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The Regents Commission on Library Services |
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The Regents Commission on Library Services |
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| Summary Meeting the Need Implementing the Vision Recommendations The Next Steps |
March 2000 DRAFTTO: All those interested in the future of libraries in New York State |
The Regents Commission on Library Services, established by the New York State Board of Regents in June 1998, has
been charged with developing and recommending a vision for library services in the 21st century and a plan for
ensuring the widest access to information for all New Yorkers. For 18 months, the Commission has been gathering
information and drafting a comprehensive set of statewide policy recommendations.
At this time, the Commission is submitting its preliminary recommendations to the Regents, with simultaneous distribution to all those interested in the future of library services in New York State. These recommendations will be the basis of discussion at five statewide hearings to be held in April and May. Based on those hearings, we will prepare our final report and submit it to the Regents later this year.
The proposed recommendations in the following pages are driven by the Commission’s belief that every New Yorker in every community across the state should have equitable access to quality library service. Libraries are essential to the people of New York State. They expand our educational opportunities, help to empower our economy, and promote cultural understanding. As an integral part of the educational system of the state, they assist residents of all ages in becoming information-literate and acquiring new skills and knowledge. They provide the information and resources that help the state’s businesses and their employees stay well-informed and competitive. They give access to unique—sometimes priceless—collections that support a world of research, scholarship, and inspiration to library users.
Over the past 50 years, important statewide commissions, committees, and study groups have made major contributions to planning for library development in New York State. Their work has led to new legislation, the establishment of regional cooperative library systems, and improved library service for millions of New Yorkers.
As we enter the 21st century, today’s libraries have an added challenge: integrating the increasingly vast amount of information in electronic form with traditional services. The library of the early 21st century exists to assist users in locating the best source to meet their information needs—print or electronic. School, public, academic, and special libraries must provide timely and convenient access to a complete range of electronic information sources to meet users’ needs.
What follows is the Commission’s proposed set of statewide policy recommendations. The Commission seeks and welcomes ongoing dialogue with stakeholders, public officials, educators, community and library leaders, and all interested New Yorkers as we develop a plan that will redefine the future of New York’s libraries.
Dates, times, and locations of the public hearings are listed below. All interested persons are invited to attend and participate in these public forums to discuss the preliminary statewide policy recommendations. To schedule a time to submit your testimony, contact the Commission office or register electronically [available soon].You may also send your written testimony and comments to the Commission office in electronic and/or print copy. Copies of testimony provided electronically will be posted on the Commission website. Please send your comments to the Commission office, especially if you are unable to attend a hearing.
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April 7, 2000 |
Hearing, 10:00 a.m. - 4:00 p.m., Rochester Public Library, Kate Gleason Auditorium, 115 South Avenue, Rochester Register online |
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April 13 |
Hearing, 10:00 a.m. - 4:00 p.m., Brentwood Public Library, Second Avenue and Fourth Street, Brentwood, Long Island Register online |
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April 25 |
Hearing, 10:00 a.m. - 4:00 p.m., Fashion Institute of Technology, 227 West 27th Street, New York City Register online |
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April 26 |
Hearing, 1:00 - 7:00 p.m., Albany Public Library, Main Branch, 161 Washington Avenue, Albany Register online |
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May 5 |
Hearing, 10:00 a.m. - 4:00 p.m., Vestal Public Library, 320 Vestal Parkway, Vestal Register online |
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May 8 |
Hearing, 1:00 - 4:00 p.m., PictureTel Videoconference, originating at the New York State Museum Theater, Cultural Education Center, Empire State Plaza, Albany, and linking sites at SUNY Plattsburgh, SUNY Potsdam, Queens Borough Public Library (other sites to be scheduled) Register online |
Please note: Pre-registration to provide testimony at public forums is strongly recommended. Contact the Commission office by phone, e-mail, mail, or fax to pre-register or to obtain more information. You may also pre-register online.
Regents Commission on Library Services
10D45 Cultural Education Center
Albany, NY 12230
Phone: (518) 474-1195; Fax: (518) 486-6880
e-mail: rcols@mail.nysed.gov
Summary of the Commission’s Preliminary Statewide Policy Recommendations
The Commission believes that New York State can and should be a leader in library services. New Yorkers are avid library users. Seventy-three percent of New Yorkers used their public library in the last year—well above the national average of 65 percent. New York’s libraries, including the New York State Library, offer some of the finest collections in the country.
