Public Library Mail Survey Findings

They are:

1. Lack of the financial resources needed to access more focused (and often higher quality) information, and/or,
2. Relative inexperience and lack of knowledge of high quality free and fee-based sites containing high quality information.

The use of West Virginia's InfoMine differs greatly by classification of library. Service centers and designate libraries report little InfoMine use. On the other hand, data collected from direct service libraries indicates that the InfoMine is a primary resource for many of these libraries.

Internet use is not limited to library managers. Of the fifty-nine administrative units reporting, fifty-one (86.4%) reported staff use of Internet. The use of various Internet resources by staff closely mirrors that of library directors and managers.

Because the consultants had identified funding concerns as a major issue, several questions were designed to gather information on this topic. Libraries were asked to identify sources of funding that should be contributing more to the support of their public library. Because libraries were allowed to indicate multiple sources, totals of responses exceed the number of libraries reporting.

The State of West Virginia is the funding source mentioned most often by libraries as needing to contribute to the support of libraries at a higher level. Forty of the fifty-nine administrative units (67.8%) mentioned the State. However, counties, boards of education, municipalities, and the federal government were also mentioned by more than half of all respondents. Only the "Foundations and Gifts" category failed to receive majority support.

When libraries were asked to identify the funding source with the greatest capacity to support libraries at a higher level, the State of West Virginia was the overwhelming choice. Almost half (48.5%) of all respondents felt that the State was in the best position to help. The federal government received the second highest rating at 17.6 percent and county government followed at 14.7 percent. The percents for all other sources were in the single digits. Libraries were also asked to indicate the percentage increase they believed the best source of additional funding was capable of providing. Overall, libraries indicated an increase of almost forty percent (39.1%).

Taken as a whole, this series of questions indicated very little hope that the contribution of local governments, a category in which West Virginia is lowest in the nation, would increase substantially. The limited willingness and capacity of local governments to support public library service is, without a doubt, the most serious concern raised in this study.

The consultants heard a great deal about the manner in which State per capita aid is distributed during the focus group sessions statewide. The retention of a percentage of state aid to affiliates and direct services libraries and the unequal quality of services these libraries receive for this funding were mentioned frequently.

The survey asked libraries whether they believe that 100 percent of per capita aid should be sent directly to all libraries. The responses to this question were mixed. While a healthy majority (67.8%) of all types of libraries responding believed that all aid payments should go directly to libraries, nineteen libraries (some of each type) answered this question in the negative.

Libraries were also asked whether they would consider contracting with other libraries or with the West Virginia Library Commission for support services such as cataloging and payroll services if they had the opportunity to "shop" for the best quality and price. Less than half of the libraries (42.4%) supported this "free-market" model.

Survey respondents were asked to rate the importance of a variety of West Virginia Library Commission services and its support at the present time. They were also asked to indicate whether these services and/ or support would be more or less important to them in the future. Almost universally, libraries saw the securing of per capita state aid as the most important thing the Commission does now, or will undertake in the future. The overwhelming majority of all libraries ranked per capita aid as a five on a five-point scale both now and in the future.

The provision of technology grants ranked second both in the present and for the future. However, the rating for technology grants increased from a mean of 4.4 at present to 4.8 in the future, indicating this will be of even greater importance over time. The importance of continuing education is underscored by the fact that this service received the largest increase of any of the services rated. Continuing education increased from a rating of 3.5 at present to a future rating of 4.3. Reference services, consulting services, services to the blind and physically handicapped, and LSTA grants were all seen as growing in importance.

At the low end of the scale, consulting services received the lowest current rank; however, it jumps ahead of several other services in the future ratings. The gifts and exchange program and audio-visual services were both given current ratings of 3.1. Gifts and exchange retains its 3.1 rating in the future while audio-visual services drops slightly to a rating of 3.0. Chart 4 shows the relative ratings of all services.

The survey explored the potential for offering some services on a regional basis as opposed to locally or statewide. Services listed were administration, continuing education, resource sharing, cataloging, and technical assistance. Survey results reveal very little enthusiasm for the regionalization of administrative units and even less support for regional cataloging centers. Less than one-third (32.2%) of the libraries favored regional administration and only 28.8 percent indicated support for regional cataloging.

It should be noted however, that over half of service center libraries (55.6%) and nearly half of direct service libraries (45.5%) favored regional cataloging. The low overall rating is due to the overwhelming opposition to the idea by affiliate and designate libraries.

