Public libraries in learning communities.

A 2003 study tour of public libraries in the UK and Canada showed that their involvement in learning communities depended on the location of the library in the council structure, the size of the community, the overall vision of the council, networking skills of senior library staff, and the library's profile. Shortened and edited version of the author's report, as recipient of the 2002 Marjory Ramsay Scholarship. For the full report readers are invited to contact the author at [e-mail]

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As Australia moves towards the globalised knowledge economy, communities in rural and regional areas are confronted by many challenges. According to Michael Gurstein this 'new economy is characterised by the significance of knowledge, in the form of research and development technology, and advanced education as input component of overall economic activity'. (1) He notes the characteristics of the new economy as

* information and knowledge driven

* entrepreneurial

* skill intensive

* continually innovative

* has a high concentration of virtual, knowledge based or symbolic goods

* has a high proportion of services and experiential products

Most rural and remote communities in Australia are based on resource extraction and, or, primary production. Many individuals have been able to make a comfortable living with little formal education. In recent years employment opportunities in resource based communities have been mostly in decline--the resource base is no longer sufficient to support the local population, which results in economic and population decline. Communities are under pressure to re skill and upgrade their capacities, to become globally competitive.

Some communities are facing these challenges through learning strategies to promote social cohesion, regeneration and economic development--the learning community model. It has been effectively argued by Faris, Longworth and others that lifelong learning is necessary for transition to, and ongoing participation in, the knowledge economy.

   Lifelong learning is ... the development of human
   potential through a continuously supportive process
   which stimulates and empowers individual to acquire
   all the knowledge, values, skills and understanding
   they will require throughout their lifetimes and to
   apply them with confidence, creativity and enjoyment
   in all roles, circumstances and environments. (2)

The concept of the learning community / city / town / village has been around since the 1970s, but it was given fresh impetus following an Organisation for Economic Cooperation and Development (OECD) conference in Gothenburg in 1992. More recently it has been given emphasis in the UK following the July 2003 release of 21st century skills, realising our potential, individuals, employers, nation. (3)

Much has been written about learning communities (see bibliography). According to the OECD concept

   a learning community is a village, town, city or region
   that is preparing for the rapidly emerging knowledge
   based society by using the concept of lifelong learning
   as an organising principle and social goal, mobilizing
   learning resources of (knowledge and skills) of all five
   of its sectors (civic, public, economic, education,
   voluntary,) and making practical but imaginative use of
   learning technologies as a tool (4)

In 1997 the OECD Centre for Educational Research and Innovation launched a learning region initiative in six countries, Spain, France, Denmark, Sweden, Germany and the UK. A learning cities network was developed in the UK in 1996 with a target of 75 sites by 2002. An international learning village project was initiated in 1999 by research bodies in Finland, Portugal and Italy. The Victorian government created the first state learning communities policy and program in Australia in 2000, with the Australian National Training Authority (Anta) providing further impetus in 2001 through the learning communities national project.

Faris provides a succinct definition of a learning community

   The term learning community is defined as any city,
   town or village and surrounding area, that using
   lifelong learning as an organising principle and social
   goal promotes collaboration of the civic, private,
   voluntary and education sectors in the process of
   achieving agreed upon objectives related to the twin
   goals of sustainable economic development and social
   inclusiveness. (5)

Learning communities in Australia

In 2001 Anta began its learning communities pilot national project to encourage the development of learning communities and learn more about them. Ten rural and regional communities received funding to undertake a learning audit as the initial stage of becoming a learning community.

One of these communities, the Southern Grampians Shire Council in western Victoria, is a member council of the Glenelg Regional Library Corporation. Its audit identified many strong links between various agencies, attesting to a strong foundation for a learning community. Several initiatives were identified and adopted as workable initial strategies.

At the outset it was hoped that the community would be fully engaged in the project by July 2003, and that ongoing funding would have been sourced by the project committee to enable the learning initiative to continue.

In addition, the Glenelg Shire Council--the other member of the Glenelg Regional Library Corporation--was selected for the location of a pilot televillage project as part of the Bracks government Connecting Victoria strategy in 1999.