The state’s libraries—public, academic, school, and special—offer many examples of innovative and excellent library services. But ironically, an estimated 1.3 million residents lack local public library service altogether. The quality of library service and the physical soundness of library buildings vary widely across the state. Many public libraries cannot offer sufficient service hours to meet the demands of their users. The depth and scope of library collections vary widely, as does the level of library staff assistance available to help users meet their information needs.
The growth of information technology and electronic online resources has created tremendous opportunities for libraries of all types to collaborate and share resources across the state and nation to meet the diverse information needs of all New Yorkers. Yet a significant percentage of the state’s libraries do not have access to high-speed communications networks or the staff expertise to manage the new technologies.
The Commission believes that the following recommendations, if enacted with the help of the Regents, the state legislature, and the Governor, will strengthen New York’s libraries and library systems and enhance the quality of life for all New Yorkers.1 These proposals are intended to complement and supplement one another.
This document focuses on the first six recommendations listed below. Recommendations 7 through 12 are the Commission’s "supporting" recommendations. They provide the infrastructure for implementing the first six policy recommendations. The Commission has chosen to continue further development of the supporting recommendations through more in-depth discussion with the library community and its various constituencies in the months ahead.
Meeting the Need: Quality Library Service for All New Yorkers
Meeting the Need: Quality Library Service for All New Yorkers
Recommendation 1: Create NOVEL, the New York Online Virtual Electronic
Library,
to deliver high-quality, reliable digital information and provide access for all New Yorkers.
To provide all New Yorkers with access to electronic information, regardless of economic circumstances, geographic location, or disabilities, the Commission recommends implementation of NOVEL, a virtual library that will be accessible by the public. NOVEL consists of four components:
NOVEL will be a gateway to a vast array of resources that will provide every school library, academic library, and public library with a rich electronic collection for schoolchildren, students, scholars, and all New York’s diverse populations. Shared electronic catalogs and newly digitized materials will offer a statewide electronic library for all New Yorkers.
To function in 21st century society as parents, students, business people, and professionals in many fields, New Yorkers must have equitable access to information resources—including high-quality, reliable electronic resources. However, many New Yorkers do not have access to the Internet. Those who can afford access are increasingly finding themselves in need of electronic information that is managed and distributed by commercial interests and is available only for a price. New York’s network of libraries can help close the digital divide for all residents by making high-quality electronic and digital information accessible to library users, including remote users, through local libraries statewide.
New York’s libraries must also be technologically equipped to provide access to the wealth of electronic resources for library users. The Commission recommends that the Regents promote policies to make high-speed access to the Internet available and affordable for all libraries.
New Yorkers will have access to NOVEL through an "electronic library card" issued by local libraries. Some libraries already provide remote access by using e-library cards to authenticate remote users, enabling them to see the library’s holdings and have access to licensed databases acquired by the library. NOVEL will enable more of New York’s libraries to deliver digital documents from its collection directly to users’ homes or offices.
The NOVEL initiative is designed to build on existing networks, such as the New York State Library’s EmpireLink, and complement existing services and partnerships among libraries of all types. It will not replace other cooperative arrangements if they are more beneficial to their users. Collaborative efforts with all libraries, library systems, and library consortia and organizations provide the platform for NOVEL.
NOVEL is also intended to enable libraries to create and share digital collections. Many of New York’s libraries have begun to digitize important elements from their print, photographic, manuscript, and archival collections. Digitization helps share many unique documents while limiting the need for handling fragile materials. By supporting these efforts, NOVEL will begin to build an online collection of materials that will be available to support New York’s research needs.
The Board of Regents is asking for $12 million in startup funds to launch NOVEL. NOVEL is an important component of the Regents Libraries 2001 Budget and Legislative Priority.
Libraries represent a substantial, cumulative investment of state dollars. Through NOVEL, the state will leverage its investment many times over. Statewide purchasing realizes substantial economies of scale. All library materials statewide will be more easily located and shared, digital resources will be far more accessible, and the value of library collections will increase as they are shared online.
A virtual library such as NOVEL represents a strategic advantage for New York. Ready access to accurate information can increase business competitiveness, help the state achieve the educational goals and standards set forth by the Board of Regents, and assist state and local governments in keeping their constituents informed and connected.
Recommendation 2: Ensure that all New York’s public school students are information-literate by providing strong school library media programs that include appropriately certified professional staff, adequate resources, and technology.
