Twenty Years Forward: A Statewide Library Services and Construction Infrastructure for Delaware Libraries. Executive Summary

              Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 1
EXECUTIVE SUMMARY
Structure of the Plan
Twenty Years Forward: A Statewide Library
Services and Construction Infrastructure for
Delaware Libraries is presented in three volumes.
This Executive Summary (Volume I) is intended for
broad distribution. It contains the major findings and
recommendations from the study that formed the basis
of the Plan as well as a summary version of the Plan
itself. The Statewide Plan for the improvement of
public library services is presented in a “Balanced
Scorecard” format. This format was selected because
it lends itself to integration with the Quality initiatives of
the Delaware Division of Libraries both internally and
with ongoing work with local libraries in what can be
characterized as the Delaware Library Performance
Improvement and Quality Initiative.
Volume II presents a more detailed discussion of the
findings and recommendations from the study, a more
detailed version of the plan, and reports and
documentation regarding the various information and
data gathering efforts that were undertaken. This
includes the data and the analysis of the data collected
through the statewide telephone survey, the focus
groups, in-library surveys, library site inspections, and
peer comparisons. Volume III contains a complete set
of the individual library profiles and includes
geographic information system (GIS) maps generated
from a sampling of actual library use that show the
area effectively served by each library and a summary
report of the demographic characteristics of each
library’s service population. The profiles also report
each library’s performance on a series of key
measures and a spreadsheet that outlines the
estimated space needs for each library at five year
intervals through the year 2025. Because of the length
of volumes II and III (each over 300 pages), these
documents have been reproduced in limited quantities.
However, they are available to the public at their local
public library and through the offices of the Delaware
Division of Libraries (DDL).
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 2
Introduction
Delaware has a long tradition of offering library
service to the public. Many of the State’s libraries
have histories that date back to the 1800s with
beginnings as subscription libraries, women’s club
libraries, or as mercantile or mechanics’ libraries.
One library, the Wilmington Institute, can trace its
beginnings back to 1754. In fact, each of Delaware’s
three counties has at least one library that existed in
some form before 1900.
Unfortunately, this long history of service has not
guaranteed access to high quality library and
information services for all Delawareans in 2005.
Quality public library service is provided by some
libraries in the State; however, as a whole, Delaware
lags behind other states in most commonly applied
measures of library service.
Recognizing this shortcoming, the Delaware Division
of Libraries (DDL) and the Council on Libraries (COL)
began to question why the “First State” couldn’t be
first in the nation in providing public library
service. This desire for pursuing excellence resulted
in the issuance of a Request for Proposals (RFP)
seeking qualified consultants to work with the Division
to identify the cause of Delaware’s poor performance
and to outline a course of action that would result in
dramatic improvement.
The need for this type of comprehensive study was
underscored by a concern that the State’s generous
bond program for the construction and renovation of
library facilities, while addressing local needs well,
was being implemented without adequate
consideration of regional and statewide needs and
priorities.
Himmel & Wilson, Library Consultants and
PROVIDENCE Associates Inc, submitted a joint
proposal to carry out the year long comprehensive
planning effort and was subsequently selected to
undertake the project. Work began in mid January
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 3
2004 and has continued into the early months of
2005.
The plan outlined in this document is the result of
thousands of hours of work on the part of the
consulting team, the Delaware Division of Libraries
staff, the staff of county and local libraries, members
of library “Friends” organizations and by several
hundred citizens who participated in focus groups and
public hearings on the Plan.
This planning effort may, in fact, be the most
comprehensive look at public library service on a
statewide basis ever conducted in the United States.
The consultants wish to thank the entire Delaware
library community and especially the Delaware
Department of State, the Delaware Division of
Libraries and the Council of Libraries for their
unswerving support of this project.
Methodology
The development of a truly comprehensive plan for
library services and facilities demands a thorough
understanding of existing conditions and of the issues
confronting the libraries of the State. A large variety
of methodologies were employed to build the
knowledge base necessary to recommend specific
actions. The consultants also recognized from the
outset that crafting a credible plan that could be met
with a reasonable level of acceptance from the library
community would require an inclusive approach.
To this end, the consultants designed a multi-faceted
process that attempted to secure information from the
general public, from library users, from government
officials, from librarians and other library staff, and
from statistical data that reflects both inputs (e.g.,
number, size and quality of facilities, staffing,
collection size, available technology) as well as
outputs (e.g., circulation of materials, reference
questions answered, number of library visits).
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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A total of 432 library users were involved in 51 focus
groups held in libraries throughout the State. Another
2,080 people responded to in-library surveys
conducted using touch-screen computers in 29 of the
libraries. Over 1,200 (1,273) people, 545 of which
were not regular library users, participated in the
telephone survey conducted by the University of
Delaware.
Personal interviews were conducted with library
directors and library branch managers throughout the
State. Members of the consulting team participated in
over twenty meetings with representatives of the
library community. Included were three county level
meetings of librarians, two statewide “library town
meetings,” meetings with specific interest groups
within the library community (automation/technology,
youth services, etc.), meetings with library board
members and Friends, and regular sessions with the
Council on Libraries. The principal consultants also
conducted public hearings on the plan in each of
Delaware’s counties.
Personal interviews with more than 50 individuals
including elected and appointed officials were
conducted. Additional contacts were made with
individuals involved in specific State and library
related programs such as Livable Delaware and
UDLib/SEARCH.
Addresses from two samples of actual circulation
records (a March sample and an August sample)
were used to create electronic pin maps defining the
effective service area of each library. Individual
assessments of facilities were conducted on a
building by building basis. Spreadsheets outlining
library space needs were developed for each facility.
Library performance data from national sources was
analyzed as was information from individual counties
and libraries identified as peers for Delaware counties
and libraries.
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 5
The information from all of these information and data
gathering efforts have been considered as the
Statewide Plan was developed.
Background
As indicated in the introduction, Delaware lags behind
most other states in nearly all commonly applied
measures of library service. The most recent
comparable data available for all states covers the 2002
Fiscal Year. The graph on the next page shows
Delaware’s ranking relative to other states on “Total Paid
Library Staff (full-time equivalents) per 25,000
Population. Chart I on the following page shows
Delaware’s performance and ranking on a series of
twenty measures computed by the National Center for
Education Statistics (NCES). The data presented is
submitted by the individual state library agencies
(including DDL) through a program known as the
Federal-State Cooperative System for public libraries.
The measures include both “inputs” such as staffing
levels, number of volumes owned, and expenditures, and
“outputs” such as circulation transactions and the number
of visits (door-counts). Unfortunately, no standardized
data is available on a national level that attempts to
document or quantify the significant “outcomes” or
benefits received by individual users.
While the “First State’s” performance on two of the
measures is relatively good (Interlibrary Loan Received
per capita – 5th and State Operating Income per capita –
8th), Delaware ranked 50th out of 51 (the District of
Columbia is included in the rankings) in 2002 on Paid
FTE Staff per 25,000 Population, narrowly beating
Arkansas for the dubious honor of being dead last in the
rankings.
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 6
0
5
10
15
20
25
Library Staff (FTEs) per 25,000 Population
FTEs per 25,000 Population 22.22 7.57 12.03 11.98 7.96
High (Ohio) Low (Arkansas) Mean Median Delaware
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
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CHART I - 2002 Ranking by State
* A ranking of 51 is possible because the District of Columbia is reported along with the 60 states
Source: National Center for Education Statistics - Public Library State Summary/State Characteristics Data File for 2002
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 8
Delaware ranked 46th in Book and Serial Volumes per
capita and 45th in Reference Transactions per capita.
If Delaware’s ranking on the 20 measures reported by
NCES are averaged, Delaware places 35th among the
states. Some of Delaware’s neighbors fare better;
Maryland’s average ranking was 15th and New Jersey’s
ranking was 16th.
