Aynne Reist & Laura Highlander
SLIS 5320
Introduction
The issue of joint-use libraries has been debated in earnest since the 1970's. Combining two types of libraries to provide a higher level of service should be the goal of any proposed joint-use facility. We are particularly concerned with public libraries located in public school facilities. In 1976, Woolard's survey confirmed eighty-four combined library programs (Woolard 1976). In 1992, Aaron reports one hundred ninety-nine (Aaron 1992). Many examples exist of successful combined ventures and many attempts have failed. This innovative solution to shrinking budgets and funding sources is clearly being considered a viable option by many. What has evolved is a fairly consistent picture of how to approach the establishment of a combined or joint-use library, what issues to consider when establishing such a site, and what possible advantages or disadvantages can be expected with a shared facility.
Literature Review
1. A very thorough and much quoted study of combined libraries was conducted by Shirley L. Aaron in the late 1970s. In A Study of Combined School-Public Libraries, she concludes that "it is unlikely a community able to support or now supporting separate types of libraries will offer better school and public library service through a combined program" (Aaron 1980). Even if factors important to the success of a combined program are present, the increased demands on the library staff, wide-ranging program needs, political conflicts between different governing bodies, and differing physical requirements for school and public library buildings are challenges to a joint-use library succeeding.
However, Aaron also concludes, "when a community is unable to provide minimum library services through separate facilities and no option for improved services...exists, the combined program presents a possible alternative." Her criteria for establishing a combined library are if it will allow for the hiring of professional library staff where such positions had not previously existed, a combined library would strengthen resources in the community, there is a planned program of services to meet the needs of the school and public, and the program is systematically evaluated on a regular basis.
In the early 1990s, Aaron resurveyed state library and education agencies to evaluate the current interest in combined libraries. Thirty-five state library and thirty state education agencies responded, identifying 199 individual combined library sites (Aaron 1992). Ninety sites serve populations of 5,000 or less, and the public library shares space with a school in 162 instances (most commonly a high school, then elementary, K-12, and the middle school). Aaron recommends developing a kit to assist communities interested in evaluating their chances in establishing a combined library, investigating combined library programs offering a unified program instead of two separate programs, developing guidelines for combined libraries at the state level, and examining ways for schools and public libraries to cooperate.
2. Several state libraries have written guidelines for establishing joint-use libraries. Wisconsin's Department of Public Instruction, "Combined School & Public Libraries: Guidelines for Decision Making," is a simple and clear report of what to consider when first approaching the idea of a combined library. It discusses legal issues particular to the state of Wisconsin and then a list of topics worth much thought and discussion between potential joint-use partners. A "feasibility checklist" is included covering the areas of planning, governance, administration and funding, access to information and materials, the physical facility, and attitudinal factors.
3. Sally Stone in "A Marriage in Bala Cynwyd," describes a very positive experience with combined libraries. Because of "tight tax dollars and dwindling municipal land reserves," a joint library was designed from the ground up to replace two aging facilities. It is a two story building with the kid's space upstairs and the adult space downstairs. There is lots of free-flowing, multi-use space. The benefits outlined are increased circulation (after five years in operation, circulation increased 88%), $250,000 savings to the community in building costs and land purchases, lower day-to-day costs of fuel and supplies purchased in quantity, and $10,000/year savings in custodial fees. The children's library is open all year and there is less duplication of material. The Bala school principal feels that the "...combination serves the best needs of the children because the sources are there for whatever skill levels they have attained." The library is "...an intrinsic part of everyday experience" for children, leading to books and the library being part of a lifetime of learning.
4. Wilma Lee Broughton Woolard, in her book Combined School/Public Libraries: A Survey with Conclusions and Recommendations, provides the first comprehensive national survey that could be located. She thoroughly describes the methodology of her study and clearly and simply presents the data. Her original survey was in 1976 and she resurveyed in 1979. Woolard found that most combined libraries are in rural communities with populations under 10,000. The ratio of personnel to population varies and there is a wide variation in respect to the total number of operating hours per week. Most respondents cited the need for both a school and public facility and professional staff as reasons for establishing the combined library. School boards most often initiated mergers. The hard numbers she provides are important, as is her summation of the benefits and problems reported from the respondents to her survey. Benefits cited are a better selection of materials available to patrons, a public library existing when none had before, access to a wide range of media production, services and public programs, and public relations benefits. Weaknesses were most often related to governance and management including failure to define areas of responsibility, failure to get everyone's input involved in the combined library, differing salary and work schedules of public and school librarians. A second unrelated problem was adults not using the library during the school day because of the presence of students. In conclusion, Woolard makes some recommendations to government agencies and "institutions of higher education." She recommends that library school curriculum be broadened to include "courses that provide training for the dual role of librarians--courses that provide instruction in legal matters pertaining to the operation of public institutions, and exposure to the curriculum of elementary and high schools." She makes several other recommendations regarding training for school boards and administrators, innovations in building design, cost studies, the creation of standards specifically for school/public libraries, enabling legislation at the state level for merged libraries, and ongoing studies on the national level tracking combined libraries.
