Task Number Four: Planning Library Services

The first three tasks looked at planning for the districting effort. This task looks at planning the services that the new library district will provide. In the Assessment Phase, the exploratory group creates a vision for the district library. In the Planning Phase, the working group turns this vision into a practical plan for providing specific library services.

The amount of work that will need to be done at this point will depend on the type of districting project that is envisioned. A different kind or level of planning may be needed for each type of project:

• Establishment. Territory that contains no library can be formed into a library district. The new library district can set up its own library and provide services itself. Advantages of this method are that it gives the new district a great deal of control over the services it will provide. A disadvantage is that setting up a brand-new library takes a tremendous amount of work, and if there are other libraries in the area, there may be difficulties in working out reciprocal arrangements between the new library and those that already exist.
  • The election process for this alternative is described in I.C. §§ 33-2704 through 33-2705.
• Establishment to purchase library service from another library. Territory that contains no library can be formed into a library district. The new district does not provide services itself, but contracts with an existing library to provide services to its residents. The advantage of this system is that the new district does not have to set up its own library. The disadvantage is that the district must negotiate a contract with the library that provides services. This gives it less control over the services that it will provide and at times there may be major conflicts between the district and the contracting library.
  • The election process for this alternative is described in I.C. §§ 33-2704 through 33-2705.
• Establishment including an existing city library. Territory that includes one existing city library can be formed into a district that serves the city and surrounding territory. The advantage of this option is that the services of the district are controlled by the district and the district does not have to set up a new library. The disadvantages are that “rural” residents may feel that the city controls all the services, and that the district is just a way of making rural residents pay for city services.
  • The election process for this alternative is described in I.C. §§ 33-2704 through 33-2705.
• Establishment/Combination including multiple city libraries. Territory that includes two or more city libraries can be formed into a district that includes untaxed territory that connects the cities together. The advantage of this option is that the services of the district are controlled by the district and the district does not have to set up a new library. The disadvantage is that much work will be required to coordinate the services between the library branches and to assure that different communities feel that they are treated fairly.
  • The election process for this alternative is described in I.C. §§ 33-2704 through 33-2705.
• Annexation of area with no library service. An existing district library can annex untaxed territory which is contiguous to it and which contains no other public library. The advantage of this option is that it allows an existing district to expand its service area and its services without setting up a new administrative structure. The disadvantage is that work will have to be done to make sure that the new area is adequately served, which may involve creating new services or even setting up a branch library.
  • The election process is described in I.C. § 33-2707.
  • A petition process alternative is described in I.C. § 33-2708.
• Annexation of area including one or more city libraries. An existing district library can annex untaxed territory that is contiguous to it, which contains an existing city library (or libraries), and the cities do not choose to join the district. The advantage of this option is that it allows an existing district to expand its service area and its services without setting up a new administrative structure. The disadvantage is that work will have to be done to make sure that the new area is adequately served, which may involve creating new services or even setting up a branch library. In addition, reciprocal arrangements will need to be worked out between the district and the other libraries. These will be potential sources of future conflict.
  • The election process is described in I.C. § 33-2707.
  • A petition process alternative is described in I.C. § 33-2708.
• Annexation/Combination. An existing district library can add untaxed territory which is contiguous to it and which includes an existing city library (or libraries), and the cities also choose to combine with the district. The major advantages of this method are that it gives the district the ability to control all services provided in its service area, since it does not require contracts for services. Because no annual contract negotiations are required, much potential future conflict is avoided. The disadvantage of this scenario is that it will require more work in the beginning. Because this kind of project is treated as an establishment of a new district, the election must be timed so that the existing district does not have to be dissolved before a new district is created. Skillful planning and negotiations may be needed to choose existing services and administrative structures for the district, when existing libraries have probably all been operating under different structures.
  • The election process for this alternative is described in I.C. § 33-2704 through 33-2705.
• Combination. A city library whose boundaries are contiguous with a library district combines with the district. The advantage is that the unified district will be able to unify control of all its services, and potential conflict between the district and the city library will be eliminated. The disadvantage is that city residents may feel that they have lost control of their library and the library services provided, and if the city is large, the “rural residents” of the district may feel that the city now dominates the district.
  • The election process for this alternative is described in I.C. § 33-2709.
• Consolidation. Two or more existing districts can be consolidated into a single district after majority approval of the respective boards involved in the consolidation. A vote by the residents of the existing library districts is not necessary, as they have already voted to establish the districts that wish to merge. The advantage is that the new larger district will be able to provide improved services since less funding will be needed for administration. The disadvantage is that people may feel that there is less local control as the district grows.
  • This process is described in I.C. § 33-2711.