While it is of interest to note that Delaware’s ranking
on total per capita income and total per capita
expenditures closely correlates with its overall
performance, it is also clear from a careful
examination of the measures that the First State’s
generally poor performance is not due to any single
factor. A review of the more detailed charts and
graphs contained in Volume II demonstrates that
simply “throwing money at the problem” is not the
total solution. While it is true, more money for library
services will be necessary if Delaware is to move up
in the rankings to any significant degree, how
additional funding is targeted is nearly as important as
how much additional funding is provided.
An example of targeted funding having a positive
effect can be seen in the Interlibrary Loans Received
measure. One of the reasons that Delaware performs
well in this category is the investment that has been
made in resource sharing in the State. The
availability of national and state-level resource
sharing systems makes the process of sharing
materials feasible and affordable. For the end user or
library “customer,” shared automated catalogs offer
an easy way to locate and request materials from
other libraries.
Delaware’s performance as a state is obviously
influenced by the performance of individual libraries in
the State. When statewide data is analyzed, it
becomes clear that there is a wide variation in the
quality and quantity of library service offered.
Convenient access to high quality public library
service is often a function of where you live.
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 9
An illustration can be found in comparing the amount
that is spent per capita to purchase new materials in
each of Delaware’s counties. Public Library Data
Service statistics reveal that the national average per
capita spent by all libraries serving populations of
under 100,000 is over $ 5.00 per capita. Not
surprisingly, Delaware’s mean ($ 3.37 per capita) is
significantly lower than this benchmark. However, a
look at this measure by county reveals that the State’s
$ 3.37 average is result of the following county level
expenditures:
• Kent County $ 1.81 per capita
• New Castle County $ 4.03 per capita
• Sussex County $ 3.10 per capita
Looking below the county level reveals that
expenditures per capita by individual libraries range
from $ 0.41 per capita to $ 7.99 per capita.
It is abundantly clear from an analysis of a wide
variety of information that making progress in the
improvement in public library service statewide will
require actions that influence what takes place at the
county and local levels.
Findings
A full discussion of the data that supports the
following findings can be found in Volume II. A brief
synopsis of that data is included with each finding.
FINDING I
Taken as a whole, the quantity and quality of
public library services offered to the residents of
Delaware are sub-standard.
National statistics reveal that compared to other
states, Delaware ranks below the mean on 19 of 20
performance measures collected by the National
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
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Center for Education Statistics (NCES) and below the
median on 17 of the same 20 measures.
An illustration of the fact that Delaware is lagging
behind can be found through an examination of the
websites of Delaware’s public libraries in comparison
to library websites from neighboring states. A number
of Delaware libraries do not have web sites at all.
Among those that do, many are rudimentary and offer
little more than library location, hours, a link to their
area’s shared automation system and a link to
DelAWARE (the State’s digital library). It should be
noted that a number of Delaware libraries do have
reasonably good web sites. However, the general
status of the digital doorway to Delaware’s libraries is
clearly substandard.
An examination of library websites maintained by
libraries in Maryland and New Jersey reveals a much
stronger web presence. Their websites tend to look
far more professional and, even more importantly,
tend to provide much greater access to informational
resources.
FINDING II
The quality and quantity of library service that is
offered vary greatly by county and by locale.
County and local library level data reveal significant
disparities between and among Delaware’s public
libraries. A good example can be found by examining
circulation per capita data. In 2003, six Delaware
libraries circulated 3.0 or fewer items per person in
their service areas. At the opposite end of the scale,
six libraries circulated 8.0 or more items per person.
Delaware libraries range from a low of 0.7 items per
capita on this measure to a high of 13.7 items per
capita. The average for libraries in Kent County is 3.0
while Sussex County’s circulation per capita is twice
as high at 6.0. Within Kent County, libraries range
from 0.7 circulations per capita to 5.2 circulations per
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 11
capita. As a point of reference, the State of Delaware
mean is 5.6 and the national mean for libraries
reporting to the Public Library Data Service is over 9.0
per capita.
FINDING III
Some real progress in improving library services
has been made in recent years.
Significant capital investments by the State (through
the Delaware Public Library Construction Assistance
Act) and by county governments (particularly New
Castle County) coupled with additional State and
county investments in operational costs have resulted
in noteworthy improvement in service measures such
as library visits per capita and circulation per capita.
The State of Delaware and the Delaware Division of
Libraries have exercised considerable leadership in
encouraging the adoption of new technologies, in
expanding continuing education and training efforts
for library staff, as well as taking an active role in
public library facility development. DelAWARE, The
First State’s Digital Library, has expanded the breadth
of information resources available in the smallest
libraries in the State.
County library operations in all three counties have
also grown stronger. Operational support for public
libraries from County governments has increased and
County operations in New Castle and Sussex
Counties are exercising a greater role in coordinating
library development within their jurisdictions.
FINDING IV
Much of the progress has been due to greater
involvement of county governments in
coordinating and funding library services.
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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The greatest progress has been made by libraries
that have received additional county tax revenues.
Far less progress has been made by libraries that are
the most dependent on municipal revenues. It should
be noted that the Dover Public Library has performed
reasonably well although the majority of its support
comes from its municipal government. Only three
public libraries in Delaware receive 50 % or more of
their operational support from municipalities. All three
of these libraries are located in Kent County.
New Castle County has continued to encourage
independent libraries to become County libraries.
The Woodlawn project in the City of Wilmington is a
concrete example of these efforts.
FINDING V
Unless a concerted effort is made to improve
library services quickly, Delaware is likely to fall
further behind (especially in terms of per capita
measures) because of its significant population
growth.
Population projections for the State of Delaware
indicate that more than 1,000,000 people will reside in
Delaware by the end of the twenty year time horizon
covered by this plan. Depending on which projections
are used, this represents an increase in population of
between 18% and 20% by the year 2025. Delaware’s
investment in public libraries will need to significantly
exceed the growth rate if there is an expectation that
Delaware will realize more than marginal
improvement.
An additional issue relates to the large number of
non-resident users of Delaware libraries. Nearly 30%
of the registered borrowers at the South Coastal
Library (Bethany Beach) and at the Rehoboth Beach
Library are non-residents. The non resident total at
the Lewes Library is nearly 10%. Good libraries are
an attractive incentive that encourages investment in
Twenty Years Forward:
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Executive Summary
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Delaware. However, non-residents add significantly
to the service populations of a number of beach (and
border) communities. Non-resident populations must
be factored into any library service equation in these
areas. Finally, it should be noted that many non-residents
are coming from states and areas that offer
a higher level of public library service than they find in
Delaware. These people bring their high expectations
with them when they spend time in the First State.
FINDING VI
In general, Delaware has too many library
buildings but not enough library space to offer
high quality library service.
With 33 library facilities (there are also two
bookmobiles in operation in the State), Delaware has
roughly one library for every 25,500 people. While
this ratio of facilities to population is reasonable, there
are extreme variations in the populations served by
individual libraries.
If the effective service area populations calculated by
the consultants are used, ten of Delaware’s libraries
have service populations under 10,000. Four of these
libraries serve populations of 4,000 or less. At the
other end of the spectrum, six libraries in the State
serve populations in excess of 60,000. It is of great
interest to note that these six libraries, four of which
are 25,000 GSF or larger in size, account for 52% of
the State’s total circulation of library materials.
The outstanding success of larger facilities such as
New Castle County’s Bear and Brandywine Hundred
branches illustrates that larger buildings that serve a
broader area usually generate much greater use than
small libraries serving a limited population base.