On the other hand, over seventy percent (71.2%) of libraries favored the availability of technical assistance closer to home and roughly two-thirds (66.1%) supported a regional continuing education model although heaviest support for this concept came from affiliate libraries. One-half (50.0%) of other types of libraries favored this approach. Chart 5 captures the level of support for the regionalization of various services.

The survey of libraries also attempted to assess both the current deployment of computers in West Virginia public libraries and to determine what was needed in the near future. The survey found that 158 "dumb terminals" were in place in the libraries completing surveys. Almost all of these units are associated with the VTLS automation system used by many of West Virginia's libraries. Eventually, these terminals will need to be replaced with graphics-capable computers or terminals.

The largest number of computers in place are relatively up-to-date. Libraries reported having 338 computers (45.2% of the total) containing "Pentium" processors and 48 computers (6.4% of the total) with "Pentium II" processors. Even among the older computers in place, "486" processor machines (124 computers, 16.6% of the total) dominate. A relatively small number of less capable "286" and "386" computers are still in use. The survey found only one Macintosh computer in use and only a sprinkling of other models (most of which appear to be older Intel type processor models).

Libraries were also asked to estimate the number of additional computers they need at the present time and to indicate the number of computers for which they have space in their present facilities. Libraries conservatively estimated that they need 524 more computers than they now have. Only one group of libraries, the designate libraries, indicated they have more than enough space to house these computers.

The survey asked the libraries to indicate how the West Virginia Library Commission communicates with them and how they communicate with the Commission. Libraries reported getting most of their communication from the Commission via fax. Telephone calls and a growing use of e-mail were also cited. Libraries indicate that they use the telephone and fax when they wish to communicate with the Commission although again, the use of e-mail as a communication mechanism was seen as growing.

Finally, libraries were asked to rank their relationship with the West Virginia Library Commission on a five-point scale with one (1) representing "very poor" and five (5) representing "very good." Overall, the Commission received a rating of 3.7, well above the mid-point. However, there was considerable disparity among the various types of libraries with direct services libraries providing a rating of 5.0 (mean) and service centers offering a rating of only 2.4 (mean). The affiliate mean was slightly above the overall mean at 3.8 and the designate library mean was 2.6. Chart 6 shows the mean ratings by type of library.

Comparison to National and Regional Norms

West Virginia's public libraries are among the poorest in the nation when viewed from a funding perspective. Data from the most recent year for which national information has been fully compiled (1995) shows that West Virginia libraries ranked second to last (50th of 51 including all states and the District of Columbia) with an average per capita income of only $ 10.89. Only Mississippi's libraries, with per capita funding of $ 9.45, received less overall financial support. The national average (mean) per capita support for public libraries in 1995 was $ 22.35, almost double West Virginia's level. Chart 7 compares West Virginia's per capita support to that of other states (including surrounding states) and to the national average.

The majority of financial support for public libraries in the United States comes from local units of government. Almost 80 percent (78.3%) of all public library operating income is derived from local taxes with the property tax being far and away the most common source of local revenues. Chart 8 compares West Virginia's sources of income for libraries with sources of income for libraries nationally. The level of poverty in some West Virginia jurisdictions, state requirements for a minimum percentage county expenditure for public education, and a general aversion to property taxes in the State make securing dependable funding for public libraries from local governments difficult to say the least.

West Virginia's local funding for public libraries is dismal. When two states that fund their public libraries very differently than most are excluded from the analysis, West Virginia, with only 59.7 percent of its funds coming from local units of government, ranks last in local support. The two states that fall below West Virginia in the percentage of local support are Hawaii and Ohio. The State of Hawaii operates a consolidated public library system; that is, all public libraries are State operated. Over 90 percent (92.2%) of Hawaii library revenues (a total of $ 19.58 per capita) come from State tax sources.

Ohio public libraries also receive the bulk of their operating support from State revenues although the libraries are governed and managed locally. Seventy-one and seven-tenths percent (71.7 %) of Ohio's $ 40.00 per capita support for public libraries comes from a dedicated percentage of the State's income tax. Chart 9 compares local per capita support for libraries in West Virginia with adjoining states and with the national average. Note that although Ohio's local support percentage is lower than West Virginia's, Ohio's local support is greater in actual dollars in spite of the fact that Ohio's state aid support is eight times that of West Virginia.

