This report and its appendices can be downloaded at 

http://tascha.washington.edu/usimpact.

Published June 2011 in the United States of America by the 

Institute of Museum and Library Services (IMLS). 

IMLS will provide visually impaired or learning-disabled individuals 

with an audio recording of this publication upon request. 

Contact 

Institute of Museum and Library Services

1800 M Street NW, 9th Floor

Washington, DC 20036

202-653-IMLS (4657)

www.imls.gov

Suggested Citation

Becker, Samantha, Michael D. Crandall, Karen E. Fisher, Rebecca 

Blakewood, Bo Kinney, and Cadi Russell-Sauvé. (2011). Opportunity for 

All: How Library Policies and Practices Impact Public Internet Access

(IMLS-2011-RES-01). Institute of Museum and Library Services. 

Washington, D.C.

Library of Congress Cataloging-in-Publication Data

Not available at the time of printing.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 2

Contents

Foreword..........................................................................................................................................3

Executive Summary..........................................................................................................................5

1 Introduction ..................................................................................................................................9

2 Coalitions and Strategies for Digital Inclusion ............................................................................12

2.1 A Cycle of Demand for Public Internet Access in Libraries.........................................12

2.2 Factors Affecting the Quality of Public Access Services in Public Libraries................13

2.3 Acceptable Levels of Access: How Much is Enough?..................................................16

2.4 Conclusion .............................................................................................................17

3 Public Access Services in Four Communities ..............................................................................19

3.1 Case Study Visits.........................................................................................................19

3.2 The Enoch Pratt Free Library ......................................................................................20

3.3 Fayetteville Public Library...........................................................................................39

3.4 The Oakland Public Library .........................................................................................58

3.5 Marshalltown Public Library .......................................................................................72

4 A Look at the Factors that Affect the Character of Public Access Service ..................................85

4.1 External Demands and Public Access Service .............................................................85

4.2 Political Relationships.................................................................................................89

4.3 Relationships with Supporters....................................................................................90

4.4 Organizational Capacity and Public Access Service ....................................................95

4.5 Library Resources and Services...................................................................................99

4.6 Conclusion ...........................................................................................................105

5 Recommendations....................................................................................................................106

5.1 Within the Library .....................................................................................................106

5.2 Within the Community .............................................................................................109

5.3 Across the Nation......................................................................................................111

5.4 Future Research........................................................................................................112

5.5 Conclusion ...........................................................................................................113

References ...................................................................................................................................115
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 3

Foreword 

Opportunity for All: How Library Policies and Practices Impact Public Internet 

Access is a companion volume to the first report in the U.S. IMPACT Study, 

Opportunity for All: How the American Public Benefits from Internet Access at 

U.S. Libraries. This second report from the study looks at the libraries providing 

public access technology to users across the country. Through nearly 300 

interviews with staff, users, funding agencies, community-based organizations, 

and support organizations in four case study sites (Enoch Pratt Free Library in 

Baltimore, Maryland; Fayetteville Public Library in Fayetteville, Arkansas; 

Oakland Public Library in Oakland, California; and Marshalltown Public Library in 

Marshalltown, Iowa), along with data derived from the Institute of Museum and 

Library Services annual Public Library Survey and the U.S. IMPACT Study surveys, 

this report explores the factors involved in providing and supporting public 

access technology services through public libraries.

The four libraries used in the case studies reflect the service environments 

encountered by the vast majority of library patrons and provide a solid 

foundation for the exploration of policy tradeoffs and their consequences, as 

well as opportunities for improvements in the efficiency and effectiveness of 

public access technology and the services associated with that technology. The 

goal of this report is for libraries to recognize themselves in the characteristics 

of the case studies and to be able to identify policy implications related to their 

operations from the discussions in the report.

As noted in the first report from this study, this project has been the result of 

many people’s labor and support over the three years of field study and 

analysis. In addition to the many people and organizations mentioned in the 

first report who provided expert advice and significant contributions to the 

research, we would also like to acknowledge the continuing contribution of 

University of Washington students to this work, especially Ahsan Ali, Joel 

Turner, Cortney Leach, Paul Simons, and Ke (Claire) Ding, who joined the 

research during the analysis and writing of this second report.

We would like to acknowledge once more the generosity of the Institute of 

Museum and Library Services, the Bill & Melinda Gates Foundation, and the 

libraries and communities that provided their time and support in allowing us to 

gather the information in the field that made this second report possible: the 

Enoch Pratt Free Library, Fayetteville Public Library, Oakland Public Library, and 

Marshalltown Public Library. The leaders and key personnel who donated their 

insights and provided access to key community members were instrumental in 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 4

gaining the rich materials that were mined to produce this analysis. We would 

especially like to thank these library leaders: Carla Hayden, Ann Smith, Pat 

Costello, Louise Schaper, Shawna Thorup, Carmen Martinez, Diane Satchwell, 

Carole Winkleblack, and Brian Soneda.

We hope that this report and its companion will be useful for libraries as an aid 

in informing the public of the value of public computing services, and that 

funders and policymakers will find the results of interest as they consider future 

efforts in this area. Public libraries have become an essential component to 

access to the Internet and computers in local communities, and we believe the 

results of our research show that the impact of these services is well worth the 

investment of public dollars and resources to make this possible. 

Michael D. Crandall, MLIS

Co-principal investigator

Karen E. Fisher, PhD

Co-principal investigator

Samantha Becker, MLIS, MPA

Research Manager
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 5

Executive Summary

Opportunity for All: How Library Policies and Practices Impact Public Internet 

Access is the second report from the U.S. IMPACT Study research into the users 

and uses of public access technology in public libraries. It highlights the ways in 

which public libraries can maximize this critical contribution to their 

communities at the same time as it addresses related policy priorities at the 

national level. 

The U.S. IMPACT Study team visited four public libraries representing a range of 

community characteristics and operational environments. These sites were 

selected to account for the types of library environments most patrons 

encounter in U.S. public libraries as well as the range of issues and concerns 

faced by library administrators, librarians, and other staff in providing public 

technology. 

Interviews with users, library staff, and community stakeholders, including 

people from community-based organizations (CBOs), government agencies, 

schools, and library funders, provide the foundation to discuss the wide range of 

internal and external factors that affect the efficiency and effectiveness of 

public access technology services. The following recommendations for good 

practice were drawn from the interviews with a wide range of local 

stakeholders.

Integrate Technology Services with Other 

Library Services 

Public access technology and technology help and training are integral aspects

of the value libraries provide communities. The allocation of space and 

personnel resources for public access computing in particular affects library 

patrons, as well as library staff, administration, and other community members. 

The policy a library decides to adopt to govern computer time limits, for 

instance, not only affects the tasks a patron can accomplish on the computer, 

but also affects staff interactions with patrons.

Activity-Based Budgeting can Help Account 

for the Cost of Public Access Services

Activity-based budgeting highlights the costs of providing certain library 

functions and is helpful for planning and allocating costs. Showing the 

technology costs and staff time as a functional area in library budgets will help 

reflect the full cost of library computer services and make it easier to tie the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 6

expenditures to strategic planning goals. Libraries are often not reporting in a 

visible way the costs of providing computer and Internet access to patrons, 

which include not only the hardware, software, maintenance and replacement 

costs, and upgrade costs for the technology itself, but also staff time on 

computer operations and time answering computer-related questions. 

Understanding the real costs of technology in the library is a first step toward 

demonstrating to funding agencies the overall investment needed for 

computers and related technology, training, and services in libraries. It will also

help in identifying efficient models of public access technology services. 

Provide Ongoing Technical Training for 

Library Staff

The role of librarians in enabling public access technology services requires 

constant training and updating of their technical skills. Librarians play an 

important role in “mediating between users and technology” (O’Gorman and

Trott 2009, p. 328). The need for increased technology training was expressed 

by many of the staff interviewed for the case studies and was reflected in the 

training programs instituted by the libraries themselves. The case study libraries 

dealt with staff technical training in very different ways, ranging from online 

training modules in Fayetteville and Baltimore to the do-it-yourself approach in 

Oakland (a result of their severe budget cuts). Without the commitment of

leadership and the integration into evaluation mechanisms for staff 

performance, training often takes a back seat to other more pressing duties. 

Making skills development and technical training part of the expected daily 

activities of staff, and including these elements in the costs of offering public 

access technology services, is critical to the overall success of public access 

technology programs and to the success of patrons who depend on the 

expertise of library staff when utilizing library equipment.

Formalize Relationships with CommunityBased Organizations 

This study identified a wide range of interdependencies between public access 

computing services through local libraries and the services provided by local 

governments and CBOs. The study found that public and private sector agencies 

send clients and customers to the public library to use the computers for a wide 

variety of needs. In some cases, they also send staff to use the library computers 

and be trained. While many libraries have direct program partnerships, it is not 

uncommon for agencies that are not in explicit partnerships to refer clients to 

the public library for Internet and computing services without the awareness of 

library staff. Libraries can be more active in accounting for and addressing the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 7

additional pressures these service referrals bring in two ways. First, they can 

work with other groups to expand public Internet access at other venues.

Second, they can work to uncover and formalize relationships with agreements 

that may include a more explicit accounting of the project resources needed to 

execute the work and, in some cases, the contractual obligation of financial 

support.

Establish a Set of Common Indicators for 

Public Library Technology Services

Use of valid and reliable indicators as a basis of a performance evaluation and 

measurement system can improve performance and stimulate reinvestment in 

public access technology resources and services. Benchmarks can be used both 

locally and nationally to influence policymakers and funders by demonstrating 

the extent to which these resources are used and the important outcomes that 

result. They also help libraries better manage their resources and set 

appropriate motivating goals for librarians and other staff. 

Use Data and Stories to Communicate the 

Value of Public Access Technology 

Communicating the value, both in terms of quality and quantity, that library 

computer access provides to the community is critical for expanding the library’s 

base of support and increasing funding. Interviews with key stakeholders in 

funding and support organizations in the case studies showed that both data 

and stories were necessary for the message to engage their attention. Focusing 

on ways to package and deliver key messages about public access computing 

services to the right people and organizations in the community is an important 

activity for all libraries, no matter how they are funded. The combination of 

solid, outcome-based measures of public access technology results with stories 

from users who have taken advantage of the services and can articulate why it is 

important to the community is essential for building and maintaining the 

support of funders and influential backers in the community. Stories need to be 

specific and personal. 

Leverage Library Technology Resources to 

Enhance Broadband Adoption and Support

A unique opportunity for libraries has opened up with the recent publication of 

the Federal Communications Commission’s (FCC’s) Connecting America: The 

National Broadband Plan (U.S. Department of Commerce 2010). In that report, 

the FCC discusses the specific and important role of public libraries and other 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 8

CBOs in meeting the needs of the American public for access to the Internet. 

The report reinforces many of the points made in this study, particularly the 

critical role library staff play in providing help for users new to the Internet and 

the limitations imposed by inadequate space and equipment to meet those 

users’ needs.

Conclusion

Opportunity for All: How Library Policies and Practices Impact Public Internet 

Access provides useful lessons for libraries in communities across the country 

from an analysis of the findings from the four case studies and the surveys that 

formed the basis of the U.S. IMPACT Study. It has placed those findings in a 

framework that allows libraries to calibrate their approaches to the complex 

problems involved in providing public access computing services to their 

communities, and to make the difficult choices between options available for 

achieving their missions with often inadequate resources.

The central importance of defining a clear mission focused on the needs and 

characteristics of the local community is the basis for many of the 

recommendations that have come out of this analysis. Those libraries that have

made the effort to understand the local landscape and take the steps necessary 

to meet the changing needs of their stakeholders and users have been able to 

integrate public access computing services into their offerings in different ways. 

The importance of this reflection of the local community is perhaps the most 

salient conclusion to be drawn from this analysis. Although the problems and 

opportunities facing libraries across the country as they incorporate access to 

the Internet and computers into their offerings are similar in nature, their 

solutions may be radically different if they are doing their job well. 

As shown in both this report and its companion, the American people rely on 

the public libraries of the country for access to computers and the Internet for 

many reasons, and libraries everywhere have responded in different ways to 

these demands. This report has attempted to illuminate some of the key factors 

that libraries should take into consideration as they marshal their resources to 

meet the increasing demand for their technology services, so they can better 

satisfy the needs of their users and the demands of their stakeholders.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 9

Introduction

The Internet has had a profound impact on the scope of public library service, as 

both libraries and the public now see computer and Internet access as central to 

the mission of the public library. This shift has required libraries and librarians to 

rethink their traditional service models and in some cases to rearticulate their 

missions to accommodate the role of technology and to expand services. Today, 

virtually every public library in the United States provides public access Internet

computers. Change comes with a cost—often, shifting resources away from 

traditional services.

Opportunity for All: How Library Policies and Practices Impact Public Internet 

Access is the second report from the U.S. IMPACT Study research into the users 

and uses of public access technology in public libraries and how these services 

impact individuals, families, and communities. The first report, Opportunity for 

All: How the American Public Benefits from Internet Access at U.S. Libraries,

showed how individuals use computers and the Internet in public libraries to 

accomplish important tasks for themselves and others. That report documented 

the extent to which the public depends on public library technology to 

participate in digital culture and how public Internet access helps members of 

the public accomplish goals that improve their lives. 

Opportunity for All: How the American Public Benefits from Internet Access at 

U.S. Libraries reported findings from a national telephone and web survey that

showed that 32 percent of the U.S. population aged 14 or over have used a 

public library computer or wireless network to access the Internet in the past 

year. As a result of public library technology access:

• Thirty two and a half million people (42 percent of public access 

technology users) pursued educational activities, with youth being 

major users of library computers for this purpose. Among educational 

users, 37 percent did homework, 24 percent took online classes, and 37 

percent looked for information about college or vocational programs. 

• Forty percent (30 million people) of public access technology users used 

library computers and Internet access for employment or career 

purposes. Among these users, 76 percent used library computers to 

search for jobs, 46 percent worked on their resumes, and 23 percent 

received training related to their jobs or professions. An estimated 3.7 

million people were actually hired for positions for which they applied 

using library computers or wireless networks.

1
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 10

• Twenty-eight million people (37 percent of public access technology 

users) sought information or carried out tasks related to health and 

wellness. Over 80 percent of people who used public Internet access in 

libraries for health and wellness needs looked for information about 

illnesses or other medical conditions, 60 percent learned about diet or 

nutrition, and 48 percent found out about exercise or fitness. Among 

those looking for dietary or exercise information, more than 80 percent 

made changes to their diets or fitness regimes. 

• Significant numbers of library patrons also use public access technology 

to start or manage businesses, maintain social connections, access 

government and legal services, manage household finances, and 

participate in community life.

From nearly 300 interviews with patrons, library staff, and community 

stakeholders in four U.S. cities and thousands of comments left in the web 

survey, Opportunity for All: How the American Public Benefits from Internet

Access at U.S. Libraries also provided the context of how free access to 

computers and the Internet benefits library patrons and their families. The 

stories of users and their accomplishments using library technology revealed 

both the need for library technology in American communities, as well as the 

importance of these resources and services to their users. 

Providing free access to computers and the Internet in public libraries is a major 

investment of public resources. But it is one, as shown in Opportunity for All: 

How the American Public Benefits from Internet Access at U.S. Libraries, that 

creates significant value for the American public. Opportunity for All: How 

Library Policies and Practices Impact Public Internet Access picks up where 

Opportunity for All: How the American Public Benefits from Internet Access at 

U.S. Libraries left off and delves deeper into the benefits of public access 

technology in public libraries for community-, economic-, social-, and nationallevel policy goals. It also documents the tradeoffs libraries make in providing 

these services and how they can evaluate and communicate the value of public 

access technology to stakeholders and funders. The specific goals of this report 

are threefold:

1. To discuss the service and resource dimensions of providing public 

access technology in public libraries and to explore how differences in 

the library’s community, funding, service orientation, and library 

policies may affect the quality of public access services.. 

2. To demonstrate through the examples of four case studies how these 

policy and resource allocation decisions impact the outcomes library 

patrons are able to achieve using public access technology and how 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 11

relationships with external stakeholders affect the library’s ability to 

provide these services 

3. To provide recommendations for dealing with internal and external 

policy issues depending on the library’s community and system size.

Chapter 2 provides background information on the ways in which public 

libraries are defined as an appropriate place—and in many communities the 

only place—for public access to the Internet and the challenges of determining 

acceptable levels of access within resource constraints. Chapter 3 examines the 

internal and external policy environments through the interviews conducted 

with staff, policymakers, community-based organizations (CBOs), and others in 

the four case study library communities. Chapter 4 takes a deeper look at how a 

range of internal and external factors in the local environment affect the 

demand for library services and the different policy options available to libraries 

to response to these conditions. Finally, Chapter 5 provides recommendations 

to all library types for improving public access services, as well as 

recommendations for national policy action and additional research that could 

help improve public access technology services in libraries .
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 12

Strategies for Digital Inclusion

The digital divide debate was an early recognition that rapid advances in 

Internet and communication technologies can result in disparate and unequal 

outcomes. Early on in this debate, public libraries were identified as vital 

partners in addressing disparities in access to computer and Internet

technologies (U.S. Department of Commerce 1995). Over the last 15 years, 

public computing services in libraries have blossomed into a core service area, 

with virtually every library in the country adopting the service as a core function 

of their traditional role of providing information. 

This chapter discusses the growth of this unique service and the role public 

libraries play as principal community access points for computing and the 

Internet services. It concludes by examining the challenge of determining 

acceptable levels of access and the resource constraints that libraries face in 

sustaining current service delivery levels.

2.1 A Cycle of Demand for Public Internet

Access in Libraries

The growing necessity of computing to participate in activities of everyday life 

coupled with the visibility of public libraries as community anchor institutions 

and suppliers of information combined to create high demand for library 

computing services. Increased demand for technology resources spurred growth

and investment in computer technology and physical infrastructures necessary 

to expand access for patrons. As a result of this cycle of demand, the adoption 

of the Internet by libraries has been rapid, especially compared with other 

technologies: “In contrast [to the Internet], it took nearly 40 years after its 

commercial development before a majority of libraries adopted the typewriter” 

(Dowlin 1999, p. 22).

State and federal funding initiatives bolstered by major donations from private 

foundations played an important role in libraries becoming key providers of

public access technology. The funding initiatives, such as discounted access fees 

through the Federal Communications Commission’s (FCC’s) “E-rate” program, 

technology support through the Library Services and Technology Act (LSTA) 

administered by the Institute of Museum and Library Services (IMLS), and the 

support of private donors such as the Bill & Melinda Gates Foundation,

leveraged state and local resources. These efforts help propel libraries into the 

forefront of public access services while other providers such as community 

technology centers, community-based nonprofit organizations, and other 

2
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 13

private access models, such as computer kiosks, were just getting off the 

ground. 

Improved services at the local level may have had the effect of further 

increasing demand as patrons became more familiar with digital resources

offered by public libraries, including online tutorials, databases, e-books, and 

other web-based resources, that are not always available at other public access

centers. These resources are often supplemented by training programs and oneon-one support to help patrons identify education resources, access health 

information, conduct job searches, and other important tasks. Patron demand 

related to job seeking during the current recession, in particular, seems to have 

created the most recent upward pressure on demand for public access in 

libraries (Davis 2006).

2.2 Factors Affecting the Quality of Public 

Access Services in Public Libraries

The acceptance of libraries as centers for public technology access and the 

growth of these services in the early years were strongly influenced by a 

confluence of factors including local demand and investment, national policy

concerns, and state- and national-level investments. While there has been 

considerable investment in these services in public libraries across the country, 

there are a number of factors that influence the quality of services at the local 

level.

Funding

Although library connectivity has grown over the last 10 years, libraries are still

challenged to keep pace with demand for public Internet services. A 1998 

evaluation of the “OnLine at PA Libraries” grant program found that 90 percent 

of the state’s library directors reported that they were unable to fund Internet 

workstations (Oder 1998). By 2003, 25 percent of the libraries that had received 

Bill & Melinda Gates Foundation funding in 1997 were finding it difficult to 

sustain their programs. These “fragile” libraries were generally small, rural, 

and/or independent libraries (Gordon, Moore, and Gordon 2004). More recent 

studies have found that many libraries have no set schedule for technology 

upgrades, and the majority of libraries’ technology budgets do not increase 

annually (Jaeger, Bertot, McClure, and Langa 2006). 

Challenges in technology funding are not the only budgetary issues that affect 

computer and Internet access. According to a study conducted by the American 

Library Association (ALA) in 2006, libraries that received decreases in funding 

consequently reduced services in the following order: materials, staffing, hours 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 14

of operation, and electronic access (Davis 2006). All four of these service 

reductions have an impact on library computer users, who often rely on staff for 

computer training and assistance while they accompany their computer use 

with use of traditional and online library materials.

Physical and Technological Infrastructure 

A library’s physical infrastructure may place further limits on its ability to 

increase the availability of computer and Internet access to meet demand. 

Common physical infrastructure problems reported include inadequate space 

for workstations and lack of electrical outlets and cabling for adding additional 

terminals (Bertot 2009; Bertot and Davis 2007; Bertot, McClure, and Jaeger

2008b; Garafolo 1995). Technical and connectivity issues include inadequate 

bandwidth to support additional terminals, lack of broadband Internet service 

providers in some areas, and difficulty in maintaining or upgrading hardware 

and software of existing workstations (Bertot 2003; Bertot, McClure, and Jaeger

2008b; Bill & Melinda Gates Foundation 2004; Davis, Bertot, McClure, and Clark

2009; Lowe 2008; McClure, Ryan, and Moen 1993). 

Physical and technological infrastructure limitations may be part of the reason 

why analysts have documented a leveling off in the number of Internet

workstations per public library outlet. Several authors have identified an 

“infrastructure plateau” that is influenced heavily by library size, space 

limitations, and technical/telecommunications issues (Bertot and Davis 2007; 

Bertot, McClure, and Jaeger 2008b; Clark and Davis 2008; McClure, Jaeger, and

Bertot 2007). 

Bandwidth

Availability of bandwidth is a critical limiting factor in libraries meeting the 

demands placed on public access services by patrons. The ALA’s Office of 

Information Technology Policy (OITP) notes in a 2007 report that, due to the 

new uses and increasing complexity of Internet applications, “one of the most 

crucial issues to emerge in recent years has been maintaining adequate 

connectivity, or bandwidth” (Weingarten, Bolt, Bard, and Windhausen 2007, p. 

1). 

Though U.S. libraries have largely reported a stable number of workstations per 

outlet since 2007, the addition of wireless Internet connectivity in libraries has 

affected the overall access speed of the facility. In a recent study, 75 percent of 

libraries reported that wireless was added without increasing purchased 

bandwidth, further stressing networks that the majority of libraries already 

reported were insufficient for meeting patron demand some or all of the time 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 15

(Bertot, McClure, and Jaeger 2008b; Davis, Bertot, McClure, and Clark 2009; 

Jaeger, Bertot, McClure, and Langa 2006; McClure, Jaeger, and Bertot 2007). 

In a 2007 report, ALA’s OITP recommended an “absolute minimum standard” be 

set at 1.5 megabytes per second for library connection speed, while 

acknowledging that most libraries need much more than this (Weingarten, Bolt, 

Bard, and Windhausen 2007, p. 39). In 2009, only half of U.S. public libraries had 

met this minimum (Bertot, Langa, Grimes, Sigler, and Simmons 2010).

Library Staff 

In order to accept and successfully provide public access technology, library 

staffs need a variety of skills in the areas of technology, information literacy, 

service and facilities planning, management, and leadership and advocacy 

(Bertot 2009). Lack of funding for staff training is a significant barrier for public 

library technology access (Tomasello and McClure 2003). As Internet

technologies change, library staff report needing to receive updated training, for 

instance to help them understand broadband connectivity (Weingarten, Bolt, 

Bard, and Windhausen 2007). As one state librarian put it: “If ‘location, location, 

location’ is the key to real estate success, ‘training, training, training’ is the key 

to network success” (Chepesiuk 1996, p. 44).

Patron Demand 

Demand for library computers and Internet access has grown at a precipitous 

rate in the last 10 years. In many libraries, throngs of patrons rushing to the 

computers the moment the library opens are a common sight as more everyday 

activities require Internet access (Barber and Wallace 2008; Mantell 2008). 

Many news stories on library use in economic downturns highlight increased 

demand for library computers by job seekers (Brustein 2009; Gronowska 2009; 

Saulny and Cullotta 2009; Yates 2009). 

Besides use by patrons who lack Internet access at home, one factor driving 

patron demand are the increasing numbers of Internet users who need or

expect access in more than one location. In 2001, the National 

Telecommunications and Information Administration (NTIA) found the number 

of people using the Internet in more than one location was growing at a fast 

pace, leading them to conclude that “the Internet is increasingly viewed as a 

basic communication and information tool, closer in nature to the telephone 

than the desktop computer” (U.S. Department of Commerce 2002). The U.S. 

IMPACT Study bore this out as it pertains to public library access: 78 percent of 

public library Internet users have access at home, work, school, or somewhere 

else (Becker et al. 2010). Further, the study found that public library computers 

serve as an important safety net for situations where household competition, 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 16

temporary Internet service outages, travel, and equipment malfunctions disrupt 

a patron’s usual access. 

Demand for public library computers has also been influenced by federal, state, 

and local governments’ increased focus on making government resources 

available online—in some cases, eliminating traditional formats. In 1996, the 

U.S. Government Printing Office reframed its Federal Depository Library 

Program, which distributes government information to designated libraries, 

placing greater emphasis on electronic access, including public access 

workstations (U.S. Government Printing Office 1996). The E-government Act of 

2002 indirectly reinforced the role of public libraries in providing Internet access 

for citizens by increasing the federal governments’ use of electronic records 

(Jaeger, Bertot, McClure, and Langa 2005). As governments shift to electronic 

documents and processes, the burden of assisting citizens who have limited or 

no access to computers has devolved to community-based public access 

facilities. As the primary provider of technology services and a trusted 

community resource for information, public libraries by default have become 

the local access point for government information services such as Medicare 

applications, tax forms, and emergency relief assistance (Bertot, Jaeger, Langa,

and McClure 2006a, 2006b; McClure, Jaeger, and Bertot 2007; Weingarten, Bolt, 

Bard, and Windhausen 2007). 

