BICS, Inc. 

bertot • information • consultant • services • inc. 

Policy Issues and Strategies Affecting Public Libraries 

In the National Networked Environment: 

Setting Agendas and Extending Research

A Report Submitted To: 

The National Commission on Libraries and Information Science 

1110 Vermont Ave., NW, Suite 820 

Washington, DC 20005 

By: 

John Carlo Bertot <jcbertot@bertotinfo.com> 

President 

Bertot Information Consultant Services, Inc. 

Tallahassee, Florida 

Charles R. McClure <850-907-5710> 

President 

Information Management Consultant Services, Inc. 

Tallahassee, Florida 

December 2001 

6344 Glasgow Drive 

Tallahassee, Florida 32312 

(850) 893-3002 phone/fax 

<jcbertot@bertotinfo.com> 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

TABLE OF CONTENTS 

TABLE OF CONTENTS ..............................................................................................................I

LIST OF TABLES AND FIGURES..........................................................................................III

EXECUTIVE SUMMARY ........................................................................................................IV

CHAPTER 1: INTRODUCTION................................................................................................ 1

BACKGROUND ........................................................................................................................ 1 

KEY TERMS.............................................................................................................................. 2 

STUDY PURPOSE AND OBJECTIVES .................................................................................. 3 

SOME CAVEATS...................................................................................................................... 4 

SETTING AGENDAS AND ENHANCING RESEARCH ....................................................... 4 

CHAPTER 2: SELECTED INFORMATION POLICY ISSUES AFFECTING PUBLIC 

LIBRARIES................................................................................................................................... 6

DIGITAL DIVIDE...................................................................................................................... 6 

Universal Service and the Digital Divide ............................................................................... 7

Legislation – Digital Divide.................................................................................................... 9

Digital Divide Controversies ................................................................................................ 10

Digital Divide and Implications for Public Libraries........................................................... 10

COMMUNITY TECHNOLOGY CENTERS .......................................................................... 12 

Selected Programs and Initiatives ........................................................................................ 12

Importance to Public Libraries: Partnerships with Community Technology Centers ......... 13

INFORMATION/NETWORK LITERACY............................................................................. 14 

Legislative Background ........................................................................................................ 15

Literacy Programs and Public Libraries.............................................................................. 15

E-RATE .................................................................................................................................... 16 

Background........................................................................................................................... 17

Historical Analysis of E-rate ................................................................................................ 18

Non-Administrative E-rate Areas of Controversy................................................................. 18

IS E-RATE SUCCESSFUL? .................................................................................................... 20 

E-rate’s Impact on Public Libraries..................................................................................... 20

UNIVERSAL SERVICE – BROADBAND............................................................................. 21 

Background........................................................................................................................... 22

Legislation............................................................................................................................. 23

Implications for Libraries..................................................................................................... 24

LIBRARY SERVICES AND TECHNOLOGY ACT (LSTA) ................................................ 25 

LSTA Legislative History ...................................................................................................... 26

Issues with LSTA legislation ................................................................................................. 26

LSTA Impact on Public Libraries ......................................................................................... 27

THE CHILDREN’S INTERNET PROTECTION ACT........................................................... 28 

Provisions ............................................................................................................................. 28

Background........................................................................................................................... 29

Filtering Software ................................................................................................................. 30

Impact of CIPA on Public Libraries ..................................................................................... 30

Bertot & McClure i December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

THE FEDERAL GOVERNMENT’S SUPPORT FOR LIBRARIES ...................................... 32 

LSA/LSCA/LSTA ................................................................................................................... 32

National Libraries................................................................................................................. 33

Depository Library Program ................................................................................................ 33

Research Support.................................................................................................................. 34

Other Programs .................................................................................................................... 34

Impact on Public Libraries ................................................................................................... 35

DEMANDS OF NEW TECHNOLOGY .................................................................................. 35 

OTHER TOPICS ...................................................................................................................... 37 

SUMMARY.............................................................................................................................. 37 

CHAPTER 3: SUPPLEMENTAL DATA ANALYSIS FROM 2000 PUBLIC LIBRARY 

INTERNET CONNECTIVITY SURVEY................................................................................ 45

ADDITIONAL ANALYSIS..................................................................................................... 46 

The Analysis Process Described........................................................................................... 46

FINDINGS................................................................................................................................ 48 

Overall Connectivity and Speed of Public Internet Access Connectivity ............................. 48

Funding Internet Connectivity .............................................................................................. 51

Public Access and Patron Internet Services ......................................................................... 51

SUMMARY.............................................................................................................................. 54 

CHAPTER 4: DATA TRENDS IN PUBLIC LIBRARY INTERNET RESEARCH........... 58

CONNECTIVITY..................................................................................................................... 59 

PUBLIC ACCESS AND PUBLIC ACCESS SERVICES ....................................................... 61 

Services to Special Populations ............................................................................................ 61 

Persons with Disabilities ...................................................................................................... 61

Children and Youth............................................................................................................... 63

Internet Instruction ............................................................................................................... 63

 ISSUES AND CONCLUSIONS ...............................................................................................65 

CHAPTER 5: RESEARCH ISSUES AND STRATEGIES ................................................... 67

ISSUES RELATED TO RESEARCH AND DATA COLLECTION ACTIVITIES............... 67 

ISSUES RELATED TO EDUCATION AND TRAINING ..................................................... 69 

ISSUES AND STRATEGIES RELATED TO COMMUNICATION, COORDINATION, 

AND DISSEMINATION.......................................................................................................... 70 

NEED TO CLARIFY NATIONAL GOALS FOR PUBLIC LIBRARIES.............................. 71 

ESTABLISH AN EFFECTIVE LIBRARY PRESENCE IN THE........................................... 71 

DEVELOPMENT OF INFORMATION POLICY .................................................................. 71 

DEVELOP NEW MEASURES TO DESCRIBE THE IMPACT AND USE OF.................... 72 

NETWORKED SERVICES IN PUBLIC LIBRARIES ........................................................... 72 

Role of Federal Agencies...................................................................................................... 72

Need for a National Conference ........................................................................................... 73

Benefits of a National Conference ........................................................................................ 74

Suggested Venue and Cost Estimate..................................................................................... 74

ENHANCING LIBRARY SERVICES IN THE NETWORKED ENVIRONMENT.............. 75 

APPENDIX A: PUBLIC LIBRARIES AND THE INTERNET 2000 REPORT.................. 76

Bertot & McClure ii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

LIST OF TABLES AND FIGURES 

Table 2.1. Time to Download a 1mbps file by differing connectivity technologies. ...................21 

Table 2.2. Summary of Key Policy Areas and Issues...................................................................38 

Table 3-1. Number and Percentage of Geocoded Public Library Outlets by 

 Population of Legal Service Area and Geographic Region......................................................47 

Table 3-2. Public Library Outlet Internet Connectivity by Population of Legal Service Area.................. 48 

Table 3-3. Public Library Internet Connectivity by Region. ..................................................................... 48 

Table 3-4. Public Library Outlet Maximum Speed of Public Access Internet Services 

 by Population of Legal Service Area........................................................................................49 

Table 3-5. Public Library Outlet Maximum Speed of Public Access Internet Services 

 by Region..................................................................................................................................49 

Table 3-6. Public Library Outlet Funding for Internet-Related Technology and 

 Infrastructure by Region. ..........................................................................................................51 

Table 3-7. Public Library Outlet Provision of Internet Training Services by 

 Population of Legal Service Area.............................................................................................52 

Table 3-8. Public Library Outlet Provision of Internet Training Services by Region..................52 

Table 3-9. Public Library Outlet Public Access Database Subscription Services by 

 Population of Legal Service Area. ......................................................................................................... 55 

Table 3-10. Public Library Outlet Public Access Database Subscription Services by Region.................. 55 

Table 3-11. Public Library Outlet Public Access Provision of Special Hardware/Software 

 for Individuals with Disabilities by Population of Legal Service Area. ................................................ 56 

Table 3-12. Public Library Outlet Public Access Provision of Special Hardware/Software 

 for Individuals with Disabilities by Region. .......................................................................................... 56 

Table 3-13. Public Library Outlet Public Access Internet Blocking of Internet Services 

 by Population of Legal Service Area........................................................................................57 

Table 3-14. Public Library Outlet Public Access Internet Blocking of Internet 

 Services by Region. ..................................................................................................................57 

Figure 4-1. Public Library Internet Connectivity 1994-2000 .......................................................59 

Figure 4-2. Maximum Speed of Public Access Internet Connectivity .........................................60 

Figure 4-3. Average Number of Public Access Workstations......................................................61 

Figure 4-4. Provision of Special Hardware/Software on Public 

 Access Workstations for Persons with Disabilities ..................................................................62 

Figure 4-5. Public Library Outlet Provision of Internet Training by............................................64 

Figure 4-6. Provision of Internet Blocking on Public Access Workstations ................................65 

 

Bertot & McClure iii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

EXECUTIVE SUMMARY 

Public libraries in the United States continue to experience rapid change as the networked 

information environment continues to evolve. New software applications, faster and better 

technology, and changing patterns of access to and use of networks to provide information 

services to users all combine for public librarians, trustees, and local communities to re-think, reevaluate, and review plans for how best to operate public libraries in this context. In addition to 

the rapid rate of change in the networked environment, the U.S. federal information policy 

environment also continues to change and evolve – thus having a significant impact on how 

public libraries interact with the networked environment. 

Such rapid change requires constant assessment and review by the public library community; 

policy makers at the federal, state, and local levels; and by researchers and policy analysts. In a 

relatively brief time period, 1994-2000, public libraries have reached 96% connectivity rates 

with Internet services. Connectivity in and of itself, therefore, is no longer an acceptable goal for 

public libraries. To be successful in the evolving networked environment public libraries will 

need to set agendas related to network-based services and information policy, they will need to 

enhance and support additional research related to network services and policy, and they will 

need to implement these agendas. 

The U.S. National Commission on Libraries and Information Science (NCLIS) has sponsored 

and continues to support research in the area of Internet connectivity in public libraries since 

1994. These include national surveys of public libraries and the Internet such as: 

• Public Libraries and the Internet: Study Results, Issues, and Recommendations

(McClure, Bertot, and Zweizig, 1994); 

• Internet Costs and Cost Models for Public Libraries. Final Report (McClure, Bertot, and 

Beachboard, 1995); 

• The 1996 National Survey of Public Libraries and the Internet: Progress and Issues 

Final Report (McClure, Bertot, and Zweizig, 1996); 

• The 1997 National Survey of U.S. Public Libraries and the Internet: Final Report (Bertot, 

McClure, and Fletcher, 1997); 

• Moving Toward More Effective Public Internet Access: The 1998 National Survey of 

Public Library Outlet Internet Connectivity (Bertot and McClure, 1999); and 

• Public Libraries and the Internet 2000 Study: Summary of Findings and Data Table

(Bertot and McClure, 2000). 

The most recent policy analysis done for NCLIS in this area is a report prepared in 1997, Policy 

Issues & Strategies Affecting Public Libraries in the National Networked Environment: Moving 

Beyond Connectivity (Bertot and McClure, 1997). The findings of the 2000 study reflected 

significant strides in connectivity, funding sources, and services to support technology use by 

library visitors. NCLIS contracted with the authors in 2001 to produce a report to inform staff 

and Commissioners on how best to proceed with research in this area. 

More specifically, NCLIS asked the authors to address the following key tasks: 

Bertot & McClure iv December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

1. Assess Internet connectivity in public libraries, using the most recent research sponsored 

by NCLIS, Public Libraries and the Internet 2000: Summary of Findings and Data 

Tables, by conducting additional analysis of data collected in that study (Bertot and 

McClure, 2000). 

2. Review national policy issues and approaches for addressing the use and applications of 

technology in libraries, including infrastructure developments, funding, and impacts. 

3. Offer recommendations for future research and analysis broadly related to libraries 

(especially public libraries), the Internet, and networked services. 

The authors began work on the study in March 2001 and completed the final report in December 

2001. 

As part of the study, the authors: 

• 

• 

• 

• 

 

Reviewed and assessed relevant studies, reports, and papers on the three topics 

described above; 

Conducted supplemental analysis of data from the 2000 public libraries and the 

Internet study; 

Conducted a descriptive review of key federal information policies and recent 

initiatives that may affect the three key topics addressed in the study; and 

Conducted a number of interviews with selected key experts knowledgeable about 

work being done in the broad area of libraries and the Internet. These experts 

included federal policy makers and those knowledgeable about policy issues. 

Together, these data collection, research, and analysis activities provide the basis for the issues 

and recommendations identified in this report. 

Public Libraries and the Internet 

 During May and June 2000, the authors conducted a national survey of public library Internet 

connectivity. The study used a weighted sample of public library outlets based on two outlet 

characteristics: 1) poverty (less than 20%, 20%-40%, and greater than 40%), and 2) metropolitan 

status (urban, suburban, and rural). The metropolitan status codes exist in the Federal State 

Cooperative System (FSCS) annual public library data collection system, whereas the poverty 

determination is a result of geocoding the outlets by physical location and census poverty data.1

 

In all, it was possible to geocode 16,004 public library outlets in March 2000. Thus, all results 

are based on the 16,004 geocoded outlets. 

 Appendix A of this report contains the detailed report of data tables and methodology of the 

2000 public library Internet study. 

 New analysis of the 2000 survey data, however, indicates a number of key findings: 

1

 Specific information on the geocoding process is found in Appendix C of U.S. National Commission on Libraries 

and Information Science. (1998). Moving toward more effective public Internet access: The 1998 national survey of 

public library outlet Internet connectivity. Washington, D.C.: National Commission on Libraries and Information 

Science. Also, see Jue et al. (1999). Using Libraries to Provide Technology Access for Individuals in Poverty: A 

Nationwide Analysis of Library Market Areas Using a Geographic Information System. Library and Information 

Science Research, 21(3): 299-326. 

Bertot & McClure v December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Public library outlets are connected to the Internet and offer public access Internet 

services (range of 88.7% to 100.0% for connectivity and range of 84.9% to 100% for 

public access); and 

• Nearly all outlets with Internet connectivity also provide public access Internet services, 

with the least public access Internet services in the Rockies states (Tables 3-2 and 3-3). 

• As the population of legal service area decreases, in general, so too does the speed of 

connectivity. This is particularly noticeable for library outlets that serve population of 

legal service areas of below 25,000, and 

• Library outlets in the New England and Plains states are less likely to have connectivity 

of greater than 56kbps than are library outlets in the rest of the nation. Indeed library 

outlets in those states have the highest percentage of 56kbps dial-up connections, with 

25.0% in New England states and 39.4% in Plains states (Tables 3-4 and 3-5). 

• Some regions rely less on E-rate than others – for example, only 21.0% of New England 

library outlets used E-rate discounts to fund their library’s Internet infrastructure. The 

next lowest percentage for E-rate use is the Plains states with 36.1% and Greatlakes states 

with 41.5%. 

• New England states indicate a lower rate of federal funds to support their Internet 

infrastructure – 3.9% – than other regions. This, however, may be a result of respondents 

not indicating their receipt of LSTA grants in this category. 

• Certain regions indicate substantial support from special grants for their Internet 

infrastructure. These correspond, for the most part, to Gates states. For example, 54.0% 

of Southwest libraries indicate Internet infrastructure support from special grants, 

followed by 49.8% of Southeast libraries and 33.3% of Rockies libraries (Table 3-6). 

• A minimum of 70.5% of public library outlets offer user training above a population of 

legal service area of 25,000 (see Table 3-7). 

o Only 56.4%, however, of public library outlets below a population of legal service 

area of 25,000 offer user training. 

• With regards to region, user training in outlets ranges from a low of 44.3% in Plains 

states library outlets to a high of 71.3% in Middle Atlantic states library outlets (Tables 3-

7 and 3-8). 

• Public library outlets offer patrons a variety of online database services. This service, 

however, tends to decrease as the population of legal service area of the library outlet 

decreases. 

o For example, 95.3% of libraries with population of legal service areas greater than 

500,000 provide online database services on all their workstations, as compared to 

only 56.0% of outlets with population of legal service areas of less than 25,000. 

o Moreover, 71.4% of libraries with population of legal service areas greater than 

500,000 provide online database services to users remotely as compared to only 

29.9% of outlets with population of legal service areas of less than 25,000 (Table 

3-9). 

Bertot & McClure vi December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Overall, library outlets in the Greatlakes, Middle Atlantic, Rockies, and Southeast offer 

more access to online database services (range of 63.7% to 70.0% for access on all public 

access workstations) as compared to library outlets in New England, the Plains, the 

Southwest, and West (range of 45.9% to 54.0% for access on all public access 

workstations) (Table 3-10). 

• The provision of special hardware and/or software for individuals with disabilities for 

public access Internet services varies within public library outlets. 

o Public library outlets that serve population of legal service areas of 100,000 or 

greater tend to provide more access to hardware and/or software for persons with 

disabilities (combined range of 15.3% to 47.3% for all/some workstations) than 

do public library outlets that serve population of legal service areas of less than 

100,000 (combined range of 25.6% to 29.0% for all/some workstations). The 

notable exception is library outlets that serve population of legal service areas of 

greater than 500,000, with 15.3% (combined all/some workstation). 

o Regionally, library outlets in the Southeast and West are more likely to provide 

special hardware and/or software for individuals with disabilities for public access 

Internet services, with 43.8% and 30.1% respectively (combined all/some 

workstation) (Tables 3-11 and 3-12). 

• Finally, some public library outlets do block and/or filter Internet content. 

o Overall, library outlets that serve population of legal service areas of less than 

25,000 are less likely to block/filter Internet content (20.1% combined all/some 

workstation) than are library outlets that serve population of legal service areas of 

greater than 25,000 (combined range of 31.6% to 32.1% for all/some 

workstations). 

o Library outlets in the Southeast and Southwest are less likely to block/filter 

Internet content (33.5% and 37.5% respectively combined range for all/some 

workstations) as compared to library outlets in other regions of the nation 

(combined range of 8.9% to 28.9% for all/some workstations) (Tables 3-13 and 3-

14). 

These findings indicate a range of public library Internet services as well as differences in the 

provision of those services by population of legal service area and region of the nation. Such 

differences have implications for the library services to which library patrons have access and, 

subsequently, the policy environment that supports public libraries in the provision of their 

network-based services. Moreover, these findings suggest a number of potential roles for the 

National Commission on Libraries and Information Science to advise policy makers, researchers, 

and professionals in the shaping of public library issues, strategies, and policy to guide the future 

development of public library networked services. 

Research Strategies and Issues 

 There are a number of key research issues and strategies that require attention if the role of 

libraries, and especially public libraries in the evolving networked environment are to be better 

understood, financially supported, and integrated into library services to support a range of 

possible national goals and objectives. The topics discussed here are based, in part, on the 

Bertot & McClure vii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

material and background information provided in Chapters 1-4. Overall, it is important and 

necessary for a nationally coordinated effort to support research broadly related to libraries and 

library services. 

Issues Related to Research and Data Collection Activities

 This study identified a number of data collection activities and research needs for policy 

makers, the library profession, and other communities. Initial areas of research and data needs 

include: 

• Issues related to the digital divide. While the National Telecommunications and 

Information Administration (NTIA) has conducted a number of studies related to the 

digital divide that provide key data regarding home computer technology and Internet 

access along a number of demographic variables (e.g., income, race, gender, urban/rural, 

and persons with disabilities), there is a need to further explore issues regarding the 

digital divide. 

• Moving beyond connectivity data. Although the Public Library Internet studies provided 

first time, longitudinal, and important data regarding public library Internet connectivity, 

they focused primarily on the Internet connectivity infrastructure of public libraries – 

Internet connection, workstations, bandwidth, and funding issues. With the 2000 study 

finding that 95.7% of public libraries have an Internet connection, it is time to move 

beyond public library connectivity to Internet-based library services – e.g., training, 

services to special populations (e.g., seniors, persons with disabilities, children, Native 

Americans), filtering/content blocking, outcomes, and service quality, to name a few. As 

with the leadership NCLIS demonstrated by conducting the first studies of public library 

Internet connectivity, the Commission has an opportunity to establish leadership in the 

study of critical areas of Internet involvement and use in public libraries. 

• Broadening the scope of Internet studies beyond libraries. There are a number of 

community technology centers – boys and girls clubs, community centers, senior centers, 

for example – that provide access to network-based services such as training, computer 

technology, and Internet connectivity. It is important to study the role(s) that such 

centers play in the connectivity mosaic of users, the relationship of libraries in the 

connectivity of users, and the interrelationship between the library and other communitybased organizations in providing access to network-based resources and services to users. 

• Conducting longitudinal studies where possible. While it is important to collect one-time 

data that meet the needs of particular research interest or policy issues, it is also important 

to provide a longitudinal perspective regarding research areas that inform policy makers, 

researchers, and others as to the changes over time in connectivity-related issues. Such 

data can inform various parties about trends, key issues, and evolving services over time. 

• Coordinating the data collection activities of various regular and on-going library (and 

other, where possible) surveys. NCLIS, in its relationship with the library statistics 

program managed by the NCES/U.S. DOE, plays a critical role in a number of libraryrelated data collection efforts – academic, public, and school media. To the extent 

possible, there is a need to create a core set of survey questions that cut across the various 

survey instruments so as to compare various connectivity and other data of interest across 

library types and communities. 

• Need for a national geo-based database of public library statistics and other information. 

Currently, there is no comprehensive and integrated national database of public library 

Bertot & McClure viii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

statistics and other information that would be important to describe and analyze a number 

of U.S. public library attributes. A nationwide inventory of data related to public library 

outlets and administrative entities has existed for several years through the Federal-State 

Cooperative System (FSCS) and National Center for Education Statistics, U.S. 

Department of Education (NCES/U.S. DOE). But the inventory cannot be utilized for 

any substantive decision making purpose at the local, regional, or national levels as this 

inventory is not tied to any usable external data (e.g., socioeconomic, population 

projections, relevant library related research, geo-based data, etc.). 

The above indicate several key roles that NCLIS can play in the development, continuation, and 

maintenance of a broad ranging research agenda. Such endeavors would provide the 

Commission with important and valuable data to inform policy makers, researchers, and 

librarians along a number of topics. 

Issues Related to Education and Training

 To a large degree issues related to education and training of information professionals have 

not received adequate attention. While schools of library and information studies (as well as 

other programs) continue to evolve in their training of professionals to work in the networked 

environment, there are significant numbers of staff currently working in libraries that have 

received little to no ongoing instruction related to deploying and using technology; assisting 

users in networked and telecommunications services; integrating networked-based services with 

traditional services; planning and evaluating networked services; and others. 

 At issue is: 

• Who or what is responsible for ongoing training and education of library staff to stay 

current with networked services and information technology developments? 

• Where are resources to support such programs? 

• How can a national program of training and education be developed such that every 

library does not need to re-create training programs for its staff? 

• How can national training efforts be deployed such that training does not need to be 

localized in terms of delivery mechanisms? 

The issues of education and training raised in this report have less to do with the training of new 

information professionals at the graduate level and more to do with how to keep existing staff 

versed in technology and network developments and applications. The Commission may wish to 

consider if it has a role to play in assessing educational and training needs in this area and the 

degree to which strategies can be developed to address these needs. 

 

Issues and Strategies Related to Communication, Coordination, and Dissemination

 The policy analysis and review of research activities indicate that there are a number of areas 

in which there is a need to coordinate, exchange findings, and review and develop policy 

recommendations, strategies, and approaches. These include the: 

Bertot & McClure ix December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Holding of issue/topical hearings. In the past, NCLIS has conducted a number of policy 

hearings on a wide range of topics. These include hearings on Kids and the Internet, 

ADA, status of schools and school libraries, and others, all of which resulted in overall 

key issue and stakeholder issue identification, testimony, research needs identification, 

and/or policy recommendations. There is a need to convene such a hearing on the policy 

research needs for library Internet-related activities. 

• Holding of regional “town hall” meetings. Such meetings would enable the identification 

of key policy issues related to library Internet use and involvement facing communities 

across the country. Rather than formal hearings, such meetings would present a forum 

through which key stakeholder communities, as well as the general public, could engage 

in an exchange of issues, ideas, and considerations with the library, policy making, and 

other constituencies. 

• Conducting of regular policy forums. NCLIS has the legislated mandate to hold forums 

and bring various constituency groups together on information policy-related issues. 

Such forums, targeted to specific topics, could serve as a means through which to bring 

together key stakeholder groups (e.g., the American Library Association, communitybased organizations, policy making representatives) to discuss policy issues, generate 

policy recommendations, and develop policy implementation action plans. Sample topics 

might include the Digital Divide, ADA-related Internet access issues, and E-government 

proposals related to digital government information activities (as per the proposed EGovernment Act of 2001 (S. 803). 

• Conducting research and data forums. A number of different agencies and organizations 

– Census, National Telecommunications and Information Administration (NTIA), 

Department of Education, Schools and Libraries Division, Institute of Museum and 

Library Services, Federal Communications Commission, NCLIS, and the American 

Library Association, to name a few – have data and research needs on a number of 

common topics. These topics include the Digital Divide, digital literacy, Internet 

connectivity by community technology centers (e.g., public libraries, community 

centers), broadband, and technology use and needs by special populations (e.g., persons 

with disabilities). Bringing these groups together, though they may have differing uses 

for research findings and data, to collaborate, coordinate, and pool resources to conduct 

studies will result in a select number of focused, well funded, and thorough studies that 

can serve to inform policy makers, agencies, the library community, and others on a wide 

range of topics and issues. 

• Developing various publications/products and a multi-faceted method for distributing 

research findings and data to a wide range of groups that include policy makers, library 

organizations, and agencies. These products, some print, some electronic, and of various 

types (e.g., reports, brochures, bookmarks, broadsides, etc.) can serve a number of 

purposes that include the education of policy makers and others regarding a particular 

topic, summary study findings, policy awareness, and key issue identification. Such 

products can demonstrate the involvement of NCLIS with a number of policy- and 

research-related activities. 

As evidenced, there are a number of communication, coordination, and dissemination activities 

in which the Commission can play a central role. The Commission will need to consider which 

of the above activities best fit its resources, goals, and objectives. 

Bertot & McClure x December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Need to Clarify National Goals for Public Libraries

A key message in the 1987 publication, Planning and Role Setting for Public Libraries

(Chicago: American Library Association) was that public libraries cannot be all things to all 

people all the time. In fact, public libraries continue to find themselves in the position that the 

local community and federal programs expect libraries to be all things to all people all the time. 

The limited funding available to most public libraries requires that priorities be set and that 

libraries support only the “most important” services and activities. 

 What are the national goals for public libraries: 

• Are public libraries expected to be a national mechanism in the fight on illiteracy? 

• Are public libraries expected to be the doorway to E-government services for those 

without equipment and training elsewhere? 

• Are public libraries to serve as local training centers for those to learn how best to use the 

Internet and the networked environment as suggested in the E-Government Act of 2001. 

• Should they also serve as an after school resource center where national educational 

priorities and goals can be better supported? 

While state and local determination of public library roles and goals is important, equally 

important is some clarification as to national public library roles and goals. The sense that public 

libraries provide national benefits to society also suggests that some better clarification of 

national goals and priorities for public libraries may also be necessary. To some degree public 

libraries receive “unfunded mandates” to support a range of societal goals – such as literacy 

programs. Should there be national goals for public libraries, there is a need to make those goals 

explicit and engage in activities and resource provision that supports those goals. 

Establish an Effective Library Presence in the Development of Information Policy

 A key activity of the Commission is to provide advice to Congress and the President 

regarding libraries and information services in this country. But the library presence in national 

information policy debates is limited and has nowhere near the resource support that other 

interest groups such as has the telecommunications industry. Thus, the Commission may wish to 

consider possible mechanisms by which the library community can have a greater impact and a 

more visible presence in the development of information policy. 

 A number of the communication strategies offered earlier in this report can play an important 

role in developing such a presence. But too often there are conflicting points of view among the 

various library groups as to a particular policy position. Key stakeholders include ALA and its 

various member groups, a range of other national and state library associations, IMLS, COSLA, 

ULC and others. For the library community to have a better impact on policy development some 

type of coordinating mechanism may be necessary, because policy makers respond better to 

consensus. However, that doesn’t mean there aren’t real differences between various groups. 

How to resolve is a vital question. 

 In addition to coordinating mechanisms, there needs to be a clear, coherent set of policy 

recommendations as to what, specifically, the Commission (and others) recommend be done 

Bertot & McClure xi December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

about individual policy issues. Such recommendations require study, data, analysis, input from 

other stakeholder groups, etc. Given the limited resources and staff of the Commission, choices 

and priorities may need to be made as to which policy areas are most important for the 

Commission and which policy areas best lend themselves to consensus building among other 

interested parties in the library community. 

Develop New Measures to Describe the Impact and Use of Networked Services in Public 

Libraries

To some extent, the federal government lacks a coordinated and coherent approach for policy 

analysis, research, and statistics related to library and information services. Library program 

funding for collecting national library statistics largely falls under the Department of Education 

through the National Center for Education Statistics (NCES), administered by NCLIS.

The Museum and Library Services Act of 1996 moved research and related programs to the 

Institute of Museum and Library Services. The role of the Department of Education regarding 

national data collection efforts and how it interacts with NCLIS and IMLS is not clear. The 

original wording to the act passed some of the responsibility of guidance to NCLIS, but the 

future of this agency is not clear since the President’s FY2002 budget did not recommend 

funding. So the responsibility of library program evaluation and collecting national statistics at 

this time is unclear. 

Need for a National Conference 

 Information science researchers, policy makers, and others to explore a range of topics 

related to research needs regarding federal information policy issues. More specifically, such a 

conference could: 

• Identify existing knowledge and data sources related to current and future information policy 

issues that affect the profession and the citizens; 

• Discuss and describe specific information and research needs necessary to address the 

various information policy issues; and 

• Consider possible strategies to establish a mechanism for conducting ongoing policy 

research, for informing the information professions on the status and impact of selected 

information policy issues, and for providing a clearinghouse of information and data for use 

in debating these issues. 

