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E-mail Management Knowledge and Recordkeeping Behaviours of
New Zealand Public Servants
Miriam Lips, Anita Rapson, Tony Hooper,
Victoria University of Wellington, Wellington, New Zealand
Miriam.Lips@vuw.ac.nz
Anita.Rapson@vuw.ac.nz
Tony.Hooper@vuw.ac.nz
Paper presented at the 4th International Conference on E-Government, RMIT University, Melbourne,
Australia, 23-24 October 2008
Abstract
Throughout the world, governments have realised that a proper audit trail of decision making and
policy formulation is essential to the democratic process. These processes must be able to stand up to
scrutiny in the form of media and opposition challenges. Effective recordkeeping is essential for
balancing the executive, judicial and legislative functions of government. In an age of increasing
"access to information" as part of the democratic process, good recordkeeping is needed to guarantee
proper procedural processes and to insure all sectors of government against litigation. This means
that provisions must be made for the justifiable retention as well as destruction of records, as well as
clear accountability for who can make those decisions and under what circumstances.
These principles become more complicated as a result of the adoption and use of Information and
Communication Technologies (ICTs) for public service provision and policy development. Managing
the emerging electronic information environment according to record management legal and policy
requirements is made even more complex when much of the decision making relating to the process
is undertaken by individual public officials throughout all levels of organisations. How they identify and
manage records of significant value to their organisation can have immediate as well as long-term
implications for government and democracy.
This paper presents the research findings of a recent online survey examining how individual
employees across the New Zealand Central Government identify and manage e-mail records of
significant value to the business of government. A total of 562 survey responses from e-mail users
employed at twenty eight New Zealand Public Service Departments were obtained and analysed. The
results show that the majority of respondents perceive the use of e-mail as critical to their work.
However, there is no standard or consistent approach among public servants in managing business-
related e-mail messages. Moreover, there are substantial knowledge and information gaps among
public servants with regard to how to manage business-related e-mails of significant value.
Keywords
Electronic Mail; Recordkeeping; New Zealand central government; E-mail management; public
servant.
1. Introduction
Throughout the world, governments have realised that a proper audit trail of decision making and
policy formulation is essential to the democratic process. In an age of increasing "access to
information" as part of this democratic process, the provision of effective recordkeeping has become
crucial for guaranteeing proper procedural processes and insuring government organisations against
litigation. In effect, this means that, besides developing policies about what records must be kept,
provisions must be made for the justifiable destruction of records as well as for establishing clear
accountability for who can make those decisions and under what circumstances.
These principles become more complicated as a result of the adoption and use of Information and
Communication Technologies (ICTs) for public service provision and policy development. In
government departments throughout the world, many e-mail messages contain information vital to the
business of government and therefore need to be managed in accordance with policy, legal and
democratic requirements. Managing the emerging electronic information environment in accordance
with these requirements is made even more complex when much of the decision making relating to
the process is undertaken by individual public officials throughout all levels of organisations. How they
identify and manage records of significant value to their organisation can have immediate as well as
long-term implications for government and democracy.
Unfortunately, there is little empirical evidence available on how individuals in government
organisations manage e-mails (Meijer 2006; Rocheleau 2002). In this paper, we will present research
findings of a recently undertaken online survey towards e-mail recordkeeping knowledge and
behaviour of individuals employed at New Zealand central government departments.
2. Theoretical assumptions on individuals’ e-mail recordkeeping
E-mail has become an indispensable communication and information tool for public servants in
managing both their internal relationships with colleagues as well as external relationships with
members of the general public. Nowadays for instance, e-mail is used to send and receive messages;
manage to-do lists, tasks, reminders, and contacts; as well as for its diary management and archiving
functionality (e.g. Renaud, Ramsay, and Hair 2006). In so-doing, e-mails can become official records
of a public sector organisation according to government and archival agencies (e.g. Archives New
Zealand 2006a; Digital Preservation Testbed 2003; Library and Archives Canada 2006; National
Archives of Australia 2007), as well as to the International Organization for Standardization (2001).
