state and public libraries in queensland

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This article was downloaded by: [New York University] On: 24 October 2014, At: 22:26 Publisher: Routledge Informa Ltd Registered in England and Wales Registered Number: 1072954 Registered office: Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK The Australian Library Journal Publication details, including instructions for authors and subscription information: http://www.tandfonline.com/loi/ualj20 State and Public Libraries in Queensland W. L. Brown a a ABOUT THE AUTHOR: At the time of writing, W. L. Brown FLAA was State Librarian of Tasmania, an appointment which he had held since 1973. Prior to that he had been Chief Librarian in Moonee Valley Regional Library, Victoria. He was a member of the Committee of Inquiry into Public Libraries in 1975–76, and Editor of the Australian Library Journal 1971–4. He has also served as the Chairman of the Australian Libraries and Information Council. He recently received the H.C.L. Anderson award of the L.A.A. for his services to librarianship. Published online: 28 Oct 2013. To cite this article: W. L. Brown (1986) State and Public Libraries in Queensland, The Australian Library Journal, 35:3, 119-125, DOI: 10.1080/00049670.1986.10755546 To link to this article: http://dx.doi.org/10.1080/00049670.1986.10755546 PLEASE SCROLL DOWN FOR ARTICLE Taylor & Francis makes every effort to ensure the accuracy of all the information (the “Content”) contained in the publications on our platform. However, Taylor & Francis, our agents, and our licensors make no representations or warranties whatsoever as to the accuracy, completeness, or suitability for any purpose of the Content. Any opinions and views expressed in this publication are the opinions and views of the authors, and are not the views of or endorsed by Taylor & Francis. The accuracy of the Content should not be relied upon and should be independently verified with primary sources of information. Taylor and Francis shall not be liable for any losses, actions, claims, proceedings, demands, costs, expenses, damages, and other liabilities whatsoever or howsoever caused arising directly or indirectly in connection with, in relation to or arising out of the use of the Content. This article may be used for research, teaching, and private study purposes. Any substantial or systematic reproduction, redistribution, reselling, loan, sub-licensing, systematic supply, or distribution in any form to anyone is expressly forbidden. Terms & Conditions of access and use can be found at http://www.tandfonline.com/page/terms-and- conditions

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Page 1: State and Public Libraries in Queensland

This article was downloaded by: [New York University]On: 24 October 2014, At: 22:26Publisher: RoutledgeInforma Ltd Registered in England and Wales Registered Number: 1072954 Registeredoffice: Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK

The Australian Library JournalPublication details, including instructions for authors andsubscription information:http://www.tandfonline.com/loi/ualj20

State and Public Libraries in QueenslandW. L. Browna

a ABOUT THE AUTHOR: At the time of writing, W. L. Brown FLAA wasState Librarian of Tasmania, an appointment which he had held since1973. Prior to that he had been Chief Librarian in Moonee ValleyRegional Library, Victoria. He was a member of the Committee ofInquiry into Public Libraries in 1975–76, and Editor of the AustralianLibrary Journal 1971–4. He has also served as the Chairman ofthe Australian Libraries and Information Council. He recentlyreceived the H.C.L. Anderson award of the L.A.A. for his services tolibrarianship.Published online: 28 Oct 2013.

To cite this article: W. L. Brown (1986) State and Public Libraries in Queensland, The AustralianLibrary Journal, 35:3, 119-125, DOI: 10.1080/00049670.1986.10755546

To link to this article: http://dx.doi.org/10.1080/00049670.1986.10755546

PLEASE SCROLL DOWN FOR ARTICLE

Taylor & Francis makes every effort to ensure the accuracy of all the information (the“Content”) contained in the publications on our platform. However, Taylor & Francis, ouragents, and our licensors make no representations or warranties whatsoever as to theaccuracy, completeness, or suitability for any purpose of the Content. Any opinions andviews expressed in this publication are the opinions and views of the authors, and arenot the views of or endorsed by Taylor & Francis. The accuracy of the Content should notbe relied upon and should be independently verified with primary sources of information.Taylor and Francis shall not be liable for any losses, actions, claims, proceedings, demands,costs, expenses, damages, and other liabilities whatsoever or howsoever caused arisingdirectly or indirectly in connection with, in relation to or arising out of the use of theContent.

