information and provide the

remaining record to the requestor. The most efficient method

should be used to redact information. One method of redacting is

to black out the exempt information on a copy of the original,

photocopying the marked copy, and providing the final

photocopy to the requestor. The marked copy may be destroyed.

Other methods are acceptable and may be used as long as the

confidential or exempt information is not released to the

requestor.

For questions or guidance regarding records exempt from disclosure,

contact the General Counsel’s Office.

8. The office responding to the request shall maintain the request,

acknowledgment, response, invoice, materials produced, or a record of

what was produced; any related correspondence; and receipt of

payment.

9. The Department shall not dispose of requested records for a period of 30

days after the date on which a request for the records was made. This

requirement is in addition to, and does not lessen, the obligation of the

Department to retain records pursuant to the otherwise required records

retention schedules.

iii. Fees

1. Fees may be paid by cash, check, or money order made payable to the

Florida Department of State.

2. Copies or certified copies of records shall be furnished upon payment of

the fee prescribed by Section 119.07(4), Florida Statutes:

 Up to 15 cents may be charged per one-sided copy of not more

than 14 inches by 8

inches.

 No more than an additional five cents may be charged for each

two-sided copy.

Managing Florida’s Public Records

APPENDIX F

 For all other copies, the actual cost of duplication may be

charged.

3. Other costs:

 $0.85 for each CD-ROM.

 $1.15 for each DVD.

4. Certified copies of public records shall be furnished upon payment of the

fees listed below:

 Per page certification. A charge of $1 per page shall be

assessed for each individually certified page. (Section 119.07(4),

Florida Statutes)

 Certification statement. Charge of $5 for the certification

statement plus any fees for copies calculated under section 2.

 The Division of Corporations shall furnish certified copies in

accordance with sections 608.452 and 620.1109, Florida

Statutes.

5. The cost of mailing or shipping the requested material may also be

added if the requestor asks that the material be delivered (instead of the

requestor picking up the material in person).

6. If the nature or volume of the public records requested to be inspected or

copied is such that it requires extensive use of information technology

resources or extensive clerical or supervisory assistance by personnel,

or both, in addition to the actual cost of duplication, a special service

charge may be assessed. This charge shall be reasonable and shall be

based on the actual cost incurred for information technology resources

and/or the labor cost of the clerical and supervisory personnel providing

the service. (Section 119.07(4)(d), Florida Statutes)

The requestor shall not be charged for the first 30 minutes expended to

fulfil the request; the extensive use charge shall be calculated after the

first 30 minutes.

7. When records can be sent by email, the Department will do so in the

interest of efficiency and to minimize costs. In these cases, the

Department will charge only for extensive time, if applicable. If the

records must be placed on CD, DVD, or other media because they are

too voluminous to email or because the requester does not want them

sent by email, the costs of the media provided to the requester will be

recovered.

Managing Florida’s Public Records

APPENDIX F

8. The wage expense portion of public records special service charges

shall be calculated based on the following formulas

Public Records Special Service Charge ═

(Hourly Base Rate of Pay + Hourly Value of Benefits) X Number of Hours

Worked

Hourly Base Rate of Pay ═

Annual Base Rate of Pay (or Monthly Base Rate X 12 or Biweekly Base

Rate X 26)

2080 Hours (# work hours per year)

Hourly Value of Benefits for Career Service and Select Exempt ═

Hourly Base Rate of Pay X Benefit Factor

9. Upon receipt of payment, fees should be processed according to the

revenue receipt procedures of the division or forwarded to the Support

Services Administrator in the Office of Support Services.

10. Notwithstanding what is stated herein, no charges will be assessed

against the requestor if the cost of production is less than $5.00.

8. Records Management Liaison Officer and Records Coordinator

The Department’s Records Management Liaison Officer (RMLO) is designated by the Secretary and

serves as the department’s contact for records management. In addition, each division shall appoint a

Records Coordinator who will be the RMLO’s records contact for that division. Address all questions,

issues, or concerns relating to records in the Department to the RMLO or Records Coordinator.

Contact the Secretary of State’s Office or the applicable division director’s office for current

designations or appointments.

9. Violation

Violation of this policy may result in disciplinary action, up to and including termination of

employment.

