SEPTEMBER 12 (legislative day, SEPTEMBER 6), 1989.-Ordered to be printed Mr. KENNEDY, from the Committee on Labor and Human REPORT [To accompany S. 1291] The Committee on Labor and Human Resources, to which was referred the bill (S. 1291) to extend and amend the Library Services and Construction Act, and for other purposes, having considered the same, reports favorably thereon with amendments and recommends that the bill as amended do pass. INTRODUCTION AND BACKGROUND The Library Services and Construction Act was first enacted as the Library Services Act and was signed into law by President Eisenhower in 1956. It was established to assist states in extending and improving library services to rural and underserved areas. At that time it was found that only one in six Americans had adequate access to public library services. In 1964, the name of the Act was changed to the Library Services and Construction Act when its purpose was broadened to include service to urban areas and assistance for public library construction projects. In succeeding years LSCA was further broadened to include improvement of library services to the physically handicapped, institutionalized, disadvantaged, elderly, persons with limited English-speaking ability and Indian tribes and Hawaiian natives. Provisions were also added to assist states in promoting interlibrary cooperation and to help them afford updated technological equipment. Libraries continue to use LSCA funds to respond to the user's needs in this new era of information, ethnic diversity, and the global economy. LSCA funds reach all fifty states and protec torates allowing each state the flexibility to meet its individual library needs and goals. The Library Services and Construction Act was last reauthorized in 1984 (P.L. 98-480) and amended in 1988 (P.L. 100-569). S. 1291, the Library Services and Construction Act Amendments of 1989, extends the current authorization through FY 1994. S. 1291 also adds a new Title VII to the Act which provides funds for research and assessment of current public library programs. The titles contained in S. 1291 are as follows: Title I-Public Library Services Title II-Public Library Construction Title IV-Library Services for Indian Tribes Title V-Foreign Language Materials Acquisition Title VII-Evaluation and Assessment Titles I through III allocate grants to the states on the basis of a formula that includes a state matching requirement. Title IV is a set-aside of funds appropriated for Titles I through III to provide library services to American Indians and Native Hawaiians. Titles V and VI are discretionary grant programs administered by the Department of Education where awards are based on national competition. Title VII is administrative funds for the Department of Education. LEGISLATIVE HISTORY The Subcommittee on Education, Arts and Humanities held a joint hearing with the House Subcommittee on Postsecondary Education on April 11, 1989. Testimony was received from ten witnesses representing several different perspectives: the Administration, the Chief Officers of State Library Agencies, the American Library Association, Chicago Public Library, Seneca Nation of Indians and a number of public librarians from across the country. Additional written testimony was received from individuals and organizations representing a broad cross-section of the public library field including: the Association of Research Libraries, and Literacy Volunteers of America. Senator Pell, Chairman of the Subcommittee on Education, Arts and Humanities, introduced S. 1291 on July 11, 1989 on behalf of himself, Mrs. Kassebaum, Mr. Matsunaga, Mr. Cochran, Mr. Dodd, Mr. Simon, Mr. Jeffords, Mr. Kennedy, Mr. Hollings, and Mr. Glenn. On July 13, 1989 the Subcommittee on Education, Arts and Humanities held an executive session on S. 1291 and favorably reported the bill with no amendments. The Committee on Labor and Human Resources favorably reported S. 1291 on July 20, 1989 with one amendment which was adopted by unanimous voice vote. TABULATION OF VOTES IN SUBCOMMITTEE The Subcommittee on Education, Arts and Humanities passed S. 1291, the Library Services and Construction Act Amendments of 1989, by unanimous voice vote on July 13, 1989 without any amendments. Senators present were as follows: Pell Simon Mikulski Kassebaum Cochran TABULATION OF VOTES IN COMMITTEE The Labor and Human Resources Committee passed S. 1291, the Library Services and Construction Act Amendments of 1989 on July 20, 1989 with one amendment offered by Senator Simon by unanimous voice vote. Senators present: Kennedy Pell Metzenbaum Matsunaga Dodd Simon Harkin Adams Mikulski Hatch Kassebaum Jeffords Coats Thurmond Durenberger SIMON AMENDMENT Senator Simon offered an amendment that would recognize the increasing demand on libraries for foreign language materials and the escalating costs of these materials. Title V of the Library Services and Construction Act provides grants to state and local libraries for foreign language material acquisition. This amendment waives the maximum grant amount available under Title V for major urban resource libraries (as defined in the Library Services and Construction Act). The amendment allows for no more than thirty percent of the total funds appropriated for Title V to provide grants to major urban resource libraries in excess of the existing $15,000 grant cap. Seventy percent of the sums appropriated will continue to be distributed on a competitive basis to rural and urban communities alike. The amendment recognizes that in states where major urban resource libraries exist, that these libraries are a resource for foreign language materials for smaller libraries. For example, forty percent of all information requests to the Chicago Public Library from other libraries in the State of Illinois are for foreign language materials. Recognizing the greater financial burden on Major Urban Resource Libraries, the Committee adopted this language to encourage major urban resource libraries to apply for Title V fund