proximately 8,000 public libraries, roughly 100 are able to provide a high quality of service. Yet students, business and industry account for greater use of our public libraries than do those who read for recreation-in spite of soaring statistics on retirees who do and will increasingly need access to library facilities. In addition, the new emphasis on continuing education in adult years, both formal and informal, is putting new demands upon the Nation's libraries. We are equally concerned with the failure, or perhaps we should more justly say inability, of the majority of our elementary and secondary school and college and university libraries to meet the demands placed upon them by enrollments which are doubling in less than three decades. This inability to keep up has contributed greatly to the increased demands upon public libraries, often resulting in the displacing of adult users by students. It is to be remembered that nearly two-thirds of our elementary schools are without libraries. In our opinion, access to books, periodicals and technical materials is second only to access to an adequate teaching staff. Of almost equal value, it seems to us, is the provision carried in the legislation for the operation of library institutes. The present shortage of librarians indicates a need to attract and hold personnel in the profession for the demands made upon libraries today require staffs competent in both subject matter and library skills if library materials are to be made truly accessible to the student, the businessman, the technician, the researcher or the individual who reads for his own pleasure. In view of this demonstrable need for library development and improvement, of spiraling costs connected with libraries, and in view of the straitened financial circumstances in which most communities as well as educational institutions find themselves, we wish to express our hearty approval of all the titles of H.R. 11823. As we have said in our opening statement, the precedent provided by the Library Services Act of 1956 proves the practicability of a coordinated program for development of our libraries on a national scale which is outlined in the several titles of H.R. 11823. Hon. CLEVELAND M. BAILEY, U.S. House of Representatives, Washington, D.C. CORNELL UNIVERSITY, Ithaca, N.Y., July 27, 1962. DEAR CONGRESSMAN BAILEY: I have noted with great interest the introduction of your bill, H.R. 11823, and in particular title III which would make available Federal grants to colleges and universities for the purchase of library materials on a matching basis, provided the institution meets certain conditions regarding its own expenditures for library purposes. The expense of maintaining library collections at a level to meet the needs of the students and faculty of a large university and to keep pace with a constant flow of new important publications is difficult to meet. This provision for assistance from the Federal Government would provide a new source of much needed funds when the required conditions are met. May I express to you Cornell University's interest in the proposed legislation and our hope that your efforts to secure its enactment will be successful. I am sending copies of this letter to several members of the New York State congressional delegation in the hope that they too will lend their support at the appropriate time. Cordially, DEANE W. MALOTT. COMMONWEALTH OF PENNSYLVANIA, DEPARTMENT OF PUBLIC INSTRUCTION, STATE LIBRARY, Hon. CLEVELAND M. BAILEY, Chairman, Subcommittee on Education, DEAR MR. BAILEY: This letter is to express my strong support of H.R. 11823, but also to record my equally strong belief that the bill should be amended in one respect. Title I, as I understand it, removes the present population limit on the use of Library Services Act funds. That would both simplify the administration of the public library programs which are now being aided and expand the potential effect of the act. I favor this title. You may know that Pennsylvania has made rapid strides toward public library development in the past years. Much of the impetus for that progress has come from the Library Services Act. As a result of the Library Services Act, the Pennsylvania State Library was brought to the fore in the State government and received the administrative attention necessary to make it an effective center for library planning and development. I believe there is general agreement among the people concerned with State libraries that this kind of effect in several States has been one very important result of the Library Services Act. Title IV, as presently worded, would tend to postpone or discourage State responsibility in regard to education and training of librarians. Aside from the specific ill effect which this title could have on Pennsylvania's present activities and plans, I believe it is generally unsound to bypass the State governments. Title IV, however, has the effect of doing just that. Title IV would be improved if it were to include, beginning on line 12, an amendment such as the following: “to enable the Commissioner to arrange contracts, on the basis of a plan developed by the State educational agency, with institutions of higher education for the operation by them of short-term or regular session institutes. ***" The wording suggested here may not be entirely satisfactory, but I believe the intent is clear. While some States may not be prepared to assume this responsibility immediately, bypassing them will not encourage them to become the strong partners with local and Federal agencies they should be. Sincerely yours, RALPH BLASINGAME, Jr., State Librarian. [PEL State Bulletin, January 1962] THE FIT INHERITANCE-PENNSYLVANIA'S NEW PLAN FOR LIBRARY DEVELOPMENT PENNSYLVANIA'S PLAN FOR LIBRARY DEVELOPMENT The library code, enacted with bipartisan support in the 1961 general assembly and strongly advocated by Governor Lawrence, is more than a simple codification of existing library laws. Additionally and more importantly, it is a comprehensive program designed to initiate improvements in public library service throughout the Commonwealth. LIBRARIES-PAST AND PRESENT Deficiencies in facilities and support That library development is needed in Pennsylvania was the conclusion of a special 1958 library survey commissioned by the State librarian at the request of Governor Leader. Among the survey findings: Nearly 20 percent of Pennsylvania's citizens have no local library service whatsoever; Of those who do, 65 percent are dependent on grossly inadequate facilities; The five largest Pennsylvania