This article may be used for research, teaching, and private study purposes. Anysubstantial or systematic reproduction, redistribution, reselling, loan, sub-licensing,systematic supply, or distribution in any form to anyone is expressly forbidden. Terms &Conditions of access and use can be found at http://www.tandfonline.com/page/terms-and-conditions

Page 2: State and Public Libraries in Queensland

STATE AND PUBLIC LIBRARIES IN QUEENSLAND

W. L. BROWN

(Manuscript received May 1986)

ABSTRACT: This article analyses and critically comments on the recently released Report of the

Committee of Review of the State Library of Queensland. The Committee, under the

Chairmanship of W D. (Denis) Richardson, is with qualification congratulated on its report

which it is suggested makes modest and achievable recommendations.

ABOUT THE AUTHOR: At the time of writing, W L. Brown FLAA was State Librarian of

Tasmania, an appointment which he had held since 1973. Prior to that he had been Chief

Librarian in Moonee Valley Regional Library, Victoria. He was a member of the Committee of Inquiry into Public Libraries in 1975-76, and

Editor of the Australian Library Journal 1971-4. He has also served as the Chairman of the

Australian Libraries and Information Council. He recently received the HC.L. Anderson award

of the LA.A. for his services to librarianship.

THE AUSTRALIAN LIBRARY JOURNAL AUGUST 1986

THE REPORT of the Committee of Re­view of the State Library of Queensland 1

was submitted to the Library Board of Queensland on 30 April 1985 and became publicly available later in the year.

The terms of reference of the Committee of Review provided for a very broad review into and report on all aspects of library ser­vice in the state of Queensland, including: provision of free library service to the pub­lic; libraries under the control of the Library Board of Queensland; funding methods for libraries; training, qualifications and salary levels; role of new technology; the func­tional relationships between the State Li­brary of Queensland and the state govern­ment departments and other library institu­tions (including tertiary); the Libraries Act 1943, the staffing and administrative struc­ture of the State Library; the John Oxley Library and the Queensland State Archives, which at present come under the Library Board of Queensland.

The Committee was established by the Minister for Tourism, National Parks, Sports and the Arts, although the Report is not to the Minister but to the Chairman of the Library Board of Queensland. There is, in fact, some confusion as to whether the Committee was appointed by the Library Board or appointed by the Minister. The terms of reference, as published, state that the 'Minister ... established a Committee of Review of the State Library of Queensland'. The letter of transmittal says that the Com­mittee was appointed by the Library Board of Queensland. The committee of three (a good and practical number) consisted of W. D. (Denis) Richardson, Melbourne Univer­sity Librarian as Chairman; Mr C. Gilmour, an electrical engineer; and Mr J. K. Tarrott, an accountant; the latter two both being for­mer members of the Library Board of Queensland.

The Committee invited submissions and many were received (158 in total). Of the 134 local authorities in Queensland, 34 per cent responded to the invitation to make submissions.

The Committee expressed concern that the State Library of Queensland is viewed as the building in William Street and that there is no clear perception of its state-wide role

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Page 3: State and Public Libraries in Queensland

or, indeed, what should be its pre-eminent role as the principal source of advice to govern­ment on the planning and development of appropriate resources and services to meet the needs of the State through access to information resources in all forms and particularly as a leader and as a central focus for library coordination and cooperation.

The Report is critical of the level of provision of reference services from the State Refer­ence Library and the John Oxley Library which, in many people's minds, as the report points out, are the State Library. While some inadequacy stems from the inadequate accom­modation, the report is critical of the lack of clear direction in collection development and in rationalisation of collection development with other institutions. The Report recommends that a detailed examination be made of the possible application of agreements for the organ­isational and financial recognition of special resource collections within the state network and of any legal or other impediments which might prevent such agreements. The Commit­tee expresses concern about the inadequate resources devoted to the development of the Reference Library and recommends increased financial inputs.

The Report is also critical of the externalisation of services provided by the Reference Li­brary and, in particular, the present policy of the Board requiring people who live in the Brisbane metropolitan area to come to the library rather than resources going to them. As the Report says:

if the demand is appropriate, then in our view materials should be available in the normal man­ner for inter-library loan via a Brisbane City Council Library. The Report is also critical of the attitude of the State Library towards students who, it

says 'are regarded with disfavour'. It is suggested that more emphasis should be placed on the development of the Reference Library as the major backup resource centre or as a switching centre between users and other resources.

The vast distances of Queensland were a concern to the Committee and, in order to pro­vide better access to information services from the State Library, recommends that a pilot project for a toll-free telephone reference service to support local libraries should be insti­tuted.

With the forthcoming move into new accommodation, the Committee considers that the institution of research services by both the Reference and the John Oxley (ie the Queenslandiana) libraries, should be developed. It is interesting that the Committee noted the problems being created by genealogical demands upon the State Library of Queensland, as on all other state library and archival institutions. It is the Committee's view that these are legitimate demands and that in the new State Library of Queensland a special provision should be made with appropriate resources and staff to meet these needs.