However, as traditional methods of official recordkeeping are not always applicable to emerging online
environments (Winget, Chang, and Tibbo 2006), e-mail users may be confronted with new
organisational rules, regulations and policies with regard to electronic recordkeeping and
management. With that, important questions emerge about e-mail recordkeeping knowledge and
behaviour of individual e-mail users in public sector organisations.
So far, there is little scientific knowledge available on how individuals identify and manage their e-
mails (e.g. Winget, Chang, and Tibbo 2006; Rocheleau 2002). Available research however
demonstrates that, due to the rapidly increasing quantities of e-mails that are delivered to people each
day, many individual users have designated e-mail as a personal information management tool
(Ducheneaut and Bellotti 2001). Interestingly also, research among corporate e-mail users in
Singapore found that the majority of respondents manages e-mails of critical business value in
personal information management systems, such as in personal folders on their own computer
systems, and in personal paper-based files in printed form (Seow, Chennupati & Foo, 2005).
These empirical insights suggest that, in the context of their roles as employees at New Zealand
central government departments, e-mail users apply their personal information needs when they are
identifying and managing e-mail messages. As a result, an appropriate theoretical lens for this
research appears to be offered by the so-called Personal, Anticipated Information Need (PAIN) theory.
This theory hypothesises that the anticipated need of information by individuals drives their personal
information collecting behaviour. The following propositions form the basis for the PAIN theory (Bruce
2005):
▪ Personal, anticipated information need is triggered by information events
▪ Individuals have different sensitivity and reactions to their personal, anticipated information needs
▪ Personal, anticipated information need predicts, but does not guarantee, future information
usefulness
▪ Personal, anticipated information need informs the investments and valuations that underpin the
processes of personal information collection
▪ Sensitivity to personal, anticipated information need is a critical component of information literacy
In this research project, we have understood the personal, anticipated information need of a public
servant as an individual’s need to identify and manage e-mail messages as official government
records appropriately: that is on the basis of their professional role and in anticipation of future
information requirements within and to government. Applying PAIN theory to a government context,
existing legal, democratic and managerial frameworks is likely to influence the personal, anticipated
information need of a public servant for identifying and managing e-mails critical to the business of
government, Existing regulatory frameworks for public recordkeeping in New Zealand, i.e. the New
Zealand Public Records Act (2005), offer guidelines and information to government organisations for
identifying and managing official government records. The New Zealand Public Records Act (2005)
sets out two fundamental duties for organisations. Firstly, all agencies must create and maintain full
and accurate records of their activities. These records must therefore be accessible over time and
maintained in a recordkeeping system. Secondly, no person may dispose of, or authorise the disposal
of, records without prior approval from the Chief Archivist.
Moreover, generally for government organisations, the basis of an effective recordkeeping framework,
particularly in relation to emerging electronic records like e-mail, is a recordkeeping policy that
mandates what employees are to do with electronic records, including e-mail messages, beyond
acceptable use statements (Enneking 1998). Recordkeeping policies that encompass e-mail
recordkeeping should include the following characteristics (McLeod & Hare, 2006):
▪ identification of e-mail records
▪ naming conventions, filing and maintenance – when, where and not to capture them
▪ e-mail threads and attachments
▪ copies of messages
▪ retention
▪ security and encryption
▪ preservation, and
▪ responsibilities.
According to McLeod and Hare (2006), besides a recordkeeping policy with clearly identified roles and
responsibilities, organisations should provide further guidelines with practical recordkeeping advice to
individuals on what to do. Moreover, organisations should provide a system for managing those e-mail
messages that have been identified as official records and need to be retained by the organisation. In
their view these provisions can offer further support to individuals in managing e-mails effectively in
accordance with their organisation’s requirements,
In New Zealand, the number of government agencies with recordkeeping frameworks and policies is
increasing. The 2007 Government Recordkeeping Survey, facilitated by Archives New Zealand
(2007), found that 70 percent of responding New Zealand government departments has policies and
procedures in place to assess their compliance with the New Zealand Public Records Act 2005. While
it is not clear from this study whether policies and programmes address e-mail recordkeeping
specifically, these findings indicate a substantial increase since the 2006 survey when only 46 percent
of respondents indicated they have such policies and procedures: New Zealand government
departments appear to become increasingly aware of their responsibilities to set in place policies and
frameworks for effectively managing government records.
