Toward Equality of Access The Role of Public Libraries
in Addressing the Digital Divide
Ninety-five percent of public libraries in the United States
offer free access to computers and the Internet, often
providing the only Internet access for residents of the
nation's poorest areas. This report evaluates the
importance of these library-based computers in addressing
the digital divide.
Drawing from government statistics and independent
research, the report finds widespread acceptance of
library-based computer and Internet access from patrons
and librarians. But more importantly, the report finds that
public access computing is benefiting those socioeconomic
groups with the greatest need.
However, the report also notes urgent—but manageable—
challenges facing libraries as they seek to maintain and
further develop their role in providing access to digital
information. This valued public service can only be
sustained by the continued support of policymakers,
librarians, and community advocates.
he term “digital divide” has been used since
the 1990s to describe patterns of
unequal access to information technology—primarily
computers and the Internet—
based on income, ethnicity, geography, age, and other factors.
Over time it has
evolved to more broadly define disparities in technology
usage, resulting from a lack
of access, skills, or interest in using technology.
Nearly a decade after the phrase was coined, Internet use
has increased
substantially among all socioeconomic groups. But despite
these gains, recent
government data show that significant gaps remain between
so-called “haves” and
“
have-nots.” In particular, traditionally disadvantaged
groups—including African
Americans, Hispanics, Native Americans, and those with lower
income and education
levels—continue to be less likely than other segments
of the population to have the
access and skills to effectively use computers and the Internet.
Studies also indicate that physical and sociological barriers—such
as concerns over
cost, or fears of difficulty—have prevented many non-users
from exploring computers
and the Internet.
Public libraries have made tremendous strides in giving
people access to technology. Yet, more than 40 percent
of Americans
still
do not regularly use the Internet, and many cite barriers
to
access or lack of skills as the reason.1
T
2
3
4
By reaching nearly all communities, library
computers have been an effective way to reach
the “digitally divided.”
Following years of government and private funding and
support, public access computers are now available in more
than 95 percent of the nation’s public libraries.2
More than 14
million Americans (about 10 percent of all Internet users)
regularly use these computers.3 Studies confirm that public
access computers are popular and that most Americans now
expect their library to provide them. According to a recent
study conducted by the Marist College Institute for Public
Opinion, Americans believe that providing computers for public
use is one of the three most important things their library
can
do.4 Between 1996 and 2001, library visits increased more
than 17 percent, a trend partially attributable to the availability
of computers with Internet access.5
Moreover, extensive research on how library-based
computers are used reveals some key findings:
Public library computers are reaching the
disadvantaged groups consistently identified as
lacking technology access and skills. To a greater extent
than the general population, certain ethnic groups and people
with lower income and education levels rely on library
computers as their only means of accessing computers and
the Internet. The reliance is even more pronounced with
children and adolescents in these disadvantaged groups.
Library patrons use public library computers to learn
basic computer and Internet skills. As institutions built to
promote education and access to information, public
libraries are appropriate environments for learning computer
and Internet skills. Librarians provide one-on-one training
on
a daily basis, and evidence suggests that librarians
are serving this role well. Information-seeking which then
leads
to basic computer training—often the progression of
instruction in libraries—provides the necessary context
to
make the training useful and lasting for patrons. Some
libraries also are able to provide formal training classes.
Library computers are helping patrons communicate,
learn, work, and create. Computer and Internet access
allows patrons to keep in touch with family and friends,
complete homework assignments, find job listings, and write “ When we all come together
to expand public access
computing, children can explore
the universe of knowledge,
businesses can expand, and
communities can thrive.” — Peggy Rudd, Director
Texas State Library and Archives Commission
5
reports. Library computers serve the special needs of
distinct communities. For example, elderly library users have
a significantly higher interest in online medical information.
The impact of library computers is especially
pronounced in rural communities. Nearly 80 percent of all
library systems serve rural areas and small towns. The benefits
of increased access in these communities are numerous and
dramatic. Residents now can use library computers to find
employment, research health issues, complete academic
assignments, or stay in touch with distant friends. Library
computers also have led to increased patron visits and
enhanced the libraries’ standing in their communities.6
Despite the successful expansion of public
access computers into most libraries, current
funding cuts jeopardize these gains. Lack of
access could become a problem again—
especially in the poorest communities.
The current challenge for libraries is to sustain their ability
to
provide public access. This requires ongoing investment and
support in five key areas:
Hardware and software upgrades
Internet connectivity
Keeping systems running
Staff training
Keeping libraries open
However, current funding cuts in library staff, services,
or building hours threaten the access and opportunities that
are
the promise of public access computing. Patrons who rely
exclusively on library computers—the ones best served
by
them—are most affected by cuts. Rural and small-town
libraries are especially at risk because their funding is
less
reliable, their staffs tend to be older and less comfortable
with
technology and they have trouble getting technical support.
But it’s not too late to preserve the
gains in public access
to the Internet that communities all over the
country have made. The evidence in this report
shows that communities
made the right bet when they put public-access
computers in
their libraries. Now it will require sustained
effort, and funding,
from policymakers, state librarians, and other
advocates to
make that investment truly pay off.
Public Library Systems Without Public Internet
Access Source: U.S. National Commission on
Libraries and Information
Science and Public Libraries
and the Internet 2002 by J. C. Bertot and C.
R. McClure mpirical proof of the digital divide
first
appeared in Falling Through the Net, a 1995
report by the U.S.
