Public libraries and egovernment.

Australian governments at all levels have embraced the internet to deliver information and serv However is a large divide between development of these services and the community's capacity to use them. An effective way to bridge this gap is for government to support intermediaries who already assist people in their use of online government services. Based on research conducted by the NSW Public Library Network research committee the role of public libraries as intermediaries for online government services is assessed. Public libraries are uniquely positioned within their local communities to continue in this role but they require acknowledgement and support from all levels of government for their contribution

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Internet use is an increasingly critical factor in determining how well an individual participates in contemporary economic and social life. (1,2,3,4) Federal, state and to some extent local governments in Australia have, with increasing pace, embraced the internet as an effective means of delivering information and services to the public. However there is a disjuncture between government support for online service delivery and the community's use of such services. (5)

Policy makers are generally aware of this divide and are keen to develop programs that narrow the gap. One of the most effective means to achieve this is for governments to support intermediaries, such as libraries, which are already assisting citizens in their use of online government.

In recognition of these emerging policy and service delivery issues the NSW Public Library Network research committee commissioned a project entitled NSW Public libraries and egovernment. (6) The research had two main objectives: first to explore in detail egovernment initiatives and their impact on NSW public libraries, and secondly to investigate the ability of NSW public libraries to support the delivery of these services, with specific reference to infrastructure, communications networks, resources and support.

The project

This is the first indepth study either nationally or internationally focusing specifically on the demands placed by egovernment on the public library. Its full report is accessible at www.sl.nsw.gov.au/pln/projects.cfm

This paper reports on the research undertaken, summarises the key findings, considers the

implications flowing from these findings, and details the four major recommendations.

Research context

An intermediary is an organisation that links citizens with government in a way that adds value. (7) Intermediation provides benefits for

* citizens, in that it is easier and more convenient to deal with government

* intermediaries in that they add value to the process as well as fostering stronger relationships with their clients

* for government, by improving the delivery of services and facilitating more effective resource management. (8)

Public libraries, already well established institutions in the community, are perfectly placed to deliver electronic government information and services to the public. (9,10,11) They support local, equitable, access to egovernment by providing the technology and resources for all in their communities. They also assist in equipping their clients with the skills to use online government resources through training and support by experienced staff. Public libraries, particularly those in regional NSW, also participate in partnerships with government agencies which jointly deliver government information and services. Colocation of libraries with community technology centres is a good example.

Australia already boasts a mature egovernment program in that most websites offer, at the least, information that can be downloaded in a nonelectronic format or allow electronic intake of information. (12) The ultimate egovernment goal is to offer fully interactive websites delivering complex services online without the need for further referral. As these developments take place and the physical barriers between government agencies disappear, the role of public libraries in an egovernment context is being expanded, from that of information to that of service provider. (13)

Research methodology

The research, conducted during 2004/05, involved three stages: a major review of egovernment literature, a qualitative research phase and a quantitative phase. A research consultancy was contracted to conduct the qualitative and quantitative research. A working group comprising NSW public library and State Library representatives managed the overall project.

The literature review

The literature review, summarised in a 2004 journal article, (14) provided an overview of egovernment policy both nationally and internationally, the role of public libraries within this context, and a critical analysis of the secondary literature and key themes emerging from it. The role of public libraries as an intermediary within the egovernment context and the possible extension of this role from information to service provider were the two most critical issues to arise from the review.

The qualitative phase

The qualitative phase comprised indepth interviews and case studies. Interviews were conducted with representatives from nine federal and NSW state government agencies running online services that were most likely to be used in public libraries, staff in five local councils, as well as five key State Library and NSW public library representatives.

Case studies of 15 NSW geographic areas, selected to reflect the diversity of NSW local library services and their communities, were undertaken. Metropolitan areas included the lower and upper north shore, and western Sydney. Rural localities included the upper north and lower south coasts, and north west inland. The studies involved site visits and interviews with local councils, public libraries, education providers (secondary schools and technical and further education), social support agencies or employment services providers, other relevant parties such as University of the Third Age students, local history group representatives and community technology centres.

Outcomes

The qualitative research results offered invaluable insight at the local level about the type of clients accessing egovernment at their library, the role of public libraries in meeting their individual client and local community egovernment needs, the relationship between libraries and other service providers such as community technology centres, and the issues that affect the delivery of egovernment--for example population size, socioeconomic characteristics and availability of other services.

This part of the research also highlighted government agency views of their online service developments, perceptions of the role played by public libraries within egovernment, and their current and possible relationships with the public library sector.