Worldwide, many projects have developed around the theme of televillage. Each has developed with different characteristics reflecting the specific needs of the communities involved. A televillage is a holistic term to describe the utilisation of telecommunications and information resources to build and extend development in a rural area. During 2000-2001 consultants worked with the Portland community to define and develop a televillage concept to meet the specific aspirations and needs of the Portland and broader shire communities.

One of the outcomes of the Portland community consultation was the desire for a community hub--a complex incorporating training rooms, meeting facilities, public gallery space, public access to ICT equipment and online services, and business incubation space. This concept became known as the Portland Telecentre. In 2002 the Glenelg Shire Council and the Glenelg Regional Library Corporation worked to gain funding from the Living libraries public library infrastructure program to redevelop the Portland Library to create an information gateway--an attractive and exciting community meeting place incorporating the telecentre. This opened in May 2004 as a state of the art public building providing a range of learning, teaching and recreating experiences around information technology and multimedia. The overseas study tour was intended to inform this process and provide examples of good practice.

Learning communities and public libraries

There has not been a close relationship between community/adult education and economic development. Learning has been linked mostly to educational providers such as schools, technical and further education (Tafe) colleges, universities, and occasionally libraries. According to Gurstein, the emergence of the information economy provides a challenge for local communities to find ways to redevelop to create the conditions for a new economy. (6)

Public libraries have often been described as the working man's university and have quietly underpinned education programs in most western communities over the past 150 years. However more recently some public libraries in Canada have been actively participating as partners in learning communities.

Whilst the Australian models have strong civic, private sector and educational partners at their helm, the learning community models developing in British Columbia have an even broader partnership. This includes libraries, museums, health and social agencies, wide voluntary/community sector participation, and active cross cultural partnerships with First Nation communities. (7)

A slightly different approach is being taken in the UK where public libraries are being funded to roll out programs to support the national agenda of lifelong learning, and are actively contributing to the regeneration of local communities and their economic development.

Several public libraries are participants in learning partnerships and others view lifelong learning as part of their core role.

Objectives of the study tour

These included

* to identify successful learning communities where public libraries have played a significant role in their development and ongoing activities

* undertake a study tour of those communities in the UK and Canada to

* analyse the strategies used by the libraries and the communities in the establishment of the learning communities

* explore the collaborative activities and programs undertaken by libraries in partnership with other community agencies

* understand the main types of approaches taken by libraries in establishing partnerships and collaborative projects

* establish networks with libraries and agencies within those communities

* evaluate the strategies and programs in order to identify and initiate potential practices for the Southern Grampians and Glenelg projects

* apply the learning from the study to local projects

* develop a paper for use by other communities and public libraries interested in participating in learning communities

Canada

The OECD learning community model had been adopted in Canada and informed by UK experience and research. Different regional and community profiles mean that a one size fits all approach was neither effective nor possible. Different communities have therefore developed in different ways. A number of communities across Canada are pioneering projects that reflect the key elements of the learning community model.

In British Columbia (BC), a growing number of learning communities is preparing for the rapidly emerging knowledge based society by using the learning resources of the various local sectors including public libraries. BC is working towards linking the formal and non formal learning resources of communities through community learning networks that forge social learning relationships within the communities themselves and among other learning communities. The Office of Learning Technologies of Human Resources Development Canada (HRDC), has granted local host agencies $25,000 to develop a community learning network project proposal so that learning technologies can be used as tools to achieve a community partnership's learning objectives. Each partnership then seeks an additional $300,000 from HRDC on a 50 per cent matching or cost shared basis to carry out a three year pilot project.

In BC it was also discovered that early attention to ensuring social inclusion can lead to successful cross cultural bridge building between Aboriginal and nonAboriginal neighbours committed to working together for the common good. The Upper Skeena, Lillooet and Whistler-Mt Currie learning community partnerships are current examples of active collaboration between First Nations and nonFirst Nation neighbours.