On accommodation, the Committee notes with concern that the new State Library build­ing will not be large enough and that this will not enable the State Library to consolidate its services or its resources into one building. Because of this, the Committee believes that the State Library will need to devote some attention to secondary storage of both library and ar­chival material and that there should be exploration (with government departments and ter­tiary institutions) of the concept of cooperative storage.

The Report is very concerned at the inability of the State Library of Queensland to obtain access to many official publications and consequently the Library's inability to provide in­formation services and to meet its national obligation of providing bibliographic informa­tion about this material. The Report makes recommendations about how this can be over­come. It also suggests that the copyright deposit provisions of the Act should be extended and that collections of government publications should be made available in other libraries, such as the Queensland Parliamentary Library and public-funded universities and colleges of advanced education.

Arising out of some proposals that the John Oxley Library (ie the Library of Queenslandiana) should have a separate status, the Committee examined this matter in some detail and arrived at the only logical conclusion, however, that the John Oxley Library

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should remain an integral part of the State Library of Queensland. The Committee was con­cerned that the John Oxley Library should put its house in order before it moves into its new premises, the better to be able to serve the people of Queensland. The Committee was con­cerned also that the John Oxley Library was opened for inadequate hours and believes that the salaries budget should be increased to enable the library hours to be extended.

There have been proposals in Queensland, as in other states, for the State Archives to be separated from the State Library of Queensland administratively. However, the Committee found that -

the State Archives has much in common with other sections of the State Library serving the pub­lic of Queensland. It must be regarded as an important element in an enhanced information net­work for the benefit of the State.

For these and other reasons, the Committee recommends that the State Archives remain an integral part of the State Library. However, the Committee believes that the present opening hours should be extended. Concern was also expressed at the inability of the Ar­chives to provide services to the distant parts of the state and it was proposed that programs of copying relevant state archival material for placement in regional centres should be undertaken. It is also proposed that the State Archives of Queensland consider developing, as the New South Wales Archives Authority has, a genealogical resources kit.

On government library services, the debate in Queensland continues, as it does in other states, as to whether the State Library should have a direct management role or merely an advisory role in the provision of these services. The Report recognises that the professional initiatives of the staff of the State Library of Queensland have resulted in development of departmental libraries of good quality. However, having examined the pros and cons of whether the libraries should be part of the State Library of Queensland or whether they should be integral to the department which they serve, the Report plumps for the latter ex­cept where the scale of library service required doesn't warrant an independent service, in which case the Report suggests that there may be a contract with the State Library. The Re­port also suggests that the State Library of Queensland should accept responsibility for the creation and maintenance of a union catalogue of all government departmental library col­lections. The strange thing that the Report has done is to exclude any consideration of stat­utory authorities, and yet it must be that in statutory authorities there are significant collec­tions as well as significant library needs. I would have thought it would have been better to have considered government agencies as a whole rather than merely as departments. In modem government more and more functions in some states are being undertaken by quangos. I found this section of the Report equivocal and unsatisfactory.

Section 7 of the Report is substantial and deals with municipal libraries. As one would have expected, there is considerable discussion about progress that has been made. The question of mandatory legislation is canvassed and rejected on the grounds that it would not be acceptable to either the state or local government and that there are alternative means of attaining the result required, that is, of ensuring that adequate library services are made available to the people of Queensland. Many matters of detail were apparently raised with the Committee and, quite properly, it decided that these are really matters for the Board and/or the State Library of Queensland. However, on the question of subsidy, the Commit­tee has considered the matters put before it very carefully. It has rejected the thesis that what is needed is more money from the state government to enable local government to reduce rates or to enable them to do more of the same.

However, the Report recognises that Queensland is very low in the national scale of finan­cial support for public libraries, both from the state and from local authorities. The Com­mittee recommends that both should do better and suggests what is a possibly achievable objective of raising the level of financial support from $8.00 per capita in 1985/86 to $12.00 in 1989/90 on the basis of matching contributions from the state and local government. This would not make Queensland the biggest spender on libraries, but it would in the Report's

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Page 5: State and Public Libraries in Queensland

view mean that their expenditure was approaching the adequate. It must be remarked -'the merely adequate'.

The Report supports the continuance of the subsidy on the salary of qualified librarians which it believes has been effective in achieving improved levels of professional support in non-metropolitan areas. It further believes that this subsidy should be extended to library technicians and suggests a subsidy scheme of 35 per cent of salary for qualified library tech­nicians, and it is recommended that a subsidy scheme be introduced of up to 50 per cent of the initial capital cost of an ADP system exclusively related to library purposes with a maxi­mum subsidy of $50,000.