5. A more negative view of combined libraries is presented by Anne J. Madsen and Sue D. Williams in "Sharing Facilities and Funding: Should Communities Combine Their School and Public Libraries?" She discusses the experiences of Bethel High School in Hampton, Virginia where the adult public users of the library were consistently intimidated and inconvenienced by the students of the school. The library became a social hangout when students should have been elsewhere, students from other schools were using the library in the school as a place to congregate, and designated library parking places were routinely used by students. Bethel's solution to differing missions and goals was to keep everything very separate in the library--which seems to be a recipe for failure. Kept separate were collection development and ownership, circulation's systems, and policies for fines. Staff were cross-trained and extra security was needed. In the end, it was decided not to continue with the combined library, but to encourage linking the school and public library electronically. Madsen did conclude that combined libraries do have a better chance to succeed when there would otherwise be no service.
6. Also critical of combined libraries is Ken Haycock, in his article "The School-Housed Public Library." Haycock feels the main drawback to merging the two libraries is their different missions and goals and the different site requirements of a public and school library.
7. Sally Kinsey and Sharon Honig-Bear give a very upbeat positive account of Washoe County, Nevada's experience with combined "partnership" libraries. They clearly walk the reader through the process of creating a joint-use library in light of their experiences. They cover topics such as is the climate right, who plans and oversees the facilities, who has what responsibilities, and who contributes what. Kinsey and Honig-Bear give strong encouragement to partnership libraries based on their strong success. Related to their article is the handbook Washoe County Library reproduces and will provide on request (for $10.00) providing examples of contracts, site policies, selection policy, and several other documents of interest to anyone interested in exploring a joint-use library.
8. "2 in 1: Designing a Combined Library That Works for Everybody," by Renee Olson describes the experiences of in Scottsdale, Arizona at the Palomino Branch Library and in Chula Vista, California at the East Lake Public Library. Both libraries are successful but the Palomino Branch Library is more so because its planners were involved from the very beginning and could address many of the site and design concerns. The article contains a nice checklist of considerations when designing a combined library. The author emphatically believes in starting with a new facility and not trying to renovate an existing school library.
Several other articles relate experiences with specific libraries and provide similar lists of points to consider, benefits, and weaknesses. In addition, guidelines from the states of Ohio and Vermont, and joint-use agreements from Chula Vista, California, Midlothian, Collingsworth, and Venus, Texas, and Washoe County, Nevada were consulted.
Factors Leading to the Consideration of a Joint-Use Library
Shirley Aaron, in her book A Study of Combined School-Public Libraries, identified five primary reasons why communities consider a combined school and public library. "...increasing amount of pressure on public institutions from many segments of the population to make better use of tax monies.
...with broader acceptance of the community school concept [the school as the central institution for the education of all community members], school library media programs are being urged...to serve as community libraries during and after school hours.
...the fiscal resources which were available for funding library programs have decreased. Have to explore alternative ways to provide adequate funding with less money.
...the roles of the public and school library more closely parallel each other as the public library assumes additional responsibility for the education of community residents.
...there is a growing trend toward access of information regardless of format." (Aaron, 1980)
Today, reoccurring factors for considering a joint-use library involve money. School trustees see joint-use libraries as a means of saving money. However, if not planned carefully, the savings resulting from the reduction of duplication of materials and overhead costs will not outweigh the lack of public support. Planning "must involve all parties concerned, including members of the community and library staffs" (Haycock 1990).
Areas to Consider
Mission Statements
The public and school libraries' missions are very different, and the ramifications of the differing missions affects every area of library policy and procedure. Over and over in the literature it is stressed that a school library's goal is to support and enhance curriculum, instruct the student in research methods, and inform teachers of new resources available for classroom use. A very focused effort is on enriching the student's school learning experience and with providing prescribed age appropriate material.