Both Sussex County and Kent County operate
bookmobiles. While the notion of a bookmobile as a
suitable substitute for a physical facility is both
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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romantic and historically accurate, changing
demographic patterns, especially the prevalence of
two-income families, has altered the most effective
model of bookmobile service. The days of
establishing a successful daytime bookmobile stop at
a general store or at an intersection in a rural area are
largely past. Instead, bookmobiles are most effective
as outreach tools that serve concentrated clusters of
the population that are limited in mobility. Daycare
centers and senior housing facilities are examples.
Bookmobiles can also be used for community stops;
however, evening and weekend stops should be the
rule rather than the exception.
FINDING VII
Almost without exception, Delaware’s public
libraries are badly understaffed.
We have already pointed out that the State of
Delaware ranks 50th out of 51 (the 50 states and the
District of Columbia) in Paid Full-Time Equivalent
Staff per 25,000 Population. The First State’s rank is
43rd in categories that measure the number of
librarians holding a Master’s degree in Library
Science from an American Library Association (ALA)
accredited program per 25,000 in population and 43rd
in the number of staff categorized as librarians who
lack the ALA accredited degree. Delaware’s showing
is even worse (47th) in the “other” staff category that
would include library associate and clerical positions.
The consultants also discovered that many library
directors and other staff in Delaware receive little or
nothing in the way of benefits. This situation is
especially prevalent among the ‘independent” libraries
that are established as 501 (c)(3) organizations. This
lack creates difficulties in the recruitment and
retention of qualified staff in addition to creating
significant personal hardships.
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 15
FINDING VIII
Taken as a whole, Delaware’s library collections
are too small and, in many cases, are out of date.
The FY 2002 NCES statistics ranked Delaware 46th
among the states in terms of Book and Serial
Volumes per capita. The First State performed
somewhat better (37th) on measures of both audio
and video formats.
2003 statistics from Delaware libraries indicate
improvements in all three areas (books and serials,
audio units, and video units) from 2002 levels.
Nevertheless, Delaware still has a good distance to
go in developing its basic library resources.
Furthermore, national and State statistics do not
reflect the quality of materials that are owned. From
the consultants’ time spent on-site in Delaware
libraries, we are aware that some libraries have
active, well-chosen collections while more than a few
other collections contain a high percentage of dated
and worn materials. In many cases, these materials
were gifts from library users.
The measure known as “turnover rate” provides a
relatively easy way to assess the “freshness” and
relevance of library collections. Turnover rate simply
looks at the number of volumes owned and the
number of times these items circulate on average
during a year’s time. In other words, if a library has
10,000 volumes and a circulation of 10,000, the
turnover rate is 1.0. If the 10,000 volumes generate
20,000 circulations, the turnover rate is 2.0. Higher
turnover rates are an indication that users are
interested in what they find on library shelves.
In 2003, turnover rates in Delaware libraries ranged
from 0.58 to 7.04! Several of the larger New Castle
County libraries perform particularly well on this
measure indicating that their collections contain
materials that their users want. Very low turnover
rates (anything below 1.0 certainly qualifies as being
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 16
low) often signal that a collection may contain a lot of
“dead wood.” The library may well have some good
materials. but these items may be lost among many
other materials that are old, unattractive, and dated.
Some libraries in Delaware need to address relatively
low volume counts. Others need to reduce the size of
their collections to make well selected materials more
visible and accessible.
FINDING IX
Residents of some areas of the State lack
convenient access to in-depth library resources
and collections.
The combination of relatively small libraries and a
very small number of library professionals in the State
leaves Delaware residents with less in the way of
reference service than is common in other states.
There are only a few libraries that have what might be
considered in-depth resources, collections, and
reference assistance.
Ideally, every Delaware resident would have access
to such resources within their own county in the form
of a resource library designed to fulfill county-level
needs. In fact, many states in the United States have
some form of State Aid that recognizes this need and
designates specific libraries as “County Resource
Libraries.” In some states, these libraries are
supported primarily with county funds; others are
independent libraries that receive state or county
subsidies to support more in-depth services. This
concept is very consistent with the idea of having at
least one “Anchor” library in each of Delaware’s three
counties.
Twenty Years Forward:
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Executive Summary
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FINDING X
Delaware has several positive assets that can be
used to address many of the deficiencies that
have been cited.
While the overall status of Delaware libraries may at
first seem a bit bleak, the First State has many assets
that it can bring to bear on the problem. Delaware
has several programs of which it can be justifiably
proud. The DelAWARE database licensing program
offers electronic access to high quality resources.
The First State’s bond program for public library
construction is one of the finest in the country.
General State Aid support has been strong and
elected officials have been supportive of efforts to
improve the quality of life enjoyed by Delaware
residents in general and specifically, the quality of
library services enjoyed by State residents.
Furthermore, the State’s Council on Libraries and the
staff of the Delaware Division of Libraries (DDL) have
a vision for improved library services that continuously
asks, “why not the best?” Librarians throughout
Delaware are fully engaged with the DDL on
numerous projects and initiatives to improve service.
Advocacy (and financial support) for movement to the
development of a Statewide automated integrated
library system is another bright spot. Library
customers clearly expressed their preference for
shared catalogs in the focus groups that were held
throughout the State. (In fact, the public expressed
their desire for an integrated catalog that includes not
just public libraries but academic libraries as well.) A
broader shared catalog can result in greater efficiency
in resource sharing, more coordination in collection
development, and the reduction of duplication of
resources.
Finally, and perhaps most importantly, the public is
supportive of public libraries. The telephone survey
that was conducted as part of this planning effort
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
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Executive Summary – Page 18
revealed significant support for libraries. In fact,
89.9% of all respondents said that public libraries
were either “vital to the quality of life in their
community” or “very important to the quality of life in
their community.” Not surprisingly, a higher
percentage (92.7%) of regular users of libraries
selected “vital” or “very important.” However, the
most encouraging news of all may be that 84.1% of
people who do not use Delaware’s public libraries
also concurred that libraries were either “vital” or “very
important.” Public support for the public library as an
important institution is alive and well in the First State.
A FINAL FINDING
The final finding is not so much a finding as it is an
invocation to action. The consultants believe that it is
in the State of Delaware’s own self interest to
continue to support the development of high quality
public library services. A recent study conducted by
the University of South Carolina looked at the
economic impact of expenditures on public library
services. The conclusion of the study was that South
Carolina receives $ 4.48 in value for every dollar
spent; a 350% return on investment. A link to the
study can be found at:
http://www.libsci.sc.edu/SCEIS/home.htm
The consultants believe that dollars provided for the
improvement of public library facilities and services
are dollars invested rather than dollars spent and that
the return on such an investment goes well beyond
the financial analysis covered by the South Carolina
study. It is extremely difficult to measure the benefit
derived by the State when a pre-school child is
introduced to the world of books and literature in a
way that causes her or him to become a lifetime
reader. It is impossible to calculate the cost to the
education system if a middle school child is denied
the help she or he needs while working on her or his
first “research paper.” And this says nothing of the
Twenty Years Forward:
A Statewide Library Services and Construction Infrastructure for Delaware Libraries
Executive Summary
Himmel & Wilson, Library Consultants/PROVIDENCE Associates Inc
Executive Summary – Page 19
value added to Delaware’s property base and to the
State’s businesses when retirees from Maryland or
New Jersey decide to build a home in Delaware
because the community they have chosen has a good
public library. Our final finding if that public libraries
are not only vital to the quality of life in the First State;
public libraries are a fiscally sound investment as well.
Balanced Scorecard
As the findings demonstrate, no one factor is
responsible for Delaware’s overall poor performance
on standard measures of library service. The problem
is not a single-faceted problem. Rather, it is a series
of related problems. As such, the situation must be
addressed in a holistic fashion.