Department of Commerce’s National Telecommunications
and
Information Administration (NTIA).7 Subsequent NTIA reports
confirmed a gap in the use of information technology,
attributable largely to socioeconomic factors of race, income,
education, and geography. The explicit concern in these
reports and among policymakers was that unequal access to
computers and the Internet would perpetuate or even
exacerbate existing social divisions. Disadvantaged groups
were in danger of watching the Information Age pass them
by.
National attention on the digital divide perhaps reached
its
peak in 1999. With the rise of dot-com startups and increasing
Internet use, the media highlighted the issue of technology
“
haves” and “have-nots.” Suspicion that
market forces alone
would not adequately solve technology inequalities led to
government involvement (such as the creation of the E-rate,
a
federal program to offset connectivity costs), while some
private organizations targeted their efforts and capital
to help
narrow the digital divide.
THE DIGITAL DIVIDE
An Evolving Debate
6
7
Loss of the Spotlight…
In recent years, however, the tone of this policy debate
has
become more muted. Some of this is explained by a change
in overall context from the late 90s. A shift in domestic
priorities, the onset of major world events, and reduced
hype
surrounding the Internet all contributed to a reduced focus
on
the digital divide.
New evidence also seemed to minimize the existence or
the consequences of a technology divide. The most recent
NTIA report published in 2002, A Nation Online, led with
an
optimistic conclusion that “all groups of individuals
are using
[computer and Internet] technologies in increasingly greater
numbers.”8 Media coverage, far less frequent than before,
simply amplified the high-level findings of A Nation Online
or
used other reports to conclude that many Internet “non-users”
were voluntarily avoiding the Internet. In light of these
findings,
previously dire predictions that unequal access to technology
would aggravate societal divisions seemed off the mark.9
Yet a closer look at the actual data in the NTIA report and
other sources confirms that gaps in technology usage among
certain segments of the population are still very much a
reality.
… But the Problem Still Exists
In aggregate the data do show increasing numbers of
Americans using computers and the Internet. But the same
data also show that underserved communities—the same
ones originally identified in the mid 90s—still lag
significantly
behind and that the digital divide remains a persistent problem.
For example, Internet use among African Americans (39.8
percent) and Hispanics (31.6 percent) substantially trails
that
of whites. Families with incomes below $25,000 report much
lower Internet use (around 30 percent) than those at higher
income levels (over 70 percent).10 While the number of older
persons using the Internet continues to grow, adults over
50
are less likely to use the Internet (37.1 percent) than all
other
age groups.
A 2003 study from the Pew Internet & American Life
Project presents a more nuanced picture of the divide today.
LIBRARIES EASE SENIORS
INTO THE DIGITAL AGE
Seniors are defying the conventional wisdom
that they are technophobes by logging on to
the Internet in increasing numbers and using
computers for everything from checking
e-mail to managing retirement accounts
online. In fact, the 55 years and older segment
is the fastest growing Internet demographic
group. In recognition of this senior
surfing surge, the Cleveland Public Library
offers classes that are geared toward
enabling seniors to become full participants
in the digital age. The classes are well
attended, and seniors report feeling more
confident with the technology.
Using e-mail to keep in touch with family
and friends ranks as the top use of the
Internet among seniors. For some, like
Sandra Jones from Shaker Heights, Ohio,
communicating online took some getting
used to. Ten years ago, when e-mail was first
instituted at her workplace she used, “to
gripe and gripe that we were losing the personal
touch.” Now her only Internet access is
at a public library where she e-mails her
daughters in Germany and Hawaii.
Researching information on the Web is
another priority for seniors. As more and
more services targeting this age bracket
move to the Internet, including investment
and retirement planning, and social security
and Medicare information, it is critical
that seniors have access to and know how
to find this information. Library computers
and training courses go a long way
toward ensuring that seniors aren’t left out
of the digital world.
8
9
The study found that 42 percent of Americans do not use the
Internet, sometimes by choice and sometimes because of
factors beyond their control. For instance, lack of interest
and perceived lack of benefit were among the top responses
given for avoiding the Internet. Though not all of these
respondents may understand what the Internet has to offer,
it is fair to conclude that this segment of the offline
population is “choosing” not to participate.
But a large number of responses indicate that barriers to
access and lack of skills are perceived as obstacles to Internet
use. Forty-six percent of non-users indicated that “the
Internet
is too complicated and hard to understand,” while another
48
percent indicate “cost” is a reason they are
not online.
Embarrassment over lack of knowledge and fears over
personal ability to learn new skills also surfaced in the
study.12
For proponents of reducing the digital divide, the Pew findings
are significant on at least two levels. First, they underscore
that
three preconditions are necessary for an individual to achieve
technology literacy: the person must have access to technology,
the skills and knowledge to use the technology, and the interest
to learn and use it. Second, the Pew study suggests that
those
with interest, but no access or skills—a substantial
segment of
the offline population—are within the reach of services
or
programs targeted to assist them.
The most current data sources inevitably lead to the
following conclusions:
> Though Internet adoption rates rose among all
segments of the population over the past several
years, the rates of adoption are not equal among
different groups.
> Societal disparities in computer usage, based largely
on socioeconomic factors, persist.
> Efforts to remove barriers to
technology usage, by providing access and skills training,
are likely to benefit
a substantial segment of the current offline population.
A Nation Online:
How Americans are Expanding Their Use of
the Internet Disparities in Internet Use
“ I think that the computer
is a necessity these days.
