public libraries and networking:

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PUBLIC LIBRARIES AND NETWORKING:Jinnie Y. Davis aa Assistant Serials Librarian, D.H. Hill Library, North Carolina StateUniversity, Raleigh, NC, 27650Published online: 14 Sep 2012.

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PUBLIC LIBRARIES AND NETWORKING: A BIBLIOGRAPHIC ESSAY

Jinnie Y. Davis

ABSTRACT. Most of the literature on the participation of public libraries in cooperative activities deals with their expansion from local entities to multitype system. Within the framework of this evolution, topics of special interest have been: (1) appropriate units of senrice; (2) legal and political considerations; (3) stimulus of legislation; (4) role of states and state library agencies; (5) financial aspects; (6) human factors; and (7) automation in networking. The literature reviewed was vast but was deficient in comprehensive syntheses, in rigorous, large-scale evaluations of networking, and in studies focusing solely on public libraries.

Introduction

The literature on library networking, defined in this issue to include most cooperative activities among libraries, is long-standing and var- ied. This brief review attempts to cover only significant contributions to the subject, especially as they relate to public libraries in the United States.

Cooperative activities have historically spanned all the areas of library operations: acquisitions, cataloging, preservation, dissemina- tion, and the administration thereof. Manifestations of these activities among libraries, however, have yet to be categorized into a standard typology. Purdy's6Vist of eight activities has been used most frequently as a basis for in-depth examinations such. as those by Hen- dricks31 and Patrick.G2 In the past, public libraries participated most often in centralized processing services. With the aid of federal funds in the late sixties, telecommunication networks for interlibrary loan and reference services became the most common activity.33

The details of cooperative activity in areas within librarianship may be found in their corresponding literatures. Cataloging, an area particularly amenable to cooperative undertakings, is especially well documented-Leonard'~~~ bibliography lists nearly 1,000 items up to 1967. For broader and more up-to-date coverage, the summer issues of

Jinnie Y. Davis is Assistant Serials Librarian, D. H. Hill Library, North Carolina State University, Raleigh, NC 27650.

. Public Library Quarterly, Vol. 2(3/4), FallIWinter 1981 01982 by The Haworth Press, Inc. All rights reserved. 1 7

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18 PUBLIC LIBRARY QUARTERLY

Library Resources and Technical Services regularly include a survey of resource sharing for the past year.

General overviews of the subject are available in works such as K r a u s ' ~ ~ ~ review of cooperation up to the 1970s, and Weber and Lyn- den's7? summary of interlibrary cooperation. Surveys that focus on public libraries include Lowell Martin'sd7 review of activities up to 1969, the Nelson study58 of the growth and extent of public library systems in 1969, Casey's15 look at systems composed of different types of libraries in the seventies, and Chait's16 examination of the role of public libraries in networking.

Another article by Casey14 offered an excellent quick review of cooperative activity among public libraries. In it, she identified their major trend as the evolution from independent, local entities, to infor- mal cooperatives of public libraries, to structured library systems composed of all types of libraries. For the purpose of this essay, this trend will be dissected into several aspects which intermingle in practice.

Units of Service

A great deal of the literature on early public library cooperation deals with the issue of the appropriate size of the units of service. Recent literature has focused on the systems approach to the composi- tion of these units. Shaughnessy's paperT2 summarized the broadening of units from county libraries to multitype systems, with particular emphasis on the significance of a strong central library a t the core of a successful system. In addition, he explored the philosophical bases for the expansion of public library cooperation.

Official documents reflecting the trend stem largely from Joeckel's 1935 Government of the American Public Library34, in which he rec- ommended the region, rather than the municipality, as a unit of service. This concept was integrated into the 1948 National Plan for Pub- lic Library Service35, and reiterated in the Public Library Inquiry of 1950.41

Public library standards set forth by the profession in 195@ and especially in the 1966 Minimum Standards for Public Library Sys- terns6? affirmed the validity of the larger unit and the concept of systems as the basis of public library operations.

The establishment of unitype library ~ystems was followed in the late sixties by cooperation among different types of libraries. In 1977, the Public Library Association's "A Mission Statement for Public Li- brariesnS4 called for multitype cooperation. More recently, a report from the White House Conference on Libraries and Information Ser- vices supported the creation and strengthening of multitype networks.TO

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Jinnie Y . Davis 19

A useful guide to the varying patterns of joint activity is Stenstrom's annotated bibliography74 with several supplement^.^ *', 61* 38 A recent monograph, Multitype Library Cooper~t ion ,~~ included an annotated bibliography with a section covering the relevant report literature as well.

