Task Number Nine: Preliminary Districting Decisions

The working group will continue to carry out the tasks of the exploratory committee outlined above, and they will also begin to make preliminary decisions about what the proposed library district will be like.

The working group should look at every possible option for providing service for its community. In general, larger districts can provide better library services since they will have a stronger financial base and there will be less duplication of services. Even if a community is located far from an existing district, it might be possible for that district to provide better service through a branch, a bookmobile, or books-by-mail than through an independent stand-alone library.

Recognizing this, I.C. § 33-2703 states that a new library district is required to serve a minimum of 1,501 people and to be able to raise a minimum of $25,000 in tax levies. The working group will need to check whether the population and assessed valuation within any proposed district option meets these minimum requirements. The county clerk can usually give the group information about the population and the assessed value of a proposed district option. If the proposed districting option does not meet the
minimum requirements, the working group will need to explore other options, such as increasing the boundaries or asking an existing library district to annex the proposed territory.

If the territory surrounds or is contiguous to the service area of other public libraries (even if they are volunteer libraries), the working group will also need to confer with those library boards. Early in the process, most boards will not be willing to commit to major changes in their operations. However, they may be willing, even eager, to examine their possible options in working with a new district. Indeed, such a library board may even be willing to take a leading role in a project once they know that they have
determined that a new district may benefit them.

The working group should look at a few social and geographical patterns that might affect the new district. One method that can help in this process is mapping. The process begins with a high-quality map of the county or counties involved. On this map, cities, schools, libraries, and library branches should be marked.

Using a topographical map and a road map, the working group should think about patterns of travel within and outside of the potential district. Look at the natural barriers in your area — geographical features such as mountains, rivers, and deserts. Then look at the transportation patterns using the road map. What places are easy to get to? What places are more difficult to reach? Are some parts of the potential district more readily connected to areas outside the potential district than to other parts of the potential district?

A Geographical Analysis worksheet has been prepared to help with this task.

A tax-code map of the county or counties that shows the school district boundaries and other special taxing district boundaries can then be used to show existing taxing district boundaries. District Boundaries are usually set for a reason. Current district patterns, therefore, may provide useful information about how best to set boundaries for a new district. (These district lines may also be used later in the process to help create a legal description of the proposed district.) A tax-code map that shows all the taxing districts can be obtained from the county assessor.

• You can find office hours and contact information for your county’s assessor(s) by searching the Member Directory of the Idaho Association of Counties.
• Idaho State Tax Commission maps are available here.
• ArcGIS Web Application

This map illustrates Payette County, its waterways, roads, and city boundaries. The cities of New Plymouth and Payette each operate a city library. There is no district library service in Payette county, so must of the county has no prepaid access to tax-funded library service.

Another map that should be examined is a voting precinct map. Older taxing district boundaries often do not coincide with precinct boundaries, as precinct boundaries usually change every ten years. However, if the boundaries are close, it might be wiser to follow the precinct boundaries. It will be easier to run an election if the boundaries of the district coincide with precinct boundaries. Because of this, following precinct boundaries will often help your relationship with the county that will be responsible for
running the election.

Once a mapping of the potential district area has been completed, the working group can begin evaluating the various alternative districts. A Districting Option Assessment Form for analyzing this information has been prepared for you.

Once the working group has gathered and analyzed this information, they need to think about what it will mean for a districting project. Different social and economic patterns may make one form of districting project preferable to another. Based on the information that they have gathered, they can look at the various options open to them to form or become part of a library district. As stated in the Introduction to this Handbook, there are essentially four methods for creating or expanding a library district: (1) establishment; (2) annexation; (3) combination; and (4) consolidation. Within these four methods, there are essentially nine ways in which a new library district can be formed. Each of these district configurations has advantages and disadvantages. Unless otherwise noted, each requires that an election be held to form or expand the district.

1. 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 the alternative is described in I.C. §§ 33-2704 through 33-2705.
2. 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.
3. 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.
4. 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.
5. 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.
6. Annexation of area including one or more city libraries, and the cities do not choose to join the district. 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.
7. 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 the 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. Good 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.
8. 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 oof 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 if 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.
9. Consolidation. Two or more existing contiguous districts can be consolidated into a single district. 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.

Working in stages. There may be political or legal advantages to working through a district creation or expansion in stages. For example, it may be to the advantage of an existing district first to annex unserved areas and then later to combine with existing city libraries within that unserved area. During the Assessment Phase, alternative methods to achieving the same objective should be examined.

Examine all possibilities. Any possibility that meets the requirements of the Idaho Code should be considered. Each option should be assessed as to its advantages and disadvantages. We have prepared a Districting Option Assessment Form that you can use to help you make this assessment. The results of this task will be a preliminary description of a possible district. See I.C. §§ 33-2701 through 33-2711.