cities, with but 26 percent of the State's population, are responsible for 62 percent of all local library expenditures; Pennsylvania's 91 cents per capita annual expenditures for libraries compares with a national average of $1.45; This level of library support ranks the Commonwealth among the dozen lowest States in the country. Libraries in existing statutes Acts of 1917 and 1931 formed the nucleus of current library law although other provisions throughout the statutes also relate to public libraries. With but minor modifications and with clarifying changes, these laws have been codified and incorporated into the 1961 library code. The 1917 law and subsequent amendments authorized counties and municipalities to maintain their own or to support other privately sponsored free public libraries, either by the levy of a special property tax up to 2 mills or by an annual appropriation not exceeding a 2-mill equivalent. The Public School Code permits similar library support by school districts, but limits the maximum to 1 mill and permits only second-class districts to levy a special tax. In the new library code, all local units are placed on a par, and counties, municipalities and school districts may each make a library financial effort of up to 3 mills. The 1931 act provided for State aid to county-established libraries, except in Philadelphia and Allegheny Counties. The State matches the appropriations of third- through eighth-class counties for public library support with specified percentage ratios; ranging from 20 percent in third-class counties to 125 percent in counties of the eighth class. The features of this law are also reenacted in the code except that the previous maximum subsidy of $4,000 to a single county has been doubled to $8,000. Libraries today These previously existing library laws provided a legal base for communities and counties to support their local libraries. That local tax funds do, in fact, comprise the primary source of public library support is shown by figures compiled by the State librarian. In 1959, almost 85 percent of the $10 million received by public libraries was derived from local tax moneys. In the Commonwealth today are approximately 400 known public libraries. Most of these about 360-are city or community libraries, many named after the municipality in which they are located, some bearing the name of their endowers. The remainder are county-supported. These counties have either established their own libraries or have contracted for countywide service. A PLAN FOR LIBRARY DEVELOPMENT To review the report and recommendations of a special professional library survey of the previous year, Governor Leader in 1958 appointed a commission on public library development. In addition, this nonpartisan commission of about two dozen interested citizens was to recommend a plan of action for improving public library facilities and services. The commission's recommendations, which follow closely those of the library survey, are often termed the "Pennsylvania Library Development Plan." System for services The heart of the plan is the system concept of library services; ready access by each citizen to local library service; up to 30 district libraries for more comprehensive services within a convenient distance; and a quartet of regional resource centers for research materials and highly specialized services. This threetiered system will be organized, not on a hierarchial basis, but on a federated plan. The affiliation of any local library in the federation is strictly voluntary, and no controls by regional or district centers over local library services are provided in the law. Other aspects of the Pennsylvania plan relate to the duties of the State librarian, the functions of the Advisory Council on Library Development, a program of on-the-job training for library interns, and a complicated schedule of State aid for libraries. These features of the plan, along with the federation-of-libraries concept and the codification of existing library laws, combine to form the library codePennsylvania's long-range plan for coordinated library development. State librarian Primary coordination will be achieved through the State librarian, appointed by the superintendent of public instrutcion. He will also counsel local librarians on minimum standards relating to book resources, staff, and other library matters. Encouraging library establishment, collecting library statistics, promoting library services and training library personnel are other duties of the State librarian. These powers do not appear to exceed the previous statutory authority granted the State librarian to "inspect and supervise" local libraries. Advisory Council on Library Development Serving in essence as the State library's board of trustees, the Advisory Council on Library Development consists of 12 members appointed by the Governor. It is also to act as an appeal board from decisions involving State-aid eligibility for funds. Inservice training Already partially implemented are the on-the-job training provisions in the code. Fiften students studying for graduate library degrees are simultaneously receiving on-the-job training in library services. Employed by the department of public instruction, these graduate students have also contracted to work in the State, after receiving their degrees for twice the length of their on-the-job training. In most cases the training period will be 1 year. STATE HELPS PAY THE BILL Because an expanded program of State aid is expected to supply considerable incentive for the improvement of local library services, the State subsidy provisions of the code, though complex in form, are very important. For regional centers A maximum annual amount of $100,000 is allocated to each of the four libraries serving as regional library resource centers. They are the Free Library (Philadelphia), the Carnegie Library (Pittsburgh), the Pennsylvania State University Library (State College) and the Pennsylvania State Library (Harrisburg). The money will be granted to these libraries for acquiring major research collections for statewide circulation. For district centers The Pennsylvania plan also calls for up to 30 district library centers-existing libraries which agree with local libraries to provide specialized facilities and other technical and guidance services. A few of these are college or university libraries. They would be reimbursed from the State up to 122 cents for each person in the district. The other district centers, mainly city libraries serving also as district libraries, would receive State