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1
ADMINISTRATION OF A
PUBLIC LIBRARY
BY
ARTHUR E. BOSTWICK
PREPRINT OF
MANUAL OF LIBRARY ECONOMY
CHAPTER XII
American Library Søsociation Publishing Board
78 E. WASHINGTON ST., CHICAGO, ILL.
1911
AN
A. L. A. MANUAL OF LIBRARY ECONOMY
Chap. I. “American Library History,” by C.-K. BOLTON.
II. "The Library of Congress," by W. W. BISHOP.
. "The College and University Library," by J. I.
WYER, JR.,
* IX. “Library Legislation,” by W. F. YÚST.
XII. “Administration of a Public Library, by A. E.
BOSTWICK.
XV. "Branch Libraries and Other Distributing Agen: :
cies," by LINDA A. EASTMAN...
XVII. "Order and Accession Department," by F. F. .
HOPPER.
XX. "Shelf Department,” by JOSEPHINE A. RÁTHBONE.
· XXII. "Reference. Department," by E. C. RICHARDSON.
XXVI. “Bookbinding,” by A. Lã BAILEY....
The above chapters are each printed in a separate pamphlet. -
Price 10 cents each; in lots of 50 or more, 4 çents each.
Projected chapteřs now in preparation are as follows:
"Loan Department”; “Pamphlets, Clippings, Maps, Music";
"Book Selection"; "Classification"; "Commissions, State Aid"..
and State Agencies”; “Work with the Blind"; "Library
Service”; “State Libraries"; "Fixtures, Furniture, Fittings and
Supplies"; "Free Public Libraries"; "Catalog"; "Museums,
Art Galleries, Lectures"; "Public Documents"; "Library ;
Training"; "Special Libraries”; “Bibliography"; "Public
Library and Public Schools", "Library Work with Children";
"Buildings:':
678
.8747
XII
S
THE ADMINISTRATION OF A PUBLIC LIBRARY,
ESPECIALLY ITS PUBLIC OR MUNICIPAL
RELATIONS
ARTHUR E. BOSTWICK
St. Louis Public Library
The test that will determine whether a library is truly
"public" or not has never yet been laid down with authority.
Its ownership, control, support, operation, and use are the
determining factors. If it is owned, controlled, supported,
operated, and used all by the public, there is no doubt about the
matter. Such public libraries are those of Boston, Chicago, and
St. Louis. But a library may be for free public use when
privately owned, controlled, supported, and operated, like the
Pratt Institute free library in Brooklyn. Such a library is
generally considered public by those who use it. Oftener a
library that is owned, controlled, and operated by a private
body is publicly supported, wholly or in part, by agreement
between the owners and the public. Such are the public
libraries of New York City and Buffalo, N.Y. Less often a
library owned and operated by the public is supported wholly
or partly by the income of an endowment. All these different
kinds of libraries are loosely known as "public" if their use is free
to all. But the word "public" rarely appears in the legal title
of a library unless it is either owned by the city or town or has
an agreement with it to do public work.
Public control is exercised usually through a board of trustees
or directors, which may have a greater or less degree of inde-
pendence. Occasionally this board has other functions; for
instance, it may be the regular board of education or it may
1
287570
MANUAL OF LIBRARY ECONOMY
have in its charge also museums and art galleries. The public
body of which the board is a creature is usually the city or town,
but occasionally the county, the school district, or some other
public entity. Thus the public library of Portland, Ore., is
a county library, while that of Cleveland, Ohio, is a school-
district library.
The most usual form in a city is a separate appointive
board. The conditions of choice and service are very various.
In a large majority of cities the mayor has the appointing power;
in many smaller places, especially in New England, the town
elects, either in town meeting or by direct vote of the citizens.
In a few cities the city council elects. A plan, once common,
but now going out of use, is to allow the board of education
to choose the library board. Sometimes the board is self-
perpetuating; that is, it fills its own vacancies, but in this case
the library is generally a private corporation doing public work
by contract or an endowed institution receiving a small public
subsidy. It is quite usual to make one or more public officials
ex-officio members of the board. In some places there has been
an effort to insure the representation of different institutions,
different elements of the community, different religious bodies,
or different political parties. This is the case in Philadelphia
and Scranton, Pa., and in Cincinnati, Ohio.