2.3 Acceptable Levels of Access: How Much is 

Enough? 

Libraries have struggled to determine acceptable levels of Internet access and to 

ensure that they meet high standards of public service. At a time when most 

libraries have some degree of access, the push to define sufficient access is 

gaining momentum, with some libraries, library researchers, and funders calling 

for standards and benchmarks as a way to help sustain practice and incentivize

public and private investment. 

However, defining adequate access can be a challenge as the needs of local 

communities vary substantially and the rate of innovation in information and 

communication technology (ICT) dramatically affects what is considered

adequate from one day to the next. The variables used to measure access levels 

include the number of workstations; bandwidth and connection speed; 

community characteristics such as poverty, level of home connectivity, and 

availability of alternative access points; and patron demand. 

Another important but sometimes overlooked factor in adequate access is the 

amount of time that libraries are open. The Bill & Melinda Gates Foundation in a 

2004 report on libraries and the digital divide noted that maintaining building 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 17

hours was a key component of public access that was often threatened by 

budget challenges (Bill & Melinda Gates Foundation 2004). Jaeger, Bertot, 

McClure, and Rodriguez (2007) also include library open hours as one of the 

conditions of sufficient access. 

The importance of library operating hours on public computer access highlights 

the impact that nontechnology issues and external conditions can have on 

computer and Internet provision. Library open hours are linked to the quality of 

experience the user receives, as outlined by the NTIA: 

Where people use the Internet may have implications for the quality of 

access they enjoy (i.e., the degree of availability or access they actually 

have) or the type of activities they undertake online. For example, home 

Internet access may be thought of as a higher quality type of access 

because it is available (theoretically) 24 hours a day, seven days a week, 

while school or library access periods are limited to specific hours and 

often with time limits per session. (U.S. Department of Commerce, 

2002)

While digital inclusion initiatives at the national level, like the Broadband 

Technology Opportunities Program (BTOP), promote both infrastructure 

developments as well as public access, initiatives at the local level have also 

supported public access. Libraries, and other providers, gain support from city 

councils, library boards, local voters, and other groups for increasing resources 

for digital inclusion. These activities include efforts to increase availability of 

public access computers, partnerships with other public access service 

providers, and the creation of new training programs and online resources for 

increasing digital literacy. 

2.4 Conclusion

Public libraries are in unique positions within the digital inclusion policy area. 

With their history of service, prominence in local communities, existing 

infrastructure, and professional staff, public libraries are well placed to play a 

central role in policies and programs designed to provide a wide range of public 

computing and Internet services in communities across the country. Although 

the demand for Internet access and electronic resources in public libraries 

continues to grow, many libraries face barriers to expanding public access 

services because of funding, physical and technological infrastructure, and 

bandwidth challenges (Bertot 2009; Bertot, McClure, and Jaeger 2008a. ; Bertot 

and Davis 2007; Garafolo 1995). As Block (2003) describes the problem: 

Buying technology for your library is like mowing the lawn—you can’t 

do it just once and be done with it. Once you’ve got the computers and 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 18

the fast Internet connections and the databases, you have to keep on 

buying newer faster computers, because no matter how many you 

have, your patrons will want more. You must continually buy new or 

upgraded software for all those machines. You have to hire expensive 

techies to make all the systems work, and spend money training staff on 

how to use them. (p. 187)

As a result, some libraries may be hesitant to expand services and outreach or 

to advertise computer resources because they may be unable to respond to the 

growth in demand for services. However, the future of public access services,

whose demand continues to grow, depends on public and political support. The 

following chapter will examine some of the factors influencing decisions about 

public access technology services in public libraries that emerged from an 

analysis of the case studies and survey responses in the U. S. Impact Study 

research.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 19

Public Access Services in Four 

Communities

The U.S. IMPACT Study team spent four weeks in the field visiting public 

libraries, talking to and observing patrons using library computers, and 

interviewing library staff, administrators, library trustees and friends, and local 

government officials. They also spent time at other public access venues and 

talked to staff at community-based service organizations. These visits afforded a 

deep understanding of how public access technology fits into the life of a 

community and the lives of library patrons. 

The case study sites reflect a wide range of community characteristics; diverse 

modes of public access service delivery; a variety of relationships with CBOs, 

policymakers, and funders; and, for the libraries, different approaches to 

administrative policies and operational constraints. This chapter will discuss 

external and internal factors that affect public access services in public libraries

through the lenses of these four case studies. The case studies are presented 

with a focus on how policy and resource allocation decisions impact the 

outcomes library patrons are able to achieve using public access technology and 

how relationships with external stakeholders affect the library’s ability to 

provide these services. 

3.1 Case Study Visits

While no library or community can truly be said to be typical of another, many 

readers will see aspects of their own communities reflected in these cases.

Within these four cases are public libraries that serve large urban areas and 

small remote communities; multibranch and single-outlet libraries; wellresourced systems and libraries struggling to provide service in a constrained 

budget environment. The selection process occurred in three stages:

• U.S. libraries were matched with U.S. Census population data at the 

county level and points were awarded to communities with higher than 

average levels of diversity, immigrant populations, and poverty.

• Libraries with top community scores were balanced according to the 

size of the population served, per capita funding levels, geographic 

regions, and urban status. 

• The library’s ability to participate in the study and recommendations 

from state librarians and other experts were considered.

The case study sites selected were: 

3
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 20

• Enoch Pratt Free Library: Baltimore, Maryland (population 632,941)

• Fayetteville Public Library (FPL): Fayetteville, Arkansas (population 

57,491)

• Oakland Public Library (OPL): Oakland, California (population 431,634)

• Marshalltown Public Library (MPL): Marshalltown, Iowa (population 

30,353)

Though the communities these libraries serve vary substantially, librarians and 

library leaders in each case spoke clearly about the resource constraints they 

are experiencing in the delivery of public access technology services. Indeed, 

respondents referenced many of the same concerns: not enough computers to 

meet demand, not enough time to spend helping patrons, lack of technology 

infrastructure and physical space, and lack of sufficient funding to address those 

problems. 

The following section provides a comparative summary of case study library

characteristics and an in-depth review of each field visit. In order to focus the 

analysis of the four case study visits, classify observations, and discuss local 

program implementation, a framework consisting of three main categories was 

applied to the case study data. This framework drew out how the libraries 

created value for their communities through programs and services targeted to 

the specific needs of their communities; how they generated support through 

engaging external stakeholders, developing partnerships, and communicating 

the value of the library to funders and decision makers; and how they organized 

their operations and administration to create the most value possible within 

their resource constraints. 

3.2 The Enoch Pratt Free Library

To provide equal access 

to information and 

services that support, 

empower, and enrich all 

who pursue knowledge, 

education, cultural 

enrichment, and lifelong 

learning.

–Enoch Pratt Free Library 

Mission Statement

We are the leveler for the people in this city.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 21

–Dr. Carla Hayden, Chief Executive Officer

The Enoch Pratt Free Library, located in Baltimore, Maryland, was the first of 

four library systems the U.S. IMPACT Study research team visited in order to 

better understand the users of public access technology, how libraries provide 

public access services, and the role these resources play in the library’s 

community.

The Pratt Library is a 

dynamic community 

institution that,

despite high demand 

in a difficult economic 

climate, provides a full 

complement of 

technology services 

and resources. 

The City of 

Baltimore

Incorporated in 1796, 

Baltimore sits on Chesapeake Bay 40 miles northeast of the District of Columbia. 

Baltimore itself has not been part of any county since its separation from 

Baltimore County in 1851 (Maryland State Archives 2011). The city is divided 

into nine geographical regions, containing a unique mix of working class 

neighborhoods, industrial centers, and gentrified historic districts, which has 

earned it the nickname of the “City of Neighborhoods” (City of Baltimore 

2010a).

Baltimore is home to The Johns Hopkins University, as well as Fort McHenry,

which played an important role during the War of 1812. The Inner Harbor is 

considered the “crown jewel” of downtown Baltimore; it offers locals and 

visitors alike a view of the waterfront, historic ships, and a variety of 

restaurants. The city has many attractions for sports enthusiasts including 

Baltimore Ravens football, Baltimore Orioles baseball, and horse racing’s 

Preakness Stakes.

Though it has made progress in improving the living conditions across many 

measures, Baltimore still struggles with unemployment, poverty, and illiteracy 

above national averages. Despite these problems, the city thrives with cultural, 

Table 1: Case Study Details

Study site visit March 15 to 22, 2009

Visit locations Central Library

Orleans Branch Library

Southeast Anchor Library

Interviews 

conducted

12 users aged 14–17 in two focus groups

26 adult users

16 library administrators, branch 

managers, librarians, and other library 

staff

2 members of the Friends of the Library

2 staff from peer agencies

Web survey 417 completed surveys with 160 

respondents providing suggestions for 

improvements 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 22

historical, educational, and business opportunities to which the Pratt Library is a 

major contributor. 

Population Characteristics

In 2006 to 2008, Baltimore City’s population was approximately 640,000, a 

significant decrease from the 1950s industrial and manufacturing era when the 

population was nearly 1 million (U.S. Census Bureau n.d.-b). Though still a 

relatively small segment of the city, Baltimore’s population of Hispanics and 

Latinos, especially immigrants from El Salvador, Honduras, Ecuador, and Mexico, 

increased more than 40 percent between 2000 and 2007, though the rest of 

Baltimore’s population declined over the same period (Reddy 2008).

Baltimore City has a 

highly concentrated 

Black or African 

American population 

compared to the State 

of Maryland as a 

whole. The U.S. Census 

Bureau estimated in 

2008 that 63 percent 

of Baltimore’s 

population is Black or 

African American, 

while statewide they 

account for 30 percent 

of the population. 

Whites make up 

approximately 32 

percent of Baltimore’s 

population; Asians and 

people of two or more races account for another 4 percent of the population. 

Many segments of Baltimore’s population suffer from low income levels or 

poverty. The median household income in Baltimore is $39,083, well below both 

the national median of $52,175 and the state median income of $70,005. 

Approximately 16 percent of families and 20 percent of individuals have income 

below the poverty level, compared with national figures of 10 percent and 13 

percent, respectively. Black or African American individuals and families are 

disproportionately poor in Baltimore.

Table 2: Baltimore City Demographic Data

Total population 639,343

Race White 31.9%

Black or African American 63.4%

American Indian or Alaska Native 0.2%

Asian 1.9%

Native Hawaiian or Pacific Islander 0.0%

Some other race 0.9%

Two or more races 1.6%

Hispanic or Latino origin (any race) 2.6%

Age 19 and under 27.7%

65 and over 11.9%

Language other than English spoken at home 8.2%

Median household income $39,083

Poverty rate (family) 15.5 

Unemployment 

Rate

2006–2008 8.7%

2009 10.2%*

*Source:U.S. Bureau of Labor Statistics 2009.

Source: U.S. Census n.d.-a.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 23

Related to the high poverty levels, Baltimore is also below the national average 

for a number of educational measures. In 2009, fourth- and eighth-graders 

attending Baltimore public schools had the lowest reading assessment scores 

among the 18 urban school districts that participated in the Trial Urban District 

Assessment in reading 2009 (National Center for Education Statistics 2010).

According to a 2002 study by Baltimore Reads, 38 percent of adults in Baltimore 

are considered illiterate (Baltimore City Council 2007).

High school dropout rates are high as well, with approximately 25 percent of the 

population 25 years and older having not earned a high school diploma, nearly 

twice the statewide estimate. Despite low levels of literacy and graduation 

rates, Baltimore’s population of adults age 25 years and over with a bachelor 

degree or higher is close to the national average (24 percent compared with 27 

percent, respectively; U.S. Census Bureau n.d.-a). 

Librarians and administrators at the Pratt Library repeatedly reflected on how 

poverty and illiteracy among Baltimoreans affects how the library perceives its 

role in the community and the types of services it offers, especially around 

providing free access to computers and the Internet:

I think a big part of our role, it's sort of cliché, is addressing the digital 

divide. We have a very poor population in Baltimore. Many people don't 

have computers at home or are not computer literate. We have a high 

illiteracy level in general in this city. I think that the computers definitely 

address that to some extent.

--Library administrator

Indeed, library computers are used by many patrons who are pursuing 

educational opportunities and gaining skills leading to increased self-sufficiency. 

Among users interviewed and those responding to the U.S. IMPACT web survey, 

education-related activities were among the top reasons for using library 

computers, with patrons of all ages reporting enrolling in high school 

completion or general education development programs, searching for college 

programs, or doing homework.

Employment and Business Climate

From 2006 to 2008, the average annual unemployment rate in Baltimore was 

8.7 percent. However, the economic downturn affecting the entire nation is 

reflected in a large jump in Baltimore’s unemployment rate: unemployment 

climbed to 10.2 percent in 2009 (Economic Development Intelligence System 

2009). 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 24

Beyond the economic downturn, according to the Baltimore City Council, 

Baltimore’s high illiteracy rates are a contributing factor to the city’s 

unemployment rate. Since losing its industrial economic base and moving 

toward a “cerebral-based center of commerce,” even employers who are hiring 

are unable to find qualified employees among Baltimore’s unemployed to fill 

their vacant positions (Baltimore City Council 2007).

Government is the major employer in Baltimore, with healthcare and social 

assistance as the largest industries employing people in the civilian sector

(Maryland Department of Business and Economic Development n.d.). Other 

major employment sectors are educational services, public administration, 

professional and technical services, retail, and finance and insurance (Economic 

Development Intelligence System 2009).

The Pratt Library strives to make Baltimore a livable city and provides direct and 

indirect support services to help people find employment and to encourage

local business. As an historic institution, it is an attraction for tourists who enjoy 

it as a destination and take advantage of its public access computers to keep in 

touch with friends and family. It also supports entrepreneurship with a 

dedicated business resource center at the Central Library and provides a place 

for potential employees—particularly for hotel, grocery, retail, and other entrylevel positions—to apply for jobs when they may not have other realistic 

alternatives. Recognizing the difficulties many patrons experience trying to 

apply for jobs, one library administrator notes why access in libraries is 

important to the unemployed in Baltimore:

When I go to the Wal-Mart, they have one little rinky-dink computer 

station and nobody to help do the application, whereas when you walk 

into a library, there are state-of-the-art computers. There is somebody 

to answer your questions, there is somebody who you feel is not going 

to judge you because you don't know certain things. If you're applying 

for a job, you don't want to look like you don't know what you're doing, 

even if that's not what your job is going to be.

–Library administrator

The Pratt Library also provides resources and classes on job searching, resume 

preparation, interviewing techniques, and technology training that are used by 

individuals and area employers to improve job skills. Indeed, beyond routine use 

of library computers for maintaining social ties through email and social 

networking sites, employment-related uses were the most frequently cited 

activities by users interviewed during the case study visits and were nearly so 

for those responding to the web survey. While invisible to many of the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 25

employers who benefit, all of these services contribute to workforce 

preparedness by improving technology skills and ensuring that employers can 

connect with the employees they need.

Technology Infrastructure and Adoption

Baltimore is in many ways on the cutting edge of technology. Ranked #10 in a 

2009 list of America’s most wired cities and home to universities, medical 

research centers, government security agencies, and other employers with 

major technology use and needs, it is striving to meet the demand of this sector 

by building out its technology infrastructure and expanding broadband Internet

access (Woyke 2009). Due to its municipal conduit system, which allows laying 

of fiber optic cable with much less disruption than in other locales, Baltimore is 

uniquely situated to meet increased demand by presenting itself as an attractive 

location for high-tech business.

Currently, approximately 75 percent of households have access to broadband 

Internet and 60 percent subscribe to it (Baltimore City Municipal Response 

2010). Though broadband availability and household subscription is comparable 

to national adoption figures, librarians at the Pratt Library report that 

computers and Internet access in the home is cost prohibitive for many patrons. 

Users of the Pratt Library who could not afford Internet access at home 

repeatedly emphasized how important the library is for keeping connected to 

family and friends, doing homework, and looking for jobs. 

While some businesses, such as coffee shops, do offer wireless Internet access 

for paying customers, they are unlikely to operate in the city’s many

impoverished neighborhoods where even access to grocery stores is severely 

limited (Baltimore City Food Policy Task Force 2009). According to librarians, the

local library branch is the only place to get Internet access in most of these 

areas.

Future Outlook 

Baltimore City, like many municipalities across the country, is facing enormous 

fiscal challenges and large budget shortfalls. Still, Baltimore is a desirable place 

to live, work, and visit. Despite an upswing in unemployment related to the 

economic downturn, the city benefits from the stability of its large number of 

recession-resistant employers in the health, education, and government sectors. 

Further, recent efforts by the mayor and city council to adapt to fiscal 

challenges resulted in the city retaining its AA bond ratings from Standard & 

Poor’s at a time when many municipalities are seeing their ratings reduced (City 

of Baltimore 2010b). 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 26

The Pratt Library’s Place in the Community

Beginning as early as 1982, the Pratt Library began to integrate computers into 

its technology offerings to the public. The following year, the Pennsylvania 

Avenue Branch was remodeled to become the system’s first computer center, 

offering computer education to more than 500 adults within the first year. The 

Pratt Library was also an early adopter of online resources and was the first 

library in the country to subscribe to the New York Times Information Bank in 

1994.

Following a grant from the Bill & Melinda Gates Foundation, 1997 proved to be 

the defining moment for public access technology at the Pratt Library. The grant 

allowed the library to start their first computer lab. Around the same time, the 

Pratt Library became the operations center for SAILOR, Maryland’s online public 

information network, which offers statewide access to library services and 

databases to its residents and Internet services for government agencies and 

schools; SAILOR also supports free dial-up access for residents. 

Current State of Affairs

At the time of the U.S. IMPACT Study visit, the Pratt Library system had nearly 

400 computer and Internet terminals and had recently completed a project 

funded by Bank of America to provide wireless Internet access at all the 

branches. Dr. Carla Hayden became the Pratt Library’s new director in 1993 and 

continues in this capacity today. Under her leadership, three new branches have 

been opened—the first new construction the Pratt Library has undertaken in 35 

years. Dr. Hayden was recognized as Librarian of the Year by Library Journal in 

1995. The library has also been recognized for its innovation and leadership, 

with its website and print publications winning three Best of Show awards 

during the 2008 American Library Association convention in Anaheim, California.

Mission

The Pratt Library has maintained its connection to Enoch Pratt’s original vision 

to be the “people’s university” for Baltimore, welcoming people from all walks 

of life. The mission of the Pratt Library is “to provide equal access to information 

and services that support, empower, and enrich all who pursue knowledge, 

education, cultural enrichment, and lifelong learning” (Enoch Pratt Free Library 

n.d.). Through supporting this mission, the Pratt Library is a home for lifelong 

learners, a unifying force for neighborhoods, and a pillar of Baltimore’s civic 

infrastructure.

The high poverty and low levels of literacy in Baltimore affect how the Pratt 

Library perceives its role in the community. Though the formal mission of the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 27

Pratt Library is broad, many librarians and library administrators expressed an 

extra commitment to serving the needs of children and teenagers, people who 

are unemployed, and with regard to public access technology, those who lack 

access to computers and the Internet at home or elsewhere or who need help 

learning how to use computers and get online. 

Library patrons in Baltimore, whether or not they use library computers, are 

highly supportive of public access technology as a part of the library mission: in 

the web survey, 92 percent of respondents indicated that having access to 

computers and the Internet at the library is important or very important for the 

community. 

Teenagers are the focus of a considerable amount of the library’s special 

programming, which often centers around the library’s computers. As one of 

the library’s administrators explained, these services are seen as a way to bring 

a new generation into the library and also to provide equality of access:

I think this is kind of a shared vision—not just my vision, but of the 

whole leadership. The whole idea is that there would be really good 

access for teens in the library. We would like for it to be equitable. We 

would like them to have access to the classes and instruction that they 

need and that any age group would have. My vision for teens and 

computing in the library is that the teens would be able to easily 

balance getting information, recreation, and personal needs met 

through computing and through all the other resources of the library. 

That they would have a clear understanding that all of these things can 

help them reach those needs and that computing is one of them.

The importance of the Pratt Library’s computer and Internet services for 

teenagers was highlighted by one of the library’s youth services staff, who 

pointed out that many teenagers use library computers to fill out and submit 

Free Application for Federal Student Aid (FAFSA) forms and learn about college 

programs and admissions processes. As FAFSA forms and many college catalogs 

are available only online, lack of access to the Internet is a defining barrier to 

pursuing a college education. Natasha, a 20-year-old aspiring to a career in 

forensic science, used library computers to “check out schools online that I’d 

like to enroll into” and to fill out applications, as well as to look into financial aid 

options. 

Funding Sources

The Pratt Library is a nonprofit 501(c)3 organization governed by an 

independent Board of Directors and a Board of Trustees. Its nonprofit status 

allows it to seek and receive private gifts and grants directly for the library, as 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 28

opposed to many municipally-governed public libraries where donations may 

end up in a municipal general fund. In fiscal year (FY) 2008, the library’s 

operating revenue of $41.5 million was acquired from a variety of funding 

sources: 38 percent from the city of Baltimore, 16 percent from state funding,

and 0.8 percent from the federal government. Pratt also received 3 percent of 

its income from federal E-Rate funds, which provides an 80 percent subsidy for 

Internet access. Other income included a per capita allotment from state 

funding that goes toward the State Library Resource Center, gifts and private 

donations, fines and fees, and other sources.

The Pratt Library has a 

dedicated development office 

that conducts fundraising 

campaigns, applies for grant 

funding, and cultivates major 

private and institutional 

donors. The Pratt Library 

belongs to a United Way 

combined fund, allowing employees of participating agencies to designate 

regular donations to the Pratt Library through payroll deduction. Recent major 

donations include a gift from Bank of America to provide funding for the newly 

expanded wireless network, as well as to build a new computer commons area 

in the Central Library. Since the economic downturn, however, foundation 

funding has decreased because of the poor return on endowment investments.

The Pratt Library relies less on local government funding than any of the other 

libraries visited by the U.S. IMPACT Study, and indeed less than most libraries in 

the country, which may provide it with more fiscal stability than libraries that 

are almost wholly dependent on the municipal budget. Further, as a State 

Resource Center, it is a recipient of unusually large direct state government 

support for its services.

Community Relationships

The Pratt Library administration and branch managers are very active in 

maintaining relationships with Baltimore City, local museums, consortiums, and 

neighborhood and community groups, of which Baltimore has hundreds. In 

addition to outreach to these groups, the library maintains an active presence in 

the city through newsletters, brochures, television advertisements, bus banners, 

and other media. The library also employs a full-time community outreach 

coordinator, based at the Southeast Anchor Library, who is responsible for twoway communication with the community, including working with the business 

community in that area. 

Table 3: FY 2008 Operating Revenue

Total income $41,571,800

Local government 37.5%

State government 15.9%

Federal government 0.8%

Other income 45.8%

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 29

Political Context

When the municipal budget is tight, the Pratt Library often finds its portion of 

the municipal budget allocation in competition with other city services; this was 

an important topic for one library patron: 

Baltimore has the same problem that a lot of other cities have. When it 

comes time to cut the budget, which everybody has to do right now, 

there are only certain areas that you can cut. Most of the budget is 

spoken for. Police, schools—there are some places that either for 

structural or political reasons, you can't cut. Nobody dares to cut the 

cops. In Baltimore, the two places that are first up before the guillotine 

are the Pratt Library and the parks. Even though it's been pretty much 

proven over the last 10 years that with a vibrant park system and a 

great library, you attract wealthier people into the city to pay their 

property taxes and do things like that, it's the first place that they cut.

Relationships with Supporters

The Pratt Library cultivates donors and major supporters through the work of its 

leadership, development office, Board of Directors and Board of Trustees, and 

the Friends of the Enoch Pratt Free Library. In FY 2009, these efforts were 

rewarded with private gifts, contributions, and bequests totaling $2.7 million 

(Enoch Pratt Free Library 2009). 

Peer Agency Relationships

Social service agencies are a major beneficiary of the Pratt Library’s technology 

resources and services. The library works closely with many of these 

organizations to provide technology access and training, either directly through 

special classes or services developed for them, or indirectly through agency 

referrals of clients for support that they cannot provide themselves. For 

example, a case manager from a social service agency described scheduling her 

clients to do work in the library as part of their job preparedness program:

We had times on the schedule for the ladies that they needed to go to 

the library and research jobs. That was their sole duty for that day: to go 

to Pratt Library, get on the computer, and research jobs. That was their 

field work, I guess you could say.

Other agencies refer clients to use library computers to find housing, apply for 

government benefits, get public transportation schedules, and other critical 

information for helping them achieve self-sufficiency. Though some have 

computers for their clients to use, usually the access is limited in both time and 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 30

the type of activities clients are allowed to pursue. And there is rarely sufficient 

equipment or support to make the technology truly accessible to clients.

Clients of these agencies are not the only beneficiaries of the Pratt Library’s 

technology; many of the agency staff also take advantage of the technology 

training offered by the library. The city of Baltimore and other employers use 

the library’s classes for improving the technology skills of police officers, nurses, 

and other workers.

Interdependence between Public Libraries and CommunityBased Organizations 

While the Pratt Library is committed to providing resources and services to all 

its patrons, it also provides support and services to many social service

organizations that do not have sufficient resources to fully serve their clients. 

Often, these services go unacknowledged and unfunded, and place a strain on 

the library’s already limited resources. 

In particular, agencies whose purpose largely encompasses linking clients to 

government services seem to rely on the Pratt Library for providing the 

technology necessary to do so. Generally, these agencies direct their clients to 

the library to apply for social security benefits, submit immigration forms, and 

complete other tasks because they do not maintain computers or Internet

access for the use by their clients. Librarians note that often these patrons lack 

the basic computers skills necessary to accomplish their tasks, especially signing 

up for email accounts, which is necessary to take advantage of many online 

resources.

Referring clients to the library for technology resources and services also has an 

added benefit for case managers, as noted by one agency manager: “When 

they’re independent and they’re able to research things on their own, and they 

do that at the library, that decreases the amount of work that we will have to do 

as case managers.”

Social service agencies are not the only beneficiaries of the Pratt Library’s 

technology resources and services. Local employers who have moved their job 

application processes online are connecting with potential employees through 

library computers.