Overall, the purpose of the conference would be to determine how the information professionals and 

related organizations can best establish an ongoing formal means (and presence) to conduct policy 

research and engage successfully in national information policy debates. Other outcomes would 

include proposals for establishing some formal structures and programs to conduct information 

policy research and a listing of key information policy topics/issues requiring research attention. 

Benefits of a National Conference 

 The library and information professions regularly find themselves unable to respond quickly 

and accurately to both threats and opportunities in terms of a range of policy issues broadly 

Bertot & McClure xii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

related to library/information policy. A number of professional associations including the 

American Library Association, the Association of Research Libraries, the American Society for 

Information and Technology, and the American Association of Law Librarians (to name a few) 

either have offices or committees that follow selected policy areas. But these efforts are rarely 

coordinated and in most instances there is inadequate research available to support particular 

positions. 

 The proposed conference would be a step in recent times to develop a strategy to better 

initiate and respond to federal library/information policy initiatives. It would promote improved 

coordination and cooperation among the various stakeholders in assessing and responding to 

these policy initiatives. And perhaps most importantly, the conference might provide a research 

base by which ongoing research and policy analysis can be in place, providing information 

professionals with data that inform various policy debates, issues, threats, and opportunities 

affecting the library/information professions. The key issue with this topic is how best to 

coordinate, research, and better understand the range of the information policy issues that affect 

libraries and related information centers. 

Enhancing Library Services in the Networked Environment

 This report identifies a range of topics, policy issues, data, findings, and recommendations 

that the Commission may wish to consider as it reviews and proposes policy and strategies to 

enhance library services in the networked environment. As suggested throughout the report, 

libraries have a number of challenges and opportunities to consider as they make the transition 

into the networked environment. It is possible to facilitate this transition with: 

• A federal information policy environment that recognizes the importance of and supports 

the multiple roles that libraries play in the American society; 

• Better coordination across federal agencies in terms of their policies, program goals, and 

procedures for implementing those programs (e.g., E-rate) – to better support libraries in 

general and public libraries in particular; 

• The maintenance of a timely and accurate national database – or collection of databases – 

of information (more than just statistics) that describes public library services and 

resources and can serve as a base from which to conduct meaningful and ongoing 

analysis and evaluation of library activities and services; 

• Enhanced national programs such as E-rate, LSTA, ESEA, the Depository Library 

Program, etc. that provide direct support to libraries to assist them promote E-government 

initiatives at the federal, state, and local levels; and 

• The development of valid, reliable, and standardized statistics and measures that describe 

use, users, uses, outcomes, and quality of library services in the networked environment. 

The last strategy is especially important as the Commission cannot offer accurate and timely 

policy advice to Congress and the President without useful descriptive data. 

These suggestions, of course, are only a beginning – other strategies and issues appear 

throughout this report. Clearly, the Commission cannot attack all the policy issues and 

opportunities to enhance libraries offered here. The Commission can, however, identify a 

strategic initiative and marshal its limited resources on specific priorities over the next three 

Bertot & McClure xiii December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

years. Agreement on a set of strategic initiatives will allow the Commission to tackle those 

issues and opportunities that appear to have the greatest payback to improve libraries so that 

libraries can better meet the needs of the American public as the networked environment 

continues to grow and evolve. 

Bertot & McClure xiv December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

CHAPTER 1: INTRODUCTION 

Public libraries in the United States continue to experience rapid change as the networked 

information environment continues to evolve. New software applications, faster and better 

technology, and changing patterns of access to and use of networks to provide information 

services to users all combine for public librarians, trustees, and local communities to re-think, reevaluate, and review plans for how best to operate public libraries in this context. In addition to 

the rapid rate of change in the networked environment, the U.S. federal information policy 

environment also continues to change and evolve – thus having a significant impact on how 

public libraries interact with the networked environment. 

Such rapid change requires constant assessment and review by the public library community; 

policy makers at the federal, state, and local levels; and by researchers and policy analysts. In a 

relatively brief time period, 1994-2000, public libraries have reached 96% connectivity rates 

with Internet services. Connectivity in and of itself, therefore, is no longer an acceptable goal for 

public libraries. To be successful in the evolving networked environment public libraries will 

need to set agendas related to network-based services and information policy, they will need to 

enhance and support additional research related to network services and policy, and they will 

need to implement these agendas. 

BACKGROUND 

The U.S. National Commission on Libraries and Information Science (NCLIS) has sponsored 

and continues to support research in the area of Internet connectivity in public libraries since 

1994. These include national surveys of public libraries and the Internet such as: 

• Public Libraries and the Internet: Study Results, Issues, and Recommendations

(McClure, Bertot, and Zweizig, 1994); 

• Internet Costs and Cost Models for Public Libraries. Final Report (McClure, Bertot, and 

Beachboard, 1995); 

• The 1996 National Survey of Public Libraries and the Internet: Progress and Issues 

Final Report (McClure, Bertot, and Zweizig, 1996); 

• The 1997 National Survey of U.S. Public Libraries and the Internet: Final Report (Bertot, 

McClure, and Fletcher, 1997); 

• Moving Toward More Effective Public Internet Access: The 1998 National Survey of 

Public Library Outlet Internet Connectivity (Bertot and McClure, 1999); and 

• Public Libraries and the Internet 2000 Study: Summary of Findings and Data Table

(Bertot and McClure, 2001). 

The most recent policy analysis done for NCLIS in this area is a report prepared in 1997, Policy 

Issues & Strategies Affecting Public Libraries in the National Networked Environment: Moving 

Beyond Connectivity (Bertot and McClure, 1997). The findings of the 2000 study reflected 

significant strides in connectivity, funding sources, and services to support technology use by 

library visitors. NCLIS contracted with the authors in 2001 to produce a report to inform staff 

and Commissioners on how best to proceed with research in this area. 

Bertot & McClure 1 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

More specifically, NCLIS asked the authors to address the following key tasks: 

• Assess Internet connectivity in public libraries, using the most recent research sponsored 

by NCLIS, Public Libraries and the Internet 2000: Summary of Findings and Data 

Tables, by conducting additional analysis of data collected in that study (Bertot and 

McClure, 2000). 

• Review national policy issues and approaches for addressing the use and applications of 

technology in libraries, including infrastructure developments, funding, and impacts. 

• Offer recommendations for future research and analysis broadly related to libraries 

(especially public libraries), the Internet, and networked services. 

The authors began work on the study in March 2001 and completed the final report in December 

2001. 

As part of the study, the authors: 

• Reviewed and assessed relevant studies, reports, and papers on the three topics described 

above; 

• Conducted supplemental analysis of data from the 2000 public libraries and the Internet 

study; 

• Conducted a descriptive review of key federal information policies and recent initiatives 

that may affect the three key topics addressed in the study; and 

• Conducted a number of interviews with selected key experts knowledgeable about work 

being done in the broad area of libraries and the Internet. These experts included federal 

policy makers and those knowledgeable about policy issues. 

Together, these data collection, research, and analysis activities provide the basis for the issues 

and recommendations identified in this report. 

KEY TERMS 

A working definition of library networked services is those electronic information resources 

and/or services procured by the library that users access electronically via a computing network 

1) from on-site in the library, 2) remote to the library, but from another library/or branch 

facility, or 3) remote from the library, from home or office. Examples of networked resources 

include local, regional, or statewide library hosted or authored web sites or library-licensed 

databases (e.g., InfoTrac, EBSCOHost, JSTOR, Project Muse). Examples of networked 

services include: 

• Text and numerical databases, electronic journals and books; 

• Email, listservs, online reference/assistance; 

• Training in the use of these resources and services; 

• Request of services via online forms (i.e., interlibrary loans); and 

• Interactive real time services such as digital reference services. 

Bertot & McClure 2 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

The range and types of services accessible through and supported by networks will continue to 

evolve as network technology changes. 

Information policy is a term used to describe a set of interrelated principles, laws, 

guidelines, rules and regulations, directives, procedures, judgments, interpretations, and 

practices that guide the creation, management, access, use, preservation, and disposal 

(more commonly regarded as the information lifecycle) of information. Information policy 

can be set at a national level, e.g., by the U.S. federal government; by state and local 

governments, and by other agencies and institutions, e.g., private companies or agencies 

within governmental units. No single authority or corpus of statutory or administrative 

law describes or coordinates information policy in either the United States or in other 

countries (McClure, 1999). 

An information policy instrument is a written law, guideline, regulation, or other official 

statement that describes how information will be collected, managed, protected, accessed, 

disseminated, and used. In the United States, a number of key policy instruments shape federal 

information policies, including: 

• The Freedom of Information Act (5 USC 552), which outlines procedures by which 

individuals can request government information; 

• The Privacy Act (5 USC 552a), which protects individuals from unwarranted government 

use of personal information and outlines procedures by which individuals can obtain 

information that the government may maintain about them; 

• The U.S. Government Printing Office's Depository Library Program (44 USC 19) and 

federal printing laws (44 USC 17), which ensure that a basic collection of government 

information is made available to the public through selected libraries; and 

• The Copyright Act (17 USC 101), which provides certain protections for authors of 

literary and other types of work and sets the stage for determining intellectual property 

rights. 

Many other information policy instruments exist, and these are offered as illustrative of a broad 

set of instruments that affect information management in general and website development and 

operations in particular. 

STUDY PURPOSE AND OBJECTIVES 

The overall purpose of this study is to provide NCLIS commissioners and staff with a review 

of recent research, policies, and issues related to public libraries and networked services. More 

specifically, the study has the following objectives: 

• Identify and describe recent research and federal policy initiatives broadly related to 

public libraries specifically and libraries more generally regarding networked information 

services (Chapter 2); 

Bertot & McClure 3 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Conduct supplemental analysis on data collected as part of the 2000 study with particular 

attention to issues of connectivity and services provision (Chapter 3); 

• Analyze selected available data describing libraries and the Internet to determine possible 

trends and strengths and weaknesses of these datasets (Chapter 4); and 

• Offer specific recommendations for research broadly related to libraries and the Internet 

and the provision of networked services by libraries (Chapter 5). 

Overall, the report intends to provide a beginning point for additional discussion and debate as to 

the current and future roles of libraries, especially public libraries, in the evolving networked 

environment. The report also intends to provide a basis to focus on how best libraries might 

participate in the networked environment to support national priorities and goals. 

SOME CAVEATS 

The potential scope of a study such as this one is overwhelming. Thus, the study reviews and 

discusses selected topics, research, and policy issues. In selecting the topics, research, and 

policy issues for discussion the authors assessed the potential impact, cost, importance, and 

effect on the public. Some readers may not agree with the topics, research, and policy issues 

discussed in this report. Indeed, it is not possible to cover all topics, research, and policy in a 

brief report such as this. The study draws heavily on the experience and previous research of the 

authors in this area. Nonetheless, the authors view this study as a first step in developing and 

extending a national debate on the appropriate roles for libraries in the networked environment – 

and how federal policy can support such roles. 

SETTING AGENDAS AND ENHANCING RESEARCH 

The study suggests that a joint agenda among the library communities (i.e., libraries and 

library associations) as well as local, state, and federal governments, is necessary for libraries to 

maximize their impact and effectiveness in providing access to and services in the networked 

environment. While there are multiple library programs underway, a range of policy initiatives 

under consideration, and library experimentation with a number of interesting network-based 

programs and services, there appears to be a lack of focus and coordination in a number of areas. 

There is a need for a national agenda that integrates these various efforts into a coherent whole. 

Moreover, there are few longitudinal datasets available to describe libraries’ use and users of 

Internet services. Much of the research is programmatic or topic-based and, thus, not possible to 

track or compare over the years. Except for some ongoing support by the Institute for Museum 

and Library Services (IMLS) in the area of public libraries and the Internet, and ad-hoc funding 

by NCLIS and the American Library Association, there has been limited ongoing funding, 

resources, and support for research related to public libraries and the Internet. As the United 

States enters the new millennium, a public debate and discussion on the roles of libraries in the 

networked environment, how federal governmental policies can support these roles, and how 

state and local governments can directly participate and/or partner with libraries needs to occur. 

Bertot & McClure 4 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Such an agenda can then help set a course for maximizing the role, impact, and effectiveness of 

libraries in the networked environment. 

Bertot & McClure 5 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

CHAPTER 2: 

SELECTED INFORMATION POLICY ISSUES AFFECTING PUBLIC LIBRARIES 

This chapter of the report provides an overview of selected U.S. information policy issues 

that affect public libraries – and to some extent all types of libraries. The policy issues included 

in this section are not comprehensive. Rather they were selected for discussion based on the 

following criteria: 

• Potential impact on public access to information; 

• Degree to which the issue may affect public library funding; 

• Effect on the information technology infrastructure for public libraries; 

• Possible need to revise existing federal information policy; and 

• Degree to which the issue may affect local and national management/organization of 

libraries. 

Thus, the purpose of this chapter is to provide a brief overview of selected policy issues that may 

assist the library community, policy makers, government officials, and others, better determine 

how best to shape this evolving policy environment for the overall benefit and development of 

public libraries, and the communities that they serve, in the networked environment. 

DIGITAL DIVIDE 

At present, there appears to exist a Digital Divide. While complex and multidimensional in 

nature, this Divide consists of a divide between the technology haves and have-nots, creating an 

environment of disparate access to information technology and content as a function of income, 

geography (e.g., urban versus rural areas), education, ethnicity, and various socioeconomic 

attributes (Census, 2001). Views differ on how best to define the Digital Divide, but basically 

the term has been used to suggest that certain groups of people have inadequate access to the 

array of networked services for a host of possible reasons. 

Although the communications infrastructure is improving, the United States has yet to 

achieve uniform Internet access in all areas (see section on broadband). Some 95.7% of public 

library outlets in the United States have public Internet access. Overall, however, only 53.6% of 

them are connected at greater than 56kbps, with only 35.4 % of rural public libraries connected 

at greater than 56kbps, and 47.8% of libraries connected at greater than 56kbps that have 

population of legal service areas of less than 100,000 – as opposed to 86.6% of libraries 

connected at greater than 56kbps that have population of legal service areas of greater than 

100,000 (Bertot and McClure, 2000; additional analysis provided in Chapter 3 of this report).

2

 

2

 Considerable discussion and debate exist concerning “adequate” bandwidth/connectivity speed. A benchmark 

speed in public libraries is that of 56kbps – direct connect/leased line. Direct connect/leased line connectivity 

(though one must now consider various wireless and other connection options) produces more robust connectivity, 

particularly when matched with switching technologies, than do dial-up connections. It is important to note, 

however, that the Federal Communications Commission (as discussed in this chapter) considers broadband access in 

the home to be a minimum of 200kbps – about four times faster than 56kbps. 

Bertot & McClure 6 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

In addition, there is a societal division in terms of technology and reading skills (see section 

on literacy). Having physical access to the Internet does not mean a person has the knowledge 

necessary to access Internet-based information. Individuals must also be able to ascertain 

whether the information is useful, correct, and current, among other factors. Websites may need 

to be available in more than one language and provide comprehensible access to a wide range of 

users with various literacy skills. 

Society can realize a number of benefits from the Internet. These benefits include, but are not 

limited to: 

• A better informed people with access to government information and services, enabling 

them to participate in a democratic society; 

• Instant access to investment, financial, and banking information; 

• Improvement of health care due to telemedicine as well as better access to health 

information; and 

• Access to housing information, as well as employment opportunities. 

For this scenario to exist, however, there is a likely need for additional investment in the 

communications infrastructure, better access to and organization of network-based information, 

and training for both information professionals and users to provide enhanced knowledge of how 

to exploit this information infrastructure. 

Several studies have been conducted detailing the characteristics of the digital divide. The 

National Telecommunications and Information Administration (NTIA) demonstrated that whites 

are more likely to have Internet access in their homes than blacks or Hispanics. Overall, 51.0% 

of homes had a computer and 41.5% of those households had access to the Internet. An 

additional 8.7% accessed the Internet from elsewhere. In addition, individuals making less than 

$35,000 dollars a year are more likely to access the Internet from outside the home (National 

Telecommunications and Information Administration, 2000; U.S. Census, 2001). 

In a more recent study done by the Gartner Group, nearly 50% of the U.S. population 

accesses the Internet from their homes, while nearly 42% of Americans access the Internet from 

outside the home. This does not suggest that 92% of Americans have access to the Internet 

because the two groups are not mutually exclusive. The study also showed that whites were still 

more likely to have Internet access in their homes than blacks. In addition the Gartner report 

showed that individuals living in lower income households were still more likely to access the 

Internet from outside the home (Smolenski, 2000). 

Universal Service and the Digital Divide 

There is no clear, concise, or parsimonious definition of universal service. Over the years, 

and through various interpretations, legislation, and regulations, the general concept of universal 

service -- in idea and implementation -- has come to mean the (Bertot, McClure and Owens, 

1999, p. 311): 

Bertot & McClure 7 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• 

ha

• 

all

ge

re

• 

in

an

Definition of a set of telecommunications services to which users of those services should 

ve access (e.g., dial tone and emergency 911 services from the telephone network); 

Implementation of a system of subsidies, or some other funding mechanism, which 

ows all users of the telecommunications services -- regardless of socioeconomics, 

ographic location, or other discriminating demographics -- access to such services at a 

asonable cost; and 

Creation of international, national, and local interconnected public telecommunications 

frastructure networks (e.g., public telephone network and the Internet) that meet current 

d future societal needs. 

A major reason for these general aspects of universal service is that approaches to universal 

service are evolutionary, leaving nations the ability to incorporate new telecommunications 

technologies into their universal service efforts. 

In 1996, the Telecommunication Act (TCA) was passed attempting to update a variety of key 

issues specific to that industry. The TCA was the first significant legislation offering the U.S. 

paradigm of universal service principles, section 254b refers to the following (P.L. 104-104): 

• Quality and rates: Quality services should be available at just, reasonable, and 

affordable rates. 

• Access to advanced services: Access to advanced telecommunications and 

information services should be provided to all regions of the Nation. 

• Access in rural and high cost areas: Consumers in all regions of the Nation, 

including low-income consumers and those in rural, insular, and high cost areas, 

should have access to telecommunications and information services . . . that are 

reasonably comparable to those services provided in urban areas and that are 

available at rates that are reasonably comparable to rates charged for similar services 

in urban areas. 

• Equitable and nondiscriminatory contributions: All providers of 

telecommunications services should make an equitable and non-discriminatory 

contribution to the preservation and advancement of universal service. 

• Access to advanced telecommunications services for schools, health care, and 

libraries: Elementary and secondary schools and classrooms, health care providers, 

and libraries should have access to advanced telecommunications services as 

described in subsection (h). 

• Additional principles: Such other principles as the Federal-State Joint Board and the 

Commission determine are necessary and appropriate for the protection of the public 

interest, convenience, and necessity and are consistent with this Act... 

Although directed at the networked environment, these principles attempt to guide the 

availability, dissemination, and adoption of advanced telecommunications infrastructure 

throughout the United States. 

The importance of these principles cannot be understated. In the nearly 70 years since the 

passage of the Communications Act of 1934, some areas of the United States are still without 

telephone service let alone broadband access. Some of the Native American reservations still do 

Bertot & McClure 8 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

not have residential telephone service; for example the Navajo reservation in the southwest U.S. 

has only 22% of the households receiving telephone service (Casey, Ross, and Warren, 1999). 

Former President Clinton proposed a $17 million initiative to bring telephone service to Native 

American reservations (Krebs, 2001). At issue is the degree to which the Telecommunications 

Act of 1996 can bring broadband to all rural communities without a large investment by the 

Federal government. 

Legislation – Digital Divide 

Over the last ten years, a number of bills have been introduced – with some passing – in 

attempts to bridge the Digital Divide. This section focuses on the National Telecommunications 

and Information Administration Act of 1992 (P. L. 102-538), and some additional bills 

introduced in the 107th Congress. The American Library Association provides an additional list 

of bills introduced into the 106th Congress for those wishing to review the legislative scope of the 

Digital Divide in more detail (American Library Association, 2001). 

 A recent law passed pertaining to bridging the Digital Divide was the National 

Telecommunications and Information Administration Act of 1992 (P. L. 102-538). This law 

provided the statutory authorization for the establishment of the National Telecommunications 

and Information Administration (NTIA) within the Department of Commerce. The initial intent 

of this law was not to address specifically the Digital Divide, but Title I Part B did address 

broadly the use of technology for education. From this early beginning, the NTIA found itself as 

the government champion for bridging the Digital Divide, especially after the publication of its 

seminal work on the Digital Divide Falling Through the Net: A Survey of the "Have Nots" in 

Rural and Urban America (National Telecommunications and Information Administration, 

1995). This was followed by a series of Digital Divide reports that include: 

• Falling Through the Net: Defining the Digital Divide (1999); 

• Falling Through the Net II: New Data on the Digital Divide (1998); 

• Advanced Telecommunications in Rural America: The Challenge of Bringing Broadband 

Service to All Americans (2000); and 

• Falling Through the Net: Toward Digital Inclusion (2000). 

These reports are available online at <http://digitaldivide.gov/reports.htm>. 

 Several bills have been introduced into the House and the Senate to provide solutions in 

bridging the Digital Divide during the 107th Congress. Among these bills are the: 

• Education Technology and Equity Act of 2001 (H.R. 1323), which proposes amending 

the Elementary and Secondary Education Act of 1965 (P. L. 89-10) to reserve a portion 

of funds FY 2002 through 2006 to be used for Native Americans and U.S. territories. 

These funds would be used to aid local educational agencies in developing a plan for the 

acquisition of and use of technology for education and administration to narrow the 

Digital Divide. 

Bertot & McClure 9 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• NTIA Digital Network Technology Program Act (H.R. 1034, S. 414), which seeks to 

amend the National Telecommunications and Information Administration Organization 

Act of 1992 (P. L. 102-538). It would change the NTIA’s Technology Opportunities 

Program (see Community Access Centers section of this paper) to include funding for 

instruction in digital network technologies as well as funding for infrastructure. It 

further defines eligibility to include institutes of higher education serving predominantly 

minority and low-income students. This act recognizes that to bridge the digital divide 

not only requires technology, but it also requires the knowledge of how to use that 

technology. 

There are other related bills that address issues regarding the Digital Divide. The above, 

however, are indicative of the type and range of bills pending in Congress. 

 

Digital Divide Controversies 

 Despite the preponderance of data suggesting the Digital Divide is a reality (National 

Telecommunications and Information Administration, 2000, 1999, 1998, 1995; Smolenski, 2000; 

Rainie, Lee and Dan Packel, 2001), some individuals in government do not agree that such a 

problem exists and/or that it is a responsibility of the federal government to resolve issues 

stemming from a Digital Divide. Nor do all individuals agree on ways in which to address the 

problem. 

 Michael Powell, director of the Federal Communications Commission, negates the concept 

of the Digital Divide. He considers the Internet as a luxury item, rather than a necessity (Kirby, 

2001). Not all government officials and researchers are convinced that technology, in and of 

itself, will cure the Digital Divide. The Bush Administration tends to lean toward the need for 

literacy training than the need for more technology infrastructure (see Literacy section). In this 

case literacy refers to both computer literacy and the ability to read. The proposed Bush 

Administration budget for FY 2002 shifts money from pure infrastructure placement to programs 

that include computer skills training (see Community Technology Centers section). 

Digital Divide and Implications for Public Libraries 

 Historically, individuals relied on the public library as a source of information. Charles 

Francis Adams in his address to the inaugural meeting of the American Library Association 

described the public library as the “poor man’s” source of education, and listed the benefits of 

the public library (Adams, 1877). Over 100 years later, the public library still serves in the role 

as the “poor man’s university.” The public library is one of a number of resources available to 

society to provide public access to information and information technology, and it may be one of 

the best positioned to do so. 

Bertot & McClure 10 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

There are some 16,000 public library service outlets in place and operational in the U.S. that 

offer an information dissemination and access mechanism.3

 These service outlets can offer their 

communities a number of a number of information and educational opportunities that include 

Internet access, bookmobiles, branch libraries, and outreach services. Educational opportunities 

include Internet use classes, senior citizen programs, job-hunting skills, and literacy programs. 

An especially interesting research topic is the degree to which the Internet is a competitor to 

public library use and draws users away from visiting physically the public library. A recent 

study by Rodger, D’Elia, and Jorgensen suggests that this is a complicated research question 

(2000). Their research produced a model that segments various markets and suggests that some 

market segments of the U.S. are more “vulnerable” to using the Internet than the public library. 

The research is not conclusive as they indicate the need for longitudinal tracking of the model to 

be able to develop more useful findings. An implication of this research is the future role of the 

public library as an institution to offset the Digital Divide. 

 Library-based programs, initiatives, and infrastructure to support community-based Digital 

Divide efforts, however, require both funding and staff. The majority of the funding comes from 

the local community. Funding from the state, and also from the federal government also 

supports such programs. The degree to which public libraries actively address Digital Divide 

issues, however, is unclear. The public library community, while striving for improved access to 

the networked environment, has had difficulty demonstrating specific impacts and changes that 

have resulted from programs and services in terms of minimizing the Digital Divide. 

 The previous discussion on the Digital Divide and the role of public libraries in bridging it 

identifies some policy issues that may require attention. Further research is necessary on these 

issues in order to develop policy at the national and local levels. These issues include: 

• Is there a Digital Divide in the U.S.? 

• If so, how extensive is the Digital Divide in the U. S.? 

• Is there a need for further development of the National Information Infrastructure? 

• Should public libraries give priority to bridging the Digital Divide in their communities? 

• To what degree is the Internet a competitor or a facilitator for public library use? 

• What programs currently exist with which public libraries can coordinate their efforts in 

aiding their communities to bridge the Digital Divide? 

• What impact are public libraries having in their communities in bridging the Digital 

Divide? 

The degree to which addressing Digital Divide issues is a priority for public libraries in this 

country today remains unclear. 

 

3

 Public libraries in the U.S. consist of library systems, some of which have branches. In the U.S., there are 

approximately 8,900 library systems, of which approximately 16% have branches. In all, there are over 16,000 

service outlets – library facilities through which the public can access library services. 

Bertot & McClure 11 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

COMMUNITY TECHNOLOGY CENTERS 

 Community Technology Centers (CTCs), also known as Community Access Centers and 

Community Access Points, provide an opportunity for individuals in a community to have access 

to computers and the Internet. Several different government agencies have programs for 

providing funding to communities to build these centers. The Benton Foundation, in association 

with the American Library Association and others, developed a website, ConnectNet.org, 

containing a database of CTCs through which people can learn more about getting connected to 

the Internet (available at: <http://www.connectnet.org/english/). 

Selected Programs and Initiatives 

 The National Telecommunications and Information Agency’s Technology Opportunities 

Program (TOP) provides funding for Community Access Center infrastructure and the 

development of model research programs. TOP does not provide funds for the training of 

individuals to run the centers or for training of individuals to use the centers. TOP targets rural 

areas as well as low-income urban communities. TOP received $45 million in Federal funding in 

2001, but under the Bush Administration budget proposal, TOP would only receive $16 million 

in 2002 (Bush, G.W., 2001a). 

 The U.S. Department of Education administers the Community Technology Center Program. 

It provides funding for the development of “model programs that demonstrate the educational 

effectiveness of technology in urban and rural areas and economically distressed communities. 

These Community Technology Centers would provide access to information technology and 

related learning services to children and adults” (Department of Education, 2001). Unlike 

NTIA’s TOP, the Department of Education’s CTC program does include technology training. 

This program received $65 million in Federal funding in 2000-2001. The 2001 presidential 

budget proposal calls for moving this program to the Department of Housing and Urban 

Development (Bush, 2001a). 

 The move of CTC from the Department of Education to the Department of Housing and 

Urban Development has not, as yet, been accomplished. In Spring 2001, the Senate approved an 

amendment to the Elementary and Secondary Education Bill to authorize $100 million to create 

1,000 new CTC’s. Senator Mikulski proposed the amendment. She also is the ranking member 

on the Senate Appropriations Subcommittee on Veterans Administration and Housing and Urban 

Development and Independent agencies, leading some to speculate that the Senator may endorse 

keeping CTC at the Department of Education (OMB Watch, 2001). 

 A third program sponsored by the U.S. Federal government exists in the Department of 

Housing and Urban Development (HUD). The Neighborhood Network program establishes 

Community Technology Centers in multifamily housing properties and low-income housing. 

This program provides funding for infrastructure as well as technology training, but it does not 

target rural areas. The Neighborhood Network program emphasizes partnerships between the 

private and public sectors. The possibility exists that rural areas may not be eligible for funding 

Bertot & McClure 12 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

should the move of the CTC program from the Department of Education to HUD occur given the 

urban emphasis of HUD programs. President Bush’s proposal does, however, raise the funding 

in FY2002 for CTCs from $65 million to $80 million. Libraries may be eligible under this 

program to form partnerships with other organizations to provide training and community 

technology centers to their patrons. 

 Finally, the National Commission on Libraries and Information Science began an effort in 

2000 to establish a national database of information related to Community Access Programs 

<http://www.nclis.gov/libraries/caps.html>. This effort has resulted in a very useful listing of 

sources related to the development of CAPS. The Benton Foundation <http://www.benton.org>, 

among others, has continued work in this area and research related to the impact and 

effectiveness of CAPs and CTCs is necessary. 

 In addition to government programs, several other organizations and consortia exist to 

provide communities with technology and training to bridge the Digital Divide. PowerUp is a 

consortium consisting of corporate sponsors, non-profit organizations, and government agencies 

to provide the youth of America access to technology. PowerUP has installed computer labs in 

schools, housing complexes, and community centers, and other youth serving facilities (see 

<http://www.powerup.org/index.shtml>). Recent research by Durrance and Pettigrew shows that 

there are a number of methodological approaches for evaluating the use and impact of such 

community-based programs (2001).

The National Center for Small Communities targets small rural communities, and distributes 

educational and training program materials. Their publication Getting Online: A Guide to the 

Internet for Small Town Leaders provides local governments a step-by-step manual for getting 

the local government online (National Center for Small Communities, 1999). It provides advice 

on hardware, software, and procuring funding. In addition, the Bill and Melinda Gates 

Foundation provides software and hardware to libraries in low-income communities to provide 

their patrons with Internet access (see <http://www.gatesfoundation.org/learning/libraries/ 

default.htm> for additional information). These are just a few examples of other organizations 

and efforts underway to improve community access to the Internet. 