Faris notes that

   learning communities in BC are proving to be
   effective means of

   * building bridges of social capital between First
     Nations and nonFirst Nation communities

   * promoting pathways between formal and non
     formal learning through use of adult prior learning
     assessment and external credit for high school
     students engaged in learning through programs
     such as 4-H, cadets, traditional dancing, and music
     instruction

   * mobilizing the total education and training
     resources in communities faced by major market
     dislocations

   * challenging youth to engage in service learning
     projects that leave a legacy in their community (8)

Communities identified by Faris as learning communities with libraries playing key roles include Lillooet, Mt Currie and Whistler (described at length in the author's full report, available on request to her [e-mail] ed)

United Kingdom

Lifelong learning has been high on the political agenda in the UK from about 1997. Several papers and policy documents have been produced on lifelong learning, including The learning age: a new renaissance for Britain. In this report it was noted that 7 million adults had no formal qualifications and one in five adults had poor literacy skills. This report, and others, are listed in the bibliography.

The focus on lifelong learning seemed to recede at the end of the 1990s. However it is back on the agenda again due to the publication of the UK government's skills strategy in 2003. Again, it was noted that the percentage of the UK workforce qualified to intermediate skill levels (apprenticeship, skilled croft and technician level) is low: 28% compared with 51% in France and 65% in Germany. In addition, in spite of the extensive skills and adult learning reforms put in place over the past seven years, significantly more young people in England leave education or training by the age of 17 than in most other developed countries. As a consequence the Blair government aims to provide a framework which motivates and supports adults to want to engage in skills training and qualifications at all levels. Although specifically aimed at increasing skills for employability and economic benefit, the national skills strategy also seeks to safeguard a varied range of learning opportunities for personal fulfilment, community development and active citizenship. One of the key measures in the strategy is the support for development of local strategic partnerships leading to the building of learning communities.

Libraries

There has been considerable debate about the future role of public libraries and in particular their contribution to the UK knowledge economy agenda. Interestingly, the Department for Culture, Media and Sport (DCMS) is responsible for developing the strategies and policies for public libraries, and the Office of the Deputy Prime Minister is responsible for funding. According to many public library managers, this division of responsibility leads to considerable conflict at the central government level.

In 1997 the DCMS commissioned a report on the role of the public library in the next century. New library: peoples network argued for the transformation of libraries and what they do. The key role of public libraries was to be linked to learning and would play a central role in the 'university for industry'. It also noted that the library is an enormously powerful agent for change and 'could do more for the spread of information and IT skills than any other measure the government could introduce'.

However Building better library services, published in May 2002 by the UK Audit Commission, noted that 'despite growing demand for books and information (and broadly stable resources of 770 million [pounds sterling]) traditional library services are in decline'. The report was critical of the reduced expenditure on books, decline in opening hours and the poor condition of the buildings of many English library services. It did also note that there is growing recognition of the wider contribution that libraries can play in promoting national and local priorities such as social inclusion, education and lifelong learning, egovernment, community regeneration and local cultural strategies. It noted that this has been 'piecemeal and fragmented'. Furthermore, it asserted that there is a danger that when these objectives are given a high profile, the core role of the service may be neglected.

Empowering the learning community (9) also supports the agenda of building lifelong learning partnerships, raising standards and increasing access to learning. This report recommends that local library and education services 'join up' their planning and services.

Start with the child, also published in 2002, is another key report that is influencing the development of public library services in the UK. This report on library services for young people indicated that although the developmental needs of children themselves have not changed, the context in which children grow and learn is radically different in the 21st century. It recommends

   that a successful library service for children and young
   people needs to encompass appropriate environments,
   services that are relevant and responsive, appropriate
   help for young people and for those that support them,
   and support from the community at large to use and
   benefit from services that are marketed to them and
   their parents. (10)

Framework for the future, published in 2003 by the Department for Culture, Media and Sport (DCMS), is the government's strategic vision for the UK public library service. This document was widely criticised by library managers as very uninspiring. However it identifies the operation of public libraries as community centres of formal and informal learning as a key strength and describes their activities in supporting learning, in particular 'self motivated learning' and in promoting reading. It emphasises the role of public libraries through their involvement in programs such as the Sure Start program for disadvantaged young children and the Connexions program for young people 13-19.

