Eastern Shore Public Library Stu

Eastern Shore Public Library Study

John A. Moorman, Ph.D.

Final Report

August 29, 2008

Introduction:

On November 9, 2007 the consultant signed a contract with the Eastern Shore Public Library to perform the following services:

1. A general space needs assessment for the entire two-county system with recommendations for the replacement of existing branch buildings and the addition of new service points as needed.

2. Provide advice on standard contractual agreements with the two affiliated branches (Island Library and Northampton Memorial Library) and other organizational changes which would strengthen the system, such as expansion of the present Board of Trustees.

3. Staffing suggestions for four branches, including technical functions, administrative functions, and customer functions.

4. A comparison of mobile unit(s) vs. additional small branch service points.

This is the final report for this project. It was preceded by several draft reports including a preliminary report delivered to the Board of Trustees on May 9, 2008.

At a public meeting held in the Eastern Shore Public Library’s Accomac Facility on July 26, 2008 the May 9, 2008 preliminary report was discussed. In attendance at this meeting were representatives of the Eastern Shore Public Library Board of Trustees and staff as well as citizens from the communities served by the Library.

As a result of the input received at this meeting the consultant has made several revisions to the report.

Prior to formalization of the contract for the Eastern Shore Public Library project, the consultant visited the Accomac Library on October 6, 2007 to meet with members of the Friends of Eastern Shore Public Library, members of the Board of Trustees of Eastern Shore Public Library and administrative staff of the Eastern Shore Public Library. This visit was an informative discussion of concerns. The consultant received a good understanding of recent library history and the desire of all present for system improvements. This wide-ranging discussion made the consultant aware that, while there was not agreement on how to achieve desired results, all present had a firm love of the Eastern Shore Public Library and a strong desire to enrich library service to the residents of Northampton and Accomack Counties.

On December 15, 2007, the consultant spent a day driving throughout Northampton and Accomack Counties to become better acquainted with the geography and communities of the Eastern Shore Public Library. The consultant also had a meeting with Carol Vincent, Director of Administration for the Eastern Shore Public Library.

This report is divided into four sections: Space Needs, Contractual Arrangements, Staffing and Conclusions.

Section 1 Space Needs

The Eastern Shore Public Library currently has two locations over which it has administrative control. These are the Eastern Shore Public Library in Accomac and the Northampton Free Library in Nassawadox. There are two additional facilities that have a loose arrangement with the Eastern Shore Public Library. These are the Northampton Memorial Library in Cape Charles and the Island Library in Chincoteague.

The consultant has in recent years worked with the Eastern Shore Public Library and developed the Space Needs document for the Northampton Free Library facility in Nassawadox. In addition the consultant did a small space utilization study for the Northampton Memorial Library in Cape Charles and a space consultation for the Island Library in Chincoteague.

Information collected from Carol Vincent, Director of Administration of Eastern Shore Public Library, indicates the following square footages for ESPL locations:

Main Library Facility – Accomac – 13,000 square feet

Island Library – Chincoteague – 2,850 square feet (current facility 750 square feet, with a 2,100 square foot addition under construction)

Northampton Free Library – Nassawadox – 3,500 square feet

Northampton Memorial Library – Cape Charles – 1,375 square feet

With the above facilities Accomack County has 15,850 square feet of library facilities and Northampton County has 4,875 square feet of library facilities. According to the U.S. Census Bureau Accomack County’s estimated population in 2006 was 39,345 and Northampton County’s estimated population was 13,609.

Based upon the facility standards in the proposed revision to “Planning for Library Excellence” the standards document for Virginia Public Libraries, the recommended square feet per capita varies from .6 sq. ft. per capita to 1 sq. ft. per capita. Based upon these standards, Accomack County’s library square footage would be in the 23,607 to 39,345 square foot range. Northampton County’s library square footage would be in the 8,165 to 13,609 square foot range. At the .6 sq. ft. per capita standard the current deficit for Accomack County is 7,757 square feet. For Northampton County the current deficit is 3,290 square feet. At the 1 square foot per capita standard the current deficit for Accomack County is 23,495. For Northampton County the current deficit is 8,734 square feet.