A public library's mission is much broader, focusing on providing for the information needs, recreational reading needs, and reference needs of an entire community of all ages, ethnicities, and educational levels. Access to all information is a cornerstone of American public libraries to ensure intellectual freedom and the exchange of information. The first challenge when establishing a joint-use library is to formulate a mission that can encompass the goals of a school and public library. Motivated, enthusiastic, open-minded individuals with good communication skills will do much to encourage the success of the join-use library's establishment.
Collection Development
Most closely related to the differing library missions is the inherent differences in collection development. For a combined library to succeed, a written policy must be in place to guide library personnel in their selection of material. The policy should produce an optimal site collection while ensuring less duplication of material than if there were separate school and public facilities. Frequently the school librarian makes selections pertinent to the school curriculum while the public librarian selects for the balance of the collection. This is the case at the Lou Mendive Middle School Partnership Library in Washoe County, Nevada. Much communication is necessary to prevent duplication of purchases and to maintain the vigor of the collection. According to Ken Haycock, the collection development policy "...enshrines the citizen's basic right to read, listen and view materials. The principles of intellectual freedom are basic to public library service; thus the collection will reflect the varied interests of the adult population, not the...school authorities" (Haycock 1990).
Censorship
This brings up the issue of censorship. Most librarians support the principles and guidelines of the American Library Association of "unlimited access to information to youth" (Kinsey 1994). Joint-use libraries address the situation of having a complete adult-juvenile collection available to children during the school day when parents are not present to guide their choices. In Washoe County, all students must acquire a Washoe County library card. This requires a parent's signature acknowledging the nature of the school/public library's collection and the parent's responsibility in monitoring what his/her child has checked out. Full access to the collection seems to be the usual policy with librarians helping in a reader's advisory role.
Some combined libraries maintain two separate collections while others interfile all materials. Interfiling is more common because it fosters the sense of a "...unified service to the total community, including a unified identity, a uniform level of service at all times for all patrons, a unified budget and collection, and a staff and administration that work as one" (Vermont guidelines for community libraries 1995). Vermont also stamps all the books in its combined library collections as being the property of a "community library." Many other combined libraries may interfile their books, but place ownership stamps inside the books from either the school district or public library. This allows for easy identification of the books funding source in the case of challenged material, and for distribution in case of dissolution of the joint-use agreement.
A written policy and procedures for challenged material is highly recommended, as it is for any type of library. Whether or not challenges will be handled by the partner responsible for the item purchased, or if a more united response to challenges will occur is up to each sites policy makers.
General Policies
The circulation system and general lending policies must be integrated to promote smooth library operations. It is a simpler proposition if both partners have the same systems (electronic or otherwise), or if an entirely new facility is being set up. The challenge is when each partner brings its own circulation system and catalog. Maintaining two separate systems and sets of lending rules does not indicate a very unified library, but each site has many questions to evaluate when formulating policy. When the Washoe County library merged with the public school libraries, the county recatalogued the schools' collection and merged the holdings. All new material, whether purchased by the school or public library, is catalogued and processed by the county (Partnership Libraries 1995). This allowed for a consistent, unified catalog available to students and the public alike whenever they are using the library.
Boundaries
The boundaries of a municipality and school district do not always coincide. This becomes a problem when library cards are issued. It must be perfectly clear who can borrow from the joint-use library. Can non-residents attending the school have full privileges to the "public" library? Is the collection divided or ownership of each item considered before allowing the patron lending privileges? If a patron can borrow from a school's branch of the public library, can they borrow from other branches of the local public library district? These issues are all possible bureaucratic headaches, but ones that must be addressed.
Security
Security is a major concern whenever children are involved. Many librarians feel a joint-use library is inappropriate below the high school or junior high level because of the implied threat to young children if the public has access to the school building via the library. Having to install additional doors, security gates, separate entrances, or hire additional security guards, are several reasons joint use libraries do not necessarily mean cost savings. It is interesting to note that a concern for security also applies to the adult patrons and families uncomfortable entering a high school environment to use the library. Intimidation, noise, and student use of designated library parking places are all problems of security from the public side (Madsen 1994). Combined libraries have been able to address the security issue in numerous ways. Varying times the library is open to the public, and having a separate public entrance are most common solutions.