Unfortunately the gap
between the haves and
have nots is big.” — Community resident (as reported
in an anonymous survey)
Surveying the situation in 1995, the authors of the original
Falling Through the Net report offered
the following observation: [We live] in a society where individuals’ economic
and social
well-being increasingly depends on their ability to access,
accumulate, and assimilate information. While a standard
telephone line can be an individual’s pathway to the
riches
of the Information Age, a personal computer and modem
are rapidly becoming the keys to the vault.13
This argument is even more compelling today. Our society
is moving online and continuing to do so. Information
resources for every imaginable purpose have migrated online.
And our methods of communication are increasingly e-mail
based. Without question, if one wants the full benefits of
economic and social participation in the United States today,
computer skills and Internet access are required.
Equality of opportunity resonates powerfully in American
history and culture. The notion that all Americans, by their
own
choosing, should be able to participate in the current
Information Age—or, conversely, that those who are
unable to
use computers and the Internet are deprived of opportunities—
remains the core concern over the digital divide.
Technology is not a panacea for social inequities, but no
one
can dispute its transforming effect on our society and culture.
Publicly and privately funded attempts to harness this change
for maximum public benefit reflect the same sentiment that
led
to our national system of public schools and libraries—a
belief
that sometimes creating equal opportunity requires a conscious
investment in a public good.
DETROIT'S JOB SEEKERS FIND
HELP IN THE LIBRARY
The main branch of the Detroit Public
Library holds a vast array of special
departments and collections, but one of
its most popular offerings is the Career and
Employment Information Center. Detroit
residents without jobs can access the
center to get personalized help in finding
employment. Many of those who recently
became unemployed
feel lost because they
are unfamiliar with
new ways to conduct a
job search in the
Information Age. “ When some of these people start
looking for a job, they have to play catch
up,” said Dorothy Manty, librarian at the
Career and Employment Information
Center. The center provides hands-on
computer training in creating a resume,
posting it on the Internet, searching Webbased
job banks, and filling out online job
applications. Since some companies only
accept employment applications online,
learning these skills is a crucial part of
looking for a job.
Manty noted that the Internet has
become an essential job search tool in a
number of ways, including researching on
potential employers. “There’s no way
anyone would ever go to an interview these
days without first looking up the employer
on the Internet,” Manty said. When library
patrons succeed in finding employment,
often they’ll go visit Manty to tell her about
it or to show off their new uniform. But
Manty is just as happy when she never sees
her customers again: “That usually means
they’ve found a job.”
2
T
LIBRARIES AS PUBL
A Brief History
Here is a pivotal role to be assumed in the new electronic
age by the traditional providers of information access for
the
general public—the public schools
and libraries.” — Falling
Through the Net, NTIA, 1995 Although
they refrained from making specific policy
recommendations, the authors of Falling Through the Net
made it clear that schools and libraries were to be part
of
the
solution. Public libraries were a logical
fit for any strategy to
provide public access across the country.
Libraries have the
attraction of being:
> open and accessible to all residents;
> community-based with a history and tradition of offering
lifelong educational opportunities at no cost;
>
structured by law to cover 97 percent
of the nation’s
population.
But it was also clear in the mid 90s
that “wiring” the
nation’s
library system would require a substantial
investment. In 1996
only 28 percent of library systems, most
often in urban areas, offered direct
patron access to the Internet.The
costs
of
public access—computer hardware,
software, and Internet connectivity—were
immediate obstacles for most librarians.
The widespread lack of in-house technical
skills, training opportunities, and staff
resources necessary to assume a
new
service presented other major challenges.
Funds and Support Begin to Flow
Responding to the findings of the NTIA
reports, government policy and philanthropic
support targeted much-needed funds
toward wiring the nation’s schools
and libraries. The Telecommunications
Act of 1996 updated the definition of
“
universal service” to include the Internet as a communications
tool, while giving rise to the Schools
and Libraries Universal Service Fund, or “E-rate.” The
E-rate created a $2.25 billion
annual fund to provide discounts primarily
on connectivity costs
associated with Internet access for schools
and libraries. Also
in 1996, the Library Services and Construction
Act was reauthorized as the Library Services and Technology
Act (LSTA)
with an increased emphasis on access
to technology and collaboration. LSTA authorizes the Institute
of Museum and
Library Services (IMLS) to distribute
federal funds to states that
in turn support local library services.
Since 1998 approximately $1 billion in LSTA funds have flowed
to local libraries.
Funding for public libraries was supplemented
further in 1997 with a $250 million commitment from the Bill & Melinda
Gates Foundation. Its U.S. Library Program
reached public libraries in the nation’s poorest areas
and provided them with
public access computers and software,
while simultaneously providing training and technical support
for librarians.
Other
funding sources for library-based public
access computing included state telecommunications funds,
one-time
appropriations from state governments,
private sector support, and local funding.
LIBRARY COMPUTERS
OPEN DOORS FOR PHOENIX LOW-INCOME
HOUSING RESIDENTS
The Harmon branch of the Phoenix Public
Library has taken the idea of serving
the community to a new level. In a partnership
with Friendly House, South Mountain
Community College, the Phoenix Housing
Drug and Elimination Program and the
Department of Housing and Urban
Development, the library created the
Harmon Institute, a computer lab dedicated
to teaching computer skills to residents
of the local housing project.
Students are offered a variety of introductory
computer-related classes, including
basic word processing and resume writing.
Because these are college-level
courses, students can receive credit
at the community college.
Raquel Elizalde started out as a student
in a similar program, became a tutor,
and is now an instructor with the institute. She
said her students have used the skills
they’ve learned to attain employment
in a variety of places, including pharmacies,
banks, and city offices. “One student
is now studying at the university,” remarked
Elizalde. “She told me the institute
was the first step that helped her to
continue her
education.” Elizalde is proud of
the fact that her classes are always
full, with as
many as 20 students attending each day.