West Virginia's lack of stable financial support for public libraries should be understood as being a serious problem overshadowing all others. The extremely low percentage of local support coupled with the low overall per capita support places West Virginia at the very bottom as far as financial support for its public libraries is concerned. Opportunities for significant improvement in library services in the State will be severely limited unless the revenue picture is substantially improved.

The West Virginia library community and the West Virginia Library Commission have attempted to offset the lack of local financial support with a strong program of direct state aid to public libraries. While the State has some reason to be proud of its status of providing per capita support above the national average (3rd highest at $ 3.33 per capita in 1995 compared to the $ 2.69 national mean), this funding by no means makes up for the lack of local support. The other two states with extremely low percentages of local support (Hawaii and Ohio) provided $ 18.05 and $ 28.66 per capita in state aid respectively. Chart 10 compares state per capita aid.

In spite of severe financial limitations, not all library service in West Virginia is sub-standard. To their considerable credit, West Virginia's people and the libraries that serve them fared better on service measures than on funding. For example, West Virginia ranked 39th of 51 states in the number of circulations per capita and 27th in library visits per capita among the 44 states that reported data for FY 1995. West Virginia also ranked 27th among 43 states reporting the number of reference transactions per capita. It is apparent West Virginians are hungry for good library service and that a dedicated corps of underpaid library workers is striving mightily to provide what they can with the limited resources available to them.

Interviews with library directors revealed that, with very few exceptions, librarians and other library staff members are poorly paid both in terms of salaries and benefits. National statistics confirm this impression. West Virginia ranked 49th of 51, ahead of only Arkansas and Mississippi, in salary and wage expenditures per capita and only slightly better (48th) when benefits are included. Surprisingly, interviews with library directors did not reveal staff turnover as a major problem except in a few areas of the State experiencing significant economic growth.

Several other observations by the consultants are also supported by the national data. With a few notable exceptions, most small and medium sized libraries seemed to have collections of adequate size to serve their populations. However, consulting team members raised serious questions about the quality of materials collections seen in many libraries. Most libraries appeared to contain a large number of worn and badly dated books especially in the adult non-fiction and reference areas. It was noted that current periodical subscriptions in most libraries were also quite limited.

West Virginia's 29th rank on volumes per capita, coupled with its 48th ranked expenditure of $ 1.67 per capita for collections, tends to indicate that West Virginia's libraries are in serious need of extensive weeding, or "de-selection" of materials. Library shelves contain a good number of books of marginal value.

"Turnover rate" measures the number of times an average item in a collection circulates in the course of a year. A turnover rate of between two and three (meaning that an average item circulates 2 to 3 times during the course of a year) can be considered within the normal range for a typical public library. It should be noted however, that libraries with sizeable research collections that are non-circulating usually have considerably lower turnover rates.

Turnover rates above three normally indicate that a library has a well-selected collection that is very actively used and that contains very little "dead-wood." A turnover rate below two usually indicates that the majority of items in the library's collection are of little interest to people in the community. The collection may contain some well-chosen materials but the predominance of old, worn, or irrelevant materials on the shelves makes quality items difficult to locate. While many West Virginia libraries have excellent turnover rates, the number of libraries with rates under one is alarming (32 of the 98 administrative units) and the overall average for West Virginia public libraries is only 1.72.

While the condition and age of the collection in many of the libraries serving larger populations is somewhat better, most of these collections are undersized. There are very few public library collections of any real depth in West Virginia. Fewer than a dozen public libraries in West Virginia reported that their book collections were in excess of 100,000 volumes in 1997. Furthermore, several of these reported collections include branch holdings that typically duplicate a significant percentage of holdings at a main library or in other branch locations. Only two libraries, the Kanawha County Public Library and the Cabell County Public Library, reported collections in excess of 200,000 volumes.

West Virginia's 42nd rank in serials holdings per 1,000 population confirms another of the consultants' suspicions. West Virginia's periodicals holdings are considerably below the national average. This reduces the value of the public library to students and accentuates the need for access to online periodicals databases.

Another concern is prompted by West Virginia's relatively high rate of reference transactions (27th rank) coupled with its low spending (48th rank) on new materials. The accuracy of answers to reference questions is suspect if collections contain dated materials since they often contain information that is no longer accurate or relevant.

An additional important factor impacts both public library funding and the overall depth of West Virginia's public library collections. Only a small percentage of West Virginia communities have a long history of public library service. As was mentioned earlier, three-quarters of the libraries responding to the consultants' survey indicated that their public library had been founded since 1950. Over half of the libraries indicated they were not in existence as recently as 1970.