Importance to Public Libraries: Partnerships with Community Technology Centers 

Federal funding of Community Technology Centers offers another opportunity for public 

libraries to work in conjunction with other organizations in their community to provide Internet 

access to their community and narrow the Digital Divide. By working with these programs the 

public library may be able to better leverage their information technology and services. The 

technology training and Internet access provided by Community Technology Programs can 

provide individuals in the community more job opportunities as well as improved access to 

social services and educational opportunities. 

An example of a local public library working in conjunction with other agencies occurs in 

Claremore, Oklahoma. The Community Action Resources and Development, Inc. formed a 

consortium consisting of the public library, high school, and county extension office. They 

Bertot & McClure 13 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

provide the community with free e-mail service and Internet access at the Coweta Community 

Action Office (National Association of Community Action Agencies, 2001). In order to enhance 

and further develop Community Technology Center programs, researchers need to (1) assess 

such efforts and identify and measure the impact of these programs, and (2) determine the degree 

to which it is possible to replicate such programs in other communities.

The degree to which public libraries work in conjunction with other local organizations to 

provide their patrons with Internet access and the training to use the Internet is unclear. 

Nonetheless, such cooperation between public libraries and organizations such as PowerUp may 

offer new and effective means to improve access to the Internet via local community resources. 

The selected government programs that target providing communities with access to 

technology, including TOP at NTIA, CTC’s at the Department of Education, and Neighborhood 

Networks at HUD, require closer inspection. As it relates to partnerships, there are a number of 

policy issues regarding public libraries and community technology centers: 

• Do public libraries need to be involved in offering their communities access to 

technology other than for the express purpose of gaining access to information? 

• How can libraries coordinate their efforts with existing federal government technology 

access programs to minimize the duplication of effort and optimize the benefits to their 

communities? 

• How do existing technology access programs at public libraries and other community 

centers have an impact on their communities? 

• Is there a long-term role for the federal government in supporting CTCs and other 

community-based initiatives? 

A number of people would argue that all individuals in our society should have equitable access 

to communications technology and services. How best to provide them with this access or the 

degree to which such access is a national priority remains unclear. 

INFORMATION/NETWORK LITERACY 

 A minimum requirement of the networked environment is access – access to computing 

technology, access to the Internet, and access to information. For users to engage successfully 

the computing technology, the Internet, and Internet-based information resources and services, 

will require that users acquire and posses technology and information skills. Said differently, 

network users need to be technology, network, and information literate. Technology literacy 

implies a working knowledge of computing technology and applications. McClure defines 

information/network literacy as the ability to locate, process, and use information effectively 

regardless of the delivery mechanisms and the type of format in which that information appears 

(McClure, 1993). 

 In addition, many U.S. citizens do not have the ability to read in general much less online 

content. A 1992 study found that an estimated 23 million Americans are considered functionally 

illiterate. It also found that 35 million Americans are semiliterate, that is they lack the skills 

Bertot & McClure 14 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

beyond the eighth grade reading level (Bush, 1992). There is a need to consider the basic literacy 

skills of users in the content design of Websites for such individuals to benefit from Web-based 

information. An additional study, the 1992 National Adult Literacy Survey, found that 21% of 

Americans could not write a letter and could barely identify the necessary information contained 

in an article (Department of Education, 1992). 

 Finally, there is the issue of language literacy. Society consists of many individuals fluent 

and literate in their own language, but not yet fluent in English. Libraries offer programs in 

English as a second language to aid these individuals to learn and read English. In order for 

these individuals to reap the benefits of the Internet and to have access to government 

information and benefits, websites may need to be offered in more than one language. 

Legislative Background 

Public Law 100-382 authorized and requested that the President of the United States call a 

White House Conference on Library and Information Services. This conference focused on the 

improvement of literacy, productivity, and democracy, and how library and information services 

could contribute to that improvement. President George H. Bush commended the U.S. National 

Commission on Libraries and Information Services for their role in making this conference a 

success (Bush, 1992). One of the goals of this conference was to eradicate illiteracy in our 

society by 2000, but this has yet to occur. This conference noted the importance of teaching 

literacy skills to adults as well as to children. Language of future programs would shift from 

adults to children. 

 In 1994, Goals 2000: Educate America Act of 1994 (P.L. 103-227) focused on the U.S. 

school system and educating children. This law was to reform our school system by adopting an 

agreed upon set of skills, standards, and certifications. One of the goals of this program was that 

“by the year 2000, every adult American will be literate and will possess the knowledge and 

skills necessary to compete in a global economy and exercise the rights and responsibilities of 

citizenship” (Department of Education, 1994, Section 102 6A). 

 Recently, President George W. Bush enacted the “reading first” initiative calling for all 

children to be able to read by the third grade. Based on this initiative, the President appears to be 

moving away from an adult oriented literacy program, and towards a literacy program that 

targets children (Bush, G.W., 2001b). 

Literacy Programs and Public Libraries 

As local, accessible, community-based organizations, many public libraries have aided adult 

individuals to enhance their literacy skills. Numerous literacy programs exist in which public 

libraries can participate. The American Library Association has a list of these sites on their Web 

page (available at: <http://www.ala.org/literacy/>). Identified below are examples of these 

literacy programs: 

Bertot & McClure 15 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• The American Library Association (ALA), in conjunction with the Lila Wallace-Reader’s 

Digest Fund, are promoting outreach literacy programs in public libraries. This fund is 

providing $4 million over three years to strengthen adult literacy programs in public 

libraries. ALA is providing the technical support and logistics to run the program. 

• Literacy Volunteers of America, Inc. provides basic literacy classes and English for 

speakers of other languages classes as outreach programs at local public libraries. 

Programs like this one operate independently of the library, and receive no funding from 

the library (available at: <http://www.literacyvolunteers.org/home/index.htm>. 

• The telecommunications company, Verizon, runs a literacy Internet network, Verizon 

reads. This network links literacy organizations with each other and the public. It 

provides a means for finding answers to questions about literacy programs, and serves as 

a means for sharing resources and knowledge (available at: 

<http://www.verizonreads.com/>). 

• Laubach Literacy is an international non-profit educational organization that is helping to 

train the world to read. They provide grants to local literacy programs with over 1,100 

local programs and 30 state organizations participating in a national network of nearly 

90,000 literacy volunteers (available at: <http://www.laubach.org/home.html>). 

These literacy programs represent only a few of the programs that exist. Regardless of the 

quality and effectiveness of a library’s information technology infrastructure, individuals who 

lack basic information and network literacy skills cannot take advantage of that infrastructure. 

 Public libraries have and continue to develop and implement programs and services that 

address technology, information, and network literacy in their communities. In terms of policy 

issues, however, there are a considerable number of topics that may require attention: 

• What levels of support are currently available to public libraries to develop technology, 

network, and information literacy efforts? 

• How can technology, network, and information literacy programs be integrated with 

traditional literacy programs – or should they not be integrated at all? 

• Should public libraries better coordinate their technology, network, and information 

literacy programs with other organizations? 

• What are the impacts and benefits from literacy programs in terms of local community 

development and other factors? 

Literacy issues continue to become more complex due to the arrival of the networked 

information environment. The degree to which literacy in a print environment affects literacy in 

a networked environment may require additional research and perhaps policy development. 

 

E-RATE 

The Telecommunications Act of 1996 (P.L. 104-104, section 254) established in principle a 

preferential telecommunications discount structure for schools, libraries, and rural health care 

providers. Through a Universal Service Fund (USF), the Act created the education rate, or Erate, through which libraries and schools would receive discounts on their telecommunications 

Bertot & McClure 16 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

services, communications equipment, and internal wiring. The purpose of E-rate was to make 

communications technologies such as the Internet more affordable for libraries and schools while 

maintaining a competitive telecommunications market. 

Background 

 The Act did not specify the implementation mechanisms of the E-rate. Rather, the Act 

directed the Federal Communications Commission (FCC) to develop an implementation plan and 

means through which to manage the E-rate program. The FCC oversees the program, but 

telecommunications companies (e.g., long distance phone companies, cell phone companies, and 

pager companies) fund the USF (capped at $2.5 billion per year) for E-rate discounts. To 

administer the E-rate program, the FCC established two non-profit corporations – the Universal 

Service Administration Company (USAC) to manage the collection and disbursement of the Erate discounts and the Schools and Libraries Corporation (SLC) to administer the E-rate 

application, processing, and approval processes. The SLC then became the Schools and 

Libraries Division (SLD) of the USAC. Schools and libraries must apply for discounts through 

the Schools and Libraries Division of the Universal Service Administration Company, which 

then disperses the existing amount of discounts among the applicants. 

 Schools and libraries are eligible for E-rate discounts that range from 20% to 90% based on 

two factors: 1) Poverty, as measured through the percentage of students eligible for the National 

School Lunch Program, and 2) Location, as measured by the metropolitan status of Rural or 

Urban. Essentially, the more impoverished and higher cost area (in terms of telecommunications 

costs) a community, the higher the discount rate that school and/or library receives (see 

<http://www.sl.universalservice.org/reference/dmatrix.asp>). 

For example an urban library or school with 20% to 34% of its students eligible for the 

National School Lunch program receives a 50% discount off E-rate eligible items, while a school 

or library located in a rural area with the same number of students eligible for the lunch program 

would receive a 60% discount of E-rate eligible items. Whenever the percentage of students 

eligible for the School Lunch Program is less than 50%, the rural area receives a greater discount 

than the urban area. If the percent of students eligible for the lunch program is greater than or 

equal to 50%, urban and rural schools or libraries receive the same E-rate discount. 

In addition to the eligibility requirements, schools and libraries must also file a technology 

plan with their Universal Service Fund application (Section 254(h)(1)(B), of the 

Telecommunications Act of 1996, and FCC Order 97-157, paragraph 573). The technology plan 

must show that the Institution has developed educational goals and devised strategies for 

achieving those goals, as well as having the necessary trained staff to accomplish their strategy. 

The plan must show what technology, hardware, and software are already owned, and provide a 

description of technology still needed to accomplish the institute’s goals. In addition the plan 

must include a budget for accomplishing those goals. Lastly, the plan must have a specified 

evaluation process. 

 

The FCC determined which services are eligible for E-rate discounts. These services are: 

Bertot & McClure 17 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Telecommunications services such as local and long distance phone service as well as 

Internet connectivity; 

• Communications equipment such as hubs and routers; and 

• Internal connections such as wiring. 

Schools and libraries receive no actual funds under the E-rate, but rather discounts for services. 

The telecommunications company providing the discounted service receives reimbursement for 

the discount from the Universal Service Fund. Not covered under E-rate discounts are desktop 

computers, software, or technology training. 

Historical Analysis of E-rate 

 Since 1934, the United State government has recognized the necessity for providing citizens 

with the means to access telecommunication services. The Communications Act of 1934 (47 

U.S.C. 151 et seq.) included language that promoted access to telecommunications services, “To 

make available, so far as possible, to all the people of the United States a rapid, efficient Nationwide, and world-wide wire and radio communication service with adequate facilities at 

reasonable charges,” which initiated the concept of Universal Service for residential customers.

 In 1996, the Congress expanded this commitment to Universal Service by passing the 

Telecommunications Act of 1996 (P.L. 104-104). This law amended the Telecommunications 

Act of 1934 by adding section 254 which 1) established principles of Universal Service, and 2) 

expanded Universal Service to include schools, libraries, and rural health care providers as well 

as residential customers (as discussed above in the Digital Divide section). 

 Since the passage of E-rate, there have been many concerns and challenges raised with 

regards to E-rate funding. Concerns have been raised about “excessive” forms and procedures 

needed to apply for the discounts; irregularities in the administration of E-rate funds; and the 

degree to which the telecommunications industry actively supports and participates in the 

program. The list of concerns is large and beyond the scope of this paper, but the section below 

touches on the highlights of the controversies surrounding E-rate. Gilroy has detailed these and 

other concerns and issues related to the E-rate and provides a detailed assessment of the program 

(Gilroy, 2000). 

Non-Administrative E-rate Areas of Controversy 

The Telecommunications Act of 1996 has not been free of complications and challenges. 

Each year new issues arise that threaten the implementation and/or continuation of the E-rate. 

Challenges to this law have been many, and as such are not covered here in their entirety. The 

majority of the concerns center on the implementation of E-rate including: 

• The list of services covered by the program; 

• The collection of funds to cover services; 

• The extensiveness and labor involved in completing the application process; 

Bertot & McClure 18 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• The linking of E-rate to the Children’s Internet Protection Act and the Neighborhood 

Children’s Internet Protection Act; and 

• The effectiveness of the agency in charge of administering the program. 

Some members of Congress argue that the FCC went beyond the intent of the law by allowing Erate funding to cover unnecessary services. They believe that the E-rate program has turned into 

a multibillion-dollar operation providing schools and libraries more resources than they actually 

need. These opponents would prefer to see a minimum connectivity level established. For 

instance connecting schools at a baud rate of 56kbps rather than 100-Base T (connectivity is 

covered in the next section of this paper – broadband connectivity). 

 Secondly, there has been much discussion regarding the funding of the E-rate program. 

Telecommunication companies assess commercial and residential users a flat rate or fee to cover 

Universal Service. Representatives Bliley, Tauzin, Weller and others argue that the FCC has 

levied a tax on telephone subscribers, and consider this action to be illegal in that only Congress 

can enact a tax. Several bills were introduced into the 106th Congress including H.R. 1746, the 

Schools and Libraries Internet Access Act, that would have provided a telephone excise tax to 

fund the E-rate. In addition, this act moves the administration of the E-rate from the FCC to 

NTIA. No further action was taken on this bill, but this bill may reappear in the 107th Congress. 

 Another controversy surrounding E-rate concerns the application process. Many small 

libraries and schools do not have the trained personnel to process the application forms (Carvin, 

2000). This puts an onerous burden on the library’s staff, and often requires specialized training. 

Organizations such as the American Library Association and various State Library agencies 

provide training sessions that address a number of E-rate-related topics. But even the training 

sessions require funding for travel and the loss of that staff member for the day. Those libraries 

and schools that most need the Universal Service fund are the institutions that can least afford 

travel and training expenses. Moreover, many of these institutions lack adequate base funding, 

and can little afford to forfeit staff time for training and the filing of paperwork. 

 In addition, the overall existence of the E-rate program has generated some controversy. 

Many opponents to E-rate feel the program duplicates other services already in existence at the 

Department of Education. The Bush Administration indicated initially that it would like to see 

the administration of E-rate moved to the Department of Education, but then decided to leave it 

at the FCC. Others, such as Representatives Tauzin and Weller, believe that the NTIA would 

provide better administrative guidance, and introduced H.R. 1746 in the 106th Congress to 

institute the change. 

 A final issue to be addressed regarding the E-rate is Public Law 106-554, the Children’s 

Internet Protection Act. This law links federal funding to the content of Internet websites made 

accessible via schools and public libraries. (This law is discussed in depth in the Children’s 

Internet Protection Act section of this paper.) Basically, schools and libraries must filter their 

Internet access so as to restrict access to pornographic material or lose their E-rate discounts. 

Bertot & McClure 19 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Is E-rate Successful? 

 For the majority of schools and libraries, E-rate appears to be increasing connectivity 

throughout the United States. Several studies have been done attesting to this outcome (Carvin, 

2000; Trotter, 2000; EdLinc, 2000; Puma, Chaplin, and Pape, 2000; McClure and Bertot, 2000). 

A review of the findings of these studies shows that: 

• The E-rate program is increasing opportunities for learning for all Americans (EdLinc, 

2000). These opportunities include virtual field trips, email correspondence with 

scientists, and videoconferencing. 

• In some poor communities schools and libraries are the first to experience broadband 

connectivity (EdLinc, 2000). This causes a chain reaction throughout the community 

enticing others to connect to the Internet. 

• The E-rate program is fostering partnerships with other community institutions (EdLinc, 

2000). Schools and libraries are forming alliances with other Community Access Centers 

such as community colleges, senior citizen centers, and museums. 

• Public Schools receive a vast majority of E-rate funding, with libraries receiving between 

3-4% of E-rate discounts throughout E-rate years 1 through 3 (Puma, Chaplin, and Pape, 

2000; <http://www.sl.universalservice.org/funding/>). 

• Larger districts, schools, and libraries are more likely to apply for E-rate discounts than 

smaller programs (Puma, Chaplin, and Pape, 2000). 

• E-rate discounts have been leveraged successfully by public libraries to gain additional 

local resources, Gates Foundation awards, and state library LSTA awards (McClure and 

Bertot, 2000). 

• Network infrastructure and Internet access have improved (Carvin, 2000). 

Public Schools are taking advantage of the E-rate program. Schools and libraries are benefiting 

from the program, and therefore communities are also benefiting. Small schools and libraries do 

not appear to be applying for E-rate. Overall, public libraries have received approximately 4% 

of all E-rate discounts. It is not possible to determine, however, additional library receipts of Erate discounts in the areas of school libraries (applications come from the schools as a whole, not 

the school libraries) or consortia, which may include libraries in the mix. 

 

E-rate’s Impact on Public Libraries 

 In 1998, a study showed that 83.6% of public library outlets were connected to the Internet 

(Bertot and McClure, 1998). But the study also showed that only 73.3% of public library outlets 

provided public access to the Internet. A follow-up study in 2000 found that 95.7% of public 

library outlets have an Internet connection and that 94.5% offer public Internet access – an 

increase of over 20% (Bertot and McClure, 2000). This same study showed that 48.9% of public 

libraries used E-rate discounts towards their Internet connectivity. The degree to which it is 

possible to make a direct link between these increased rates of connectivity and the E-rate, 

however, is not clear. 

Bertot & McClure 20 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 The linking of E-rate discounts with Internet filtering may cause additional concerns for 

public libraries. If public libraries do not have an Internet policy plan filed with the FCC 

meeting all of the requirements of CIPA, then they could lose their E-rate discounts. This could 

be detrimental to the ability of communities to access the Internet at the their public libraries. 

 Currently, a study is underway to better understand the impact and benefits from the E-rate 

for public libraries (McClure, Ryan, and Bertot, 2001). Preliminary work suggests that the

convergence of a number of programs such as the Library Services and Technology Act (LSTA), 

the E-rate, the Gates Foundation Public Library Technology programs, State Library state aid, 

and local resources have combined to improve significantly public library information 

technology infrastructure (McClure, Ryan, and Bertot, 2001). Findings from this study will 

better describe the benefits and impacts of E-rate on public libraries and will be available by 

January 2002. 

 The E-rate continues to be a highly controversial program regarding a number of issues such 

as: 

• Which schools and public libraries should receive the e-rate discount? 

• What services should be eligible for E-rate discounts? 

• Can the E-rate application process be streamlined or made less labor intensive? 

• Are there better methods to collect the funds for the E-rate discounts, and who should be 

in charge of the process? 

All of these issues are important and deserve further review and research, but the overriding 

question appears to be does E-rate work, and what are its impacts? More schools and public 

libraries are currently connected to the Internet than before the E-rate discount program started in 

1996, but would these schools and public libraries have become connected even without the Erate program? If so, at what level (e.g., bandwidth, workstations, public spaces such as 

classrooms) would their connectivity be without E-rate discounts? How many schools and 

public libraries connected to the Internet can be attributed exclusively to the E-rate discount 

program? 

UNIVERSAL SERVICE – BROADBAND 

 Broadband refers to telecommunications services with high information carrying capacity. 

The FCC defines broadband to the home as “the capability of supporting at least 200 kilobits per 

second (kbps) in the consumer’s connection to the network (“last mile”), both from the provider 

to the consumer (downstream) and from the consumer to the provider (upstream)” (FCC in 

National Telecommunications and Information Administration and United States Department of 

Agriculture, 2000, p.6.). 

 In other words, broadband is an Internet connection that allows the consumer to transfer 

information in both directions at a minimum of 200 kbps. “Last mile” is a term referring to the 

distance between the residence and the communications backbone or infrastructure. This is not 

Bertot & McClure 21 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 2-1. Time to Download a 1mbps file by differing connectivity technologies. 

Modem 

(56kbps) 

ISDN 

(128kbps) 

Satellite 

(DirecPC, 400kbps) 

T1 

(1.5mbps) 

DSL 

(7.1Mbps) 

2 min, 22 sec 1 min, 4 sec 20.5 sec 5.3 sec 1.15 sec 

kbps=kilobytes per second 

mbps=megabytes per second

achievable with a standard dial-up modem over existing copper-wire telephone lines. 

Broadband better allows individuals to: 

• Download and send large files; 

• Access multi-media services, such as Internet-based video conferencing, streaming 

video/audio, and voice over IP; and 

• Engage in future bandwidth intensive applications under development or as yet not 

invented. 

For example, cable modem service is approximately 50 times faster than a dial-up 56kbps

connection (see <http://bandwidthplace.com/> for examples speed comparisons), depending on 

the implementation of the service and general Internet traffic (see Table 2-1).4

 

Background 

 Several types of broadband connections exist for U.S. telecommunications consumers, but 

none of them are pervasive throughout the country at the present time. Individuals that live in 

large urban centers are more likely to have access to broadband options than individuals in rural 

areas. The following section describes several alternative mechanisms available in the United 

States including cable modem, Digital Subscriber Lines (DSL), microwave, fiber optics, and 

satellite. 

 The two most common broadband options include cable modem and DSL. Cable modem 

technology is the most prevalent form of broadband accessibility in the U.S. today due to its use 

of the same coaxial infrastructure as cable television. For Internet connectivity, the cable 

infrastructure requires various upgrades by the cable companies, and consumers require a cable 

modem and computer. A disadvantage to cable modem technology is that it requires a signal 

amplifier every 200 feet, and each amplification adds noise and distortion to the signal. DSL 

operates using standard telephone company infrastructure and has a maximum transmission 

length of 18,000 feet unless the telecommunications company installs additional equipment. 

 

4

 Actual data transmission rates from a workstation vary based on a number of factors that include general Internet 

traffic, connection type (for example, a 56kbps dial-up modem is limited to 54kbps data transmission speeds due to 

FCC regulations), and connection implementation (e.g., a switched 56kbps leased line can provide 56kbps to all 

workstations sharing the connection; however, a non-switched connection that uses hub technology, shares the 

bandwidth – therefore, more workstations sharing a non-switched connection means less actual transmission rates 

for each connected workstation). 

Bertot & McClure 22 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 Broadband connectivity is available increasingly in large urban areas, but installation is 

lagging in rural areas. Cable modem service is available in 65% of the towns with a population 

greater than 250,000, while DSL service is available to greater than 56% of the towns with a 

population larger than 100,000. Both DSL and Cable availability are less than 5% in towns with 

a population under 10,000 (National Telecommunications and Information Administration and 

United States Department of Agriculture, 2000, p.ii.). Moreover, the greater the distance 

between telecommunications customers, the greater the cost of installing the communications 

infrastructure. Therefore, broadband services to rural areas occurs less rapidly than for urban 

areas. Broadband implementation and availability in urban areas, however, is not problem free 

(NTIA, 2000). 

 It is important to note, that while this section does not review all possible 

telecommunications technologies, new technologies are in constant development. Moreover, 

existing technologies undergo regular changes to increase capacity and efficiency. For example, 

wireless technologies are undergoing capacity increases that should hold promise in the near 

future. The Bandwidth Place <http://bandwidthplace.com/> provides additional information and 

resources regarding existing and emerging telecommunications technologies. 

Legislation 

 The cost of installing telecommunications infrastructure in rural areas has always been more 

expensive than for urban areas. This was one of the reasons the Congress passed the 

Communications Act of 1934 (47 U.S.C. 151 et seq.). It stated that: “To make available, so far as 

possible, to all the people of the United States a rapid, efficient Nation-wide, and world-wide 

wire and radio communication service with adequate facilities at reasonable charges.” The 

government wanted to ensure that all Americans had access to telecommunications equipment 

regardless of their income or where they lived. With this law the U.S. government instituted the 

concept of Universal Service for residential customers. 

 In 1996, Congress expanded the commitment to universal service by passing the 

Telecommunications Act of 1996 (P.L. 104-104), which amended the Communications Act of 

1934 by adding section 706. This amendment directed Federal and state regulatory bodies, such 

as the FCC, to encourage deployment of advanced telecommunications capability to all 

Americans by making regulation to promote competition and remove barriers to infrastructure 

investment. It further defines advanced telecommunications capability as “high speed, switched, 

broadband telecommunications capability that enables user to originate and receive high-quality 

voice, data, graphics, and video telecommunications using any technology” (47 USC, section 

706 (c)(1)). The law also requires the agencies to conduct studies periodically to estimate the 

progress of telecommunications installation, and to see if installation is occurring at a uniform 

rate in both rural and urban areas. 

 In general, rural areas are characterized by low-density populations do not provide enough 

financial incentive for telecommunications companies to invest in infrastructure. In these areas 

there is inadequate revenue to sustain one company, let alone drive competition between many 

companies. Indeed, local telephone services in the U.S. are still under the influence of local 

Bertot & McClure 23 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

monopolies – the regional Bell operating companies (RBOCs). Five years after passing the 

Telecommunications Act of 1996 there still exists major discrepancies in broadband and 

telecommunications services between rural and urban areas. It is possible that these 

discrepancies will become more pronounced as the price for broadband – such as DSL – may 

increase rather than decrease over the next few years (Platt, 2001). 

Implications for Libraries 

 Maximizing the bandwidth at public libraries enhances the caliber of networked service that 

libraries can provide to their patrons. In a recent study measuring the level of bandwidth 

connectivity at public libraries, 53.6% of public library outlets are connected to the Internet at 

speeds greater than 56kbps, and 35.4 % of rural libraries are connected to the Internet at speeds 

greater than 56kbps (Bertot and McClure, 2000). Moreover, 47.8% of libraries that have 

populations of legal service areas of less than 100,000 have Internet connection speeds of greater 

than 56kbps, as compared to 86.6% of libraries that have populations of legal service areas of 

greater than 100,000 (see Chapter 3). Approximately 62% more public libraries are connected at 

56kbs or greater in the year 2000 than they were in 1998 (see Chapter 3). But the fact of the 

matter is that “adequate bandwidth” is a moving target and as advanced services are provided 

over the Internet, even T1 levels of connectivity may prove to be inadequate to support such 

services for public access institutions such as public libraries.

 As Internet applications demand more bandwidth, public libraries will need to meet that 

demand in order for its patrons to use the Internet to its fullest potential. These applications 

might include searching databases containing video or audio information or taking a virtual tour 

of the Smithsonian Institute. As the government moves to a more digital government in general 

and digital Federal Depository Library program in particular, patrons will need adequate (defined 

here as computing and telecommunications services and resources) and access to these materials. 

Downloading large government documents, or engaging digital government services, at low 

bandwidth could take excessive time and prevent others from using limited library resources – 

thus not providing adequate access. 

 A number of Internet applications have emerged that require large bandwidth capacities – 

streaming video, streaming audio, interactive games, to name a few. Each of these applications – 

and others not mentioned or yet to be implemented – has public access implications for public 

libraries. For example, streaming audio and video are methods through which some universities 

provide online learning courses and degree programs. Also, increasingly, government agencies 

provide multi-media information resources and services that take advantage of these 

technologies. At issue is how libraries can afford to pay for such connectivity, the degree to 

which the telecommunications can provide broadband services, and the extent to which new 

Internet services will require broadband connectivity beyond a T1 connection, much less current 

levels of connectivity in public libraries. For public libraries, the scenario is “the endless 

upgrade” and it is unclear how they will be able to keep pace with the need for such broadband 

connectivity. 

Bertot & McClure 24 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 Broadband connectivity also has a number of issues that require further research and 

discussion. These issues include: 

• What is adequate broadband connectivity for public libraries, given variations in public 

library size, location, and other library-specific factors? 

• Is broadband connectivity a luxury or a necessity? 

• What are the impacts of not having broadband connectivity? 

• What are the measurable benefits of having broadband connectivity? 

• Which of the several types of broadband connectivity will work the best for public 

libraries? 

The number one issue facing policy makers on broadband connectivity, however, is how to 

ensure that all Americans have equal access to broadband connectivity regardless of where they 

live. How can policy makers provide incentive to broadband service carriers to provide their 

services to all parts of the country including rural areas and Native American Reservations? This 

key issue requires resolution if there is to be true Universal Service as legislated in the 

Telecommunications Act of 1996. 

LIBRARY SERVICES AND TECHNOLOGY ACT (LSTA) 

The Library Services and Technology Act (P.L. 104-208) (LSTA) provides federal grants to 

libraries, passed through state library agencies, to fund technology and to improve services for 

under-served communities, such as Native Americans and low-income urban areas. LSTA is 

scheduled for re-authorization during the 107th Congressional session; thus, there is considerable 

current discussion about the law. 

 The Institute of Museum and Library Services (IMLS) administers LSTA, and provides 

funding directly to state library agencies. The state library agencies have the responsibility of 

distributing grants to various libraries throughout their states – a process that typically involves a 

competitive grant application process. IMLS distributes funds to the states based on the 

population of the state. To be eligible for an IMLS grant, states must file a five-year plan that 

outlines library programs. 

 In addition to providing funding to states through LSTA, IMLS has four other types of 

library programs for which individual libraries and other organizations can apply: 

• National Leadership Grants; 

• Native American Library Services Grants; 

• Native Hawaiian Library Services Grants; and 

• National Award for Library Service. 

Each of these programs has a set of goals and eligibility requirements covered on the IMLS Web 

site (see <http://www.imls.gov/>). Overall, the goal of these programs is to improve technology 

within libraries and to provide improved services to persons that might have difficulty using a 

library because of education, location, or income level. 

Bertot & McClure 25 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

LSTA Legislative History 

 LSTA is administered by IMLS, which was established by the Museum and Library Services 

Act of 1996 (P.L. 104-208) and revised by the Museum and Library Technical and Conforming 

Amendments of 1997 (P.L. 105-208, 20 USC 9101). This law replaced the Library Services and 

Construction Act (P.L. 101-254) (LSCA), and transferred administration of LSCA/LSTA from 

the Department of Education to the Institute of Museum and Library Services. 