The statewide plan for library services in the State of
Delaware is intended to be one piece in a larger
framework of planning for public library services in
Delaware. It is seen as the top level of a series of
planning efforts that, together, will move the
performance of the First State’s libraries from their
present status in the lowest quartile nationally to the
forefront of what twenty-first century libraries can and
should be. The Vision of the Delaware Division of
Libraries is that, “Residents of the First State will have
public library service that is second to none in the
nation!”
Making this vision a reality will require a cooperative
and coordinated effort between and among many
entities. While the Delaware Division of Libraries and
the State government are key players in the mix,
becoming a leader in library services is highly
dependent on the actions of local and county libraries
as well as on the governments that fund them. One
of the important roles of the Division of Libraries and
of the State government will be to develop and
implement policy and funding initiatives that
Twenty Years Forward:
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encourage local governments and libraries to pursue
the objectives outlined in this plan.
Because each library in the State is different and
serves a different population, some planning will be
needed at the local level. However, the efforts
already undertaken as part of the statewide planning
project mean that individual libraries will be well on
their way to developing plans that are linked to the
State plan before they even begin.
The State Plan has been crafted using a technique
referred to as a “Balanced Scorecard.” The Balanced
Scorecard method of strategic planning emerged in
the late 1980s and gained wide popular acceptance in
the 1990s based on the work of Robert S. Kaplan of
the Harvard Business School and his colleague David
P. Norton. Because the balanced scorecard can
easily be “scaled” to encompass the needs of large
organizations that have many tiers, the approach has
also been very successful in situations in which
separate entities share a common vision. The
diagram on the next page illustrates how the
statewide plan, the Delaware Division of Libraries’
own plan, and individual library plans will be linked
together.
There are two major reasons for adopting the
balanced scorecard planning approach on a statewide
basis. The first is that the balanced scorecard
attempts to simplify and streamline the key points in a
way that is easy to understand. This is extremely
important when planning is being done
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across a number of entities even if they do share the
same ultimate goal. It is extremely important that all
libraries in Delaware understand what the State
hopes to accomplish and how the statewide vision
relates to their library. A second related reason for
adopting the balanced scorecard approach is that it is
designed to encourage linkages between individual
plans. This aspect of the planning method provides a
mechanism that lends itself to working together to
achieve common objectives.
A BRIEF INTRODUCTION TO THE BALANCED
SCORECARD APPROACH
The balanced scorecard has many similarities to
older, more traditional methods of strategic planning.
The approach uses a structure of objectives,
measures, and activities that will seem familiar to
most people who have participated in other planning
efforts. Perhaps the greatest difference is that the
balanced scorecard is structured around looking at an
organization, or in the case of the statewide plan, at a
service system, from several different viewpoints. In
balanced scorecard parlance, these viewpoints are
called “Perspectives.”
The perspectives create a bottom-up hierarchy that
organizes the Plan’s priorities in a very streamlined
way. The perspectives used for this Plan are
presented on the next page. They should be read
from the bottom of the diagram to the top. In other
words, the Financial/Policy perspective is the base,
and while it is critical to the success of the system, the
most important perspective relates to the Customer
and the value that customers receive from their public
libraries.
Each perspective links and supports the perspective
above it. All of the components of service including
staffing, collections, and technology build to meet
customer needs and demands.
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The arrow on the right hand side of the diagram
shows that if customers are highly satisfied and if they
are receiving value from the services that are
provided, they will support additional funding to further
improve those services. In other words, an initial
investment in libraries is used to deliver highly valued
services and that, in turn, will "earn” greater financial
support.
INTERNAL –
Greater
efficiency and
effectiveness
LEARNING &
GROWING –
Well trained
staff with the
right skills
and
competencies
CUSTOMER –
Greater
customer
satisfaction
and increased
value
FINANCIAL/
POLICY –
Investment in
library and
information
services
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Much of the rest of the balanced scorecard approach
bears great similarity to more traditional planning
methods. There are objectives within each of the
perspective areas, and a mechanism for the
measurement of progress toward each objective is
built into the plan from the start. The “action” phase
of the plan comes in the form of “initiatives” directed
to the desired improvements at each level.
THE FUNDAMENTALS OF THE PLAN
Balanced scorecard planning, like most other
planning processes, starts with mission, vision, and
values. Following is an attempt to express these
concepts on behalf of the entire system that makes up
the public library service delivery framework.
Mission
The public libraries of Delaware ensure that all
Delawareans have access to quality information
resources and services that enable them to be
successful and to enjoy a high quality of life.
Vision
The First State will offer public library service that is
“First in the nation!”
Values
• The free exchange of ideas is fundamental to a
democracy.
• All people should have free access to high
quality information resources.
• Reading is a fundamental life skill.
• Information literacy is a critical skill in an
increasingly technological society.
• Reading, listening to and/or viewing library
materials for pleasure enhances quality of life.
• The public has a right to expect that tax
supported organizations will be efficient and
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effective and that they will strive for excellence
in everything they do.
In addition, participants in DDL “Be Our Guest”
workshops in 2002 underscored that Delaware
libraries embrace the values of Access,
Excellence, and Service represented by the
following statements adopted by the American
Library Association as being among its core
values:
• Access - All information resources that are
provided directly or indirectly by the library,
regardless of technology, format, or
methods of delivery, should be readily,
equally, and equitably accessible to all
library users.
• Service - We provide the highest level of
service to all library users ...We strive for
excellence in the profession by maintaining
and enhancing our own knowledge and
skills, by encouraging the professional
development of co-workers, and by
fostering the aspirations of potential
members of the profession.
STRATEGY MAP
As indicated earlier, balanced scorecard planning
tries to strip down the plan to the essentials to make it
easy for all who are working within the system to
understand and to display this information is a way
that is easy to grasp. An initial step in this effort is the
creation of something called a strategy map. The
next page presents the statewide plan in the form of a
strategy map.
The perspectives in the plan are ordered in the
fashion that has already been described. The
“customer,” or potential customer is every resident of
Delaware (whether a full-time resident or
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Customer
Internal
Learning
& Growth
Financial/
Policy
Expand
Customer
Base
Retain
Existing
Customers
Increase
Value to
Customer
Optimize
Facilities
Improve
Resource
Enhance
Access
Develop
Required
Competencies
Develop
Leadership
Recruit &
Retain
Qualified
Staff
Foster
Innovation
Encourage
Local
(County)
Investment
Streamline
Governance
Generate
Developmental
Policies
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a seasonal resident). Satisfying the customer by
providing information and services that are relevant,
valued, and that contribute to the quality of life in the
State is the ultimate goal.
The plan proposes a step by step approach that starts
at the bottom and gradually works its way toward the
top of the chart. This is not to say that steps aimed at
accomplishing objectives throughout the plan will not
happen simultaneously. However, it does suggest
that complete success at the “Customer” level cannot
be realized unless progress is made at the
Financial/Policy, Learning & Growth, and Internal
levels.
The bottom-up hierarchy that is expressed in the chart
would suggest that work aimed at meeting the
objectives that appear in the pink ovals is extremely
important. As work is done toward achieving the
objectives of optimizing facilities and improving
resources, the strategies employed to accomplish
these objectives should be assessed in terms of
whether actions encourage county investment,
encourage the streamlining of governance structures,
and employ policies that are developmental in nature.
A CLOSER LOOK AT THE PLAN
While this Executive Summary version of the plan is
intended as an overview, we will attempt to provide a
quick overview of what the plan will require in the way of
action. Each of the objectives that are contained in the
ovals on the previous page are the subject of specific
strategies and actions in the full plan. For example,
several developmental policies are recommended that
attempt to improve the potential for success in achieving
other objectives.