The Commission recommends that the Board of Regents require a strong school library media program for all K–12 public school students in New York State. The school library media program is an essential link that focuses on the New York State Learning Standards and higher levels of student achievement; integrates instruction in information-literacy skills with core curricula; supports and promotes the national information literacy standards; provides resources and services to meet diverse student learning needs; and reinforces student opportunities for reading, listening, and viewing.
To derive the greatest possible benefit from the resources available through NOVEL and the other resources of New York’s libraries, New Yorkers must be information-literate; they must know how to locate, evaluate, and use information successfully. Information-literacy skills are increasingly essential to functioning in a world of electronic information. The place to establish the foundations of information literacy for our residents is in the schools.
Children from every background should have access to school library media programs that will teach them to be information-literate. However, many public schools in New York State are unable to provide access to strong school library media programs because they lack certified professional staff, adequate resources, and appropriate technology. Students in schools in New York City and rural upstate areas are the least likely have access to adequate school library media programs.
To implement a school library media program that focuses on learning standards and student achievement, the Commission embraces the Regents proposal to provide School Library Media Program Support Aid to public schools.
Formula aid should be allocated to ensure that certified school library media specialists will provide instruction in information literacy, using appropriate resources and technology, including expanded Internet access. The Commission also recommends that the State Education Department, through the Board of Regents, the EMSC, and the State Library, ensure that school library media programs have appropriate staffing by encouraging teachers, public librarians, and others who are interested in becoming school library media specialists to become appropriately certified.
Recommendation 3: Ensure the availability of local library service to all New Yorkers and improve local support for public libraries through the voluntary formation of Public Library Districts.
The Commission acknowledges the value of local libraries as centers of community life that promote information literacy and afford opportunities for lifelong learning. However, it also recognizes the need for a vision for statewide public library service to address the needs of New Yorkers who have no access to library services or suffer from significant inequities in library services. All communities in New York should provide quality local public library services. Therefore, the Commission recommends the voluntary formation of Public Library Districts throughout the state, with the exception of New York City, which is served by consolidated library systems that provide library service for every resident.2
As unique institutions in a free society, public libraries in New York State have evolved in a variety of ways. In most cases, individuals within each community have created libraries dedicated to the democratic ideals of public education. This grass-roots movement has resulted in a wealth of vibrant, community-based libraries throughout the state. Unfortunately, it has also resulted in a patchwork of library districts and inconsistent levels of service with an estimated 1.3 million New Yorkers remaining outside the chartered service area of any public library.
After a period of transition, the 1.3 million unserved New Yorkers would be included in a Public Library District, and all New Yorkers would have a voice in the governance and funding of their library through public vote on budgets and trustees.
Implementation models for Public Library Districts include the following:
This recommendation does not require the dissolution of any existing libraries, but instead aims to strengthen the institution of the local community library. Furthermore, experience and statistics show that when the public is able to vote directly on public library budgets and have control over their library, they support significantly higher per-capita funding.
To help libraries in the transition, the Commission recommends the establishment of an aid program for the specific purpose of implementing Public Library Districts throughout the state.
Recommendation 4: Promote equitable library services for all New Yorkers by using a need-based formula to reduce disparities in library funding, and promote service excellence through enabling and incentive aid tied to community-based performance measures.
The Commission strongly recommends the adoption of a new formula for allocating future state aid to libraries and library systems. This formula has two components:
Ensuring that all New Yorkers are included in a Public Library District will eliminate all unserved areas. However, many New Yorkers who currently live in the service area of a public library suffer from a number of inequities.
Per-capita support for public library service within New York State (including state and local funding) extends over a vast range—from a low of $.28 to a high of $233.55.4 The average per-capita support in the state is $32.17. A study conducted for the Commission5 concludes that a minimum funding level of $20 per capita is necessary to meet the basic needs of library users. However, significant numbers of New Yorkers live in communities with libraries that have funding below that level.
Statistics show that the communities that would benefit most from improved levels of library service are often the least able to fund them through local tax revenues. These include many inner-city and isolated rural communities in the state—those that are experiencing the highest levels of unemployment and other social and economic challenges.