One can speculate that this lack of history negatively affects local funding in two ways. First, the public library is forced to compete for funds with well-established departments and institutions such as police, fire and schools that have been in existence for much longer periods of time. Taxpayers have grown accustomed to funding these services. Libraries lacking this historical base are often left fighting over the scraps.

The second potentially negative impact is that community leaders and elected officials in places without a long history of library service often lack firsthand experience and knowledge of the benefits of libraries. They are less likely to advocate for increased library funding than are individuals who have fond memories of going to the library as a child or those who have experienced using the library's resources as a student.

This lack of a long library history also has a negative affect on the depth of library collections. Libraries one or two decades old often lack important historical works, research tools, and in-depth backfiles of periodicals.

In spite of significant odds, West Virginia libraries have managed to keep pace with most of the nation in regard to Internet connectivity. Only nine of one-hundred and eleven (8.1%) of the libraries responding to the consultants' survey of West Virginia public libraries reported that their library lacked an Internet connection. All of these library outlets were branch locations. The 91.9 percent West Virginia connectivity rate compares favorably to the most recent national data reported in The 1998 National Survey of U.S. Public Library Outlet Internet Connectivity (Bertot & McClure). This report indicated that 83.6 percent of all public library locations nationwide (including branches) were connected. West Virginia's progress is particularly good given the rural nature of much of the State. The Bertot and McClure report found public libraries in rural areas were less likely to be connected. The national rural connectivity rate was reported at 78.4 percent.

The consultant team’s recommendations are grouped into six major categories which have been identified as areas of concern through an extensive review of background data, input from the West Virginia library community gathered through focus groups, personal interviews, and the mail survey of all West Virginia public libraries. The six categories are:

1. Funding
2. Governance and Structure
3. Continuing Education/Professional Development
4. Collections/Resources
5. Technology
6. West Virginia Library Commission Services/Organization

The consultants recommend the development and pursuit of a "partnership" funding strategy aimed at increasing both State and local funding for public libraries. The long-term goal of the funding effort should be to increase the overall funding level of West Virginia's public libraries to the national average with approximately half of the funding coming from State tax revenues and half coming from local revenue sources.

The consultants have followed the activities of the Governor's Commission on Fair Taxation with interest. WVLC also needs to monitor activities related to this Commission's report on tax simplification. WVLC should carefully consider whether a shift from local property taxes could provide an opportunity to gain additional dedicated funding for libraries.

If a major shift in the structure of taxes does occur, it may be appropriate to pursue the target of attaining funding equal to the national average using a split between state and local funds more heavily weighted toward the State of West Virginia. We believe that the basics of the funding program suggested below are sound even if the majority of support for libraries came from the State.

State funding should be distributed using a multi-part formula consisting of three components. The first component, a simple per capita distribution, would be based on the service population of the library receiving the aid. The second element, an equalization component, would provide additional State assistance in areas (counties) that do not have an adequate tax base to meet local funding targets established for the program. The third component of the funding program would be an incentive program to encourage the establishment of library administrative units based on a larger unit of service (county or multi-county) and on the hiring and retention of a professional (MLS) administrator.

The initial target for the per capita factor of the formula would be a doubling of current aid from roughly $ 3.25 to approximately $ 6.50. Reaching this target would trigger structural changes and distribution changes covered in the GOVERNANCE & STRUCTURE section below (essentially the abolition of the service center, affiliate, designate, and direct services library framework with a "free-market" model). Specific standards related to percentage of budget spent on materials, hours of operation, etc. should be established as a requirement for the receipt of basic aid.

A reference is made to the Massachusetts Public Library Initiative process later in this section. While the consultants recognize that Massachusetts and West Virginia are very different, it is the process of including the library community rather than the tax environment that is of greatest importance. The development of standards for the receipt of basic state aid payments in West Virginia could be a part of a planning initiative similar to that undertaken in Massachusetts. More details regarding this effort follow.

The second portion of the formula recommended for West Virginia (equalization) would reward all libraries reaching local funding targets based on the relative prosperity/poverty of a county based on property valuation and other measures of wealth with some additional aid. However, the amount of aid awarded under this part of the formula would be inversely proportional to the relative wealth of the county. Distribution of these dollars within counties to multiple libraries would be based on service population within the county. The initial target for this aid package would be approximately $ 1.75 per capita based on the State's population (although the money would not be distributed on a per capita basis).