One example of the interrelationship between and
among the objectives can be seen by looking at the
“Generate Developmental Policies” objective in tandem
with the “Optimize Facilities” objective. The plan
recommends the adoption of a policy that would have
the State award a higher percentage of construction
costs for Anchor libraries or for the merging of libraries
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called for in the plan than for “Community” libraries that
do not involve mergers. The purpose then of the
Developmental Policies objective is to encourage highly
efficient facilities.
Another example is a recommendation that the State of
Delaware develop a program of “Quality Library Aid.”
This program would not replace the current aid program.
Rather, it would provide incentives to libraries to meet
performance targets. In this example, the new funding
initiative would result in better performance in the Plan’s
objective of “Improve Resources.” This is because one
of the measures that would be applied to determine
Quality Library Aid relates to the size of library
collections.
Each of the objectives in the plan is the subject of a
series of measures designed to assess the progress
that is being made toward reaching the objectives. (A
summary of recommended measures is contained in
APPENDIX A.) Let us continue to use the volumes per
capita example we used above. Specific statewide
targets and individual library targets are established
in the plan. When possible, the statewide targets are
established in comparison to national norms. Targets
for statewide improvement are set at one standard
deviation above performance during the previous year.
The following chart illustrates this approach:
Volumes per Capita
0
2
4
6
8
10
12
14
16
18
0 1.17 2.21 3.25 4.29 5.33 6
2002
Mean
(All States)
3.25
Number of States
2010
Delaware
Target
3.09
2002
Delaware
Actual
2.05
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In this instance, the chart is based on the
performance of the 50 states and the District of
Columbia as reported to NCES. As was
acknowledged earlier, Delaware’s performance of
2.05 volumes per capita is quite low. The curve
shows that only a few states had lower volume counts
than Delaware. The numbers across the bottom of
the chart represent “standard deviation” from the
national mean or average. Standard deviation is a
way of measuring the degree to which individual
scores, or in this case, the number of volumes per
capita, differ.
We have established the statewide target at the value
of one standard deviation higher than the base year’s
performance. You will note that the standard
deviation, or the difference between the numbers at
the bottom, is 1.04. Since Delaware is currently at
2.05, an improvement of one standard deviation
would be 3.09 (or 2.05 + 1.04). As you can see, this
is not the final solution. In fact, Delaware would still
be below the national mean. However, the standard
deviation approach represents making real progress
in an incremental way.
Targets for local libraries would also be based on their
current performance. If a library currently had 1.00
volumes per capita, it would not initially be expected
to reach the 3.09 target. Rather its target would be
2.04 (or 1.0 + 1.04), which represents one standard
deviation above its current level.
This approach also has the advantage of encouraging
continuous improvement. Each year, targets would
be readjusted upward as statewide performance
improves. The hope is that eventually, this
incremental improvement will place Delaware among
the top tier of libraries.
Libraries would not be expected to achieve the targets
that have been established in a single year. In fact
the timeframe for improvement varies from measure
to measure. The point of establishing the specific
targets and providing incentives for doing so is to
encourage progress.
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THE OPTIMIZE FACILITIES OBJECTIVE
Much attention has been given to the “Optimize
Facilities” objective. One of the major goals for the
Statewide Plan has been to clarify how the State
could maximize the benefits derived from the
Delaware Public Library Construction Assistance Act.
The Optimize Facilities objective speaks to the needs
identified in Finding VI. (In general, Delaware has
too many library buildings but not enough library
space to offer high quality library service.) Many
actions will be required to achieve this objective. We
have included the documents that outline some of this
activity as APPENDIX B.
One of the specific targets established for this
objective is the establishment of at least one Anchor
Library in each of the three counties. This
recommendation is based on the fact that larger
facilities designed to serve a larger population and a
larger area are more efficient to operate and generate
greater use (e.g., more library visits per capita, more
circulation per capita). However, the action of
establishing at least one Anchor facility in each county
also addresses the need identified in Finding IX
(Residents of some areas of the State lack
convenient access to in-depth library resources
and collections.) This illustrates the way in which
the Plan, its objectives, and the actions taken to
implement it are connected to the Findings.
The Plan also establishes a statewide target of 1.0
Gross Square Feet (GSF) per capita. This does not
mean that each building should be sized to exactly
1.0 GSF per capita. However, this target would apply
on the county level as well as at the State level.
The Plan also establishes other ways of measuring
progress toward reaching the Optimize Facilities
Objective. Since fewer but larger facilities would lead
to higher use and greater efficiency, larger facilities
are recommended. It is relatively simple to measure
progress by looking at the average size of facilities.
An increase in the average size is a simple indicator
that progress is being made.
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Summary
Twenty Years Forward: A Statewide Library
Services and Construction Infrastructure for
Delaware Libraries is an extremely ambitious plan.
It attempts to change the way that the State of
Delaware approaches the development of library
services. The Plan will not be successful if it is
viewed as the Delaware Division of Libraries’ plan
FOR Delaware’s libraries. True progress will be
made only when the Plan is embraced by the library
community as its own plan for improvement.
The Plan demands a close working relationship
between and among a wide variety of stakeholders.
These stakeholders include:
• local libraries including their staff, Board
and Friends;
• local units of government;
• the DDL and the Council on Libraries;
• elected and appointed county officials;
• the Office of the Secretary of State; and,
• the Executive and Legislative branches of
State government.
The Plan takes a holistic approach that closely links
components of the plan to each other. Facilities are
not an end in themselves; rather, they are a
mechanism for improving access. Policies are
designed to encourage and reward development
rather than to punish.
The Plan establishes very specific targets for
improvement that are not “one size fits all” solutions.
Rather, the performance targets attempt to meet
libraries where they are and make measurable
progress toward the indicator of success.
Finally, it must be noted that implementing this Plan
will take a tremendous amount of work. Yes, this is an
ambitious Plan; but it is also a practical Plan that sets
its sight on the goal of making the First State first in the
nation in public library service.
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APPENDIX A
PLAN OBJECTIVES AND MEASURES
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Delaware Balanced Scorecard Objectives and Measures
PERSPECTIVE - CUSTOMER
OBJECTIVE - Expand Customer Base
MEASURE – Total Number of Registered Borrowers
MEASURE – Number of Children Registered
MEASURE – Registered Borrowers as a Percentage of Service
Population
OBJECTIVE - Retain Existing Customers
MEASURE – Comparison of Registrations to Baseline
Registrations (previous year)
MEASURE – Number of pre-school story hour “graduates” that
participate in children’s programming for older children
MEASURE – Periodic In-Library Survey Results (Survey can
provide data used for several objectives)
OBJECTIVE - Increase Value to Customer
MEASURE – Periodic In-Library Survey Results (see above)
MEASURE – Service units per capita (refined composite measure
including circulation, reference, program attendance,
etc.)
MEASURE – Electronic resource use (Use of the SAM system will
help measure a number of specific categories of use)
MEASURE – Number of contacts with users or potential users to
determine customer needs (focus groups, surveys,
community meetings, etc.)
PERSPECTIVE - INTERNAL
OBJECTIVE - Optimize Facilities
MEASURE – Number of Anchor Libraries
MEASURE – Average Size of Facilities
MEASURE – Square Feet per capita (progress toward 1.0 GSF/capita)
OBJECTIVE - Improve Resources
MEASURE – Volumes per Capita & Turnover Rate (refined
composite measure to avoid large collections that are
poor in quality)
MEASURE – Number of Public Computers with Internet Access
MEASURE – Number of web pages with significant information
content offered by Delaware’s public libraries
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OBJECTIVE - Enhance Access
MEASURE – Population proximity to Anchor Library
MEASURE – Convenience of Hours of Operation (weighted for
evenings and weekend hours in most cases; however
individual libraries can weight convenient hours
differently if demographics suggest this is appropriate)
MEASURE – Number of inter and intra library loans handled by
shared automation systems (may also factor in other
collection sharing mechanisms)
MEASURE – Average frequency of ILL deliveries (van deliveries)
MEASURE – Mean delivery time for ILL requests
OBJECTIVE - Refine Internal Processes
MEASURE – Processes Targeted for Review and
Improvement (Quality, not quantity of these efforts.)