The question of some sort of broader coordination of library services on a national scale had often been raised before. In the seventies awareness of the multiplicity of systems already in existence and of the proven capabilities of computerized networks brought the concept of a national network to the fore. In particular, the idea was championed by the newly established National Commission on Library and Informa- tion Science, which produced documents outlining the philosophical bases and go& for the concept.56 Another national agency, the ~ i b r a r y of Conmess, acknowledged its role by establishing a Network De- velopm&t Ofice. Its has beendescribed in several articles by its former director, Henriette Avram, 5* 4Y as well as in the Office's an- nual reports. In 1976, the Midwest Region Library network (MIDLNET) held a symposium to explore the responsibilities, services, and objectives of local, state, and regional networks within a national system.53

So far, however, the library community has rejected efforts to establish a national coordinating agency or a national network. For example, De Gennaro20 suggested recently that a single supranetwork is unattainable and undesirable. Others have emphasized the danger of overlooking the individual library in a national network and have stressed the importance of service a t the level of the local public library.14. 1 7 8 l8 Pointing out the different needs of public libraries, Freedmanz5 argued against the imposition of a single national standard for bibliographic records.

Agreement upon the optimal units of service and the manner in which they are to be coordinated remains a task for the future.

Legal and Political Considerations

As institutions deriving their legal bases from various levels of government, public libraries which wish to cooperate with others must consider political and legal factors unique to their situation. In an early article, Brahm13 described the differing legal bases of various units of public library service. For library organizations attempting to serve more than one political jurisdiction, RohlfGY explored the perti- nent political and legal conditions. The most concise delineation of the legal devices available to libraries entering into multijurisdictional networks was provided by Harry who emphasized the advan- tages of the interstate compact.

Allie Beth Martin45 noted that the tendency of public libraries to-

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ward coalescing into larger units occurred in the context of a similar trend in government. A specific case appeared in Hawaii, where the consolidation of governmental units precipitated the reorganization of public libraries into the first entirely coordinated statewide system.32

The political effects of cooperation in large metropolitan areas received some attention in the literature; differing aspects were examined by Bollensll and Shank?' Ge1lZ0 described the necessity for cooperating public librarians to interact with other public officials on the newly emerging Councils of Government.

The Stimulus of Legislation

Many recent achievements in cooperation among public libraries can be attributed to the Library Services Act (LSA) of 1956 and the Library Services and Construction Act (LSCA) of 1964, particularly its Title 111, amended in 1966 and 1970. Kitte13? examined their stimula- tion of interlibrary cooperation through the provision of financial in- centives for its inception and for the requirement of formal statewide planning. In 1978, Patrick et al.63 completed a comprehensive report on the effectiveness of LSCA Title 111, including its shortcomings. Caseyls also discussed the effect of the Elementary and Secondary Education Act's Title 11, which required coordination between school and public libraries a t the state and local levels.

State legislation promoting library cooperation was another deter- minant in the success of networking; examples are the Illinois Library Systems Act and the California Public Library Services Act. In 1970, M ~ C l a r r e n ~ ~ reviewed the various state legislations that have supported library systems of four types.

The effect of recent legislation like California's Proposition 13 has yet to be assessed fully. Blake? however, wrote an early article de- scribing its impact on public libraries. Currently, references in the library literature to legislation of this type tend to be brief and infor- mational rather than evaluative in nature.

The Role of States and State Library Agencies

The terms of LSA and LSCA made the state the center of library planning and gave the state library agency the responsibility both for accomplishing this and reporting on it. Subsequently, unevenness of funding, leadership, and previous conditions in each state led to the establishment of diverse configurations of cooperation.

Among the most successful-and most richly documented-are those of New York, the model for most other public library systems, and

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Jinnie Y . Davis 21

Illinois. The example of New York is discussed by Blasingame and De Prospo,1° who examined the state's approach to the problem of inte- grating the desire for local autonomy into a statewide system. New York's multilayered format encompassing all types of libraries was described with clarity by Pren t i sP and supplemented by Hacker.29 Some problems remain to be resolved, however. For example, the recent challenges to the New York State Interlibrary Loan (NYSILL) system by OCLC, Inc. demonstrate the potential for conflict and over- lap between statewide cooperative networks and bibliographic utilities with broader bases.60

In Illinois, strong leadership from the state library, in conjunction with enabling state le~islation. aided in the construction of a network based on existing pub& l i b r a j systems, but incorporating other kinds of libraries as well. Its various aspects are reported upon with regu- larity in the state library's journal, Illinois Libraries. In addition, the journal has devoted entire issues to networking'2- 40 and uses its December issues to report on the progress of each of its 18 public library systems.

Surveys, plans, and evaluations commissioned by the various states are usually available in the ERIC database or from the state library agencies. Many, like California's master plan,5O~ 51 are comprehensive documents attempting to integrate cooperation into library development.

T r e ~ z a ' ~ sees the role of state library agencies as a strategic one in the creation of a rational hierarchy of national networking. Despite the example of several successful agencies, many still s d e r from the lack of funding, staffing, and coordination which was identified in the 1967 Nelson study3 for the National Advisory Commission on Libraries.