In a few cases, districts are formed where combining libraries — district or city — have already shared administrative structures. Such were the cases, for example, when the Moscow City Library and the Latah County District Library combined, and when the Nez Perce County District and the Lewis County District consolidated. In cases such as these, the participating libraries may already be operating under a single long-range plan, and therefore, the plan needs to be modified only to indicate the change in the structure of governance.

There are several planning models available for consideration. Some of these models have been developed principally for libraries; others are more general models. As often as not, good models for planning include the following elements:

• A community description, focusing particularly on community needs.
• A mission statement.
• Roles that the library district will play in — and needs that it will fulfill for — its community.
• Goals — The benefits your community will receive because the library provides specific services.
• Objectives — The means of measuring the library’s achievement of its stated goals.
• General approaches and methodologies which will be used to accomplish the objectives.
• Activities which will lead to accomplishing the objectives.
• An evaluation method for the plan.
• A plan for updating the plan at least annually.

Some sample vision and mission statements:

Some public libraries have created a vision statement and a mission statement. Some libraries, in place of or in addition to a mission statement, have created separate values statements. Here are some examples:

• The Austin Public Library [Austin, Texas]:
  • Vision Statement: “The Austin Public Library is key to making Austin a dynamic creative center and the most livable city in the county.”
  • In place of a mission statement, this library has created separate statements of library commitment, library equity, and library diversity:
    • Library Commitment Statement. “The Austin Public Library is committed to providing easy access to books and information for all ages, through responsive professionals, engaging programs and state-of-the-art technology in a safe and friendly environment.”
    • Equity Commitment: “The Austin Public Library will assure that all members of the Austin community have equal access to Library services and programs.”
    • Diversity Commitment: “The Austin Public Library values diversity and is dedicated to celebrating an organizational culture that respects, understands, honors and welcomes all members of the staff and community.”
• The Berkeley Public Library [Wisconsin]:
  • Vision Statement: “The Berkeley Public Library will foster the spirit of exploration, lifelong learning, the joy of reading, and the pursuit of information and knowledge for all ages and cultures.”
  • Mission Statement: “The Berkeley Public Library provides materials and services to help community residents obtain information to meet their personal, educational and cultural needs, and serves as a learning and educational center for its residents.”
• Madison Public Library [Wisconsin]:
  • Vision Statement: “Madison Public Library: Your place to learn, share, and create.”
  • Mission Statement: “Madison Public Library Provides free and equitable access to cultural and educational experiences. We celebrate ideas, promote creativity, connect people, and enrich lives.”
• Pima County Public Library [Arizona]:
  • Vision Statement: “Our Vision is an educated, connected community of readers, learners, doers, and dreamers.”
  • Mission Statement: “We transform lives by educating, inspiring, and connecting people.”
  • Our Values:
    • Education: We learn and teach every day.
    • Excellence: We exceed expectations.
    • Freedom: We defend the right to read and to know. We are free and open to all.
    • Diversity: We serve everyone. We find strength in celebrating our differences.
    • Innovation: We dream big. Anything is possible.
    • Community: We work with our community to improve lives.
    • Passion: We love what we do.
• Providence Public Library [Rhode Island]
  • Vision Statement: “PPL is a library re-imagined. Our library is a place where tradition and innovation intersect — an open and collaborative center of teaching and learning where people can connect, experience, create and achieve. Approachable and inclusive, PPL is committed to making a meaningful difference in the lives of Rhode Islanders and everyone we serve.”
  • Values Statement: “Providence Public Library engages learners, inspires thinkers and connects diverse communities.”
  • PPL Values:
    • Excellence: We strive to create and provide the best services and experiences for all library users in Rhode Island and beyond. Our employees have a strong sense of pride, responsibility, and professional integrity. We value our competent, well-trained staff and maintain high standards in our work.
    • Freedom: Free access to information is essential to the preservations and promotion of a democratic society. We are free and open to all and uphold library users’ right to privacy.
    • Innovation: We are always learning. We are a teaching and learning organization and not afraid to evolve and take necessary risks in pursuit of meeting community needs and fostering personal achievement.
    • Community: We strive to become the state’s best collaborator. We seek and engage in partnerships to create high-impact programs and services that result in meaningful change for people in the communities we serve. We are a welcoming place where all can gather, connect, learn and be inspired.
    • Diversity: We serve everyone and we represent the diverse communities that make up our city and state. We celebrate our differences and we treat everyone equally and with respect and compassion.
    • Passion: We love what we do and continually work to be and do better. We relentlessly strive to better understand our communities, our collections and our users.