aid of up to 25 cents for each person living in the district outside the city. For local libraries The approximately 400 local libraries presently eligible to apply for State aid include not only county and municipally supported libraries, but privately financed libraries also, as long as they are free, public, nonsectarian, and adequately serve all residents in the area. To be eligible for State aid, local libraries must meet two requirements: they must submit plans for the use of State funds, and they must make a specified financial effort. The plans are subject to approval by the State librarian on the basis of regulations promulgated by the Advisory Council on Library Development. The technical financial effort requirements vary according to the type of library, but the basic ingredients are the same: an initial qualifying local financial effort for libraries; a mandated schedule of increased local support for 5 or 10 years; a desired standard of library expenditures; maximum State aid for achieving the standard or goal, a reduced amount for failing, no State subsidy if a minimum effort is not met. The basis for determining the financial effort is the library expenditures from locally raised funds. If this amount equals or exceeds the equivalent of either $1 per capita in the library's service area or 25 cents per $1,000 of market value of taxable property in the service area (whichever is less), the library is initially eligible for State aid. This consists of 25 cents (maximum) for each person living in the area served but may be less, subject to specific appropriation. In succeeding years local library support must be increased according to a rigid mandated schedule if the library is to continue qualifying for maximum State aid. Failure to achieve the required local effort results in a reduced State payment. Failure to meet the minimum financial effort ($1 per capita or 25 cents per $1,000 market value) cuts out State aid entirely. By the end of the 6th or 11th year (according to the type of library involved), and thereafter, local library support must amount to either $2 per capita or 50 cents per $1,000 of market value-double the original minimum. State aid, however, may not exceed a maximum of 25 cents per capita. It is estimated that about half of the State's approximately 400 public libraries will initially qualify for State aid. Of these, almost 100 will also be eligible for additional "equalization aid"-extra State money for libraries with low property values in relation to their population service areas. Other forms of aid Alternatives in the State subsidy provisions of the code allow libraries to apply for State aid in more than one way, according to the type library organization involved. A merged county-municipal library, for example, will receive a State subsidy for its service to residents of the entire county. It may also apply as a local library if it provides direct services to the residents in the community in which it is located. Share of cost assumed by State It is estimated that the average community library, which serves its citizens only as a local library, will receive initially in State aid (at the maximum rate) approximately 25 percent of its expenditures. This percentage will slowly decrease through the years to a plateau of 10-15 percent, because local library expenditures will rise while the State subsidy will remain almost constant. The amount of potential State aid involved, if the plan were fully implemented, is an estimated $6.5 million maximum. For the 1962-63 fiscal year, the Governor's budget contains $1.6 million, based upon aid to the community, district, and regional libraries at approximately one-third the maximum rate provided in the code. SUMMING IT UP Pennsylvania's new library code proposes a program aimed primarily at improving local library service. Therefore, although the State will offer guidance and financial incentive, the heart of the plan is essentially one of local self-help. Inauguration of a new State-participation program such as this frequently gives rise to concerns centering on two questions: Is the State seeking to dictate local policies and actions in the area of governmental service concerned? Will "easy-to-come-by" State dollars be substituted for local revenueraising efforts and lead to wasteful spending? Insofar as the provisions of the library code are concerned, it appears that a "No" answer may be given to both questions. In the first place, participation in the program is entirely a matter of local option, and any powers granted the State librarian or other officials are rather closely circumscribed. In the second place, a local financial effort-sometimes a difficult one-is required before the State money is received. It is important, however, that the regulations established by the advisory council on library development be such as to encourage the high standards of local library service envisioned by the code, and that the subsidy be administered in a manner that will avoid wasteful duplication or overlapping in local services. Virtuous and seemingly innocuous programs-especially those with State subsidies involved from small beginnings sometimes mushroom through the years, leading to a greater degree of State subsidization and of State control. In the case of public libraries, this should not be allowed to occur. The financial support and control of public libraries is a traditionally local function. Whether adequate library service is achieved and local discretion retained depends almost entirely on local alertness and initiative that of municipal and school officials, library trustees, and-most importantly-each community's citizens. THE STORY IS THE SAME THE 1961 SURVEY OF LIBRARY SCHOOL PLACEMENTS REVEALS ONCE AGAIN THAT THERE ARE MORE POSITIONS THAN GRADUATES, AND BETTER SALARIES Donald E. Strout and Ruth B. Strout1 There were 1,715 graduates from the fifth-year programs of the 32 accredited library schools in the United States and Canada in the calendar year 1961. Of these, 1,537 went into library positions. Of these, in turn, the salaries of 1,418 (1,294 from U.S. schools, 124 from Canadian schools) were known. The average salary of the U.S. graduate was higher than ever before-$5,365; so also was the average Canadian salary, although, as in other years, it was considerably below 1 Donald Strout is a professor at the Graduate School of Library Science, University of Illinois... Mrs. Strout was formerly head librarian of the Jeffersonville (Ind.) Public Library. Source: Library Journal, vol. 87, No. 12, June 15, 1962. |