However, while public servants may be aware of their electronic recordkeeping obligations as set by
their organisation’s recordkeeping policy, they also may struggle to apply these guided practices at
their desk. This assumption is based on research undertaken by Seow, Chennupati, and Foo (2005)
who found that, although the majority of organisations have established adequate and appropriate
written e-mail policies and guidelines that recognise e-mails as important business records, with 85
percent of responding employees being aware of their organisation’s e-mail policy and guidelines, the
majority of respondents continued to manage e-mails in personal information management systems
(Seow, Chennupati, and Foo 2005). These findings suggest a gap between recordkeeping policy
knowledge and actual recordkeeping behaviour of individual e-mail users. The question is if, and if so
to what extent, this gap exists in New Zealand public sector organisations.
3. Research methodology
We developed an online survey to explore empirically those methods used by employees within New
Zealand central government departments to manage their e-mail accounts. Because New Zealand
central government departments have substantial dealings with the public through public service
provision, and must comply with the Public Records Act (2005), the scope of the research was
restricted to government employees working in those agencies. To gain empirical insights into the
variety of e-mail management methods and behaviours deployed by these employees, the project
team selected an online survey method. This mode of data collection provides relatively easy access
to an ‘unknown’ population, a low unit cost of data collection, and potential high speed of returns. An
online survey instrument, being self-administered and computer-assisted, allows respondents time for
thoughtful answers and the ability to check responses (Creswell 2003; Fowler 2002).
The names and/or contact details of New Zealand central government employees are not publicly
available, so a non-probabilistic, snowball sampling method was employed. After seeking approval
from the 35 New Zealand central government department Chief Executive Officers for their
employees’ involvement in our research, we invited Records Managers at these departments to
disseminate to individual agency staff members an e-mail providing the link to the online survey.
Simultaneously, the project team arranged for the publication of an invitation, including a link to the
online survey, on the New Zealand Public Sector Intranet inviting central government employees to
participate in the research. We did not perceive the restriction of recruiting survey respondents among
e-mail and Internet users as a constraint to our research.
The online survey was available between mid February 2008 and early May 2008. Unfortunately, we
did not receive any responses from seven Public Service departments – only 28 departments
responded. On the other hand, three of the departments who employ 8% of total Public Service
Department employees (State Services Commission 2007) accounted for 45% of all received
responses. From a total potential population of 40,445 individuals employed at the 28 responding
departments (State Services Commission 2007), we received 562 responses. The project team
rejected 46 of these, as the respondents had completed less than 80% of the survey questions.
Consequently, the project team used 516 responses (92% of received responses) in the analysis of
the survey findings. These limitations to our study lead on to response biases and therefore set
restrictions to the generalisation of the survey findings. The following conditions have had an impact
on our research:
• Records managers recruiting participants for the online survey
• Variable support for the survey from senior management
• Restricted Internet access for government employees at some departments
• E-mail distribution problems or individual e-mail management issues
• An overload of survey participation requests,
• Work overload for Public Service department employees shortly after the summer holiday period
in New Zealand
The survey comprised twenty-seven questions, organised into clusters on personal profile, technical
environment, account management practices, e-mail recordkeeping practices, and information
management policies. The survey contained mainly closed questions, comprising drop-down selection
menus or an ordinal scale to select an appropriate answer. In addition, some open questions enabled
respondents to provide further or alternative views on particular issues. Online survey participation
took place anonymously, although respondents had the option to name their employer. The
approximate response time to the online survey was 10 minutes.