Methods for Planning. The methods that you use for planning will depend to a large extent on the level of planning that is required. If you are writing a totally new plan, or if you anticipate the implementation of major changes in library services due to the creation or expansion of a district, then you should plan to solicit extensive input from the public. There are several methods of gathering input. These can be used alone or in combination.

• User surveys. Current library users are asked how they use the library, what they most like about the library, changes they would like to see at the library. This method has the advantage of reaching out to the most likely supporters of a new district while being very cost effective and relatively easy to implement. Because user surveys reach only current library users, they come with the disadvantage of not reaching those who might benefit most from a new or enlarged district.
• Community surveys. Community members are surveyed — by e-mail, snail mail, or telephone — about current and potential library services. This method has the advantage of reaching out to the entire community, including those who might benefit most from a library district. Asking individuals what library services are important to them is a way of encouraging them to consider the possibilities that exist with a district library. The community survey method comes with the added benefit of improving public relations during the districting effort. The disadvantages to this method are the time and expense involved in collecting and collating the data.
• Focus Groups. Small groups (eight to 10 people) are brought together to discuss library services — what they library about the library and what they would like to see added in a new or expanded district. The advantages to this method are that it is more personal, and participants can react in depth. It can also be targeted to a group of people, e.g., parents, community leaders, teens, baby boomers. It can also let people in the group know what other people in the community are thinking. One disadvantage of focus groups in the time commitment — at least an hour for each meeting and several hours for preparation and interpretation. Focus groups also reach relatively few people, and their results require a good deal of interpretation.
• Facilitated Community Meetings. This method involves meetings open to all those who would like to discuss the library. These meetings are facilitated so that everyone in attendance has an opportunity to express an opinion. The advantage to this method is that participants get to hear what other people are thinking and they get to express their own opinions. Advertising the meeting also contributes to the public relations effort of the districting project, and the meeting itself may receive news coverage. The disadvantages are that turnout is often low and the information gathered does not necessarily represent a true cross-section of the community.

These methods can be used throughout the planning process. Earlier in the districting process, they can be used to gather information. Later, they can be an indicator of public opinion on the districting campaign. As indicated above, an intensive planning process will contribute to the public relations aspect of the districting effort, since it continually asks the public for input about library services, and thus offers the community ownership of those services.

The information-gathering methods mentioned above should not be entered into lightly. The value of the information depends on the quality of work that has gone into the creation of the questions asked and the method of delivery. It is best to seek professional help in designing surveys.