 The purpose of the Museum and Library Services Act of 1996 as stated under Subtitle B – 

Library Services and Technology Act (LSTA) section 212 was to: 

• Consolidate Federal library service programs; 

• Stimulate excellence and promote access to learning and information resources in all 

types of libraries for individuals of all ages; 

• Promote library services that provide all users access to information through State, 

regional, national, and international electronic networks; 

• Provide linkages among and between libraries; and 

• Promote targeted library services to people of diverse geographic, cultural, and 

socioeconomic backgrounds, to individuals with disabilities, and to people with limited 

functional literacy or information skills. 

The intent of this law was to decrease administration costs and increase administration efficiency 

by consolidating federal library programs. Additionally, the Museum and Library Services Act 

of 1996 increased emphasis on technology in libraries, and the importance of information access 

to all U.S. citizens regardless of their location, income level, abilities, or skills. This law also 

encourages cooperation between libraries and museums, and the formation of library

consortiums to share materials and services. 

Issues with LSTA legislation 

 It is unclear if consolidating services under LSTA decreased administrative costs for running 

federal library programs. Evidence that supports claims one way or the other on this issue is 

difficult to obtain. In addition, administrative consolidation may or may not have resulted in 

overall reduced funding for library programs. In fact, yearly authorizations for LSTA can vary 

considerably. President George W. Bush’s proposed FY2002 budget requested a decrease in 

IMLS earmarked funding to $193 million for IMLS programs (Bush, G.W., 2001a) versus $207 

million in FY2001 (ALAWON, 2001). 

 In addition, programs not combined specifically under IMLS may face decreases in funding 

or no funding under the guise that government does not need to duplicate services. For example, 

the Bush Administration proposed zero funding for NCLIS with the justification that other 

agencies could assume responsibility for NCLIS activities – though those agencies were not 

identified in the budget statement. Last year NCLIS received almost $1.4 million to conduct a 

range of programs – some of which included research projects and the development of a national 

Bertot & McClure 26 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

statistics program for libraries. Which agency would acquire these programmatic responsibilities 

is unclear should NCLIS not be funded for FY 2002. 

 This lack of NCLIS funding causes a number of policy predicaments. By law, Section 703 of 

the Museum and Library Services Act of 1996 amends section 5 of the National Commission on 

Libraries and Information Science Act (20 USC 1504) to direct NCLIS to advise the IMLS 

director on policies relating to library services. NCLIS also has the responsibility of ensuring 

that IMLS coordinates their activities with other federal government agencies performing similar 

activities. 

 Also, this law replaced the Library Services and Construction Act (P.L. 101-254) which had 

provided funding for the construction of new libraries. LSTA replaced this law, but no 

provisions were made in LSTA to provide federal funding for the construction of new libraries. 

The role of LSTA and the federal government in supporting library construction is currently 

under debate within the library community. Senator Schumer introduced Senate Bill 671 in April 

2001 to provide for library construction and technology enhancements. To date, the bill has not 

made progress through Congress. 

LSTA Impact on Public Libraries 

The Museum and Library Services Act of 1996 provides funding for a number of library 

programs through LSTA. LSTA funding provides seed money for establishing various programs, 

to include programs include literacy training and technology connectivity. Depending on a 

funding formula based primarily on population, funds from IMLS are awarded to each state 

library and then used in that state for various projects and priorities (Institute of Museum and 

Library Services, 2001b). The range of programs and services funded by LSTA is quite broad. 

Many of the state libraries are currently conducting studies to assess the impact and benefits of 

LSTA. Results from these studies should become available by the end of 2001. 

 But more comprehensive studies are necessary to identify and measure the impact of IMLS 

funding on the public library and the local community. Congress and the public need to know 

how IMLS funds are being used and that those funds are being used effectively. These and 

related issues will likely take additional attention during the Fall of 2001 and Spring of 2002 as 

LSTA will be reauthorized this Congressional session. There is a significant opportunity during 

this reauthorization process to refine the legislation and clarify/expand its areas of coverage and 

funding. A number of library officials hope to expand the current level of funding of roughly 

$150 million to $500 million. 

 The concept of placing the governance of federal library and museum programs within a 

single government entity designed specifically for libraries and museums have been criticized – 

some believing that library programs were not best served by being linked to museums. Several 

issues remain about how this governance will work. These issues include: 

• Will combining federal library programs under one agency actually reduce administrative 

costs and increase government efficiency? 

Bertot & McClure 27 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Should LSTA funds support the construction of new libraries? 

• Will IMLS result in the demise of other federal government agencies that play a vital role 

in public library services to Americans, or will these agencies be incorporated into IMLS 

without a loss of overall funding for public libraries? 

• What are the impacts and benefits that have resulted from IMLS programs that support 

libraries? 

• What are the appropriate levels for funding IMLS programs? 

It is important that some means of funding library research remains viable. IMLS provides a 

major source of funding for library and information science research – to what degree is this 

funding adequate and to what degree have the resulting research projects provided important and 

useful findings and results? 

THE CHILDREN’S INTERNET PROTECTION ACT 

 Late in the 106th Congress, Congress passed the Children’s Internet Protection Act (CIPA) as 

Title VII of the Consolidated Appropriations Act for 2001 (H.R. 4577). President Clinton signed 

the appropriations act into law (P.L. 106-554) in December 2000, making CIPA effective as of 

April 20, 2001.

 Public Law 106-554 regulates the ability of individuals to view Internet content in libraries 

and public schools that receive federal funding used for Internet infrastructure and connectivity. 

This law will affect institutions receiving funding through LSTA grants, Title III of the 

Elementary and Secondary Education Act, and/or the E-rate discount program. 

Provisions 

 CIPA requires libraries receiving money through LSTA or E-rate to install and have 

operational a “technology protection measure” (TPM) that blocks or filters Internet access of 

visual depictions deemed inappropriate for children – as defined by the federal government 

rather than the local community. Of primary importance, the TPM must work and be in 

operation when individuals, regardless of age, are accessing information from the Internet. Also 

worthy of note is that this law prohibits visual depictions only, not textual material. 

 Included in the provisions of the law is a requirement that institutions receiving E-rate must 

also have an Internet safety policy in place. This policy must stipulate that minors cannot access 

“inappropriate matter” on the Internet with “inappropriate matter” defined at the local level. The 

policy design must also a) provide a system to protect children from harmful materials, b) 

prevent children from disclosing personal identification information, and c) protect their safety 

when using chat rooms, email, and other forms of direct electronic communication. The policy 

must also stipulate minors should not pursue unlawful activities on the Internet such as hacking 

(Susman, 2001). The institution must present and discuss the policy at a public hearing and have 

the policy certified by the Federal Communications Commission. 

Bertot & McClure 28 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 Certification for compliance with the law becomes effective for libraries receiving funding in 

year four, July 1, 2001 through June 30, 2002. These libraries must certify themselves with the 

Federal Communications Commission (FCC) using FCC form 486, and have it postmarked by 

October 28, 2001. To receive certification, libraries must have the safety policy and “technology 

protection measures” (TPM) in place or be in the process of designing and installing the policy 

and measures by year 5. At this time, certification does not require libraries to prove the 

effectiveness of the TPM and policy, only that they are in place. 

Background 

 CIPA is not the first law passed with the objective of providing children protection from 

indecent materials on the Internet. The Communication Decency Act of 1996 (CDA) (P.L. 104-

104) made it a crime to knowingly transmit “obscene or indecent” messages to anyone under the 

age of 18. This law was determined to be unconstitutional by the Supreme Court in Janet Reno, 

Attorney General of the United States et al., Appellants v. American Civil Liberties Union et al.

District Court E.D. Pennsylvania, Case No. 96-511 June 26, 1997, on the grounds it violated the 

First Amendment rights of adults. 

 The next attempt to regulate material transmitted over the Internet was The Child Online 

Protection Act (COPA) (P.L. 105-277). The law made it a crime to communicate material over 

the Internet considered harmful to minors. U.S. District Court Judge Lowell Reed in American 

Civil Liberties Union, et al. v. Janet Reno, U.S. District Court, E.D. Pennsylvania, Case No. 98-

5591, October 22, 1998, granted an injunction against this law because it violated First 

Amendment rights, and the injunction still stands. 

 Another court case involving Internet filtering software was Mainstream Loudoun v. Board 

of Trustees of the Loudoun County Library U.S. District Court, E.D. Virginia, Civil Action No. 

97-2049-A. In this court case Judge Leonie M. Brinkema ruled that Loudoun County library 

could not continue to use Internet filtering software because it interfered with the First 

Amendment rights of both the library patrons and the website providers. 

 It would appear from these three instances that there exists a possibility that CIPA could be 

declared unconstitutional on the basis it violates First Amendment rights. Both the American 

Library Association and the American Civil Liberties Union have filed separate lawsuits in the 

Eastern District of Pennsylvania against the constitutionality of CIPA. A key factor is that the 

law requires the “technology protection measure” (TPM) be turned on regardless of the Internet 

user’s age. 

 In two previous cases, the Eastern District has decided against legislation because it violated 

the adult users First Amendment rights. It is possible that the court will again find that this 

legislation violates the First Amendment rights of adult users. Until that decision is made, 

libraries and schools must still comply with the legislation and become certified with the FCC or 

face having their Federal funding interrupted. 

Bertot & McClure 29 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Filtering Software 

 One problem associated with CIPA is it requires the use of a “technology protection 

measure” (TPM). The only technology that currently exists to provide this protection is Internet 

filtering software. The law states that this software must do the intended job, that is to block 

visual depictions inappropriate for children. Many librarians believe that no TPM exists that is 

capable of accomplishing this task. 

 Several studies demonstrate that Internet filtering software does not block adequately 

inappropriate material, while it does block some appropriate material. For example, Schneider 

conducted a study, The Internet Filter Assessment Project (TIFAP), that demonstrated the 

inability of Internet filtering software to block inappropriate material while blocking appropriate 

and needed material (Schneider, 1997). A more recent study conducted by Consumer Reports 

resulted in similar findings – that Internet filtering software does not adequately block 

inappropriate material, but does block appropriate material – to TIFAP (Consumer Reports, 

2001). Under the law, libraries must have in place TPM that block all visual depictions 

inappropriate for children. 

 A provision of CIPA formed the Children’s Online Protection Act (COPA) Commission to 

find viable policy alternatives for protecting children from inappropriate material on the Internet. 

The Commission recently filed a report with Congress on their findings. The Commission’s 

members found that Internet filtering software did not work adequately enough to recommend it 

as a legal means for protecting children from inappropriate material on the Internet (COPA 

Commission, 2000). The Commission proposed that more studies were necessary to determine 

the effectiveness of Internet filtering software, and more research was needed to produce 

technology that could accomplish the task. 

Impact of CIPA on Public Libraries 

CIPA requires public libraries receiving E-rate to have a certified Internet safety policy in 

place that addresses the various topics discussed above. This policy must be certified with the 

governing agency, it must be presented to the public with discussion in a public forum, and it 

must be implemented and followed. It is problematic if these requirements put an “undue 

burden” on the Public Library in order to maintain E-rate funding. Library boards may object to 

having to comply with federal mandates to keep funding. 

 The law also requires the library to install technology that could place the library in violation 

of their patrons’ First Amendment rights. Libraries could be put in the difficult position of losing 

their federal funding for technology and Internet access or face being sued by their patrons. In a 

previous Michigan case, rather than face costly litigation from patrons denied their First 

Amendment rights, the Gary Byker Memorial Library ceased offering Internet access services to 

their patrons when faced with mandated Internet filtering (Yonkman, 1999). This could be an 

unintended consequence of the law, but a consequence nonetheless. 

Bertot & McClure 30 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 A situation posed by CIPA is the requirement that libraries install TPMs that work or lose 

their federal funding, with “work” being the operative term. There is considerable debate as to 

the degree TPMs are guaranteed to block all visual depictions inappropriate for children. 

Libraries may not be able to comply with CIPA given the current technological effectiveness of 

the blocking software. Currently the FCC is not requiring that the TPMs be effective, just that 

they are in use. In order to keep their federal funding libraries must make an attempt to comply 

with the law. In the mean time more development may be needed to find technological means 

that are effective in blocking such content. 

 A third factor related to this legislation is its impact on library patrons’ ability to access 

networked information. This law was designed to protect children, but does it? Filtering 

software could prevent individuals from accessing needed information. This may not matter for 

finding a recipe, but it might matter for an individual diagnosed with breast cancer and seeking 

information. Most filtering software would prevent individuals from researching topics such as 

breast cancer (Schneider, 1997). 

 Finally, it is interesting to note that at the same time there are government efforts to reduce 

the Digital Divide, laws have been passed that threaten to expand the Digital Divide. These laws 

may threaten institutions that cannot comply with that law and force libraries to install 

technological devices that impede the flow of needed information – and thus, limit the ability of 

individuals in our society to access needed information. 

 These laws could decrease federal funding of technology and Internet access in public 

libraries. They also have the potential to increase the digital divide by limiting the accessibility 

of the Internet and by filtering the content of the Internet for those individuals in our society that 

cannot afford the prerequisite equipment and connectivity fees necessary for personal Internet 

access in their homes. 

 This topic remains highly controversial in that libraries may not have the ability to comply 

with the law, and by complying with the law they may be in violation of the First Amendment 

rights of their patrons. Some policy issues that still require resolution on this topic are: 

• Does there exist a technological means through which to prevent children from viewing 

visual depictions that are inappropriate for children? 

• By installing such technology means are public library administrators infringing on the 

First Amendment rights of their adult patrons? 

• Will these technology means further increase the Digital Divide by blocking individuals 

from accessing needed information? 

• To what degree will libraries simply refuse any type of federal program support because 

they do not wish to comply with CIPA? 

This is a highly contested issue between the protection of First Amendment rights, and the desire 

to protect children from inappropriate Internet-based material.

 It remains unclear how, specifically, individual public libraries will respond to CIPA. For 

some, it may be the case that access to the funds provided by E-rate or LSTA are too significant 

Bertot & McClure 31 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

to not comply with the provisions in CIPA. On the other hand, some public libraries may be 

willing to forgo such funding on principle. For example, San Francisco Public Library 

announced recently that it will not apply for E-rate funding (approximately $20,000) due to the 

CIPA requirements of E-rate (Scheeres, 2001). In the end, the impact of public library Internet 

connectivity due to CIPA remains unclear at this time. 

THE FEDERAL GOVERNMENT’S SUPPORT FOR LIBRARIES 

 Due to the limitations of this chapter, it is not possible to cover fully the legislative 

foundation of federal funding and support of libraries. Molz and Dain (1999) provide a thorough 

analysis of the legislative history up to 1997. The four main goals of U.S. library legislation 

have been the: 

• Development of a National Information Infrastructure; 

• Provision of services to isolated locations, and to disenfranchised Americans; 

• Provision of educational opportunities such as literacy and computer training; and 

• Provision of grants for Library [and information] Science research. 

Policy issues related to these goals have been discussed earlier in this chapter. This section 

provides an overview of selected federal efforts in support of library services. 

LSA/LSCA/LSTA 

 The first legislation written for public libraries with the intent of improving the information 

infrastructure of the nation was the Library Services Act of 1956 (P.L. 84-597). This law 

provided federal funds for public library services in rural areas. Monies were dispersed to the 

states based on population densities. The intent of this law was to ensure individuals in rural 

areas received the same opportunity to access information as their counterparts in urban areas. 

 The Library Services and Construction Act of 1964 (LSCA) (P.L. 88-269) strengthened the 

intent of Congress to provide universal and uniform access to information. It provided funds for 

the construction of libraries, made urban as well as rural libraries eligible for federal funds, and 

emphasized the provision of library services to handicapped individuals. Over the next thirteen 

years, LSCA was amended several times, and each time the amendments strengthened the desire 

for universal and uniform access to information. The following are just a few examples: 

• P.L. 91-600 amended LSCA to emphasize services to low-income families, and the 

development of State Library Agencies, and 

• P.L. 93-380 amended LSCA to include programs directed towards individuals with 

English as a second language. 

In 1996, the Omnibus Consolidated Appropriations Act of 1997 (P.L. 104-208) formed the 

Institute of Museum and Library Services to administer Federal funding for public libraries. 

Prior to this the Department of Education had been responsible for administering library funding. 

Bertot & McClure 32 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

It also replaced LSCA with Library Services and Technology Act. The LSTA section of this 

paper contains a more detailed description of the Library Services and Technology Act of 1996. 

National Libraries 

 The federal government has established National Libraries to promote the dissemination of 

government information, and to organize scientific research. Currently three legislated 

(mandated) National Libraries exist:

• The National Library of Agriculture serves as an agricultural information resource for 

educators, researchers, and policy makers. It was established in 1862 as part of the 

Department of Agriculture and became a National Library in 1962. 

• The National Library of Education is a national source of education information within 

the federal government linking libraries, schools, government, and educational centers. It 

was established by Public Law 103-227, Part E of Title IX, of the Goals 2000: Educate 

America Act. 

• The National Library of Medicine is part of the National Institute of Health, and collects 

materials relating to health care and medical research. It serves as an information 

resource for medical and health care researchers as well as the general public. The 

National Library of Medicine was established under Title 42 USC, The Public Health and 

Welfare, Chapter 6A, Subchapter III, Part D. 

In addition, the Library of Congress serves as the largest de facto national library. The Library 

of Congress is over 200 years old and was established by Thomas Jefferson to provide 

information resources to the U.S. Congress, and to collect and preserve the United States’ 

knowledge for future generations. 

 These national libraries play an important role in supporting the library infrastructure of the 

country. Nonetheless, there are a number of issues about how specifically this support should 

occur, the types of programs and services these libraries should provide, and how best the 

national libraries can work with other libraries for the overall benefit of the nation. 

Depository Library Program 

 The federal government also recognizes the need to distribute information generated by the 

government as a result of government. These materials include committee reports, the language 

of bills and laws, and Congressional testimony. The rights of U.S. citizens to obtain these 

materials is protected and delineated by the Federal Information Act (P.L. 89-487, 5 USC 552) 

and the Electronic Freedom of Information Act (P.L. 104-231, amending 5 USC 552). In order 

to expedite the distribution of these materials to the public the government established a Federal 

Depository Library Program (44 USC 19) within the U.S. Government Printing Office (44 USC

17). 

Bertot & McClure 33 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 The Federal Depository Library Program (FDLP) distributes government information to 

some 1400 libraries throughout the U.S. to ensure citizens have access to government 

information in their area. With the advent of the Internet, Congress passed the Government 

Printing Office Electronic Information Access Enhancement Act of 1993 (P.L. 103-40) to 

provide U.S. citizens with free electronic access to federal documents. Unfortunately, those 

without access to the technology or the knowledge to use the technology do not benefit from this 

law. 

 The role of the FDLP in the electronic and Web-based environment is evolving. Agencies 

increasingly provide access to reports, documents, publications, and other information via their 

Web sites – oftentimes not depositing that information through the GPO. In addition, a recent 

assessment of selected agency Websites suggests that their overall quality and usefulness to the 

public varies considerably (McClure, Sprehe, and Eschenfelder, 2000). How libraries will 

continue to serve as an effective access point to the array of Web-based government information 

may be problematic at best. And how the FDLP serves to make that Web-based information 

available to the public (and the nation’s libraries) also may be problematic.

 Research Support 

 The federal government provides funding for library and information science research to 

numerous organizations. Federal agencies such as the Institute of Museum and Library Services 

(IMLS), and the U.S. National Commission on Libraries and Information Science (NCLIS) 

support programs at universities and colleges to measure the impacts of library funding programs 

and also to investigate Federal information policy issues. These agencies also fund research 

seeking to ascertain the information needs of the American public, and how library services can 

be improved to meet these needs. Other agencies such as NTIA, Department of Education, the 

National Libraries, and other agencies also support library and information science research and 

demonstration and training programs. 

Other Programs 

 There are other areas in which the federal government provides programmatic support to 

libraries. For example, the National Center for Education Statistics (NCES), in partnership with 

NCLIS and the Census Bureau, collects a broad range of statistics that describe state, public, 

school, and academic libraries and their services. Data collected and reported by these and 

related efforts at NCES are essential to describing and understanding how libraries evolve and 

change over time. 

 The federal government provides funding emphasizing service to individuals in our society 

that may not be able to access information or have ready access to information. These 

individuals may not have the reading skills, information skills, or computer skills to access 

needed information. For some of these individuals English may be their second language. 

Federal funding also supports programs and services for Americans with disabilities. The 

government provides funding for adult literacy programs to aid these individuals. In addition the 

Bertot & McClure 34 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

government provides funding to encourage the growth of the information infrastructure in rural 

areas, because the cost per capita may be prohibitive for the building of libraries, installation of 

information technology, and subscription to broadband telecommunications services. 

Impact on Public Libraries 

How significant is the role of the federal government to public libraries? Federal funding 

contributes a very small portion of the overall budgets of individual public libraries. In most 

states, 80-90% of public library funding comes from the local taxpayer, while the federal 

government oftentimes provides less than 1-2%. For example, Florida public libraries receive 

approximately 1% of their overall budgets from the federal government; in Michigan, the figure 

is about 0.5% (Library of Michigan, 2000 p.7; State Library of Florida, 2000 p.4). But even this 

small amount of funding sponsors literacy projects, provides outreach services such as 

bookmobiles, helps build libraries, and provides technology funding. Additional detail on public 

library funding and services is available at <http://www.nces.ed.gov/pubsearch/ 

getpubcats.asp?sid=041>. 

 Historically, the federal government has been supportive of public libraries and recognizes 

the need for informed citizens. The lobbying efforts of libraries – either collectively or 

separately – have limited impact on federal programs related to libraries. Nonetheless, key 

research topics require attention: 

• What are the ways in which to measure the impact of federal library programs and make 

the information available to Congress? 

• How to strengthen the lobbying power of library organizations in order to convince 

Congress to apply more funds to federally funded library programs? 

• How to determine what the needs of library patrons are and convey those needs to 

Congress? 

• What is the best mix of programs and funding levels and from which agencies to support 

the development of library programs and services in this country? 

Although the federal government recognizes the need for libraries in general and public libraries 

more specifically, the federal role in support of libraries is nebulous at best. The degree to which 

public libraries receive “adequate” federal funding support and the degree to which the “right” 

agencies are involved in administering the “right” programs to support library programs and 

services are key issues that may require additional research and attention. 

 

DEMANDS OF NEW TECHNOLOGY 

 New technological advances and changes create planning, logistical, and funding challenges 

for library administrations and librarians. As shown previously, the majority of public libraries 

now provide Internet access for their patrons, but nearly 50% (46.4%) do not provide Internet 

access at broadband information transmission rates (defined minimally as 56kbps). An 

immediate challenge to many public libraries will be moving to a broadband services delivery 

Bertot & McClure 35 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

environment. Another challenge will be assessing the use of wireless services and how/if to 

integrate those services into library network-based services. 

 Technology changes have occurred at a rapid rate. In the case of the Internet, substantial 

access for library patrons occurred over a period of about three to four years. Each time a 

technology advance occurs, public library administrators must develop strategies to plan, 

implement, and manage these changes. At issue is the degree to which public libraries can adapt 

to the various technical changes occurring given their current levels of funding. 

 Nearly half of public libraries have Internet connections of 56kbps or below, with the other 

half having Internet connections above 56kbps. Rural and smaller library systems – in terms of 

population of legal service area – tend to have connectivity speeds of 56kbps or below (Bertot 

and McClure, 2000; Chapter 3). Many current and future Internet applications, such as 

streaming audio and video, require broadband transmission technology, however. 

 

 The Public Broadcasting Service (available at <http://www.pbs.org/als/>) provides 

interactive learning situations on its Website for child and adult literacy purposes. Low 

bandwidth means the pages load slowly, and that the more robust applications (e.g., virtual tours, 

multi-media instructional material) do not run at all. Moreover, many libraries limit the amount 

of time an individual can be online, thus, slower connections inhibit the patron from 

accomplishing his/her tasks. The National Geographic Society (available at: 

<http://www.nationalgeographic.com/features/index.html>) offers multimedia tours that require 

large bandwidth for optimal viewing and learning experiences. The Smithsonian Institute 

(available at: <http://2k.si.edu/>) offers a virtual tour of its collection, but the Website designers 

suggest that you utilize high bandwidth connections when taking the tour. 

 In addition to virtual libraries and classrooms, new technologies can enhance the provision of 

library services to local patrons and U.S. citizens. Currently some libraries offer electronic 

reference services, but with broadband capabilities libraries can offer interactive electronic 

reference including voice and video. The librarian and patron can hear and see each other to 

conduct the reference interview. This option is especially important for libraries with special 

collections. A study currently in progress intends to measure the cost, impact, and quality of 

these digital reference services (McClure, Lankes, and Gross, 2001). 

 All of the above mentioned Internet applications and services may enhance the patron’s 

quality of life, and, as such, may make society more informed and more productive. At issue is 

the degree to which libraries can fund these technological developments, integrate them into 

existing library services, and continue to upgrade these applications on a two-three year cycle. 

 In short, technology infrastructure is likely to continue to change at a rapid pace. Hardware, 

software, telecommunications, satellite-based communications, etc., will have significant 

impacts on library programs and services. The degree to which libraries will be able to afford to 

purchase these technologies, implement them successfully, and tie their network-based services 

to these technologies and telecommunications infrastructures appears to be somewhat 

problematic. Furthermore, these are not one time purchases as the technology requires ongoing 

Bertot & McClure 36 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

upgrades. It is unclear as to the responsibility of the federal government in maintaining the 

currency of technology in public libraries. 

OTHER TOPICS 

 As discussed earlier in this chapter, the topics presented here are not a comprehensive listing 

of key topics and issues requiring debate, discussion, and research. Other topics of interest 

include the: 

• Appropriate mix of funding sources to support public libraries; 

• Upgrades and integration of new technologies in public libraries; 

• Role of the Federal Depository Library Program in a networked environment; 

• Role of the National Technical Information Service (NTIS) in the provision of 

government information (see <http://www.nclis.gov/govt/assess/assess.html> for work 

done by NCLIS in this area); and 

• Impact of E-government on public libraries. 

These are but a sampling of some of the current topics and issues affecting public libraries that 

continue to have importance but are not discussed directly in this chapter. 

SUMMARY 

 This chapter suggests that the federal government is involved in a range of initiatives and 

policies that affect public library development in the United States. Table 2-2 summarizes these 

policy areas and selected issues. Appendix A provides an annotated selected listing of websites 

that have additional information regarding the topics covered in this chapter. 

 The evolving policy environment will have a significant impact on public access to 

information, the organization of electronic/networked information, the ability of public libraries 

to engage in network-based services and resources, and measuring the impact and success of 

library services. But this policy environment requires policy analysis and traditional research for 

evaluating the implementation, effectiveness, and efficiency of the various existing library 

programs and proposed policies. To a large degree there is very limited policy analysis and 

research related to these topics. Instead there are multiple “opinion pieces” that shape the 

literature in these policy areas. 

 The various policy issues affecting libraries and library development oftentimes are 

complicated, have a range of potential impacts, and can be quite contentious. The library 

community is but one of a number of key stakeholders affected by these policies. Moreover, 

there is increasingly a confusing cast of players in the federal government that have 

different/overlapping sets of responsibilities for funding and supporting library development. 

The extent of the potential impact from these policy issues and the number of federal offices as 

well as professional association offices involved in affecting policy development for libraries and 

the information professions can result in a very complicated milieu for the library community. 

Bertot & McClure 37 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 The next chapter of this report describes additional data analysis conducted on the Public 

Libraries and the Internet 2000 Study <http://www.nclis.gov/statsurv/statsurv.html>. Chapter 4 

discusses selected issues that may form an agenda for national priorities broadly related to 

libraries. Within these issues the authors offer some strategies and recommendations to address 

these issues. 

Bertot & McClure 38 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 2-2. Summary of Key Policy Areas and Issues. 

Policy Area 1: Digital Divide 

Issue 1: How extensive is the Digital Divide in the United States? 

Issue 2: Is there a need for further development of the National Information Infrastructure? 

Issue 3: Should public libraries have a priority to bridge the Digital Divide in their 

communities? 

Issue 4: What programs currently exist that public libraries can coordinate their efforts with 

in aiding their communities to bridge the Digital Divide? 

Issue 5: What impact are public libraries having in their communities in bridging the Digital 

Divide? 

Policy Area 2: Community Technology Centers 

Issue 1: Do public libraries need to be involved in offering their communities access to 

technology other than for the express purpose of gaining access to information? 

Issue 2: How do existing technology access programs at public libraries and other 

community centers have an impact on their communities? 

Issue 3: How can libraries coordinate their efforts with existing Federal government 

technology access programs to minimize the duplication of effort, and optimize the benefits 

to their communities? 

Policy Area 3: Information/Network Literacy 

Issue 1: What levels of support are currently available to public libraries to develop 

information and network literacy efforts? 

Issue 2: How can network and computer literacy programs be integrated with traditional 

literacy programs or should they not be integrated at all? 

Issue 3: Should public libraries better coordinate their information and network literacy 

programs with other organizations? 

Issue 4: What are the impacts and benefits from literacy programs in terms of local 

community development and other factors? 

Policy Area 4: E-rate 

Issue 1: Which schools and public libraries should receive the e-rate discount? 

Issue 2: What services should be eligible for E-rate discounts? 

Issue 3: Can the E-rate application process be streamlined or made less labor intensive? 

Issue 4: Are there better methods to collect the funds for the E-rate discounts, and who 

should be in charge of the process? 

Issue 5: How many schools and public libraries connected to the Internet can be directly 

attributed to the E-rate discount program? 

Policy Area 5: Universal Service - Broadband 

Issue 1: Is broadband connectivity a luxury or a necessity? 

Issue 2: What are the impacts of not having broadband connectivity? 

Issue 3: What are the measurable benefits of having broadband connectivity? 

Issue 4: Which of the several types of broadband connectivity will work the best for public 

libraries, and set the industry standard? 

Issue 5: How to insure that all Americans have equivalent access to broadband connectivity 

regardless of where they live? 

Bertot & McClure 39 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 2-2. Summary of Key Policy Areas and Issues. (Cont.) 

Policy Area 6: LSTA 

Issue 1: Will combining Federal library programs under one agency actually reduce 

administrative costs, and increase government efficiency? 