It is emphasized that these are only guides. Any determination of library square footage needs must take into consideration a variety of community factors including population demographics and concentrations, availability of transportation, service expectations as found in long range plans, community support, and governmental ability and willingness to provide funding.

Detailed building space program documents for new or renovated facilities are not a part of this study. These will need to be done at a later date when the Board of Trustees has reviewed the recommendations contained in this study and determined a course of action for future library development.

In discussing space needs for the Eastern Shore Public Library the following observations are made:

The Northampton Memorial Library in Cape Charles is located in a former church. The building was not designed for use as a public library. The consultant commends the efforts of the board and staff of this facility to make maximum use of available space in the provision of public library service. However, the facility is small, with limited internal re-arrangement possibilities. It also has minimal public parking and is not conveniently located for maximum public access.

The Northampton Free Library in Nassawadox is a new facility opened in 2006. There are factors which limit maximizing its usage. It has good on-site parking and could be easily expanded. The site contains enough space for an addition in the 3,000 to 5,000 square foot range.

The Main Library in Accomac is a high-usage facility with crowding evident in both collection and seating. There is a lack of program and public meeting space. In the current building arrangement there is not adequate office space for system operations. The facility also suffers from the lack of a public sewer system in Accomac. This situation and the lack of space for expansion limit its future usage as a part of Eastern Shore Public Library service provision.

The Island Library in Chincoteague is a small facility with limited public parking. The addition under construction will triple the space available for public library service. However, the consultant in viewing these plans has questions about how effective this new space will be in the provision of public library service and whether the current Island Library staffing structure will be able to provide both supervision and service in the new building arrangement.

With the above in mind the consultant is making the following space recommendations for Eastern Shore Public Library:

1. A new facility in Northampton County to replace the Northampton Memorial Library in Cape Charles. This facility would be in the 6,000 to 8,000 square foot range and would be located in a more central location to provide easier access to residents of the lower Northampton County area. A recommended area for location of this facility would be in the U.S. 13 corridor near the Cape Charles exit. This area includes major local businesses and is already a destination location for area residents. Any new Northampton County Library facility would become a part of Eastern Shore Public Library.

2. An expansion of the Northampton Free Library in Nassawadox. This expansion would be in the 2,500 to 3,500 square foot range. This expansion would provide more space for collection, public programming and computer access.

3. A new main public service library for Eastern Shore Public Library to be located in the Onley area. This area is selected because of the availability of public water and sewer and the fact that this area is a major business location. Public libraries need to be located where they are a part of destination travel to other public service and business locations. The Onley area is a prime destination travel location for both Accomack and Northampton Counties. This facility would be in the 15,000 square foot range and would have space for collections and special areas for adults, teenagers and children. It could also house the administrative offices of the Eastern Shore Public Library. Included in the facility would be adequate public seating, computer access and public meeting room space. This facility can be accomplished through either new construction or renovation of vacant space in an appropriate location in the Onley area.

4. The conversion of the current Main Library facility in Accomac into collection and use space for ESPL special collections. This conversion would also include public meeting facilities to meet special collection and public use needs. The building is owned by ESPL and with proper renovation could serve adequately in these roles for years to come. Depending upon renovation planning, library staffing levels and the Library’s long range plan the administrative offices of the Eastern Shore Public Library might continue to be located in this facility.

5. The provision of a new facility in the Temperanceville/Bloxom area to provide service to the upper Accomack County area. This facility would be in the 3,500 square foot to 5,000 square foot range. This facility is not an immediate need but should be a consideration of any plan for the next 8-15 years. One of the reasons for consideration of this facility is the distance of the Island Library from the rest of Accomack County.