MEASURE – Number of Benchmarking Contacts Related to
Continuous Process Improvement
PERSPECTIVE - LEARNING & GROWTH
OBJECTIVE - Recruit & Retain Qualified Staff
MEASURE – Number of ALA Master’s Degreed Librarians
MEASURE – Wages and Benefits per FTE
MEASURE – Professional Staff Turnover
OBJECTIVE - Develop Required/Emerging Competencies
MEASURE – Number of participants in Library Associate Training
Institute (LATI)
MEASURE – Number of Courses and Number of Library Staff
completing courses related to Western Council
Competencies and/or number of continuing education
units (CEUs) awarded
MEASURE – Number of State Certified public librarians (new
program)
OBJECTIVE - Develop Leadership
MEASURE – Number of participants in State, regional, or national
library leadership institutes
MEASURE – Number of multi-state Library Leadership events
planned and implemented
MEASURE – Number of public library staff members (different
individuals) elected to posts in state, regional, or
national professional library organizations)
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OBJECTIVE - Foster Innovation
MEASURE – Number of Innovative product and/or services
introduced to the library community and supported
with incentives for adoption
MEASURE - Number of libraries participating in State or DDL
initiated innovative efforts
MEASURE – Number of awards given to public libraries or library
staff for innovative projects/efforts
PERSPECTIVE - FINANCIAL/POLICY
OBJECTIVE - Encourage Local (county) Investment
MEASURE – Number (or size in $) of performance based incentive
programs implemented (Quality Aid)
MEASURE – Amount of increase in county funding for library
operations (compared to baseline year)
MEASURE – Amount of increase in county funding for library
capital projects (compared to baseline year)
OBJECTIVE - Streamline Governance
MEASURE – Number of Independent Libraries that join county
libraries
MEASURE – Number of 501(c)(3) libraries (reduction) with
conversion of 501 (c)(3) status to foundations that
carry out education and fund-raising efforts
OBJECTIVE - Generate and Apply Developmental Policies
MEASURE – Number of incentive programs and policies
implemented that advance other objectives in the plan
MEASURE – Annual review of the effect of developmental policies
on other Plan objectives
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APPENDIX B
DETAIL ON OPTIMIZE FACILITIES ACTIVITIES
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FACILITY RECOMMENDATIONS
GOALS TO ACHIEVE BY 2025
The following nine goals are recommended. The goals are achievable by
2025. They are:
• Library space equal to one square foot (SF) per capita
• Ninety percent of the residents living within 10 miles of a Community
or Regional Library
• Eighty percent of the residents living within 20 miles of an Anchor
Library
• Library materials collections (all formats) equal to 3.09 items per
capita
• Personal computers (PCs) equal to one PC for every 20 visits per
day per building (a building with an average of 500 visitors per day
would need 25 PCs for public use)
• Library parking spaces equal to one space per every 200 SF of
building space per building for Community and Regional libraries
• Library parking spaces equal to one space per every 300 SF of
building space per building for Anchor libraries
• All buildings to be fully ADA compliant
• All new buildings to be LEEDSTM certified or to consider “sustainable
architecture” approach to “green buildings”
THREE TYPES OF LIBRARY FACILITIES
Three different types of library facilities, and thus three different sized
library facilities, are recommended. They are:
• Anchor Library
• Regional Library
• Community Library.
Anchor Library
An Anchor Library will be the largest type – in every respect – in the
State. It is recommended that there be at least one Anchor Library in
each of the three counties, and the more populated counties may well
have two to four anchor libraries within the 20-year timeframe of these
recommendations.
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Anchor libraries will have the:
• Largest and strongest collections of library materials in terms of
depth of all types (print, media, and electronically-accessible)
• Largest staff due to extended hours, extensive usage by the
public, and the support role for the Regional and Community
libraries within their respective counties
• Greatest number of professional staff (librarians with a master’s
degree from a graduate program accredited by the American
Library Association [ALA])
• Computer training facilities and “classes” for public and staff
• Most meeting room and conference room space for public and
staff usage.
Anchor libraries will be:
• Full service facilities
• Sized from 40,000 – 60,000 SF
• Open seven days a week, 52 weeks per year, 90 hours per
week, as follows:
• Monday – Thursdays – 8:00 AM – 11:00 PM
• Friday – Saturday – 8:00 AM – 6:00 PM
• Sunday – 12:00 noon – 10:00 PM.
Anchor library collections should be developed as follows:
• Collection Emphasis (print)
• Consumer health
• Do-it-yourself (gardening, household projects, vehicle repair,
etc.)
• Management (business)
• Marketing, public relations, and salesmanship
• Parenting
• Personal finance
• Political science
• Religion
• Travel
• State, county, and local history
• Genealogy (if interest is present within the county in sufficient
numbers)
• Children’s literature
• Teen literature
• Fiction, including genre (mysteries, science fiction, westerns,
romance)
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• Large type books according to demographics of the service
area.
• Collection Emphasis (media)
• DVDs *
• CD literature *
• CD music
• Cease the purchase of videocassettes and books-on-tape effective
July 1, 2005 (but retain existing collections of those titles that have a
solid circulation history).
• Libraries should be monitoring and implementing licensing of
“downloadable” content as that market begins to clarify.
• Collection Emphasis (magazines and newspapers)
• Magazines – one current subscription for every 300 residents
in the service area
• Newspapers – included in above formula, with four to five
Delaware papers, four to five regional papers, e.g. Baltimore
Sun, Philadelphia Inquirer, Washington Times, Richmond
Times-Dispatch, and four to five national papers, e.g. USA
Today, Los Angeles Times, New York Times, St. Louis Post
Dispatch, Washington Post as examples.
• Collection Emphasis (electronic resources)
• Internet connectivity
• Productivity Software such as Word™, Excel™,
PowerPoint™, and printing and scanning capabilities
• Access to three or four licensed databases beyond those
included in the DelAWARE licenses.
Regional Library
There may be from two to four or five Regional libraries within a county,
depending upon the projected population and demographics, density,
transportation network, and infrastructure of a county.
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Regional libraries will have:
• Reasonably large and strong collections of library materials in
terms of all types of materials (print, media, and electronically-accessible)
• Adequate staff for the hours of usage, the services to be
provided, the anticipated usage, and the size of the building
• Two to four professional staff depending upon the building size,
the population to be served, and the demographics of the service
area
• Computer training facilities and “classes” for public and staff
• Meeting and conference rooms for public and staff usage.
Regional libraries will be:
• Full service libraries
• Sized from 15,000 – 30,000 SF
• Open six to seven days a week, up to 72 hours per week,
(depending upon regional demographics, population served, etc.)
as follows:
• Monday – Thursdays – 9:00 AM – 9:00 PM
• Friday – Saturday – 9:00 AM – 6:00 PM
• Sunday – 12:00 noon – 6:00 PM.
Regional library collections should be developed as follows:
• Collection Emphasis (print)
• Consumer health
• Do-it-yourself (lawns, household projects, vehicle repair, etc.)
• Management (business)
• Parenting
• Personal finance
• Political science
• Religion
• Salesmanship
• Travel
• State, county, and local history
• Children’s literature
• Teen literature
• Fiction, including genre (mysteries, science fiction, westerns,
romance)
• Large type books according to demographics of the service
area.
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• Collection Emphasis (media)
• DVDs *
• CD literature *
• CD music
* Cease the purchase of videocassettes and books-on-tape effective
July 1, 2005 (but retain existing collections of those titles that have a
solid circulation history).