To ensure turnout remains strong, each
semester she passes out fliers all over
the area, particularly at the housing
project,
and posts information on the institute’s
Web site.
The combined support of government, philanthropy,
state and local communities, and librarians
resulted in a rapid diffusion
of public access computing throughout
the public library system—with
impressive results. Today, more than
95 percent of public libraries offer
Internet access to their patrons, with
an average of 7.5 workstations per location.17
More than 14 million Americans
(about 10 percent of all Internet users)
access the Internet through computers
in public libraries. Though most Internet
users in the United States get online
from home, public
libraries rank fourth among other locations
behind work, schools, and someone else’s
home.18 The investment in
technology and training has allowed libraries
to become points of Internet access across
the country, reaching communities
that were previously unable to participate
in online resources. Source: U.S. Department
of Education, 2003. Public Libraries
in the United States: Fiscal Year 2001
Public Library Funding Sources
xtensive surveys confirm that, in addition
to being a widespread service, public
access computing has been
well received. The Marist College Institute
for Public Opinion reports that Americans
believe computer access is one of
the
top three services their library should
provide. Demand for use
of the computers is strong. In fact,
the greatest frustration for
patrons is often related to too many
people wanting to use too
few computers.19 Beneath these broad
trends, a visit to most any local library—with
computer terminals often continuously
full
and patrons waiting for their turn—validates
the popularity of
public access computers.
As more people have discovered and used
these computers, libraries have become
synonymous with public access. Today,
the service has become so normalized
that the general public
now expect their local libraries to provide
computers with Internet access.
How
Americans Are Expanding Their Use of
the Internet. Of those aware respondents
identified the public library as a
point of access. State librarians also
report that communities across the nation expect that their
local public library
will provide
computing and Internet services.
Beyond high patron satisfaction and demand,
public access computers have revitalized libraries and aided
librarians.
Librarians across the country report
that public access computers enhance the reputations of their
institutions and
attract new patrons. Nationwide, total
visits to the library have
increased by more than 17 percent between
1996 and 2001, a trend partially attributable to the introduction
of public
access computers. The computers enable
library staffs to do a better job of providing more information,
more quickly.
Despite the added concerns that accompany
the support of computing services, most librarians report
increasing comfort
with their responsibilities.
Addressing the Digital Divide
As popular as library computers are with
patrons and librarians, an original goal of the investment
in libraries
was to
help “bridge” the digital
divide. How have libraries performed
against this objective? Again, evidence
from national surveys and library-specific
research leads to some generally positive
conclusions. As originally anticipated,
public library computers
have played an important role in addressing
inequalities in both
access to information technology and
the ability to use it. 1. Public library
computers reach the disadvantaged
groups originally identified as lacking
access and skills. Government and independent
data show that patrons across
the
socioeconomic and ethnic spectrum use
public library computers. But the groups
consistently identified as the
“
digitally divided” rely significantly more on them.
PUBLIC ACCESS REACHES
ALL CORNERS OF MAINE
When it comes to Internet connectivity in
libraries, Maine always seems to be one
step ahead of the pack. In 1996, Maine
State Library, Maine Department of
Education and others created the Maine
School and Library Network, which provided
Internet access to every library and school
in the entire state. In 2000, the state used
a grant from the Bill &
Melinda Gates Foundation
to add upgraded equipment
and training to their
already impressive
networking capabilities.
Still not satisfied with the
technological resources it
provides to its patrons,
Maine State Library is in the process of
offering wireless connectivity to up to 50
libraries statewide. “There was a growing
awareness in the library community that
this was the next step,” said John Clark,
library systems specialist. Adding to the
need to offer this new service was the
legislature’s decision to equip all seventh
and eighth graders with their own laptop.
Now, school children can bring their
laptops to the library and plug in for
instant access to the Internet. “For a lot of
these kids who don’t have connectivity at
home, this effectively expands the school
day,” said Clark, who pointed out that the
service is also geared toward local
businesses and visiting tourists who often
complain they can’t use their laptops at
area hotels.
TRAINED LIBRARIANS HELP PATRONS
MAKE THE MOST OF TECHNOLOGY
The Arlington County Library in Virginia
understands that if patrons are going to
use the computer labs to their full potential,
library staff must be prepared to guide
them. So after opening the first of its two
new CyberCenters in February 2000, the
library turned its attention to training its
staff. Over the past two years, the library
has held 73 training classes with almost
650 staff participants. Ronald Altemus, the
coordinator of the CyberCenters, explained
that training is a must as the library gets
new computers and software.
Rather than being seen as a
burden, the classes have been
popular with library staff. “It
allows an interplay and exchange
of ideas among staff members,”
commented Altemus, who said the
classes are a great way for staff
members from all the different
branches to come together.
Classes are held in either the Columbia
Pike branch, home of the first lab, or the
Central branch lab, which opened in June
2001. Having well-trained librarians is particularly
important in a community with a
large immigrant population. Altemus noted
that recent immigrants often come to take
advantage of the computers’ multimedia
capabilities, which allow them to access
international radio broadcasts over the
Internet so they can keep abreast of what’s
happening in their home countries.
20
rely exclusively on the library computer for Internet
access to a greater degree than their white and Asian
counterparts.
> Native Americans
show an even more pronounced reliance on library computers
and are nearly three
times more likely to use them than whites.
Similar and predictable patterns are seen among individuals
at
different income levels.