The consultant sees the Island Library as meeting the needs of public library service in the Chincoteague community for the next 10 to 20 years. As it is remote from the rest of ESPL’s service area it does not figure significantly in future system service expansion.

In any future plan for the provision of public library service to the residents of Northampton and Accomack Counties there will need to be a means of providing service to outlying areas of both counties. With a large service area with remote pockets of concentrated population it is not economically feasible to provide static library locations within easy reach of all residents. This coupled with a lack of public transportation, except along Route 13, means that many residents of the two county area will be unable to access library services through building locations.

Cost comparisons between additional fixed service locations and mobile library service are difficult to make. This is due to the great variation in costs for the provision of fixed-based locations. Costs for fixed-based locations vary depending upon whether the facility is new or renovated, leased or owned, size and staffing for the facility and on-going maintenance and operational costs. As mentioned above, due to set up and on-going costs for each fixed-based operation, no matter how small, the consultant recommends the provision of mobile library service as the most prudent and economical method of providing localized library service for users with limited access to, or physically remote from, population centers.

In the preliminary report the consultant recommended the purchase of a mobile library unit of 40 feet that would house 3,000 – 5,000 volumes and have space for at least 4 computer terminals. Cost of this vehicle would be approximately $300,000 and would have an expected useful life of 20 years. This vehicle would be able to travel all paved roads in the two-county areas. As it comes with a self-contained generator it would not be dependent upon a local power source to operate during scheduled stops.

After a detailed discussion of this recommendation at the July 26, 2008 public meeting, the consultant is modifying the above recommendation.

The consultant continues to recommend that the Eastern Shore Public Library purchase a mobile vehicle to provide library service to those residents who through distance or transportation difficulties are unable to access library services through building locations. As a part of the development of a new long-range service plan the consultant is recommending that the Board of Trustees and staff of the Eastern Shore Public Library examine the various mobile library service vehicles available from manufacturers to determine which vehicle would best serve non-facility based community library service needs. In this examination consideration must be given to staffing and operational limitations. Vehicle options range from small vehicles that can house up to 500 volumes which can be off loaded at stop sites to larger vehicles than the one mentioned above. Costs for these vehicles range from $75,000 to over $400,000. The consultant is available to assist the Board of Trustees and staff in this process.

As a result of the public meeting of July 26, 2008, the consultant has re-examined the priority order in which the above recommendations should be accomplished. The consultant is in agreement with the strong concerns expressed in the meeting for the development of a new main library facility for the Eastern Shore Public Library. As a result the consultant is presenting the following project priority order recommendation:

1. Main Library Renovation

2. New Main Library Facility in Onley area.

3. Mobile Library Service vehicle.

4. New Northampton Library Facility

5. Expansion of the Nassawadox Free Library

6. New Facility in the Temperanceville/Bloxom Area

It is understood that recommendations one and two will have to be done as a joint project.

The consultant emphasizes that any of the above projects cannot be accomplished within the current budget of the Eastern Shore Public Library. All recommendations, including the provision of a mobile library service vehicle, will require an increase in staffing levels for the Library as well as an increase in on-going maintenance and operational costs.

The consultant has been impressed with the fiduciary management of the Eastern Shore Public Library Board of Trustees and Staff. With the very limited funding available for library operations, the Eastern Shore Public Library is providing a good level of public library service to its user community. However, for Library service to provide 21^st Century library service to its community and deal with any of the recommendations contained above, funding for library services needs to be increased. The proposed revision to “Planning for Library Excellence” the standards document for Virginia Public Libraries recommends in its Funding and Administration Level AA “The library shall receive no less than 1% of the total revenue of its local government(s).” The consultant recommends that the Eastern Shore Public Library work with its funding bodies to accomplish this level of library funding.