ing. The Committee also recognizes that libraries serving smaller communities have a need for foreign language materials. To meet this need, the Committee encourages smaller libraries to apply for grants under Title V. PURPOSE AND SUMMARY As the Committee began its review of the Library Services and Construction Act in anticipation of this reauthorization, it was generally agreed that significant changes to the Act should await the recommendations of the White House Conference on Library and Information Services. This conference, which was authorized in the 100th Congress, is to be held not later than September 1991. Preliminary conferences in the states will occur at which important issues currently facing the library and information services communities will be discussed at length. The Committee believes that it is prudent to await the findings of this Conference so that its recommendations can be made part of any future Congressional discussion of this Act. In response to testimony received, the Committee decided to proceed with a reauthorization that provides minor adjustments in the existing program and makes necessary technical modifications. The most noteworthy programmatic changes from current law concern an added emphasis on technology within the framework of LSCA I, II and III and on the preservation of library materials within LSCA II and III. In addition, Title I activities have been expanded to include literacy and child-care activities; a new title VII has been added for the evaluation and assessment of LSCA by the Department of Education and various technical amendments have been included to increase flexibility and efficiency of current LSCA programs. TECHNOLOGY ENHANCEMENT The Committee has amended Title II of LSCA to expand its focus from the renovation and construction of public library facilities to include their enhancement through technology. Witnesses before the Subcommittee verified the need for access and upgrading of outdated equipment to meet the needs of the twenty-first century and a global economy. The Committee amended Title II by the addition of "technology enhancement" to the name of the title, adding a definition of the term "technology enhancement", and expanding the meanings of the terms "construction" and "equipment". Jane Hatch, the Director of the Southwest Kansas Library System and the Dodge City Public Library, noted in her testimony that the "agricultural producer, manufacturer or student in the very smallest rural community needs access to that global information network just as badly as anyone else." Yet the costs for the equipment that provides such access is high. "We are talking now about libraries that are used to using typewriters that are twenty years old, and now we are introducing technology that will have to be upgraded and replaced in four to five years to make it available and able to enter into this global market place." Many libraries have not been able to allocate funds from their operating budgets sufficient to take full advantage of technological applications. Capitalization costs have imposed a significant barrier. Is it the Committee's intent that substantial technological equipment necessary to provide access to information, that is, equipment in the nature of a capital investment, may be a permissible use of Title II funds, even though it may not be part of a construction or renovation project. PRESERVATION COOPERATION Dr. F. William Summers, President of the American Library Association, testified that a significant part of our nation's library resources is endangered and must be preserved. "The acidic nature of the paper used for books, magazines, newspapers, and government records since about 1850 will self-destruct. It turns yellow and brittle, and literally breaks or crumbles with use." Cramped and unsuitable shelving conditions in many libraries also endanger library materials which will be needed by future generations. Mr. Summers' testimony went on to show that in several states small amounts of LSCA funds have been allocated for aspects of preservation. These initiatives have largely been undertaken under Title III as part of a state's resource sharing program in which the state library works with universities, all types of libraries, information centers, networks and others. The Committee added language to Title III to authorize an optional statewide preservation cooperation program in which state library agencies would work with libraries, historical societies, archives, scholarly organizations and other agencies in a comprehensive program to ensure preservation of endangered library materials. States which choose this option would be required to develop a plan specifying the method by which the state library agency would work with these organizations to ensure that endangered materials are preserved. The added emphasis on preservation in S. 1291 parallels the Senate's recent action in passing S.J. Res. 57, a resolution that would establish a national policy to encourage the use of acid-free, permanent paper for books, records, and publications of enduring value. Forty-seven Senators joined in co-sponsoring this resolution which urgently recommends that federal agencies require the use of such paper for publications of enduring value and the use of archival quality papers for permanently valuable records. The resolution urges that similar action be taken in the private sector to curb the manufacture and use of acid papers in favor of nonacidic alkaline paper. Every book that is produced on acid free paper today reduces the total number of volumes requiring costly deacidification, and frees up preservation resources which can be used to attack the backlog of endangered publications dating back to 1850. MAINTENANCE OF EFFORT Current law includes provisions to insure state maintenance of effort in respect to annual financial contributions from state and local sources. Money that is spent each year cannot be less than the amount spent the previous two years and requires that these |