> Lower income users are more likely to rely, often
exclusively, on public library computers for Internet
access than those with higher incomes.
> Those individuals at the lowest income levels (under
$15,000) tend to be more reliant on library computers
than those at the highest levels (over $75,000) by a
factor of two to three times.28
Children and adolescents from certain ethnic groups and
income levels are also heavily reliant on library computers
for
computer and Internet access.29
>Twenty-nine percent of African-American and 20
percent of Hispanic youth use public libraries for
Internet access, compared to 12 percent of white youth.
>More than 27 percent of youth from families with
annual incomes less than $20,000 use library
computers, compared to 11 percent of youth from
families with annual incomes of more than $75,000.
Education and employment status of library users are also
significant factors.30
>Patrons of all education levels use library computers,
but those with less than a high school education are
much more likely, once again, to have access only at
the library.
>
Library computer use is more prevalent among, and
more important to, the unemployed and those who are
working part-time.
21
barriers to Internet use referenced in the Pew study—such
as
fear or misconceptions about difficulty—can
be overcome with
a helpful, trained librarian. Librarians
are serving this role well:
80 percent of patrons report that they
are satisfied with the
computer assistance they receive from
librarians. Informal, one-on-one assistance
from librarians has the
additional benefit of teaching basic
computer skills in the context
of the patron’s own search for
information. Research in
information literacy and user behavior
has shown that technology skills are
best learned when they are taught in
a problem-solving
context. An uncertain library patron
wishing to engage online
resources presents an ideal training
opportunity. This is exactly
where librarians are making their impact
on the digital divide. Some libraries
go beyond one-on-one training and offer
more
formal training workshops on basic computer
skills, accessing the Internet, word
processing, or using database applications.
Libraries provide an effective environment
for basic
computer and Internet skills training.
Simply providing an individual with access
to computers is not
enough to bridge the digital divide;
the skills and knowledge to use information
technology effectively are equally
important. And to begin the journey toward
basic technology literacy, one must have
the interest to learn. Library
environments meet these requirements
through their legacy as institutions
of public education and, most importantly,
through the librarians themselves.
Today, almost all libraries provide basic
computer and
Internet training on a daily basis through
individual assistance from librarians.
Americans are accustomed to asking librarians
for help and answers. Nearly two-thirds
of computer-using
patrons report that they ask librarians
for help when they have
a problem with library computers. Formal
classes allow librarians to educate more people more efficiently
and provide
more advanced training. They also
reduce
the one-on-one training burden on staff.
But lack of resources currently limits
most libraries as formal trainers: Among
a survey
of select states, only 40 percent of
libraries offer such
formal
training, indicating a clear opportunity.
Library computers help patrons communicate,
learn, work, and create.
Research shows that patrons are using
library computers for life-enhancing
purposes. Keeping in touch with family,
writing
reports, doing homework, seeking information,
and finding a
job all rank highly on surveys of library
computer use.35 Although library users
perform online activities similar
to
those of the general population, certain
disadvantaged groups show different usage
patterns based on their needs.
Consequently, library visitors in lower-income
neighborhoods are more likely to use
computers for job seeking needs, while
patrons in rural, remote locations are
more likely to seek medical information.
But the real benefits come into focus
on
the individual level. As the adjacent
sampling of feedback
indicates, the opportunities afforded
by personal access to
library computers are varied, unique,
and numerous. The impact of library
computers is especially
pronounced in rural communities.
Nearly 80 percent of all library systems serve rural areas
or
small towns, accounting for nearly 17
percent of the total population. Libraries in these often-remote
areas are, by
their
very nature, small facilities with fewer
staff and modest budgets. More likely to serve poorer populations
with lower
literacy rates than their urban counterparts,
they represent a
large component of the digitally-divided.
Because of these limitations, computers
and Internet access have had a particularly strong impact
on rural and
small town libraries and their communities.
Research confirms that these libraries have been strengthened—resulting
in
tangible benefits for their patrons—in
three main areas.
COMMUNITY EFFORT
BRINGS
TECHNOLOGY TO RURAL
MINNESOTA
When the people of Elbow Lake, population
1,275, set out to create a computer lab
for Thorson Memorial Library, they made
it a
community effort. Everyone from the City
Council to the Economic Development
Association to the local telephone company
to ordinary citizens
pulled together to
secure funding, prepare
the facility, and make
the lab a place to which
people from all over the
county would flock. Now
that the lab is complete,
the people of Elbow
Lake and the surrounding
communities do indeed come to use the
lab’s 11 top-of-the-line computers
and take advantage of this hands-on learning
center.
“
It’s exciting to see people using the
resources in a variety of ways,” said
Library Director Gail Hedstrom. Kids
come in after school to play computer
games
and do their homework. Adults like to
use the built-in tutorials to learn how
to use
popular software programs. Job seekers
check for employment opportunities and
write their resumes. Students conduct
research, take proxy tests online, and
sometimes complete entire college
degrees via the Web.
The lab has been particularly helpful
to businesses, nonprofit organizations,
and
government agencies, which use it to
conduct seminars and training programs
for
employees. According to Hedstrom, it’s
the only place in the entire county with
a computer
lab for public use. “The lab has
really blossomed into a vibrant facility,” said
City Councilman Dale Champ. “It’s
been such a tremendous asset to the community.”
> Access to information. Historically, budget and space
constraints have severely limited the selection of books
and other printed materials available to these libraries. Now,
public access computers allow patrons to connect to vast
resources available via the Internet. A previously unavailable
world of information is within reach of these communities.