Section 2 – Contractual Arrangements

As indicated earlier the Eastern Shore Public Library consists of the main library facility in Accomack and the Northampton Free Library in Nassawadox. There are also arrangements between the Eastern Shore Public Library and the Northampton Memorial Library in Cape Charles and the Island Library in Chincoteague whereby the Eastern Shore Public Library assists these entities in their provision of public library service.

In April and May of 1958, the Northampton and Accomack County Board of Supervisors approved similar resolutions establishing a Regional Free Library System for the Eastern Shore of Virginia. This resolution included a cost sharing basis for support of the Regional Library at two-thirds for Accomack County and one-third for Northampton County. In January and February of 1987 both entities amended the cost sharing basis for support of Eastern Shore Public Library to a percentage equal to the annual patronage use by residents of each County.

The Eastern Shore Public Library is recognized by the Commonwealth of Virginia as the entity providing public library service to both counties and receives state aid to public libraries funding as a result of this recognition.

The consultant would recommend that the Board of Trustees of the Eastern Shore Public Library work with the Board of Supervisors of both counties to expand upon the basic agreement for the operation of public library services. Areas for further delineation in this agreement would include responsibilities for buildings, the handling of library personnel, and funding provision. The consultant has worked with Carol Vincent, Director of Administration for ESPL to assist her in getting copies of contracts for library services from regional libraries.

A copy of the draft revised contract for library services with both Accomack and Northampton County was obtained from Carol Vincent. The consultant is impressed with the work that has gone into this draft and has only one concern with the document. In section 5 Budget and Appropriations it is stated: “Subject to lawful appropriations, each of Accomack and Northampton shall endeavor to make funds available to the Library in at least the amount necessary to permit the Library to meet the minimum annual requirements for funding of grants from the Commonwealth of Virginia.” While the consultant understands the history of Eastern Shore Public Library funding, he questions inserting a provision with this wording in the contract. If it is felt necessary that such a provision be in the contract, suggested wording for it is: “In no case shall funding provided by Accomack Board and Northampton Board fall below that required for the Eastern Shore Public Library to be eligible for grants from the Commonwealth of Virginia, as provided in the Code of Virginia.”

The relationship between the Eastern Shore Public Library and the Northampton Memorial Library in Cape Charles and the Island Library in Chincoteague is unique and will be described in more detail below.

The Northampton Memorial Library in Cape Charles receives support from the Eastern Shore Public Library through the following:

· Public Access Computers are purchased and maintained by ESPL.

· Purchase of 15 books per month by ESPL which are selected by NML librarian.

· When ESPL purchases more than one copy of a bestselling book or a book of local interest one copy of each title is permanently assigned to NML.

· The Eastern Shore Public Library facilitates the purchases of books for NML through use of its acquisition system.

· ESPL handles all technical service operations including book processing for the NML collection.

· ESPL supplies paper, printer cartridges, library cards, request cards, headphones, mouse pads and other miscellaneous office and computer supplies to NML.

· Provision of twice-a-week courier service to connect NML with other Eastern Shore Public Library locations.

· ESPL catalogs NML materials and adds them to the union database of the Eastern Shore Public Library.

The Town of Cape Charles supplies one full-time manager and one part-time employee for the operation of the Northampton Memorial Library. The Town also owns the Northampton Memorial Library building.

The relationship between the Eastern Shore Public Library and the Island Library is different. The Island Library, a non-profit 501(c)(3) organization, owns the building and the land that it occupies and operates the library through a local board of directors. This board pays for building expenses and provides a volunteer staff to assist in library operation. The Eastern Shore Public Library provides the following for library operation:

· Funding for 12 hours of staff assistance per week.

· When ESPL purchases more than one copy of a bestselling book or a book of local interest one copy of each title is permanently assigned to the Island Library.

· ESPL catalogues Island Library materials and adds them to the union database of the Eastern Shore Public Library.

· Island Library patrons may search the ESPL database in-house as well as remotely to locate books housed at all libraries listed in the database

· ESPL purchased and maintains four computers at Island Library and pays for the DSL service used for Internet access.