• Libraries should be monitoring and implementing licensing of
“downloadable” content as that market begins to clarify.
• Collection Emphasis (magazines and newspapers)
• Magazines – one current subscription for every 200 residents
in the service area
• Newspapers – included in above formula, with two or three
Delaware papers, two or three regional papers, e.g. Baltimore
Sun, Washington Times, Philadelphia Inquirer, and three or
four national papers, e.g. USA Today, New York Times,
Washington Post, Los Angeles Times as examples.
• Collection Emphasis (electronic resources)
• Internet connectivity
• Productivity Software such as Word™, Excel™,
PowerPoint™, and printing and scanning capabilities
• Access to two or three licensed databases beyond those
included in the DelAWARE licenses.
Community Library
Community libraries will be the smallest of the three types of facilities.
There may be anywhere from three or four up to eight to ten community
libraries in a county depending upon such factors as population,
geographic size of the county, transportation network, etc.
Community libraries will have:
• Collections of library materials responsive to the direct library and
information needs of the community being served
• Adequate staff for the hours of usage, the services to be
provided, and the anticipated usage
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• One or two professional staff depending upon the population to
be served and the demographics of the service area
• Meeting and/or conference rooms for public and staff usage.
Community libraries will be:
• Sized from 10,000 – 12,000 SF
• Open six days a week, 56 hours per week, as follows:
• Monday – Thursdays – 10:00 AM – 8:00 PM
• Friday – Saturday – 10:00 AM – 6:00 PM.
Community library collections should be developed as follows:
• Collection Emphasis (print)
• Consumer health
• Do-it-yourself (gardening, household projects, vehicle repair,
etc.)
• Parenting
• Personal finance
• Travel
• Local and county history
• Children’s literature
• Fiction, including genre (mysteries, science fiction, westerns,
romance)
• Large type books according to demographics of the service
area.
• Collection Emphasis (media)
• DVDs *
• CD literature *
• CD music
* Cease the purchase of videocassettes and books-on-tape effective
July 1, 2005 (but retain existing collections of those titles that have a
solid circulation history).
• Libraries should be monitoring and implementing licensing of
“downloadable” content as that market begins to clarify.
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• Collection Emphasis (magazines and newspapers)
• Magazines – one current subscription for every 200 residents
in the service area
• Newspapers – included in above formula, with two Delaware
papers and two national papers, e.g. USA Today, New York
Times, Washington Post as examples.
• Collection Emphasis (electronic resources)
• Internet connectivity
• Productivity Software such as Word™, Excel™,
PowerPoint™, and printing capabilities
• Access to one licensed database beyond those included in
the DelAWARE licenses.
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PROJECT GUIDELINES
In order to receive matching funds from the Delaware Division of Libraries
(DDL) for a capital improvement project the following guidelines are
recommended:
• The project must be included in this Statewide Master Plan (see
Building Project Recommendations elsewhere in this report)
• The end result of a project must be a building that is, at minimum,
10,000 SF in size*
• A Needs Assessment Study must first be prepared and approved by
the DDL (see Needs Assessment Study Component guidelines
below).
* If an existing building is, for example, 4,500 SF in size, and a
proposed project would double the size of the building to 9,000
SF, such a project would not be eligible for DDL funding.
However, if an existing building is, for example, 20,000 SF in
size, and a proposed project would increase the size to 27,000
SF, such a project would be eligible for DDL funding.
FUNDING
The Delaware Division of Libraries (DDL) will continue to pay 50 percent of
the following costs:
• Site acquisition (see Library Site Selection Criteria section of this
report)
• Building program (see Building Program Components below)
• Architectural design if prepared by an approved architect/engineer
(see Architectural Request for Qualifications (RFQ) Process below)
including furniture, fixtures, and equipment (FF&E) plan and
specifications
• Construction, including parking and landscaping.
The DDL will pay 100 percent of the cost of a Needs Assessment Study,
with $25,000 being the normal cap.
Other than the Needs Assessment Study, all other payments will be made
after the task, e.g. building program, conceptual design, etc. has been
completed and approved.
Local (municipal and/or county) tax dollars must account for 15 percent of
the remaining 50 percent during the first five years of this Plan, or through
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FY2011*. Effective FY2012 the local funding level must increase as
follows:
• Effective FY2012, 20 percent of the remaining 50 percent
• Effective FY2017, 25 percent of the remaining 50 percent
• Effective FY2022, 30 percent of the remaining 50 percent.
Private sector funding may provide the balance of the needed funds.
However, the practice of the reliance on significant amounts of private
funding for capital projects is not encouraged.
* As an example, for a FY2008 Community Library project,
assume the following:
• Total project cost of $3 million (Needs Assessment Study
previously funded and completed)
• Eligible DDL reimbursement costs of $2.6 million
• DDL pays 50 percent of $2.6 million, or $1,300,000
• Local tax dollars pay 15 percent of remaining $900,000, or
$195,000
• Local funds, tax dollars and/or private sector funding, pays
the remaining 35 percent plus the $400,000 in project costs
not eligible for DDL funding, or a total of $1,505,000.
The DDL will pay for 75 percent of the eligible capital costs for new Anchor
Libraries, local (county and/or municipal) tax dollars must pay the
remaining 25 percent. Ideally, Anchor Libraries should be County operated
libraries or, if they are municipal or independent libraries, should at least
receive specific County support for fulfilling their role as a countywide
resource.
For projects that result in the merger of two existing libraries into one new
library the DDL will pay an additional ten percent of the eligible costs.
For existing buildings that, through renovation, strive to become ADA
compliant the DDL will pay 75 percent of the renovation costs.
For new buildings that seek LEEDSTM certification, the DDL will pay an
additional five percent for basic certification and an additional ten percent
for silver certification.
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NEEDS ASSESSMENT STUDY COMPONENTS
The guidelines for A Needs Assessment Study are as follows, and a study
must include the following components:
• Population and demographic projections and analysis for at least ten
years into the future (with 20 years preferred)
• Adequate resident input early in the study via focus group
discussions, “town hall” meetings, stakeholder interviews, and/or
surveys (telephone, in-library, mail, and/or web)
• Adequate staff and library board (and Friends groups if in place)
input via interviews and/or focus groups
• Adequate input from key local and/or county officials such as
administrators, elected officials, and/or appointed officials
• Adequate analysis of existing facility(ies) which may entail
architectural and/or engineering analysis to determine code
compliance, structural integrity, infrastructure adequacy, and the like
• Outline program plan of service for the next three to five years at a
minimum (program plan of service means what services the library
will offer and those that are of most importance based upon the
above)
• Space needs projections based upon the outline program of service
and sound space planning guidelines
• Cost projections for both capital costs and operational costs that will
be needed, including cost escalation depending upon the projected
implementation timetable the study recommendations.
BUILDING PROGRAM COMPONENTS
A building program must include the following components:
• Brief history of the library and the project (if available)
• Discussion with regard to the exterior elements, e.g. parking,
signage, that have the potential to affect usage of the building
• Discussion with regard to the interior elements, e.g. acoustics,
lighting, plumbing, and the like that will potentially affect the
sustainability of the building as well as its usage
• Specific definition of each space within the building indicating
function, projected occupancy, furniture and equipment needs,
adjacencies, engineering and environmental issues, and space
projections in at least net assignable and building gross square
footages
• Capital cost projections for both construction and total project costs
• Any relevant other information included as appendices.
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APPLICATION PROCESS
There will not be an application process.