The Association of Specialized and Cooperative Library Agencies' Report on Interlibrary cooperation, 19804 contained an excellent factual outline of state-supported cooperative programs involving public libraries. Besides providing directory information, it summarized the status of cooperation in each state, their sources of funding, and their legal bases.

Financial Aspects

Prentice's Public Library Finance" furnished a good general back- ground of the features characteristic of public libraries. She also examined factors which could affect their role in cooperative activities and, conversely, the impact of networking on public library finances.

Another concern related to networking has been its effect upon library costs. This area still lacks comprehensive, rigorous assessment of

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the costs of cooperation, particularly among public libraries. Several localized studies of costs ofjoining networks have been conducted; most of them concentrate on the technical services aspects. One of the few works reported for a public library was Benson's study! which con- cluded that in-house operations would provide service of better quality a t a lower cost than network membership. For those a t the stage of deciding whether or not to join a network, a useful work delineating the major cost considerations is the Librarian's Handbook for Costing Network Ser~ices.~9

Human Factors

Several authors have pointed out the primacy of human factors as a major element in-and, often, obstacle t o - c o o p e r a t i ~ n . ~ ~ For example, studies by Nelson associate^^^ and by S t e n ~ t r o m ~ ~ demonstrated that in public library systems, the orientation and competence of the system director was a decisive factor in the success of the system. Stenstrorn also found that the fear of loss of local autonomy was a crucial factor in resistance to participation in public library systems in Illinois.

At the early stages of computerized bibliographic networking, the human reactions to the machine were frequently discussed in the library literature. The fact that this subject has received less attention in recent years is an indication of the acceptance of the computer as a tool for librarianship. Nevertheless, concern for the human element is still evident; Casey14 included the development of staff as a major goal of library cooperation.

Becker7 identified social engineering as the primary problem con- fronting library networks as the participants become interdependent. An understanding of the behavior of users, librarians, and adrninis- trators precedes the study and solution of several network-related problems identified by Montgornery.55

Automation in Networking

Just within the last decade, an expansive literature has developed on automated networking alone, although few works are solely devoted to public libraries. For newcomers to this field, the terminology has been defined in several works, such as the Network Development Of- fice's glossary.19 An excellent bibliographic essay on on-line networking by Evansz4 provided sources on the topic from its early days to its horizontal growth and vertical integration in the 1970s. Readers are referred to this article for an overview of works which will not be specified here.

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Jinnie Y. Davis 23

The availability of on-line bibliographic databases offers greater flexibility for public libraries' cooperative activities. The latest edition of Library Networks48 is a valuable introduction to existing North American networks and computer utilities-their organization, membership, and services-placed within the context of sketches of their history and practical applications. Even more detail on the four major bibliographic utilities (OCLC, RLIN, WLN, and UTLAS) can be found in Matthews' c o m p i l a t i ~ n , ~ ~ which also includes copies of contracts and price lists. Of these utilities, OCLC currently has the largest number of public library participants. It is also an extremely well documented network; the breadth of its literature can be seen in a recent annotated bibliography by Allison and Allan.'

In a constantly changing field, conferences help to establish the state of the art. Although none has dealt solely with public library networking, the public library aspect has been incorporated in papers at meetings such as the University of Pittsburgh Graduate School of Library and Information Sciences's 1976 "Library Resource Shar- ing"55 8O and its 1978 "The Structure and Governance of Library Net- w o r k ~ . " ~ ~ Most recently, the 1979 Indianapolis conference on "Net- works for net worker^"^^ also included a paper on public library participation.16

Even more up-to-date sources of information are the newsletters published by the various network offices. In addition, for an indication of some of the negative aspects of networking, the reports from discussion groups of network users are helpful.

Evaluation

One of the contributions of state library agencies has been their evaluations of progress, frequently conducted by professional consul- tants. Among the states, New York is notable for its in-depth evaluations of various aspects of its operation. For example, the overall public library system of the state was assessed in Emerging Library Sys- tems,59 and NYSILL has been studied by Nelson associate^.^^. 57

Another major study was the evaluation by Peat, Marwick, Mitchell & C O . ~ ~ of the success of the California Public Library Services Act.

More evaluations have appeared in the wake of computerized networking; see, for example, Westat's evaluation of the cost-effectiveness of OCLC use by public and academic libraries in the SouthwestS8 and Shoemaker's costhenefit analysis of California's Public Library Auto- mation N e t ~ o r k . ~ ~ Recent studies, however, are still in the stage of developing models for uniform r n e a s ~ r e m e n t . ~ ~ go The field of library networking has yet to attain maturity through large-scale evaluation

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of programs against set objectives, using standardized measures of performance.

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80. Williams, James G. "Performance Criteria and Evaluation for a Library Re- source Sharing Network." In Library Resource Sharing, edited by A. Kent and T. J. Galvin, pp. 225-77. New York: Marcel Dekker, 1977.

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