Drawing on the results of the qualitative research a questionnaire was developed for the 99 NSW public library services. This gathered comprehensive quantitative data on the demand for egovernment within public libraries, the types and frequency of the government websites accessed, differences in use due to library location eg metropolitan and rural, the degree and amount of staff time provided in assisting clients with egovernment enquiries, and the resources used and required to support egovernment. The questionnaire received a 62 per cent response.

Following the qualitative and quantitative research, the working group decided a more detailed understanding of clients and their use of egovernment in public libraries was needed to complement the big picture findings.

Eight case studies of individual library clients were commissioned. The case studies were conducted in Sydney metropolitan libraries and again reflect the diversity of public library clients.

Findings

The following outlines the research findings from four main perspectives: the local community, the client, the public library and the government agency. Together these perspectives offer a comprehensive understanding of the issues and challenges public libraries face in effectively delivering egovernment information and services to their communities.

Local community perspective

Large country and many metropolitan libraries offer a substantial range of resources for their communities. Their larger collections and range of services make these libraries attractive destinations for many people. Conversely, libraries located in economically disadvantaged communities also report high demand for access to online information and services. In these areas people usually have limited alternatives to the services offered at their local library. In sum, public libraries can find it difficult to meet clients' internet access needs which is a basic requirement if the community is to have equitable access to egovernment regardless of their socioeconomic situation.

In some areas, particularly rural, government agencies had withdrawn services or downgraded the level of service provision. As a result local libraries experience a stronger demand for their resources.

In smaller communities library services tend to evolve in counterpoint to other services available locally. Often, where there are substantial gaps in service delivery, the public library will extend a service to satisfy the demand, but with the obvious potential for a further drain on resources. Internet training courses are a good example: libraries will offer this training if there are no other alternatives within their communities. Such courses are consistently oversubscribed within public libraries.

The client perspective

Libraries attract clients from diverse sociodemographic backgrounds that broadly reflect the population of their local community. (15) This broad demographic mix is matched by the profile of egovernment users, in that no typical person uses these services. (16) Nonetheless many library clients are united by a common theme, namely that they do not have access to the internet either at home, work, or only limited access at school or college. Although a large proportion of clients are competent computer and internet users, lack of regular access to the internet can mean that a significant number have low information and communication technology and online information literacy skills.

Whilst it is difficult to define the type of individual accessing egovernment at their local library, an outline of some general client groups illustrates the diversity of the client base, some reasons why libraries currently act and will continue to act as effective intermediaries between government and the community, and the challenges public libraries face in fulfilling this role.

Young people (12-18 years) are a significant public library client group. Older teenagers (16-18 years) in particular are heavy users of egovernment in public libraries.

One major reason is their interest in obtaining a driver's licence, a responsibility that requires completing the NSW Roads and Traffic Authority's (RTA) driver knowledge test which can be accessed on the RTA's website. The RTA website is by far the most popular egovernment service for this age group. Even in affluent areas such as Sydney's lower north shore, public libraries such as Willoughby City Library experience very high demand from young people using library computers to access the RTA site. This is despite the fact that there is an RTA office, with one public access computer in the same street as the library. One possible reason is that young people regard public libraries as a more attractive destination as they can access a range of resources, including government websites, during their visit. This situation is encouraging for public libraries but many libraries report struggling to provide a sufficient number of computers for young people.

Mature age students are not necessarily as visible or vocal a client group as high school age students. However they can be heavy users of egovernment within a public library setting. The typical mature age student is undertaking vocational studies, usually at Tafe to further their career prospects.

The individuals interviewed as part of the research were typically economically disadvantaged and only had basic information and communication technology skills. Mature age students use public libraries to access online government services such as the Australian Bureau of Statistics, Centrelink and employment sites because they are more accessible in terms of opening hours and location, and they can rely on library staff for assistance. An important requirement for this student group is significant computer time. Again, public libraries report difficulties in meeting demand.

Seniors or older adults are another major client group. Defined as people over 60 they can be divided into three groups.

The first is the client with little or no experience in using online government services. This individual, who usually has an ad hoc need, generally requires one to one library staff assistance not only in how to find the egovernment service but also in how to use basic computer technology. In this situation there is limited capacity for skills transfer as the client is not likely to use another online government service for some time. Government websites most likely to be accessed include health, travel, veterans' affairs, birth, deaths and marriages, taxation, and roads and traffic authorities.