The initial target for the third portion of the formula would also be $ 1.75 per capita (again not distributed on a per capita basis). These dollars would be awarded only to those libraries directed by professionally trained (Master's degree in Library Science) staff and structured to serve an entire county, multiple counties, or a population base of a specified size. The intent of this aid is to encourage the growth and development of libraries in two ways. The first is to have all libraries in the State headed by professionally trained personnel. The second goal is to develop units of service with an adequate tax-base behind them to sustain a quality program of library service over time.

This portion of the formula could include some flexibility. For example, part of the program could be based on subsidizing the salary of a professionally trained director or it could be used to provide scholarship assistance to current library personnel working on acquiring their MLS. One state, Illinois, even provides scholarships to non-library employees who agree to work in the state for a specified period of time after their graduation. Mississippi provides "personnel grants" to libraries as incentives for employing professionally trained staff.

Incentive payments could have "steps" to help libraries move toward standards. For instance, libraries could receive a portion of the incentive dollars as a library director completes coursework in library science. If the MLS is seen as too high a target initially, WVLC could work with academic institutions in West Virginia or with the University of South Carolina to develop a certificate program that could qualify libraries for incentive payments. However, the consultants believe that the MLS standard should remain as an important target and that libraries achieving it should be rewarded with incentive payments.

In regard to larger units of service, several states have made significant progress in library funding using the county governance model. North and South Carolina are good examples. Other states that have moved in this direction (Arkansas and Mississippi) are still struggling and have had mixed success.

What the consultant team has presented here is an aid program intended to create a partnership between the State of West Virginia and local units of government (including counties) for the funding of public libraries. The specifics of the program should be developed within the West Virginia library community with participation of the West Virginia Library Commission, the West Virginia Library Association, and the entire West Virginia library community (librarians, trustees, friends, local officials, etc.). A model for participation in the development of this type of program is currently underway in Massachusetts under the guidance of the Massachusetts Board of Library Commissioners.

The West Virginia Library Commission should also closely track and become involved in ongoing discussions and deliberations on tax-reform/tax-fairness now underway in the State. State funding for libraries needs to be ongoing, and those states that have been most successful have managed to secure a dedicated source of funding for libraries that is ongoing and subject to inflationary growth.

Several additional funding issues need to be raised, explored, and pursued. The first is the attempt to secure ongoing support for library technology through State Lottery revenues. This effort is a worthy one and should continue. However, this should NOT be seen as a replacement for the comprehensive program outlined above. Secondly, West Virginia should pursue a specific aid program for library building purposes. Several states have such programs in place that could be used as models (Delaware, Massachusetts, etc.).

Finally, the West Virginia Library Commission should explore the possibility of taking a role in encouraging the development of private funding sources to enhance library service. Several states (Oregon, Kansas) are using LSTA dollars to fund positions that either identify and assist libraries in applying for grants or foundation funds (other than LSTA) or help libraries develop local foundations in support of library services. The consultants believe there is wealth in West Virginia that is largely untapped by the library community.

As funding for West Virginia's public libraries gradually increases, the current system of service centers, affiliates, designates, and direct service libraries should be eliminated. The consultants believe the current structure has largely outlived its usefulness and is now more divisive than helpful. However, it is also recognized that some libraries are largely dependent on services provided whether by a regional service center or by the West Virginia Library Commission. Therefore, the consultants recommend that the current system be retained (with some modification) until such time as the direct per capita aid reaches a specific threshold. (A $ 6.50 per capita amount is mentioned above as a possible level.)

A significant level of funding of this magnitude is necessary before taking this step because most libraries that move from being affiliates or direct service libraries will lose support services on which they have become dependent. A significant increased level of State funding must be available to allow them to purchase these services on the open market or to develop the internal capacity to handle the displaced tasks. The increased funding will also supplant the loss sustained by service center libraries that now retain a portion of the state aid provided to affiliates.

When the threshold is reached, all libraries should receive all of their state formula funding directly. As explained above in the FUNDING section, libraries would receive different amounts through the equalization and incentive portions of the state program. The intent of this portion of the recommendation, however, is that all dollars generated by the formula would flow directly to the libraries without any portion being retained either by the West Virginia Library Commission or by a service center library.