· Twice a week courier service to connect the Island Library with other locations within Eastern Shore Public Library.

· ESPL supplies paper, printer cartridges, library cards, request cards, headphones, mouse pads, and other miscellaneous office and computer supplies.

As the above indicates there is a different relationship between Eastern Shore Public Library and the two entities with which it shares public library service provision to Accomack and Northampton Counties.

The relationship with the Northampton Memorial Library is a loose federated approach in that the library appears to be a distinct entity but does receive some assistance with library operations from ESPL. The Town of Cape Charles pays for library staff. According to the Northampton County Administrator, Northampton County also provides some funding to the library for its operation.

The relationship with the Island Library is a tighter federated approach as ESPL provides funding for twelve hours of staffing assistance per week. However, the building and land on which it sits is owned and operated by the Island Library board of directors. The Eastern Shore Public Library has no input on building operations and planning.

Through working with all entities involved with the provision of public library service to Accomack and Northampton Counties, the consultant has developed a basic understanding of the approach that each entity has in providing this service. In essence there are three different approaches with three different viewpoints on how this service is being provided. This does not make for efficient, fiscally responsible service provision.

There are two main ways to address this situation:

1. Establish a contractual relationship with the Eastern Shore Public Library based upon a federated model where local libraries retain ownership of and responsibility for building(s) and their maintenance.

2. By contract with the Eastern Shore Public Library transfer these operations to the Eastern Shore Public Library so that they will become full branch operations of the Eastern Shore Public Library.

The consultant recommends that in whatever approach is used to bring clarification to public library service to Accomack and Northampton Counties the following be a part of any agreement:

· Responsibility for staffing and library operations rest with Eastern Shore Public Library.

The consultant favors the second approach to the provision of library service to the citizens of Accomack and Northampton Counties as this would provide for a unified regional library with control over all system operations. However, the consultant understands the role that history and past practice play in any public service provision and acknowledges that a federated approach may be the best that can be obtained at this time.

The Board of Trustees of the Eastern Shore Public Library has the fiduciary responsibility for all library operations. It is important that this board be representative of the governmental units the library serves. The future makeup of this board will largely depend upon what relationship is decided between Eastern Shore Public Library and the libraries providing public library service in Accomack and Northampton Counties. The consultant would recommend a board of no less than nine members and no more than eleven members. If a federated system is decided upon then there could be one representative from the Northampton Memorial Library and one representative from the Island Library. The other members would be selected by the Board of Supervisors of Accomack and Northampton Counties in proportion to the population of both counties. If a non-federated system were decided upon the board members would be selected by the Board of Supervisors of both counties in proportion to the population of both counties. This recommendation is in line with the arrangement proposed in the draft agreement with Accomack and Northampton Counties.

Section 3 - Staffing

The Eastern Shore Public Library has the following paid staff positions:

Full-Time

Director of Administration

Director of Information Services

Technical Services Cataloger

Children’s Librarian

Library Assistant (three positions)

Part-Time

Courier (16 hours per week)

Library Assistants (six positions with allocations between 4 and 8 hours per week)

In addition the Eastern Shore Public Library provides 12 hours per week of staffing assistance to the Island Library.

Hours of service at library locations are as follows:

Main Library – Accomac

Monday, Tuesday, Wednesday, Friday – 9 a.m. – 6 p.m.

Thursday – 9 a.m. – 9 p.m.

Saturday – 9 a.m. – 1 p.m.

Northampton Free Library

Monday, Tuesday, Wednesday, Friday – 9 a.m. – 6 p.m.

Thursday – 9 a.m. – 9 p.m.

Saturday – 9 a.m. – 1 p.m.

Island Library

Monday, Tuesday – 10 a.m. – 5 p.m.

Wednesday, Friday and Saturday – 1 p.m. – 5 p.m.

Thursday – 4 p.m. – 8 p.m.