Issue 2: Where will the funds come from for the construction of new libraries? 

Issue 3: Will IMLS result in the demise of other Federal government agencies that play a 

vital role in public library services to Americans, or will these agencies be incorporated into 

IMLS without a loss of overall funding for public libraries? 

Issue 4: Who will be responsible for researching the impact of Federally funded library 

programs, and provide feedback to IMLS and Congress? 

Policy Area 7: CIPA 

Issue 1: Does there exist a technological means by which children can be prevented from 

viewing visual depictions inappropriate for children? 

Issue 2: By installing such technological means are public library administrators infringing 

on the First amendment rights of their adult patrons? 

Issue 3: Will these technological means further increase the Digital Divide by blocking 

individuals from accessing needed information? 

Policy Area 8: Role of Federal Government 

Issue 1: How to measure the impact of Federal library programs, and make the information 

available to Congress? 

Issue 2: How to strengthen the lobbying power of Public Library organizations in order to 

convince Congress to apply more funds to Federally funded library programs? 

Issue 3: How to determine what the needs of library patrons are, and convey those needs to 

Congress? 

Issue 4: What is the best mix of programs and funding levels and from which agencies to 

support the development of library programs and services in this country? 

Policy Area 9: Demands of New Technology 

Issue 1: How can libraries successfully engage in an ongoing program of information 

technology upgrades? 

Issue 2: What skills and knowledge will librarians require in order to exploit successfully the 

new information technologies and integrate those technologies into the library? 

Issue 3: Is there a federal role to support ongoing information technology infrastructure 

development for libraries? 

Bertot & McClure 40 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

REFERENCES 

Adams, C. F. (1887). “The Public Library and Public Schools.” American Library Association, 

1(12): 437. 

ALAWON. (2001). “Bush Budget Numbers Released Today.” American Library Association 

Washington Office Newsline. v.10. n.29. Available at <http://www.ala.org/ 

washoff/alawon/>. 

American Library Association. (2001). Digital Divide Legislation. Washington, D.C.: ALA 

Office of Information Technology Policy. Available at: <http://www.ala.org/otip/ 

digitaldivide/dd_leg.html>. 

Bertot, J.C. and C.R. McClure. (1998). The National Survey of Public Library Outlet Internet 

Connectivity. Washington, D.C.: ALA Office for Information and Technical Policy. 

Available at: <http://www.ala.org/oitp/survey98.pdf>. 

Bertot, J.C. and C.R. McClure. (2000). Public Libraries and the Internet 2000: Summary 

Findings and Data Tables. Washington, D.C.: U.S. National Commission on Libraries 

and Information Science. Available at: <http://www.nclis.gov/statsurv/2000plo.pdf>. 

Bush, George. (1992). Message to the Congress Transmitting the Report of the White House 

Conference on Library and Information Services. Texas A&M University. Available at: 

<http://bushlibrary.tamu.edu/papers/1992/92030603.html>. 

Bush, G.W. (2001a). Budget of the United States Government Fiscal Year 2002. Washington, 

D.C.: Government Printing Office. Available at: <http://www.whitehouse.gov/ 

omb/budget/fy2002/budget.html>. 

Bush, G.W. (2001b). No Child Left Behind. Washington, D.C.: U.S. Department of Education. 

Available at: <http://www.ed.gov/inits/nclb/index.html>. 

Casey, James, Randy Ross, and Marcia Warren. (1999). Native Networking: 

Telecommunications and Information Technology in Indian Country. Washington, D.C.: 

Benton Foundation. Available at <http://www.benton.org/Library/Native/>. 

Carvin, A. (2000). The E-rate in America: A Tale of Four Cities. Washington, D.C.: Benton 

Foundation. Available at: <http://www.benton.org/e-rate/e-rate.4cities.pdf>. 

Consumer Reports. (2001). “Digital Chaperones for Kids: Which Internet Filters Protect the 

Best? Which get in the Way?” Consumer Reports Online. Available at: 

<http://www.consumerreports.org/Special/ConsumerInterest/Reports/0101fil0.html>. 

COPA Commission. (2000). Final Report of the COPA Commission Presented to Congress, 

October 20, 2000. Available at: <http://www.copacommission.org/report/>. 

Bertot & McClure 41 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Department of Education. (1992). 1992 National Adult Literacy Survey. Washington, D.C.: 

Department of Education. Available at: <http://www.ed.gov/pubs/ncesprograms/ 

assessment/surveys/nals.html>. 

Department of Education. (1994). Goals 2000: Educate America Act. Washington, D.C.: 

Department of Education. Available at: <http://www.ed.gov/legislation/ 

GOALS2000/TheAct/>. 

Department of Education. (2001). ED/OVAE Community Technology Centers Home Page. 

Department of Education. Washington, D.C.: Department of Education. Available at: 

<http://www.ed.gov/offices/OVAE/CTC/>. 

Durrance, J.C., and Pettigrew, K. (2001). Help-seeking in an Electronic World: The Role of the 

Public Library in Helping Citizens to Obtain Community Information Over the Internet. 

Ann Arbor, MI: School of Information. 

EdLinc. (2000). E-rate: Keeping the Promise to Connect Kids and Communities to the Future. 

Available at <http://www.edlinc.org/pubs/eratereport2.html>. 

Gilroy, Angele A. (2000). Congressional Issue Brief: Telecommunications Discounts for Schools 

and Libraries: The “E-rate” Program and Controversies. Washington, D.C.: 

Congressional Research Service, The Library of Congress. 

Institute of Museum and Library Services. (2001). Eligibility Criteria for Libraries: General 

Information. Washington, D.C.: IMLS. Available at: <http://www.imls.gov/ 

grants/library/lib_elig.htm>. 

Institute of Museum and Library Services. (2001a). IMLS Grants in Your State. Washington, 

D.C.: IMLS. Available at: <http:www.imls.gov/closer/sta_res.asp?state=FL>. 

Kirby, Carrie. (2001). Funds for Bridging the Digital Divide are Drying Up. San Francisco, CA.: 

San Francisco Chronicle. April 23, 2001. p. B-3. Available at: <http://www.sfgate.com>. 

Krebs, B. (2001). Senators Urge FCC to Forge Broadband Plan by July 04-13-01. Newsbytes. 

Available at: <http://www.newsbytes.com>. 

Library of Michigan. (2000). Michigan Public Libraries: Data Digest. 2000 edition. Available 

at: <http://www.libofmich.lib.mi.us/binar/digest.pdf>. 

McClure, C. R. (1999). United States Information Policy, in Kent, Allen (ed.). Encyclopedia of 

Library and Information Science, 65(28): 306-314. New York: Marcel Dekker, Inc. 

McClure, C.R. (1993). Network Literacy in an Electronic Society: An Educational Disconnect? 

in The Knowledge Economy: The Nature of Information in the 21st Century. 

Queenstown, MD: The Aspen Institute, pp. 137-178. 

Bertot & McClure 42 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

McClure, C. R. and Bertot, J. C. (2000). Public Library Internet Services: Impacts on the Digital 

Divide: Stage II Final Report. Washington, D.C.: American Library Association, Office 

of Information Technology and Policy. 

McClure, C. R. and Bertot, J.C. (2001). Public Library Internet Services: Impacts on the Digital 

Divide. Study Abstract available at: <http://www.ii.fsu.edu/>. 

McClure, C.R., Ryan, J., and Bertot, J.C. (2001, forthcoming). Public Library Internet Services 

and the Digital Divide: The Role and Impact from Selected Funding Sources. 

Washington, D.C.: Institute of Museum and Library Services. 

McClure, C. R.; Sprehe, J. T.; and Eschenfelder, K. (2000). Performance Measures for Federal 

Agency Websites: Final Report. Washington, D.C. U.S. Government Printing Office 

(available through the ERIC Clearinghouse). 

McClure, C. R., Lankes, R. D., and Gross, M. (2001). Assessing Quality in Digital Reference. 

Tallahassee, FL: School of Information Studies, Information Institute, 2001-2002. 

Available at: <http://quartz.syr.edu/quality/>. 

Molz, R.K. and P. Dain. (1999). Civic Space/cyberspace: The American Public Library in the 

Information Age. Cambridge, MA.: The MIT Press. 

National Association of Community Action Agencies. (2001). Information Technology for 

Community Actions Agencies and Their Low-Income Clients: Findings from a National 

Survey, Executive Summary Summer 2000. Available at <http://www.nacaa.org/ 

itsummary.htm>. 

National Center for Small Communities. (1999). Getting Online: A Guide to the Internet for 

Small Town Leaders. Washington, D.C.: National Center for Small Communities. 

National Telecommunications and Information Administration. (2000). Falling Through the 

Net: Toward Digital Inclusion. Washington, D.C.: Department of Commerce. Available 

at: <http://digitaldivide.gov/reports.htm>. 

__________. (1999). Falling Through the Net: Defining the Digital Divide. Washington, D.C.: 

Department of Commerce. Available at: <http://digitaldivide.gov/reports.htm>. 

National Telecommunications and Information Administration and U.S. Department of 

Agriculture. (2000). Advanced Telecommunications in Rural America: The Challenge of 

Bringing Broadband Service to All Americans. Washington, D.C.: National 

Telecommunications and Information Administration and Rural Utilities Service. 

OMB Watch. (2001). Senate Authorizes Creations of 1,000 CTCs. OMB Watcher Online, 2(10): 

10-13. Available at: <http://www.ombwatch.org/ombwatcher/>. 

Platt, C. (2001). The Future will be Fast but Not Free. Wired (May 2001): 121-127. 

Bertot & McClure 43 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Puma, M.J., Chaplin, D.D., and Pape, A.D. (2000). E-rate and the Digital Divide: A Preliminary 

Analysis from the Integrated Studies of Educational Technology. Washington, D.C.: The 

Urban Institute. Available at:<http://www.urban.org/pdfs/erate_FR921.pdf>. 

Rainie, Lee and Dan Packel. (2001). More Online, doing more: 16 million newcomers gain 

Internet access in the last half of 2000 as women, minorities, and families with modest 

incomes continue to surge online. Washington, D.C.: Pew Internet Project. Available at: 

<http://www.pewinternet.org/>. 

Rodger, E.J., D’Elia, G., and Jorgensen, C. (2000). The Impacts of the Internet on Public Library 

Use: An Analysis of the Current Consumer Market for Library and Internet Services. 

Buffalo, NY: State University of New York, School of Information Studies. Available: 

<http://www.urbanlibraries.org/Internet%20Study%20Fact%20Sheet.html> 

Sandberg, J. (2001, May 3). The big telecom disconnect. Wall Street Journal, May 3, 2001, 

B1). 

Scheeres, J. (2001, October 4). Library: We don’t want no filters. Wired, available: 

<http://www.wired.com/news/business/0,1367,47283,00.html>; accessed October 4, 

2001. 

Schneider, Karen G. (1997). A Practical Guide to Internet Filters. New York: Neal-Schuman 

NetGuide Series. 

Smolenski, Mark. (2000). The Digital Divide and American Society: A Report on the Digital 

Divide and its Social and Economic Implications for Our Nation and its Citizens. The 

Gartner Group. Available at: <http://gartner5.gartnerweb.com/public/static/techies/ 

digital_d/national/national_body.html>.

State Library of Florida. (2000). Communication with Power: A Workbook for Library 

Ambassadors. Tallahassee, FL: Florida Library Association. 

Susman, Thomas M. (2001). Children’s Internet Protection a Summary. Washington, D.C.: 

Ropes & Gray Law firm. 

Trotter, A. (2000). Rating the E-rate. Education Week. Available at: <http://www.edweek.org/ 

ew>. 

U.S. Congress. (1996). The Museum and Library Services Act of 1996. Public Law 105-128. 20 

USC 9101. Washington, D.C.: Government Printing Office. Available at: 

<http://www.imls.gov/whatsnew/leg/leg_mlsa.pdf>. 

Yonkman, Dave and Brian J. Bowe. (1999). Hudsonville Stops Internet Use at Library. The 

Holland Sentinel. 

Bertot & McClure 44 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

CHAPTER 3: 

SUPPLEMENTAL DATA ANALYSIS FROM 2000 PUBLIC LIBRARY INTERNET 

CONNECTIVITY SURVEY 

 During May and June 2000, the authors conducted a national survey of public library Internet 

connectivity. The study used a weighted sample of public library outlets based on two outlet 

characteristics: 1) poverty (less than 20%, 20%-40%, and greater than 40%), and 2) metropolitan 

status (urban, suburban, and rural). The metropolitan status codes exist in the Federal State 

Cooperative System (FSCS) annual public library data collection system, whereas the poverty 

determination is a result of geocoding the outlets by physical location and census poverty data.5

 

In all, it was possible to geocode 16,004 public library outlets in March 2000. Thus, all results 

are based on the 16,004 geocoded outlets. 

 Appendix A of this report contains the detailed report of data tables and methodology of the 

2000 public library Internet study. Briefly, the study found that: 

• Nearly all public library outlets – 95.7% – have an Internet connection, with 98.5% of 

suburban outlets having an Internet connection and 93.3% of rural public library outlets 

having an Internet connection; 

• 94.5% of public library outlets provide public Internet access services; 

• Bandwidth in libraries, though varied by geographic location, is the highest it has been 

since the beginning of the public library Internet studies, with

o 36.2% of outlets having T1 (1.45mbps) service as their maximum speed of 

connectivity for public access services,

o 53.6% of outlets having greater than 56kbps (direct connect) service as their 

maximum speed of connectivity for public access services, and 

o 35.4% of rural outlets having greater than 56kbps (direct connect) service as their 

maximum speed of connectivity for public access services; 

• 60.4% of public library outlets offer access to online database subscription services 

on all of their workstations; 

• 36.1% of public library outlets offer remote access to their online database services; 

• 71.2% of public library outlets do not provide special hardware/ software on their 

public access workstations for individuals with disabilities; 

• 75.5% of public library outlets do not block and/or filter Internet content on their 

public access workstations; 

• 95.5% of public library outlets have acceptable use policies for their public access 

Internet services, and 43.6% differentiate between users (e.g., children, adults) in 

their policies; and 

 

5

 Specific information on the geocoding process is found in Appendix C of U.S. National Commission on Libraries 

and Information Science. (1998). Moving toward more effective public Internet access: The 1998 national survey of 

public library outlet Internet connectivity. Washington, D.C.: National Commission on Libraries and Information 

Science. Also, see Jue et al. (1999). Using Libraries to Provide Technology Access for Individuals in Poverty: A 

Nationwide Analysis of Library Market Areas Using a Geographic Information System. Library and Information 

Science Research, 21(3): 299-326. 

Bertot & McClure 45 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• 62.3% of public library outlets offer Internet training services, of which 55.1% provide 

training to the adult public, 44.3% to library staff, and 43.7% to children/youth public. 

The 2000 report (Bertot and McClure) contained in Appendix A provides other study findings, 

but the above highlight public library Internet connectivity improvements in the areas of 

connectivity, bandwidth, and public Internet access services. 

ADDITIONAL ANALYSIS 

 Since the original 2000 public library Internet study, the authors re-weighted the survey data 

along two categories of population of legal service area and geographic region contained in the 

FSCS annual data collection process to: 

• Seek potential differences in connectivity, public access services, and bandwidth by 

public library outlet criteria shown to be of significance (see Bertot, McClure, and 

Fletcher, 1997; Bertot, McClure, and Zweizig, 1996; McClure, Bertot, and Zweizig, 

1994); 

• Explore additional key criteria that impact public library outlet involvement with the 

Internet; and 

• Provide additional insight into public library outlet Internet connectivity that would 

inform the policy debate regarding public library Internet involvement and the support of 

such involvement by federal, state, and local government legislation, policies, and 

funding. 

The additional analysis, therefore, provides additional means through which to assess the state of 

public library Internet connectivity. 

The Analysis Process Described 

 To conduct the additional analysis, the authors created two new data sets. The first data set 

created new responding outlet weights according to the population of legal service area of the 

outlet. Readers should note that, since this is outlet level data, not all the population of legal 

service areas are known for outlets (as opposed to the library system). As a result, there are a 

number of “unknown” outlets in the population of legal service area tables. While a number of 

population of legal service area categories exist in the FSCS annual data collection process, the 

authors collapsed the categories into the following: 

• Greater than 500,000; 

• 250,000 to 500,000; 

• 100,000 to 249,999; 

• 25,000 to 99,999; and 

• Less than 25,000. 

These categories provide a range of population data for analysis purposes. 

Bertot & McClure 46 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 The second data set created new responding outlet weights according to eight Census Bureau

regional classifications: 

• Greatlakes, which includes the states of Illinois, Indiana, Michigan, Ohio, and Wisconsin; 

• Middle Atlantic, which includes the states of Delaware, Maryland, New Jersey, New 

York, and Pennsylvania; 

• New England, which includes the states of Connecticut, Main, Massachusetts, New 

Hampshire, Rhode Island, and Vermont; 

• Plains, which includes the states of Iowa, Kansas, Minnesota, Missouri, North Dakota, 

Nebraska, South Dakota; 

• Rockies, which includes the states of Colorado, Idaho, Montana, Utah, and Wyoming; 

• Southeast, which includes the states of Alabama, Arkansas, Florida, Georgia, Kentucky, 

Louisiana, Mississippi, North Carolina, Tennessee, Virginia, and West Virginia; 

• Southwest, which includes the states of Arizona, New Mexico, Oklahoma, and Texas; 

and 

• West, which includes the states of Alaska, California, Hawaii, Nevada, Oregon, and 

Washington. 

With this classification of states it is possible to look at public library Internet connectivity trends 

by areas of the United States. 

 Table 3-1 contains the breakdown of outlets by both population of legal service area and 

region. In reading the results provided through the additional analysis, readers should bear in 

mind the following: 

• Each data set (region and population of legal service area) created required a complete reweighting process to enable the data analysis process; 

• The new weights required rounding to facilitate analysis. Rounding was set to the fourth 

decimal place; and 

• SPSS (v. 10.0), the statistical analysis tool used by the authors, uses rounding in its 

analysis of weighted data. 

As a result of the rounding that occurred throughout the analysis process, there are some slight 

differences in the percentages and outlet numbers in the tables as compared to the original 

analysis presented in Bertot and McClure (2000). 

Bertot & McClure 47 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-1. Number and Percentage of Geocoded Public Library Outlets by Population of 

Legal Service Area and Geographic Region. 

Population of Legal 

Service Area 

Number and 

Percentage of Library 

Outlets 

Region Number and Percentage 

of Library Outlets 

Greater than 500,000 

2.1% 

n=322 Greatlakes 

18.7% 

n=2,999 

250,000-500,000 2.9% 

n=336 Middle Atlantic 15.0% n=2,408 

100,000-249,999 2.3% 

n=374 New England 9.5% n=1,515 

25,000-99,999 16.7% 

n=2,666 Plains 13.0% n=2,085 

Less than 25,000 67.9% 

n=10,877 Rockies 3.8% n=657 

Unknown 8.9% 

n=1,429 Southeast 20.8% n=3,329 

Southwest 7.7% 

n=1,232 

West 11.1% 

n=1,779 

Overall 100.0% 

N=16,004 Overall 100.0% N=16,004 

FINDINGS 

 Rather than duplicate all the analysis conducted for the original 2000 study (see Appendix 

A), this section presents selected findings that point to key differences in connectivity – either by 

population of legal service area or geographic region. The resulting analysis and presentation, 

therefore, highlights intentionally public library outlet connectivity issues. 

Overall Connectivity and Speed of Public Internet Access Connectivity 

 Tables 3-2 and 3-3 indicates variations in connectivity by region as well as population 

served. Overall: 

• Public library outlets are connected to the Internet and offer public access Internet 

services (range of 88.7% to 100.0% for connectivity and range of 84.9% to 100% for 

public access); and 

• Nearly all outlets with Internet connectivity also provide public access Internet services, 

with the least public access Internet services in the Rockies states. 

Bertot & McClure 48 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-2. Public Library Outlet Internet Connectivity by Population of Legal Service Area. 

N=16,004 

Population of Legal Service Area 

Connected to the 

Internet Public Internet Access 

Greater than 500,000 100.0% 

+/- 0.0% 

100.0% 

+/- 0.0% 

250,000-500,000 100.0% 

+/- 0.0% 

100.0% 

+/- 0.0% 

100,000-249,999 90.4% 

+/- 3.0% 

90.4% 

+/- 3.0% 

25,000-99,999 100.0% 

+/- 0.0% 

98.5% 

+/- 1.2% 

Less than 25,000 94.6% 

+/- 2.3% 

93.2% 

+/- 2.5% 

Unknown 96.2% 

+/- 1.9% 

96.2% 

+/- 1.9% 

Overall 

95.7% 

+/- 2.0% 

(n=15,322) 

94.6% 

+/- 2.3% 

(n=15,132) 

Table 3-3. Public Library Internet Connectivity by Region. 

N=16,004 

Region 

Connected to the 

Internet Public Internet Access 

Greatlakes 

96.0% 

+/- 2.0% 

93.8% 

+/- 2.4% 

Middle Atlantic 99.3% 

+/- .9% 

98.7% 

+/- 1.1% 

New England 90.6% 

+/- 2.9% 

89.4% 

+/- 3.1% 

Plains 91.2% 

+/- 2.8% 

89.7% 

+/- 3.0% 

Rockies 88.7% 

+/- 3.2% 

84.9% 

+/- 3.6% 

Southeast 97.9% 

+/- 1.4% 

97.9% 

+/- 1.4% 

Southwest 97.8% 

+/- 1.5% 

95.6% 

+/- 2.1% 

West 96.9% 

+/- 1.7% 

96.9% 

+/- 1.7% 

Overall 

95.7% 

+/- 2.0% 

(n=15,315) 

94.6% 

+/- 2.3% 

(n=15,132) 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 49 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-4. Public Library Outlet Maximum Speed of Public Access Internet Services by 

Population of Legal Service Area. 

Maximum Speed 

Less than 

56kbps 

56kbps dialup 56kbps direct 

connect 

Greater than 

56kbps Total 

Population of Legal 

Service Area 

Greater than 500,000 - - - 100.0% 

+/- 0.0% 

100.0% 

(n=322) 

250,000-500,000 - 15.8% 

+/- 3.7% 

10.4% 

+/- 3.1% 

73.8% 

+/- 4.4% 

100.0% 

(n=336) 

100,000-249,999 - - 3.6% 

+/- 1.9% 

96.4% 

+/- 1.9% 

100.0% 

(n=338) 

25,000-99,999 1.0% 

+/- 1.0% 

5.7% 

+/- 2.3% 

17.1% 

+/- 3.8% 

76.1% 

+/- 4.3% 

100.0% 

(n=2,612) 

Less than 25,000 7.9% 

+/- 2.7% 

20.4% 

+/- 4.0% 

31.2% 

+/- 4.6% 

40.5% 

+/- 4.9% 

100.0% 

(n=10,151) 

Unknown 3.0% 

+/- 1.7% 

6.9% 

+/- 2.5% 

7.9% 

+/- 2.7% 

82.2% 

+/- 3.8% 

100.0% 

(n=1,375) 

Overall 

5.7% 

+/- 2.3% 

(n=867) 

15.7% 

+/- 3.6% 

(n=2,369) 

24.9% 

+/- 4.3% 

(n=3,770) 

53.7% 

+/-5.0% 

(n=8,128) 

100.0% 

N=15,134 

Table 3-5. Public Library Outlet Maximum Speed of Public Access Internet Services by 

Region. 

Maximum Speed 

Less than 

56kbps 

56kbps dialup 56kbps direct 

connect 

Greater than 

56kbps Total 

Region 

Greatlakes 

4.2% 

+/- 2.0% 

16.6% 

+/- 3.6% 

18.4% 

+/- 3.9% 

61.8% 

+/- 4.9% 

100.0% 

(n=2,813) 

Middle Atlantic 6.6% 

+/- 2.5% 

13.3% 

+/- 3.4% 

27.3% 

+/- 4.5% 

52.7% 

+/- 5.0% 

100.0% 

(n=2,377) 

New England 6.6% 

+/- 2.5% 

25.0% 

+/- 4.3% 

35.5% 

+/- 4.8% 

32.9% 

+/- 4.7% 

100.0% 

(n=1,355) 

Plains 12.3% 

+/- 3.3% 

39.4% 

+/- 4.9% 

22.9% 

+/- 4.2% 

25.4% 

+/- 4.4% 

100.0% 

(n=1,870) 

Rockies 6.6% 

+/- 2.5% 

9.0% 

+/- 2.8% 

26.7% 

+/- 4.4% 

57.7% 

+/- 4.9% 

100.0% 

(n=558) 

Southeast 1.7% 

+/- 1.3% 

8.2% 

+/- 2.7% 

30.5% 

+/- 4.6% 

59.7% 

+/- 4.9% 

100.0% 

(n=3,259) 

Southwest 2.3% 

+/- 1.5% 

13.8% 

+/- 3.4% 

19.5% 

+/- 4.0% 

64.4% 

+/- 4.9% 

100.0% 

(n=1,177) 

West 8.9% 

+/- 2.9% 

4.9% 

+/- 2.2% 

18.7% 

+/- 3.9% 

67.5% 

+/- 4.7% 

100.0% 

(n=1,723) 

Overall 

5.7% 

+/- 2.3% 

(n=870) 

15.8% 

+/- 3.6% 

(n=2,392) 

24.9% 

+/- 4.3% 

(n=3,772) 

53.5% 

+/- 5.0% 

(n=8,098) 

100.0% 

N=15,132 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 50 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

 As Tables 3-4 and 3-5 show, there are some key differences in the maximum bandwidth for 

public library outlet Internet access services: 

• As the population of legal service area decreases, in general, so too does the speed of 

connectivity. This is particularly noticeable for library outlets that serve population of 

legal service areas of below 25,000, and 

• Library outlets in the New England and Plains states are less likely to have connectivity 

of greater than 56kbps than are library outlets in the rest of the nation. Indeed library 

outlets in those states have the highest percentage of 56kbps dial-up connections, with 

25.0% in New England states and 39.4% in Plains states. 

Funding Internet Connectivity 

 To fund their Internet activities and services, public libraries rely primarily on local funds 

(87.5%), followed by E-rate discounts (48.6%), and special grants (e.g., Bill and Melinda Gates 

Foundation) (30.7%), as Table 3-6 demonstrates. It is worth noting, but difficult to explain, that: 

• Some regions rely less on E-rate than others – for example, only 21.0% of New England 

library outlets used E-rate discounts to fund their library’s Internet infrastructure. The 

next lowest percentage for E-rate use is the Plains states with 36.1% and Greatlakes states 

with 41.5%. 

• New England states indicate a lower rate of federal funds to support their Internet 

infrastructure – 3.9% – than other regions. This, however, may be a result of respondents 

not indicating their receipt of LSTA grants in this category. 

• Certain regions indicate substantial support from special grants for their Internet 

infrastructure. These correspond, for the most part, to Gates states. For example, 54.0% 

of Southwest libraries indicate Internet infrastructure support from special grants, 

followed by 49.8% of Southeast libraries and 33.3% of Rockies libraries. 

Clearly, there are funding differences in key funding sources by region. 

Public Access and Patron Internet Services 

 Public library outlets offer a number of public access and patron Internet services, including 

computer/Internet training, online database resources, and special hardware/software for persons 

with disabilities. In some cases, library outlets filter their patron’s access to Internet-based 

material. 

 Tables 3-7 and 3-8 demonstrate that, overall, public library outlets provide user technology 

training in their facilities: 

.

Bertot & McClure 51 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-6. Public Library Outlet Funding for Internet-Related Technology and Infrastructure by Region.

Funding Source for Internet-Related Technology and Infrastructure 

Local 

Funds 

State 

Library 

State 

Grants 

Federal 

Funds E-rate Library Foundation Special Grants Gifts 

Region 

Greatlakes 

90.6% 

+/- 2.9% 

23.6% 

+/- 4.2% 

31.6% 

+/- 4.7% 

20.8% 

+/- 4.1% 

41.5% 

+/- 4.9% 

4.2% 

+/- 2.0% 

16.5% 

+/- 3.7% 

17.9% 

+/- 3.8% 

Middle Atlantic 

89.4% 

+/- 3.1% 

23.3% 

+/- 4.2% 

40.0% 

+/- 4.9% 

23.3% 

+/- 4.2% 

67.3% 

+/- 4.7% 

11.3% 

+/- 3.2% 

32.7% 

+/- 4.7% 

37.3% 

+/- 4.8% 

New England 80.3% +/- 4.0% 11.8% +/- 3.2% 19.7% +/- 4.0% 3.9% +/- 1.9% 21.0% +/- 4.1% 9.2% +/- 2.9% 13.1% +/- 3.4% 25.0% +/- 4.3% Plains 85.2% +/- 3.5% 13.9% +/- 3.5% 26.2% +/- 4.4% 15.6% +/- 3.6% 36.1% +/- 4.8% 8.2% +/- 2.7% 12.3% +/- 3.3% 35.2% +/- 4.8% Rockies 93.4% +/- 2.5% 17.7% +/- 3.8% 28.9% +/- 4.5% 26.7% +/- 4.4% 53.4% +/- 4.9% 22.2% +/- 4.2% 33.3% +/- 4.7% 31.2% +/- 4.6% Southeast 88.0% +/- 3.3% 38.2% +/- 4.9% 32.2% +/- 4.7% 19.7% +/- 4.0% 59.7% +/- 4.9% 3.9% +/- 1.9% 49.8% +/- 4.9% 19.3% +/- 3.9% Southwest 83.9% +/- 3.7% 20.7% +/- 4.1% 31.1% +/- 4.6% 11.5% +/- 3.2% 52.9% +/- 4.9% 11.5% +/- 3.2% 54.0% +/- 4.9% 23.0% +/- 4.2% West 87.8% +/- 3.3% 13.8% +/- 3.5% 17.1% +/- 3.8% 19.5% +/- 4.0% 43.9% +/- 4.9% 13.0% +/- 3.4% 31.7% +/- 4.7% 25.2% +/- 4.3% Overall 

87.5% 

+/- 3.3% 

(n=1,321) 

22.9% 

+/- 4.2% 

(n=3,464) 

29.5% 

+/- 4.6% 

(n=4,468) 

18.1% 

+/- 3.9% 

(n=2,745) 

48.6% 

+/- 4.9% 

(n=7,349) 

8.4% 

+/- 2.8% 

(n=1,275) 

30.7% 

+/- 4.6% 

(n=2,392) 

25.8% 

+/- 4.4% 

(n=3,897) 

*Will total to more than 100%, as respondents could select all funding sources that applied. Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to reflect Region categories. 

are estimates and rounded during the analysis process. Therefore, there will be slight differences in both the calculated percentages and number of libthose calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. With the weight reca

Region number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 52 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-7. Public Library Outlet Provision of Internet Training Services by Population of 

Legal Service Area. 