The 1964 Public Libraries and Museums Act requires library authorities to provide a comprehensive and efficient public library service. In 2001 DCMS published Comprehensive, efficient and modern public libraries standards and assessment, a set of new national standards. The standards were intended to guide the continuous improvement of socially inclusive services, and were designed to complement the approach taken by Best Value, and to drive up library performance.

They are widely criticised as mechanistic and uninspired, and viewed as the result of 'rows between the different government levels'. Many managers expressed the cynical view that the government did not want to include anything in the standards that might result in additional costs. Nonetheless, public libraries are required to develop an annual position statement that sets out how the library service is responding to Framework for the future.

Following on from Framework for the future, Charles Leadbeater fuelled further debate with Overdue; how to create a modern public library service. This was commissioned by the Laser Foundation to 'undertake a critical review of the current state of the public library sector and to give pointers to ways in which a modern library system for the future might be achieved'. Leadbeater claims that 'libraries are sleepwalking to disaster' and are in serious decline. He also notes that

   Because of the highly fragmented public library
   system, it is difficult to devise and take on projects
   that mobilise libraries as a network. As a result, public
   libraries run many projects relating to social inclusion,
   learning, egovernment and crime for government
   departments. What they lack is a sense of their own
   mission or of their place in a modern society, a sense
   that they are places for people to use to access books,
   information and knowledge far more easily that even
   ten years ago. (11)

Nevertheless, Leadbeater recommends that library hubs are created and based in shopping centres to combine learning and leisure. One of his key recommendations is that a national library development service (NDLA) is created and among other things, should form 'a close working alliance with the Dfes to help achieve key education and learning goals'. At the same time that this debate about the role and future of public libraries is taking place, several national programs are being rolled out in partnership with libraries and others to deliver the workforce development and lifelong learning agenda.

Learndirect

Learndirect is a network of online learning and information services introduced across England, Wales and Northern Ireland in 2000 by Ufi Ltd. There are nearly 2000 learndirect centres in locations such as shopping malls, pubs, colleges, companies, libraries and football clubs. Learndirect is aimed at anyone over the age of 16 to widen participation in learning and encourage people to improve or develop skills. This program promotes elearning through the use of online courses, cdroms, tasters and some workbook based courses (www.learndirect. co.uk).

Gates Foundation Gift

In 1999 the Bill and Melinda Gates Foundation provided over 2.6 million [pounds sterling] for the establishment of information technology learning centres in public libraries in some of the most deprived communities in the UK. By 2003 authorities (identified from deprivation indices) were installing additional 2-12 terminals in their libraries to ensure higher levels of internet access are provided (wwww.peoplesnetwork. gov.uk/infra/billgates.asp).

Peoples Network project

Public libraries in the UK received funding from the New Opportunities Fund (Nof--lotteries funding) through the Community Access to Lifelong Learning (Call) program to establish online learning centres as well as providing library staff with computer literacy and learner support skills. A related [pounds sterling] 50 million program is creating online content (www.peoplesnetwork.gov.uk).

Wong also noted that a number of ICT learning centres have been set up in libraries under the learning cities umbrella. In her report following her study tour in January 2002, she reported that they are attracting large numbers of participants including migrants and young people. She further commented that a complementary outcome has been the revitalisation of libraries as a result of the ICT provision and the re engagement of people with books and other library facilities and events. (12)

Several libraries--Birmingham, Blackburn with Darwen, Northamptonshire, Norwich, Nottingham, Southwark, Tower Hamlets--were subsequently identified for the purpose of this study tour as providing innovative programs to support the national learning agenda (these are described in full in the author's report ed).