Northampton Memorial Library

Monday, Tuesday, Wednesday, Friday – 10 a.m. – 5 p.m.

Thursday – 10 a.m. – 8 p.m.

Saturday – 10 a.m. – 2 p.m.

Weekly hours of service for the libraries are:

Main library – Accomac – 52 hours

Northampton Free Library – 52 hours

Island Library – 30 hours

Northampton Memorial Library – 42 hours

The above figures indicate that, with the exception of the Island Library, public service paid staffing hours are available to cover all hours that each facility is open.

In examining the staffing situation for Eastern Shore Public Library the consultant makes the following recommendations. Some of these recommendations will require that new contracts for library service between ESPL and the library locations in Cape Charles and Chincoteague be developed and signed. These contracts would be different in form than the current proposed contract.

1. That paid library staff be provided for all the hours that the Island Library is open. It is essential for the provision of good public library service that trained paid staff be present when the library is open.

2. That paid staff in all library locations be employees of Eastern Shore Public Library. This will permit uniform library operations throughout the two-county area.

3. That a study be made concerning outsourcing of technical service and processing operations. In a library system such as ESPL where staffing is an issue, this would be one way to free current staff to provide additional public service assistance. The current cataloger could also assume acquisitions duties for the system. This would enable the Director of Information Services to provide more coordination to adult information service provision on a system-wide basis.

4. That the courier position be expanded to full-time. This would enable the expansion of delivery service beyond the current twice a week schedule. This position could also assist with the provision of mobile library service.

5. That the current children’s librarian position be expanded to include responsibility for all children’s programming at all library locations.

6. That a full-time information technology position be established. Information technology is a complex and demanding service. With public access Internet terminals at all library locations and an automated circulation and catalog system, servicing this function is a full-time responsibility.

7. That the position of Library Assistant be re-evaluated. As a part of this re-evaluation consideration should be given to dividing the position into two categories; Library Assistant-Senior and Library Assistant-General. To occupy the Library Assistant-Senior position advanced training in the provision of information service will be required. While, it is acknowledged that in most locations the same library assistant will be providing both information and circulation services, ESPL needs to provide advanced training to selected individuals to improve the provision of information service. Individuals receiving this training would qualify for the position of Library Assistant-Senior.

8. That all part-time library assistant positions be examined in light of public service provision needs. The consultant in his initial examination of ESPL staffing levels and service can see the need for expanding the hours provided in some of these positions to enable a more comprehensive coverage of public service hours and provide for back-up assistance for vacation and sick leave situations.

As staffing is addressed there is also a need to consider hours of service for library locations. It varies now from the 30 hours per week of the Island Library to the 52 hours per week of both ESPL locations. With the provision of full-time staff at the Island Library it is recommended that their hours of service be increased to at least 40 hours per week. As staffing permits, the consultant would recommend expanding Saturday service to 5 p.m. at all library locations. Many families have both parents working and Saturday is often the only day for family activities. When a public library closes on Saturday at 1p.m or 2 p.m. a restrictive limit is placed on the time available for families to use their public library.

Conclusion

Through working with the Board of Trustees of the Eastern Shore Public Library, library staff, Friends of the Library organizations, and members of the communities served by the Library since November of 2007 as a part of this study, the consultant is impressed with both the dedication to, and support for, public library service of all with whom he came into contact. The Eastern Shore Public Library provides a good level of public library service to the residents of Accomack and Northampton County. This is accomplished with limited funding and staffing. Through good management and individual dedication the staff of the Eastern Shore Public Library stretches resources to their limits and beyond in providing personalized service to its community.

The recommendations contained in this study are presented as a blueprint for consideration to the Board of Trustees of the Eastern Shore Public Library as it plans for the provision of 21^stCentury public library service to its service area. While implementing these recommendations will necessitate additional funding for the Eastern Shore Public Library, the consultant believes that such funding is both feasible and possible.