Terms of office vary from three to six years; the lower num-
ber is quite usual. Generally a certain number of terms expire
every year, but occasionally all terms expire with the mayor's.
This plan was formerly more general but has been found to favor
political control. In self-perpetuating boards the term is gen-
erally for life or during good behavior.
The members of the board are generally called “trustees"
but quite often “directors.” Occasionally other names are
used, such as "library committee," "board of managers,"
“commissioners,” or “board of agents.”
Most states now have laws defining the conditions under
ADMINISTRATION OF A PUBLIC LIBRARY
3
which municipalities may establish and maintain public libraries.
In most cases advantage is taken of this law, and very often the
state law alone defines the library's connection with the city or
town. Sometimes, however, this is done in a section of the city
charter, or by city ordinance. There may also be special acts
Ih
the library or donor and the city, which in some cases consist
only of a letter offering a gift and its formal acceptance.
The library property is generally held by the city or town
and simply administered by the board, but the board may hold
it as the city's trustees, or sometimes real and personal property
may be differently held. In many cases the board has been
legally decided incompetent to hold any property at all. Where
the library is a private corporation it is not unusual to find that
part of the library's property is owned out-and-out by the board
and part by the city, although the public, of course, knows no
difference. This is the case in New York and Brooklyn.
Public funds for the support of the library, unless from the
income of an endowment held by the municipality, are in the
last analysis always raised by taxation. The library may
receive the proceeds of a special tax of so many mills or fractions
of a mill on the dollar on the assessed valuation of the place, or
it may receive a specified share of the general city tax, or the
city may appropriate money for the library as for its other
departments. In some cases libraries receive both the proceeds
of a special tax and an appropriation. A library may also
receive the proceeds of special fines or licenses. Thus in
Massachusetts the proceeds of dog licenses are given either to
schools or libraries.
The expenditure of public money is usually left to the discre-
City) appropriations are subdivided by the city into various cate-
gories, such as "salaries,” “ books," "fuel,” or the like, and the
library is more or less strictly held to this sub-classification,
MANUAL OF LIBRARY ECONOMY
But even where the city allows the library to spend its money
as it likes, it does not always turn the money over to the board
to hold and pay out. Where it does so pay over the money, it
may do so in a lump sum, in equal instalments, on requisition
(presumably with vouchers), or irregularly, as the taxes come in.
In other cases the city retains the money, in which case the
library may pay bills by drafts on the city or the city may pay
the bills, duly certified by the library, in its own way. In case
the library owns productive property it generally uses the income
as it likes, although, as noted above, boards are often legally
incompetent to hold such property, and then it is turned over
to the city to hold in trust, in which case bills are paid from the
income as from public appropriation.
The library, of course, accounts to the city for its expenditure
of public money, and in many cases the city specially audits the
library's books. In general the library accounts to the city by
means of an annual report, which is almost always printed.
This is often the only accounting, and indeed there may be no
accounting at all. Monthly statements are made in some cases
but in others the vouchers that go to the city treasurer are the
only account made.
The right of the library to receive public money at all is
usually determined by the state law-often the same general
library law that defines the library's relations to the munici-
pality. The law may be mandatory, but is generally only
permissive. And not even a mandatory law prescribes all
details; such a law generally becomes effective in a given
locality only after a popular vote, and even then the appropria-
tion or special-tax rate may vary within specified limits. A
minimum appropriation may be prescribed, not by law at all
but by an agreement with a donor, as when the Carnegie gifts
specify at least 10 per cent of the cost of the building. As a
matter of fact this amount is rarely enough to maintain a
Carnegie building and few libraries keep within it.
ADMINISTRATION OF A PUBLIC LIBRARY
5
BRARY
Within the prescribed limits, where these exist, or without
them, where they do not, the library's public income is deter-
mined in various ways, as by the city council, by popular vote,
by the city charter, by one or other of various city boards, or by
contract with a donor.
Moneys received by the library itself in the course of its daily
work, such as fines for overdue books, are variously treated. In
many cases these constitute a good part of the library's income.
In most cases the library retains these and uses them for what
purposes it will, but in no inconsiderable number they are
turned in to the city, which generally, though not always, holds
them subject to the library's call.