Another library supporter discussed the impact of making library computers 

available for job applicants. After a multiyear effort to entice a new grocery 

store to open in the area: “When we actually attracted that [grocery store], we 

were not sure it would be staffed. If it weren't for the library really helping with 

the job applications, it would have been a lot harder.” Such stories illustrate the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 31

hidden importance of the library’s computer and Internet services, and the staff 

support in using those tools, to both the individual and the community.

Library Characteristics 

Budget

Fifty-nine percent of the Pratt Library’s budget goes toward the salaries and 

fringe benefits of 459 full- and part-time positions; 20 percent supports 

contractual costs such as utilities, building maintenance, Internet, cataloging, 

bookbinding, and equipment maintenance; 11 percent supports the purchase of 

books and materials, including SAILOR databases. Some donated funds are 

limited in how they are used because of donor restrictions; increasingly, these

donations are earmarked for technology needs, indicating a high level of 

appreciation for the necessity of these resources.

The Pratt budget includes a 

five-year replacement cycle 

for computers, software 

upgrades, improvements to 

the existing network 

hardware and 

infrastructure, and 

partnerships with local 

agencies to increase 

network capacity and 

redundancy. However, even with per capita expenditures at $65.38—the 

highest among the four libraries visited by the U.S. IMPACT Study and above the 

$40.43 average for large cities—the Pratt Library still struggles to meet demand. 

One of the library’s administrators explains:

One of our biggest challenges is just to provide access as much as 

possible throughout the city to everybody who needs it. Of course that 

means hours and locations and just being there. We’ve been challenged 

a little bit, budgetwise, as far as being open, the number of hours that 

we’re open, and the number of staff that we have available. So that’s a 

big challenge to us in providing the access that we want to provide.

Indeed, the need for funding of additional staff was identified by the majority of 

library administrators, librarians, and other staff, and in many cases was seen as 

more critical than the need for additional terminals. One librarian explained:

Table 4: FY 2008 Expenditures

Total expenditures $41,571,800

Staff (salaries and benefits) 58.3%

Print collection 7.0%

Electronic collection 4.5%

Other material expenditures 0.9%

Other operating expenditures 29.2%

Expenditures per capita $65.38

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 32

I’d like to see more and better access for the public, for all ages. We do 

have access, yes, but there’s still more that can be done—make people 

feel more comfortable, and really to have more staff so that we can 

work with them better. It’s difficult when you only have one librarian for 

a pretty large building. There’s only so much you can do. You see so 

many people in need and people who want to learn. So we really want 

to be there for them to make it work.

The library aims to be staffed with master of library and information science

(MLIS)–level librarians, qualified teachers, as well as IT professionals in the areas 

of engineering, programming, network development, web management, and 

digitization. But Pratt has found that the salaries it is able to offer are 

inadequate to recruit and retain many of their professional-level staff positions,

especially in IT where salaries need to remain competitive in the labor 

marketplace.

Personnel Practices

Of the Pratt Library’s 459 staff, 149 are classified as librarians. One hundred 

seventeen of the librarians hold master degrees from ALA-accredited 

institutions. Pratt Library has one librarian to serve every 4,239 people within 

the legal service area, which is higher than the national average for large cities

(one librarian per 7,672 people). 

The Pratt Library also maintains its own IT department under the umbrella of 

the information access division. Consolidating public access computers and 

Internet access, internal systems, and the library website, the information 

access division also manages instructional services for patrons. 

Staff Training 

Ongoing staff development and training is important at Pratt Library. Indeed, it 

is such a high priority that the second goal of the library’s Strategic Information 

Technology Plan is to “ensure that library staff is trained to use software and 

work modules more efficiently and uniformly, can access and use electronic 

library forms and reporting tools in their work, and is able to integrate that 

knowledge into efficient and effective delivery of quality IT-based services to 

users.” To this end, the Pratt Library has online training modules for staff and 

expresses leadership commitment to staff development; it also provides training 

to other municipal staff. Staff development and training is built into the budget, 

with FY 2009 expenditures of over $500,000, not including salaries. 

Still, many of the librarians who spoke with the research team said that the 

available training does not necessarily address the skills needed to help patrons 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 33

with technology problems. One librarian emphasized that the problem is not 

really with technical skills, but rather patience with the patron, and advised new 

librarians that:

They need to realize that many customers have no knowledge at all 

about computers. They know about the Internet, they know it’s there. 

They know they can do job searches, they know what’s available but 

they don’t know how to access it. [Librarians] have to be patient and 

they have to be willing to take the customer where he needs to go.

Volunteers

Though the Pratt Library has an active volunteer base for many of its functions, 

it aspires to greater use of volunteers to support its public access technology. 

One library manager explains:

For the most part, we really need people in volunteer positions to be 

available at the branches for people who need assistance. Many times, 

the librarians are busy doing reference questions or other assistance, 

but the person sitting at the computer reaches a point where they need 

some help. It would be good to have someone just in that general area 

walking back and forth, to be able to give them that on-the-spot 

assistance.

Currently, the Pratt Library recruits some volunteers from nearby colleges to 

help with one-on-one training and from the Youth Corps to help with computer 

classes. Occasionally, community service agencies that partner with the library 

supply some volunteers for the programs they sponsor. However, in order to 

fully take advantage of volunteers, librarians and administrators feel they need 

a volunteer coordinator to more effectively schedule and train volunteers for 

assisting in classes and providing one-on-one help. 

Evaluation

Expanding evaluation of services is part of Pratt Library’s current strategic plan, 

including increasing the use of statistical and other reports to assist in collection 

development, staffing, marketing, outreach, development, and improving 

customer service. Leadership at the library understands the importance of 

providing this information to funders and other stakeholders, as well as for 

internal decision-making and planning. 

Staff are responsible for assisting in collecting some data, such as tracking 

reference questions, volunteer hours, and program attendance, and for 

counting students in classes and laboratories, while other data are collected 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 34

electronically, such as the number of hits on a webpage or the SAILOR 

homepage, and in the catalog, the number of user sessions and pages viewed. 

Annual reports with these data are generated and posted on the library website. 

Like the other libraries visited by the U.S. IMPACT Study research team, the 

Pratt Library has a difficult time counting the number of unique individuals using 

the library’s computers and has no way of knowing how their patrons are using 

them except for anecdotes and glimpses of computer screens. 

Operational Context

Physical Infrastructure

The Pratt Library system consists of the 34,000 square foot Central Library and 

21 branch libraries of various sizes, from just 2,400 square feet at the 

Washington Village Branch to nearly 27,000 square feet at the new Southeast 

Anchor Branch. Much of the Central Library is still in its original configuration 

with a great hall, reading rooms, mezzanines, and balconies. The Central Library 

is open to the public 52 hours per week, including Sunday hours from October 

to May. 

The Southeast Anchor Library, one of two visited by U.S. IMPACT Study 

researchers, is situated in the heart of Highlandtown. This new library opened in 

May 2007 and is open 56 hours per week. The Orleans Branch, also visited by 

the researchers, is located adjacent to Johns Hopkins Medical Center and is 

open 37 hours a week. Orleans is a 15,000 square foot facility that was 

completed in 2007, replacing a large vacant lot that had been without a building 

for decades. It was built as a gift from Johns Hopkins Medical School, which took 

the former branch site to build a high rise educational building. 

The Pratt Library’s Southeast Anchor Library was the first new construction 

within the Pratt system in 35 years. Many of the remaining branches are badly 

in need of upgrades to wiring and of increased space, especially to 

accommodate additional computer terminals. 

Technology Infrastructure

Free access to computers and the Internet is available at the Central Library and 

all branches, with a total of 383 terminals distributed among the library outlets. 

In addition, wireless Internet access is now available at all locations. Computers 

are located in designated lab spaces at the Pratt Center for Technology Training 

at the Central Library, as well as scattered throughout the library. The Southeast 

Anchor Library also has a computer lab, while at the smaller branch libraries 

computers are located wherever space allows. Despite recent expansions of 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 35

computer labs and wireless access, public access technology users, librarians, 

and administrators are still frustrated by inadequate resources. 

Patron Demand

The Pratt Library is a very active institution and the public access computers 

drive much of that activity. Researchers observed patrons lining up in the 

morning outside the Central Library; when it opened, most went directly to sign 

on to a public access computer terminal. The library also faces seasonal and 

temporal congestion, with peak times in the morning and then again after 

school hours when teenagers descend on the library in large numbers. 

Computers are nearly always reserved, and there is often a waiting list for 

computers, especially in the evenings, with some patrons being turned away

without having an Internet session by the time the library closes. Because of 

limited physical infrastructure, some branches have as few as four computers 

and as a result patrons almost always have to wait to use the computers. 

According to one patron:

With the limit and not a lot of computers and now with the economy, 

everybody’s coming to the library to use the computers. There’s not a 

lot of access to them. I value the services of the library, but it’s not as

accessible sometimes. Because of the number of computers, the 

number of people, it’s always crowded, and there is always a waiting 

list. 

The Pratt Library attempts to address the patron demand with a variety of 

different strategies, including having designated computers for certain tasks, 

opening the computers for teenagers to adults during school hours, and using 

session management software to limit session lengths during congested periods. 

Despite these efforts, patrons often have to wait for a turn on a computer and 

sometimes complain to librarians about other users who are playing games or 

other activities that seem to have primarily an entertainment value. Many 

librarians expressed sympathy with this frustration, as reflected in this comment 

from one librarian:

If you come in here and you have some work you really need done, then 

you need more than half an hour to do it. I understand why some of 

them get mad. If I have something serious I have to do and this little kid 

is about to boot me off because he wants to get on MySpace, I'd be a 

little upset about that as well. 

The Central Library is now experimenting with lending laptops to free up space 

and let people roam around the library. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 36

Other patrons bring their own laptops to the library. One web survey 

respondent commented that, “Having wireless Internet at the library is great. 

Trying to use the library's computers is often difficult, since there are too many 

other people are trying to use them. There is more demand for computer time 

than there are computers.”

Even so, a common refrain from case study interviews and survey responses

was for the library to “add more computers for more people to access.” One 

web survey respondent noted: “Any time I go to the library the computers are 

all occupied. The only suggestion I have is to make more [computers] available 

within funding limitations.”

Use Policies: Time Limits, Filtering, and 

Behavior Standards

Because each branch has a different number of computers, the length of 

computer sessions varies by location as well. The library reserves the right to 

limit workstation and printer usage at peak hours or to schedule workstation 

and printer use in order to accommodate the largest number of customers at 

specific locations.

The Central Branch has computers designated for one-, two-, and four-hour 

time slots, as well as 15-minute quick access stations; two- and four-hour time 

slots are reserved for “serious” work, such as job searching. When classes are 

not in session, the computer lab is open for library patrons over the age of 17. 

This allows the library to provide more resources when available, rather than 

letting them go unused when there are no classes.

Because the Pratt Library receives federal funding for its Internet access (ERate), filtering devices are enabled on all computers. These filtering devices may 

be disabled on request for adult patrons over the age of 17 years. 

Teenagers come to library after school to study as well as to work and play on 

the computers. The Young Adult Department is closed until 2:30 pm to all users 

under the age of 19 years in compliance with local truancy ordinances. After 

school, computer use in the Young Adult Library is restricted to patrons aged 13

to 19. 

According to some librarians, young patrons waiting for a turn on the computers 

during peak after-school hours are the biggest source of behavior problems, 

though some also discussed problems with young people crowding around 

computers with their friends. Generally, this is not allowed; however, there are 

exceptions:
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 37

We do try to adhere to one person to one computer, unless it's a parent 

and child or a teacher and a student. There are occasions where people 

will come in and say, “I'm trying to help my friend do this,” and then of 

course we let them do that.

This flexibility with patrons recognizes that many users give and receive help 

from other users and the benefits that this unique communal learning 

environment has for patrons and librarians. One patron reported that he talked 

to another patron one morning: “He doesn’t know how to go get on email. He 

asked me to help him. I know a little bit—I was helping him when I knew 

something. I help people because sometimes I ask people, too, for help on this 

and that.” Another user noted that patrons “are trying to help each other. It’s a 

kind of a helpful area. You always see somebody and you just run over, ‘Oh 

here, let me show you that.’ Yes, it’s very friendly.”

Technology Classes and One-on-One Help

Both library staff and administrators acknowledge that many of their patrons 

lack sufficient computer literacy to accomplish their goals. To help remedy this 

problem, the Southeast Anchor Library and the Orleans Branch offer a variety of 

computer classes. Beginner classes include keyboarding, basic computer use, 

Windows, the Internet, email, and Microsoft Word and Excel. More advanced 

classes are available for Microsoft PowerPoint and Publisher, and for other 

special topics depending on interest. A technology class for seniors is offered in 

the spring and fall, while a computer camp for children takes place during the 

summer. Online tutorials on basic mouse skills and other tutorials for Microsoft 

Office 2003 applications such as Word, Excel, PowerPoint, and Publisher are also 

available through the library website.

The computer classes are considered a great success for the library as people 

are acquiring job readiness skills. A technology instructor shared that “what we 

offer is really valuable to people. I feel good because a lot of people, particularly 

in the keyboarding class, have gotten city jobs and government jobs, and some 

have gotten promotions.” Another technology and training manager agrees: 

“We're preparing them for the working world. ... Most of the customers that 

come in, they want to get into computers, work in an office because they got 

laid off, or they're just not making enough money.” 

The Pratt Library demonstrates that computer and Internet services go beyond 

providing library users simply with Internet capable computers. Training is a 

significant part of this service, and the library has accomplished this with 

considerable success. The computer classes are also congested: currently there 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 38

is only capacity for 24 students, but organizers report regularly getting up to 40 

people asking to attend. 

Though computer classes are in great demand, most librarians agreed that oneon-one help to solve patrons’ immediate needs is an important service. 

However, providing one-on-one help is labor intensive and not as efficient as 

reaching many patrons at one time in a class. It is hoped that building a more 

robust volunteer program for the computer laboratories will alleviate some of 

the demands on librarians’ time while still providing vital help to new users.

Case Summary 

The Pratt Library prides itself on providing a full complement of services for its 

patrons and on supporting the economic and community development of the 

city of Baltimore. Enoch Pratt envisioned the library as a welcoming home for 

lifelong learning, a unifying force for neighborhoods, and a stalwart pillar of 

Baltimore’s civic infrastructure. The essential vision of Enoch Pratt remains a 

driving force for the library as it grows and adapts to the changing needs of 

Baltimore. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 39

3.3 Fayetteville Public Library

Our vision is to be 

powerfully relevant and 

completely accessible. 

Our mission is to 

strengthen our 

community and 

empower our citizens 

with free and public 

access to knowledge

–FPL Mission Statement

We do partnerships with a lot of people. It’s our strength. We try to 

leverage every dollar, every service.

–Shawna Thorup, Executive Director

The FPL, a single outlet library in Fayetteville, Arkansas, was the second of the 

four library systems the U.S. IMPACT research team visited.

FPL is an innovative

library that has 

received national 

recognition, being 

named Library 

Journal’s Library of the 

Year in 2005.

The City of 

Fayetteville 

Located at the foothills 

of the Ozark 

Mountains in the 

northwest corner of Arkansas, the city of Fayetteville is a vibrant community of 

nearly 70,000 residents. Fayetteville has been repeatedly recognized for its 

quality of life and employment opportunities. In 2009, it was ranked #4 in 

Forbes Magazine’s “Top 10 Best Places in America for Business and Careers”

(Badenhausen 2009) and listed #7 in Kiplinger’s 2008 “Best Cities to Work, Live 

and Play” (Staff 2008). With both small businesses common to college towns as 

well as the offices and factories of some of the largest corporations in the world, 

Fayetteville offers myriad opportunities not only for start-up businesses, but 

also for job seekers. 

Table 5: Case Study Details

Study site visit April 5 to 11, 2009

Interviews 

conducted

13 users aged 14–17 in two focus groups

28 adult users

8 library administrators, branch 

managers, librarians, and other library 

staff

18 community stakeholders including 

library board, friends of the library, peer 

agency staff, government 

representatives, and community 

members

Web survey 214 completed surveys with 62 

respondents providing suggestions for 

improvements 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 40

Population Characteristics 

Incorporated in 1870, 

Fayetteville has a fairly 

homogeneous 

population that grew 

from just over 58,000 

in 2000 to 70,000 in 

2008 (U.S. Census 

Bureau n.d.-a). 

By race, Whites (83 

percent) make up the 

largest ethnic group in 

Fayetteville, with a 

much smaller 

population of Blacks or 

African Americans 

than the rest of the 

state (7 percent in 

Fayetteville compared 

to 16 percent for Arkansas). Hispanics or Latinos of any race compose about 5 

percent of Fayetteville’s population (significantly below the national average of 

15 percent; U.S. Census Bureau n.d.-a). 

Owing in part to sizable student population attending the University of 

Arkansas, Fayetteville has a smaller proportion of senior citizens than state or 

national averages; fewer than 8 percent of Fayetteville’s residents are over age 

65, compared to the state average of 14 percent and the national average of 

about 13 percent. Also likely related to the University of Arkansas, residents of 

Fayetteville exceed other residents of the state in their level of educational 

attainment. More than 91 percent of Fayetteville residents have at least 

graduated from high school, compared with 81 percent of Arkansans and 85 

percent nationally. Beyond this, Fayetteville residents are also highly educated 

with nearly 44 percent holding a bachelor degree of higher, compared with just 

19 percent of Arkansans and the national average of 27 percent (U.S. Census 

Bureau n.d.-a). 

The median household income in Fayetteville in 2007 was $40,255, lower than 

the national median of $52,175 and only very slightly above the state median of 

$39,127 (U.S. Census Bureau n.d.-a). Poverty rates in Fayetteville are slightly 

higher than the national average, but lower than the state average. 

Table 6: Fayetteville City Demographic Data*

Total population 70,401

Race White 83.1%

Black or African American 7.3%

American Indian or Alaska Native 0.7%

Asian 3.2%

Native Hawaiian or Pacific Islander 0.2%

Some other race 3.3%

Two or more races 2.2%

Hispanic or Latino origin (any race) 4.9%

Age 19 and under 28.7%

65 and over 7.6%

Language other than English spoken at home N/A

Median household income $40,255

Poverty rate (family) 11.7%

Unemployment 

rate

2006–2008 4.0%

2009 5.7%†

*

Source: U.S. Census Bureau n.d.-a. †

Source: Arkansas Department of Workforce Services 2009.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 41

Staff of the FPL noted that since the economic downturn, they have experienced 

an increase in general library use, and particularly in the use of public access 

computer terminals. Anecdotally, some of this increase in use is driven by 

households that have given up Internet access in order to economize in the face 

of reduced earnings, or, in at least one case, because of a higher monthly 

housing payment resulting from an adjustable rate mortgage. 

Employment and Business Climate

One of the reasons cited by respondents for Fayetteville’s frequent selection as 

a “best city” in various lists is its business climate and strong job market. Though 

the unemployment rate increased in 2009 to nearly 6 percent from only 4 

percent in 2008, overall Fayetteville remains lower than the statewide average 

of 7.3 percent and much lower than the national average of 9.3 percent during 

the same period (Arkansas Department of Workforce Services 2009). 

The city’s major employers are a mix of government, education, manufacturing,

and service industries, which helps keep Fayetteville’s economy resilient. The 

University of Arkansas, with 4,000 employees, is the largest employer, followed 

by Northwest Arkansas Mall, and Tyson Foods. (City of Fayetteville 2006). In 

addition, northwest Arkansas is home to the corporate headquarters of

Walmart and J.B. Hunt, three of the world’s largest employers. 

The FPL supports the business and nonprofit community by providing an 

extensive electronic library of business plans, a nonprofit resource center, and 

workshops on nonprofit management and funding. The nonprofit resource 

center is a grant-funded initiative and is available for use by staff and board 

members of nonprofits located in the four counties surrounding Fayetteville

(FPL n.d.-b).

Technology Infrastructure and Adoption

Arkansas ranks 49th in the nation in deployment of broadband Internet access,

which can create a major barrier for economic competition (Connect Arkansas 

n.d.). High-speed Internet access is available throughout the city of Fayetteville 

and most of the surrounding areas, although major sections of rural Washington 

County are not served by broadband providers. In 2007, the State of Arkansas 

conducted a survey that found 26 percent of residents in Northwest Arkansas 

have never used the Internet, which is only slightly less than the statewide rate 

of 29 percent. The rate of broadband access at home in Northwest Arkansas is 

likewise slightly less than the statewide rate: 40 percent of Northwest Arkansas 

residents report having broadband access at home compared with 42 percent 

across the state (Connect Arkansas 2008). 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 42

The survey report ,“Connect Arkansas”. noted that the likelihood of Internet use 

in Arkansas increases with income and other studies have shown a very high 

correlation between Internet use and higher educational attainment (Pew 

Internet and American Life Project 2009). With both income and educational 

attainment higher in Fayetteville than Arkansas as a whole, there is reason to 

believe that Internet use and broadband access at home is greater in the city of 

Fayetteville than the surrounding region.

Librarians at FPL noted that people who can only get dial-up Internet access 

often opt to forego access at home. Further, they contend that even in those 

outlying areas where broadband is available, the cost of subscribing is 

prohibitive for low-income households. There was general recognition among 

patrons, library staff, supporters, and others that FPL is providing a critically 

important service in Washington County. However, while computer and Internet

access at FPL is seen as an integral part of the area’s technology infrastructure, 

lack of public transportation to the library is a barrier for many who would 

otherwise benefit from the service. 

Future Outlook

The City Plan 2025, which solicited participation from people from all sectors, 

was adopted in 2006 and serves as Fayetteville’s comprehensive land use plan. 

More recent planning activities focus on economic development and identify

making Fayetteville competitive in the “Global Knowledge Economy” as the 

main strategy for attracting new businesses, thereby lowering reliance on sales 

tax for funding government services (City of Fayetteville 2008b). Among barriers 

listed for achieving this goal is a gap between the skills necessary to support 

knowledge industries and those of the current workforce. In addition, 

Fayetteville has limited technical education opportunities for high school 

students and adults (City of Fayetteville 2008a).

City leaders recognize the FPL as a key player in the city’s development, 

especially in terms of connecting residents with technology, both to build new 

skills and also to expose residents to other places and ideas, as expressed by a 

government official: 

We look at [the library] as an economic development tool. We look at it 

as access to public information, research. When we’re studying new 

ordinances in the city, we want the citizens to be able to come to the 

library and research best practices in other communities. We often cite 

this as the public space to be able to get access to information. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 43

Fayetteville Public Library’s Place in the 

Community 

The FPL has been a community and intellectual hub since its founding in 1916. It 

has continued to grow with the area’s population, with expansions into ever 

larger facilities in 1937, 1962, 1992, and 2004. In 1999, the Washington County 

Library System was established as a result of the dissolution of the two-county 

Ozark Regional Library System: the Talking Books service was split between the 

Fort Smith Public Library and the Arkansas State Library, and the space was 

converted into a 12-station computer center funded by the Bill & Melinda Gates 

Foundation. In late 2000, when the Washington County Library System moved 

to its own facility, the space was converted for staff and FPL Foundation use.

Despite these 

improvements, the 

library soon found that 

its facilities could not 

serve Fayetteville’s 

growing population 

and embarked on a 

capital campaign to 

build a new facility. In 

2000, voters 

overwhelming 

supported a 

temporary sales tax 

increase to fund the 

construction and Jim 

Blair, a Tyson Foods 

executive, donated $3 million toward the new building. Groundbreaking for the 

new building was held in April of 2002, and the 88,000 square foot library—

three times the size of the previous building—was completed in 2004. 

The new library has functioned as a space in which people gather in the event of 

emergencies. Library staff helped many evacuees with government and 

insurance paperwork and assistance in finding family members after Hurricane 

Katrina in 2005. More recently, the mayor of Fayetteville, Lioneld Jordan, 

praised the library for its emergency response to a devastating January ice 

storm: 

The FPL was instrumental in assisting the community during the 2009 

ice storm by providing a phone-charging center, a community gathering 

place, providing an escape from a harsh reality, providing warmth when 

Table 7: Library Characteristics and Use

Urbanicity City, small

2008 legal service area population 58,047

Number of branches 0

Staffing 

levels

Total staff 44

All librarians 19

MLIS librarians 12

Population per librarian 3,001

Number of Internet terminals 92

Population per Internet terminal 631

Visits 580,361

Circulation transactions 951,872

Annual Internet terminal uses 140,099

Visits:uses 4:1

Transactions:uses 7:1

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 44

so many people were without power, providing computer access when 

people couldn’t find information, and providing a sounding board for 

many people who simply needed someone to listen to them. Thank you 

FPL for all you do for our community. (FPL 2009a)

Current State of Affairs 

The new building is the most visible manifestation of the achievements of 

Louise Sharper, the director of the FPL at the time the U.S. IMPACT Study field 

visits were conducted, and of the library staff and volunteers who energized the 

FPL and made it more attractive to the community as a social and intellectual 

gathering place. These efforts were recognized in 2005 by Library Journal which 

named FPL Library of the Year. FPL was also recognized in 2006 by TravelSmart

newsletter as one of “15 Landmark American Libraries” (Fayetteville Public 

LIbrary n.d.-a). The current director is Shawna Thorup, who continues to keep 

the library a strong center of the community. The demand for library services is 

growing as the city of Fayetteville grows, and the library hopes to meet 

community need by opening one to two branch libraries in the future.

Mission

The mission of the FPL is to “strengthen our community and empower citizens 

with free and public access to knowledge.” The goals the library has set to meet 

its mission include developing and delivering quality, customer-focused service; 

using technology to maximize information access and continually improve 

efficiency of operations; and meeting the lifelong learning, cultural, scientific, 

and business needs of its diverse community of families and individuals. 

FPL’s administrators and staff see public access computers and Internet access 

as core to its mission, and as especially critical to area residents who do not 

have access at home. The role of the computers, one librarian explains, is “to 

enrich their lives, to help them grow and to find jobs, to develop their skills, to 

help them in the 21st century.” The library administration is also dedicated to 

seeking out “greener technologies” for the library with a goal of greener public 

access computing.

