This document discusses public library policies in the United States. It notes that policies vary greatly between states and even within states. Some key points are that libraries receive funding from various sources like local taxes or library districts, and governance also differs such as being part of local government or having an independent board. The document also briefly outlines the history of library policies in other countries and how they were often used to promote certain ideologies or social goals. International organizations recommend libraries be established through legislation and receive balanced funding from government.
2. Public Libraries in the United
States
Very different organization and funding
structures from state to state
Even within a single state, there are often
multiple types of libraries, and sometimes
overlapping library districts
There is no law requiring library service to be
provided, so there are no public libraries if a
locality is unable or simply unwilling to provide
one
3. Public Libraries in the United
States
How do public libraries differ from one another in the
United States?
Funding
City
County
State
Independent library districts (self-funding)
Non-profits
Misc. (hybrids, tribal libraries, etc.)
Governance
Part of local government
Library Board
Elected or appointed
Autonomous or advisory
4. For example: Indiana
For 2010, in Indiana:
$388,760,477 (95%) from local sources
$19,273,111 (~5%) from state sources
$1,064,604 (.003%) from federal sources
9. Public Libraries in the United
States
Even neighboring states can have wildly
different ways of providing library service.
Indiana
100% library districts
Illinois
50% city government, 50% library districts
Ohio
Funded almost entirely by state
10. Research Questions
Is this how public library policy has always
been in the United States?
How does the United States’ system compare
to those of other countries?
Is there anything approaching an ideal library
policy that can be adapted and implemented
either on a national or state level in the United
States?
11. Historical Examples of Library
Policy
United States
Public libraries were often used to prepare areas
for statehood
Early public libraries in Hawaii were seen as
alternatives to the prevailing drinking culture; the
library was first known as the “Temperance
Reading Room”
Britain
One of the first attempts to legislate public
libraries in Britain was brought about, tellingly, by
the “Select Committee on Inquiry into
Drunkenness” in 1834.
12. Historical Examples of Library
Policy
Russia
Early Russian public libraries were first thought of
as ways to transmit the values of the upper class
to the workers, essentially teaching them the
benefits of the Tsarist feudal system
When the Soviets came to power, libraries held
essentially the same position in society, but with
the goal of advancing socialism. Lenin was
acutely aware of the potential of public libraries;
his wife was a librarian by training.
13. Historical Examples of Library
Policy
Nadezhda Krupskaya
Directed a census of
Russian libraries
Encouraged librarians to
address patrons in common
speech
Advocated for the creation
of better library training
All of this had the goal, of
course, of advancing
Marxism
14. Historical Examples of Library
Policy
Sweden
Parish libraries began appearing in the mid-1800s
and were mainly designed to give people the
necessary literacy skills to study the Bible, but
also contained useful household instructions
These were largely replaced by the end of the
century with “study circle” libraries, which were
established by social groups to further specific
causes, like temperance
15. Historical Examples of Library
Policy
What do these policies have in common?
Governments have long realized the potential for
libraries to influence and educate their patrons
Attention from government can be enormously
helpful in starting, maintaining, and improving a
library system
When governments misuse library policy the
effect on libraries can be dramatic
16. IFLA and UNESCO
Recommendations
The International Federation of Library
Association and the United Nations
Educational, Scientific and Cultural
Organization recommend that:
Libraries should be “based on legislation”
Administered and funded by the appropriate level
of government
Governed by a body of local community
members, which should be open and transparent
A library to serve every 3,000 people and within a
mile of the people that it serves
17. Modern Public Library Policy
A variety of policy models are being used
Governance
National – Local
Prescriptiveness
Specific – Loose
Funding
Balanced – Imbalanced
18. Modern Public Library Policy:
Governance
Finland
United Kingdom
Authoritarian
Countries
Turkmenistan
North Korea
United States
India
China
National Local
19. Local Library Governance
India
If IFLA standards were adopted, India would need
343,000 public library outlets (it currently has
60,000) to serve all 560,000 villages.
India has largely left the growth of libraries up to
the provinces.
20. Local Library Governance
Rural provinces are put at an extreme
disadvantage.
There are 28 states and 6 union territories in
India; 11 have passed public library legislation
and 4 allow for the collection of taxes to support
libraries.