Scotland

The Scottish parliament and Scottish executive have commissioned and produced several reports and research projects about adult literacy and numeracy, training and education, and lifelong learning. In 2001 the Scottish Office published Communities: change through learning. Subsequently, all local government authorities were required to develop community learning strategies and plans to address the learning needs of their communities, working in partnership at all levels with the voluntary sector, local adult guidance networks, other education providers, health, and community safety. In particular they were asked to highlight the needs of those at transition stages who are, or who are at risk of becoming, alienated from society because their educational experience has left them dissatisfied or their lifestyle makes them more vulnerable.

Emphasis was also to be given to the importance of providing educational support to individuals, families, people with disabilities, interest groups and communities that are endeavouring to improve the quality of their lives (www.edinburgh.gov.uk/libraries/).

Conclusion

It appears that many libraries in Canada and the UK are developing services and programs under the lifelong learning umbrella. However it was quite frequently commented that public libraries had always been doing these things, such as the various literacy programs, promotion of reading and undertaking reader development programs, homework clubs, and providing support materials for local education providers. Therefore the only change for some libraries was that they now linked these programs, particularly in the UK, to the national lifelong learning agenda, and were able to obtain funding assistance specific to these activities with some minor tweaking and renaming of programs.

The People's Network and the Nof funding has enabled all UK libraries to provide a network of ICT equipment and online workstations. It has also enabled them to provide free or low cost access for their communities and staff training and development opportunities. However, the sustainability of these services is an issue and a great challenge for many library authorities. In the next 2-3 years, or even earlier, this huge bank of equipment will need replacing with the next generation of ICT. As with many Victorian public libraries, there is the danger that libraries may need to increase the level of funding to support these activities at the expense of collections and appropriate professional and other staffing levels. This may fuel the debate even further on the purpose and role of the 21st century public library.

Although not mentioned yet in the available literature, it would be interesting to map how this program has affected ICT literacy levels in the UK, and to measure the impact. This could be a powerful tool for promoting the role of public libraries and for sustainable funding to continue with the programs.

The learning community idea is exciting, and in many communities in the UK and Canada organisations and agencies are working together to achieve tangible results. Sometimes public libraries are involved in the partnerships and are sitting at the table, but mostly they are not. Lillooet and Whistler are exceptions, as is Glasgow. The reasons for this are many and varied, but in summary it appears that it depends on

* the location of the library within the council structure. Those located in the education department, or that have community learning integrated into their areas (such as Glasgow) are more likely to be partners in the strategy and have access to the funds and programs

* the size of the community. Obviously in smaller communities such as Whistler and Lillooet there is less bureaucracy and libraries have a larger profile

* the overall vision of the local authority

* the ability of library management to align the library with the vision and to promote the library as the vehicle to assist the council to achieve it (Blackburn, Norwich and Tower Hamlets)

* the networking skills and abilities of the senior library staff and the profile of the library within the broader community and the local authority

Learning centres have been colocated or integrated into many libraries throughout the UK, and have mostly been funded through project funds from a variety of sources. The sustainability of these facilities is questionable once the funding ceases, particularly in the cases where they are just add ons. Again it would be useful to have some measurement of the impact of these projects in terms of meeting the objectives of the programs and making a difference.

Some libraries and local authorities have approached the lifelong learning agenda in a different fashion. Libraries at Tower Hamlets (with the idea stores), Blackburn and Norwich have been transformed and revitalised with learning in its broadest sense at the centre of their operations. It has been implicitly acknowledged by those local government and library authorities that at the heart of lifelong learning lies relevant and up to date collections, user focused and people oriented staff, bright and attractive modern facilities and opening hours that suit the majority of the community. They offer programs that reach out into the communities and provide spaces that are attracting the young to libraries. They are backed by increased funding and are providing results, with rapidly increasing usage and high profiles within their communities.