N=15,134 

Population of Legal Service Area 

Outlet Provides Internet Training Services 

Greater than 500,000 

71.4% 

+/- 4.5% 

250,000-500,000 89.6% 

+/- 3.1% 

100,000-249,999 92.9% 

+/- 2.6% 

25,000-99,999 70.5% 

+/- 4.6% 

Less than 25,000 56.4% 

+/- 4.9% 

Unknown 76.2% 

+/- 4.3% 

Overall 

62.5% 

+/- 4.8% 

(n=9,459) 

Table 3-8. Public Library Outlet Provision of Internet Training Services by Region. 

N=15,132 

Region 

Outlet Provides Internet Training Services 

Greatlakes 

70.3% 

+/- 4.6% 

Middle Atlantic 71.3% 

+/- 4.5% 

New England 65.8% 

+/- 4.7% 

Plains 44.3% 

+/- 4.9% 

Rockies 60.0% 

+/- 4.9% 

Southeast 56.6% 

+/- 4.9% 

Southwest 66.6% 

+/- 4.7% 

West 65.9% 

+/- 4.7% 

Overall 

62.7% 

+/- 4.8% 

(n=9,492) 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets. 

Bertot & McClure 52 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• A minimum of 70.5% of public library outlets offer user training above a population of 

legal service area of 25,000 (see Table 3-7). 

o Only 56.4%, however, of public library outlets below a population of legal service 

area of 25,000 offer user training. 

• With regards to region, user training in outlets ranges from a low of 44.3% in Plains 

states library outlets to a high of 71.3% in Middle Atlantic states library outlets. 

As such, the data indicate that public library outlets tend to offer user technology training 

services in their facilities 

 Public library outlets offer patrons a variety of online database services. This service, 

however, tends to decrease as the population of legal service area of the library outlet decreases 

(see Table 3-9). For example, 95.3% of libraries with population of legal service areas greater 

than 500,000 provide online database services on all their workstations, as compared to only 

56.0% of outlets with population of legal service areas of less than 25,000. Moreover, 71.4% of 

libraries with population of legal service areas greater than 500,000 provide online database 

services to users remotely as compared to only 29.9% of outlets with population of legal service 

areas of less than 25,000. 

 Similarly, there are differences in the offering of online database services by public library 

outlets by region (see Table 3-10). Overall, library outlets in the Greatlakes, Middle Atlantic, 

Rockies, and Southeast offer more access to online database services (range of 63.7% to 70.0% 

for access on all public access workstations) as compared to library outlets in New England, the 

Plains, the Southwest, and West (range of 45.9% to 54.0% for access on all public access 

workstations). 

 The provision of special hardware and/or software for individuals with disabilities for public 

access Internet services varies within public library outlets (see Tables 3-11 and 3-12). Overall, 

public library outlets that serve population of legal service areas of 100,000 or greater tend to 

provide more access to hardware and/or software for persons with disabilities (combined range 

of 15.3% to 47.3% for all/some workstations) than do public library outlets that serve population 

of legal service areas of less than 100,000 (combined range of 25.6% to 29.0% for all/some 

workstations). The notable exception is library outlets that serve population of legal service 

areas of greater than 500,000, with 15.3% (combined all/some workstations). Regionally, library 

outlets in the Southeast and West are more likely to provide special hardware and/or software for 

individuals with disabilities for public access Internet services, with 43.8% and 30.1% 

respectively (combined all/some workstations). 

 Finally, some public library outlets do block and/or filter Internet content (see Tables 3-13 

and 3-14). Overall, library outlets that serve population of legal service areas of less than 25,000 

are less likely to block/filter Internet content (20.1% combined all/some workstations) than are 

library outlets that serve population of legal service areas of greater than 25,000 (combined range 

of 31.6% to 32.1% for all/some workstations). Library outlets in the Southeast and Southwest 

are less likely to block/filter Internet content (33.5% and 37.5% respectively combined range for 

all/some workstations) as compared to library outlets in other regions of the nation (combined 

range of 8.9% to 28.9% for all/some workstations). 

Bertot & McClure 53 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

SUMMARY 

 Overall, the additional data analysis demonstrates that there is some noteworthy variation in 

public library Internet connectivity, funding of Internet and technology infrastructure, and public 

access and patron Internet services by outlet region and population of legal service area (see 

Tables 3-2 through 3-14). 

 Chapter four provides a longitudinal review of public library Internet connectivity data 

through a review of previous public library Internet connectivity studies sponsored by NCLIS 

(and at times the American Library Association). 

Bertot & McClure 54 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-9. Public Library Outlet Public Access Database Subscription Services by Population of 

Legal Service Area. 

Availability of Subscription Database Services 

On all 

workstations 

On some 

workstations 

On no 

workstations Total Services offered remotely to off-site users 

Population of Legal 

Service Area 

Greater than 

500,000 

95.3% 

+/- 2.1% 

28.7% 

+/- 2.1% - 100.0% (n=322) 

71.4% 

+/- 4.5% 

250,000-500,000 73.8% 

+/- 4.4% 

21.1% 

+/- 4.1% 

5.4% 

+/- 2.2% 

100.0% 

(n=336) 

52.7% 

+/- 5.0% 

100,000-249,999 71.3% 

+/- 4.5% 

28.7% 

+/- 4.5% - 100.0% (n=338) 

60.7% 

+/- 4.9% 

25,000-99,999 64.8% 

+/- 4.8% 

27.0% 

+/- 4.4% 

8.3% 

+/- 2.8% 

100.0% 

(n=2,612) 

49.7% 

+/- 5.0% 

Less than 25,000 56.0% 

+/- 5.0% 

20.0% 

+/- 4.0 

24.1% 

+/- 4.3% 

100.0% 

(n=10,151) 

29.9% 

+/- 4.6 

Unknown 71.3% 

+/- 4.5% 

14.8% 

+/- 3.6% 

12.9% 

+/- 3.4% 

100.0% 

(n=1,375) 

40.6% 

+/- 4.9% 

Overall 

60.5% 

+/- 4.9% 

(n=9,150) 

20.6% 

+/- 4.0% 

(n=3,118) 

18.9% 

+/- 3.9% 

(n=2,854) 

100.0% 

N=15,134 

36.4% 

+/- 4.8% 

(n=5,503) 

Table 3-10. Public Library Outlet Public Access Database Subscription Services by Region. 

Availability of Subscription Database Services 

On all 

workstations 

On some 

workstations 

On no 

workstations Total Services offered remotely to off-site users 

Region 

Greatlakes 

63.7% 

+/- 4.8% 

21.2% 

+/- 4.1% 

15.1% 

+/- 3.6% 

100.0% 

(n=2,813) 

34.9% 

+/- 4.8% 

Middle Atlantic 70.0% 

+/- 4.6% 

19.3% 

+/- 3.9% 

10.6% 

+/- 3.1% 

100.0% 

(n=2,377) 

38.0% 

+/- 4.9% 

New England 53.9% 

+/- 5.0% 

15.8% 

+/- 3.6% 

30.3% 

+/- 4.6% 

100.0% 

(n=1,355) 

40.8% 

+/- 4.9% 

Plains 45.9% 

+/- 5.0% 

17.2% 

+/- 3.8% 

36.9% 

+/- 4.8% 

100.0% 

(n=1,870) 

16.4% 

+/- 3.7% 

Rockies 64.5% 

+/- 4.8% 

24.4% 

+/- 4.3% 

11.1% 

+/- 3.1% 

100.0% 

(n=558) 

33.3% 

+/- 4.7% 

Southeast 67.8% 

+/- 4.7% 

20.6% 

+/- 4.0% 

11.2% 

+/- 3.1% 

100.0% 

(n=3,259) 

42.5% 

+/- 4.9% 

Southwest 54.0% 

+/- 5.0% 

16.1% 

+/- 3.7 

29.9% 

+/- 4.6% 

100.0% 

(n=1,177) 

35.7% 

+/- 4.8% 

West 52.1% 

+/- 5.0% 

30.1% 

+/- 4.6% 

17.9% 

+/- 3.8% 

100.0% 

(n=1,723) 

46.3% 

+/- 5.0% 

Overall 

60.4% 

+/- 4.9% 

(n=9,146) 

20.5% 

+/- 4.0% 

(n=3,107) 

18.9% 

+/- 3.9% 

(n=2,864) 

100.0% 

N=15,132 

36.6% 

+/- 4.8% 

(n=5,534) 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 55 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-11. Public Library Outlet Public Access Provision of Special Hardware/Software for 

Individuals with Disabilities by Population of Legal Service Area. 

Availability of Special Hardware/Software 

On all workstations On some 

workstations 

On no 

workstations Total 

Population of Legal Service 

Area 

Greater than 500,000 

4.7% 

+/- 2.1% 

9.6% 

+/- 2.9% 

85.7% 

+/- 3.5% 

100.0% 

(n=322) 

250,000-500,000 - 47.3% 

+/- 5.0% 

52.7% 

+/- 5.0% 

100.0% 

(n=336) 

100,000-249,999 - 46.4% 

+/- 5.0% 

53.6% 

+/- 5.0% 

100.0% 

(n=338) 

25,000-99,999 5.7% 

+/- 2.3% 

23.3% 

+/- 4.2% 

71.0% 

+/- 4.5% 

100.0% 

(n=2,612) 

Less than 25,000 9.0% 

+/- 2.9% 

16.6% 

+/- 3.7 

74.4% 

+/- 4.4% 

100.0% 

(n=10,151) 

Unknown 10.9% 

+/- 3.1% 

27.7% 

+/- 4.5% 

61.4% 

+/- 4.9% 

100.0% 

(n=1,375) 

Overall 

8.1% 

+/- 2.7% 

(n=1,232) 

20.0% 

+/- 4.0% 

(n=3,023) 

71.9% 

+/- 4.5% 

(n=10,879) 

100.0% 

N=15,134 

Table 3-12. Public Library Outlet Public Access Provision of Special Hardware/Software for 

Individuals with Disabilities by Region. 

Availability of Special Hardware/Software 

On all workstations On some 

workstations 

On no 

workstations Total 

Region 

Greatlakes 

2.3% 

+/- 1.5% 

22.6% 

+/- 4.2% 

75.0% 

+/- 4.3% 

100.0% 

(n=2,813) 

Middle Atlantic 4.0% 

+/- 2.0% 

19.3% 

+/- 3.9% 

76.7% 

+/- 4.2% 

100.0% 

(n=2,377) 

New England 2.7% 

+/- 1.6% 

15.8% 

+/- 3.6% 

81.5% 

+/- 3.9% 

100.0% 

(n=1,355) 

Plains 4.1% 

+/- 2.0% 

11.5% 

+/- 3.2% 

84.4% 

+/- 3.6% 

100.0% 

(n=1,870) 

Rockies 6.6% 

+/- 2.5% 

17.7% 

+/- 3.8% 

75.6% 

+/- 4.3% 

100.0% 

(n=558) 

Southeast 19.3% 

+/- 3.9% 

24.5% 

+/- 4.3% 

56.2% 

+/- 5.0% 

100.0% 

(n=3,259) 

Southwest 10.4% 

+/- 3.0% 

17.2% 

+/- 3.8% 

72.4% 

+/- 4.5% 

100.0% 

(n=1,177) 

West 8.1% 

+/- 2.7% 

22.8% 

+/- 4.2% 

69.1% 

+/- 4.6% 

100.0% 

(n=1,723) 

Overall 

7.9% 

+/- 2.7% 

(n=1,202) 

19.9% 

+/- 4.0% 

(n=3,016) 

72.1% 

+/- 4.5% 

(n=10,913) 

100.0% 

N=15,132 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 56 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Table 3-13. Public Library Outlet Public Access Internet Blocking of Internet Services 

by Population of Legal Service Area.

Blocking of Internet Services 

On all workstations On some workstations On no workstations Total 

Population of Legal 

Service Area 

Greater than 500,000 

9.6% 

+/- 2.9% - 90.4% +/- 2.9% 

100.0% 

(n=322) 

250,000-500,000 15.8% 

+/- 3.7% 

15.8% 

+/- 3.7% +/- 4.7% 

100.0% 

(n=336) 

100,000-249,999 10.7% 

+/- 3.1% 

21.4% 

+/- 4.1% 

67.8% 

+/- 4.7% 

100.0% 

(n=338) 

25,000-99,999 9.3% 

+/- 2.9% 

22.8% 

+/- 4.2% 

67.9% 

+/- 4.7% 

100.0% 

(n=2,612) 

Less than 25,000 8.7% 

+/- 2.8% 

11.4% 

+/- 3.2 

79.9% 

+/- 4.0% 

100.0% 

(n=10,151) 

Unknown 13.9% 

+/- 3.5% 

25.7% 

+/- 4.4% 

60.4% 

+/- 4.9% 

100.0% 

(n=1,375) 

Overall 

9.5% 

+/- 2.9% 

(n=1,442) 

14.7% 

+/- 3.5% 

(n=2,228) 

75.7% 

+/- 4.3% 

(n=11,463) 

100.0% 

N=15,134 

68.5% 

Table 3-14. Public Library Outlet Public Access Internet Blocking of Internet Services 

by Region.

Blocking of Internet Services 

On all workstations On some workstations On no workstations Total 

Region 

Greatlakes 

6.1% 

+/- 2.4% 

14.6% 

+/- 3.5% 

79.2% 

+/- 4.1% 

100.0% 

(n=2,813) 

Middle East 4.0% 

+/- 2.0% 

17.3% 

+/- 3.8% 

78.7% 

+/- 4.1% 

100.0% 

(n=2,377) 

New England 6.6% 

+/- 2.5% 

11.8% 

+/- 3.2% 

81.5% 

+/- 3.9% 

100.0% 

(n=1,355) 

Plains 3.3% 

+/- 1.8% 

5.7% 

+/- 2.3% 

91.1% 

+/- 2.9% 

100.0% 

(n=1,870) 

Rockies 17.7% 

+/- 3.8% 

11.1% 

+/- 3.1% 

71.1% 

+/- 4.5% 

100.0% 

(n=558) 

Southeast 17.2% 

+/- 3.8% 

16.3% 

+/- 3.7% 

66.5% 

+/- 4.7% 

100.0% 

(n=3,259) 

Southwest 17.2% 

+/- 3.8% 

20.7% 

+/- 4.1% 

62.1% 

+/- 4.9% 

100.0% 

(n=1,177) 

West 7.3% 

+/- 2.6% 

18.7% 

+/- 3.9% 

74.0% 

+/- 4.4% 

100.0% 

(n=1,723) 

Overall 

9.3% 

+/- 2.9% 

(n=1,405) 

14.9% 

+/- 3.6% 

(n=2,250) 

75.8% 

+/- 4.3% 

(n=10,913) 

100.0% 

N=15,132 

Note: These are weighted estimates based on a recalculation of the original weights for Metropolitan Status and Poverty to 

reflect Population of Legal Service Area categories. The weights and percentages are estimates and rounded during the analysis

process. Therefore, there will be slight differences in both the calculated percentages and number of libraries represented through 

those calculations. For example, the original study estimated 15,128 connected public libraries that offer public Internet access. 

With the weight recalculations and rounding, the Population of Legal Service Area number of connected outlets that offer public

Internet access is estimated at 15,134 for a difference of 6 outlets. With the weight recalculations and rounding, the Region 

number of connected outlets that offer public Internet access is estimated at 15,132 for a difference of 4 outlets.

Bertot & McClure 57 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

CHAPTER 4: 

DATA TRENDS IN PUBLIC LIBRARY INTERNET RESEARCH 

 Much of the research regarding public libraries and their involvement with and use of the 

Internet began with the National Commission on Libraries and Information Science (NCLIS)-

sponsored Public Libraries and the Internet: Study Results, Policy Issues, and Recommendations

(McClure, Bertot, and Zweizig, 1994). Since the publication of that report, there have been few 

national studies that review the state of public library Internet connectivity, issues, and services. 

Indeed, the predominant studies include: 

• Public Libraries and the Internet: Study Results, Policy Issues, and Recommendations

(McClure, Bertot, and Zweizig, 1994). This study examined public library system 

Internet connectivity issues, and was sponsored by NCLIS. 

• The 1996 National Survey of Public Libraries and the Internet: Progress and Issues

(Bertot, McClure, and Zweizig, 1996). This study examined public library system Internet 

connectivity issues, and was sponsored by NCLIS. 

• The 1997 National Survey of U.S. Public Libraries and the Internet: Final Report (Bertot, 

McClure, and Fletcher, 1997). This study examined public library system Internet 

connectivity issues, and was co-sponsored by NCLIS and the American Library 

Association. 

• The 1998 National Survey of U.S. Public Library Outlet Internet Connectivity: Final 

Report (Bertot and McClure, 1998). This study examined public library outlet Internet 

connectivity issues and was co-sponsored by NCLIS and the American Library 

Association. 

• Public Libraries and the Internet 2000: Summary Findings and Tables (Bertot and 

McClure, 2000). This study examined public library outlet Internet connectivity issues 

and was sponsored by NCLIS. 

• Kids and the Internet: The Promise and the Perils (1998). Hearings held by NCLIS on 

issues regarding children and their use of and involvement with the Internet. 

• Survey of Internet Access Management in Public Libraries (Library Research Center, 

Graduate School of Library and Information Science, University of Illinois, 2000). This 

study used a survey approach to assess the extent to which and mechanisms through 

which public libraries manage their public access Internet services (e.g., through 

acceptable use policies, filtering, or other approaches). 

Additional studies related to issues of Internet connectivity in general that may not have direct 

public library application include several reports on the Digital Divide by the National 

Telecommunications and Information Administration (as discussed in Chapter 2): 

• Falling Through the Net: A Survey of the "Have Nots" in Rural and Urban America

(1995); 

• Falling Through the Net II: New Data on the Digital Divide (1998); 

• Falling Through the Net: Defining the Digital Divide (1999); 

Bertot & McClure 58 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Advanced Telecommunications in Rural America: The Challenge of Bringing Broadband 

Service to All Americans (2000); and 

• Falling Through the Net: Toward Digital Inclusion (2000). 

This chapter identifies and reviews selectively a number of public library and related Internet 

studies so as to provide a baseline perspective of public library Internet data. The chapter then 

identifies issues remaining regarding the continued study of public library Internet activities. 

CONNECTIVITY 

 Public libraries increased their Internet connectivity steadily since 1994 (see Figure 4-1). At 

that time, 20.9% of public library systems had an Internet connection of some type. Though the 

point of data collection shifted to the outlet level in 1998, public libraries continued to increase 

their connectivity. Indeed, as of June 2000, 95.7% of public library outlets have an Internet 

connection of some type. 

 At the same time that public libraries increased their Internet connectivity, they augmented 

their Internet connection speeds (see Figure 4-2). For example, 82.9% of public library systems

had Internet connection speeds of less than 56kbps in 1997. Less than 3% (2.7%) of public 

library systems had Internet connection speeds greater than 56kbps in 1997. This compares to 

53.6% of outlets that have Internet connection speeds of greater than 56kbps in 2000, and 21.3% 

System Outlet

Percentage

 Connected

Year of Study

1994 1996 1997 1998 2000

120.0%

100.0%

80.0%

60.0%

40.0%

20.0%

0.0%

83.6%

20.9%

95.7%

72.3%

44.6%

Figure 4-1. Public Library Internet Connectivity 1994-2000.

Bertot & McClure 59 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

leased line connectivity.

category for the 1997 and 1998 surveys includes 

types available at the time of the surveys, the 56kbps

Note: Due to differences in surveys and connection

1997 - System 1998 - Outlet 2000 - Outlet

Figure 4-2. Maximum Speed of Public Access Internet

Connectivity.

Speed of Connectivity

<56kbps 56kbps >56kbps

Percentage of

Connectivity

90.0%

80.0%

70.0%

60.0%

50.0%

40.0%

30.0%

20.0%

10.0%

0.0%

53.6%

33.8%

2.7%

25.0%

32.7%

10.3%

21.3%

32.9%

82.9%

of public library outlets that have Internet connection speeds of less than 56kbps in 2000 (readers 

can find the details of the variation in connectivity speed in Chapter 3 and Appendix A of this 

report). 

 Public libraries also increased the average number of public access workstations that they 

provide for public access Internet services. As Figure 4-3 shows, public libraries provide an 

average of 8.2 workstations per outlet in 2000 – this compared to just 1.9 workstations per 

library system in 1996. 

 Though not related to public library Internet connectivity, the Digital Divide series of reports 

conducted by the National Telecommunications and Information Administration (NTIA) and the 

Bureau of the Census demonstrate that computing and Internet connectivity in the home continue 

to increase, though there are disparities by race and income (as detailed in Chapter 2). Speed of 

home Internet connectivity also improved, but differs by geography – with rural household 

connections being slower than urban household connections. For example (National 

Telecommunications and Information Administration, 2000): 

• Households with computers rose to 51.0% from 42.1% between December 1998 and 

August 2000; 

• Households with Internet access rose to 41.5% from 26.2% between December 1998 and 

August 2000; 

Bertot & McClure 60 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 4-3. Average Number of Public Access Workstations.

Year

1996 - System 1997 - System 1998 - Outlet 2000 - Outlet

of Workstations

Average Number

9

8

7

6

5

4

3

2

1

0

8.2

6.5

5.7

1.9

• Only 10.7% of households had broadband-speed Internet access (defined as a minimum 

of 200kbps by the Federal Communications Commission and discussed in Chapter 2), 

with a range of 12.2% in urban (central city) areas to 7.3% in rural areas. 

Thus, as public libraries enhance their Internet connectivity so do U.S. households. 

Discrepancies do exist, however, by geography (urban/rural) and other library and household 

demographics. 

PUBLIC ACCESS AND PUBLIC ACCESS SERVICES 

 Public library outlets have a strong tradition of providing public access to the Internet. In 

1998, 87.7% of connected public library outlets provided public access to the Internet. In 2000, 

94.5% of public library outlets provided public access to the Internet. Over time, public libraries 

added a number of public Internet access services for patrons. Some of the trends in service 

provision are discussed below. 

Services to Special Populations 

Persons with Disabilities

Beginning with the 1998 public library Internet study, the national survey included a question 

regarding the provision of special hardware/software on public Internet access workstations for 

Bertot & McClure 61 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

persons with disabilities. As Figure 4-4 shows, the provision of special hardware/software for 

persons with disabilities improved in public library outlets since 1998, but the overall percentage 

is low – as of June 2000, 71.2% of public library outlets provide no special hardware/software 

for persons with disabilities on their public access Internet workstations. 

 The 2000 NTIA Toward Digital Inclusion study provides information regarding Internet 

access and computer use among people with disabilities (NTIA, 2000). The data from that study 

indicate that: 

• Households with individuals with disabilities are half as likely to have Internet access as 

non-disability households, with 21.6% and 42.1% respectively, and 

• Internet access in households with individuals with disabilities differs by the type of 

disability.6

 31.2% of households with learning disabled individuals have Internet access 

as compared to just 16.0% of households with individuals with walking problems. 

It is important to note that individuals with disabilities are not likely to have Internet access 

outside the home (e.g., through place of employment). Indeed, 71.6% have no access to the 

Internet at all, with a range from 67.8% for individuals with learning disabilities to 81.5% for 

individuals with walking problems. 

1998 2000

Figure 4-4. Provision of Special Hardware/Software on Public 

Access Workstations for Persons with Disabilities.

Service on 

Workstations

None

Some

All

Service

Percentage of

0.0% 10.0% 20.0% 30.0% 40.0% 50.0% 60.0% 70.0% 80.0% 90.0%

71.2%

83.6%

20.3%

13.6%

8.5%

2.9%

Bertot & McClure 62 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Children and Youth

 Little is known about Internet-specific programs and services for children and youth within 

public libraries. NCLIS did hold a hearing in 1998 regarding Children and the Internet that 

resulted in the publication Kids and the Internet: The Promise and the Perils (NCLIS, 1998). 

While the forum provided an excellent opportunity to identify, define, and consider issues 

regarding children/youth and the Internet, no national data emerged regarding public library 

Internet services regarding children/youth. Among the issues identified and discussed during the 

forum were the: 

• Ability of public libraries to equalize access to network-based services and resources; 

• Ability of libraries to serve as gateways to knowledge that goes beyond the walls of the 

libraries and the communities in which the children/youth reside; 

• Potential erosion of the privacy of children when using online services and resources; 

• Peril of accessing and viewing potentially offensive material through public access 

Internet services; 

• Need for parental supervision of children/youth as they use library public access Internet 

services; 

• Physical access to public equipment – adequate number of workstations and other issues; 

and 

• Numerous other topics. 

The above serve to illustrate the nature and content of the hearing, but readers should note that 

the hearing engaged numerous stakeholder groups, librarians, policy makers, researchers, and 

others during the sessions. The hearing also offered a number of solutions to the issues raised 

throughout the sessions 

Internet Instruction

 A substantial percentage of public library outlets provide Internet training services. As 

indicated in Figure 5-5, 62.3% of public library outlets provide Internet training services. 

Training services vary by the size of the outlet, with very large (greater than 500,000 with 

71.4%) and small outlets (less then 25,000 with 56.4%) providing fewer training services overall 

than other outlets. 

 Libraries provide training services to a number of targeted populations that include: 

• Adult public, with 55.1%; 

• Library staff, with 44.3%; 

• Children/youth public, with 43.7%; 

• Local business, with 11.0%; 

• Local government, with 9.1%; and 

 6

 Readers should review the NTIA report for the definitions used for the various types of disabilities. 

Bertot & McClure 63 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 4-5. Public Library Outlet Provision of Internet Training by

Population of Legal Service Area (2000).

Population of Legal Service Area

Overall GT500k 250k-500k 100k-250k 25k-100k LT25k

Percentage

of Provision

100.0%

90.0%

80.0%

70.0%

60.0%

50.0%

40.0%

30.0%

20.0%

10.0%

0.0%

56.4%

70.5%

89.6% 92.9%

71.4%

62.3%

• Other targeted populations, with 14.3%. 

Thus, public library outlets provide training to a number of different populations within their 

communities. 

Bertot & McClure 64 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

1998 2000

Figure 4-6. Provision of Internet Blocking on Public Access

Workstations.

Service on 

Workstations

None

Some

All

Percentage of Service

0.0% 10.0% 20.0% 30.0% 40.0% 50.0% 60.0% 70.0% 80.0% 90.0%

75.5%

85.3%

15.0%

7.0%

9.6%

7.6%

Filtering/Blocking of Internet Content

 Overall, public library outlets (75.5%) do not block/filter their public access Internet services 

(see Figure 6). This is, however, an increase in blocking/filtering from 1998, when 85.3% of 

public library outlets did not filter/block their public access Internet services. In the 2000 study, 

15.0% of public library outlets reported blocking/filtering on some of their public access Internet 

workstations, while 9.6% block/filter on all of their public access Internet workstations. 

 A study conducted by the Library Research Center in the Graduate School of Library and 

Information Science at the University of Illinois (Library Research Center, 2000) found similar 

results from a 1999 survey of public libraries. In particular, the study found that 83.2% of 

responding libraries did not filter their public access Internet workstations and 16.8% of 

responding libraries use filtering software on some or all of their public access Internet 

workstations. 

Bertot & McClure 65 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

ISSUES AND CONCLUSIONS 

 The above selective longitudinal analysis of public library and related Internet 

connectivity, use, and access data reflect a number of issues that require attention: 

• There exists no comprehensive, coordinated approach to public library Internet 

connectivity research. At best, the research conducted concerning public library 

involvement with and use of the Internet is ad hoc, sporadic, and lacking in consistency. 

Other than the NCLIS studies, there are no comparable longitudinal data available. 

• There is no coordination across studies. NTIA conducts its Falling Through the Net

series in isolation from the NCLIS/ALA-sponsored public library Internet studies, for 

example. One has to consider the potential benefits of collaboration for such studies. 

• There is little coordination across groups. Related to the coordination of ongoing studies 

is the collaboration and/or coordination across stakeholder groups and organizations. 

While each organization may have a different emphasis, there is clearly overlap in 

interests regarding library Internet activities between NCLIS, ALA, and the Institute of 

Museum and Library Services (IMLS) to name a few. It should be noted that NCLIS and 

ALA did co-sponsor the 1997 and 1998 public library Internet studies. 

• Existing data, though limited, is not always comparable. Although 1994-2000 series of 

NCLIS public library Internet studies do yield some longitudinal data, the approaches 

changed (e.g., from systems to outlets) to better meet the needs of the research questions 

and policy environment. Thus, even within this series, there is a limit to the ability to 

make longitudinal comparisons. The ability to compare data across different studies and 

research is more difficult as the various research groups use different sampling 

techniques, approaches, questions, and analysis techniques. 

• The studies provide an incomplete picture of public library Internet connectivity. To 

date, the studies conducted provide limited snapshots of public library Internet 

connectivity. 

Internet connectivity in public libraries, and related issues, are complex topics that require a 

number of approaches and studies to ascertain in a meaningful and comprehensive way. While 

the studies conducted to date do provide valuable data regarding public library Internet 

connectivity, these issues point to the need for the development of a research agenda and 

infrastructure that can provide a better and more robust understanding of public library Internet 

connectivity and connectivity-related issues. 

 Based on the issues identified in this chapter and throughout this report, Chapter 5 makes 

specific recommendations to NCLIS regarding the future of public library Internet connectivity 

research, the library policy environment, and the role of NCLIS in coordinating a research 

agenda that informs policy makers, professionals, and researchers as to the public library Internet 

context. 