The amount of fines, and also that of the private income, if
any, enjoyed by a library, are sometimes taken into account by
the city in making its appropriations. The library reports its
total requirements for the year and states how far its own
receipts and income will go toward meeting them, with the
expectation that the city will furnish the balance. This is
what is done in New York, and applies, of course, only to the
case of direct appropriation. The librarian himself handles
very little money-sometimes none at all--the bills being paid
by the city if it is the custodian of library funds, otherwise by
the treasurer of the board. His contact with the bills is merely
to certify them and pass them on to the proper officer for pay-
ment. It is necessary, of course, to see that no bills are con-
tracted or paid unless properly authorized by the board. If the
board adopts a yearly budget it may simply be necessary to see
that the total of bills in each category does not exceed the
amount appropriated; if each expenditure is authorized sepa-
rately, each bill must be compared with this authorization. In
large libraries there is generally a financial officer of some kind
who makes these adjustments and comparisons and whose audit
is necessary before bills are paid.
The actual receipt of goods and the actual performance of
MANUAL OF LIBRARY ECONOMY
work ordered is of course implied in the certification of the bill.
The best municipal practice is now to require that the person
certifying to receipt or performance shall not be the one who
gives the order. This may be arranged in a large library by
employing an official checker to examine work and goods and
certify them.
Even when the board does not adopt an annual budget the
librarian must know how much he has to spend, and will naturally
adopt some program or plan of expenditure. Part of this
expenditure he will extend uniformly over the year, but not all.
Salaries will be so extended but not heating and lighting. In
the purchase of books, current fiction will be fairly uniform, but
not purchases like that of a quantity of children's books to
replenish the shelves of a branch. It is the duty of the libra-
rian's office to supervise and regulate the rate of all this
expenditure.
In the appointment of its force, as in the disbursement of its
funds, the library is usually left to itself, but not always. “A few
institutions are subject to city civil-service rules, the local civil-
service board making out examination papers for admission to
the staff and for promotion within it. Other libraries, to a con-
siderable number, have their own systems of service, and this is
the plan that commends itself to most librarians.
The executive officer of a library is usually styled the “libra-
rian,” although he is occasionally given the title of “director."
He is employed directly by the board and is sometimes also its
clerk or secretary. He is its expert adviser and the responsible
head of the library. The amount of independence that is
allowed him in the administration of his office depends on the
constitution and traditions of his board. They may outline to
him merely the broadest lines of policy or they may wish to
dictate details of daily work. In a library of considerable size,
where the librarian is, as he should be, a competent executive
officer, his duties are properly all those that usually appertain
ADMINISTRATION OF A PUBLIC LIBRARY
7
to such an officer, such as the formulation of rules for the con-
duct of the library, the making of nominations for appointment
and of recommendations for promotion and salary increases,
etc. In general the board represents the owners of the library:
that is, the public, who are interested in results—not in the
methods of bringing them about, which are naturally left to the
librarian's judgment. If he is secretary of the board he is of
course present at its meetings; if not, he should always be
present by invitation.
The board meets usually once a month, although some
library boards meet as often as once a week. It commonly con-
trols the expenditure of money either by making definite annual
appropriations (a “budget”) at the beginning of the fiscal year
and requiring the librarian to keep within them, or by acting
upon individual expenditures as the librarian recommends them.
The board commonly has a constitution and by-laws, which
define its powers and those of the librarian. They may be very
brief or may prescribe details somewhat closely. The best
usage favors brevity.
The board does its business ordinarily through committees,
and decides matters at its meetings largely by acting on reports
from these. Standing committees may include an administra-
tion or library committee, to care for ordinary details of admin-
istration, appointments, promotions, etc.; a book committee,
to pass on book titles for purchase; a finance or auditing
committee; a building or house committee (if the library
building is too large to be cared for by the committee on admin-
istration), and an executive committee, to act for the board in
intervals between its meetings. This is often composed entirely
of ex-officio members, as officers and chairmen of committees.
The board's officers are usually a president, vice-president, secre-
tary (often the librarian), and treasurer. In cases where the city
holds the funds and pays the bills and where the library has no
property of its own, the last may be omitted as unnecessary.