Public libraries are technically addressed by the
national “Five Year Plan,” but the sum total of this
attention is a few sentences in a 1,000 page
document
Libraries in India received 7.1% less funding than
was called for in the previous Five Year Plan
21. Local Library Governance
China
Libraries in China were once guided by a strong
national policy, but are now basically governing
themselves
Many libraries in China do not receive enough
funding to operate from the government and must
supplement their budgets themselves
User fees are commonplace
Library quality varies widely across China
22. National Library Governance
Finland
Library Act of 1961 heavily subsidized the
construction of rural public libraries
Library Act updated in 1998 to specify that
municipalities are responsible for carrying out the
library and information services that it described
Regular national plans and goals are issued,
which local libraries are then responsible for
working toward
23. National Library Governance
Turkmenistan and North Korea
Dictate exactly which books are and are not
permitted in public libraries
Strictly control library funding
In effect, public libraries become storerooms of
books that no one wants to read
24. Modern Public Library Policy:
Prescriptiveness
United Kingdom
United States
(certain states)
Finland
Specific Loose
25. Specific Library Standards
United Kingdom
First standards were adopted in 2001
Highly specific, quantitative measures called Best
Value Performance Indicators
Circulation, attendance, Internet use, etc.
Standards were updated and replaced several
times over the next decade before being
abandoned completely in 2011
26. Specific Library Standards
Since 2001, libraries in the United Kingdom
have been asked to adhere to:
Public Library Service Standards
Best Value Performance Indicators
Public Library Impact Measures
Public Library Position Statements
Annual Library Plans
Comprehensive Area Assessments
Public libraries in the UK face widespread closure,
privatization, and consolidation
27. Non-specific Library Standards
Finland
Library policies define broad goals (improving
access, upgrading technology infrastructure, etc.)
Not very many specific numbers are mentioned in
the library policies (one exception is the number
of experienced staff a library must have per 1,000
residents)
Adherence to library guidelines is voluntary, but
library administrators can use them as supporting
documents when making the case for funding to
local administrators
28. Modern Public Library Policy:
Funding
Finland
Sweden
United States
Australia
Balanced Imbalanced
29. Balanced Library Funding
Finland
Construction projects and other major works are
funded (at least partially) by the national
government
Daily operations are funded by the local districts
that are served by public libraries
This allows libraries to devote all of their
resources to doing what they do best, which is
providing library service
30. Local Library Funding
United States
Libraries in the United States are funded almost
entirely with local funds
Rich areas have rich libraries
Some areas have no library service at all
Australia
Libraries in Australia are ostensibly funded by
both the state and local governments, but in
practice states provide a miniscule amount of
funding
Libraries in Australia are desperately underfunded
31. Local Library Funding
An example from Indiana
When the Bloomfield-Eastern Greene Public Library
wanted to build a much-needed addition to its original,
1911 Carnegie building it was forced to:
Form a shell corporation, since libraries are forbidden from
assuming certain amounts of debt
Issue bonds through the shell corporation, which financed
the construction of the addition
“Lease” the new building from the corporation
Levy a new tax to pay for the debt, alongside the regular
tax to pay for daily operations
When the debt is paid off, the library will no longer qualify
for the “optional” income tax it is able to levy (In other
words, having debt puts the library in a better financial
position!)
32. Benefits of national library
policies
Even growth of libraries nationally, not just in lucky
areas
Mandating library service while leaving specifics up to
locals ensures that everyone has at least baseline
service
Spreading out the funding obligations enable libraries
to provide superior service
Libraries are supported in their efforts to expand
and add new services
Even if there is no national funding, a national policy
allows librarians to make their case to local decision-
makers
33. Drawbacks of national library
policies
Government is not always a good friend to
libraries
Turkmenistan shuttered every single public library in
the country for five years
South Africa’s public library legislation is so unclear
that different branches of government cannot agree
on who is responsible for funding libraries
Even well-meaning governments can wind up
creating laws or standards that hinder more than
they help
By tying funding to statistical measures, struggling
libraries are often unable to right themselves
Creating too many statistical benchmarks sometimes
gives the illusion that libraries are struggling, when in
fact they are providing quality service to the patrons
they have
34. What does the ideal policy look
like?
In the presenter’s (humble) opinion, the ideal
national public library policy should:
Clearly define the parties responsible for
providing library service and the sources of
funding
Supplement local funding with state/national
funding for large projects or experiments
Provide goals for growth without demanding strict
adherence to certain metrics
Be a collaborative effort of librarians and
government
35. National Public Library Policies
Questions or comments?
John Helling
Associate Director for System-wide Services
Johnson County (Kansas) Public Library
johnhelling@gmail.com