Seniors wishing to increase their computer and internet skills comprise the second category. Familiar with their local library, these people are heavy subscribers to its computer and internet courses. This group does participate in training offered by community technology centres, migrant resource centres and the University of the Third Age. However public libraries remain their preference due in part to their minimal training fees and the fact that they can continue to practise their skills within the library with the assistance of library staff.

The third senior group is the experienced regular library user. These clients use their library on a very regular basis to pursue areas of interest including local and family history, travel and health. Government websites popular with these seniors include births, deaths and marriages, the Australian War Memorial, health, local councils, and weather. These technologically literate and often very enthusiastic clients have the time to use online government services extensively. Libraries report that they can require significant levels of staff support.

Due to high demand for internet based resources, including egovernment, most libraries manage internet use through time based rationing. In some busy central libraries clients are restricted to 30 minutes access per week. They have to book, sometimes up to a week ahead. This usually excludes those with more spontaneous and immediate needs.

When a person's access to the internet is only 30 minutes a week, booked a week in advance, this may well be insufficient to meet the need. This is especially when it is recognised that it is disadvantaged community members who rely on such access. This situation indicates a major lack of resources in public libraries.

To fill the gaps they often rely on grant based funding. However grants often come with restrictions that can limit the total benefit and usually only provide one element of a whole solution. Other elements need to be resourced from alternative budgets and this often results in a mixture of technology, platforms and equipment that simply adds a further layer of complexity to resource management.

Further, grant based funding creates an environment of short term planning and uncertainty about the future as there are no assurances that funding will be available for associated expenses, upgrades or even ongoing service provision. This situation makes it difficult for public libraries to meet their clients' egovernment needs.

The library perspective

Libraries are widely recognised as expert in the provision of online services to their communities. (17,18,19) They not only offer access to information developed by others, they also collect, organise and provide access to unique local information such as web links to local government and community information and services. (20) Their experience with management and technology issues associated with these services have established them as effective intermediaries between egovernment and citizens. (21)

The Australian Library and Information Association (Alia) supports public libraries as 'community access points for government electronic information and resources', (22) a role also recognised by international bodies such as the European Commission which describes public libraries as the most heavily used of 'basic public services'. (23)

This view of libraries contrasts with the current situation where many NSW public libraries--and doubtless other public libraries throughout Australia--lack facilities, space or resources to adequately fulfil this role. The capacity of local councils to deliver services may depend on their ability to raise revenue, mainly through local rates. This capacity, and also council priorities, can vary considerably between local government areas resulting in uneveness in the provision of public library services across NSW.

Moreover a number of different government initiatives, particularly in rural communities, have been established to help provide access to government services, both face to face and online. These include community technology centres, rural transaction centres and government access centres the use of which may be inhibited by their locations, limited hours and limited staff knowledge and assistance. This situation is further complicated by the fact that funding for community technology centres and rural transaction centres is based on grants and service contracts, whereas public library funding is primarily through local councils.

Public libraries are demonstrably a highly effective intermediary. Yet they continue to be often overlooked in the planning processes for these initiatives. Consequently they are usually one component in an overlapping series of services. As a result, the number and variety of government programs to facilitate public access to the internet and egovernment has led to a duplication and fragmentation of services.

There are real benefits to be gained in funding libraries to as the single access point for online government information and services. These benefits include effective service provision, coordination in providing a range of services, accrued social benefits gained from offering a more visible resource, and increased efficiency of operation due to economies of scale.

Regardless of the difficulties they face, public libraries are already assisting many people in using online government information and services on a daily basis. But as the research highlights, this is not always easy. Both libraries and their diverse client base encounter difficulties in using egovernment. Problems encountered include fundamental issues such as finding the correct website. For example the federal government's health portfolio has about 70 individual websites. As well, libraries and their clients encounter problems in website structures, complex terminology that is hard to understand, constant changes to website design, with some files disappearing almost overnight. Some government publications are too large to download and others are divided into multiple files.

Reflecting these challenges NSW public libraries report that 64 per cent of their clients need help 'regularly or often' in using egovernment. Assistance often requires library staff having specific knowledge about the government agency's service, which is usually beyond the capacity of public library staff. As the complexity of egovernment services increases so too will the demands placed on public libraries in assisting people. In this environment the difference between what is information and what is a service becomes blurred.

The government perspective

Discussion with individuals from government agencies and local councils focused on website development, the role of public libraries as an access point for egovernment, the relationship the agencies and councils have with public libraries and possible future relationships.