Approved by:

________________________________ ___________________

Secretary of State or Designee Date

This charge is authorized by Section 119.07(4)(d), Florida Statutes, and Department of State Rule 1-

2.0031(2)(a), Florida Administrative Code, which is entitled "Public Records Requests: Special Service

Charge."

The first two formulas (for calculation of hourly rates of pay) are derived from DMS Rule 60L-32.002,

Florida Administrative Code, which is entitled "Computation of Hourly Rate."

The benefit factor (in the third formula) is based on expenditures in the Department's Salary and

Benefits appropriation category, and is calculated by dividing the salary expenditures by the benefit

expenditures. This factor may be obtained from the Department's Bureau of Planning, Budget and

Financial Services.

Managing Florida’s Public Records

APPENDIX F

Records Management and Public Records Request Policy

Attachment A

(Acknowledgement Letter – Use Agency Letterhead or send by email)

(Date)

(Requestor’s Name)

(Requestor’s Address)

RE: Acknowledgement of Public Records Request

Dear (Insert name of requestor):

We have received your public records request. Your request will be processed in accordance with the

Florida Public Records Law. You will be advised as soon as possible regarding estimated costs. Payment

will be due in advance by cash, check, or money order made payable to the Florida Department of State.

If you have any questions, you may contact me at (insert telephone number) or by email at (insert email

address).

Sincerely,

(Name)

(Title)

Managing Florida’s Public Records

APPENDIX F

Records Management and Public Records Request Policy

Attachment B

(Invoice Cover Letter – Use Agency Letterhead)

(Date)

(Requestor’s Name)

(Requestor)

RE: Public Records Request

Dear (Insert name of requestor):

Please find enclosed an invoice for your public records request. Upon payment of the invoice amount, we

will provide you with copies of the records. Please make your check or money order payable to the

Florida Department of State and send it to _________________.

Please let me know if I may be of further assistance.

Sincerely,

(Name)

(Title)

Enclosure

Managing Florida’s Public Records

APPENDIX F

Records Management and Public Records Request Policy

Attachment B

(Use Agency Letterhead)

INVOICE

INVOICE NO: (Insert invoice number)

DATE: (Insert date)

To: (Requestor’s Name)

(Requestor’s Address)

QUANTITY

DESCRIPTION

UNIT PRICE

AMOUNT

SUBTOTAL

SHIPPING & HANDLING

TOTAL DUE

Make checks or money orders payable to: Florida Department of State

If you have any questions concerning this invoice, call: (Insert name and phone number).

Managing Florida’s Public Records

APPENDIX F

Records Management and Public Records Request Policy

Attachment C

(Certification Statement – Use Agency Letterhead)

I, (insert name, title, and section), Florida Department of State, hereby certify that the attached are true

and correct copies of (insert description of public records, including the number of pages), and that I am

the official custodian of the records.

CERTIFIED this (date) day of (month), (year).

BY:____________________________________________

(Insert name)

(Insert title)

(Insert section/office and division)

Florida Department of State

Managing Florida’s Public Records

APPENDIX F

Records Management and Public Records Request Policy

Attachment D

(Response Letter for Confidential/Exempt Records – Use Agency Letterhead)

(Date)

(Requestor’s Name)

(Requestor’s Address)

RE: Public Records Request

Dear (Insert name of requestor):

Please find enclosed the materials related to your request for public records.

Some of the material contains information that is confidential or exempt from public disclosure in

accordance with Florida Statutes. (Provide the reason and statutory authority for all redactions, e.g., all

social security numbers have been redacted per Section 119.071(5)(a)3, Florida Statutes.)

If you have any questions, you may contact me at (insert phone number) or by email at (insert email

address).

Sincerely,

(Name)

(Title)

Managing Florida’s Public Records

APPENDIX G

This is the Department of State’s internal electronic mail policy and is provided as an

example. This is not a statewide policy and applies only to the Florida Department of State.

Department of State Email Policy

Florida Department of State

ELECTRONIC MAIL POLICY

1. Scope

This policy provides guidelines for the management and usage of electronic mail (email)

messages as public records within the Florida Department of State (“Department”). This policy

applies to the entire Department workforce with access to the Department’s email system

including all offices, divisions, bureaus, advisory bodies, and contract agents of the Department

in the conduct of their official duties as prescribed by law.

This policy does not provide specific procedures for system backups or “archiving” of inactive

email. Employees should refer to internal Department operating procedures for this

information.