The hours of operation impact the security needs of the library as will the design of the facility itself. While the school will be closed for vacations, the library will not, and security needs must be met. Security is often included under the umbrella of day-to-day building needs along with custodial services, utilities, a separate telephone line and on site signage. The school district is usually responsible for the majority of these costs.
Library Design
It is always best to design a joint use library from scratch (Olson 1996). All of the considerations to provide for the optimal layout of the library can be addressed and some of the security needs discussed above can be circumvented. This was the case for the Palomino Branch Library in Scottsdale, Arizona. The library is located at the front of the high school campus of a growing master-planned community. The city and district worked on plans for this combined library for seven years and were able to design the facility to best fulfill its dual functions.
Since designing the library from scratch is not always possible, there is universal list of site related concerns. Can the public find the library--is there adequate signage? Is the location conducive to foot traffic or is the site near the business/commercial center of the city? Haycock feels this is a problem in combining libraries on a school site because schools are not typically in the business/commercial center where he feels public libraries should be. The facility's size in relation to the services it will now provide must be considered. Since desired library usage is often concurrent, not complimentary, will there be enough space for preschool programs, class instruction, and adult quiet areas?
The site should have street presence. It is detrimental if the library is "buried" in the center of the school or upstairs. A separate entrance for the non-students is preferable to the public entering the school. Any barriers to public access must be identified and eliminated. Parking must be adequate and within sight of the library with adequate lighting for night use. Separate restrooms for the public and complete ADA compliance are expected. If planning is thorough and the commitment to make the partnership work is strong, it is possible to make workable accommodations in an existing school building.
Administration
Washoe County, when developing each of their four joint-use sites, created a joint-use library committee to "work closely with library coordinators for both agencies" (Kinsey 1994). The committee's challenge was to "integrate the separate policies and procedures followed by each agency into cohesive, shared documents such as materials selection policy and an operations manual" (Kinsey 1994). To avoid problems in the future, Washoe involved the teachers, principals, and librarians of the school when creating the policies. The responsibilities of the joint-use committees include:
Annually review and modify existing joint-use library agreements
Modify and adapt existing joint-use library agreements at new locations
Meet with agencies' risk managers, attorneys, plant facilities staff, and central administration to insure interests are protected
Communicate site administration and staff concerns
Actively promote a positive image regarding joint-use libraries (Kinsey 1994).
Staffing
Who works when and for whom needs to be addressed before complications arise. In most cases, the staffing factor is related to the hours of operation. For example, "during the school day, the school librarian and any support staff are in charge, and their positions are funded by the school district. The librarian on duty during public hours should be paid and supervised by the public library" (Kinsey 1994). This format alleviates the scheduling a school librarian during non-school hours (which may be a factor in the school librarian's choice for such a position). The staffing schedule also addresses school holidays, weekends, and summers, where school librarians are absent. During these times, the public librarians are in charge of the facility. Washoe County's procedure reduces the conflicts that might occur regarding supervision and chain of command.
When sharing the responsibilities of operating a joint-use facility, it is essential that "communication and regular positive interaction between the school staff and the public librarian" occurs (Kinsey 1994). Especially when the public librarian closes the library and the school librarian opens it, issues and concerns regarding the facility must be discussed.
Hours of Operation
In Renee Olson's article, a section titled "The Combined Libraries Advice Column" offers advice from librarians with experience in the joint-use library (1996). Regarding hours of operation, it states that, "Separate hours for the public are the norm, sometimes strictly followed, sometimes not" (Olson 1996). Reasons for separate hours may be for both the school and public's comfort. "Some school administrators refuse to allow the public on the grounds until school is over" (Olson 1996), while some patrons of the public library may not want to use the library when students are present.
Annual Evaluation
The last and perhaps most important aspect of any joint-use agreement is the provision for regular, annual evaluation and renewal of the partnership. Communities change, boards change and there must be a method to consider new developments, future needs, what works and what does not.
Advantages/Disadvantages
Shirley Aaron's study of combined school-public libraries yielded several advantages and disadvantages of such an operation. Knowing these while considering a joint-use facility may aid in the decision to continue or to explore other options.
Advantages
Savings from the elimination of unnecessary duplication of materials and sharing of costs of construction, personnel, maintenance services, and utilities.
Convenience to community members of having the library open longer hours and on weekends.
The addition of professional personnel to a program otherwise unable to afford qualified staff members.
The availability of information in a broader range of formats through the combination of the materials in both programs.