There was strong agreement that government websites are in a constant state of improvement. Each year more services are brought online and functionality increases. However there are unintended impacts of these developments. For while egovernment services are offered as a way of providing greater access to clients and a means of reducing operational costs, (23) these services often place an increased burden on intermediaries such as public libraries. Poor website design and usability, and changes to websites, lead to extra work for library staff as they assist people in locating the services they need.

Agencies certainly acknowledged the role of public libraries in providing internet access for all citizens in order to support equity. However they do not believe their individual agency has any direct contribution to make in supporting this goal. In other words, while public libraries are recognised as a key element in allowing this access, there is limited awareness of the more detailed implications of this role or the impact agency egovernment decisions can have on public libraries.

The Australian Bureau of Statistics was the only government agency to specifically support public libraries with training and structured communication about their web based services. In turn, public libraries acknowledged the support and collaborative relationship they have with the ABS. However for most agencies, there is no information link with the public library sector. Government agencies generally do not have contacts in the public library sector and are unsure with whom they might communicate in libraries. On a more positive note several of the agencies interviewed indicate a willingness to be more involved with libraries in the feedback on website related issues and information about changes to websites.

Summary

The research findings and implications are

* Ever increasing demand Public libraries note increasing public use of egovernment. As the amount and complexity of online government services increases so does the demand for library computer and internet resources, and training in computer and internet skills.

* Invisible draw on resources Although there is a general understanding as to a number of high use government websites, public library staff are unable to provide a complete picture of all egovernment use in their libraries. Consequently, the full extent of use of online government services is likely to be higher than reported.

* Unintended impacts Egovernment provides more convenient access for people and operational efficiencies for the government agency. Yet it places another, complex, resource demand on public libraries who are already hard pressed in meeting their unique, multidimensional community role and responsibilities. The sheer amount of choice, poor website design and navigation, and constant changes to websites make it difficult for public libraries to assist people to find what they need easily.

* Duplication of services The number and diversity of government initiatives supporting internet access and egovernment leads to fragmentation and duplication.

* Socioeconomic context Libraries invariably try to stretch their resources to fill gaps left by insufficient services and resources elsewhere. Even when special social support services are available libraries in disadvantaged communities do not experience a reduction in demand for access to the internet and online government.

* Funding Grant based funding for public library internet facilities results in added complexity in managing resources. Grant based funding also leads to an unwelcome environment of short term planning and consequent uncertainty about the future.

* Low profile The public library sector still appears to have a low profile in the minds of many policy makers and specifically for those responsible for government websites. Government departments are generally unaware of the central role public libraries play in their communities and the effectiveness of libraries as egovernment intermediaries.

* Need for resources To meet their communities' egovernment needs, public libraries require more staff, staff training, computers and associated equipment, faster and more reliable internet connections and better technical support. They also may need more space, better buildings, and longer hours of opening.

* Changing role In assisting people to access and use not only online government information but also services, the role of public libraries within the egovernment context is changing from that of information provider to that of service provider.

Recommendations

In response to the research four key recommendations have been developed. Those recommendations are in the NSW context but may also be applicable in other states and territories of Australia.

Specifically, it is recommended that the NSW public library network, including the State Library of NSW

* Liaise with government agencies, especially those that have high impacts on public libraries, to develop memoranda of understanding that acknowledge and fund the role of public libraries in providing access to, and delivery of, egovernment information and services.

* Support and facilitate training for public library staff on egovernment issues.

* Review information and communications technology within the NSW public library network to assess the ability of the network to provide access to online information and services.

* Conduct follow up research in three years time to assess the ongoing impact of egovernment on NSW public libraries and the ability of the network to respond to the demands created by egovernment policies.

Conclusion

This research explored in detail egovernment initiatives and their impact on NSW public libraries, and investigated their ability to support the delivery of egovernment services.

The findings revealed the varied ways in which NSW public libraries are already supporting egovernment information and service provision in the face of increasing demands and limited resources.

To fully support egovernment initiatives requires public libraries to go beyond their traditional role of providing access to government information to that of online government service provider. At the same time egovernment offers public libraries the opportunity to create a stronger position for themselves as focal points within their community and to further illustrate their value to both community and government.

Australia has a mature egovernment program that is receiving suboptimal use. If currently 37 per cent of the population access the internet from sites other than home or work, such as their local library, (25) then the engagement and support of intermediaries would be extremely beneficial for both government and the community.

These research findings are intended to contribute to NSW and national debate on the development of egovernment strategies and services. They also highlight the role of public libraries as effective intermediaries in the use of online government information and services by many people.