Patrons also believe public computing should be provided by libraries as an 

integral part of the library’s mission. One web survey respondent, who lives in a 

small town where the library only has five public computers with a one-hour 

time limit, pays “a fee to use the computers [at Fayetteville]. I think all libraries 

should have enough computers for the people who need to use them. I am 

unemployed and use the Internet to file for unemployment and apply for jobs, 

as well as for email and personal interests. One hour is not enough.”
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 45

Funding Sources

The FPL is an independent 

organization deemed “quasigovernmental” by the Internal 

Revenue Service, as the mayor 

of Fayetteville selects its board 

members. For FY 2008, 80 

percent of the budget came 

from the city, which is heavily funded through sales tax, and from a special 

library property tax. The remaining operating revenue came from fines, fees and 

other charges, donations, and a small contribution from the Arkansas State 

Library.

FPL’s expenditures per capita are about the same as those in Oakland, 

California; however, they rely on less local funding for their budget. The FPL

Foundation is the fundraising arm of the library and contributed over $150,000 

to the library’s operational budget. 

Community Relationships

Staff and supporters of the FPL expressed a desire to do more outreach to some 

of the smaller population segments in Fayetteville. In particular, they are 

interested in trying to engage the relatively small senior citizen population, who 

may be intimidated by technology and need more help getting online. Making 

the library more friendly and relevant to Fayetteville’s growing Hispanic 

population is also a priority for the staff. The library advertises the classes it 

offers in print and on television, radio, and online but does not pay to run 

advertisements.

Political Context

At the time of the case study visit, the city of Fayetteville was in strong financial 

shape and not facing any cuts. However, city leaders were concerned about 

relying on sales tax, encouraging good growth, and containing the cost of citysponsored programs. The library has tremendous support in Fayetteville, both 

from its citizens and elected officials. According to one city official, the mayor 

“believes that the basis of everything is education and the library touches every 

aspect of that,” and he also considers the library one of six basic but essential 

services—the others are police, fire, water, sewer, and trash collection. Another 

city official reflected on the value of the library for economic development:

I feel like any time you have a library that offers the things this library 

offers to the public, it enhances the quality of life and in turn brings 

Table 8: FY 2008 Operating Revenue

Total income $3,825,427

Local government 79.8%

State government 3.4%

Federal government 0.0%

Other income 16.8%

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 46

people here to work and to find jobs, and businesses to locate here. I 

definitely think there’s a relationship that way.

Computer and Internet services are a key part of the value policymakers see in 

the library, especially in terms of helping people connect with others and learn 

new skills. This recurrent theme was expressed by another city official:

I think the strongest value of the library is providing an opportunity to 

be engaged and connected. A lot of families in our community don’t 

have the opportunity otherwise, especially low-income families. We 

have a fairly good computer lab, but more than that, a lot of those 

families don’t have the skills to use those tools as effectively. This library 

goes to extra lengths to host workshops and provide training. They do 

that free of charge to really make that a tool for the community. 

Though universally supportive of the library, city officials interviewed during the 

U.S. IMPACT case study visits also expressed concern about the cost of 

government and a need to keep library expenditures low. Providing them with 

evidence of the benefits of public technology, especially in removing barriers 

and increasing innovation, was seen as important in efforts to gain political 

legitimacy and support. Computer training opportunities at the library, in 

particular, were seen as highly valuable.

Relationships with Supporters

The FPL is supported by a board of trustees, the Friends of FPL, and the FPL

Foundation. The Library Board of Trustees serves as a liaison between the 

library and the city and ensures the library meets the informational, 

educational, and recreational needs of the community. Vacancies on the board 

are appointed by the mayor with the approval of the city council; trustees serve 

staggered five-year terms. 

The Friends of the FPL and the FPL Foundation provide support and assistance 

to the library. The Friends operates the Friends bookstore and provides funding 

for the “extras” not covered by public money, such as special programming for 

adults, teenagers, and children; expanding collections and electronic resources; 

and building improvements. The FPL Foundation also provides support for 

collection development and programming through private donations, bequests, 

grants, and business donations. 

Peer Agency Relationships

One of the library’s goals is to enhance services, expand resources, and increase 

visibility by pursuing mutually beneficial partnerships with other libraries, 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 47

government and community agencies, education institutions, business and 

industry, and the public. FPL has at least 70 partnerships with local organizations 

who it works with throughout the year on programs for youth, adult literacy, job 

seeking, leadership skills, and lifelong learning. The library’s administration sees 

these partnerships as a way of leveraging its resources to provide better service 

to the public so building them is a priority. 

It is particularly active with the Chamber of Commerce and the nonprofit 

community, providing space and training in cooperation with both. FPL also 

received three years of funding from the Care Foundation for access to a 

nonprofit database and for its nonprofit resource center.

The computer lab at the new library has proven to be an especially important 

resource in FPL’s partnerships. Both agencies and community groups have used 

the library’s computers for classes ranging from basic computer skills to 

genealogy research. 

FPL takes great care in identifying community groups and working with them to 

serve their particular needs, whether it is for meeting room space, instruction 

from librarians, or computer access. Making these connections has helped keep 

its visibility in the community high and has increased its political legitimacy. 

Interdependence between the Library and Community-Based 

Organizations 

Though some social service groups in Fayetteville provide computer access,

often that access is limited to a specific type of use or for a limited amount of 

time. Library staff reported that for clients of these agencies, the library

provides broader access, particularly on weekends and evenings when the 

agencies are closed. 

An indirect benefit expressed by several staff members from peer agencies that 

provide computers and Internet access for limited purposes is reduced stress 

and demand on their time. One staff member from an employment agency that 

provides computers for job searching explained:

[Having the library here] reduces my frictions of having to tell people 

you have to quit doing what you’re doing on the computers, [because I 

can tell them they can] go to the library and do that. That helps our 

workload in that sense that we don’t have to monitor as much, 

watching people, what sites they’re on. And that helps us in the long 

run so that we don’t have those folks coming in to the office to do 

things they’re not supposed to be doing.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 48

Public meeting space was an important service for all the public libraries visited 

by the U.S. IMPACT Study; Fayetteville was unique among them, however, in 

providing the use of its computer lab for a peer agency’s classes. 

Library Characteristics 

Budget

The majority of FPL’s expenditures, 67 percent, went toward personnel services. 

Fourteen percent went to books, audiovisual materials, and e-resources; 19 

percent to other expenditures, including services, charges, and maintenance. 

The library’s administration estimates that about 7 percent of the library’s 

budget supports the public access computer terminals and Internet access 

across these budget categories. In terms of per capita expenditures, Fayetteville 

was closest to Oakland, California, and well above the $36.51 average for single 

outlet, small city libraries. FPL was not facing a budget shortfall or cuts at the 

time of the U.S. IMPACT field visit; however, like most libraries, funding was 

tight and had to be balanced against competing priorities. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 49

Personnel Practices 

FPL had 44 employees in 

2008, with 15 librarians, 10 

of whom had master 

degrees in library science 

from ALA-accredited 

institutions. This is an 

increase from 2005, when 

there were just 35 full-time 

employees. An increase in 

staff has helped realize the library’s strategic plan of offering quality customer 

service and attentive staff who aim to provide courteous and complete 

attention to all inquiries and suggestions, as well as accurate and timely service.

The library’s pledge of quality customer service helps keep the focus on the 

needs and priorities of the local communities. 

In 2008, FPL had one librarian per 3,001 people in the library’s legal service area, 

the best ratio of the case study sites and well below the average of one librarian 

per 6,582 people for small city libraries. The library continues to try to expand 

staffing levels while working within fiscal constraints.

FPL has dedicated technology staff consisting of a director, systems 

administrator, and a part-time work-study staff. Having its own IT staff helps the 

library keep up with current technology and seek out new “green” technology to 

use for public access computing. 

Staff Training

FPL’s administration feels that keeping staff trained and up to date on 

technology is important to the library’s success. Even though there is in-library 

IT staff, other staff members feel librarians need more IT and technology skills 

to stay relevant and to effectively help patrons. To help meet these training 

needs, some library computers that have been taken out of service have been 

repurposed to create staff-training stations. 

Volunteers

FPL has an active volunteer community that is critical to fulfilling its mission and 

it is overseen by the volunteer services manager. FPL volunteers put in 13,826 

hours in 2009 through participating in a variety of capacities including in the Sit, 

Stay, Read Therapy Dog Program; as Library Greeters and Library Patrol, 

delivering books to homebound patrons; shelving audiovisual materials; acting 

Table 9: FY 2008 Expenditures

Total expenditures $3,124,347

Staff (salaries and benefits) 67.4%

Print collection 10.1%

Electronic collection 1.2%

Other material expenditures 2.4%

Other operating expenditures 19.0%

Expenditures per capita $53.82

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 50

as tour guides; gardening; and reading to preschool children (FPL 2009b). 

Volunteers from the Friends of FPL also run the bookstore. 

Like the Enoch Pratt Free Library in Baltimore, Maryland, FPL has a high degree 

of volunteer involvement across many library functions, but has a more limited 

role for volunteers around public access computers. Students from the 

University of Arkansas and other volunteers help with one-on-one patron 

computer training and monitoring the computer lab. However, though 

volunteers help relieve some time pressures on librarians, using volunteers to 

help computer users has been challenging, particularly around maintaining a 

regular schedule of when one-on-one help from volunteers is available. 

Evaluation

The FPL tracks statistics related to visits, circulation, reference, program 

attendance, and the number of computer sessions. These numbers are 

compared both to the national average and to the benchmark average of seven 

other libraries, and are used in the library’s annual report and in 

communications with funders and other stakeholders.

To inform the library’s strategic plan, FPL consultants interviewed community 

representatives, local officials, and library staff. Findings of these interviews 

informed the strategic plan’s five main areas of focus: improving and extending 

access to library collections and services; developing and maintaining a 

materials collection that is responsive to the needs and demands of the 

community; defining essential activities and service levels; promoting the 

contributions and value of the library to the greater Fayetteville area; and 

seeking funding sources that are reliable, sustainable, and adequate to carry out 

the library’s mission. 

Operational Context

Physical Infrastructure

FPL’s new building quickly became a community hub and intellectual center 

after opening in 2005. The $23.3 million, 88,000 square foot library was funded 

through sales tax and private donations and tripled the size of the previous 

facility. The library now provides an inviting setting for both traditional and 

21st-century library services and is the first building in Arkansas to be registered 

with the U.S. Green Building Council’s Leadership in Energy and Environmental 

Design (LEED) certification program. 

The new library includes a café, bookstore, and seating for individuals or small 

groups throughout the building. There are multiple meeting rooms, an 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 51

automated book drop, a book conveyor sorting system, self-checkout stations, 

and a theft detection system. The media and magazine wing is a particularly 

comfortable space with a panoramic view of the Ozarks that invites patrons to 

read and use their laptop computers. The children’s library is also a busy hub of 

activity within the library with many resources available for younger children, 

including the Anderson Imhoff Read Aloud Room—where the Sit, Stay and Read 

Program helps emerging readers gain confidence by reading to registered 

therapy dogs—a puppet theater, and several small meeting rooms. According to 

library staff, the children’s library serves an active community of homeschoolers 

and also provides space for tutors to work one-on-one with children.

FPL has an advantage to the Pratt (Baltimore, Maryland) and Oakland

(California) libraries, as well as many older libraries across the country, in that its 

space was designed to provide the best possible layout for the multiple uses 

modern libraries are expected to accommodate. In particular, spaces for public 

access technology were thoughtfully incorporated into the building plan, which 

not only gives users more space, but also makes it clear that technology is fully 

integrated into all library services. For most users interviewed during the U.S. 

IMPACT field visit, FPL’s environment was welcoming and accommodated their 

needs. Clearly, this sentiment is shared by many residents of Fayetteville and 

the surrounding areas: visits to the library have tripled and circulation, program 

attendance, and the number of registered borrowers have all significantly 

increased since the new building opened. 

Technological Infrastructure

At the time of the U.S. IMPACT Study visit, FPL maintained 65 public access 

computer terminals throughout the library. These terminals are concentrated in 

the second floor computer lab and their use is restricted to adults. Other 

terminals for adult use are located near the entry area, café, and reference 

areas, as well as terminals in the genealogy section and nonprofit resource 

center. All the computers are personal computers with the Windows XP 

operating system and the complete Microsoft Office suite. Users can save their 

work either by emailing it to themselves or using a portable storage device such 

as a flash drive. FPL has begun lending mini-laptops (netbooks) to adult patrons 

for in-library use and for 2-week periods out of the library. Several printers and 

copiers for public use are located near computer terminals. 

The children’s library’s “Star Island” has computers for children aged 5 or 

younger that are loaded with interactive educational games, but are not 

connected to the Internet for browsing. Older children, up to age 12, have the 

use of 15 computers in a lab located within the children’s library. FPL has also 

thoughtfully provided one computer for parents to use while their children are 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 52

occupied with the children’s computers or other programming; librarians also 

note that parents frequently borrow the library’s mini-laptops to use while 

watching their children. 

The young adult section, located on the second floor, has five Internet

computers for use by children aged 12 to 18 years old. Not surprisingly, it was 

noted by staff and youth in focus groups that this is an insufficient number of 

computers for teenage users, and that teenagers often have to wait for a 

terminal, especially on weekends or after school. An expansion of the young 

adult area was slated for 2010 and was to include a Macintosh-based 

technology center with 16 desktop terminals and 12 MacBooks for in-library 

use. 

The computer lab houses 26 unfiltered computers in the center of the second 

floor. Users must be 18 or over to use the computers in the lab, and two 

computers have assistive technology. Time limits are two hours per day per 

user. 

Most of the patrons interviewed by the U.S. IMPACT researchers relied on the 

FPL for all of their computer and Internet needs, though more than 90 percent

of users who responded to the web survey indicated they had also had access at 

home. Patrons without alternative access reported using library computers for a 

full range of tasks including corresponding with friends and family through email 

and social networking sites, shopping online, and keeping up with current 

events through news websites. These patrons tended to use library computers 

nearly every day and for the most part did not have plans to purchase 

computers for their homes, either because of cost or, in the case of some older 

users, because they did not feel comfortable enough with the technology to 

maintain it themselves. One user had written two published novels on FPL’s 

public access computers and was completing her third at the time of the visit.

Users with or without alternatives for computer and Internet access used the 

library’s terminals for researching health or employment information, and many 

completed job applications online at the library. The library was considered an 

“office away from the office” for some with alternative locations for Internet

access as it provides a quiet sanctuary where users can get work done without 

the distractions they might encounter at home or work. For younger users, the 

library provides an escape from distracting siblings and is also more convenient 

for completing homework assignments as librarians and other resources are on 

hand to help them, as two 17-year-olds discussed in one of the youth focus 

groups:
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 53

Uri: When I’m writing things, just like for recreational reasons, it’s better 

to come to the library than to be at home because it’s required to be 

quiet and you can function a lot more because there are no distractions 

around you. The library’s a nice place to come when you don’t want 

people to talk to you.

Jelena: Well, I live like 30 miles away from here, so sometimes we go 

into school and I’ll need to hang around for an hour or two and hey, 

let’s go to the library and while I’m there I can do homework and 

sometimes check my email and that kind of stuff.

There are no time limits for using the wireless access at FPL. Wireless Internet is 

filtered because it is available from anywhere within the building, including 

children’s areas. The only nonfiltered computers are in the computer lab where 

one must be 18 or over and in the business/genealogy section on the second 

floor. 

For the most part, users interviewed during the field visit were highly satisfied 

with the public access technology resources and services provided by the FPL, 

but some indicated that time limits, the number of computers available, content 

filters, and having to save their work to personal storage devices were barriers 

to accomplishing their goals. Web survey respondents were also pleased with 

the library’s public technology: 87 percent reported they were very satisfied or 

satisfied with public access computers and Internet connections, though some 

of these respondents also suggested that the library add more computers, 

especially for teenagers. 

The public access computers and Internet access available at the FPL are clearly 

valuable resources for the entire community, regardless of age, race, or income. 

The users in Fayetteville were more diverse in terms of income than the users in 

the other locations visited by the U.S. IMPACT Study, and at least among those 

interviewed, the city had a higher proportion of users with access to computers 

and the Internet elsewhere. That the library is an inviting space, has faster 

Internet connections than what may be available in the area, and has librarians 

available to help with technical questions or finding information drives many 

people in Fayetteville to use the library rather than other options they may have 

available. For those without Internet access at home, the FPL is the only 

dependable point of access in the area. 

Patron Demand

Since the new Blair Library opened, library visits have tripled, and that increase 

is also reflected in the use of library computers. Even with greatly expanded 

resources and services, users sometimes have to wait for a computer, though 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 54

both users and staff agreed that it is only a problem during peak periods in the 

afternoon and on the weekend. Carl, a patron, notes that around the computers 

there are “crowded conditions. Sometimes in the afternoon, they are all full.” 

Weekends are a busy place in the computer lab. According to users, Sunday is 

the busiest day for computer usage and often people wait for computers to 

become available. 

Teenagers appear to be impacted by congestion more than adults or younger 

children because they are restricted to using the five computer terminals 

located in the young adult area. This is especially frustrating for teenagers when 

computers are vacant in other areas of the library, as 15-year-old Lance 

explains:

I am personally limited to the five computers in the top of the library [in 

the teenager center] because of my age. Sometimes they’re full and I’ve 

had times when there was no Internet at all on them. Most of the kid’s 

center down at the bottom, I’ve never seen it half full and I think it 

should be more open.

The library employs several strategies for addressing excess demand, including 

using session management software to reduce session lengths and providing 

mini-laptops for in-library use so patrons can be seated in other areas of the 

library. This is especially helpful in the teenager area where there is not enough 

surface area for installing stationary terminals. Several Fayetteville teenagers 

and adults discussed surrendering their sessions to others when the library 

computers are full. Fayetteville was the only library where the researchers 

encountered this type of altruism toward their fellow users, even though many 

users at all four case study libraries discussed helping other users find 

information or complete tasks. Jared, a 49-year-old, explains his thinking:

Sunday is the only time it’s a rat race around here. You got people 

running around like a chicken with its head cut off. Then there are a lot 

of people standing in line for the computer and then a lot of times I feel 

guilty and I just get off because I want them to get access to it to. A lot 

of times if they stand up there for 15, 20 minutes I’ll let them have it.

Use Policies: Time Limits, Filtering, and Behavior Standards

The library uses access control software to manage and enforce time limits on 

public computer sessions. Users log on to computers using valid library card 

barcodes and are allowed a total of two hours of computer per day use on a 

first-come, first-served basis. The library does not allow patrons to reserve 

computers in advance. Patrons can use their two hours of time at one sitting, 

unless the lab is at more than 70 percent capacity, at which point the access 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 55

control software limits each session to one hour; users can logon for their 

second hour when a terminal is available.

The library also has several stand-up, 15-minute express stations for patrons 

who want quick access to the Internet. However, the express stations can cause 

some patron confusion, as noted by patron Jareb: 

A lot of people don’t know you get kicked off after 15 minutes. I’ve seen 

a lot of people get mad. ”Why’d they kick me off?” And I say, “Did you 

know that it’s for 15-minute sessions?” I think they should have a big 

sign that says for 15-minute sessions. Because I’ve seen a lot of people 

cuss at the computer or at people for no reason. Well, I guess it is a 

reason to them.

Fayetteville does have flexibility with its time limits. Librarians can extend 

sessions for certain uses, such as business-related research. Staff find that the 

session management software is difficult for some patrons to manage, but 

overall it allows for flexibility to best serve the needs of patrons.1

A valid library card is required to access FPL’s computer and Internet services. 

However, a one-day visitor’s pass is available for such library users as business 

travelers or vacationers. No library card is required for wireless access. Library 

cards also serve the purpose of restricting access to computers intended for 

specific users. For example, an adult attempting to log onto a KidTech computer 

would be refused access as he does not fit the 6- to 12-year-old age criteria, and 

a child could not attain access to the unfiltered computers found in the 

computer lab.

Fayetteville has policies stating one patron per computer to regulate behavior, 

which are enforced to varying degrees. Some teenage patrons notice that one 

“problem, other than the trusty computer drama at the library, is every once in 

a while there will be a group of three people that will sit in three of the chairs by 

the computers and not use the computers and talk to each other. That is not 

fair.” 

Adults can choose unfiltered access while youth computers are always filtered 

at Fayetteville. The librarians also monitor the computers for inappropriate 

behavior. Fayetteville filters all its wireless access as a condition for receiving ERate funds. Some staff complained about difficulty of getting E-Rate funds and 

applying different levels of filtering to different types of access. One of the 

patron interviewees, Moses, wished the library filters were more accurate. 

 1 Since the time of the field visit, new session management software has been installed, 

and patrons appear to have much less difficulty in using the system.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 56

Patron Raya also described frustrations with the filter, noting that eBay was not 

accessible. Patron Adam does not like how MySpace is filtered, as he is unable 

to listen to songs that bands put on their pages, and Nancy cannot access 

information about her high school reunion because Facebook is blocked by 

filters.

2

[I was] trying to do some research on HIV/AIDS. I saw a story about a 

famine in southern Africa and was trying to follow some links to it and 

hit the censorship software. There are certain sites that you can’t go to 

in the library. I went to the librarian and said that I wasn’t trying to hit 

an X-rated site or a porn site. This was about famine. She adjusted the 

filter so I could use it. 

Another patron, Roberto, described a common frustration with filtering: 

While many case study participants wanted looser computer filters, patron 

Lydia found that “some people can still check the pornographic sites even 

though it’s an adult site. Some of the sites could be dangerous when used by 

someone who knows the tricks. The library needs to figure out what they really 

need to have on the computers and what not.”

Filtering and other restrictions on Internet content were discussed at much 

greater length and frequency by patrons at the FPL than at the Enoch Pratt 

Library in Baltimore, Maryland, which also applies content filters. It was unclear 

during the case study visit why filtering was a more contentious issue in 

Fayetteville, especially considering that the Pratt Library applies content filters 

to all adult computers, in addition to those used by youth. However, library 

administrators suggest that residents in Fayetteville have strong sensibilities 

around interference in free speech. 

Technology Classes and One-On-One Help

FPL provides free computer classes as part of its computer and Internet services. 

The Computer Boot Camp is a basic skills class, while the “One Click Away: 

Finding a Job” workshop speaks more specifically to employment concerns. By 

making computer and Internet training available, the library aims to alleviate 

much of the frustration felt by those who are new to this technology. 

Additionally, library staff find they have fewer requests for one-on-one help, as 

computer users become more independent navigating the Internet and filling 

out forms:

What we’re finding is that people are showing up with no skills on the 

computer and wanting to jump from A to T, you know, in their skill 

 2 Since the research was conducted, Facebook has been unblocked from the adult areas. 

It remains blocked in the children’s area and via wireless due to E-Rate conditions.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 57

levels and they’re really frustrated to have to learn B through S. They 

just don’t have time to learn all those skills. So they just want someone 

to come in and sit down with them and help them immediately become 

functional. What we kind of hope to do with that workshop is sort of 

skip all of this, “this is Word, this is a mouse, this is how you highlight.” 

We’re just going to skip all of that and go straight to applying skills to 

something that’s really important to them.

Users interviewed at the time of the U.S. IMPACT field visit indicated that for 

the most part they were self-sufficient as far as needing assistance on the 

computers; however, in the event that they did need assistance, the staff at FPL 

was extremely helpful and responsive to their needs.

Case Summary

The FPL experienced a surge in use associated with the opening of its new 

facility in 2006. Demand for public access computers and wireless Internet

access sometimes exceeds the library’s current capacity. However, the 

administration and staff of the library continue to try to meet patron needs by 

adding computers and experimenting with circulating laptops. The library’s 

focus on making and maintaining community connections, building 

partnerships, and being responsive to the changing needs of its patrons helps 

generate enthusiastic support from city leaders and residents and makes the 

library a visible contributor to the economic and social health of Fayetteville. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 58

3.4 The Oakland Public Library

The Oakland Public Library 

informs, inspires, and delights 

our diverse community as a 

resource for information, 

knowledge, and artistic and 

literary expression, providing 

the best in traditional services, 

new technologies and 

innovative programs. 

–OPL Mission Statement

We are the great equalizer, the library, for our range of materials and resources. 

We’re exposing people to the online world, the world of technology.

–Carmen Martinez, Director of Library Services

The OPL serves the city of Oakland, California, and was the third of four library 

systems the U.S. IMPACT research team visited. 

The City of 

Oakland

Situated on the east 

side of San Francisco 

Bay, Oakland, 

California, enjoys 19 

miles of coastlands to 

the west and rolling 

hills to the east. The 

city is connected to 

San Francisco by the 

San Francisco-Oakland 

Bay Bridge and serves 

as the county seat for 

Alameda County.

According to the Community and Economic Development Agency (CEDA), 

Oakland has a unique range of housing from elegantly restored Victorians from 

the late 1800s to modern multimillion dollar estates perched in the hills. 

Oakland remains a more affordable housing option than many Bay Area cities 

Table 10: Case Study Details

Study site visit May 10 to 17, 2009

Visit locations Main Library

Rockridge Branch Library

Eastmont Branch Library

César E. Chávez Branch Library

Asian Branch Library

Interviews 

conducted

13 users aged 14 to 17 in three focus 

groups

29 adult users

36 library administrators, branch 

managers, librarians, other library staff, 

and library board members

10 staff from peer agencies

Web survey 71 completed surveys with 28 

respondents providing suggestions for 

improvements 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 59

with a median home price of $230,500 in 2008 compared to $473,510 for the 

entire Bay Area, including San Francisco. 

As the city struggles with job creation, education, and poverty, criminal activity 

constitutes one of Oakland’s highest profile issues. Though there was some 

reduction in homicide and violent crime rates in 2007 and 2008, according to 

the CQ Press City Crime Rankings, Oakland was third in the nation for reports of 

certain violent and property crimes in 2009 (CQ Press n.d.). Crime, violence, and 

gang activities are a major focus of public debate and policy initiatives, with 

many different voices weighing in on the best ways to address the problem. 

Oakland’s police and community groups are actively experimenting with 

solutions including community policing and street outreach that connects at-risk 

populations with prevention programs and job training to address the 

underlying causes of violent crime.3

The OPL is not immune from the problems faced by the communities it serves.