The long-standing battle between the Brisbane City Council and the Library Board of Queensland in the provision of public library services in the metropolitan area is addressed and it is acknowledged, albeit somewhat implicitly, that Brisbane City Council has not suc­ceeded in providing anything like an adequate public library service. It is also noted that Brisbane City Council does not employ a qualified librarian as its chief librarian and that the person who is employed is not of sufficient status within the council hierarchy to have much influence. The Report is critical of the fact that Brisbane City Council relies on the State Li­brary's Public Library Service for the supply of foreign language books when it has quite a large ethnic population which it ought to be serving from its own resources.

The Report recommends that the Library Board reopen discussion with the Brisbane City Council in an attempt to resolve matters inhibiting the association of the Council with the Board which might lead to improved library services in the Brisbane metropolitan area.

In looking at the Public Library Service of the State Library of Queensland and the ques­tion of regionalisation, the Committee is critical of the position taken by the Board in de­ciding that regionalisation was too difficult. The Committee does not believe that the Public Library Service can continue to provide an adequate support service to local authorities, as has been suggested, up to the 25,000 population with an ultimate objective of 35,000 popu­lation.

The Committee is at its strongest (and it is nowhere particularly forthright) is criticising the concept that the State Library through the Public Library Service in Brisbane should service areas surrounding major coastal cities, some of which are as far from Brisbane as is Canberra. The Report states that 'we believe that the best interests of the Queensland com­munity will be served if [public] library services are strongly based in those centres (i.e. the regional cities and towns)'.

The recommendation developed out of these criticisms is not tough enough. It is that the Library Board prepare a public document setting out its long-term proposals for the devel­opment of direct State Library services to local authorities, their relationship to existing in­dependent regional and joint services and the likely impact on a future management of such services. It is then recommended that there should be the widest possible discussion of this document within local government, by the library profession and by the community gener­ally so that the intentions of the Board and the Government may become widely known.

The State Library of Queensland is commended in the report for its initiative in develop­ing the On-line Retrieval of Acquisitions Cataloguing and circulation details for Library Enquiry (ORACLE) System and the Committee noted that the development of the system was hampered at one stage due to factors outside the State Library's control. However, the Report recommends that the system should be further developed, that the government should recognise its worth and make a commitment to it so that it can be developed to serve governmental departmental libraries and to serve municipal libraries in appropriate net­working arrangements.

The problem of conservation in both the State Library and the Queensland Archives is touched upon and it is noted that considerable investment is needed if the institutions are to cope with the conservation problems which face them.

A move into a new building results in both the provision of a wider range of services and

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increased demands. The Report recognises that this will happen to the State Library of Queensland when it moves and recommends that between now and when the new building is completed that an additional seventy staff be added to the complement of the State Li­brary of Queensland. An example of the difficulties created when governments do not recog­nise these facts is in Western Australia where increase in staff has been minimal to cope with the demands created by the new building.

In addition to recommending staff increases, the Report examines salaries and staffing structures. Wide-ranging recommendations are made both for appropriate classification lev­els from the State Librarian down, and for a new structure with five heads of divisions re­porting directly to the State Librarian. The report implies that an influx of new blood is needed and that these major positions should be advertised widely.

Concern is expressed for the difficulties of people living outside Brisbane in obtaining li­brary training. The Committee believes that external courses should be available from Queensland institutions to overcome the ridiculous problem of external students in North Queensland having to travel to New South Wales and Victoria for practical sessions, work­shops and seminars at the institutions at which they are studying externally.

It was noted that not one of the professional staff in the State Archives had any qualifica­tion in archival work - not that Queensland would be unique in this. The Report is of the view that scholarships should be offered to several members of staff to complete a course of study for archivists interstate and that any new positions which are created in the State Ar­chives should require that applicants hold an archival qualification.

Other staffing matters such as attendants, library technicians, and appropriate salary clas­sifications for technicians are addressed in some detail. The Committee is critical of the present course for library technicians offered by TAPE in Queensland and suggests that it should be abandoned and replaced with an appropriate course. It suggests that the Library Board of Queensland should take the initiative in this matter.

The Committee of Review expresses the view that the degree of dynamism necessary for the State Library of Queensland to exercise a leadership role is lacking; that this is not a re­flection on the State Librarian and his staff but on the parsimonious staffing levels under which the library has operated in the last decade. The Committee is concerned that the sal­ary for the State Librarian should be considerably increased to make it comparable with that in other states and that the Board itself should play a more energetic role in this matter.