With the additional dollars available through the enhanced state-aid package, West Virginia's public libraries could pursue a "free-market" system of securing needed support services. All libraries would be free to contract with any other library, with the West Virginia Library Commission, or with private vendors for services such as cataloging and processing, technical assistance, payroll services, etc. In the case of services provided by the Library Commission, charges should be based on the recovery of actual costs rather than being subsidized in any way. Subsidization of libraries serving relatively poor areas would happen through the equalization portion of the state-aid formula, not through the provision of services.

The consultants believe there are many library administrative units in West Virginia that are simply too small (population served) and lack an adequate tax base behind them to sustain effective library service. Earlier we mentioned two choices open to many communities - - closing or offering substandard service. There is actually a third option.

They can:

• Close,
• Continue to offer sub-standard service, or,
• Merge with other libraries to form a larger unit of service with a viable, sustainable tax-base.

The creation of so many new libraries in the 1970s did extend access to library service to many West Virginians who had no service or marginal service in the past. However, the creation of instant and outpost libraries without an accompanying sustainable funding program has created problems as well. The design of the funding package presented above is intended to encourage small independent libraries to merge into large units of service. The consultants do NOT believe the West Virginia Library Commission should force these mergers in any way. It should, however, encourage such mergers through financial incentives and the withdrawal of artificial support systems.

West Virginia lacks many of the continuing education support systems available to librarians and library staff in other states. West Virginia has no in-state library school, and while some service centers do provide some continuing education and training, the State has no formal structure of library systems with specific responsibilities to perform an ongoing continuing education function.

The survey conducted by the consultants indicates that larger libraries are able to meet many of their continuing education needs in-house, through contracts with commercial providers, and through participation in national and/or regional conferences. Smaller libraries, however, are largely dependent on two continuing education providers, the West Virginia Library Commission and the West Virginia Library Association. While nothing in these recommendations should be construed to suggest the lessening of the role of these organizations in providing continuing education for librarianship, these efforts need to be bolstered to a considerable degree.

The consultants recommend a multi-faceted program of initiatives to address the critical need for ongoing education and training.

1. The development of two new annual "Marshall" programs that would provide three - five day on-site programs of library education at Marshall University (or at some other appropriate institution).

One program would be aimed at library workers without library degrees (especially those who are new to libraries or new to the State of West Virginia). Sessions in this program would concentrate on basic library skills and basic technology skills. The second program would be aimed at professional librarians and would concentrate on higher level reference and technology skills.

2. The establishment of five to eight "regional library education centers" to be located in libraries to achieve access to training within 1 1/2 hours drive time from any location in the State.

State or LSTA funds should be used to provide state-of-the-art distance education classrooms for approximately 12 - 15 participants at the Library Commission offices and in five to eight other locations. Host libraries would donate space for conversion to classroom use. This space and its resources would be available to other community groups and organizations when the facility is not in use for library education purposes.

The classrooms should be equipped with computer workstations for interactive technology-based training and for two-way voice and video communication among all participating sites.

3. The establishment of a permanent continuing education position within the West Virginia Library Commission's organizational structure.

A staff position should be devoted specifically to the development and coordination of continuing education programs for library staff on a statewide basis. The expectation should not be that this person would do all of the training. The Library Commission should provide funding to this unit adequate to contract with subject specialists to cover specific training/continuing education needs determined by a broad-based standing committee of librarians from throughout the State. The West Virginia Library Association should be formally represented on this committee on an ongoing basis.

4. The establishment of a professional development scholarship program aimed at exposing West Virginia librarians to exceptional library practices through field visits and participation in national and regional conferences.

The West Virginia Library Commission should fund an annual "field-trip" to an exceptional public library in another state for up to a dozen West Virginia library workers selected through a competitive application process. A small number of scholarships to cover all expenses associated with attendance at regional or national library and technology conferences should also be provided.

5. The use of a broad range of West Virginia Library Commission resources for educational purposes.

WVLC's "State Library" facility (the library in the WVLC facility that is open to the public) and the staff of that facility should be looked at in two ways. First, it should be viewed as a back-up reference resource. This aspect is covered below in the COLLECTIONS/RESOURCES section. Secondly, the State Library should be seen as a training center. An internship program should be established to allow libraries to send staff members to the State Library for a one-week period during which they would work side-by-side with State Library reference staff. The program should cover expenses for participants and compensation for a substitute/replacement staff at the participating library. Alternatively, West Virginia Library Commission staff could be "exchanged" to cover local libraries as a part of this program. This would afford Library Commission staff valuable ongoing front-line experience.

The consultant team believes these five initiatives, if fully implemented, would result in a measurable improvement of library service in the State in a relatively short period of time.