Though librarians noted that the library is considered a safe place or neutral 

territory by most patrons, they also reported incidents of criminal activity inside 

and around the library. 

Population Characteristics 

The population of Oakland was an estimated 360,000 in 2008, a decrease of 

around 37,000 people from the 2000 census (U.S. Census Bureau n.d.-a). It is 

the eighth largest city in California and, according to the USA Today Diversity 

Index, is one of the two most diverse cities in the country (Oakland Community 

and Economic Development Agency n.d.-a). Thirty-seven percent of the 

population is White, 30 percent are Black or African American, 16 percent are

Asian, 13 percent identify as some other race, and 4 percent are of mixed racial 

background. People of Hispanic or Latino origin, regardless of race, make up 25 

percent of the population, which is less than California’s overall Hispanic or 

Latino population of 36 percent, but significantly more than the national 

average of 15 percent. Oakland is also home to a large immigrant population: 28 

percent of residents were born outside of the United States, and nearly 40 

percent speak a language other than English at home, both well above the 

national average, though less than California’s average for these populations. Of 

those speaking a language other than English at home, 56 percent spoke 

Spanish and 44 percent spoke some other language; 57 percent reported that 

they did not speak English “very well” (U.S. Census Bureau 2008).

 3 For two examples see: East Bay Alliance for a Sustainable Economy, Ella Baker Center 

for Human Rights, and Urban Peace Movement (2009) and Oakland Police Department 

(2010). 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 60

Of the population over the age of 25, Oakland has a smaller proportion of high 

school graduates than the national average (78 percent in Oakland compared 

with the national average of about 85 percent); however, Oakland has a higher 

proportion of its 

population holding a 

bachelor degree or 

higher level degree 

than the national 

average (35 percent in 

Oakland compared 

with 28 percent 

nationally). In 

Oakland, an 

estimated one in four 

English-speaking 

adults (approximately 

80,000 people) can 

neither write clearly 

nor fully understand 

what they read (OPL

2009b). Nineteen

percent of adults in 

Alameda County, which includes Oakland, are rated as below basic prose 

literacy, compared to 14 percent of the U.S. population on the 2003 National 

Assessment of Adult Literacy (National Center for Education Statistics 2003). 

The poor educational outcomes and literacy skills are a major problem in 

Oakland, adding to already high levels of unemployment and poverty. While the 

median household income is $48,596, over 15 percent of Oakland’s families live 

below the poverty line, well above the California and national averages of 9.6 

percent (DeNavas-Walt, Proctor, and Smith 2009).

To help improve opportunities for residents with limited literacy, the OPL

maintains the “Second Start Adult Literacy Program,” which provides free skills 

assessment, one-on-one tutoring, and classes in reading, writing, math, and 

spelling (OPL 2009b). Since its inception in 1984, the program has helped over 

5,000 adult learners improve their literacy skills. 

Employment and Business Climate

Unemployment is a serious problem in Oakland. Already high in 2008 with a 9.5 

percent unemployment rate, it jumped to an estimated 16 percent in 2009; the 

national average was 9.5 percent during the same period (U.S. Bureau of Labor 

Table 11: Oakland City Demographic Data*

Total population 362,342

Race White 36.9%

Black or African American 29.8%

American Indian or Alaska Native 0.6%

Asian 15.6%

Native Hawaiian or Pacific Islander 0.5%

Some other race 12.9%

Two or more races 3.7%

Hispanic or Latino origin (any race) 25.2%

Age 19 and under 25.6%

65 and over 11.0%

Language other than English spoken at home 39.8%

Median household income $48,596

Poverty rate (family) 15.3%

Unemployment 

rate

2006–2008 8.7%

2009 16%†

*

Source: U.S. Census Bureau n.d.-a. †

Source: U.S. Bureau of Labor Statistics 2009.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 61

Statistics 2009). Currently, the service industry employs almost half of Oakland 

residents, with retail trade and manufacturing accounting for about 20 percent 

of employers. Other employment sectors represented in the area include 

finance, insurance, and real estate (6.5 percent); transportation, warehousing, 

and utilities (6.2 percent); construction (6.0 percent); information (4.6 percent); 

and public administration (4.5 percent) (Oakland Community and Economic 

Development Agency n.d.-a). Major employers in the area include Kaiser 

Permanente Hospital, Clorox, and Dreyer’s Grand Ice Cream. 

Though the CEDA is active in developing strategies for economic growth, it is 

clear that a great deal of long-term work and investment will be necessary to 

improve the outlook and quality of life for Oakland’s residents. In this 

discouraging environment, OPL stands out for its dedication to providing 

residents with meaningful tools and opportunities for bettering their 

circumstances.

Technology Infrastructure and Adoption

Downtown Oakland is home to a vast telecommunications network with 

hundreds of miles of fiberoptic cable underground (Oakland Community and 

Economic Development Agency n.d.-b). The major telecommunications 

company is Comcast, which provides cable and Internet to customers. The City 

of Oakland provides a wireless hotspot in the Frank Ogawa Plaza in downtown 

Oakland to foster a business- and technology-friendly environment, and some 

local coffee shops and businesses also offer customers wireless access, but with 

the closure of the Eastmont Computer Center, OPL is the only location for free 

access to both computers and the Internet in the area. 

Future Outlook

Struggles with poverty and crime, as well as the poor fiscal outlook for California 

as a whole, may present serious challenges Oakland’s near-term economic 

recovery. 

However, the city has several unique attributes that may help it mitigate some 

long-term financial problems. Oakland’s diversity of businesses, industry, 

ethnicities, races, and income levels make the city a vibrant place to live and 

work. Further, community and business leaders have been successful in 

cultivating private investment and bringing in new businesses to the city. In 

recent years, public and private investment has driven more than 75 major 

development projects, including market-rate residential housing to achieve 

former Mayor Jerry Brown's goal of attracting 10,000 new downtown residents

(Oakland Community and Economic Development Agency n.d.-c).
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 62

Oakland Public Library’s Place in the 

Community

The OPL began as the Oakland Free Library in November of 1878. OPL serves a 

population of nearly 450,000 with a main library, 15 branches, the African 

American Museum and Library at Oakland (AAMLO), the Second Start Adult 

Literacy Program, the Tool Lending Library, and a bookmobile. The library 

branches are spread throughout Oakland, with the Central Library, AAMLO, and 

the Asian branch located downtown near Bay Area Rapid Transit stations. The 

library-run Second Start Adult Literacy Program provides confidential adult basic 

education (OPL 2009b). The Temescal Tool Lending Library provides carpentry, 

gardening, plumbing, and electrical tools as well as how-to books and videos

(OPL n.d.). Computers and Internet services were introduced in 1995 and 

wireless began to rollout in 2007 with all branches having wireless capability by 

2009.

Current State of Affairs 

The main library is located at 125 14th Street and is open to the public seven 

days a week. All 15 branch libraries are closed on Sunday and Mondays; hours of 

operation vary from branch to branch. The library system has 174 public 

Internet terminals and 

wireless Internet

access at all branches. 

Carmen Martinez has 

been the Director of 

Library Services since 

2000. Library 

technology 

advancement during 

her directorship 

includes increasing the 

number of public 

access computers, 

installing WiFi at the 

main and branch

libraries and AAMLO,

the introduction of eBooks offered via the Internet, live chat and reference 

service using email, and the TeenZone at the Central Library, which now offers 

teenagers use of the only Apple iMac computers available in the OPL System 

and the City of Oakland. 

Table 12: Library Characteristics and Use

Urbanicity City, large

2008 legal service area population 441,010

Number of branches 16

Staffing 

levels

Total staff 251

All librarians 85

MLIS ibrarians 85

Population per librarian 5,188

Number of Internet terminals 174

Population per Internet terminal 2,756

Visits 3,240,395

Circulation transactions 2,270,755

Annual Internet terminal uses 370,694

Visits:uses 9:1

Transactions:uses 6:1

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 63

Beginning in November 2008, a budget shortfall for the city of Oakland forced 

the library to institute mandatory shutdowns and cutbacks in branch hours. 

These budget problems continued through 2009 and 2010. Even as the library 

faced cuts, it saw increased demand for services, especially for the library’s 

computers and wireless Internet access. Librarians report that more people 

from higher income levels seem to be coming to the library, perhaps to save 

money on home Internet connections. In addition, cutting branch hours has had 

ripple effects in surrounding communities, where cutbacks at social service

agencies have pushed more people to use the library’s resources, even as it is 

open fewer hours to serve them. 

Mission

The OPL’s mission is to inform, inspire, and delight its diverse community as a 

resource for information, knowledge, and artistic and literary expression, 

providing the best in traditional services, new technologies, and innovative 

programs. The library administration further stresses the importance of training 

patrons on public computing as a part of the library’s mission and the 

importance of engaging early and low-skill users. One library supporter shared 

his views of the importance of computer and Internet access in terms reflected 

in interviews with other supporters, staff, peer agencies, and the library’s 

administration. He speaks to issues of justice, equity, and the importance of 

digital inclusion to our society:

It’s ensuring that we’re doing what we can to minimize the 

differences that exist between those who have access to the 

computers and Internet and those who don’t. And I think that 

given the increasingly important roles that computers and the 

Internet play in our society, it’s very important that all people 

have access to that. So I think there are a whole host of issues 

relating to inequality and injustice that are directly addressed 

by expanding access to the Internet and the computers.

Still, there is some tension about where the library’s priorities lay. As staff 

struggle to provide patrons with the services they expect, many see the role of 

the librarian evolving to keep pace with the needs of the community, while 

others are concerned that electronic resources are displacing traditional 

services. One staff member expressed her concerns this way: “Many times, 

librarians are last to jump on a bandwagon—they are here in Oakland—

probably more than any other organizations; they really hold on to the historical 

significance of their profession.” 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 64

Regardless of personal feelings toward technology, there was wide agreement 

that access to computers and Internet services is essential to Oakland’s future 

as a viable community for its citizens. As one librarian noted, this is especially 

important for providing opportunities for young people: “Just having children 

that are exposed to these kinds of technologies you could extrapolate and say 

that the entire community is in a better position.” 

In the midst of the economic downturn, OPL responded by setting up job 

centers as another way of contributing to and enhancing the local community. 

However, with the library impacted by the recession as much as the area it 

serves, librarians have found it difficult to keep up with the demand.

Funding Sources

OPL receives the bulk of its funding from the city of Oakland, which is currently 

in a dire budgetary situation. The city had to address a $91 to $97 million annual 

general purpose fund shortfall in FY 2009 to 2011 (which is between 18 and 19 

percent of the baseline budget). This shortfall was on top of the $42 million 

budget gap balanced in November 2008 and further adjustments made in May 

2009 to avoid an $8 million shortfall (City of Oakland 2009). As a result, the 

library, along with other municipal departments, suffered an across the board 

budget cut of 20 percent.

In a struggling city, the current 

funding structure for OPL

provides for only the bare 

basics of service and very 

limited options for capital 

projects. Of the local funding, 

44.6 percent ($10,580,021) 

comes from the city of Oakland and 55.4 percent ($13,153,914) comes from a 

special parcel tax known as Measure Q. Passed in 2004, with 78 percent of 

voters in favor, Measure Q was the reauthorization and increase of a dedicated 

parcel tax to bolster library funding. Though the funding from Measure Q is 

more stable than that provided by the city of Oakland, it is still very vulnerable 

to fluctuations in city funding. Further, Measure Q funds are restricted to 

operational expenses and so cannot address the need for structural 

improvements and other capital projects the library needs in order to maintain 

services. OPL receives only a small amount of support from the state and federal 

governments and from fundraising. 

Table 13: FY 2008 Operating Revenue

Total income $23,821,646

Local government 98.8%

State government 0.7%

Federal government 0.5%

Other income 0.0%

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 65

Political Context

The library is a department of the city of Oakland and is governed by an eightmember city council. The mayor, with approval by the city council, appoints the 

15-member Library Advisory Commission, which is also charged with oversight 

of Measure Q funds. While the Library Advisory Commission makes 

recommendations about library spending, it is ultimately the city council that 

approves those recommendations. 

OPL leaders maintain contact with city council members, the city administrator, 

and state legislators, sharing library newsletters, use statistics, and information 

about their services. They see this role as a major responsibility as it keeps the 

library connected to its major external stakeholders and helps remind them of 

OPL’s importance to the residents of Oakland. 

Relationships with Supporters

The Friends of the OPL provides money for books, programming, and 

scholarships for library staff to attend library school. Friends of the OPL 

provided grants to the OPL totaling $102,000 for FY 2009 to 2010. The Friends 

support during this period included $45,000 for an innovative new branch 

library scheduled to open in 2011 in East Oakland. In addition to the Friends of 

the OPL, local Friends’ groups provide support to the Elmhurst, Lakeview, 

Melrose, and Montclair branch libraries and the Tool Lending Library (Friends of 

the OPL 2010). 

Peer Agency Relationships

The OPL maintains relationships with a variety of peer community agencies, 

especially the Oakland Unified School District with which it is working to open a 

new branch in East Oakland. The Oakland Unified School District provided land 

to the city of Oakland in order to build the library, while the bulk of the funds 

come from a state grant ($6.5 million), with the next largest portion coming 

from the Oakland Coliseum Redevelopment Project Area ($4.7 million). The 

Friends of the OPL, foundations, individuals, and business have donated $3 

million for new furniture, fixtures, equipment, and books for the new library

(OPL 2010).

Staff from other local agencies interviewed during the U.S. IMPACT field visit 

stressed the importance of free access to computers and technology because

many of their clients lack access at home. The access available at the library has 

increased in importance because the Eastmont Computing Center, the main 

source for free access to computers and the Internet in Oakland besides the 

public library, had to close due to lack of funding. Though OPL does not have a 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 66

systemwide outreach or communication plan for disseminating information 

about the library’s computers or training courses, many of these agencies refer 

people to the library for housing, employment, and government assistance. 

Interdependence between the Library and Community-Based 

Organizations 

During interviews with OPL administrators and staff, community partners, and 

the users themselves, the research team identified a number of ways in which 

local agencies rely on public access computer services in the library. For 

example, the principal of one local charter school spoke about the fact that the 

school did not to have to maintain its own library or computer center because 

the facilities in the OPL were up to date and accessible. Other core local agency 

functions are carried out by library staff as well. Librarians reported providing 

more advice and assistance to teenagers coming to the library for help with 

searching for colleges and applying for financial aid after the district eliminated

most of its guidance counselor positions. In addition, the library has purchased a 

number of the subscription databases that the district could no longer afford. 

Librarians also report that classes are brought to the library to use the 

computers to research material for school reports. 

Though these types of demands were present in all of the communities studied 

during case study visits, the extent to which they occurred in Oakland was a 

more obvious strain on the library’s resources for two prominent reasons. First, 

Oakland is a struggling community with many of its residents needing assistance 

in securing basic services and benefits. Second, the agencies themselves have 

fewer resources to mobilize on behalf of their clients.

Library Characteristics 

Budget

The majority of Oakland’s budget, 78.8 percent for FY 2008 to 2009, was 

expended on personnel costs; 13.1 percent on operations and supplies, and 8.1 

percent on books and other materials. Oakland spends $54.02 for every resident 

within the legal service area, which is about $9 less per capita than Baltimore’s 

expenditures, but more than the $40.43 average for large libraries. 

Personnel Practices

Table 14: FY 2008 Expenditures

Total expenditures $23,821,645

Staff (salaries and benefits) 79.2%
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 67

In addition to the library 

director, OPL’s

management team is made 

up of managers from six

departments: community 

relations, grants and 

development, AAMLO, 

public services, support and strategic planning, and the financial and 

administrative services office. Within the public services department, libraries 

are broken into two branch districts in addition to the main library. OPL does 

not have its own IT staff, instead being served by the city’s IT department. In 

2008, Oakland employed 244 staff members, with 83 librarians who hold 

degrees from ALA-accredited institutions. 

All the library’s administrators and staff commented on budget problems faced 

by the city of Oakland, particularly because of its implications for staffing levels. 

OPL has the lowest number of librarians per capita of the four libraries visited by 

the U.S. IMPACT Study researchers but is still above the national average for 

large urban libraries, which is one librarian per 7,672 residents. Increases in use 

coupled with minimal staffing levels, increased numbers of vacancies, and little 

hope of adding to the library payroll have left staff frustrated and stressed,

though still maintaining their dedication to helping patrons. 

Staff Training

Due to Oakland’s budgetary limitations, staff are unable to receive computer 

training and in turn some staff are not comfortable with teaching technology 

skills to patrons. Some staff would like to see more training, as it allows them to 

better answer the new nature of questions patrons ask around the Internet and 

computers. 

Volunteers

Volunteers put in 17,063 hours during FY 2006 to 2007. Oakland uses students 

informally as computer volunteers and also gets some volunteers to provide 

more advanced training classes. Some partnerships may provide volunteers but 

they are not specifically for technology help and training. For example, some 

volunteers conduct story times at Head Start and other preschool organizations. 

Evaluation

The OPL tracks general statistics including total circulation, registered 

borrowers, library visits, public service hours, reference questions received, 

number of programs offered and attendance, the number of computer sessions, 

Print collection 6.0%

Electronic collection 1.1%

Other material expenditures 0.8%

Other operating expenditures 12.9%

Expenditures per capita $54.02

Source: Henderson et al. 2010.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 68

and the number of website visitors. In FY 2006 to 2007, the library saw 370,694 

computer sessions; it saw 391,240 in FY 2008 to 2009 (OPL 2009a). Total library 

visits increased from 3,094,268 to 3,340,395—a 7.4 percent increase. 

Operational Context

Physical Infrastructure

The OPL has a main library and 15 branch libraries. Oakland is most affected by 

problems of old branch buildings that have inadequate space, wiring, and 

electrical outlets. Some of Oakland’s branches lack restrooms. One unique 

branch is the Eastmont Branch, located in a former indoor shopping mall in East 

Oakland. In addition to the library branch and computer lab, the Town Center 

mall now contains social and community service agencies including Planned 

Parenthood, Social Security, Head Start, a diabetes clinic, a nutrition center, and 

police hub. 

OPL recently completed construction on a new branch, the Community Library 

at 81st Avenue, which opened in January, 2011. The new branch is located on 

the campus of the Acorn Woodland Elementary School and EnCompass 

Academy and is the system’s largest branch, providing services to a 

neighborhood that has long needed its own library.

Technological Infrastructure

According to the 2008 Public Library Survey, 174 public access computers are 

available systemwide. Patron use is limited to one hour per day. Computers are 

equipped with basic Microsoft software, including Word, Internet Explorer, and 

Windows Media Player. Because the library’s technology is maintained by the 

city, the library does not have much control over what types of computers or 

software are offered to patrons; for example, they cannot install the Firefox 

web browser on library computers. The main library and all branches have 

wireless Internet access.

The OPL is committed to providing access to people with disabilities and had the 

most visible presence of adaptive technology of the four libraries visited by the 

U.S. IMPACT Study researchers. The library has also invested in multilingual 

Microsoft software to appeal to the needs of its highly diverse community. 

While the library computers are mostly equipped with Windows operating 

systems, the Teen Zone at the main branch has several new Macs. 

The computers in the Teen Zone also have different software from those in 

other parts of the library and much more capability: the machines are equipped 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 69

with the Safari web browser and an expanded Microsoft Office Suite (Word, 

Excel, and PowerPoint). 

Several branch libraries in Oakland are Carnegie-era buildings and are not 

capable of handling more data lines. This infrastructure often interferes with the 

library meeting patron demand for bandwidth and more computers. In addition, 

because the computers are supported by the city IT department, when 

computers break down they do not always get fixed promptly. Likewise, library 

computers are replaced according to the city’s replacement schedule, which is 

every two to three years.

Patron Demand

OPL computers are always busy, especially on Saturdays, as explained by an 

administrator of the OPL: “We’re very busy, especially if you come on Saturday, 

you can’t even find a place to sit. Now it’s even worse because we have free 

WiFi so people come in with their laptops. Sometime they sit on the floor—you 

know—people all over the place.” 

Because of the intense competition for public access computers, librarians are 

reluctant to promote these services because there is no guarantee that they 

could accommodate an increase in demand. To work around the limitations of 

the physical space while acknowledging the importance of access to the 

community, the library was set to begin a test project with laptops in July 2009. 

These laptops were to be made available for a three-hour checkout within the 

library to reduce wait times and provide longer sessions. 

Use Policies: Filtering, Time Limits, and Behavior Standards

Though there is clearly excess demand for computers in the library, a closer 

examination of the context of complaints suggest that a significant problem 

patrons would like to be addressed is actually the short session lengths—the 

assumption implicit in suggestions for increasing the number of terminals within 

this context is that such action would lead to longer sessions, which is not 

necessarily true. OPL’s public access computers have a time limit of one hour 

per day, systemwide. Some patrons find the one-hour policy limits the types of 

tasks they can accomplish online. One patron, Mercedes, describes her 

frustration: 

You can only use it for an hour a day and that has been a challenge in 

the past, before I got my own computer. It's like, “Ok, I have to make 

sure that I can get as much work done as I can during that time.” 

Sometimes the Internet is kind of slow here. At least it was at the time I 

was using it regularly. Any kind of delay cuts into [what you can get 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 70

done]: if it takes you 20 minutes to check your email then that’s 20 

minutes of time that is gone that you can’t do some other work.

There are no time limits for wireless use; in fact, wireless is available at all times 

to anyone who brings a laptop near any library branch. Patron Ula, who is 22 

years old, brings her laptop with her to the library: “When I found out that they 

had the free WiFi I started coming more often because I could bring my laptop 

and do my [home]work. There’s not that many computers here and they do get 

used. Sometimes I don’t feel like reserving a computer and waiting for it. When I 

found out they had free WiFi I was like, ‘Hey, I can use the computer!’”

Neither the library computers nor the wireless Internet network are filtered. 

Oakland receives federal funding in the form of E-Rate, but the funding only 

covers hardware so the library is not obligated to apply filters to its Internet.

Help and Training

With minimal staffing levels, librarians reported having difficulty finding the 

time to provide one-on-one help for patrons. Computer questions are

prioritized by reference staff. For example, the library helps patrons reserve and 

log onto computers, but they do not support software assistance like helping 

patrons download eBooks onto MP3 players and are judicious about the 

amount of time they spend with a given patron. Some staff hope to remove 

priorities placed on types of questions and rather see all inquiries, whether 

about physical or electronic library resources, as equal:

Something that could happen in the library is ensuring that 

there are staff in the library who are familiar with resources 

that exist on the Internet and that can help provide the same 

service, advice, and guidance to someone whether they’re 

looking for something that’s on printed material in the library 

or something on the web. There obviously are a lot of 

resources that exist on the web that are not immediately 

obvious to someone and might not turn up on the first page of 

an Internet search. And by having people who are in the 

library trained in answering a lot of the common issues and 

questions that the people come into the library have, I think 

that’s providing a very valuable service.

Other librarians feel prioritizing computer questions is necessary because if they 

didn’t, “we wouldn’t be able to check out books, we wouldn’t be able to help 

with other information or database stuff.” 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 71

Basic computer classes are held each Saturday at the Chavez Branch, where 

they are conducted in both English and Spanish. Pre-registration is required and 

classes often have waiting lists. The Asian Branch has computer classes in 

Cantonese and Mandarin offered three days every week. One user, Alex, spoke 

of how she appreciated classes offered in Spanish at the Chavez Branch so she 

could learn how to use the computer and hopes to eventually transition into 

classes in English down the line. One user, Hilda, also participated in classes at 

the Chavez Branch but wishes there was "another instructor because there are 

more and more of us each time and even though she explains things well to us 

and everything. I am happy with her, but... it’s just there are a lot of people for 

her, it would be better if someone helped her as well so she didn’t have so 

much.”

The library also maintains a directory of schools offering free or low-cost 

computer classes for adults in the Oakland area, as well as agencies offering free 

or low-cost computer classes for people with disabilities. 

Case Summary

While the city of Oakland struggles with successive budget shortfalls and cuts , 

the library is becoming increasingly busy and seeing a growing demand for 

access to computer resources. While many residents have access to computers 

and the Internet at work or home, other Oakland residents have a real need for 

computer and Internet access because they cannot afford access or equipment 

at home. The staff, despite feeling overwhelmed, is passionate about serving 

library patrons and helping them become more familiar with technology 

resources. The library provides a valuable service by offering access to 

computers and the Internet, computer classes in the languages of the 

community, and as much one-on-one help as possible.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 72

3.5 Marshalltown Public Library

Marshalltown Public Library 

exists to provide residents of 

Marshalltown and Marshall 

County with materials and 

services that meet their 

needs for recreation, 

information, education, and 

cultural awareness.

–MPL Mission Statement

The computers draw in a 

more diverse group of people than it used to be when I worked in libraries before 

computers. When people come in they’re seeing children, they’re seeing Latino 

folks, they’re seeing all ages, all kind of economic groups. It makes you realize 

how rich your community is.

–Carole Winkleblack, Library Director 

Marshalltown Public Library (MPL) in Marshalltown, Iowa, was the last of the 

four library systems the U.S. IMPACT research team visited to gain a first-hand 

understanding of the local context surrounding the use of public computers and 

the Internet in public libraries across the country.

In 2008, the city funded 

the construction of a 

brand new library 

building, completed in 

2008. 

The City of 

Marshalltown 

Founded in 1853, 

Marshalltown, Iowa, sits 

on the divide between the 

Iowa River and Linn Creek. 

The city has a total area of 

18 square miles in Central 

Marshall County and serves as the county seat for Marshall County. 

Marshalltown has a diversified base of businesses, award-winning schools, 

Table 15: Case Study Details

Study site visit May 12 to 18, 2009

Interviews 

conducted

11 users aged 14 to 17 in two focus 

groups

32 adult users

8 library administrators, branch 

managers, librarians, and other 

library staff

2 library board members and Friends 

of the MPL group

1 member of a funding agency

2 government officials

10 peer agency staff

Web survey 51 completed surveys with 11 

respondents providing suggestions 

for improvements 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 73

esteemed medical facilities, modern shopping centers, well-maintained 

recreational and cultural amenities, and high-quality residential areas. 