Need-based funding to help libraries in underserved communities meet basic user needs must work hand-in-hand with an increased effort to achieve a consistent level of quality library service in all New York’s libraries. Commission research indicates that not all New Yorkers are satisfied with the services that are available to them. For example, only 47.7 percent of those recently surveyed responded that they were "very satisfied" with their local public library, and 23.4 percent said that they could not even use their local library because of limited service hours.6
A need-based formula should allocate additional state aid to reduce disparities in local public library funding and leverage local effort up to a minimum level of $20 per capita from proportionate shares of state and local revenue sources. This new aid is not intended to replace local support; it is intended to stimulate and leverage ongoing local support and foster libraries as dynamic community centers.
Additional funding in the form of enabling and incentive aid will spur excellence in library service for all New Yorkers through the NY EXCELS (New York’s Excellent Library Service) Program. After a basic level of funding is achieved, NY EXCELS will focus on fulfilling community needs and help libraries meet the challenge of rising costs, changing technologies, and diverse user needs. It will emphasize criteria that afford objective ways to measure results and build on State Education Department public education initiatives that became effective in 1995 and 1997.
Both individual libraries and library systems will have the opportunity to participate in the NY EXCELS Program. Individual libraries—public libraries and branches, public school libraries, academic libraries, and various special libraries, including law libraries and hospital libraries—will design standards for excellence with the assistance of their library systems and the New York State Library. Participating library systems will develop standards for excellence in partnership with the New York State Library. Once the standards have been adopted by the Regents, libraries and systems will be eligible for enabling aid of a limited duration, as well as incentive aid to be awarded after they meet specific standards. A tiered system will be developed to aggregate certain types of accomplishments. Peer and library system review will facilitate movement from one service tier to the next.
The NY EXCELS Program is designed to stimulate innovative programs and partnerships among libraries and library systems of all types. Because it focuses on objective criteria and standards, it will have evident and measurable outcomes. More library users will have immediate access to high-speed information networks and electronic resources; increased hours of service with the assistance of trained, skilled library staff; access to regional and statewide resource-sharing and technology initiatives; and library collections of a depth and scope that support their educational, recreational, and research needs. Furthermore, an increased number of libraries will receive assistance from their library systems in accessing high-speed networks and electronic resources, regional and statewide resource-sharing and technology programs, staff training and retraining programs, and other support services. Such assistance will increase service quality while reducing local costs.
Recommendation 5: Provide support for public library construction, expansion, and renovation to ensure that New York’s libraries are accessible to all library users and can accommodate advances in technology.
To provide the necessary support for public library construction, expansion, and renovation, the Commission recommends a large infusion of state funds within a specific time frame to accelerate improvement of the infrastructure. The Commission supports the Regents’ proposal for the year 2000, a matching-grant program in the amount of $90 million over five years and $10 million annually in following years. Such funds would provide public libraries with increased leverage to obtain local funds for facility improvement. This is an important step; however, the Commission believes that additional funds will be necessary to meet the needs of the state’s public libraries.
Even the most motivated librarians and staff cannot offer quality service to their communities if libraries are inaccessible or crumbling and cannot accommodate advances in technology. Many communities lack the resources to offer library facilities that comply with the Americans with Disabilities Act, and therefore cannot ensure access to their diverse communities of users. New York’s public libraries need $800 million to renovate and modernize library facilities. Surveys indicate that two-thirds of library buildings need major improvements. Seven in 10 public library buildings outside New York City need facility improvements estimated at $300 million. The need inside New York City, which is home to more than 200 branches and central library units, is estimated at $500 million.
Local libraries are required by the state to meet minimum standards to receive local and state public funds. Yet the neediest communities do not receive sufficient state funds to help them leverage the local support necessary to make facility improvements and meet state minimum standards. The existing annual state investment of $800,000 in matching grants for public library construction is inadequate to meet the need, and no federal funds are currently available for public library construction.
In developing such programs, the Commission recommends that the Regents consider the condition of existing libraries, and where appropriate, the needs of isolated or economically disadvantaged communities. Matching grants should provide up to 50 percent of project costs.
The Commission also urges the Regents to propose a special accelerated construction program for libraries in the state’s poorest communities. In the cases of communities with documented needs and marginal resources, the state should provide up to 75 percent of the project costs.
In all cases, to receive aid for construction, renovation, or expansion, libraries, branches, and library systems that provide local library services must demonstrate a commitment to ongoing local support.
Recommendation 6: Improve the capacity of New York’s urban public libraries to meet the unique needs of their diverse, densely populated communities.