4. Research findings
4.1 Profile and e-mail management context of respondents
The profile of respondents to the online survey turned out to be reasonably comparable to the situation
across the 28 participating New Zealand Public Service departments. For instance, the majority of
respondents were female (51%) compared to 59% of female government employees at the 28 central
government departments. Moreover, in terms of age, we found a Bell curve distribution for our
respondents over the various age categories. We also asked respondents about their role category:
41 percent of respondents were employed as analysts or advisors, 27 percent as managers, 20
percent as administrative employees, and 12 percent in other occupations.
Sixty two percent of all respondents used an Electronic Document and Records Management System
(EDRMS) to manage business-related e-mails, a finding which might be compared with earlier
research through the 2007 Government Recordkeeping Survey indicating that, in 2007, only 49
percent of New Zealand government departments had an EDRMS to manage electronic records
(Research New Zealand, 2007).
In terms of sending and receiving e-mails we found that most of our respondents (86%) sent less than
50 e-mails per day. The majority of respondents (71%) also received less than 50 messages in an
average day. For 55 percent of respondents, spam messages amounted to less than one percent of
all incoming messages; forty percent of respondents received up to 25 percent of spam messages in
an average day. In general, 62 percent of respondents spent less than one hour handling e-mails on a
daily basis.
4.2 Personal behaviours towards managing business-related e-mail messages
Most respondents (89 percent) indicated that the use of e-mail was critical to their work. We further
asked respondents to indicate their personal behaviours in managing business-related e-mail
messages. Analysis of Archives New Zealand recordkeeping guidelines provided the basis for
identifying potential behaviours (Archives New Zealand 2005, 2006a, 2006b, and 2007), reflecting
acknowledged requirements for effective recordkeeping in New Zealand government organisations.
The most frequently employed behaviour of respondents was to store attachments with related e-mail
messages (85%). The large majority of respondents maintained the integrity of e-mail messages, with
only two percent of respondents changing the content of business-related e-mails; however forty-two
percent of respondents indicated to retitle e-mail messages.
When asked about structural e-mail management behaviour, only eight percent of respondents
deleted e-mails of significant value automatically (see Figure 1). Females and males responded
similarly to this question; for instance, three percent of male respondents always deleted business-
related e-mails of significant value, compared with two percent of female respondents. In general,
structural e-mail management behaviour appears to be focused on storing e-mails, rather than
deleting them.
Behaviours to Manage Messages
0
20
40
60
80
100
Re-tit le e- mails Keep
attachments
with related e-
mails
Store basic
details w ith e-
mails
Automatically
delete e-mails
Store e-mails &
electronic
documents
together
Keep e-mails
accessible to
themselves
Cha n ge t he
content of
business -
related e-mails
Delet e
business -
rela ted e -mails
of s ignificant
value
Percent of Respondents
Figure 1: Structural e-mail management behaviours
4.3 Methods used to manage e-mails
Our research findings indicate that respondents use more than one method to manage business-
related e-mails (see Figure 2). Methods include keeping e-mails of significant value in an archive file
from their e-mail account (31%), filing significant business e-mails in personal electronic folders to
work PCs or laptops (19%), filing printed copies of e-mails in personal files (17%), and to a certain
extent also filing printed copies of e-mails in shared files (26%). Several of these identified e-mail
management methods essentially make the information contained in business-related e-mails
inaccessible to the rest of the organisation, representing a potential loss of critical organisational
information.
We also asked respondents to indicate the frequency of employing specific methods to retain
business-related e-mails. The most common method used by respondents (63%) was to retain
business-related e-mails in their e-mail account, closely followed by 57 percent of respondents who
saved business-related e-mails to their department’s EDRMS.
These findings confirm that the majority of respondents use their e-mail accounts as a personal
information management tool. Single e-mail messages are being stored in multiple ways, highlighting
the lack of a consistent approach and possibly unawareness of the most appropriate method to
manage business-related e-mails of significant value in government organisations.