Population Characteristics 

According to reports 

by the Marshalltown 

Economic 

Development 

Committee, the 

population was 24,984 

in 2009 and projected 

to be 25,127 in 2014, 

a slight increase in 

contrast to past U.S.

Census statistics that 

show that 

Marshalltown has 

seen a slight decrease 

in population for the 

past several years

(Marshalltown 

Economic 

Development Impact 

Committee n.d.). According to the U.S. Census Bureau, Marshalltown has a large 

Hispanic or Latino population, comprising nearly 20 percent of the total 

population. By race, Whites are the largest segment of the population, making 

up 87 percent of the population, with the remainder being split among people 

of other races. The Black or African American population is well below the 

national average, while the Hispanic or Latino population is significantly above 

the national average. Foreign-born individuals make up 11 percent of the 

population, slightly less than the national average (U.S. Census Bureau n.d.-a).

For the time period between 2006 and 2008, 7 percent of Marshalltown’s 

population had attained a graduate or professional degree, 12 percent a 

bachelor degree, 8 percent an associate degree, and 19 percent some college 

without a degree. A high school diploma was the highest level of education for 

36 percent of the population, with 19 percent attaining an educational level 

below a high school degree (U.S. Census Bureau n.d.-a). The state overall is 

better educated with 8 percent that attained a graduate or professional degree, 

17 percent a bachelor degree, 9 percent an associate degree, and 21 percent 

some college without a degree. Statewide, 35 percent have a high school 

diploma or equivalent, with 10 percent attaining an educational level below a 

Table 16: Marshalltown City Demographic Data*

Total population 26,192

Race White 87.4%

Black or African American 2.0%

American Indian or Alaska Native 0.6%

Asian 1.6%

Native Hawaiian or Pacific Islander 0.0%

Some other race 7.1%

Two or more races 1.4%

Hispanic or Latino origin (any race) 19.2%

Age 19 and under 28.0%

65 and over 18.2%

Language other than English spoken at home N/A

Median household income $41,772

Poverty rate (family) 10.1%

Unemployment 

rate

2006–2008 6.9%

2009 6.8%†

*

Source: U.S. Census Bureau n.d.-a. †

Source: Iowa Workforce Development 2009.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 74

high school degree. Ten percent of Marshall County residents are rated as below 

basic prose literacy, higher than the state average of 7 percent. This is still lower 

than the national average of 14 percent of the U.S. population on the 2003 

National Assessment of Adult Literacy (National Center for Education Statistics 

2003). 

Marshalltown has a significant population of low-income residents—between 

2006 and 2008, 10.1 percent of the families were below the poverty threshold

(U.S. Census Bureau n.d.-a). and in the 2008-2009 school year, nearly 60 percent 

of students in the Marshalltown Community School District were eligible for free 

or reduced price lunch, putting them in the top 10 Iowa districts according to 

eligibility rates (Iowa Department of Education 2009). Marshalltown’s 

population of seniors at 18 percent is the highest among the libraries visited by 

the U.S. IMPACT Study research teams and is also higher than national and state 

averages of 13 percent (U.S. Census Bureau n.d.-a). According to one local, 

Marshalltown’s higher than average population of seniors is a result of many 

retired people staying in Marshalltown after some of the area’s major 

employers moved away. 

Employment and Business Climate

Marshalltown is surviving the country’s economic downturn relatively well 

compared to other communities across the nation. As of August 2009, 

Marshalltown had an unemployment rate of 6.3 percent, which is notably lower 

than the national average of 9.8 percent (U.S. Bureau of Labor Statistics n.d.().

Food processing, manufacturing, and educational and social services are the 

major employers in Marshalltown, including the JBS Swift meatpacking plant 

with 2,300 employees, which employs many Mexican immigrants. Villachuato, 

Mexico, is the unofficial sister city of Marshalltown, and many Villachuato 

residents have moved to Marshalltown to work for the Swift meatpacking plant

(Grey and Woodrick 2002). The city received national attention in 2006 when 

the Swift meatpacking plant (along with five other Swift plants in western 

states) was raided by the Immigration and Customs Enforcement Agency and 90 

undocumented workers were arrested (Preston 2006). 

Other major employers include Emerson Process Management Fisher Division 

with 1,200 employees; Marshalltown Community School District; with just over 

1,000 employees; and the Iowa Veterans Home, with 1,000 employees

(Marshalltown Economic Development Impact Committee n.d.).

The relatively stable employer base in the area has contributed to economic and 

demographic stability in the community over time. This has allowed the 

community to invest in infrastructure projects such as the new library, schools, a 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 75

$25 million aquatic center and YMCA, and others (Marshalltown Economic 

Development Impact Committee n.d.).

Technology Infrastructure and Adoption

Marshalltown is home to a robust, redundant fiber loop that connects 

Marshalltown, Newton, Ames, and Des Moines to major metropolitan points in 

the nation (Marshalltown Economic Development Impact Committee n.d.). 

High-speed Internet access is available to households within the city; however, 

much of the surrounding area of Marshall County remain dependent on dial-up 

access (Connect Iowa 2011). Last year, the city installed free access to wireless 

in the downtown area, although it is limited to just one hour of use, with 

additional time available through subscription by credit card. Otherwise, MPL is 

the only freely available public access Internet location, though there are a few 

businesses that offer wireless access for customers.

Future Outlook

Marshalltown has a solid, long-term economic base, which has managed to 

weather the recent downturn in the economy better than many locations in the 

country. Recent civic projects have provided the residents of the city and county 

with many new resources, including the new library finished in 2008. The 

residents of the community are proud of their city and are willing to invest in 

making it a better place to live.

Marshalltown Public Library’s Place in the 

Community 

The MPL was established as a free municipal library in 1898. In 2000, the Friends 

of MPL began holding community focus groups concerning the state of the 

library. They learned that community members were dissatisfied with the 

current building. It was then decided that remodeling the existing facility would 

be insufficient and an entirely new building was warranted. Located at 105 West 

Boone Street, this new library was completed in December 2008 and has been 

coined a “New Library for a New Century.” 

Current State of Affairs 

Carole Winkleblack is the current Director of MPL and managed the fundraising, 

civic engagement, and transition to the new library. She has been with the 

library for 16 years, and her role includes working with the library board to set 

and maintain policy, personnel management, and budget management. She also 

serves as a liaison between the Friends of the MPL and library personnel.
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The new building 

became the first public 

library in Iowa to 

receive LEED silver 

certification from the 

U.S. Green Building 

Council. The 35,670 

square foot, singlelevel facility not only 

helps users with 

mobility issues but 

also reduces the 

number of staff 

needed to manage 

service areas.

Mission

MPL’s mission is “to provide residents of Marshalltown and Marshall County 

with materials and services that meet their needs for recreation, information, 

education, and cultural awareness.” The library’s administration stresses that 

technology is a critical component of meeting the mission and staying relevant 

in a changing world. This is echoed by government officials and board members 

who emphasized the role of the library in providing the public with information 

they would otherwise be unable to access, and spoke of the library as the 

foundation of democracy. Another library administrator articulated the mission 

of the library related to technology as providing free access and quality 

information for users.

There is some disagreement among Marshalltown staff on the role of 

technology in the library. One respondent recognizes the importance of public 

access to computers, but stresses that the library’s focus should be on books: 

“It’s a good thing that we are getting more computers. I don’t think we want to 

have a ton more because I feel like our library’s main purpose is not the Internet

computers but books is [sic] the main reason for a library.” Another respondent 

stresses that technology is in no way an enemy to reading; rather, it can serve as 

a gateway to reading and learning and that “people are what matter and 

people’s lives, whether you’re talking about books or technology. That’s what 

libraries are—to have people connecting and help people and empower 

people.” Yet another feels that there is a “disconnect between how people use 

the Internet and the people who are supposed to be helping them. It’s 

sometimes very frustrating.”

Table 17: Library Characteristics and Use

Urbanicity Town, remote

2008 legal service area population 30,453

Number of branches 0

Staffing 

levels

Total staff 12

All librarians 10

MLIS librarians 2

Population per librarian 3,045

Number of Internet terminals 7

Number of Internet terminals 

(US IMPACT field visit 2009)

29

Population per Internet terminal 1,050

Visits 121,628

Circulation transactions 233,176

Annual Internet terminal uses 24,284

Visits:uses 5:1

Transactions:uses 10:1

Source: Henderson et al. 2010.
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Funding Sources

The library is a department of the city of Marshalltown and is funded primarily 

by municipal tax dollars. A seven-member Board of Library Trustees sets policy 

and oversees the budget and operations of the library. For FY 2009, the first full 

year in the new library building, 92.6 percent of the budget came directly from 

the city; 5.4 percent from the endowment, gifts, fines, fees, and other sources;

while the remaining 2 percent came from state library and other state sources. 

State funding helps expand services 

on a grant basis primarily for arts 

and culture programming but also 

provides a high level of support to 

all of Iowa’s public libraries 

including access to subscription 

databases. Much of MPL’s

collection development budget comes from fundraising done by Friends of the 

MPL. Wireless Internet service is donated by Dynamic Broadband and 

Mediacom. MediaCom also donated 7 megabits of bandwidth to the library.

The new building was supported by a $5 million bond issue, along with $4.5 

million from fundraising and state support. 

Community Relationships

There is limited media available in the city, and the library has no formal 

outreach initiatives to inform residents of the availability of computers or other 

services it offers. Instead, the library primarily relies on its website for 

disseminating information about the library and its services. It has also 

increased its visibility by partnering with the Arts Alliance and the Chamber of 

Commerce to maintain a community events calendar on the library website and 

by being featured on the front page of the city website. 

Political Relationships 

The city council was not originally a strong advocate of public access through 

the library and was split on funding for the new building, never voting to 

endorse it. For the bond issue to build the new library, the director, Friends of 

the MPL, and library staff lobbied community organizations and cultivated 

support among individuals through house parties and one-on-one development. 

Current civic leaders who spoke with U.S. IMPACT researchers recognize the 

value of library public access computing and are supporters of the library.

While the library is a department of the city, a local government member 

described how autonomous it is:

Table 18: FY 2008 Operating revenue

Total income $692,154

Local government 92.6%

State government 2.0%

Federal government 0.0%

Other income 5.4%

Source: Henderson et al. 2010.
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It’s run by the board and its structure and rules cannot be changed by 

frivolous actions of the council, rather only through a vote of the 

people. The purpose for that is to make libraries less susceptible to 

political pressures. That makes a difference because the city is not that 

actively involved other than funding the library. The library runs under 

its own rules. So we don’t as a city have anything that dictates inclusion 

or anything to do with the digital effects or free other than through the 

funding of the library. 

Maintaining relationships with the city while also exercising autonomy requires 

effective communication. A council member explained that one of the most 

important ways to communicate with politicians is through anecdotes: 

“Numbers are important. They’re more important than an anecdote, but it sure 

brings it home to people if they can hear of a personal account of someone 

doing something on the Internet at the library that they couldn’t do anywhere 

else in town.” Another respondent extended this to emphasize the importance 

of informing policymakers on the impact of public access computing in libraries, 

and how effective communication is one vital strategy. 

Relationships with Supporters

The Friends of the MPL engage in fundraising for everything from buying new 

materials, to providing free programming to youth and adults, to helping to 

publicize and promote the new library building. The Friends of MPL is a separate 

not-for-profit, 501 (c)3 organization and was established in 1997. 

Working with the Friends of the MPL and allies in the government, the library 

was able to engage local corporations in supporting the referendum to build the

new library, to provide funds to that end, and to encourage their employees to 

vote in favor of the referendum. Despite some opposition by those who did not 

think the library needed the Internet and related services because everybody 

had it “at home,” the well-coordinated effort resulted in the support necessary 

to pass the referendum and make the new library a reality. The Martha Ellen 

Tye Foundation's donation of $1 million—timed seven weeks before the vote to 

generate excitement—was one major reason that the library bond issue was 

passed with over 70 percent of the vote. 

Peer Agency Relationships

The library tries to engage with peer agencies and in some cases forms

partnerships with them. However, these relationships have had mixed success. 

For example, the library worked with a local workforce development center to 

provide training for users, but the class did not meet library expectations: 
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The [workforce center is] sending a person down—we thought to help 

people apply—but it turns out she’s actually just showing them how to 

do resumes and so forth. It’s like a course, a little mini-course. The 

people who need help finding a job aren’t going to sit through a 2-hour 

course about how to write a resume.

With limited resources for adult basic education and skills training in 

Marshalltown, the lack of computer classes at MPL is a limiting factor to the 

library’s ability to engage in meaningful partnerships with other organizations. 

While the library is clearly a central resource in the community for technology 

needs, peer agencies indicated a desire for more engagement through outreach 

and training efforts. One peer agency that provides some computer training in 

Marshalltown also refers clients to the library to use computers. That agency

believes the library should be offering computer training as well because the 

need for training is so great in the community. 

Interdependence between the Library and Community-Based 

Organizations 

MPL has been successful in mobilizing community support for its services, 

including infrastructure and technology. It has forged relationships with both 

the governmental agencies providing its basic budget and with the local 

business community through its outreach efforts during the capital campaign. 

Library staff report that many other agencies and services in town are turning to 

the library as a resource for their computing and Internet needs. One peer 

agency reports that clients “who come in and want the N400, which is the 

application for citizenship, we tell them that they can come over [to the library] 

to download it.” 

City government staff also send people to the library to get information from 

the city website, as expressed by one high-ranking government official:

We recommend people come to the library. In fact, this morning already 

I’ve heard [a referral] twice by somebody who said “now, you know we 

have this information on our website but if you don’t have a computer 

at home, just go to the library you can get free access there.” ... These 

are public documents that we are dealing with. If somebody comes in 

and requests one, we have to provide it. We can have a reasonable 

charge for copying, but it’s so much better to not take the time for our 

clerk to do the copying and hand them the hard copy if we can say “go 

to the library where it’s free access.”
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One human service agency that works with over 2,000 clients a year refers 

people to library for computer access “if they need to do job searches or if they 

need to seek out another provider in the area that we may not be able to track 

down, they can come here and use the computer and find out.” Other agencies 

do the same and many rely on library computers for employment assistance and 

mental health support. At the present time, the library appears to be able to 

handle this use, but is conscious of the need to monitor the impact this may 

have for the future.

Library Characteristics 

Budget

Of the 2008 operating 

budget, 72 percent of 

expenditures were on 

staff, 16.4 on collections 

(of which 0.9 percent went 

toward electronic 

materials), and 11.7 

percent on all other 

expenditures including 

Internet and computer equipment. Marshalltown receives its electronic 

collection through the state library and so has much lower expenditures for this 

function than most other libraries. Marshalltown spends $22.73 per resident 

within the legal service area, which is less than the average $25.50 for singleoutlet libraries in remote towns. Marshalltown has a surplus from the building 

fund but cannot spend capital funds to increase staffing or the operational 

budget. Marshalltown is also under a citywide hiring freeze. 

Personnel Practices

MPL employs 19 full- and part-time employees including five full-time librarians, 

two of whom have library science degrees. The library director oversees the 

assistant director, youth services director, reference supervisor, a library 

assistant, and cataloger. The assistant director oversees a library assistant and 

library pages and adult services assistants. The youth services supervisor 

oversees the youth librarian, and the reference supervisor oversees the 

reference librarians. Marshalltown does not have designated IT staff. The library 

uses an IT consultant through the city and has two librarians designated for IT 

support among their other job duties. Marshalltown has one librarian per 3,045

Table 19: FY 2008 Expenditures

Total expenditures $692,154

Staff (salaries and benefits) 72.0%

Print collection 12.5%

Electronic collection 0.9%

Other material expenditures 3.0%

Other operating expenditures 11.7%

Expenditures per capita $22.73

Source: Henderson et al. 2010.
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people, the second best ratio of the case study libraries after Fayetteville, 

Arkansas, as well as below the one to 5,599 average for other remote towns. 

The library staff indicated an interest in providing more outreach activities, 

particularly in the educational area. Currently the library runs an EMERGE 

program, wherein all sixth graders are bused to the library and take classes 

about the library, have book talks, and have the chance to check out books with 

a due date that falls on the next class trip to the library. The youth services 

supervisor also routinely visits the high school to conduct book talks and to hold 

lunch meetings with guest speakers. The library values outreach to the 

community and, as described by one librarian, would like more opportunities 

“to see if our outreach librarians can go and engage the various communities. 

Part of their process is teaching about computers, Internet, our electronic 

databases, and homework help.” However, the library does not have a 

developed outreach initiative to interact with all local populations, and as one 

staff member explained: “we don’t seem to have time, or we don’t put aside 

time for outreach [to particular populations we’d like to see in the library].”

Staff Training

The library does not provide organized training for staff, although staff pointed 

out a need for it, especially around outreach activities and developing training 

programs for users. One staff member spoke of the challenge for librarians of

“having the time and the know-how about doing outreach, because I’m not sure 

any of us have ever been trained very heavily in that.”

Training tends to be informal. Some information that is put on the library 

website is helpful as it also acts as a way “to remind our staff. ... Having such a 

small staff [means] we don’t have a lot of training.”

Volunteers

MPL has over 50 volunteers who help with various library duties, including 

teenage and genealogy volunteers, although staff report that volunteers, except 

for the library’s volunteer genealogist, do not help with computer questions or 

training. Administration likes the idea of volunteers helping with computer 

questions and is currently exploring having young adults help train older adults 

on the computer but does not currently have the time or staff to develop a 

program. 

Evaluation

The library tracks the number of Internet sessions but like most libraries finds it 

difficult to count the number of individual users. A Library Board of Trustee 
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member described how it was important for policymakers to know how the 

computers are used so that they would have statistics that are comparable to 

circulation figures. In addition to numbers, knowing the individual histories of 

users and the benefits they get from the computers is critical for demonstrating

the importance of access to individuals and the community.

Operational Context

Physical Infrastructure

The new MPL is twice the size of the previous facility. The library’s design and 

openness allow for an abundance of natural lighting. This is excellent for 

working, although on sunny days it can create a glare on monitors making it 

difficult to see the screen. There is ample space and room for growth (pending 

increased staff capacity). Private rooms are available for patrons to apply for 

jobs (and could be used for private work spaces when laptops begin circulating 

in the library). The library is nearly out of table space for more computers, 

however.

Technological Infrastructure

The number of computers available for patrons increased from 7 to 29 when the 

new facility opened. MPL’s computers are split into two sections: the youth 

services area, with 6 Internet computers, and the adult section, with 23 

computers. Computers run Windows XP and have Explorer and Firefox for 

Internet browsing. Google Earth and instant messaging services are installed on 

all computers. The strategic plan has a staggered replacement schedule for 

computers built into it. 

Wireless is available throughout the library and is donated by Dynamic 

Broadband and Mediacom, the local Internet service providers. Frequently, 

people can be seen using their laptops tucked away in one of the many quiet 

spaces or designated study rooms. The wireless network extends beyond the 

building and when the library is closed people sit in the library parking lot to 

access the wireless. The wireless is not filtered, and no library card or password

is required to connect. 

One peer agency interviewee pointed out that often the only form of access 

outside Marshalltown itself was dial-up, so many people come to the library for 

the higher bandwidth. A user commented on the value of having wellmaintained computers available in the library: “There’s normally no problem 

with it—no viruses or spyware. It’s just less of a hassle getting through stuff.”
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Despite the financial surplus that can be used to increase computer capacity, 

there is a lack of staff (and the appropriate budget) to oversee and facilitate any 

proposed increase in computer terminals.

Patron Demand

The new library building increased the number of computer terminals available 

to the public and reduced congestion significantly when the building first 

opened, but the administration is now noticing lines to access the computers 

are forming once again. MPL finds demand for computers increases when 

school lets out for the day. As patron Sylvia notes: “The only time you can’t 

really get on the computer is when the kids get out of school.”

Use Policies: Filtering, Time Limits, and Behavior Standards

There are no restrictions on content, but the library has software that ranks use 

types and gives lower priority to activities like file sharing. Policies discourage 

multiple users at one terminal to minimize disruptions to other users and library 

patrons. Users must have a valid MPL library card and PIN to logon to public 

computers. Computers are available on a first-come, first-served basis with no 

reservations or advanced scheduling available. 

At the time of the visit, 18 computers in the reference area were available for 

adult use for up to one hour per day; since the visit, Marshalltown has added 

two additional computer terminals for adult use. In addition, the library has 

three 15-minute Internet stations for quick uses, two dedicated stations for 

word processing, and another for doing genealogical research. Session times are 

never extended, which serves to limit conflicts between librarians and patrons 

around making exceptions and judging the legitimacy of needs; however, some 

users find the time limits a problem: “When you’re trying to look up something 

important, you try to scramble before you lose your connection. It automatically 

restarts whether you’re done or not. The old librarians would give you extra 

time. It says you have minutes left and to save stuff. Then you think about what 

you should’ve done. The time limit makes it harder.”

The children’s department had four computers at the time of the visit that were 

separated from the rest of the library’s computers; Marshalltown has since 

added two terminals in the children’s department. Children’s computers are 

available in 30-minute increments, which can be extended up to one hour. The 

children’s computers at MPL have YouTube and MySpace and some other sites 

with potentially explicit images blocked, and downloading music using iTunes is 

disabled. Youth have been observed sneaking onto MySpace when they can. 

The library staff mentioned placing teenagers and children at the top of the 

priority list when developing computer use policies.
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Technology Classes and One-on-One Help

MPL does not currently offer technology classes, though it aspires to in the 

future. The library staff was concerned about information literacy, especially in 

searching and assessing online sources. The staff worry about patrons and hope 

to promote information education either through classes or one-to-one, 

particularly for patrons who come into the library with limited or no computer 

skills. However, the staff is limited in the amount of time they can spend with a 

given patron. One staff member tries to limit the amount of time she spends 

with users to 15 minutes; when they need more help she tells them, “I just can’t 

stay with you. Try to bring somebody in with you if you can, somebody who can 

sit with you and help you.”

Both peer agencies and patrons indicated a desire for formal classes to help 

patrons become better users of the technology services. As one user put it: 

“Classes for proper usage is one thing [the library could do]: there are a lot of 

people who don’t know how to use the computers. They don’t know anything 

about them. There’s so much you can get out of them, and until you learn how 

to do it, you’re not going to get anything. And then it’s a waste of time and 

money. This is a big building they built, take one of these rooms and teach, put a 

class here!”

Case Summary

The MPL is in the enviable situation of having a new building, solid technology 

infrastructure, and community support for its mission. The relatively stable 

economy has helped to ensure that the library’s budget is stable, though recent 

downturns have resulted in staff hiring freezes, which are preventing additional 

services, such as classes, from being offered in the new building. The work that 

the library has done over the past few years in gaining support for its building 

campaign appears to have helped its visibility and support within local 

government, and it is trusted to use funds wisely for its purposes without direct 

supervision by the city council. As demands grow for the newly available 

services, pressures will increase on staff and the technology; future plans will 

need to take this into account and work toward continuing the strong support 

shown by the community to date.
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A Look at the Factors that Affect 

the Character of Public Access 

Service

Across all case studies, the research team observed how the local environment 

affected the demand for library services and the policy choices libraries made in 

response to these conditions. In each case, there were a range of internal and 

external factors that influenced the ways in which libraries responded to the 

demand for public access services.

4.1 External Demands and Public Access 

Service

The external environment influenced the demands on library services and the 

policy choices libraries made in response to conditions in their communities and 

other policy goals. Chief among the community concerns that drove public 

access decision making were the poverty and literacy levels of residents, 

unemployment rates, and the technology infrastructure, including other public 

access providers, available to residents. 

Although each library has different ways of dealing with the social and economic 

conditions in their communities, the alignment of their policy goals and 

strategies with those of local leaders promotes their success in achieving 

political legitimacy and sustainable support, not just for public access 

technology services, but for public library operations as a whole. 

Resident Need

In Baltimore, librarians and administrators at the Pratt Library repeatedly 

reflected on how poverty and low literacy rates among Baltimoreans affects 

how the library perceives its role in the community and the types of services it 

offers, especially around providing free access to computers and the Internet:

I think a big part of our role is addressing the digital divide. We have a 

very poor population in Baltimore. Many people don’t have computers 

at home or are not computer literate. We have a high illiteracy level in 

general in this city. I think that the computers definitely address that to 

some extent.

One way the library responds to this community challenge is by focusing its

computer training on basic instruction. External factors like illiteracy and

4
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poverty are outside the library’s immediate control; how the library chooses to 

respond to these factors, however, has a great effect on the perception of the 

library as a valuable community institution. In the case studies, certain external 

factors drove more policy choices than others, including the demographic 

makeup of the community, poverty and employment levels, economic outlook,

and the local technology infrastructure. 

Urban libraries have to offer wider ranges of services than what might be 

necessary in the usually more homogenous communities in rural or suburban 

areas. For example, Oakland is the second most diverse city in the United States; 

to accommodate this demographic reality, the OPL maintains collections, 

resources, and instruction in English, Spanish, and eight Asian languages, in 

addition to what is available at the AAMLO. The size of the geographic region 

served by a library is also an external factor that affects how libraries approach 

their services. Larger geographic areas need to be served by multiple outlets or 

the library is not a viable option for people without access at home; this 

condition can exist in both urban and rural library districts. 

Employment

Employment-related activities were identified as a major use of library 

computers. Across the country, employment-related activities were the third 

highest use of library computers, with 40 percent of users having looked for 

work or done other employment-related activities in the past year (Becker et al., 

2010). The community’s unemployment rate was reported to have an impact on 

the demand for public access computers.

In Baltimore, where poverty was already high, the economic downturn drove 

unemployment up to 10.3 percent in 2009. The Pratt Library is very aware of its 

role as a place to apply for jobs (particularly for hotel, grocery, retail, and other 

entry-level positions) in the absence of home computer access.

The Pratt Library responds to the needs of Baltimore’s unemployed by 

increasing classes on job search strategies and basic computer skills and opening 

the Job and Career Information Center at the Central Library, which has a 

librarian and computers reserved for job searching. In responding to the city’s 

economic downturn with increased job search help, the library not only helped 

the individuals who used the resources, but also community-based 

organizations that were able to arrange for special computer training sessions 

for their clients and that also benefitted by having less demand on their time 

and services. 

Oakland, like Baltimore, experienced high unemployment before the recession. 