The offering of library services to the residents of small communities unable to generate sufficient funds to support an independent library. (Aaron 1980)
Disadvantages
The inability of a limited professional and clerical staff to adequately meet the great variety of needs of students and other community members through one program.
The reluctance of adults to use the library in a school building during school hours. The difference in site requirements for the public library and school.
Hindrance of the development of adequate school and public library programs by offering a single program of limited services to all community members.
The reluctance of students from other schools to use a public library housed in a school they do not attend.
Disturbance of school activities by such patrons as preschool children visiting the library during school hours.
The censorship of adult materials which often are considered unsuitable for the school library collection.
The limited ability of the combined program to offer the range of public library services needed to make youth aware of the lifelong value of using the public library. (Aaron 1980)
Recommendations
I would encourage the establishment of more joint-use libraries, particularly in areas where library service is limited and declining. It offers a great opportunity for inter-governmental cooperation while providing (and preferably improving) library service. The library becomes a stronger community resource and children can access a public library as part of their school experience. If a combined library is successful, it can only reinforce a library's positive role in an individual's everyday life. The expanded use of school library space that sits unused during vacations, summers, and weekends, as well as many public libraries that sit under-used until school lets out for the day, is a wonderfully more efficient use of space and manpower even if cost savings are less than anticipated. More could be done to prepare library students to work in a combined setting. Much of a public librarian's time, particularly a children's librarian, is spent teaching about using the library. This is done without the luxury of a scheduled "class visit." It is very easy to say it would just be too hard to establish a combined library. But there are enough positive reasons and model examples to follow for districts and municipalities interested in the possibilities of partnership libraries.
Conclusion
What makes a joint-use or combined library work? To ensure the library's success, the people involved in planning and staffing must be open-minded, enthusiastic, optimistic, and cooperative. There must be a sincere desire to make the project work. If the right people are involved in the project, the community must support the idea of a combined library. Advance planning is so important to insure that the roles and functions of each partner are clearly defined. Combining the two libraries must offer some improvement in services to be worth the effort of integrating. Improved service, not massive cost savings, must be the motivation for pursuing this type of library. Communication must be a priority. Site location should be appropriate for easy public use and access. Finally, the library should be evaluated continuously and regularly to grow and change with its community environment.
Works Cited
Aaron, Shirley L. 1980. A study of combined school-public libraries. Chicago: American Library Association.
Aaron, Shirley L. 1992. The role of combined libraries in Florida phase I: surveying the literature. Tallahassee: Florida State University.
Haycock, Ken. 1990. School-housed public library. Emergency Librarian 17 (March-April): 33-4.
Kinsey, Sally, and Sharon Honig-Bear. 1994. Joint-use libraries: more bang for your buck. Wilson Library Bulletin 69 (November): 37-9, 132.
Madsen, Anne J. and Sue D. Williams. 1994. Sharing facilities and funding: should communities combine their school and public libraries? Virginia Librarian (July-September): 16- 20.
Olsen, Renee. 1996. 2 in 1: designing a combined library that works for everybody. School Library Journal 42 (February): 24-7.
Partnership Libraries. 1995. Reno: Washoe County Library.
Stone, Sally L. 1979. A Marriage in Bala Cynwyd. Library Journal Special Report #9: Making Cooperation Work. 17-18.
Vermont guidelines for community libraries. 1995. Montpelier: Vermont Department of Libraries.
Wisconsin Department of Public Instruction. 1994. Combined school and public libraries: guidelines for decision making. Madison, WI: Wisconsin Department of Public Instruction.
Woolard, Wilma Lee Broughton. 1980. Combined school/public libraries: a survey with conclusions and recommendations. New Jersey: The Scarecrow Press, Inc.
Bibliography
Call, I.S. "Bud." 1993. Joint-use libraries: just how good are they? College Research Libraries News 54 (November): 551-6.
Guidelines for planning a successful school/public library combination. 1996. Columbus, OH: The State Library of Ohio.
Heinold, Daniel L. 1993. Cissna Park combined public/school library: a model of efficiency through cooperation. Illinois Libraries 75 (January): 34-6.
Sunseri, Leandra. 1994. Best of both worlds. Wilson Library Bulletin 68 (June): 72-4.
Teahan, Sue and Miranda Huska. 1990. Personal views of joint school/public library operations. Emergency Librarian 18 (November-December): 14-16.