Methods to Manage business-related E-mails
0
20
40
60
80
100
Keep e-mails
in mailbox
Keep e-mails
in .pst files
File printed e-
mails in
personal files
File printed e-
mails in shared
f iles
Sav e e-mails
to w ork
computers
Save e-mails
to a corporate
server
Save e-mails
to an EDRMS
Percent of Respondents
Figure 2: Methods to manage e-mails of significant business value
4.4 Individuals’ knowledge of business-related e-mail management
In order to explore what knowledge e-mail users have on managing business-related e-mail
messages, we asked respondents to indicate the type of information their organisation had provided
them with, and whether they had received that information within the last twelve months.
Twenty six percent of respondents had not received any information from their organisation on how to
keep e-mail messages. Furthermore, 24 percent of respondents had received this information but not
in the last 12 months. 58 percent of respondents had received information in the last 12 months on
how to use the organisation’s EDRMS.
While most respondents had received information on how to use their organisation’s e-mail system at
some point (84 percent), 16 percent of respondents had not (Figure 3). Moreover, 25 percent of
respondents who had been using e-mail for less than one year, had not received any information on
how to use the e-mail system.
We also asked respondents whether they had received information on the organisation’s information
management policies and official recordkeeping practices. Most respondents (86 percent) had
received details on their organisation’s information management policies. Similarly, most respondents
(82 percent) had received information on recordkeeping, including electronic recordkeeping and the
Public Records Act.
Information provided by organisations on how to manage e-mails
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Information on using
the e-mail system
Information on how
to ke ep e -mai ls
Information on using
the EDRMS
Infor ma tion on which
e-m ail s to ke ep
Information on the
information
management policy
Infor ma tion on
recordkee ping
practices
Received information in last 12 months Received information but not in last 12 months Have not received information
Figure 3: Information provided by organisations on how to manage e-mails
These results suggest that while the majority of respondents have received information on information
management policies and official electronic recordkeeping practices, there is a substantial knowledge
gap among individuals employed at New Zealand central government departments with regard to
keeping business-related e-mails of significant value.
4.5 Policy on the management of business-related e-mails
We also asked respondents whether they knew if their organisation had a policy that advised them
how to manage business-related e-mails. Twenty-nine percent of respondents were unaware of a
policy relating to e-mail management. The remaining 71 percent of respondents were asked to
summarise the policy in one or two sentences. The purpose of this analysis was to understand how
individuals interpreted their e-mail recordkeeping responsibilities as outlined by their organisation,
rather than a comprehensive analysis on the appropriateness of the policy statements.
Thirty five percent of survey participants did not respond to this part of the question, while 14 percent
stated that, while they knew a policy exists, they could not find it or were unable to provide a summary
of it. These findings suggest that respondents’ lack of knowledge of their organisation’s e-mail
management policy is significant; forty three percent of respondents were unaware of their
organisation’s policy, were unable to locate the policy, or were unable to provide a summary of their
policy.
Of those respondents who did summarise the e-mail recordkeeping policy at their organisation, the
majority showed an adequate understanding or approach to managing e-mails of significant business
value (see Figure 4). 40 percent of respondents referred to the approach or system used to retain
business related e-mail messages (e.g. “We should save all business related e-mails into our
document system”); and 36% of respondents mentioned the need to retain business-related e-mails
based on the content of the items (e.g. “If the e-mail is critical to business, e.g. a decision, then we are
required to save it into a relevant location within our electronic data storage facility”).
Only a few comments were made in relation to other key characteristics of e-mail recordkeeping
policies. These included who is responsible for identifying and retaining messages, how to approach
multiple conversation threads in an e-mail chain, or the importance of appropriate naming, filing and
maintenance of messages. In addition to these findings, only eighteen respondents mentioned
legislative requirements when describing their organisation’s e-mail recordkeeping policy, including
references to the New Zealand Public Records Act, the New Zealand Archives Act 1957, the New
Zealand Official Information Act, and the New Zealand Privacy Act.