In
addition to faster access to news and
e-mail, the ability to
independently gain medical information—often
in short supply in more remote areas—has
been of particular benefit
to rural library patrons. For students
in these remote areas, Internet access
greatly enhances their ability to use
reference materials from state-supported
online databases
of academic and mainstream publications.
> Increased library traffic. Public access computers are popular
and have drawn the small town communities into their local
library. Over the last five years, nearly 90 percent of these
rural and small town libraries experienced a noticeable
increase in traffic after public access computers were
installed. Furthermore, librarians also report that new patrons
drawn to the library by the computers often begin using other
library services. Approximately half of rural and small town
libraries report an increase in circulation since public
access computers were installed.
> Librarian
satisfaction. In the past few years many
of these small libraries received computers
with Internet access for
the first time. The role of librarians in these communities
as
both technology provider and community
educator was crucial for public access computing to be successful. Today,
research confirms that these librarians
have embraced their new responsibilities enthusiastically. Though the computers
bring new stresses, the librarians report
an increase in
job
satisfaction since the arrival of computers.
Their support has allowed rural and small town communities to participate
fully in the opportunities afforded by
library computers. On the Front Line of the Digital Divide
Today nearly all U.S. public libraries,
even in some of the poorest areas of the country, have public computer terminals
LIBRARY TECHNOLOGY CONNECTS
HARTFORD RESIDENTS TO LATEST
NEWS, RESOURCES
When the staff of the Hartford Public
Library recognized that the Internet
was
becoming an essential tool in accessing
information, they were determined not
to leave the residents of Hartford, Connecticut
on the far side of the digital divide.
Beginning in 1996, when the library
received funding to install computers
with Internet access, there was a
strong push toward making a wide
variety of information available
online. Today, not only is the
library’s catalog of 500,000
books, videos, compact disks and
other materials accessible from
the Web, a variety of other
databases have been created to
assist the public in gathering important
information.
The Hartford Community Information
Database offers information on nonprofit
organizations and groups devoted to
" social and personal betterment and
enrichment." Users of the database can
get help with everything from finding a day
care center to planting a garden to starting
a business. Another handy tool is the database
of City Council reports, which contains
the minutes of meetings since 1996
and is word searchable. But beyond the
creation of these useful online resources,
the library has made it a point to educate
the community about its availability. "It’s
been important to the library that we connect
with the community and reach out to
people," said Catherine D’Italia, public relations
and development officer. "We need to
put information in the hands of the people
who need it."
Considering the library’s traditional
mission of providing access to information, public access
computers are indeed a logical fit. Library patrons enjoy
and benefit from their presence. Heavy use and high demand
for
time on the computers is the norm. Librarians, key to
supporting a quality user experience, have embraced their
role in providing public access. In addition, the computers
have
helped strengthen public libraries themselves, resulting
in higher overall traffic and enhanced presence in the community.
Libraries are on the front lines of efforts to reduce the
digital divide. Patrons with little or no other access to
the
Internet rely on library computers. Public access to the
Internet affords these patrons new opportunities for learning,
working,
creating, and communicating. But the essential, unique
ingredient of public access in libraries is the trained librarian
who can provide support and assistance.
Of course, though the broad trends are encouraging, not all
library computer experiences are alike. The quality of access
continues to vary substantially between poorer libraries
and wellfunded
ones. This is evident in age and quality
of hardware and software, availability of computer terminals
and connectivity
speeds. Some libraries offer a wide range
of training classes, while others offer none at all because
resources are tight.
Many
non-users do not realize that their local
library provides free
access to a computer terminal with an
Internet connection. Despite these shortcomings, the evidence
strongly affirms
the original goal of making libraries
points of public access to
the Internet. The Pew Internet & American
Life Project reminds
us that patrons must have access to computers
and interest in
using them before they can develop technology
skills. Libraries provide the ideal environment
for this mix. Library
computers attract a self-selecting stream
of “interested”
users, in a setting that is conducive to learning and asking
for
help. Librarians who provide either formal
or informal assistance at that moment of interest provide
the necessary
context for the training to be meaningful
and lasting. The result
is that beyond just providing simple
access, libraries are effectively helping people bridge the
digital divide.
“ The library computer was the
only source for me to search
for jobs while I was
unemployed. I did not have a
computer of my own and the
nearest friend [or] relative with
computer access was an hour
drive away.” — Library patron
THE CHALLENGE
Cementing the Gains
in a Climate
of Funding Cuts
26
ith 95 percent of public libraries offering
direct Internet access to patrons, the first phase of librarybased
public access computing has drawn to a close. The
promise of reducing access barriers to technology through
public libraries has largely been realized. Looking forward,
the
challenge is to sustain this initial
investment in technology. In
some libraries this means expanding or
improving computer services; in others, it simply means keeping
existing computers
running. In almost all cases, local libraries
will need help. The lifeblood of public access computing,
as with any library
service, is a consistent funding source.
The costs of providing computing services to the public are
ongoing and unavoidable.
But unlike in the late 90s—when
the digital divide was a national
priority, addressed during a time of
economic prosperity—
guaranteeing support today is far more challenging.
Severe budget crises have led to state
cuts in funding for public libraries across the country.
With millions of Americans
relying on their local library’s
computers, the funding cuts have
an additional harsh dimension: cuts in
library services inevitably erode the
gains made in recent years to reduce
the digital
divide.
Keeping Public Access Alive in Libraries
Libraries are already beginning to witness
the sensitivity of
public access computing to funding shortages.