Bertot & McClure 66 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

CHAPTER 5: 

RESEARCH ISSUES AND STRATEGIES 

 This chapter discusses a number of key research issues and strategies that require attention if 

the role of libraries, and especially public libraries in the evolving networked environment are to 

be better understood, financially supported, and integrated into library services to support a range 

of possible national goals and objectives. The topics discussed here are based, in part, on the 

previous material and background information provided in Chapters 1-4. Overall, this chapter 

suggests the importance and need for a nationally coordinated effort to support research broadly 

related to libraries and library services. 

ISSUES RELATED TO RESEARCH AND DATA COLLECTION ACTIVITIES 

 This study identified a number of data collection activities and research needs for policy 

makers, the library profession, and other communities. Initial areas of research and data needs 

include: 

• Issues related to the digital divide. While the National Telecommunications and 

Information Administration (NTIA) has conducted a number of studies related to the 

digital divide that provide key data regarding home computer technology and Internet 

access along a number of demographic variables (e.g., income, race, gender, urban/rural, 

and persons with disabilities), there is a need to further explore issues regarding the 

digital divide. Key research questions regarding the digital divide that require additional 

exploration are: 

o Are there digital divide issues that apply to special populations (e.g., seniors, 

persons with disabilities, other)? If so, what are those issues? 

o What roles do libraries play in the digital divide in general and in meeting the 

needs of special populations in particular? 

 What are the critical success factors for libraries to engage in digital divide 

resolution activities? 

 What are the barriers that prevent libraries from engaging in successful 

digital divide resolution activities (e.g., computing technology, bandwidth, 

trained staff)? 

• Moving beyond connectivity data. Although the Public Library Internet studies provided 

first time, longitudinal, and important data regarding public library Internet connectivity, 

they focused primarily on the Internet connectivity infrastructure of public libraries – 

Internet connection, workstations, bandwidth, and funding issues. With the 2000 study 

finding that 95.7% of public libraries have an Internet connection, it is time to move 

beyond public library connectivity to Internet-based library services – e.g., training, 

services to special populations (e.g., seniors, persons with disabilities, children, Native 

Americans), filtering/content blocking, outcomes, and service quality, to name a few. As 

with the leadership NCLIS demonstrated by conducting the first studies of public library 

Bertot & McClure 67 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Internet connectivity, the Commission has an opportunity to establish leadership in the 

study of critical areas of Internet involvement and use in public libraries. 

One such area is continuing the research role of the Commission, in partnership with the 

authors and IMLS, in the area of public library network statistics and performance 

measures. As libraries increase their use of and reliance on network-based services and 

resources, such statistics will describe the use of and involvement with library networked 

services. This key area of research and data collection requires continued development, 

support, and innovation. 

• Broadening the scope of Internet studies beyond libraries. There are a number of 

community technology centers – boys and girls clubs, community centers, senior centers, 

for example – that provide access to network-based services such as training, computer 

technology, and Internet connectivity. It is important to study the role(s) that such 

centers play in the connectivity mosaic of users, the relationship of libraries in the 

connectivity of users, and the interrelationship between the library and other communitybased organizations in providing access to network-based resources and services to users. 

• Conducting longitudinal studies where possible. While it is important to collect one-time 

data that meet the needs of particular research interest or policy issues, it is also important 

to provide a longitudinal perspective regarding research areas that inform policy makers, 

researchers, and others as to the changes over time in connectivity-related issues. Such 

data can inform various parties about trends, key issues, and evolving services over time. 

• Coordinating the data collection activities of various regular and on-going library (and 

other, where possible) surveys. NCLIS, in its relationship with the library statistics 

program managed by the NCES/U.S. DOE, plays a critical role in a number of libraryrelated data collection efforts – academic, public, and school media. To the extent 

possible, there is a need to create a core set of survey questions that cut across the various 

survey instruments so as to compare various connectivity and other data of interest across 

library types and communities. 

• Need for a national geo-based database of public library statistics and other information. 

Currently, there is no comprehensive and integrated national database of public library 

statistics and other information that would be important to describe and analyze a number 

of U.S. public library attributes. A nationwide inventory of data related to public library 

outlets and administrative entities has existed for several years through the Federal-State 

Cooperative System (FSCS) and National Center for Education Statistics, U.S. 

Department of Education (NCES/U.S. DOE). But the inventory cannot be utilized for 

any substantive decision making purpose at the local, regional, or national levels as this 

inventory is not tied to any usable external data (e.g., socioeconomic, population 

projections, relevant library related research, geo-based data, etc.). 

Furthermore, information-related professionals continually find themselves in the position 

of debating and advocating a range of policy issues related broadly to the access to, 

management of, and use of the information. Oftentimes, they are not prepared to enter 

these policy debates because of an inadequate body of knowledge, data, and evidence 

related to those issues. Examples of such issues include filtering, E-rate, access to 

electronic government information, impact and use of Library Services and Technology 

Bertot & McClure 68 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Act (LSTA), Internet development, telecommunications and technology infrastructure, and 

others. 

Of particular need is the timely release of available public library data. While NCES 

strives to reduce the time lag between data submission and data release, there is still a 

substantial gap (two years, on average) between when states submit their data and when

NCES releases the compiled data. There are a number of factors that contribute to this 

delay in data release. The final result, however, is often data that are simply too old to be 

useful in informing the library-related policy debates. 

The above indicate several key roles that NCLIS can play in the development, continuation, and 

maintenance of a broad ranging research agenda. Such endeavors would provide the 

Commission with important and valuable data to inform policy makers, researchers, and 

librarians along a number of topics. 

 A key issue in the ability of the Commission to engage in these research activities is the 

funding and maintenance of the Commission’s library statistics program. There is a need to fund 

the statistics program adequately to engage in these activities, provide adequate support and 

professional staff, and enhance the Commission’s library statistics program infrastructure to meet 

the challenges that such research and data collection activities will require. 

ISSUES RELATED TO EDUCATION AND TRAINING 

 To a large degree issues related to education and training of information professionals have 

not received adequate attention. While schools of library and information studies (as well as 

other programs) continue to evolve in their training of professionals to work in the networked 

environment, there are significant numbers of staff currently working in libraries that have 

received little to no ongoing instruction related to deploying and using technology; assisting 

users in networked and telecommunications services; integrating networked-based services with 

traditional services; planning and evaluating networked services; and others. 

 At issue is who or what is responsible for ongoing training and education of library staff to 

stay current with networked services and information technology developments? Where are 

resources to support such programs? How can a national program of training and education be 

developed such that every library does not need to re-create training programs for its staff? How 

can national training efforts be deployed such that training does not need to be localized in terms 

of delivery mechanisms? 

 The issues of education and training raised in this section have less to do with the training of 

new information professionals at the graduate level and more to do with how to keep existing 

staff versed in technology and network developments and applications. The Commission may 

wish to consider if it has a role to play in assessing educational and training needs in this area 

and the degree to which strategies can be developed to address these needs. 

 

Bertot & McClure 69 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment

ISSUES AND STRATEGIES RELATED TO COMMUNICATION, COORDINATION, 

AND DISSEMINATION 

The policy analysis and review of research activities indicate that there are a number of 

areas in which there is a need to coordinate, exchange findings, and review and develop policy 

recommendations, strategies, and approaches. These include the: 

• Holding of issue/topical hearings. In the past, NCLIS has conducted a number of policy 

hearings on a wide range of topics. These include hearings on Kids and the Internet, 

ADA, status of schools and school libraries, and others, all of which resulted in overall 

key issue and stakeholder issue identification, testimony, research needs identification, 

and/or policy recommendations. There is a need to convene such a hearing on the policy 

research needs for library Internet-related activities. 

• Holding of regional “town hall” meetings. Such meetings would enable the identification

of key policy issues related to library Internet use and involvement facing communities 

across the country. Rather than formal hearings, such meetings would present a forum 

through which key stakeholder communities, as well as the general public, could engage 

in an exchange of issues, ideas, and considerations with the library, policy making, and 

other constituencies. 

• Conducting of regular policy forums. NCLIS has the legislated mandate to hold forums 

and bring various constituency groups together on information policy-related issues. 

Such forums, targeted to specific topics, could serve as a means through which to bring 

together key stakeholder groups (e.g., the American Library Association, communitybased organizations, policy making representatives) to discuss policy issues, generate 

policy recommendations, and develop policy implementation action plans. Sample topics 

might include the Digital Divide, ADA-related Internet access issues, and E-government 

proposals related to digital government information activities (as per the proposed EGovernment Act of 2001 (S. 803). 

• Conducting research and data forums. A number of different agencies and organizations 

– Census, National Telecommunications and Information Administration (NTIA), 

Department of Education, Schools and Libraries Division, Institute of Museum and 

Library Services, Federal Communications Commission, NCLIS, and the American 

Library Association, to name a few – have data and research needs on a number of 

common topics. These topics include the Digital Divide, digital literacy, Internet 

connectivity by community technology centers (e.g., public libraries, community 

centers), broadband, and technology use and needs by special populations (e.g., persons 

with disabilities). Bringing these groups together, though they may have differing uses 

for research findings and data, to collaborate, coordinate, and pool resources to conduct 

studies will result in a select number of focused, well funded, and thorough studies that 

can serve to inform policy makers, agencies, the library community, and others on a wide 

range of topics and issues. 

• Developing various publications/products and a multi-faceted method for distributing 

research findings and data to a wide range of groups that include policy makers, library 

organizations, and agencies. These products, some print, some electronic, and of various 

types (e.g., reports, brochures, bookmarks, broadsides, etc.) can serve a number of 

purposes that include the education of policy makers and others regarding a particular 

Bertot & McClure 70 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

topic, summary study findings, policy awareness, and key issue identification. Such 

products can demonstrate the involvement of NCLIS with a number of policy- and 

research-related activities. 

As evidenced, there are a number of communication, coordination, and dissemination activities 

in which the Commission can play a central role. The Commission will need to consider which 

of the above activities best fit its resources, goals, and objectives. 

 

NEED TO CLARIFY NATIONAL GOALS FOR PUBLIC LIBRARIES 

A key message in the 1987 publication, Planning and Role Setting for Public Libraries

(Chicago: American Library Association) was that public libraries cannot be all things to all 

people all the time. In fact, public libraries continue to find themselves in the position that the 

local community and federal programs expect libraries to be all things to all people all the time. 

The limited funding available to most public libraries requires that priorities be set and that 

libraries support only the “most important” services and activities. 

 Is the public library expected to be a national mechanism in the fight on illiteracy? Is the 

public library expected to be the doorway to E-government services for those without equipment 

and training elsewhere? Are public libraries to serve as local training centers for those to learn 

how best to use the Internet and the networked environment as suggested in the E-Government 

Act of 2001. Should they also serve as an after school resource center where national 

educational priorities and goals can be better supported? 

 While state and local determination of public library roles and goals is important, equally 

important is some clarification as to national public library roles and goals. The sense that public 

libraries provide national benefits to society also suggests that some better clarification of 

national goals and priorities for public libraries may also be necessary. To some degree public 

libraries receive “unfunded mandates” to support a range of societal goals – such as literacy 

programs. Should there be national goals for public libraries, there is a need to make those goals 

explicit and engage in activities and resource provision that supports those goals. 

ESTABLISH AN EFFECTIVE LIBRARY PRESENCE IN THE 

DEVELOPMENT OF INFORMATION POLICY 

 A key activity of the Commission is to provide advice to Congress and the President 

regarding libraries and information services in this country. But the library presence in national 

information policy debates is limited and has nowhere near the resource support that other 

interest groups such as the telecommunications industry has. Thus, the Commission may wish to 

consider possible mechanisms by which the library community can have a greater impact and a 

more visible presence in the development of information policy. 

 A number of the communication strategies offered earlier in this report can play an important 

role in developing such a presence. But too often there are conflicting points of view among the 

Bertot & McClure 71 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

various library groups as to a particular policy position. Key stakeholders include ALA and its 

various member groups, a range of other national and state library associations, IMLS, COSLA, 

ULC and others. For the library community to have a better impact on policy development some 

type of coordinating mechanism may be necessary, because policy makers respond better to 

consensus. However, that doesn’t mean there aren’t real differences between various groups. 

How to resolve is a vital question. 

 In addition to coordinating mechanisms, there needs to be a clear, coherent set of policy 

recommendations as to what, specifically, the Commission (and others) recommend be done 

about individual policy issues. Such recommendations require study, data, analysis, input from 

other stakeholder groups, etc. Given the limited resources and staff of the Commission, choices 

and priorities may need to be made as to which policy areas are most important for the 

Commission and which policy areas best lend themselves to consensus building among other 

interested parties in the library community. 

DEVELOP NEW MEASURES TO DESCRIBE THE IMPACT AND USE OF 

NETWORKED SERVICES IN PUBLIC LIBRARIES

To some extent, the federal government lacks a coordinated and coherent approach for policy 

analysis, research, and statistics related to library and information services. Library program 

funding for collecting national library statistics largely falls under the Department of Education 

through the National Center for Education Statistics (NCES), administered by NCLIS.

The Museum and Library Services Act of 1996 moved research and related programs to the 

Institute of Museum and Library Services. The role of the Department of Education regarding 

national data collection efforts and how it interacts with NCLIS and IMLS is not clear. The 

original wording to the act passed some of the responsibility of guidance to NCLIS, but the 

future of this agency is not clear since the President’s FY2002 budget did not recommend 

funding. So the responsibility of library program evaluation and collecting national statistics at 

this time is unclear. 

Role of Federal Agencies 

 NCLIS has some responsibility for the evaluation of federal library service programs. Public 

Law 91-345, An Act to Establish a National Commission for Library and Information Sciences, 

established the U.S. National Commission for Library and Information Science (NCLIS) as an 

independent agency within the executive branch. This agency is to recommend plans for 

providing the U.S. with library and information services to meet the needs of U.S. citizens. 

NCLIS is to promote research and develop activities to extend the Nation’s library and 

information handling capacity. If, however, NCLIS is not funded for FY 2002 it is not clear 

whom or what will assume the responsibilities currently held by NCLIS. 

 

 In addition to federal government studies generating library statistics, most states have state 

library agencies conducting a range of research and evaluation studies as well. IMLS oftentimes 

provides support for the state library agencies to conduct such research through LSTA funds. 

Bertot & McClure 72 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Part of the stipulation for receiving IMLS funding is that the states must have an information 

plan in place that includes an evaluation process. A number of the state library agencies post 

these studies and reports on their websites. Oftentimes, however, there is only limited 

coordination and integration of the work done by the state library agencies in terms of a national 

context. 

Lack of Coordination 

 The American Library Association (ALA) and other information-related professional 

associations continually find themselves in the position of debating and advocating a range of 

policy issues broadly related to the access to, management of, and use of information in the 

United States. Oftentimes, the information professions are ill prepared to enter these policy 

debates as they lack an adequate body of knowledge, data, and evidence related to these issues. 

At present, typical policy topics affecting the information professions include filtering, E-rate, 

access to electronic government information, impact and use of Library Services and Technology 

Act (LSTA), reauthorization of the Paperwork Reduction Act (PRA), copyright and intellectual 

property rights, Internet development, long-term preservation of electronic records, role of the 

Depository Library Program, and others described in this section of the report. 

 At present there is no coordinated effort to investigate and study these policy issues so as to 

inform the profession in a timely, accurate, and ongoing manner as to the nature of the issues and 

their impacts on libraries and information centers, the broader information professions, and the 

citizens of this nation. Simply stated, there may be a need for information professionals, 

information-related organizations, policy makers, and others to support, advise, and have access 

to a research institute and/or clearinghouse that can provide a stable and high quality policy 

research presence in the broad areas of federal information policy. 

Need for a National Conference 

 Information science researchers, policy makers, and others to explore a range of topics 

related to research needs regarding federal information policy issues. More specifically, such a 

conference could: 

• Identify existing knowledge and data sources related to current and future information policy 

issues that affect the profession and the citizens; 

• Discuss and describe specific information and research needs necessary to address the 

various information policy issues; and 

• Consider possible strategies to establish a mechanism for conducting ongoing policy 

research, for informing the information professions on the status and impact of selected 

information policy issues, and for providing a clearinghouse of information and data for use 

in debating these issues. 

Overall, the purpose of the conference would be to determine how the information professionals and 

related organizations can best establish an ongoing formal means (and presence) to conduct policy 

research and engage successfully in national information policy debates. Other outcomes would 

Bertot & McClure 73 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

include proposals for establishing some formal structures and programs to conduct information 

policy research and a listing of key information policy topics/issues requiring research attention. 

Benefits of a National Conference 

 The library and information professions regularly find themselves unable to respond quickly 

and accurately to both threats and opportunities in terms of a range of policy issues broadly 

related to library/information policy. A number of professional associations including the 

American Library Association, the Association of Research Libraries, the American Society for 

Information and Technology, and the American Association of Law Librarians (to name a few) 

either have offices or committees that follow selected policy areas. But these efforts are rarely 

coordinated and in most instances there is inadequate research available to support particular 

positions. 

 The proposed conference would be a step in recent times to develop a strategy to better 

initiate and respond to federal library/information policy initiatives. It would promote improved 

coordination and cooperation among the various stakeholders in assessing and responding to 

these policy initiatives. And perhaps most importantly, the conference might provide a research 

base by which ongoing research and policy analysis can be in place, providing information 

professionals with data that inform various policy debates, issues, threats, and opportunities 

affecting the library/information professions. The key issue with this topic is how best to 

coordinate, research, and better understand the range of the information policy issues that affect 

libraries and related information centers. 

Suggested Venue and Cost Estimate 

The consultants suggest using the leadership and sponsorship of the Information Institute 

at Florida State University (FSU), NCLIS, ALA, and selected funding agencies, the Information 

Institute at FSU would organize such a conference at FSU during the summer of 2002. 

Approximately 20-40 individuals representing policy researchers, government officials, 

professional associations, and other experts would be invited to attend the conference. The 

conference would include a combination of structured and unstructured meetings and discussion 

sessions. 

In addition, the Information Institute would commission three-five white papers to inform the 

conference proceedings that would (1) summarize existing data and knowledge on selected 

information policy topics, (2) identify specific information and research needs related to these issues, 

and (3) offer formal organizational approaches to better coordinate availability to policy information 

and research efforts regarding these issues. The conference would conclude with developing a set of 

“next steps” to build on conference findings and recommendations. 

The consultants estimate a budget of $50,000 to $75,000 would be necessary to manage/ 

conduct the conference, obtain necessary conference facilities, support travel for selected 

invitees, commission the white papers, and obtain the services of a conference facilitator who 

Bertot & McClure 74 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

would also produce a summary of conference results and recommendations. Dissemination of 

conference activities would be supported via a website as well as presentations at various 

professional associations and meetings as appropriate.

ENHANCING LIBRARY SERVICES IN THE NETWORKED ENVIRONMENT 

 This report identifies a range of topics, policy issues, data, findings, and 

recommendations that the Commission may wish to consider as it reviews and proposes policy 

and strategies to enhance library services in the networked environment. As suggested 

throughout the report, libraries have a number of challenges and opportunities to consider as they 

make the transition into the networked environment. It is possible to facilitate this transition 

with: 

• A federal information policy environment that recognizes the importance of and supports 

the multiple roles that libraries play in the American society; 

• Better coordination across federal agencies in terms of their policies, program goals, and 

procedures for implementing those programs (e.g., E-rate) – to better support libraries in 

general and public libraries in particular; 

• The maintenance of a timely and accurate national database – or collection of databases – 

of information (more than just statistics) that describes public library services and 

resources and can serve as a base from which to conduct meaningful and ongoing 

analysis and evaluation of library activities and services; 

• Enhanced national programs such as E-rate, LSTA, ESEA, the Depository Library 

Program, etc. that provide direct support to libraries to assist them promote E-government 

initiatives at the federal, state, and local levels; and 

• The development of valid, reliable, and standardized statistics and measures that describe 

use, users, uses, outcomes, and quality of library services in the networked environment. 

The last strategy is especially important as the Commission cannot offer accurate and timely 

policy advice to Congress and the President without useful descriptive data. 

These suggestions, of course, are only a beginning – other strategies and issues appear 

throughout this report. Clearly, the Commission cannot attack all the policy issues and 

opportunities to enhance libraries offered here. The Commission can, however, identify a 

strategic initiative and marshal its limited resources on specific priorities over the next three 

years. Agreement on a set of strategic initiatives will allow the Commission to tackle those 

issues and opportunities that appear to have the greatest payback to improve libraries so that 

libraries can better meet the needs of the American public as the networked environment 

continues to grow and evolve. 

Bertot & McClure 75 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

APPENDIX A: 

PUBLIC LIBRARIES AND THE INTERNET 2000 REPORT 

Bertot & McClure 76 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

PUBLIC LIBRARIES AND THE INTERNET 2000: 

SUMMARY FINDINGS AND DATA TABLES 

Submitted To: 

National Commission on Libraries and Information Science 

1110 Vermont Avenue, NW, Suite 820 

Washington, DC 20005 

By: 

John Carlo Bertot <jcbertot@lis.fsu.edu> 

Associate Professor and 

Associate Director 

Information Use Management and Policy Institute 

School of Information Studies 

Louis Shores Building 

Florida State University 

Tallahassee, FL 32306-2100 

(850) 644-6400 phone 

(850) 644-9763 fax 

Charles R. McClure <cmcclure@lis.fsu.edu> 

Francis Eppes Professor and 

Director 

Information Use Management and Policy Institute 

School of Information Studies 

Louis Shores Building 

Florida State University 

Tallahassee, FL 32306-2100 

(850) 644-8109 phone 

(850) 644-9763 fax 

September 7, 2000 

Bertot & McClure 72 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

INTRODUCTION 

 The U.S. National Commission on Libraries and Information Science (NCLIS) 

commissioned a Public Libraries and the Internet study for the year 2000. This study 

both updated previous NCLIS-sponsored studies (1994, 1995, 1996, 1997, and 1998)1

and explored new territory regarding public library involvement with and use of the 

Internet. 

 In particular, the 2000 Public Libraries and the Internet study sought to (see 

Appendix B for a copy of the survey form): 

• Provide longitudinal data regarding the percentage of public libraries connected to 

the Internet; 

• Provide longitudinal data regarding the percentage of public libraries that provide 

graphical public access Internet services; 

• Provide longitudinal data regarding the speed of library public access Internet 

services; 

• Explore the funding sources that support public library Internet connectivity and 

information technology infrastructure development; 

• Explore the level of use of online database resources, blocking technologies, and 

special software/hardware for individuals with disabilities by public libraries that 

provide public Internet access services; 

• Explore the extent and nature of library public access Internet acceptable use 

policies; and, 

• Explore the extent and nature of library Internet training services offered by 

libraries to various types of library users and staff. 

These areas formed the basis for the survey form developed by the consultants in 

conjunction with NCLIS staff. 

STUDY APPROACH AND METHOD 

 The 2000 study updated and re-geocoded all public library outlets using the 1997 

public library dataset produced by the National Center for Education Statistics (NCES) 

through the Federal-State Cooperative System (FSCS). The 1997 file was the most 

current release available to the consultants. Using geographic information system-based 

techniques, a research team at Florida State University was able to successfully geocode 

16,004 public library outlets in terms of their poverty (defined as less than 20%, 20%-

40%, and greater than 40%) and metropolitan status (urban, suburban, and rural) using 

the same techniques as for the 1998 Public Library Internet study.2

 From the 16,004 

geocoded outlets,3 the consultants drew a sample of 1,500 outlets in proportion to their 

percentages in the poverty and metropolitan status categories. 

 The consultants developed and pre-tested a number of survey questions for inclusion 

on the 2000 survey form. These pre-test methods included: 

Bertot & McClure 73 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• Distributing and discussing the draft survey with state data coordinators at the 

FSCS professional development conference in March 2000; 

• A focus group during the Public Library Association meeting in March 2000 with 

approximately 15 public librarians, state librarians, state data coordinators, and 

others knowledgeable in the area of public library Internet activities; and, 

• Distributing draft copies of the survey to library school faculty and public 

librarians. 

Based on the comments provided by the various survey reviewers, the consultants and 

NCLIS staff developed a final version of the survey for distribution to the sample of 

1,500 public library outlets.

 The consultants mailed the surveys to the 1,500 outlets in May 2000.4 At the same 

time, the consultants distributed the sample list to the state data coordinators to apprise 

them of the library outlets sampled in their states. The consultants and NCLIS staff 

attempted to correct surveys returned due to incorrect addresses. When it was not 

possible to correct the address, or the library outlet closed, the consultants selected a 

replacement outlet in the same poverty and metropolitan status category. Survey 

collection occurred through June 2000, with a final response rate of 73.9%. The state 

data coordinators provided tremendous support to the data collection effort, assisting the 

consultants and NCLIS staff achieve such a high response rate in a month’s time. 

READING THE FIGURES 

 The consultants used a weighted analysis approach to analyze the data and generate 

national estimates. As such, the analysis uses the actual responses from the 1,108 library 

outlets from which a completed survey was received to estimate to all [geocoded] outlets. 

 For example, Hawkins Memorial Library in La Porte City, Iowa, is coded as a 

suburban library outlet with less than 20% poverty. Hawkins Memorial Library’s 

responses (and all others designated suburban with less than 20% poverty) are weighted 

by 14.251 to generate an estimate for all suburban outlets with less than 20% poverty.5

 Figures 3 through 13 present the weighted study findings. Thus, the data presented in 

the figures represent the national estimates of connectivity, public access, and other 

presented analysis. Readers should note that, due to the type of analysis and weight 

generation process, rounding occurs in the weights used, number of estimated outlets for 

a particular response, percentages/averages generated, and confidence intervals. 

KEY SURVEY FINDINGS 

 Public libraries continue to connect to the Internet, enhance their connectivity, and 

provide a variety of public access Internet services. The sections below describe public 

library outlet Internet connectivity as of June 2000 and, where possible, identifies 

significant changes from the 1998 Public Libraries and the Internet study findings. The 

figures referenced in the following sections are in Appendix A of this report. 

Bertot & McClure 74 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Connectivity and Public Access 

 Nearly all public library outlets – 95.7% – have an Internet connection (see Figure 3). 

This is an increase from 83.6% in 1998. The most notable increases in connectivity 

occurred in suburban and rural library outlets. Suburban library connectivity increased 

from 88.1% in 1998 to 98.5% in 2000, and rural library connectivity increased from 

78.4% in 1998 to 93.3% in 2000. 

 Most library outlets also provide public access to the Internet, with 94.5% doing so 

(see Figure 4). This is up substantially from the 73.3% of library outlets that provided 

public access to the Internet in 1998. Significant increases in public access services 

occurred across all types of outlets by poverty and metropolitan status. Of particular 

interest is that all outlets in the poverty designations moved from the 72.8% to 79.5% 

range of public access service provision in 1998 to the 93.5% to 95.8% range in 2000. 

 The 1998 Public Libraries and the Internet study asked libraries if they expected to 

be connected to the Internet for public and staff access by June 1999. Overall, 47.6% of 

libraries responding that they were not currently connected expected to be by June 1999. 

Clearly, the overall increase in public library connectivity by more than 21% is a result of 

libraries being successful with Internet connectivity plans. 

 Of the outlets that provide public access Internet services, there is an average of 8.3 

workstations per outlet (see Figure 5). Not surprisingly, rural libraries have fewer 

workstations (4.9) as compared to urban libraries (17.3). Since 1998, however, library 

outlets have nearly doubled the number of public access workstations available to the 

public (see Figure 6). For example: 

• 25% of public library outlets now have two (2) or fewer workstations as 

compared to one (1) workstation in 1998;

• 50% of public library outlets now have four (4) or fewer workstations as 

compared to three (3) in 1998; and,

• 75% of public library outlets now have eight (8) or fewer workstations as 

compared to four (4) or fewer in 1998.

Thus, public library outlets are providing more public access workstations to the 

populations that they serve. 

 Speed of connectivity for public access Internet services also increased since 1998. 

Of particular interest is that: 

• 36.2% of outlets now have T1 (1.45mbps) service as their maximum speed of 

connectivity for public access services, as compared to 21.9% in 1998;

Bertot & McClure 75 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• 53.6% of outlets have greater than 56kbps (direct connect) service as their 

maximum speed of connectivity for public access services, as compared to 33.7% 

in 1998; and

• 35.4% of rural outlets have greater than 56kbps (direct connect) service as their 

maximum speed of connectivity for public access services, as compared to 22.2% 

in 1998.

The data demonstrate an overall increase in speeds of connectivity and a shift away from 

dialup connections. It is valuable to recognize that even rural libraries and those with 

poverty levels greater than 40% are able to provide T1 access. The data show an increase 

of 10.1% for rural libraries, an increase of 7.6% for libraries with more than 40% 

poverty, and an overall increase of connectivity at T1 speeds by 14.3%. As such, public 

libraries continue to augment the bandwidth available for their public access services. 

Funding Connectivity and Information Technology Infrastructure 

 Public libraries combine a variety of funding sources to support their Internet services 

and information technology infrastructure (see Figure 8): 

• 87.7% make use of operating funds from local governments and/or tax districts;

• 48.9% make use of Education-rate (E-rate) discounts; and,

• 23.6% to 31.4% make use of state library grants, state grants, gifts, and special 

grants (e.g., Gates Library Initiative).

Of particular interest is that 62.1% and 69.6%, respectively, of library outlets with 20-

40% poverty and more than 40% poverty designations make use of the E-rate discount to 

support their Internet connectivity services. 

Internet Services Provision and Implementation 

 The survey form queried public libraries as to their provision and implementation 

of public access online databases, disability, and training services. The study found that: 

• 60.4% of public library outlets offer access to online database subscription 

services on all of their workstations (see Figure 9); 

• 36.1% of public library outlets offer remote access to their online database 

services (see Figure 9); 

• 71.2% of public library outlets do not provide special hardware/ software on their 

public access workstations for individuals with disabilities (see Figure 10); 

• 75.5% of public library outlets do not block and/or filter Internet content on their 

public access workstations (see Figure 11); 

• 95.5% of public library outlets have acceptable use policies for their public access 

Internet services, and 43.6% differentiate between users (e.g., children, adults) in 

their policies (see Figure 12); and, 

Bertot & McClure 76 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

• 62.3% of public library outlets offer Internet training services, of which 55.1% 

that provide training to the adult public, 44.3% to library staff, and 43.7% to 

children/youth public (see Figure 13). 