COLLECTIONS/RESOURCES

The strength and quality of library collections in West Virginia is an issue that needs to be addressed in several ways.

First, dollars need to be available for the purchase of new materials. Consequently, distribution of basic (per capita) state aid to libraries should include a requirement that a set percentage of the aid be used for collection development purposes.

Second, ongoing efforts need to be made to improve the selection/deselection (weeding) skills of West Virginia librarians.

Third, an ongoing and permanently funded program of providing online full-text periodical/journal resources needs to be a given. An expansion of the current Library Commission effort to provide ProQuest should be pursued. Statewide programs worthy of examination as models are Michigan's AccessMichigan project and Ohio's OPLIN program.

Finally, the State should play a role in developing the reference/research strengths of several large libraries. These libraries should receive non-competitive grants specifically to build their reference/research capacities. These libraries should be seen as partners with the Library Commission in providing statewide reference/research service. Partnering with large academic libraries on these efforts is also strongly recommended.

To the extent possible, the libraries should pursue a cooperative collection development strategy aimed at building specific strengths somewhere in the State. The State of Kansas is a good model for this type of cooperative collection development.

The West Virginia Library Commission should also explore the possibility of developing a "night-owl" reference service in cooperation with these libraries to raise the public's awareness of the information role of public libraries. "Night-owl" service provides telephone reference in hours after libraries are typically closed. New Jersey has a program of this type that is worthy of consideration. West Virginia’s institutions of higher learning could prove to be a valuable partner in this effort.

While additional quality reference service is one outcome of this effort, a major side benefit is increasing the visibility of libraries in the minds of the public.

On an issue related to the WEST VIRGINIA LIBRARY COMMISSION SERVICES/ORGANIZATION category, the current "Gifts & Exchange" program needs to be closely scrutinized. The program is greatly appreciated by some libraries; it is of little consequence to others. However, the consultants' concern with this program is not whether the program is liked or disliked; rather, the problem relates to the quality of materials that it puts on the shelves of West Virginia's libraries.

While some excellent titles are made available to libraries, many of the books provided are of marginal value. This program needs a thorough review and its relationship to the rotating collections and WVLC’s AV Department holdings needs to be clarified. It is our understanding that all three programs are currently being restructured.

West Virginia's libraries have made great technological strides in recent years. Internet connectivity is good, especially when the rural nature of much of the State is considered. At least basic Internet training has been provided, and most libraries are actively using at least some of the electronic resources available to them.

The state's long history with the VTLS library automation system has been both advantageous and problematic. The fact that shared automation systems are in place in many areas has been helpful in encouraging regional resource sharing and in "breaking the technological ice." On the other hand, the single vendor path has created many difficulties ranging from Y2K readiness to the portability of bibliographic records.

The consultants believe the West Virginia Library Commission does have a responsibility that accompanies its stewardship of a sizable number of State dollars that have been spent and are being spent for library technology. We do not agree with the assessment that libraries should be free to select any system they wish when there are State or Federal dollars involved. Libraries should, however, be free to select any system meeting certain technical standards.

A document entitled Compliance Standards and Guidelines for Automated Library Systems and Related Services for West Virginia Public Libraries, which was produced for the WVLC by RMG Consultants, Inc in 1997 should be used as the basis for initial standards. However, these standards are already several years old. Ideally, the standards should be reviewed and updated at least once every eighteen months.

We believe that the promulgation of connectivity and compatibility standards designed to ensure long-term compatibility of automation systems is an appropriate role of the West Virginia Library Commission. Technology vendors, including library technology vendors, make connectivity and compatibility sound simple. Unfortunately, often it is not.

The availability of State Lottery funds for technology purposes and the requirement that these funds be spent quickly created a significant problem for the West Virginia Library Commission. Few of the decisions that were made or the actions that were taken received the broad discussion and consultation that they should ideally have had.

Greater participation in decision-making on technology issues must be a given in the future. However, the West Virginia Library Commission must not relinquish its leadership role in the implementation of technology. Information technology management is always a very sensitive topic. Adherence to standards often seems to have little to do with practical day-to day applications and processes. A high degree of connectivity and compatibility is a legitimate concern on a statewide level. The only harmonious route from adherence to standards to smooth implementation is open communication.

It must also be recognized that the State Network also promulgates standards. The library needs to work within this framework and should seek to influence the statewide standards process.