2. Purposes

The purposes of this policy are to:

a. Ensure that Department employees comply with Florida’s Public Records Law, Chapter

119, Florida Statutes, when using the Department’s email system;

b. Ensure that Department employees properly manage and retain email as public records in

accordance with applicable records management statutes and rules; and

c. Ensure proper usage of the Department's email system and that users understand the

types of email usage that are considered inappropriate and a violation of this policy.

3. Authority

a. Chapters 119, 257, and 282, Florida Statutes;

b. Rules 1B-24 and 60DD-2, Florida Administrative Code.

4. Definition of Email

Email is the electronic transfer of information, typically in the form of electronic messages,

memoranda, and attached documents, from a sending party to one or more receiving parties

by means of an intermediate telecommunications system.

5. Email as a Public Record

a. Email which is created or received by a Department employee in connection with the

transaction of official business of the Department is considered a public record and is

subject to inspection and/or copying in accordance with Chapter 119, Florida Statutes, and

is subject to applicable state retention laws and regulations, unless expressly exempted by

law.

b. Emails created or received for personal use are not generally considered public records

and do not fall within the definition of public records by virtue of their placement on a

government-owned computer system. However, if the Department discovers misuse of the

email system, personal emails that are identified as being in violation of Department policy

may become public record as part of an investigation.

Managing Florida’s Public Records

APPENDIX G

Department of State Policies and Procedure

Electronic Mail Policy

Page 2 of 4

c. The Florida Statutes contain numerous specific exemptions to the access and inspection

requirements of the Public Records Law. Employees are responsible for ensuring that

electronic public records which are exempt from access or inspection by statute are

properly safeguarded.

6. Use of Email System

a. The Department's email system is to be used to conduct official Department business and

is not to be used for any other purpose unless expressly approved by authorized

Department officials. Email may be used to communicate with Department staff and with

other public and private entities to conduct official Department business.

b. Incidental, personal use of the email system is permitted; however, the personal use must

be brief, must not interfere with the employee's work or the work of others, must not

subject the Department to any additional cost, and must not be prohibited by this policy or

any federal, state or local law, statute, ordinance, rule or regulation.

7. Prohibited Uses of Email

The Department's email system shall not be used for any unauthorized purpose including, but

not limited to:

a. Sending solicitations including, but not limited to, advertising the sale of goods or services

or other commercial activities, which have not been approved by the Department.

b. Sending copies of documents in violation of copyright laws or licensing agreements.

c. Sending information or material prohibited or restricted by government security laws or

regulations.

d. Sending information or material which may reflect unfavorably on the Department or

adversely affect the Department’s ability to carry out its mission.

e. Sending information or material which may be perceived as representing the Department’s

official position on any matter when authority to disseminate such information has not been

expressly granted.

f. Sending confidential or proprietary information or data to persons not authorized to receive

such information, either within or outside the Department.

g. Sending messages or requesting information or material that is fraudulent, harassing,

obscene, offensive, discriminatory, lewd, sexually suggestive, sexually explicit,

pornographic, intimidating, defamatory, derogatory, violent or which contains profanity or

vulgarity, regardless of intent. Among those which are considered offensive include, but

are not limited to, messages containing jokes, slurs, epithets, pictures, caricatures, or other

material demonstrating animosity, hatred, disdain or contempt for a person or group of

people because of race, color, age, national origin, gender, religious or political beliefs,

marital status, disability, sexual orientation or any other classification protected by law.

h. Sending messages or requesting information reflecting or containing chain letters or any

illegal activity, including, but not limited to gambling.

i. Sending or requesting information or material that proselytizes or promotes a religious or

political view, cause, position or action.

Managing Florida’s Public Records

APPENDIX G

Department of State Policies and Procedure

Electronic Mail Policy

Page 3 of 4

8. No Right of Privacy

Department employees have no right of personal privacy in any material created, stored in,

received, or sent over the Department’s email system. The Department reserves and may

exercise the right, at any time and without prior notice or permission, to intercept, monitor,

access, search, retrieve, record, copy, inspect, review, block, delete and/or disclose any

material created, stored in, received, or sent over the Department’s email system for the

purpose of protecting the system from unauthorized or improper use or criminal activity.