Underlying the
overall funding crisis are five specific
areas where libraries need ongoing assistance
and where support from public and
private sources is crucial:
1. Hardware and Software Upgrades
Hardware and software are the most recognizable
costs. Heavy demand from patrons means
that library computers are
subject to constant use. The public access
environment places
“ As a director, the greatest
challenge is to keep our
technology going.” — Library director
a heavy toll on sensitive equipment such as the keyboard
and mouse. Consequently, regular computer lifecycles are
often
shortened due to inexperienced users and nonstop activity.
The replacement or upgrading of computers is an inevitability.
Often it is only through one-time grants that libraries are
able
to meet their hardware and software replacement
needs.
2. Internet Connectivity
Far less appreciated by the public, telecommunications
and Internet access costs are an ongoing concern for public
libraries. In addition, the pressure
to upgrade to broadband
access only increases as online content
becomes richer. Here, the libraries most in need have relied
on the federal E-rate
program, which offers deep discounts
in connectivity costs. Many libraries are using E-rate funding
to cover monthly
telecommunications and Internet access
fees, while others have used the E-rate program to purchase
higher bandwidth
Internet connectivity sooner than they
could otherwise have afforded. But the continuance of the
E-rate is far from
guaranteed, a point of concern for librarians
and proponents of reducing the digital divide. To illustrate
the dependence
on
the E-rate program, a recent multi-state
survey of librarians asked them to rank a list of concerns
over public access
computing. Hypothetically removing E-rate
funding caused
“
connectivity” to jump from the lowest rank to the highest.
3. Keeping Systems Running
Ensuring that computers are working increases
a community’s
return on investment in public access
computing. Yet, in-house technical support is often unavailable
to all but the largest
libraries. For the rest, the prohibitively
high cost of support often leads to downtime for computers.
4. Staff Training
A recent survey in 10 states found that
nearly 40 percent
of
libraries do not offer any formal technology
training for their
staff, despite the many benefits that
result.
A VIRTUAL COMMUNITY
FOR LIBRARIANS
Librarians are the backbone of public
access computing, sharing information
and support to help patrons get the most
from their online experiences. Whether
the task is checking e-mail, surfing
the Web, or searching job databases, librarians
are there to answer any questions
that arise. But when librarians have
questions where can they turn? WebJunction—
http://webjunction.org—is an online
resource that provides practical information
that addresses real
problems that librarians
face every day.
The Web site offers
technical support and
advice on topics that
range from how to buy
hardware and software
to tips for conducting outreach campaigns
to promote the library’s activities.
The heart of the site is the “Community
Center,” which is powered by librarians
and others who facilitate public access
computing. Here, members offer knowledge
and encouragement based on experience.
“ Sharing common problems and
finding solutions to those problems is
never more than a few mouse clicks
away,” said Harry Pike, a librarian and
network administrator at The Goodwin
Library in Farmington, New Hampshire.
“ As a librarian, tech person and online
conferencing devotee, WebJunction combines
the best of all my worlds!”
Continued learning and staying on top of
trends allows librarians to be more effective
in their role of technology facilitator and to
better assist the public in gaining access to
the power of the online world.
who is comfortable with technology provides users with a
more productive experience—or, as is needed with some
embarrassed first time users, a “safe” one. Trained
librarians
expand their abilities beyond locating
printed sources to finding digital information or imparting
basic computer skills.
Trained librarians also can perform basic
troubleshooting functions that keep computers working. Staff
turnover
increases the necessity of ongoing training.
By contrast, a librarian who is uncomfortable
with computers will point individuals to terminals with a
warning of “you’re
on your
own,” and be unable to offer support
for novice users. Untrained
librarians are unable to address simple
technical issues, leading
to poor user experience and even computer
downtime.
5. Keeping Libraries Open
In a disturbing trend across the country,
many libraries—big
or
small, urban or rural—are reducing
their services or building
hours to meet ever-shrinking budgets.
Dwindling levels of
access to the public library have always
been a disservice to
communities, but now these cuts limit
computer and Internet use for some patrons
who rely on the service.
Most at Risk: Rural and Small Towns
Remote, isolated libraries face even
greater risks. More than
in other communities, these libraries
are actually in danger of
losing their public access services altogether.
Every one of the five concerns above
is an especially urgent problem in these
small town libraries. Many of these libraries
must cover their public access costs
using one-time donations.
Libraries in these areas rely heavily
on E-rate or LSTA funds to
cover their connectivity and sometimes
cannot navigate the complex E-rate application.
The staff is often older and
less
experienced or comfortable with technology,
and staff turnover is likely to exacerbate
the problem. For isolated libraries
not
associated with regional support cooperatives,
securing technical support is particularly
difficult. The costs of
bringing
an outside technician from a distant
location can overwhelm tiny
operating budgets. Since they rarely
interact with other Native Americans
living on rural tribal land
are often the most isolated people in
the United States. Many reservations
lack the
basic infrastructure—roads, water,
power, and telecommunications—that
urban areas take for granted. Statistics
from the 2000
Decennial Census estimated that 67.9
percent of all American Indian households
living
on American Indian reservation and trust
lands had telephone service, compared
with 94.6 percent for all American homes.
In New
Mexico, a state where 10 percent of the
land is tribal, home computer ownership
for Native
families is estimated at 14 percent
and home Internet access at 8 percent.
Clearly, Native communities
face a significant digital divide and
tribal libraries lead the way in providing
access and training for their
communities.