The consultants recommend a statewide library information technology committee be established to facilitate the full understanding of present and future technological challenges. It is further recommended that this committee include information technology professionals from State government and from the private sector as well as librarians from the field and representatives of the West Virginia Library Commission. While the Commission will still be faced with making some hard decisions that are unlikely to please everyone, an open discussion of the problems and realities of each situation will lead to a better understanding of decisions that are made and of the rationale for those decisions.

On another topic, the consultants recommend the West Virginia Library Commission actively explore a program to make two to three year old State-owned computers available to public libraries. While libraries need new and fast computers, the "cascading" of State-owned computers to libraries for use as OPAC terminals and Internet access stations could benefit State agencies, libraries, and the public.

In the mail survey, libraries clearly indicated technology training and technical assistance (nuts and bolts on-site help) were a great need. The West Virginia Library Commission's program of regional technicians is too new to evaluate at this point; however, it can be seen as at least a partial solution to a very serious problem. This program should be closely monitored and modified to make sure that it meets the needs of local libraries.

When the consultants first visited the Library Commission offices in the spring of 1998, we were struck by its unkempt condition. Working conditions for staff members were, to say the least, less than ideal. In our review of background information, we were also surprised to find that the Commission had very few staff devoted to what is characterized as "library development" activities.

Traditionally, agencies characterized as "library commissions" have emphasized the library development aspect. A staff of "field consultants" usually carries out the work of such commissions.

Less than one year ago, the West Virginia Library Commission had only two staff members that could be considered field consultants. The WVLC needs, and is in the process of developing, greater capacity to help libraries through highly qualified on-staff consultants.

Several obstacles stand in the way of this development. First, salaries for professional librarians at the WVLC have been very low. Salaries must be sufficient to attract qualified personnel. Libraries in West Virginia will avail themselves of assistance that is offered by well-trained, well-informed, experienced consultants. They are far less likely to accept assistance or advice from consultants who know no more than they know.

It is our understanding that progress is being made in the salary arena. This is good news for the WVLC in its effort to recruit qualified personnel.

A second obstacle to offering a successful program of library development is a feeling on the part of libraries that "they don't know what it’s like out here." Field consultants need to be in the field. WVLC should seek opportunities for staff exchanges that would place field consultants in libraries throughout the State on a regular basis.

The consultants also wish to express a concern over a heavy dependence on Library Services and Technology Act to fund WVLC staff. While it is probably impossible to find a single state library agency that has no LSTA-funded staff, WVLC needs to insulate itself against collapse if and when Federal dollars for libraries are reduced or dry up.

To this end, the WVLC should closely examine all operations to determine if there are areas that can be reduced or eliminated to build its library development capacity. We have already mentioned the Gifts and Exchange program and the AV Department as areas that might be significantly restructured. This is not to say these services are necessarily bad. They may just be less important than other services, which over time will have a greater impact on the library service available to West Virginians.

The WVLC, like many other organizations, has gradually expanded its services to include programs and services beyond what might be considered "core" activities. The result is that the library community has little or no understanding of the overall function of the agency. Programs such as the Radio Reading Service and the television production program as it was previously structured are nice things to do but they are hard to justify given the overall state of West Virginia's public libraries.

The consultants believe that these services should be examined to see if they qualify as "core services." It may be that they can be restructured to meet this test. For example, the television production capabilities of the Commission could become a powerful continuing education tool.

The consultants recommend that the WVLC should pursue a planning process aimed at identifying the core services needed and wanted by the State's libraries. This process should involve all of the Library Commission's stakeholders including Commissioners, the WVLC staff, librarians from the State, library trustees, and representatives of the West Virginia Library Association, the State Legislature, the Governor's Office, and the Department of Education.

We believe the West Virginia Library Commission has made significant progress in restructuring itself into a more effective agency during the last year. Physical working conditions have improved, greater focus has been place on library development, and efforts are underway to recruit qualified staff.

Finally, a word about communication: perhaps the most vigorous complaints heard by the consultants regarding the West Virginia Library Commission are related to communications between the WVLC and libraries and between libraries and the WVLC.

Several of the recommendations that appear in this report include greater participation of the library community in determining the direction of library service in the State. In particular, the suggestion of a planning initiative revolving around funding issues (patterned on the Massachusetts model) is intended to bring the library community together in pursuit of a common goal.

The West Virginia Library community has much to gain if it can find a way to work together. There is much to lose if factions within the library community work at cross-purposes.

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