But without the government, education, and health industries that anchor 
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Baltimore economically, the national economic downturn had a greater effect in 

Oakland. Oakland’s unemployment rate jumped to an estimated 16 percent in 

2009. Service cuts as a result of a city budget crisis have had a huge impact on 

how the OPL has been able to respond to the rising need in the community. In 

addition to experiencing increased use associated with household economizing 

and job seeking, the library is also impacted by CBOs, facing cuts of their own, 

relying on it to meet client needs.

The only other significant provider of free computer and Internet access, a 

community technology center, shut down due to loss of funding, driving more 

people to the already overcrowded computers at the OPL. The cutting of branch 

hours and furlough closures further amplifies the problem of congestion, with 

patrons and librarians reporting people leaving at the end of the day without 

having a turn on a computer—fewer hours means fewer sessions. In responding 

to economic downturns with increased job search help, public libraries not only 

helped the individuals who used the resources, but also community based 

organizations who were able to arrange for special computer training sessions 

for their clients and also benefitted by having less demand on their time and 

services. These services were perceived as high-value by policy makers and 

users and help improve the perception of the library’s contribution to the 

community.

Technology Infrastructure and Alternatives 

for Access

The U.S. IMPACT Study showed that more than three out of four users of public 

access computers and wireless Internet networks in public libraries had access 

at home, school, work, or somewhere else (Becker et al. 2010). This finding and 

users’ comments in case study interviews and web survey responses suggest 

that greater broadband penetration will not necessarily reduce demand for 

public access technology. Several considerations would seem to drive demand 

for Internet access in public libraries to continue even as broadband penetration 

in the home increases:

• Cost: Without subsidies, broadband Internet access in the home is out 

of reach for low-income people. Cost of access is also not just limited to 

the Internet connection but also includes the cost of the computer, 

software, and maintenance. 

• Need for help and instruction: New users and youth, in particular, need 

help and instruction and rely on libraries for this. 
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• Temporary service interruptions: For users who already make use of 

the Internet for day-to-day activities, temporary interruptions in 

computer and Internet access due to equipment malfunction, natural 

disasters, or other emergencies can have serious consequences. 

• Household competition: Youth, in particular, face household 

competition with siblings and parents for computer use and may find 

the library a better place to do homework than school or home. 

• Mobile use: With the cost of laptops and netbooks continuing to fall, 

more people will find them within reach and seek out comfortable 

spaces where they can work without the obligation of paying for food or 

beverages. 

While users without access in all four case study locations cited the cost of highspeed Internet access as the primary reason why they use library computers, 

librarians in Marshalltown and Fayetteville report that users from outlying areas 

where only dial-up service is available either supplement their home service by 

downloading larger files or doing bandwidth-intensive tasks at the library, or

they forego home dial-up access entirely as it is impractical for most uses. Both 

Arkansas and Iowa are working on plans to expand broadband access to those 

areas that are not connected through Federal Broadband Technology 

Opportunities Program (BTOP) grants.

In Fayetteville and Baltimore, in particular, tourists and other out-of-town 

visitors are a prominent segment of users. This on-the-ground observation 

together with results from the U.S. IMPACT survey showing that 24 percent of 

users used public access computers and wireless networks during travel 

suggests that library computers and wireless networks are an important part of 

the technology infrastructure needed to support tourism and business travel. 

Baltimore, Fayetteville, and Marshalltown have all invested in public WiFi hot 

spots in downtown areas, showing some local support for open wireless access 

and suggesting overlapping interests with the library’s resources. The 

significance of the tourism and travel aspect of library computer use was one 

that was unexpected in the research, but was frequently reported by case study 

subjects and web survey respondents. 

One limiting factor of the library’s ability to fill in the technology infrastructure 

of a service area that may be felt particularly in rural areas or smaller towns, or 

with single-outlet libraries, is the availability of public transportation. Librarians 

and users in both Fayetteville and Marshalltown reported that the library was 

difficult to get to for people without cars. In Fayetteville, the bus ran closer to 

the University of Arkansas, driving some public access users there instead of the 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 89

FPL. Though the university allows public users, they are asked to leave if 

students are waiting. 

Libraries promote their services in the community and cultivate relationships 

with political actors in different ways. The approaches taken by the case study 

libraries toward this important task varied greatly. Most of the libraries believe 

computer and Internet access sells itself and that most community members are 

already aware of what the library offers. Outreach efforts are often informal and 

not systematic; there is limited funding for outreach campaigns and a lack of 

staff time to develop relationships and partnerships with community 

organizations. 

4.2 Political Relationships

Though generally supportive of the library, several city officials interviewed also 

expressed concern about the cost of government and a need to keep costs low. 

They emphasized the need for evidence of the benefits of public technology, 

especially in removing barriers and increasing innovation for continued support. 

Computer training opportunities at the library, in particular, were seen as highly 

valuable.

Administrators of the Enoch Pratt Library in Baltimore highlighted the 

importance of maintaining close relationships with elected officials. They also 

highlighted the importance of cultivating individual and corporate donors. In 

building a recent branch, support was received from the governor and local 

councilmen, who use the library for meetings. 

The director of the FPL reported gaining considerable political capital after 

having received Library Journal’s 2005 Library of the Year award. Members of 

the Fayetteville City Council stressed the importance of the library director’s 

relationship with the mayor’s office, describing how the library should lead 

efforts to gain political legitimacy and should use public technology to remove 

barriers to collaboration and innovation.

Administrators of the OPL System discussed the need to keep in close contact 

with city council members, the city administrator, and state legislators. To prove 

the worth of library computers and other services, they hope to provide city 

council and management with usage statistics. Sending newsletters to city 

councilpersons is one effort they employ. Oakland staff described how the

library obtained wireless connectivity because of the relationship between the 

library director and city IT staff.

In Marshalltown, the city council and the mayor did not initially support the 

proposed library development. The library director spoke of the poor 
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relationship between the library and the city’s political leaders. However, during 

the referendum for the new library, local corporations provided funds and 

promoted the referendum to their employees. The corporate interest seemed 

to neutralize civic leaders who did not think the library needed the Internet and 

related services “because everybody had it at home.” The director reported that 

current local government leaders recognize the value of library public access 

computing and have supported fundraising for the new library.

Because libraries compete for funding with other local services and agencies, 

these activities aimed at cultivating on-going relationships with community 

decision-makers were important for maintaining support for the library. Policy 

makers who understood the library’s mission and how it contributes to 

individual and community goals were more supportive of library initiatives and 

better able to articulate the value of the library. Especially in times of 

constrained budgets or during capitol campaigns, these relationships provide 

the foundation for library advocacy. 

4.3 Relationships with Supporters

Friends of the Library, board members, and trustees also play important roles in 

supporting and communicating the roles that libraries play in providing public 

access computing. All the libraries visited had Friends organizations that were 

responsible for policy advising, fundraising, and maintaining community 

relationships; some also had governing boards that had more decision-making 

responsibility. Library administrators also saw advocacy as central to their 

responsibilities and tried to maintain strong relationships with their governing 

boards and city council. 

Methods used for communication varied across the different communities in 

the study, though several techniques were mentioned often. Friends and CBOs

mentioned that face-to-face or word-of-mouth engagement with the 

community is an effective and widely practiced method of communication. One 

staff member in Oakland referred to this as “evangelizing” the public about the 

library’s public access technology resources and services. Though staff focus is 

on increasing use of the library, they also cultivate political relationships and 

look for opportunities to partner, such as teaming up with community 

associations to integrate events calendars. 

In Fayetteville, staff interviewed from a CBO suggested having patrons write 

letters to policymakers about how they benefit from public access. One 

community staffer described how she met library personnel through small 

business meetings. Respondents from the three of the four libraries mentioned 

repeatedly the use of brochures and newsletters as effective means of reaching 
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other organizations. In Marshalltown, a member of a Friend’s group noted that 

many people in the community learned about the library’s public technology 

services through leaflets, brochures, and the website.

Oakland’s Asian library has its own “Friends” group. A member of its Friends 

group commented, “Lots of people don’t realize the importance of the library. If 

people get to know how important the library’s services are to the community 

then they would be more willing to make donations and so forth.”

In Marshalltown, a foundation’s donation was a major reason that the library 

bond issue was passed—it was timed seven weeks before the vote to generate 

excitement and passed at over 70 percent. A staff person for the foundation 

said they were eager to partner with the library and admire the work it does, 

adding that libraries need to collect stories to share with policymakers, and that 

a coordinated campaign would be effective with stories from many different 

libraries. 

In each site, community residents reported that more could be done to publicize 

library services. Most of these comments came from CBOs. For example, in 

Fayetteville, one respondent noted that the library is not assertive enough in 

making its public access technology services known. 

According to a member of a Marshalltown peer agency, there will always be 

people who do not think libraries are necessary or who think that everything is 

now online: “many community leaders feel pride in the services the library 

provides but there’s no connection between politics and logic; some politicians 

are more swayed by logic and want to have hard factual information and 

connections between services and outcomes. But for people who aren’t swayed 

by logic, you have to rely on politics—the people who are connected and value 

the library. You need to cultivate those relationships by looking at voting 

records and finding people who support arts and culture.” 

The study observed that these communication strategies and the Friends groups 

were important for building a wider base of support for the library than just 

library users. Publishing newsletters, events calendars, and other materials 

related to library programming were effective methods for reaching non-users 

as well as for keeping library patrons informed and helped keep the library 

visible in the community.

Financial Support

Most libraries receive their funding through four main sources: local tax funding, 

either through allocation from a county or municipal government or directly 
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through a special property or sales tax levy; state support in the form of grants 

or direct assistance; federal funding; and proceeds from fundraising efforts. In 

many states, support also comes indirectly through the state library in the form 

of resources and services to public libraries, such as subscription databases, 

website hosting and online catalogs, and training for library staff, though this 

support is not reflected in per capita expenditures.

The sources of funding in the case study libraries reflected the legal relationship 

with the main funding source, the municipal government of each city. In 

Baltimore, the Pratt Library is a 501(c)3 tax exempt organization and, like 

Fayetteville, is a separate entity from the government. Though both libraries are 

closely tied to the city government, they enjoy greater independence to pursue 

funding opportunities and private and business grants and donations account

for a greater portion of their total income. 

The Pratt Library receives a large portion of its funding from the state as a per 

capita allotment for serving as the state resource center and operations center 

for SAILOR, Maryland’s online public information network. In addition to 

offering statewide access to library services and databases to its residents, and 

Internet services for government agencies and schools, SAILOR also supports 

free dial-up access for residents. The library places a high priority on

development and fundraising, with dedicated staff for those purposes and has

been successful in attracting large foundation and business donations. Funding 

for technology has been particularly attractive for some of these donors, as 

demonstrated by a recent Bank of America grant for a new computer commons 

at the Central Library. 

Fayetteville is heavily dependent on city tax funding, and this may be 

vulnerability in the future. Though universally supportive of the library, 

Fayetteville city officials interviewed during the U.S. IMPACT case study visits 

expressed concern about the cost of government and a need to keep costs low. 

This is a general theme in discussions about Fayetteville’s future with some 

recent planning activities that, in part, aim to lower reliance on sales tax for 

funding government services (City of Fayetteville 2008-b). In contrast to the 

Fayetteville example, Oakland and Marshalltown found ways to leverage 

community support for public libraries to receive funding that was not 

supported directly by the municipal government.

All the libraries except Fayetteville mentioned the need for additional money for 

hours, space, and equipment, but especially for staff. In Oakland, competition 

with other agencies is a critical part of the picture, because city funds are spread 

thinly and are scarce (last year saw an $85 million city budget shortfall and a 20 

percent cut across all departments in the city). Baltimore has to fight with other 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 93

agencies for funding and made hard choices to eliminate some branches so 

others could get computers and be upgraded. Fayetteville is in good shape and 

not facing any cuts, but government officials want to see the benefit of 

technology, either through improved services or reduced costs in other areas.

All of the case study libraries supplemented their government funding with 

other sources of support, often project-based or short-term and requiring 

consequent effort to maintain. 

Baltimore receives money from the Bill & Melinda Gates Foundation, which 

provides for their wireless network, from the Cavanaugh Foundation for

children’s programs, and from Bank of America for the computer commons. The 

library also belongs to the United Way combined fund so donations can be 

made through that channel. As the Pratt is set up as a 501(c)3, it is able to 

receive charitable contributions directly, and donations are a big source of 

funds. Marshalltown is hoping for a Bill & Melinda Gates Foundation grant to 

replace their computers and was able to get a local business, Mediacom, to 

donate its broadband service. It also received state funding to help expand 

services on a grant basis primarily for arts and culture programming. The city 

provides funding for building and staffing through the general fund, and the 

new building was supported by a $5 million bond issue, along with $3 million 

raised by fundraising and state support.

In Oakland, much of the current funding is from external sources and requires a 

tremendous amount of time and energy to get, is not long-term, and does not 

help with much-needed capital projects. The parcel tax, Measure Q, which 

provides about half the funding, is restricted to salaries and materials (including 

computers).

The FPL is supported by a 0.01 cent sales tax levy and also receives funding from 

the city general fund. In addition, they received three years of funding from the 

Care Foundation for a nonprofit database but will need to sustain it after the 

grant ends through other resources.

Funding structures are difficult to change and require long term strategic 

planning to build and mobilize support. Findings from the case studies suggest 

that public libraries that are separate entities from the local government, or that 

maintain robust fundraising activities, may be more financially stable and better 

able to maintain their investments in public access technology.

Partnerships

Beyond showing connections between library services and outcomes that 

contribute to overall community goals, public libraries can demonstrate their 
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interest in helping to reach community goals by engaging in partnerships that 

enhance or amplify the effectiveness of other community-based organizations 

(CBO). In the case studies, libraries maintained partnerships with schools, 

workforce centers, adult basic education organizations, and refugee 

resettlement agencies, with computer access and training as a central feature of 

many of these relationships. 

CBOs are major beneficiaries of free access to computers and the Internet in 

public libraries. They routinely refer clients to public libraries to use public 

access computers for tasks associated with the services they provide. In general, 

partnerships with CBOs supported the library’s mission; however, there are 

occasions where the activities present significant resource challenges. For 

example, this may occur when a school group shows up unexpectedly wanting 

to use a block of computers or get instruction from a librarian. 

Staff and administrators from CBOs in all four cities were aware of the library’s 

technology services and spoke very highly of them and of how they benefit their 

clients. They also spoke of how the library computers benefit them personally 

and their organizations. Frequently, they spoke of relying on the library’s 

resources rather than, or in supplement to, having computers available for their 

clients’ use. In many cases, client use of computers and the Internet was 

essential or mandatory for successful participation in a program and so the 

library was in effect providing the infrastructure for another organization’s 

programs. This represents a savings or externalization of costs to the public 

library, though the library’s status as essentially a free subcontractor is neither 

compensated or in many cases even recognized. 

Pointing out these linkages between libraries and other community 

organizations is important for expanding the public library’s base of support 

within the community by showing that the library not only serves individual 

patrons and users, but is also essential to the CBO’s ability to achieve its

programmatic goals. The linkages are more easily seen when the library 

formalizes its partnership with the organizations, even if such formalization 

does not substantively change the nature of the relationship. 

Partnerships with peer agencies serve a dual purpose of outreach and 

development of supportive political relationships. In Fayetteville, partnerships 

have been a valuable tool for generating support. Administrators can point to 

over 70 partnerships with community and other groups who use library 

resources.

Interdependencies were also seen with the library and other government 

agencies. Applications for social security benefits, immigration, taxes, permits, 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 95

licenses, and government activities often need to be submitted online, but 

these agencies do not maintain computers or Internet access for the use of their 

clients. Librarians note that patrons seeking these services tend to be the same 

patrons who lack basic computers skills.

4.4 Organizational Capacity and Public Access 

Service

The case studies also highlighted aspects of the library’s internal environment 

that had significant impact on the delivery of public technology and on the 

ability of users to achieve their goals using the resources and services the library 

provides. While a library’s mission describes how it seeks to serve the public 

interest, its organizational and operational policies are the means by which it 

implements this mission. In the case study libraries, three areas were identified 

as being important for public access technology support from the organizational 

perspective: budgeting and resource allocation, personnel practices and staff 

training, and evaluation of programs and policies. 

Budgeting and Resource Allocation

Though the case study libraries varied in terms of the level of their funding, all 

felt the constraints of budgets that have not kept pace with increased demand 

on services. The situation in these libraries is not unlike what is seen in libraries 

across the country. In a nationally representative survey study, Davis, Bertot, 

McClure, and Clark (2009) found that only 38 percent of library budgets are 

keeping pace with or exceeding the inflation rate, a decrease from 44 percent 

the year before. The remainder of library budgets either increased below the 

inflation rate, stayed the same (around 26 percent), or decreased (around 12 

percent) from the previous year. 

Library administrators reported that one of most significant budgetary 

constraints comes with trying to maintain service hours while still providing 

adequate levels of staff support, collection development, and programming 

activities. 

For public access technology, the number of hours the library is open is critically 

tied to the value of the services. No matter how current the library’s systems 

might be, if the library is not open sufficient hours to serve users with different 

schedules, it will not meet their needs. Many patrons and staff from peer 

agencies cited the evening and weekend hours the library maintains as an 

important reason why library technology resources are more valuable than 

public resources available elsewhere. However, this still may not meet the need.
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Several patron respondents pointed to the library hours as limited factors in 

their ability to use library computers. Zarek from Fayetteville wanted the library 

to think about extending the hours, on Saturday in particular: “Nine to five on 

Saturday. A lot of people work during the week, and don’t get a chance to [use 

library computers].” 

A patron from Oakland suggested the following: 

On Sundays they open up at one. Sunday is a day you want to get stuff 

done early, so you can go home and get ready for the work week, or 

school week. So, you come here at one. And you plan your whole day 

trying to get here at one o’clock, you try to do stuff early. You have to 

be done [with other tasks] by one o’clock to get here to the Internet. 

And by this time, your day is pretty much shot. So if they opened up

earlier it’d be a lot better.

Naomi from Marshalltown thinks the library should be open on Sundays: “That’s 

when the kids need to study. That’s when college students need to study. That’s 

when they need access to get that last little report done, and the library is 

closed. I mean, close at 5:00 at night, or, you know, 7:00 at night [on the 

weekdays], save an hour, and have them open it five hours on Sunday. And 

they’re not utilizing the time when it needs to be open. It doesn’t need to be 

open till 8:00 at night [on weekdays].”

Increasing the number of computers available was often suggested by 

interviewees as a way to deal with the high demand, but with more computers

comes more expenses for software licenses, digital resources, and databases, as 

well as more hours for maintenance, replacement schedules, and repairs, 

making it difficult to figure out which balance of hours, staff, and computers will 

yield the most access to the most library services. 

The cost of maintaining library computers was represented in various ways in all 

the case study library budgets, but the total cost of providing the public access 

services was difficult to separate from other library functions. When asked how 

much of the budget went to supporting public access technology, two library 

administrators offered an estimate of around 7 to 10 percent, but it was not 

clear what aspects of public access services were included in this estimate.

Having clearer cost information about public access technology may have been 

helpful to these libraries in planning and evaluation activities.

Personnel Practices and Staff Training

Staff across all libraries complained of pressures on their day-to-day time and 

the struggle between wanting to serve patrons, plan activities, and get training. 
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These pressures were magnified by hiring freezes in place at each library. 

Administrators are not unaware of the effect on morale from minimal levels of 

staffing and the wide range of duties included in librarians’ job responsibilities . 

The place of public computers within the library is also a source of personnel 

stress, with many overlapping roles and responsibilities between librarians, IT 

staff, and paraprofessionals. However, the most frequent concern voiced by 

library staff was the lack of adequate staffing-levels for helping patrons with 

computer-related questions. Helping users, especially those just starting to use 

computers, was a source of great job satisfaction for most librarians, but this 

was often frustrated by competing duties. As one librarian from the Pratt Library 

said, “It’s difficult when you only have one librarian for a pretty large building. 

There’s only so much you can do. You see so many people in need and people 

who want to learn. So we really want to be there for them to make it work.” 

The availability of time for staff training, particularly for technology-related 

skills, was another commonly voiced concern for librarians and other staff at all 

four libraries. With stress on staff time in general, most of it was being directed 

at providing direct patron services. Though some of the libraries budgeted and 

scheduled for training, librarians still expressed anxiety about keeping current 

with technology, “I feel like we’re in a place now where librarians need to learn 

more IT skills ... because we want to stay relevant.” Besides training for how to 

use technology and teach it to patrons, some librarians also expressed interest 

in learning more about outreach and using social media for promoting library 

services.

Fayetteville and Baltimore use online training modules extensively for 

technology training, with designated terminals set up for staff use. This 

arrangement might make it easier for these libraries to build training into work 

schedules, but it was unclear from librarians whether online training adequately 

met their learning needs. Nonetheless, in these libraries, staff morale was 

higher and librarians felt more competent in helping patrons, suggesting that 

the clear support for staff development indicated by even minimal scheduling 

and budgeting for staff training can have an impact on library performance.

Use of Volunteers

Volunteers have a long and valuable tradition in public libraries. They provide 

assistance with programs and events, run book sales, serve on advisory boards, 

and collect signatures for ballot initiatives to support library funding. More 

recently, they have also become part of the public technology services that 

libraries offer, and they show potential to help alleviate some of the stresses on 

staff time. Still, as learned during the case studies, using volunteers effectively 
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to support public technology requires coordination and training and may 

require a greater investment in library resources than expected. 

Each of the libraries visited during the case studies used volunteers to a 

different extent, from only fundraising activities of Friends groups, to more 

formal community volunteer partnerships that operate in many areas in the 

library. The use of volunteers for public technology is more limited than their 

roles in other library activities:

For the most part, we really need people in volunteer positions to be 

available at the branches, anyhow, for people who need assistance. 

Many times, the librarians are busy doing reference questions or other 

assistance, but the person sitting at the computer reaches a point 

where they need some help. It would be good to have someone just in 

that general area walking back and forth, to be able to give them that 

on-the-spot assistance.

--Librarian

Volunteers may provide a good supplement to librarians for providing one-onone help to public access technology users, monitoring computer labs, and in 

some cases providing instruction for classes. However, the key to success in 

using volunteers for helping with computer users was seen as having a 

volunteer coordinator to schedule and train volunteers. Using volunteers from 

nearby schools worked well for the Pratt Library and FPL because, to a certain 

extent, it prescreened the volunteers for requisite skills. Creating community 

partnerships for providing one-on-one volunteer support in libraries may help 

implement a volunteer program more easily than the library taking on that 

function itself. 

Evaluation of Programs and Policies

Libraries continue to grapple with the question of what kind and how much 

evaluation is appropriate. Most libraries collect data on the inputs and activities 

of library services such as the number of visits, items circulated, reference 

questions, volunteer hours, program attendance, and students in classes. These 

data are used to show the demand for library services and, in some cases, the 

satisfaction with them. In the case study libraries, the use of data for evaluation 

and decision-making was limited by the types of data available. None of the 

libraries had data on how many individual users they have or what types of 

things they used the computer for; the only data that is available to indicate the 

level of public access technology use was the number of sessions or the amount 

of time the computers are in use. Information on the number of wireless users 

was also unavailable. Evaluation for formulating policies or allocating resources 
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was mostly ad hoc and based on anecdotal information from observations of 

librarians, comment cards, and notes from users. 

In most of the libraries, there was a gap between the types of activities the 

libraries were engaging in for evaluation and the types of measures 

policymakers and external audiences expressed they needed or wanted to see. 

Input and output metrics do little to evaluate the effectiveness of library 

services or suggest how staff can improve services. Possible barriers to

implementing evaluation practices in libraries other than a lack of staff or 

management buy-in include the following:

• Staff believe that benefits are too intangible to measure.

• Libraries lack planning: service response is often crisis-based and thus 

leaves little time to test effectiveness or logic of service response.

• Staff do not have enough time, there is no dedicated staff for 

evaluation, and regular staff is not trained to evaluate.

• Staff fear negative evaluation will reflect poorly on their work, rather 

than seeing suggestions for improvement.

Despite these barriers, over the past several decades library managers have 

gradually realized the importance of evaluating public library services. The latest 

trend in library evaluation involves developing outcomes-based evaluation plans 

for libraries and integrating such plans into the organizational and professional 

culture (c.f., Bertot, McClure, and Jaeger 2008-b; Holt and Elliot 2003; Kyrillidou 

2002; Steffan, Lance, & Logan 2002).

4.5 Library Resources and Services

Beyond the organizational decisions about allocation of budget, staffing 

resources, and evaluation of services, decisions must be made about how those 

resources are made available to the public. Policies need to be operationally 

feasible, meaning that they can be implemented within the mission of the 

library and the resources available.

Operational policy areas that emerged from the U.S. IMPACT Study research 

centered around the physical infrastructure of the library, the technology 

infrastructure and its maintenance, congestion around public access computers, 

privacy and security issues, use policies for the computers (including filtering 

and behavior standards), and help and training for public access technology 

services. Each of these are discussed in more detail in the following sections.
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Physical and Technological Infrastructure

Many libraries are hobbled by physical and technological infrastructure that 

makes expansion of public access computing services to meet patron demand 

difficult. Public libraries housed in older buildings find that installing power and 

data lines is cost-prohibitive, while all libraries seem to struggle with adequate 

space for accommodating additional terminals and wireless users. In addition,

many libraries suffer from inadequate bandwidth capacity, causing slowdowns 

when multiple users are engaged in resource-intensive Internet use. 

The FPL and MPL, both with new facilities, have an advantage over the many 

older branches in the Pratt Library and Oakland systems, as well as many older 

libraries across the country, in that their spaces were designed to provide the 

best possible layout for the multiple uses modern libraries are expected to 

accommodate. In particular, spaces for public access technology were 

thoughtfully incorporated into the building plan, which not only gives users 

more room but also makes it clear that technology is fully integrated into all 

library services. 

Libraries without such accommodation or recent upgrades face barriers to 

providing good service. OPL user Abe, for example, when asked if anything 

prevents him from using library computing resources, responded: “There is a 

lack of power supply. I understand that this is an older building so it’s probably 

not wired for that. But, for example, the Alameda Library provides power 

supplies at each desk, and that’s a real difference.” 