Urban public libraries are experiencing record high levels of demand for service. The urban areas served by these libraries are home to many New Yorkers who have a limited ability to buy books, cannot afford a home computer connected to the Internet, or have limited access to literacy programs or programs designed to improve their English-language skills. These New Yorkers are turning to their libraries to meet their continuing education, information, and reading needs. Research indicates that this population is more apt to use libraries when service hours are increased, and they are more willing to pay increased dedicated taxes for library services. These New Yorkers are also the ones most likely to use new services.
The Commission recommends that the Regents establish an urban libraries initiative to provide the resources necessary to meet the unique needs of diverse communities. This initiative would build on the Regents’ Coordinated Outreach Services to Special Populations program, and would expand services to communities served by urban public libraries. The proposed initiative is intended to achieve the following:
Urban libraries have seen unprecedented growth in library use over the past decade. For example, New York City’s public libraries alone served a total of 40 million users in 1999, circulating almost 40 million items. Branch libraries in urban centers often serve populations as large as many small cities and towns in New York. Libraries in urban neighborhoods are often open 40 hours a week or more, but cannot meet the demand for additional evening and weekend hours.
The demographic complexity and density of the populations served by urban libraries present special challenges. Over the years, many urban libraries have responded to these challenges by creating innovative programs and providing special resources, including the following:
Many of these library programs have been very successful and have long waiting lists. Unfortunately, they are labor-intensive and costly.
As we enter the 21st century, the library needs of inner-city communities are much more complicated than ever. Public libraries in urban centers must not only meet the demands of traditional, sophisticated library users; they must also face the daunting challenge of providing electronic and traditional print services to populations who have had limited exposure to public libraries.
The Commission envisions the urban library initiative as a partnership between the Board of Regents and the urban libraries in New York to meet the educational needs of many inner-city residents. State funding will help urban libraries expand literacy and lifelong learning programs for millions of urban New Yorkers who are not now being served adequately by urban libraries due to high demand for services. The urban library initiative will support replication of successful outreach programs to other libraries in the state with similar needs, as well as the development of multilingual library collections to meet the needs of New York’s diverse populations.
The Commission believes that these six recommendations, if implemented, will transform library services for all New Yorkers. This is our vision.
All New Yorkers will have access to high-quality, reliable digital resources and information in all other formats to meet their information needs. Technology will transform the smallest library—school, public, academic, or special—by greatly expanding the resources available to its users. Resources of any library in the state will be available to anyone, anytime, regardless of where a person may live. Students will receive a foundation in using information from well-staffed, well-equipped school library media centers, and will be better prepared to meet the challenges of an information-driven society. All New Yorkers will have access to high-quality, local public library service. Through new construction, public libraries will be accessible to all and equipped with the latest technology. Parts of the state without library service will have new opportunities to establish public libraries that are well funded, well governed, and well staffed. All New Yorkers will be educated consumers and users of information. All of us will be able to turn to our library, confident that information will be available, regardless of language barriers or reading limitations, and urban libraries will respond to the unique needs of their diverse communities.
The remaining six recommendations (numbered 7 through 12) are the "supporting" recommendations. They will provide the means that will allow us to achieve our vision. All stakeholders and key constituencies—including library systems, the New York State Library, educators, elected and appointed officials, community leaders, librarians, and library trustees—are needed to turn our vision into reality. The Commission is continuing to develop these recommendations through ongoing discussions, consultation, and collaboration with those stakeholders and key constituencies.
1The Regents are alrady acting on implementation of Recommendations 1 and 2. The Commission is very gratified and excited that the Regents have adopted these proposals and are already moving on the first steps towrard implementation. The Commission encourages the Regents to move forward with the initial phases and then proceed to full implementation of the recommendations.
The Regents have also proposed a construction-funding initiative for public libraries. This matching-grant program, if approved by the Legislature, will provide $90 million over the next five years and $10 million annually in the following years.
2The consolidated library systems in New York State are The New York Public Library, Brooklyn Public Library, and Queens Borough Public Library.
3School district public libraries are separate institutions from local school districts, with elected boards of trustees and annual budget votes. They are not the same as "school libraries," which are contained within school buildings and are under the jurisdiction of school authorities.
4Data obtained from the New York State Library, Division of Library Development.
5Demographics of New York State, 1920-1998: A Summary of Dr. James Chapin's Research for the Regents Commission on Library Services. Regents Commission on Library Services, September 1999.
6Data obtained from a telephone survey conducted for the Commission.
