The creation of library districts is the only way all Idahoans can receive public library service.1 One of the ICfL’s goals is that all Idahoans will have local access to library services. As of 2017, 17.4% of Idahoans did not live within a legally established library service area. Most of these people live outside of incorporated areas or in communities so small they could not provide adequate public library services by themselves. According to Idaho Code, the only way that residents living outside of incorporated areas can receive tax-supported public library services is to reside within a library district. In order for these people to receive public library services, library districts will need to be created. [See Idaho Code section 33-2702(6)].
The creation of library districts is the only way to provide adequate support for public library services in many parts of Idaho. Even where public libraries do exist, some are so small that they cannot adequately meet the ever-increasing information needs of their communities. As libraries continue to redefine their mission around providing access to new technologies and community spaces, public libraries operating on very small tax bases simply cannot keep up. Recognizing this, the State Legislature established statutory minimum limits for new library districts. New districts must serve a minimum population of 1,501 and have a market value for assessment purposes adequate to raise a minimum of $25,000 in tax revenue. [See I.C. § 33-2703].
The creation of larger library districts can save taxpayer money. Economies of scale are important in getting the most from each taxpayer dollar. The creation of larger units of service can decrease administrative costs and provide larger potential discounts for the purchase of library materials. The combination of several smaller districts into a larger district can save on administrative costs, such as bonding a treasurer. In addition, through centralized purchasing the new district may get larger discounts from vendors because of its increased buying power.
Library districts provide a form of governance that helps assure a continuity of funding and services. City libraries often face difficulties because they are in competition with other city departments for city tax dollars. When tax revenues are low, city councils may sacrifice funding for the library to fund “essential services” such as the police, the fire department, and streets. In addition, there is often confusion between the role of the city council and the library board in running the library. It is not uncommon for city councils to believe they have the right to control library expenditures and to make personnel decisions about the library director even though these powers are granted statutorily to the city library board. This confusion about the role of the city council and the library board can lead to conflicts that can have a detrimental effect on library services.
1 “Public library service” means the provision of planned collections of materials and information services provided by a library established under the provisions of chapter 26 or 27, title 33, Idaho Code, and paid for primarily through tax support provided under these statutes. These services shall be provided at a facility, accessible to the public at regularly scheduled hours and set aside for this purpose. The services shall be governed by a citizen board appointed or elected for this purpose and shall be administered and operated by paid staff who have received appropriate training in library skills and management. The services shall meet standards established by the board of library commissioners.
Because of these issues, the Idaho Commission for Libraries maintains that the ideal governance structure for Idaho libraries is autonomous library taxing districts having a population-financial base to provide excellent local service and to be responsible members of the state’s resource-sharing network.
While each districting process will be unique, there are some legal and administrative components that are common to all districts. In addition, while political, social, and economic factors may vary from place to place, the experience of previous districting efforts — both those that were successful and those that failed — can provide information about successful strategies and potential helps and pitfalls in the districting process.
At the same time, as we began revising this handbook, it became apparent that we could not anticipate every possible situation that might arise in the districting process. Districting is a legal process and involves work with county commissioners, the Idaho Commission for Libraries, the Idaho State Tax Commission, the county clerk, the county elections office, and the county assessor. Politically, however, it involves work with many other groups and individuals, including city councils, educational support groups, business groups, and taxpayer associations.
This publication is not designed to tell you what to say or do in every situation. It will tell you about the legal process for creating a library district, and it will give you a general process to follow to work toward a successful districting election or consolidation.
You, the reader, will have the responsibility of adapting this to your own situation. In some cases, the process described in this handbook may be overly complex for your needs. In others, you may have to do even more in order to ensure a successful library districting project.