Websites

Organisation                         Website

Learning City Network UK             www.lc-network.com
Adult Learning Australia             www.ala.asn.au
Learndirect UK                       www.learndirect.co.uk
UK Government Online                 www.ukonline.gov.uk
Organisation for Economic            www.oecd.org
  Cooperation & Development
UK Audit Commission                  www.audit-commission.gov.uk
Chartered Institute of Library and   www.cilip.org.uk
  Information Professionals UK
DCMS Public Library Position         www.libplans.ws
  Statements
Lifelong Learning UK                 www.lifelearning.co.co.uk
Department for Education and         www.dfes.gov.uk
  Skills UK
DfES & LSC -- Success for All        www.successforall.gov.uk
  Program
Learning and Skills Council UK       www.lsc.gov.uk
Learning and Skills Development      www.lsda.org.uk
  Agency UK
Neighbourhood Renewal Unit UK        www.neighbourhood.gov.uk
Local Strategic Partnerships         www.neighbourhood.gov.uk/
                                       partnerships.asp
National Institute of Adult          www.niace.org.uk
  Continuing Education UK
Basic Skills Agency UK               www.basic-skills.co.uk
Social Exclusion Unit UK             www.socialexclusionunit.gov.uk
Neighbourhood Learning in            www.skills.org.uk
  Disadvantaged Communities
Resource, the council for museums,   www.resource.gov.uk
  archives and libraries UK
EUCLID International, Cultural       www.euclid.co.uk
  Leadership & Development
Promoting Active Lifelong Learning   www.pallace.net
  in Australia, Canada & Europe
European Lifelong learning           www.ellinet.org
  Initiative
Open Learning and Information        www.olin.nf.ca
  Network (Olin)
Community Learning Network           www.cln.org
  (British Columbia)
Centre for Research and Learning     www.crlra.utas.edu.au
  in Regional Australia
Learning Communities Catalyst        www.lcc.edu.au
  Australia
Australian National Training         www.anta.gov.au
  Authority
Library and Information Commission   www.lic.gov.uk
  UK
Australian Learning Communities      www.lcc.edu.au
  Network
Museums Libraries and Archives       www.resource.gov.uk
  Council UK
Human Resources and skills           http://www.hrsdc.gc.ca/en/
  development Canada                   home.shtml
Learning Cities Network              www.learningcities.net
UK Surestart Program                 www.surestart.gov.uk
People's Network Program UK          www.peoplesnetwork.gov.uk
UK Public Libraries Page             http://dspace.dial.pipex.com/
                                       town/square/ ac940/weblibs.html
UK Public library plans and annual   www.libplans.ws
  position statements

References

(1) Gurstein, M Community learning, community economic development and the new economy prepared for Community Learning Networks Secretariat, Office of Learning Technologies, Human Resources Development Canada, Government of Canada Ottawa 2001

(2) Longworth, N and Davies, W Lifelong learning; new vision, new implications, new roles for people, organizations, nations and communities in the 21st century London, Kogan Page 1996

(3) United Kingdom, Parliament 21st century skills: realising our potential," individuals, employers, nation July 2003 www.dfes.gov.uk/skillsstrategy/

(4) Faris, R The way forward: building a learning nation community by community Canada 2001 http://members.shaw.ca/rfaris/LC.htm

(5) ibid

(6) Gurstein op cit 

(7) Faris op cit

(8) ibid

(9) Library and Information Commission Empowering the learning community London 2000 www.lic.gov.uk/ publications/policyreports/empower/foreword.html

(10) Morris, Hargreaves and McIntyre Start with the child; the needs and motivations of young people a report commissioned by Resource & the Chartered Institute of Library and Information Professionals, Manchester 2002

(11) Leadbeater, C Overdue; how to create a modern public library service A Laser Foundation report, Demos London 2003 www.demos.co.uk

(12) Wong, S Learning cities; building 21st century communities through lifelong learning a report on the travelling scholarship awarded by the Department of Employment, Training and Tertiary Education of the Victorian Government, Geelong 2002

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Adele Kenneally is the chief executive officer of the Glenelg Regional Library Corporation in western Victoria. In 2002 she was the recipient of the State Library of Victoria's $15,000 Marjory C Ramsay scholarship which enabled an overseas study tour of public libraries in learning communities. Address: Glenelg Regional Library Corporation PO Box 272 Hamilton Vic 3300 tel[phone] fax[phone] For Adele's full study tour report please contact her [e-mail]

Adele Kenneally Chief Executive Officer Glenelg Regional Library Corporation Victoria