In general, therefore, public library outlets offer online database services, do not filter 

and/or block Internet content, do not provide special hardware/ software for individuals 

with disabilities to use the Internet, have acceptable use policies in place, and offer the 

public Internet training services. 

NOTES AND REFERENCES 

1. See McClure, C. R., Bertot, J. C., and Zweizig, D. L. (1994). Public libraries and the 

Internet: Study results, policy issues, and recommendations. Washington, D.C.: National 

Commission on Libraries and Information Science; McClure, C.R., Bertot, J.C., and 

Beachboard, J.C. (1995). Internet costs and cost models for public libraries. 

Washington, D.C.: National Commission on Libraries and Information Science; Bertot, J. 

C., McClure, C. R., and Zweizig, D. L. (1996). The 1996 national survey of public 

libraries and the Internet: Progress and issues. Washington, D.C.: National Commission 

on Libraries and Information Science; Bertot, J. C., McClure, C. R., and Fletcher, P. D. 

(1997). The 1997 national survey of U.S. public libraries and the Internet: Final report. 

Washington, D.C.: American Library Association, Office for Information Technology 

Policy; U.S. National Commission on Libraries and Information Science. (1998). Moving 

toward more effective public Internet access: The 1998 national survey of public library 

outlet Internet connectivity. Washington, D.C.: National Commission on Libraries and 

Information Science. 

2. For a detailed discussion of the geocoding process, see Appendix C of U.S. National 

Commission on Libraries and Information Science. (1998). Moving toward more effective 

public Internet access: The 1998 national survey of public library outlet Internet 

connectivity. Washington, D.C.: National Commission on Libraries and Information 

Science. 

3. According to the National Center for Education Statistics, there were 16,925 public 

library outlets in 1997. Of those, many have P.O. boxes for mailing addresses and 

several are bookmobiles. It is not possible to geocode bookmobiles nor some service 

outlets with P.O. boxes as these are not fixed locations. With the techniques available in 

April 2000, it was possible to geocode 16,004 of the 16,925 outlets. CITE NCES. 

4. Respondents also had the option of completing the survey form online via a webbased survey. 

5. By multiplying the weight of 14.251 by the total number of respondents in the 

suburban with less than 20% poverty outlets (14.251x311 – see Figure 2), one should get 

the total number of outlets for that cell in Figure 1 (4,332). 

Bertot & McClure 77 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

APPENDIX A.1 – SUMMARY FIGURES OF SURVEY FINDINGS

Bertot & McClure 78 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 1. Public Library Outlets by Metropolitan Status and Poverty. 

Poverty 

Less than 20% 20%-40% More than 40% Overall 

Metropolitan 

Status 

Urban 

10.1%

(n=1,614) 

5.7%

(n=905) 

1.4%

(n=223) 

17.1%

(n=2,742) 

Suburban 27.7%

(n=4,432) 

2.0% 

(n=316) 

0.1%

(n=16) 

29.8%

(n=4,764) 

Rural 42.5%

(n=6,801) 

10.1%

(n=1,611) 

0.5%

(n=86) 

53.1% 

(n=8,498) 

Overall 80.3%

(n=12,847) 

17.7%

(n=2,832) 

2.0%

(n=325) 

100.0%*

(n=16,004) 

Based on geocoding of 16,004 outlets. 

Bertot & McClure 79 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 2. Response Rate of 2000 Outlet Study by Metropolitan Status and Poverty. 

Poverty 

Less than 20% 20%-40% More than 40% Overall 

Metropolitan 

Status 

Urban 

11.4%

(n=126) 

5.3%

(n=59) 

1.9%

(n=21) 

18.6%

(n=205) 

Suburban 28.1%

(n=311) 

1.7% 

(n=19) 

0.4%

(n=4) 

30.1%

(n=334) 

Rural 42.2%

(n=468) 

8.4%

(n=93) 

0.6%

(n=7) 

51.3% 

(n=568) 

Overall 81.7%

(n=905) 

15.4%

(n=171) 

2.9%

(n=32) 

100.0%*

(n=1,108) 

Based on 1,108 responses out of 1,500 for a total response rate of 73.9%. 

Bertot & McClure 80 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 3. Public Library Outlets Connected to the Internet by Metropolitan Status 

and Poverty. 

Poverty Base=16,004 Less than 20% 20%-40% More than 40% Overall 

Metropolitan 

Status 

Urban 

98.4% 

+/- 1.3%

(n=1,588) 

100.0% 

+/- 0.0%

(n=905) 

90.5% 

+/- 2.9%

(n=202) 

98.3% 

+/- 1.3% 

(n=2,695) 

Suburban 

98.4% 

+/- 1.3%

(n=4,361) 

100.0% 

+/- 0.0%

(n=316) 

100.0% 

+/- 0.0%

(n=16) 

98.5% 

+/- 1.2% 

(n=4,693) 

Rural 

93.1% 

+/- 2.5%

(n=6,336) 

93.5% 

+/- 2.5%

(n=1,507) 

100.0% 

+/- 0.0%

(n=86) 

93.3% 

+/- 2.5% 

(n=7,929) 

Overall 

95.6% 

+/- 2.0% 

(n=12,285) 

96.3% 

+/- 1.9% 

(n=2,728) 

92.8% 

+/- 2.6% 

(n=302) 

95.7% 

+/- 2.0% 

(n=15,317) 

Bertot & McClure 81 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 4. Connected Public Library Outlets that Provide Public Access to the 

Internet by Metropolitan Status and Poverty. 

Poverty Base=16,004 Less than 20% 20%-40% More than 40% Overall 

Metropolitan 

Status 

Urban 

98.4% 

+/- 1.3%

(n=1,588) 

98.3% 

+/- 1.3%

(n=890) 

90.5% 

+/- 2.9%

(n=202) 

97.7% 

+/- 1.5% 

(n=2,680) 

Suburban 

97.1% 

+/- 1.7%

(n=4,304) 

100.0% 

+/- 0.0%

(n=316) 

100.0% 

+/- 0.0%

(n=16) 

97.3% 

+/- 1.6% 

(n=4,636) 

Rural 

91.5% 

+/- 2.8%

(n=6,220) 

93.5% 

+/- 2.5%

(n=1,507) 

100.0% 

+/- 0.0%

(n=86) 

91.9% 

+/- 2.7% 

(n=7,813) 

Overall 

94.3% 

+/- 2.3% 

(n=12,112) 

95.8% 

+/- 2.0% 

(n=2,713) 

93.5% 

+/- 2.5% 

(n=304) 

94.5% 

+/- 2.3% 

(n=15,128) 

Bertot & McClure 82 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 5. Average Number of Public Library Outlet Graphical Public Access 

Internet Terminals by Metropolitan Status and Poverty. 

Poverty Base=15,128 Less than 20% 20%-40% More than 40% Overall 

Metropolitan 

Status 

Urban 

13.7 

range: 1-191 

24.9 

range: 1-700 

11.9 

range: 2-32 

17.3 

range: 1-700 

Suburban 8.9 

range: 1-220 

6.5 

range: 1-23 

3.5 

range: 2-5 

8.7 

range: 1-220 

Rural 4.6 

range: 1-41 

6.1 

range: 1-38 

5.9 

range: 1-19 

4.9 

range: 1-41 

Overall 7.3 

range: 1-220 

12.3 

range: 1-700 

7.2 

range 1-32 

8.3

range: 1-700 

Bertot & McClure 83 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 6. Frequency Analysis of Public Library Outlet Number of Graphical 

Public Access Workstations. 

Quartile Number of Graphical Workstations 

Per Outlet 

1 (25%) 2 

2 (50%) 4 

3 (75%) 8 

Base=15,128 

Bertot & McClure 84 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 7. Public Library Outlet Maximum Speed of Public Access Internet Services by 

Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% More 

than 40% Overall 

Maximum 

Speed 

Less than 

56kbps 

1.0% 

+/- 0.1% 

(n=26) 

2.5% 

+/- 1.5% 

(n=114) 

9.4% 

+/- 2.9% 

(n=738) 

6.7% 

+/- 2.7% 

(n=808) 

2.6% 

+/- 1.6% 

(n=69) 

0.0% 

+/- 0.0% 

(n=0) 

5.8% 

+/- 2.3% 

(n=877) 

56kbps dial-up 

1.0% 

+/- 0.1% 

(n=26) 

7.4% 

+/- 2.6% 

(n=344) 

25.3% 

+/- 4.3% 

(n=1,975) 

17.7% 

+/- 3.8% 

(n=2,141) 

7.5% 

+/- 2.3% 

(n=155) 

16.2% 

+/- 3.7% 

(n=49) 

15.5% 

+/- 3.6% 

(n=2,345) 

56kbps direct 

connect 

10.0% 

+/- 3.0% 

(n=269) 

25.6% 

+/- 4.4% 

(n=1,184) 

29.8% 

+/- 4.6% 

(n=2,331) 

24.4% 

+/- 4.3% 

(n=2,995) 

27.6% 

+/- 4.5% 

(n=749) 

26.3% 

+/- 4.4% 

(n=80) 

25.0% 

+/- 4.3% 

(n=3,784) 

64kbps – 

128kbps 

7.9% 

+/- 2.7% 

(n=211) 

9.0% 

+/- 2.7% 

(n=417) 

6.9% 

+/- 2.5% 

(n=543) 

7.1% 

+/- 2.6% 

(n=863) 

10.4% 

+/- 3.1% 

(n=282) 

8.3% 

+/- 2.7% 

(n=25) 

7.7% 

+/-2.7% 

(n=1,171) 

128kbps – 

1.5mbps 

15.7% 

+/- 3.6% 

(n=420) 

6.6% 

+/- 2.5% 

(n=304) 

3.8% 

+/- 1.9% 

(n=296) 

6.0% 

+/- 2.4% 

(n=727) 

10.8% 

+/- 3.1% 

(n=293) 

0.0% 

+/- 0.0% 

(n=0) 

6.7% 

+/- 2.5% 

(n=1,020) 

T1 

(1. 5mbps) 

56.9% 

+/- 4.9% 

(n=1,524) 

45.6% 

+/- 4.9% 

(n=2,115) 

23.4% 

+/- 4.2% 

(n=1,831) 

35.3% 

+/- 4.8% 

(n=4,272) 

39.5% 

+/- 4.9% 

(n=1,072) 

41.6% 

+/- 4.9% 

(n=126) 

36.2% 

+/- 4.8% 

(n=5,471) 

Greater than 

1.5mbps 

7.7% 

+/- 2.6% 

(n=205) 

3.4% 

+/- 1.8% 

(n=157) 

1.3% 

+/- 1.1% 

(n=99) 

2.9% 

+/- 1.7% 

(n=346) 

3.4% 

+/- 1.8% 

(n=92) 

7.5% 

+/- 2.6% 

(n=123) 

3.0% 

+/- 1.7% 

(n=461) 

Bertot & McClure 85 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 8. Public Library Outlet Funding for Internet-Related Technology and 

Infrastructure by Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% 

More 

than 

40% Overall 

Funding 

Source 

Operating funds 

from local 

government/tax 

districts

96.2% 

+/- 1.9% 

(n=2,579) 

90.1% 

+/- 2.9% 

(n=4,176) 

83.3% 

+/- 3.7% 

(n=6,507) 

87.2% 

+/- 3.3% 

(n=10,560) 

91.1% 

+/- 2.8% 

(n=2,472) 

75.5% 

+/- 4.3% 

(n=229) 

87.7% 

+/- 3.3% 

(n=13,262) 

Operating funds 

from state library

19.7% 

+/- 3.9% 

(n=529) 

19.6% 

+/- 3.9% 

(n=908) 

27.2% 

+/- 4.4% 

(n=2,126) 

21.1% 

+/- 4.1% 

(n=2,559) 

34.8% 

+/- 4.8% 

(n=943) 

20.1% 

+/- 4.0% 

(n=61) 

23.6% 

+/- 4.2% 

(n=3,563) 

State grants

33.6% 

+/- 4.7% 

(n=899) 

27.2% 

+/- 4.4% 

(n=1,261) 

29.6% 

+/- 4.6% 

(n=2,312) 

29.1% 

+/- 4.5% 

(n=3,526) 

30.5% 

+/- 4.6% 

(n=826) 

39.6% 

+/- 4.9% 

(n=120) 

29.6% 

+/- 4.6% 

(n=4,472) 

Federal 

government funds 

(LSTA, TIAPP)

23.3% 

+/- 4.2% 

(n=626) 

12.6% 

+/- 3.3% 

(n=583) 

19.9% 

+/- 4.0% 

(n=1,558) 

17.8% 

+/- 3.8% 

(n=2,153) 

19.8% 

+/- 4.0% 

(n=537) 

25.3% 

+/- 4.4% 

(n=77) 

18.3% 

+/-3.9% 

(n=2,767) 

Education Rate 

(E-rate) discount

58.9% 

+/- 4.9% 

(n=1,580) 

44.1% 

+/- 5.0% 

(n=2,043) 

48.2% 

+/- 5.0% 

(n=3,769) 

45.4% 

+/- 5.0% 

(n=5,496) 

62.1% 

+/- 4.9% 

(n=1,684) 

69.6% 

+/- 4.6% 

(n=211) 

48.9% 

+/- 5.0% 

(n=7,392) 

Library 

foundation funds

20.5% 

+/- 4.0% 

(n=549) 

2.8% 

+/- 1.6% 

(n=128) 

7.4% 

+/- 2.6% 

(n=577) 

7.1% 

+/- 2.6% 

(n=857) 

13.1% 

+/- 3.4% 

(n=355) 

14.0% 

+/- 3.5% 

(n=32) 

8.3% 

+/- 2.8% 

(n=1,255) 

Special grant 

funding (e.g., 

Gates Library 

Program)

45.5% 

+/- 5.0% 

(n=1,220) 

25.9% 

+/- 4.3% 

(n=1,119) 

29.8% 

+/- 4.6% 

(n=2,331) 

26.1% 

+/- 4.4% 

(n=3,162) 

53.1% 

+/- 5.0% 

(n=1,440) 

48.4% 

+/- 5.0% 

(n=147) 

31.4% 

+/- 4.6% 

(n=4,749) 

Gifts, 

contributions, 

donations

17.9% 

+/- 3.8% 

(n=480) 

21.7% 

+/- 4.1% 

(n=1,006) 

30.0% 

+/- 4.6% 

(n=2,342) 

26.9% 

+/- 4.4% 

(n=3,259) 

18.2% 

+/- 3.9% 

(n=494) 

24.7% 

+/- 4.3% 

(n=75) 

25.3% 

+/- 4.3% 

(n=3,828) 

Local fund raisers

4.7% 

+/- 2.1% 

(n=126) 

7.5% 

2.3% 

(n=347) 

9.2% 

+/- 2.9% 

(n=719) 

8.5% 

+/- 2.8% 

(n=1,028) 

4.3% 

+/- 2.0% 

(n=118) 

15.1% 

+/- 3.6% 

(n=46) 

7.9% 

+/- 2.7% 

(n=1,192) 

Other income 

sources

5.8% 

+/- 2.3% 

(n=155) 

9.9% 

+/- 3.0% 

(n=460) 

8.8% 

+/- 2.8% 

(n=691) 

9.7% 

+/- 2.9% 

(n=1,172) 

3.6% 

+/- 1.9% 

(n=98) 

11.8% 

+/- 3.2% 

(n=36) 

8.6% 

+/- 2.8% 

(n=1,306) 

Percentages will not total to 100.0% as respondents could select multiple funding options. 

Bertot & McClure 86 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 9. Public Library Outlet Public Access Database Subscription Services by 

Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% 

More 

than 

40% Overall 

Subscription 

Database 

Services 

On all 

workstations

77.3% 

+/- 4.1% 

(n=2,071) 

63.9% 

+/- 4.8% 

(n=2,960) 

52.6% 

+/- 5.0% 

(n=4,108) 

59.1% 

+/- 4.9% 

(n=7,161) 

66.6% 

+/- 4.7% 

(n=1,807) 

56.2% 

+/- 5.0% 

(n=171) 

60.4% 

+/- 4.9% 

(n=9,139) 

On some 

workstations

19.8% 

+/- 4.0% 

(n=532) 

25.2% 

+/- 4.3% 

(n=1,168) 

18.2% 

+/- 3.8% 

(n=1,426) 

20.7% 

+/- 4.1% 

(n=2,511) 

20.1% 

+/- 4.0% 

(n=545) 

22.8% 

+/- 4.2% 

(n=69) 

20.7% 

+/- 4.0% 

(n=3,125) 

On no 

workstations

2.9% 

+/- 1.7% 

(n=77) 

10.9% 

+/- 3.1% 

(n=508) 

29.0% 

+/- 4.5% 

(n=2,265) 

20.0% 

+/- 4.0% 

(n=2,425) 

13.3% 

+/- 3.4% 

(n=360) 

21.0% 

+/- 4.1% 

(n=64) 

18.8% 

+/- 3.9% 

(n=2,849) 

Subscription 

services offered 

remotely to offsite users

59.6% 

+/- 4.9% 

(n=1,598) 

43.9% 

+/- 5.0% 

(n=2,036) 

23.4% 

+/- 4.2% 

(n=1,831) 

35.6% 

+/- 4.8% 

(n=4,314) 

39.0% 

+/- 4.9% 

(n=1,059) 

30.6% 

+/- 4.6% 

(n=93) 

36.1% 

+/-4.8% 

(n=5,465) 

Bertot & McClure 87 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 10. Public Library Outlet Public Access Provision of Special Hardware/Software 

for Individuals with Disabilities by Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% 

More 

than 

40% Overall 

Hardware/ 

Software for 

Persons with 

Disabilities 

On all 

workstations

8.7% 

+/- 2.8% 

(n=233) 

7.0% 

+/- 2.6% 

(n=325) 

9.3% 

+/- 2.9% 

(n=725) 

5.8% 

+/- 2.3% 

(n=706) 

20.4% 

+/- 4.0% 

(n=554) 

7.5% 

+/- 2.6% 

(n=23) 

8.5% 

+/- 2.8% 

(n=1,284) 

On some 

workstations

26.6% 

+/- 4.4% 

(n=713) 

23.9% 

+/- 4.3% 

(n=1,109) 

6.1% 

+/- 3.7% 

(n=1,256) 

18.5% 

+/- 3.9% 

(n=2,242) 

29.6% 

+/- 4.6% 

(n=804) 

10.5% 

+/- 3.1% 

(n=32) 

20.3% 

+/- 4.0% 

(n=3,078) 

On no 

workstations

64.7% 

+/- 4.8% 

(n=1,734) 

69.1% 

+/- 4.6% 

(n=3,201) 

74.6% 

+/- 4.4% 

(n=5,832) 

75.7% 

+/- 4.3% 

(n=9,163) 

49.9% 

+/- 5.0% 

(n=1,355) 

82.0% 

+/- 3.9% 

(n=249) 

71.2% 

+/- 4.5% 

(n=10,767) 

Bertot & McClure 88 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 11. Public Library Outlet Public Access Internet Blocking of Internet Services 

by Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% 

More 

than 

40% Overall 

Blocking of 

Internet Services 

On all 

workstations

10.7% 

+/- 3.1% 

(n=287) 

8.4% 

+/- 2.8% 

(n=390) 

9.9% 

+/- 3.0% 

(n=770) 

9.5% 

+/- 2.9% 

(n=1,154) 

9.9% 

+/- 3.0% 

(n=270) 

7.5% 

+/- 2.6% 

(n=23) 

9.6% 

+/- 2.9% 

(n=1,446) 

On some 

workstations

18.5% 

+/- 3.9% 

(n=495) 

21.8% 

+/- 4.1% 

(n=1,012) 

9.7% 

+/- 3.0% 

(n=758) 

14.6% 

+/- 3.5% 

(n=1,767) 

16.7% 

+/- 3.7% 

(n=453) 

14.5% 

+/- 3.5% 

(n=44) 

15.0% 

+/- 3.6% 

(n=2,265) 

On no 

workstations

70.8% 

+/- 4.4% 

(n=1,898) 

69.8% 

+/- 4.6% 

(n=3,234) 

80.4% 

+/- 4.0% 

(n=6,285) 

75.9% 

+/- 4.3% 

(n=9,191) 

73.3% 

+/- 4.4% 

(n=1,990) 

77.9% 

+/- 4.2% 

(n=237) 

75.5% 

+/- 4.3% 

(n=11,417) 

Bertot & McClure 89 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 12. Public Library Outlet Acceptable Use Policies for Public Access Internet 

Services by Metropolitan Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% 

More 

than 

40% Overall 

Acceptable use 

policy in place 

for public access 

Internet Services

96.8% 

+/- 1.8% 

(n=2,595) 

97.1% 

+/- 1.7% 

(n=4,504) 

94.0% 

+/- 2.4% 

(n=7,345) 

94.7% 

+/- 2.2% 

(n=11,469) 

99.4% 

+/- 0.7% 

(n=2,695) 

91.7% 

+/- 2.8% 

(n=279) 

95.5% 

+/- 2.1% 

(n=14,443) 

Acceptable use 

policy 

differentiates 

between users 

(e.g., children, 

adults)

31.4% 

+/- 4.6% 

(n=841) 

41.1% 

+/- 4.9% 

(n=1,906) 

49.2% 

+/- 5.0% 

(n=3,842) 

43.2% 

+/- 5.0% 

(n=5,234) 

43.9% 

+/- 5.0% 

(n=1,191) 

53.8% 

+/- 5.0% 

(n=163) 

43.6% 

+/- 5.0% 

(n=6,589) 

Bertot & McClure 90 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Figure 13. Public Library Outlet Internet Training Services Provision by Metropolitan 

Status and Poverty. 

Metropolitan Status Poverty Level 

Base=15,128 Urban Suburban Rural Less than 

20% 20%-40% More 

than 40% Overall 

Library outlet 

offers Internet 

Training 

Services 

75.9% 

+/- 4.3% 

(n=2,033) 

69.6% 

+/- 4.6% 

(n=3,228) 

53.4% 

+/- 5.0% 

(n=4,169) 

62.4% 

+/- 4.8% 

(n=7,556) 

60.9% 

+/- 4.9% 

(n=1,651) 

73.1% 

+/- 4.4% 

(n=222) 

62.3% 

+/- 4.8% 

(n=9,430) 

Training 

Audiences 

Library Staff 

47.9% 

+/- 5.0% 

(n=1,283) 

50.1% 

+/- 5.0% 

(n=2,321) 

39.7% 

+/- 4.9% 

(n=3,099) 

44.4% 

+/- 5.0% 

(n=5,379) 

43.7% 

+/- 5.0% 

(n=1,184) 

46.2% 

+/- 5.0% 

(n=140) 

44.3% 

+/- 4.9% 

(n=6,704) 

Local Business 

13.4% 

+/- 3.4% 

(n=359) 

9.6% 

+/- 3.0% 

(n=447) 

10.9% 

+/- 3.1% 

(n=851) 

10.3% 

+/- 3.0% 

(n=1,250) 

13.8% 

+/- 3.4% 

(n=373) 

11.0% 

+/- 3.1% 

(n=34) 

11.0% 

+/- 3.1% 

(n=1,657) 

Adult Public 

68.9% 

+/- 4.6% 

(n=1,846) 

62.5% 

+/- 4.8% 

(n=2,895) 

46.0% 

+/- 5.0% 

(n=3,593) 

55.1% 

+/- 5.0% 

(n=6,676) 

54.2% 

+/- 5.0% 

(n=1,470) 

61.5% 

+/- 4.9% 

(n=187) 

55.1% 

+/- 5.0% 

(n=8,334) 

Local 

Government 

11.3% 

+/- 3.2% 

(n=302) 

8.6% 

+/- 2.8% 

(n=399) 

8.6% 

+/- 2.8% 

(n=671) 

9.2% 

+/- 2.9% 

(n=1,119) 

8.9% 

+/- 2.9% 

(n=242) 

3.5% 

+/- 1.8% 

(n=11) 

9.1% 

+/- 2.9% 

(n=1,372) 

Children/ 

Youth Public 

59.4% 

+/- 5.0% 

(n=1,592) 

46.5% 

+/- 5.0% 

(n=2,158) 

36.6% 

+/- 4.8% 

(n=2,859) 

42.7% 

+/- 5.0% 

(n=5,175) 

45.6% 

+/- 5.0% 

(n=1,238) 

64.3% 

+/- 4.8% 

(n=195) 

43.7% 

+/- 5.0% 

(n=6,608) 

Other Targeted 

Populations 

21.9% 

+/- 4.1% 

(n=586) 

12.9% 

+/- 3.4% 

(n=597) 

12.5% 

+/- 3.3% 

(n=975) 

13.6% 

+/- 3.4% 

(n=1,648) 

16.2% 

+/- 3.7% 

(n=439) 

23.6% 

+/- 4.3% 

(n=72) 

14.3% 

+/- 3.5% 

(n=2,158) 

Bertot & McClure 91 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

APPENDIX A.2 – 2000 STUDY SURVEY FORM 

(Note: the original survey was one page, front and back. The front contained the survey 

questions, the back contact information and a glossary of terms)

Bertot & McClure 92 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

National Survey of Public Library Outlet Internet Connectivity 

Instructions: The U.S. National Commission on Libraries and Information Science is surveying a national sample of public 

libraries regarding their connectivity to the Internet. Please respond to the questions that follow for the outlet or library listed 

on the backside of this survey form. There is a glossary of terms on the back of the survey form to assist you complete the 

survey. Thank you for your participation! PLEASE RETURN THE QUESTIONNAIRE BY Friday, June 16, 2000.

1. Is this library outlet currently connected to the Internet in any way? (FILL IN ONE z ONLY) 

{ No (please return the survey. THANK YOU!) 

{ Yes, staff access only (please return the survey. THANK YOU!) 

{ Yes, public and staff access (please go to question 2) 

2. Please indicate the number of GRAPHICAL public access Internet workstations provided by this library 

outlet: 

 (FILL IN ONE z ONLY) 

{ 1 { 2 { 3 { 4 { 5 { 6 { 7 { 8 { 9 { 10 

{ 11 { 12 { 13 { 14 { 15 { 16 { 17 { 18 { 19 or more (please 

indicate):_________ 

3. Please indicate the maximum speed of this library outlet’s public access Internet service connection: 

 (FILL IN ONE z ONLY) 

{ Less than 56kbps { 56kbps direct connect { More than 128kbps but less than 1.5 mbps 

{ 56kbps dial-up { 64kbps-128kbps { 1.5 mbps (T1) { More than 1.5 mbps 

 

4. Please indicate this library outlet’s sources of funding for Internet-related technology and infrastructure (e.g., 

space, wiring, telecommunications services, workstations, servers, furniture, etc.): (FILL IN ALL z THAT 

APPLY) 

{ Operating funds from local government/tax districts { Library foundation funds 

{ Operating funds from state library { Special grant funding (e.g., Gates Library 

Program)

{ State grants { Gifts, contributions, donations 

{ Federal government funds (LSTA, TIAPP) { Local fund raisers

{ Education Rate (E-rate) discount { Other income sources 

 

5. Please complete the following questions about this library outlet’s public access Internet services: 

 (FILL IN ALL z THAT APPLY) 

On all 

workstations 

On some 

workstations 

On no 

workstations 

Service offered remotely 

to off-site users 

This library outlet offers public access to subscription 

databases (e.g., EbscoHost, InfoTrac, SIRS, etc.) { { { {

This library outlet provides special hardware/software 

to assist access for individuals with disabilities (e.g., 

large print display, oversized keyboards, voice 

conversion software) 

{ { {

This library outlet uses technology measures (e.g., 

filtering software) to block users from accessing 

various Internet services (e.g., e-mail, chat) 

{ { {

6. Does this library outlet have an acceptable use policy for public Internet access in place? (FILL IN ALL z

THAT APPLY) 

{ Yes { No If yes, does the policy differentiate between users (e.g., children, adults)? { Yes { No 

Bertot & McClure 93 December 2001 
Policy Issues and Strategies Affecting Public Libraries in the National Networked Environment 

Bertot & McClure 94 December 2001 

7. Does this library outlet offer Internet training services: (FILL IN ONE z ONLY): 

 { Yes { No (If no, please return the survey. THANK YOU!) 

 If yes, to whom does this outlet offer Internet training services? (FILL IN ALL z THAT APPLY) 

 { Library staff { Adult public { Children/youth public

 { Local business { Local government { Other targeted populations 

Survey glossary and contact information are on the other side 

For questions concerning the survey, please contact: 

John Bertot <jcbertot@csc.albany.edu> 

Associate Professor 

School of Information Science and Policy 

University at Albany, State University of New York 

c/o The National Commission on Libraries and Information Science 

1110 Vermont Avenue, N.W., Suite 820 

Washington, DC 20005-3522 

(518) 442-5125 phone 

(877) 368-7142 fax 

GLOSSARY OF SURVEY ABBREVIATIONS/KEY TERMS 

Outlet A library facility. In the case of some public libraries, there is only 

one facility or outlet. Other public libraries have several outlets or 

facilities sometimes referred to as branches. 

Graphical Workstation A workstation and/or computer that is capable of displaying 

graphical images, pictorial representations, or other multi-media 

formats. 

Public Access Internet 

Workstations 

Those library outlet graphical workstations that provide public 

access to the Internet, including those that provide access to a 

limited set of Internet-based services such as online databases. 

KBPS Kilobits per second. 

MBPS Megabits per second. 

Dial-up Internet Connection Internet connection using a modem and a phone line. 

Direct Internet Connection Internet connection using a dedicated connection such as a leased 

line (e.g., T1, 56kbps, ISDN, DSL) or cable. 

Service Offered Remotely to OffSite Users 

Internet-based services such as online databases (e.g., EbscoHost) 

the library offers that users can access via the Internet from home, 

office, school, or other non-library locations. 

Acceptable Use Public Access 

Policy

A formal, written statement that governs the use of public access 

Internet workstations by the users. 

Internet Training Services Formal training sessions with developed curriculum modules that 

cover specific topics (e.g., web browser basics, Internet searching, 

basic computing skills).