Though both the Pratt Library and OPL have opened new branches recently and 

have plans for construction, the process of updating libraries to accommodate

the increasing use of technology is very slow. The lack of power outlets and 

room for tables and chairs were particularly problematic in older branches 

where the options to address excess demand for computers and wireless access 

are limited by insufficient infrastructure. The need to provide separate areas for 

children and teenagers is also a significant space consideration, as is providing 

areas where users can work together. 

Crowding in computer areas lead to patron worries about the lack of privacy on 

public computers due to the close proximity of terminals. One user discussed his 

concerns: “There’ll be people who’ll be sitting at the computer hanging out with 

someone who’s there or standing behind you. Complaining to the librarians 

doesn’t always work and there’s a basic protocol. Most people with any brains 

understand when someone’s on the computer you don’t stand behind them.” 

Another patron, Ewan, echoed this concern, stating: “I think they really need to 

tighten up on some of the privacy issues. Because even though I’ve done it, 
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even though I’ve snooped on some people I know, I did it because I could. I 

didn’t break any laws. I did it because I could.”

Other patrons worried about security. Newton from Oakland was concerned 

about identity theft: “You can’t put personal information like your phone 

number or anything like that, because there are so many hackers out there, you 

don’t know who gets on the computer after you get on.” On the other hand, 

teenagers from Fayetteville thought there was too much security on library 

computers, especially as patrons cannot save work to the hard drive: “There is 

no way to save stuff on computers. That is especially difficult. Last school 

semester, I was working on a PowerPoint for French and I had no way to save it 

and make it as an attachment to my email and send it to myself. So I had to 

leave the library, go home and remake the PowerPoint all over again. That’s 

kind of a pain.” Naomi, a student from Marshalltown, was also frustrated by 

computer deep-cleans between patron sessions: “I lost a 19-page report. You 

know, once it’s gone it’s gone. I’ve seen kids say, ‘What do you mean, I can’t 

save it?’ They’ll think it’s going to be there tomorrow. There needs to be some 

kind of backup retrieval somehow—not to pull up idle stuff, but [to retrieve the 

document] when someone loses a 19-page report because they thought they 

could save it to [the hard drive]. So, that is the only thing I would suggest, that 

there has to be some kind of emergency retrieval.”

The physical infrastructure of libraries significantly limits the number of public 

access computer terminals that can be accommodated, but libraries are also 

limited by their technology infrastructure and their ability to maintain the 

equipment they have in good working order. The heavy use of public access 

terminals requires constant maintenance and frequent replacement. With 

demand high, terminals that are taken out of circulation can be a major cause of 

congestion. The libraries that relied on maintenance provided by the municipal 

agency reported more frustration with maintenance delays. All the libraries had 

a replacement schedule, but the replacements were not always taken into 

account in budgeting. 

All of the case study libraries had wireless Internet access for users with their 

own laptops. The wireless network was also being used to help relieve some of 

the demand on the computer terminals: three of the case study libraries were 

experimenting with lending laptops or netbooks for patron use within the 

library. Fayetteville is also testing circulating laptops for home use. There were 

no complaints of inadequate bandwidth among laptop users, but print control 

and providing adequate electrical outlets for personal laptops were frustrations 

for patrons.
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Congestion and Use Policies

During the case study visits and in comments from the web survey, users made 

it clear that they perceive the biggest need as being more computer terminals. 

But it is helpful to understand that the call for more computers is coming from 

two related problems associated with providing public access technology: 

waiting times to get a terminal and inadequate session lengths to complete 

tasks.

Though users are understanding of the limitations that the library has in terms 

of adding more computers, it is still frustrating, especially during peak times. 

Mason from Baltimore finds that, “Now, with the economy, everybody’s coming 

to the library to use the computers, so there’s not a lot of access. Although I 

value the services of the library because Enoch Pratt Library is great for the city, 

it’s not as accessible sometimes. The number of computers, the number of 

people: it’s always crowded and there is always a waiting list. You generally 

have to wait for 15, 20 minutes sometimes and it turns you off just a little bit, 

just a little bit.” 

Libraries try to deal with congestion by shortening session times in order to 

provide the most number of sessions each day, reasoning this provides the most 

access to the most people. However, short session lengths limit the outcomes 

patrons can achieve using library computers. Teenagers doing homework, job 

seekers, and those looking up health information or applying for government 

services were particularly impacted by session limits of less than two hours.

Each of the case study libraries had different approaches to setting time limit 

policies and most instituted some combination of providing express terminals 

for quick uses (15 to 30 minutes), flexible time limits based on demand for 

computers, and privileging certain types of uses like job searching with extra 

session lengths. Flexible time limits can be implemented with session 

management software to avoid staff intervention but is only an effective option 

where demand for computers was not constant, which was rare in the large 

urban systems. 

One way of addressing problems caused by congestion and time limits is to 

privilege certain types of use or users. Privileging use helps libraries maximize 

particular patron outcomes, such as finding jobs or completing homework, both 

of which are high-value activities to external stakeholders. However, patrons

(and librarians) have mixed feelings about computers that are set aside for 

particular uses. For the most part, patrons understand the motivation behind 

privileging some types of computer use over others but are also frustrated 

because the purposes of their use might be just as urgent. Libraries privileged 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 103

use for job seeking, business, and genealogy, but none that were visited 

privileged use for health research, for example, though libraries located near 

hospitals noted that many people newly diagnosed come seeking information 

on the library computers. 

In addition to time limits, use policies around content filtering of objectionable 

materials on computers were a concern for patrons and staff. Neither OPL or 

MPL apply content filters to their public Internet connections, though MPL does 

block certain sites that have caused behavior problems in the teenager area. 

Baltimore and FPL filter children and teenager computers and the wireless 

network. Filtering was not a controversial issue for the staff or patrons 

interviewed in Baltimore, while in Fayetteville there were more reported 

annoyances with blocked content. However, in comments from the web survey 

and in some interviews with patrons, filters were often seen as a positive choice 

by the library. 

More of a problem in the case study libraries and web survey comments were 

enforcement of behavior standards, particularly the disruptions caused by 

multiple people gathering around terminals. Most of the case study libraries 

have policies that limit computer use to one patron at a time but acknowledge 

that this often interferes with people working together on homework projects 

or helping others learn to use computers or search for information. The one 

person per computer policies were not uniformly applied, and exceptions were 

frequently made.

In addition to disruptions caused by multiple users gathering around terminals, 

librarians in the large urban systems reported problems caused by users while 

they wait for their sessions. Often, these disruptions occur in the hours after 

schools let out and teenagers migrate en masse to the library to use the 

computers. Having designated teenager spaces helps contain this problem and 

prevents disruptions to other users. 

Help and Training

Libraries have long recognized that users need help learning how to use 

technology. The availability of one-on-one help from librarians and of training 

classes for users is one of the core aspects of public access to technology in 

libraries and a key difference between library access and other forms of public 

technology. Librarians provide help to patrons on two levels. First, they help 

users with computer skills, from basic use to advanced training on software. 

Second, they help users locate and evaluate information. 

For patrons, particularly new users, one-on-one help from librarians lets them 

accomplish important tasks while they are still learning the basics of using 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 104

computers. Providing this kind of help, though rewarding, is hard to 

accommodate, as one librarian explained: “It’s probably an awful lot of staff 

assistance. People don’t know how to get an email account or don’t know how 

to fill out an online job application. So they’re constantly asking for assistance in 

that regard. As much as possible, as long as there’s staff on the floor, they do it 

as much as they can.” 

Staff struggled with knowing the most effective ways to provide help to patrons, 

and ran into the limits of how much time they could spend:

[We can’t] spend half an hour with someone in the lab—and that’s the 

bottom line. So we have volunteers, certain times of the week. But as 

volunteers things come up and they aren’t able to come. So we don’t 

really have a consistent schedule. But the volunteers are there to help 

with, “this is how you highlight, this is how you print.” I just do not have 

the staff if someone comes in and said, “I need to write a resume. Can 

someone help me?” The answer is “I can help you get the machine 

turned on; I can help you find Word. I can show you the template in 

Word but then you’re going to have to be on your own.” Only we say it 

much nicer than I just did.

Among the libraries, there was informal agreement that half an hour was at the 

outer limits of how much time staff could reasonably spend with an individual 

patron, though if the library was very busy, the time available is much less. 

When users need more time than librarians can spare, they will often refer 

patrons for basic computer instruction either at a library class or one provided 

by a local peer agency, though some librarians made appointments with users 

during nonpeak times. The more stress on staff time, the more likely a user is to 

find this type of response from librarians, “If it was somebody who really had no 

computer literacy, I would probably just have to refer him to a class or another 

agency.” However, the library is often the only local agency to provide free 

computer access and training, or the only one accessible to users. Other 

agencies might charge for services, which some patrons are unable to afford, or 

have schedules that do not accommodate work schedules. 

Help and training is a key part of equalizing the playing field for users and 

ensuring that they are able to make good use of the library’s resources. One-onone help, while very time intensive for staff, is not fully replaceable by formal 

training classes and is very important from the users’ perspective, particularly 

new users who have frequent questions as they work. Offering users classes 

where many can be instructed at once is a more efficient arrangement than 

one-on-one help, and many classes are targeted at adult patrons just learning to 

use computers. However, new users, like Nelson in Marshalltown, still need help
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 105

from librarians and like that they are on hand: “If you’ve messed up they’ll come 

over and help you. It’s pretty nice to have them by the computers so that you 

don’t have to walk away. You just raise your hand and they’ll come help you.”

Staff also need to be on hand to answer questions about logging onto library 

computers or connecting to the wireless network. 

4.6 Conclusion 

Developing administrative and operational policies for delivering public access 

technology is no easy task; every library must make decisions that maximize the 

use of its resources and deliver services that are consistently valuable to its

communities. The range of issues and policy options for dealing with them 

described in the proceeding sections, however, may help libraries better

understand how public computing policies affect the ability of patrons to 

achieve their goals. Libraries need to balance the tradeoffs between each policy 

to maximize the distribution of resources so that computing services continue to 

be a valued and valuable component of public libraries. Nonetheless, questions 

will still arise: Will these policies address both current and future conditions and 

problems? Could policies be misconstrued by the community? Are there 

partnerships or alliances the library could create with other community groups 

that are more effective than changing existing computer use policies? In order 

to be responsive to patron needs, and be supportive of library staff, library 

planning must include thoughtful discussion and implementation of technology 

policies that are sensitive to the context of the library. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 106

Recommendations

The preceding analysis of the results from the U.S. IMPACT Study of library 

policies related to public access technology services and their impact on the 

place of the library in the community points out the deeply interconnected 

nature of choices made by libraries, and the necessity of understanding those 

choices in a local context and communicating the results effectively. This final 

chapter will provide some recommendations for prioritizing the internal 

allocation of resources and for engaging with the broader community. 

These recommendations are provided in three main areas: within the library,

within the community, and across the nation. Additional research that could 

help improve public access technology services in libraries is also included in this 

section. 

5.1 Within the Library

Recommendations for libraries to follow as a means of improving their delivery 

of public access services and integration with other library services are 

discussed subsequently.

Integrate Technology Services with Other 

Library Services 

Once a clear role for public access computing has been established through the 

library’s mission, the next task is to further integrate technology into the

budget, planning, policies, and staff time and training. Rather than seeing public 

access technology and technology help and training as adjunct services, libraries 

must view technology services as integral aspects of the value they provide 

communities. The allocation of space and personnel resources for public access 

computing in particular affects library patrons, as well as library staff, 

administration, and other community members. The policy a library decides to 

adopt to govern computer time limits, for instance, not only affects the amount 

of time and the tasks a patron can accomplish on the computer, but also affects 

staff interactions with patrons.

The increased demand placed on staff in assisting patrons on computers can 

lead to a sense of not having enough time to accomplish all the traditional tasks 

required of them. Staff are vocal supporters of computer access and helping 

patrons become more computer literate, yet they also stress how they do not 

have the time to assist patrons as much as needed. However, the training and 

one-on-one help provided to patrons with technology questions are a key and 

central value of having public access computers in public libraries. Services for 

5
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 107

these patrons who are utilizing computers should be treated as no less valuable 

or necessary than any other reference service. The division between traditional 

library services and those that are technology-related is especially evident when 

there are formal or informal limits on how much time librarians can spend 

answering technology questions or restrictions about what types of technology 

questions they are allowed to answer, even though there are no such limits for 

other reference questions. Not fully integrating these aspects of modern library 

services risks creating different classes of library patrons and may discourage 

them from making full use of everything the library has to offer. 

Use Activity-Based Budgeting to Account 

for the Cost of Public Access Technology 

Services

Activity-based budgeting is a way of showing the costs of providing certain 

library functions and is helpful for planning and allocating costs. Showing the 

technology costs and staff time as a functional area in library budgets will help 

reflect the full cost of library computer services and make it easier to tie the 

expenditures to strategic planning goals. Libraries are often not reporting in a 

visible way the costs of providing computer and Internet access to patrons, 

which include not only the hardware, software, maintenance, replacement, and 

upgrade costs for the technology itself, but also staff time on computer

operations and time answering computer-related questions. Understanding the 

real costs of technology in the library is a first step toward demonstrating to 

funding agencies the overall investment needed for computers and related 

technology, training, and services in libraries. It will also be helpful in identifying 

efficient models of public access technology services. 

Use policies mitigate demand issues but do not provide a solution to the other 

problems facing the library in providing public access technology services. In the 

current situation, these costs are buried and cannot be pulled out for 

comparison or evaluation (as was evident in the financial reports provided by 

the case study libraries in this study). By using activity-based budgeting, 

technology costs and staff time can be clearly identified within library budgets 

and be tied to performance goals that reflect the full cost of library computer 

services. This information over time will help build public awareness that 

libraries can use to more effectively advocate for increased resources for library 

computing technologies.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 108

Use Data to Improve Performance and 

Communicate with Stakeholders 

As previously discussed, evaluation has two functions in the library organization: 

performance management and communication with stakeholders. As libraries 

move toward more outcomes-based evaluation, it becomes possible to use data 

collected at the library to track the success or failure of decisions made about 

public access computing. With a strong connection to the library’s mission and 

community needs, libraries can use their outcome data to allocate resources in 

a way that improves their performance against their stated goals. 

There are two areas where data are needed to provide a more complete picture 

of the public access technology landscape. The first piece of information 

accounts for the number of unique patrons who use public access computers 

and wireless networks. Though most libraries are able to count the number of 

Internet sessions occurring, very few have a reliable way of knowing how many 

individual patrons in their communities use the library computers. Further, none 

of the libraries visited for the case studies had any way of counting either 

sessions or users of their public access wireless networks. With the rapid growth 

of wireless access provided by libraries, it will become increasingly important to 

find ways to measure the use of these services. Without documenting the usage 

and impact of wireless services, the library is losing the opportunity to manage 

the services in a way that meets the needs of the users while incorporating the 

actual costs into the overall budget. In turn, the results of the measurement can 

be used to demonstrate to funders and community stakeholders the value of 

the wireless services and to gain funding and support for maintenance and 

expansion without sacrificing other services in the library.

Second, better tools for tracking the time that librarians spend in one-on-one 

help or other support for computer users need to be developed. If these 

transactions were counted along with reference questions, a more realistic 

picture of staff time might emerge that could both improve services and 

demonstrate to the community the effort that the library is putting into 

supporting users of their technology services (and provide evidence of needed 

additional funding). 

Provide Ongoing Technical Training for 

Library Staff

The role of librarians in enabling public access technology services requires 

constant training and updating of their technical skills. Librarians play an 

important role in “mediating between users and technology” (O’Gorman and
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 109

Trott 2009, p. 328). More and more information is becoming only available via 

the Internet, from government publication and forms, to news outlets and job 

applications. It has become part of the staff’s role to show users how to use the 

tools to access that information; today, that means helping patrons use 

computers effectively and find reliable information on the Internet.

The need for increased technology training was expressed by many of the staff 

interviewed for the case studies and was reflected in the training programs 

instituted by the libraries themselves. The case study libraries dealt with staff 

technical training in very different ways, ranging from online training modules in 

Fayetteville and Baltimore to the do-it-yourself approach in Oakland (a result of 

their severe budget cuts). It is clear that without leadership commitment and 

integration into evaluation mechanisms for staff performance, however, 

training takes a back seat to other more pressing duties. Making skills 

development and technical training a part of the expected daily activities of 

staff, and including them in the costs of offering public access technology 

services, is critical to the overall success of public access technology programs 

and to the success of patrons who depend on library equipment and who look 

to library staff for help.

5.2 Within the Community

The following recommendations are meant to be used as guidelines for libraries 

in working with external agencies to gain support and buy-in for their public 

access services, and for communities to consider in their funding and support of 

library public access services and integration with other public access 

initiatives—both private and public.

Formalize Relationships with CommunityBased Organizations 

A key finding of the U.S. IMPACT Study is that staff from organizations in both 

the public and private sectors at local, state, and federal levels send their clients 

and customers to the public library to use the computers through both direct 

and indirect referrals. In some cases, they also send their staff to use the library 

computers and get training. As discussed in the case studies, these 

interdependencies are something that libraries are aware of to different 

degrees—in some instances, they begin organically as new users and outside 

agency staff are referred to the library’s computing services without the 

awareness of library staff. In other instances, library staff are aware of the usage 

and may work to facilitate it through outreach services and training. Libraries 

can be more active in accounting for and addressing the additional pressures 

these interdependencies bring in two ways: first, they can work with external
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 110

groups to expand public Internet access at other venues; second, they can 

uncover and formalize the relationship to include financial support.

To help gain some control of the external factors that affect it, a library should 

scan the environment and understand what other community-based 

organizations are in its area, what assistance they offer residents, who they are 

serving, and their technological infrastructure needs. Libraries should seek to 

partner with CBOs that make use of library computers in a reciprocal, mutually 

beneficial relationship. Understanding the external environment can help the 

library better allocate resources. Examples such as the initiative by the OPL to 

build a new branch in cooperation with the school district are excellent models 

for this kind of engagement.

Another benefit of making these relationships explicit and part of the strategic 

planning of the library is that it pressures both agencies to better track and 

report the service use. These relationships tend to highlight true costs by 

making each partner’s contribution to the success of programs more visible.

Use Data and Stories to Communicate the 

Value of Public Access Technology 

Public libraries often need strong advocates. As with other public services, 

public library budgets are experiencing extraordinary challenges. Yet more 

people are turning to the public library for assistance in job search and 

application, government information and forms, and accessing information 

online. Libraries teach users how to use computers; how to navigate programs, 

applications, and websites; and how to find and access information. Libraries 

help community members create assets by increasing individuals’ effectiveness 

and marketability as workers and participants in civil society. Libraries should be 

vocal in marketing these programs and services to increase public use and 

governmental interest. 

Communicating the value, both in terms of quality and quantity, that library 

computer access provides to the community is critical for expanding the library’s 

base of support and increasing funding. Interviews with key stakeholders in 

funding, and support organizations in the case studies showed that both data 

and stories were necessary for the message to engage their attention. Focusing 

on ways to package and deliver key messages about public access computing 

services to the right people and organizations in the community is an important 

activity for all libraries, no matter how they are funded. The combination of 

solid, outcome-based measures of public access technology results, along with 

stories from users who have taken advantage of the services and can articulate 

why it is important to the community, are essential for building and maintaining 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 111

the support of funders and influential backers in the community. Stories need to 

be specific and personal, and every library leader should have one ready for use.

5.3 Across the Nation

These recommendations are for policymakers and leaders to take action on 

matters related to the findings on public access technology services in libraries.

Establish Libraries as Lead Agencies for 

Broadband Adoption and Support

A unique opportunity for libraries has opened up with the recent publication of 

the FCC’s Connecting America: The National Broadband Plan (U.S. Department 

of Commerce 2010). In that report, the FCC discusses the specific and important 

role of public libraries and other community-based organization in meeting the 

needs of the American public for access to the Internet. The report reinforces 

many of the points made in this study and others, particularly the critical role 

library staff play in providing help for users new to the Internet and the 

limitations imposed by inadequate space and equipment to meet those users’ 

needs:

But public computing centers provide more than just free access to the 

Internet. They provide supportive environments for reluctant and new 

users to begin to explore the Internet, become comfortable using it and 

develop the skills needed to find, utilize and create content. (ALA 2009a)

Patrons of these centers overwhelmingly express the value of the 

personnel who staff them and can offer one-on-one help, training or 

guidance. (Daily, Bryne, Powell, Karaganis, and Chung 2010)

However, many libraries lack the computer equipment to meet the 

needs of today’s patrons. Eight in 10 libraries report hardware shortages 

that produce waiting lists during part or all of the day. More than 80

percent of libraries enforce time limits on use; 45 percent of libraries 

enforce time limits ranging from 31 minutes to 60 minutes, which is not 

enough time to complete many popular and highly useful tasks. (ALA 

2009b)

In their recommendations, the FCC puts the IMLS and libraries in the lead role 

for making policy changes in the years ahead that will provide additional funding 

and support for libraries. This is a remarkable opportunity for change that the 

library community should embrace and move forward with. In particular, the 

FCC has recommended establishing a “digital literacy corps” to help new 

technology users learn about the ways in which technology can help them and 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 112

to teach the skills they need to get online. Public libraries in the United States 

have the most robust infrastructure to support programs for teaching digital 

and information literacy skills, and the public library community should seize 

this opportunity for making libraries the central hub for growing a digital literacy 

corps. 

Establish a Set of Common Indicators for 

Public Library Technology Services

Using valid and reliable indicators as a basis of a performance evaluation and 

measurement system and establishing them as benchmarks is an important step 

in improving performance and stimulating reinvestment in public access 

technology resources and services. Benchmarks can be used both locally and 

nationally to influence policymakers and funders by demonstrating the extent to 

which these resources are used and the important outcomes that result. They 

also help libraries better manage their resources and set appropriate motivating 

goals for librarians and other staff.

It is heartening to see that the FCC also considers this to be an important part of 

their agenda for better access for all, and has put the IMLS in the lead role for 

this effort, as well as recommending funding for not only technology but also 

training:

IMLS should develop guidelines for public access technology based on 

populations served and organization size. These guidelines would help 

libraries and CBOs assess their needs for public access workstations, 

portable devices and bandwidth. IMLS should work with these organizations 

to develop guidelines and review them annually to reflect changing 

technology and practices. (U.S. Department of Commerce 2010, 

Recommendation 9.3.)

5.4 Future Research 

Some areas uncovered through the U.S. IMPACT Study warrant further 

investigation and research as a way to explore innovative solutions to the 

difficult choices that libraries face in supporting their public access technology 

services. A number of these were outlined in the first report, Opportunity for All: 

How the American Public Benefits from Internet Access at U.S. Libraries; several 

more were uncovered in the analysis contained in this report. These are briefly 

described here as starting points for future investigation. 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 113

Quantify the Value of Public Libraries to 

Other Organizations

As shown in the present report, libraries often provide resources and services to 

other schools, government agencies, and CBOs that are not accounted for in the 

library budget or financial reports. While this report demonstrates the value of 

the library’s support for these organizations in terms of amplifying their 

effectiveness, expanding their resources, and relieving their workload, 

quantifying the cost and monetary benefits of the library’s investment in these 

groups is a critical next step in showing the value of the public library. One way 

to show the financial impact of shadow mandates is through the use of costbenefit analysis, which has already been used as a way to demonstrate the 

value of library resources for individual users (Elliot, Holt, Hayden, and Holt 

2007). 

Incorporate the Use of Public Access 

Technology in Library Education 

Librarians today require different skills and knowledge to successfully serve 

patrons than in the past. It would be worthwhile to review professional library 

and information science education in the light of some of the findings in this 

study. Particularly worthwhile would be a critical appraisal of library and 

information sciences curriculum related to the public policy and leadership skills 

necessary to successfully engage communities in the support of public access 

computing. The integration of public access computing services into the library 

requires an understanding of the impact these services have on the internal 

organization of the library itself and on the core services that libraries have 

always provided, as well as the communities the libraries serve. A basic 

understanding of the public policy process, management and leadership, budget 

and finance, and program evaluation are all essential to successful 

implementation of the recommendations coming from this study, and finding 

ways to weave them into the curriculum, is an area fruitful for further 

investigation.

5.5 Conclusion

This report has tried to draw useful lessons for libraries in communities across 

the country from an analysis of the findings from the four case studies and the 

surveys that formed the basis of the U.S. IMPACT Study. It has placed those 

findings in a framework that allows libraries to calibrate their approaches to the 

complex problems involved in providing public access computing services to 
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 114

their communities and to make the difficult choices between options available 

for achieving their missions with often inadequate resources.

The central importance of defining a clear mission, focused on the needs and 

characteristics of the local community, is the basis for many of the 

recommendations that have come out of this analysis. Those libraries that have 

made the effort to understand the local landscape and to take the steps 

necessary to meet the changing needs of their stakeholders and users have 

been able to integrate public access computing services into their offerings in 

different ways. The importance of this reflection of the local community is 

perhaps the most salient conclusion to be drawn from this analysis—although 

the problems and opportunities facing libraries across the country as they 

incorporate access to the Internet and computers into their offerings are similar 

in nature, their solutions may be radically different if they are doing their job 

well. 

As shown in both this report and its companion, the American people rely on 

the public libraries of the country for access to computers and the Internet for 

many reasons, and libraries everywhere have responded in different ways to 

these demands. This report has attempted to illuminate some of the key factors 

that libraries should take into consideration as they marshal their resources to 

meet the increasing demand for their technology services. It also has defined a 

context for identifying and satisfying the needs of their users and the demands 

of their stakeholders.
Opportunity for All: How Library Policies and Practices Impact Public Internet Access | 115

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This report and its appendices can be downloaded at 

http://tascha.washington.edu/usimpact.

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Suggested Citation

Becker, Samantha, Michael D. Crandall, Karen E. Fisher, Rebecca 

Blakewood, Bo Kinney, and Cadi Russell-Sauvé. (2011). Opportunity for 

All: How Library Policies and Practices Impact Public Internet Access

(IMLS-2011-RES-01). Institute of Museum and Library Services. 

Washington, D.C.

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Not available at the time of printing.