The Committee believes that a library advisory committee should be established by the Library Board as a mechanism for coordination and cooperation between library services in Queensland. Such advisory committees have been established in other states to bring the li­brarians and institutions together to discuss matters of mutual interest and to develop plans for cooperation in and rationalisation of services.

The Report is critical of the lack of benefactions to the State Library of Queensland and suggests the establishment of a foundation to attract such donations, the funds from which might assist the State Library in, for example, the purchase of special and expensive items, the funding of research projects, the publication of special materials, etcetera. The commit­tee suggests that the foundation might be established before the Bicentennial and that the opening of the new State Library building could be the occasion for a major appeal with the government making a commitment to match funds raised on a dollar for dollar basis.

On the question of publishing, the Report recognises that the State Library has been un­able to develop an adequate publishing program and that this matter should be addressed by the creation of a trust account primed initially with $50,000 which thereafter could be ex­pected to be self-supporting.

In common with many other states, the library legislation of Queensland was passed in the '40s. The Report recognises that the 1943 Act, as subsequently amended, and the Oxley Memorial Library of Queensland Act of 1946 should be repealed and replaced by a single

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piece of new legislation. The Committee does not attempt to provide a draft of the legisla­tion it considers necessary. It is nevertheless appropriate to quote in full three of the recom­mendations -

• That a new Libraries and Archives Act clearly state that its purpose is to ensure the establishment and maintenance of libraries and information services of a standard necessary to meet the cultural, informa­tional, educational and recreational needs of citizens of the state, whether by way of providing such ser­vices through the state instrumentalities or by cooperation with other organisations including local au­thorities, educational institutions, federal instrumentalities and privately supported libraries.

• That there be a specific commitment in the Act to the continued provision of free library service in Queensland.

• That the functions of the Library Board be redefined.

The Committee is of the view that the Library Board of Queensland should be made clearly responsible for expenditures incurred under the present or future Libraries Acts and that all payments for purchases, expenses, salaries, etcetera incurred by the Library Board of Queensland should be made directly by the Library Board and its officers. This would be similar to the Western Australian pattern. Whether it can be achieved in these days of finan­cial stringency when treasuries have such a stranglehold on expenditures at the behest of governments, I would consider doubtful.

The Board, as proposed, comprises seven members - a person representing metropoli­tan local authorities; one for extra-metropolitan local authorities; a person distinguished in education; one in the field of commercial and industrial administration and one represent­ing historical or archival interest. It is proposed that the chairman should be appointed by the Governor-in-Council, on the recommendation (presumably) of the Minister and that the State Librarian should be an ex officio member. This is a nice little board which might be able to operate satisfactorily.

It is noted in the Report that it is undesirable that Board members should continue in per­petuity and that a limit should be placed on the terms of members on the Board. It is recom­mended that the appointments be made for three years in the first instance with an option for one renewal only with the opportunity for a further term after an absence of three years. Those with experience will know that on many boards membership continues almost for generations. This is a sound proposal.

One of the most important roles of the Board identified by the Committee is to establish, without delay, a statement of standards for the provision of library services by local authori­ties and that such standards should be made the basis on which continued payment of sub­sidy by the state will be dependent and that, in order to achieve this, proper inspection of li­brary services should be undertaken by means of field officers, the number of which on the establishment of the State Library should be increased.

What then is the general conclusion about the Report? The recommendations it makes are modest and therefore possible of achievement. To have recommended in the present financial climate grandiose plans for expansion and development would have been to have the Report immediately pigeon-holed. As the Report says at the very beginning, it is not about looking at the past but about looking at the future. It is therefore not critical of what has happened in the past so much as constructive about what should happen in the future.

Denis Richardson and his committee are to be congratulated on the production of sen­sible and straightforward report which contains no highflown verbiage but which addresses the basic issues which face the state and public library services in Queensland.

No doubt many people in Queensland who made submissions to the Committee will complain that the details of deficiencies that they brought to the attention of the Committee have not been addressed in the Report. However, I believe that the matters that have been addressed and the proposals that are made, both for new legislation and a new board, should enable all issues which have been raised by those making submissions to be addressed in the long term. It is not appropriate in a report of this kind to deal with matters of fine detail.

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Page 8: State and Public Libraries in Queensland

It is to be hoped that the Queensland Government, to whom the Report is not addressed, is made fully aware of its contents and will consider implementing progressively the sensible recommendations the Report contains.

REFERENCE I. Library Board of Queensland. Committee of Review of the State Library of Queensland. Repon of tM Com­

mittee of Review of the State Library of Queensland. Chairman: W. D. Richardson.

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