Characteristics of E-mail Recordkeeping Policies
0%
20%
40%
60%
80%
100%
Identification of business e-mails
Naming, filing & maintenance
Threads & attachments
Copies
Retention
Security & encryption
Preservation
Responsibilties
System for e-mails
Acceptable use
Percent of comments
Figure 4: Characteristics of e-mail recordkeeping policies
A number of respondents also took the opportunity to highlight the impracticalities relating to their
understanding of the e-mail recordkeeping policy at their organisation.
“We are supposed to store important mail in the EDRMS. The problem with using
document management systems (that few people who make the decisions fully
comprehend) is that this extra layer of process severely impacts on the time that we
actually have to do any work at all (note that there are many other 'requirements'). …
Document management systems are (practically speaking) not as easy to use and
manage as the theory (or 'sell') claims they will be. With data storage being so cheap
these days why on earth don't we simply back up the mail folders instead?”
These findings suggest that while the operational responsibilities of identifying and managing
business-related e-mails is transferred to individual employees, the knowledge, understanding and
behaviour of public servants with regard to their organisation’s e-mail recordkeeping policy are varied.
5. Analysis
Similar to available research (e.g. Ducheneaut and Bellotti 2001; Seow, Chennupati and Foo 2005),
our research findings suggest that individuals employed by New Zealand central government
departments use e-mail as a personal information management tool. We found that while 57% of
respondents saved business e-mails to an EDRMS, 63% of respondents kept e-mail messages,
including those of business value, in their individual work e-mail account. Time constraints, e-mail
overload, difficulties to classify messages, poorly created messages, and the ability to find messages
stored in central repositories were all concerns raised by respondents. These concerns offer
explanations as to why respondents use their individual work e-mail accounts to collect, store,
organise, and retrieve business e-mail messages.
The PAIN theory applied to the context of New Zealand central government departments offers further
insights into respondents’ e-mail management knowledge and recordkeeping behaviours. For
instance, while the majority of respondents acknowledged the need to invest in and appropriately
value the identification and management of e-mail messages critical to the business of government,
personal behaviours and a variety of methods formed the basis of e-mail management processes,
rather than uniform organisational guidelines. Furthermore, while policies, training programmes,
procedures and EDRMS systems are in place at most New Zealand central government departments,
more than half of the respondents had not received information or training on what e-mails to keep
and what not to keep, and almost one third of respondents were unaware of an organisational policy
relating to e-mail management. Triggers for personal, anticipated information needs were not
sufficiently provided by existing information events therefore.
Moreover, the PAIN theory states that sensitivity to personal, anticipated information need is a critical
component of information literacy (Bruce 2005). The institutional context of this research implies that,
in addition to information literacy, individuals within New Zealand central government departments are
required to understand specific recordkeeping requirements and practices to ensure effective
organisational recordkeeping. Our research findings demonstrate substantial knowledge gaps among
respondents in this respect. Our research further suggests that while there is significant variance
between how individuals manage their individual work e-mail accounts and the records management
requirements placed on government agencies by New Zealand legislation, individuals do not appear to
recognise this conflict.
6. Conclusions
Applying the PAIN theory to the context of the New Zealand central government, this paper provides
empirical insights into e-mail management knowledge and recordkeeping behaviours of individuals
employed at New Zealand central government departments. Although a large majority of respondents
perceive the use of e-mail as critical in their work, these empirical research findings point at
substantial knowledge and information gaps among New Zealand central government employees with
regard to effectively managing business-related e-mails. Moreover, when looking at e-mail
management behaviour of respondents, there is no standard or consistent approach in managing
business-related e-mail messages. As a result, e-mail management decisions made by individuals
employed at New Zealand central government departments reflect personal e-mail management
requirements, rather than an understanding of organisational and legal requirements.
The substantial lack of individuals’ knowledge and understanding with regard to official e-mail
management requirements, also compared to individual e-mail management behaviours, points at
opportunities for New Zealand central government agencies to support more consistent business-
related e-mail management by developing practical guidelines and providing intensive, tailor-made
staff training sessions.
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