Projects will be approved and funded on the following basis:
• Recommendations of the Statewide Master Plan with regard to
priorities
• Projects seeking total ADA compliance will be first priority projects
• Projects (new buildings only) seeking LEEDSTM certification will be
second priority projects
• Projects will have to result in a total building size of at least 10,000
SF of space and meet other goals as set forth above
• Project must have completed an approved Needs Assessment
Study
• Project must follow the defined RFQ process for the selection of
architects (see below)
• DDL will review and approve, prior to issuing reimbursement checks,
the following project deliverables:
• Building Program
• Conceptual Design
• Schematic Design
• Developed Design and Outline Specifications
• Construction Documents and Specifications
• FF&E Plan and Specifications.
ARCHITECTURAL REQUEST FOR QUALIFICATIONS (RFQ) PROCESS
The selection of architectural services for building projects, including
renovation, renovation/expansion, and new construction, will be pursued as
follows:
• A national notification process will be established and executed with
the goal of alerting as many qualified architects/engineers as
possible about future library design projects in Delaware
• All architects/engineers, regardless of location and size of firm, are
eligible to submit their qualifications
• Submittals will be reviewed and an interview list developed
• Interviews will be held in Dover, or one or more other pre-determined
locations within the state
• Following the interviews a pool of architectural firms will be
established
• Local libraries will be “free” to invite from three to five firms from the
pool to submit qualifications for their specific Anchor, Regional, or
Community library project
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• Local libraries, based upon their evaluation process and existing
procurement policies for professional services, will be “free” to select
and enter into contract negotiations with the firm of their choice from
the pool
• DDL will review and approve the contract with the architect/engineer
prior to its being signed by the local library and the
architect/engineer.
CONSTRUCTION MANAGEMENT
The Statewide Master Plan suggests the following:
• Consideration should be given by the DDL to engaging the services
of at least one, and possibly three (one for each county) construction
management firm(s) (CMs) to be part of the building teams for the
various projects
• The CM firm(s) should have library building project experience and
should have a national practice
• A RFQ process somewhat similar to that described above for
architects/engineers should be followed.
STATEWIDE PROCESSING CENTER AND DELIVERY SYSTEM
The Statewide Master Plan recommends the following:
• A statewide processing center, to include space for the storage of
existing seldom used materials, to be located within the State,
located in an existing industrial-type building and located near a
major north/south roadway.
• A statewide delivery system, operating in the early evening/night,
should be housed at the center with the goal of having any
circulating item from anywhere in the State delivered to the
requesting customer’s library within 48 hours. The delivery system
could be state owned and operated, or provided via contract with a
commercial enterprise.
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LIBRARY SITE SELECTION CRITERIA
It is critical to approach the site selection process for a new public library with
care. The ultimate success of any new library facility, if success is measured in
terms of usage of library services, will be determined to a large degree by where
it is located. Public libraries are similar to other institutions that need to be used
to be effective – where they are located is of prime importance.
As a successful private developer would say, the three most important
ingredients of any project are location, location, and location. A bank that is
poorly located will not prosper, nor a food store or an apparel shop. Neither will a
public library. Acquiring anything less than a good site will prove a false
economy in terms of the life-cycle costs of the library. Anything less than a good
site will also hinder public use of this important community resource.
CRITERIA FOR ASSESSMENT
The criteria listed below should be taken into account as each candidate site is
evaluated. The consultants have developed these criteria based upon their
considerable experience and observation.
Site Capacity, Now and the Future - The site should be large enough to
provide a sufficient square or rectangular library footprint; the required parking for
users, staff, and volunteers; future expansion; the necessary allowances for
setbacks, zoning requirements; and suitable landscaping. The resulting building
should look like it belongs on the site, not forced on a plot of ground that is too
small. If future expansion of the building in anticipated, then the site should be at
least five times the initial BGSF (building gross square feet).
Parking Potential, On-site and Off-site – This is a companion to Site
Capacity. However, in addition to the pure size of the site, are there or may there
be in the foreseeable future, restrictions to having an adequate number of
parking spaces?
Accessibility - The site should be easily accessible by automobile and public
mass transit, and within walking distance of some potential users. However,
pedestrian access will always be secondary. Adequate parking is a key element
of vehicular accessibility.
Visibility by Passers-by - A prominent location is required to attract the
largest number of people to the library. A highly visible site, along a major
roadway, with easy accessibility, is ideal. If the site involves other buildings,
such as a joint-use complex, the library should be able to be oriented in a portion
of the site with high visibility.
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Development Cost – What will it cost to develop the site? These costs could
make a site that first appears to be desirable less so upon further analysis. The
issues to consider include:
• The dollar value of the site, including the potential revenue loss if income
producing property is replaced by a non-taxable structure
• Demolition costs of any existing facility(ies) on the site
• Relocation costs of any existing business or residential units currently on
the site
• Any unusual site development costs that may occur, such as from a site
with underground utilities and/or water, a buried petroleum storage tank,
etc.
• The cost of providing sufficient utility service to the site
• Any extra construction costs that will occur due to such things as:
• Poor soil conditions
• Limitations of the site, such as underground versus surface parking
• Site configuration resulting in a more expensive building solution
• Excessive drainage and/or earthwork
• Construction of drives and roads needed to fully access the site once
the building is located on the site.
Building “Fit” into Fabric of the Community, Now and the Future - Will
the library be a good neighbor? Is the neighborhood fully developed? If so, how
will the library fit into the neighborhood? If there is development in the future, will
it be compatible with the mission and goals of the library?
Views, Distant and Close – What does one see from the library site looking
outward, across the street, and several blocks away? Conversely, what does the
library site look like from across the street and from blocks away?
Legal Matters - The existence of easements or other restrictions can serve to
minimize the buildable area of a site. A site owned by several persons and/or
entities could be difficult to acquire. Zoning restrictions can hamper
development, including parking and/or entrance and egress to and from the site.
Physiography - The suitability of the soil, the topography of the site, and
solar orientation are important considerations in construction and operational
costs. Orientation considerations include the avoidance of west sun on the
books, or the necessity of a north entrance that may offer little winter sunlight and
exposure to the cold northern winds. Other factors to consider include these:
• Prevailing breeze
• Solar potential (passive and active)
• Sun angles
• Trees and landscaping.
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RANKING THE SITES
Once the site selection criteria have been agreed upon, the next step in the
process is to assign a point value to each of the above nine criteria. The sum
total of the nine should be 100. Within each major factor, points can be assigned
to the sub-factors. The sub-factor points should equal the sum of the major
factor point total.
As an example, a library site study might conclude that Site capacity, followed by
Accessibility, Visibility by passers-by, and Building “fit” into fabric of community
were the four most important factors, worth 20, 15, 12, and 12 points
respectively. Within Site Capacity, the two most important sub-factors might be
Usable Site Area and Expansion Capacity, worth, in order, seven and five points.
Therefore, if the usable site area of Site A were considered to be near perfect, it
would receive a ranking of six or seven points. Conversely, if Site B was
considered poor in this area the ranking might be zero, one, or two.
Each factor and sub-factor should be given a point value. The site that receives
the most points is determined to be the best site. If two or more sites were within
eight to ten points of each other, then cost effectiveness needs to be taken into
consideration.
Each area within a county, municipality, or community where a new library may
be considered may have a different ranking point system. The demographics,
geographic size, and potential population of the area should be considered
before assigning point values.
Tie-Breaking Factors
The land cost – purchase price criteria should be dealt with last, and should be in
addition to the 100 points of the other criteria. The reason for this is that pure
land cost should not be the first consideration inasmuch as the cost of the site
will most likely be the least of the project costs for a new (or replacement) library
facility when spreading the costs over the life span of the facility.
CONCLUSION
The consultants cannot over-emphasize the importance of an objective site
selection process. There is nothing, aside from the informational content within a
library building, that will have a greater impact upon the overall success of a
library than where it is located. Since success of a library building is measured
by usage, the more a building is used, the more cost effective it is. A good site
will go a long way toward ensuring the operational success of a library facility for
the community residents.