MANUAL OF LIBRARY ECONOMY
As noted above, the board usually makes a printed report
annually to the city authorities. The bulk of this report con-
sists usually of a report made by the librarian to the board and
includes statistical and financial tables. Such reports are often
brief and intended to be consulted rather than read; others are
readable accounts of the library's work for the year. Recent
practice has tended toward the insertion of illustrations and
toward making the report as attractive as possible to the general
reader. The non-financial statistics presented are of two kinds
—those relating to the contents of the library and its condition
and those relating to the use made of its contents. With the
recent wide extension of the use of public libraries this second
type of statistics has also expanded until it occupies the larger
part of the tables presented. Of the first type there is usually a
statement of the number of books owned by the library, verified
by inventory, with the number found missing, deductions for
books lost, soiled, or worn out, and additions by purchase and
gift. These may all be given by classes and by localities--
central library and branches, for instance. It has been cus-
tomary in this connection to print a long list of book-donors'
names with the amount of their gifts, but many libraries are
now omitting this.
Statistics of use include those of registration, reading-room
attendance, hall or library use, and circulation of various types
-over the ordinary issue desk, in the children's room, through
branches, stations, and traveling libraries. These are generally
all classified. Percentages of the number of books shelved in
each class and the number circulated in each class are also
usually represented, either in separate tables or in parallel
columns with the corresponding numbers.
Library reports are rarely comparable one with another,
because of the different ways in which they are presented.
A scheme for drawing up the statistical part of a report has
been adopted by the A.L.A. Committee on library adminis-
ADMINISTRATION OF A PUBLIC LIBRARY
9
tration and it is to be regretted that this is not more generally
followed.
The function of a library report is really double-to render
an account of the library's work to the public and its representa-
tives, who are paying for it and who have a right to inquire
about its methods and its results; and second, to stimulate
public interest in the library. This stimulation of interest is in
itself an important part of the library's general administration
and is effected also in other ways-by issuing cards or placards
calling attention to the location of the library and its uses; by
window displays of books or other material where this is possible;
by library publications, such as a monthly bulletin or by frequent
separate printed lists, and by embracing every opportunity to
speak before local organizations in explanation of the library's
aims and its ability and willingness to do public service. This
sort of publicity work, which some librarians dislike to call
“library advertising" on account of the objectionable connota-
tions of the word, has this in common with all legitimate forms-
of trade advertising—the fact that it is an effort to acquaint
the public with a branch of service about which it is to its
advantage to be thoroughly informed.
1
PUBLICATIONS OF THE
AMERICAN LIBRARY ASSOCIATION
PUBLISHING BOARD
78 E. WASHINGTON ST., CHICAGO, ILL.
Guide to reference books. Edited by Alice B. Kroeger.
Revised and enlarged edition. Cloth, $1.50 (postage,
II cents),
Supplement, 1909-10, to Miss Kroeger's Guide to reference
. books. By Isadore G. Mudge. Uniform in style with the
Guide. Paper, 25 cents.
Selected list of music and books about music for public libraries.
By Louisa M. Hooper. Paper, 25 cents.
Hints to small libraries. By Mary W. Plummer. Cloth, 75
cents.
A. L. A: Booklist. Subject index, 1905-June, 1910 (v. 1-6).
Paper, 25 cents; v. 7, Io cents.
List of subject headings for å dictionary catalog, New and
revised edition. Edited by Mary. Briggs. Cloth, rein-
forced, $2.50.
LISTS OF FOREIGN - BOOKS
Selected list of Hungarian books. Paper, 15 cents..
Selected list of German books. "Paper, 50 cents.
List of French books. Paper, 25 cents.
List of Norwegian and Danish books. Paper, 25 cents.
French fiction. Paper, 5 cents.
List of Swedish books. Paper, 25 cents.
LIBRARY HANDBOOKS -
* Intended to help the librarians of small libraries in the
various details of library work.
1. Essentials in library administration. By Miss L. E. Stearns.
Paper, 15 cents. ..
2. Cataloging for small libraries. By Theresa Hitchler. Paper,
15 cents.
3. Management of traveling libraries. By Edna D. Bullock.
Paper, 15 cents.
5. Binding for small libraries. Paper, 15 cents. Suggestions
prepared by the A. L. A. committee on bookbinding.
6. Mending and repair of books. By Margaret W. Brown.
Paper, 15 cents.
7. U.S. Government documents in small libraries. By J. I.
Wyer, Jr. Paper, 15 cents. . .

UNIVERSITY OF MICHIGAN
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Gaylord Bros. Inc.
Makers
Syracuse, N. Y.
PAL. JAN 21, 1908
3 9015 03388 2047
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