References

(1) Alia The role of ICT in building communities and social capital: a discussion paper 2005 alia.org.au/advocacy/submissions/ict.community.role. html accessed 4 July 2005

(2) Wellman, B et al The social affordances of the internet for networked individualism Journal of computer-mediated communication 8(3) 2003 www.ascusc.org/ jcmc/vol8/issue3/wellman.htm accessed 4 July 2005

(3) Rideout, V and Reddick, A Sustaining community access to technology: who should pay and why The journal of community informatics 1(2) 2005 ci-journal.net/viewarticle.php?id=39&layout=html accessed 12 January 2006

(4) Commission of European Communities eInclusion revisited: the local dimension of the information society 2005 europa.eu.int/comm/employment_social/ news/2005/feb/eincllocal_en.pdf accessed 13 January 2006

(5) United Nations Global e-government readiness report: from e-government to e-inclusion 2005 unpan1.un.org/ intradoc/groups/public/documents/un/unpan02/888.pdf accessed 17 January 2006

(6) Library Council of NSW NSW Public Libraries and eGovernment prepared by Environmentrics. Sydney, State Library of NSW 2005

(7) United Kingdom, Office of the e-Envoy Responsibilities (no date) www.e-envoy.gov.uk/ Responsibilities/Responsibilities/fs/en accessed 19 January 2006

(8) ibid

(9) Froud, R and Mackenzie, C E-government & public libraries: furthering local and national agendas. Gutersloh, Bertelsmann Foundation 2001

(10) Bradley, L The role of libraries in e-government: a briefing on behalf of the American Library Association 2001 www.netcaucus.org/books/egov2001/pdf/ALA Brief.pdf accessed 18 January 2006

(11) State Library of Victoria (for Library Board of Victoria) Libraries/building/communities: the vital contribution of Victoria's public libraries Melbourne. State Library of Victoria 2005

(12) United Nations op cit 

(13) Berryman, J E-government: issues and implications for public libraries Australian library journal November 2004 pp349-359

(14) ibid

(15) State Library of Victoria op cit

(16) Australian Government Information Management Office Australians' use and satisfaction with egovernment services 2005 www.agimo.gov.au/ publications/2005/june/e-government_services accessed 17 January 2006

(17) Froud and Mackenzie op cit

(18) Bradley op cit

(19) Cap Gemini Ernst & Young Online availability of public services: how does Europe progress? Web based survey on electronic public services prepared for the Europeen Commission DG Information Society 2003 www.capgemini.dk/nyheder/2003/files/overall_ report_2003.pdf accessed 21 April 2004

(20) Bradley op cit

(21) ibid

(22) Alia Submission to Senate inquiry into the role of libraries in the online environment 2002 alia/org.au/advocacy/submissions/online.environment. html accessed 20 January 2006

(23) Cap Gemini Ernst & Young op cit

(24) Noie Better services, better government: the federal government's e-government strategy 2002 www.agimo.gov.au/publications/2002/11/bsbg accessed 12 January 2006.

(25) Department of Communications, Information Technology and the Arts Australia online 1st quarter 2004 statistics 2004 www2.dcita.gov.au/ie/ framework/benchmarking accessed 10 March 2005

Other references

Accenture eGovernment leadership: high performance, maximum value 2004 www.accenture.com/xdoc/en/ industries/government/gove_egov_value.pdf accessed 7 March 2005

Canadian Library Association Access of GOL in public libraries prepared for Industry Canada by the Canadian Library Association with the assistance of Maureen Cubberly and Stan Skrzeszewski, ASM Advanced Strategic Management Consultants 2003 ln-rb.ic.gc.ca/e/connect/LibraryNet-GoLAccess Report.pdf accessed 21 April 2004

Cap Gemini Online availability of public services: how is Europe progressing? Web based survey on electronic public services 2005 www.capgemini.com/news/ 2005/Online_availability_of_public_services_5th_mea surement.pdf accessed 11 January 2006

The Audit Office of New South Wales Guide to better practice: e-ready, e-steady, e-government readiness assessment guide for government agencies 2001 www.audit.nsw.gov.au/publications/better_practice/20 01/e_gov_bpg_sept_01.pdf accessed 11 January 2006

Kerrie Burgess BA(Hons) manages the State Library of NSW's research and evaluation program which support's the library's planning, service delivery, policy development, corporate governance and reporting activities. Prior to joining the library in 1997 Kerrie worked for a number of international and Australian research consultancies managing projects in Australia and SE Asia. She is currently studying towards a masters of public administration. Address: State Library of NSW Macquarie St Sydney NSW 2000 email [e-mail]