The Pueblo of Jemez is a small
Native community of 2,000 people
located 50 miles northwest of Albuquerque,
New Mexico, and for most members of this
community the Jemez Pueblo Community
Library offers their primary access to
computers and Internet. Librarian Tamara
Sandia
describes an overwhelming demand for
computer usage at her library. Surveys
have
shown that 70 percent of the library’s
patrons are there exclusively to use
the computers.
“ We know that most people come here
because our connectivity is fast and because
we’re willing to help with research, applying
for jobs, and for e-mail.” The library also has
a two-page waiting list of names for computer
classes. Librarians Sandia and Shelley
Waquiu teach basic computer classes—introductions
to word processing, spreadsheets,
Internet searching, and e-mail—in both
English and their Towa language.
30
31
librarians, they are unlikely to learn the “best practices” that
support public access computing.46
Preserving public access in rural and small town libraries
will
take a sustained commitment from the
public and the private sector. These libraries serve the
very communities
identified as technology “have-nots” in
early digital divide reports,
and, as mentioned, their ability to provide
access to computers and the Internet
has dramatically benefited their communities.
They should not be left to slide back
into further isolation.
“ Having access to computers is a
blessing for many families ... that
would never have the Internet
available to them. Even small,
rural communities––especially
small towns––are no longer left
off the information highway.” — Librarian
The digital divide is persistent and still with us, but public
libraries are making a
difference. On a national scale, library
computers have helped reduce barriers to
accessing technology and are well suited
for basic skills development. The strong
positive response from both patrons and
librarians, combined with the clear importance
of technology literacy in today’s
world, justifies continued investment
and support in
public access computers and the library
infrastructure necessary to support them.
In today’s Information Age, to
empower individuals in the use of technology
is to
support the fundamental American ideal
of equal opportunity. Policymakers, librarians,
and communities must continue their commitment
to this standard
of equality—and to
the simple truth in nearly all areas
of the United States: Today, if you can
reach a public
library, you can reach the Internet.
CONCLUSION
A Public Good Requiring Continued Support
32
C
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Stone, A. August 20, 2003. The Digital Divide
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11 Ibid.
12 Pew Internet & American Life Project.
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Nots” in
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[22 December 2003].
14 U.S. Department of Education. 2003.
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States: Fiscal Year
2001. Available [online]:
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[22 December 2003].
15 National Commission on Libraries and
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National Survey of Public Libraries and
the Internet: Progress and Issues by
J. C.
Bertot, C. R. McClure and D. L. Zweizig.
Available [online]: http://slistwo.
lis.fsu.edu/~cmcclure/nspl96/NSPL96_T.html
[22 December 2003]. 16 McClure, C. R.
and Bertot, J.C. 2002. Public Library
Internet
Services: Impacts
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17 U.S. Department of Education. 2003.
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18 U.S. Department of Commerce. 2002.
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19 Gordon, M. et al. 2001. Library Patrons
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20 Pew Internet & American Life Project. 2003. The Ever-Shifting
Internet
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21 Per discussions with the report’s
principal author, Amanda Lenhart.
22 Heuertz, L. et al. 2002. Variations
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23 U.S. Department of Education. 1998-2003.
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24 Moore, E. et al. 2001. Library Administrators
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26 Heuertz, L. et al. 2002. Public Libraries
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27 Ibid.
28 Ibid.
29 U.S. Department of Education. 2003.
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30 Heuertz, L. et al. 2002. Public Libraries
and the Digital Divide: How Libraries
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20729.pdf [22 December 2003].
31 Ibid, p. 16.
32 Gordon, A. et al. [Forthcoming]. Library
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33 The Educational Resources Information
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by
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[online]: http://www.ericfacility.net/databases/ERIC_Digests/ed465377.html
[September 2002]
34 Gordon, A. et al. 2003. Most Libraries
Maintaining Public
Access Computing
Programs, but 25% Are Still Fragile.
Available [online]: http://www.gatesfoundation.org/Libraries/USLibraryProgram/Evaluation
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35 Gordon, A. et al. 2003. The Gates
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36 Moore, E. et al. 2002. It’s
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09.pdf [22 December 2003].
37 Heuertz, L. et al. 2003. Impact of
Public Access Computing on Rural and
Small
Town Libraries. Available [online]:
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0301.pdf [22 December 2003].
38 Ibid. p.4. Defined as those in rural
and small town settings outside a
metropolitan area, generally serving
legal service areas of less than 25,000
inhabitants.
39 Ibid.
40 Pew Internet & American Life Project.
2003. The Ever-Shifting Internet
Population by A. Lenhart et al. Available
[online]: http://www.pewinternet.org/reports/toc.asp?Report=88
[22
December 2003].
41 McClure, C. R. and Bertot, J.C. 2002.
Public Library Internet Services: Impacts
on the Digital Divide. Available [online]:
http://slistwo.
lis.fsu.edu/~jcbertot/DDFinal03_01_02.pdf
[22 December 2003]. 42 Stern, Christopher,
Washington Post, FCC Alters Rules
for School Fund;
Program Cuts Cost Of Web Equipment [December
18, 2003]. 43 Gordon, A. et al. 2003.
Most Libraries Maintaining Public
Access Computing
Programs, but 25% Are Still Fragile.
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[11 February 2003].
44 Ibid.
45 See for example, Oder, Norman. January
15, 2004. "Budget
Blues".
Library Journal.
46 Gordon, A. et al. 2003. Most Libraries
Maintaining Public Access Computing
Programs, but 25% Are Still Fragile.
Available [online]: http://www.gatesfoundation.org/Libraries/USLibraryProgram/Evaluation
[11 February 2003].
D
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