7 April 2014
Many government compilations credit no individual. In those cases, the author is typically the agency. If the agency is also the publisher, your citation may leave the "author" or "creator" field blank to avoid redundancy. If the publisher is the Government Printing Office, then the agency should be credited as the author. When citing government websites, if the title of the website contains the name of the agency, you do not have to duplicate that identity in the author or creator field—again to avoid redundancy.
EE's Chapter 11, "National Government Records," has a much fuller discussion (106 pages) of how to work with records of the various national archives of the U.S., Australia, Canada, England, France, Germany, Ireland, Mexico, Scotland, Spain, and Wales.