9. Retention Requirements for Email

a. All public records must have an approved retention schedule in place before they can be

destroyed or otherwise disposed of. Retention periods are determined by the content,

nature and purpose of records, and are set based on their legal, fiscal, administrative and

historical values, regardless of their form. Therefore, there is no single retention schedule

that would apply across the board to all emails. Email, like other records, irrespective of its

form, can have a variety of purposes and relate to a variety of program functions and

activities. The retention period of any particular email message will generally be the same

as the retention for records in any other form that document the same program function or

activity.

b. Department employees are required to relate each email that is created or received by the

employee through the Department's email system to the activity it documents, as well as to

other records documenting that activity, and apply the appropriate retention period based

on that activity or function. Approved retention schedules for State Government Agencies

can be found at http://dlis.dos.state.fl.us/recordsmgmt/gen_records_schedules.cfm.

c. It is the responsibility of each Department employee to ensure that email and other public

records in their custody are maintained for the required retention period(s). Although the

Department routinely backs up its servers, each backup is maintained only briefly for

disaster recovery purposes and therefore cannot be regarded as a tool for meeting public

records retention requirements.

10. Transitory Messages

Many, though not all, emails fall under the retention schedule for "TRANSITORY MESSAGES"

(General Records Schedule GS1-SL for State and Local Government Agencies, Item #146).

"Transitory Messages" are messages that do not set policy, establish guidelines or procedures,

certify a transaction or become a receipt. For instance, an email message notifying employees

of an upcoming meeting would only have value until the meeting has been attended or the

employee receiving the message has marked the date and time in the calendar. The informal

nature of transitory messages might be compared to a telephone conversation or a

conversation in an office hallway. The retention requirements for Transitory Messages is

"Retain until obsolete, superseded or administrative value is lost." Therefore, emails that fall

into this category can be disposed of at any time once they are no longer needed.

11. Managing Email

Sorting email into appropriate personal folders is a helpful way to manage these records and to

ensure that appropriate retention requirements are identified and met. That is, just as file

cabinets are set up to house different sets of files and employees know where to file paper

records in those files, email files and folders can be set up with the appropriate retention period

designated for each of those files and folders. If no retention schedule exists for records

relating to a particular activity, then one must be established and that retention schedule would

then apply to all documentation of that activity, regardless of form (paper, film, electronic, etc.).

Managing Florida’s Public Records

APPENDIX G

Department of State Policies and Procedure

Electronic Mail Policy

Page 4 of 4

12. Violations

Violations of this policy may result in disciplinary action, up to and including termination of

employment.

APPROVED BY:

(Original Signature on File)

Dawn Roberts

Assistant Secretary of State/Chief of Staff

Date Approved: 4/18/07

This policy amends the Department’s Email Policy dated June 30, 2005, to update references to

the General Records Schedule in Section 10.

Managing Florida’s Public Records 
76 
APPENDIX H 
Professional Organizations 
ARMA International 
(formerly the Association of Records Managers and Administrators Inc.) 
11880 College Blvd., Suite 450 
Overland Park, Kansas 66210 
Phone: 913.444.9174 / Toll free: 844.565.2120 
Fax: 913.257.3855 
Email: headquarters@armaintl.org 
arma.org 
National Association of Government Archives and Records Administrators (NAGARA) 
444 N. Capitol Street, NW, Suite 237 
Washington, D.C. 20001 
Phone: 202.508.3800 
Fax: 202.508.3801 
Email: info@nagara.org 
 nagara.org 
Association for Information and Image Management (AIIM) 
1100 Wayne Avenue, Suite 1100 
Silver Spring, Maryland 20910 
Phone: 301.587.8202 / Toll free: 800.477.2446 
Fax: 301.587.2711 
Email: aiim@aiim.org 
aiim.org 
Society of American Archivists (SAA) 
17 North State Street, Suite 1425 
Chicago, Illinois 60602-4061 
Phone: 312.606.0722 / Toll free: 866.722.7858 
Fax: 312.606.0728 
archivists.org 
Society of Florida Archivists (SFA) 
Post Office Box 5645 
Tampa, Florida 33675 
Email: societyoffloridaarchivists@gmail.com 
 florida-archivists.org 
Florida Records Management Association (FRMA) 
5004 E. Fowler Avenue, Suite C-338 
Tampa, Florida 33617 
Email: contact@frma.org  
frma.org 