PUBLIC LIBRARY STRUCTURE IN NYS & LIBRARY SERVICE OPTIONS FOR THE TOWN OF SCHODACK Prepared by Panz Library Consulting Webster, NY Presentation funded by NY State Division of Library Development

CONSULTANT’S BACKGROUND 37 year career in public libraries, 26 in administration Positions:  Independent Library Consultant (2003-present)  Director, Rochester & Monroe County ( )  Director, Finger Lakes Library System ( )  Assistant Director, Battle Creek ( )  Librarian, Buffalo & Erie County PL ( )  Page, Buffalo & Erie County PL ( )

CLIENT LIST  New York State Library  Chemung County Libraries  James Prendergast Library (Jamestown)  Gloversville Free Library  Southeast Steuben Public Library  City of Rye  Buffalo & Erie County PL  Southern Tier Library System  Onondaga County Public Library  Patchogue-Medford Library  Geneva Free Library  Jordan Bramley Library  Four County Library System  Pioneer Library System  Monroe County Library System  Dewitt Community Library  Albion Public Library  Onondaga Free Library  Irondequoit Public Library  Mendon Public Library  Penn Yan Public Library  Rochester Regional Library Council  Utica Public Library  Guilderland Public Library

PRESENTATION OBJECTIVES Review types of libraries in NYS – characteristics & steps for creation Review potential library service options available to Schodack residents Review advantages & disadvantages of each option

TYPES OF PUBLIC LIBRARIES Association Libraries (363) Municipal Libraries (212) School District Public Libraries (139) Special Legislative District Public Libraries (40)

OPTIONS AVAILABLE TO ALL PUBLIC LIBRARIES RE: TAX SUPPORT Direct appropriation from a municipality or school district Direct appropriation from a municipality or school district Placement of funding proposition on a municipal ballot Placement of funding proposition on a municipal ballot Placement of funding proposition on a school district ballot Placement of funding proposition on a school district ballot

ASSOCIATION LIBRARY

ASSOCIATION LIBRARY ASSOCIATION LIBRARY Primary characteristics A private corporation established by the members of the association Budget is normally based on a contract with a unit of local government to provide library services to the residents of that jurisdiction - but library may place funding propositions on municipal or school district ballot Association libraries are private not-for-profit corporations and are not subject to some of the laws and regulations governing public entities – i.e. procurement, civil service, investing funds, etc. Rarely chartered in recent years by Regents

MUNICIPAL PUBLIC LIBRARY

MUNICIPAL LIBRARY Primary characteristics  Formed by vote of the governing body of a municipality (village, town, city or county)  Trustees are appointed by the municipality  Budget is usually appropriated by municipality -  Budget is usually appropriated by municipality - but library may place funding propositions on municipal or school district  Library is subject to all laws applicable to public institutions in NYS i.e. procurement, civil service, investments  Library Board operates independently from municipality – not as department

MUNICIPAL LIBRARY Steps for creating Town notifies the State Library of its intention to create new library Municipality passes resolution to create new library, appropriates funds and appoints trustees Trustees apply to Board of Regents for a charter and if granted, govern library

MUNICIPAL LIBRARY Advantages Municipality assumes responsibility for survival of library – ownership Municipality can bond for capital projects Close relationship between library and municipality Opportunity for library to receive in-kind services from the municipality

MUNICIPAL LIBRARY Considerations Potential for conflict between library board and town re: who is in charge of library Library must continue to compete with other municipal services for funding Annual funding may fluctuate based on Town budget challenges

SCHOOL DISTRICT PUBLIC LIBRARY

SCHOOL DISTRICT PUBLIC LIBRARY Primary characteristics   Created by residents of a school district by approving propositions to create & fund a library and to elect trustees Service area of the library mirrors the boundaries of the school district Budget is approved annually by voters Trustees are elected annually by voters Library operates independently from school district

SCHOOL DISTRICT PUBLIC LIBRARY Steps for Creating 1. Petitions to create library (25 signatures) and nominate trustees (25 signatures or 2% of voters in last election) 2. Board of education schedules election 3. Public education campaign conducted 4. If resolution passes, elected trustees take office and file for charter 5. Existing library dissolved - assets transferred to new entity 6. School District collects taxes – turns funds over to Library 7. Annual funding remains unchanged until library requests increase

SCHOOL DISTRICT PUBLIC LIBRARY Advantages Library operates independently Library operates independently Elected trustees provide “representation” for taxpayers Elected trustees provide “representation” for taxpayers Opportunity to bond for capital projects Opportunity to bond for capital projects Once established, library sets time & place for election Once established, library sets time & place for election Consistent funding stream Consistent funding stream Straightforward process for seeking increase in funding Straightforward process for seeking increase in funding

SCHOOL DISTRICT PUBLIC LIBRARY Considerations  Library must comply with civil service & municipal purchasing laws  Trustees subject to election  Requires strong advocacy and education campaigns

SPECIAL LEGISLATIVE DISTRICT PUBLIC LIBRARY

SPECIAL LEGISLATIVE DISTRICT PUBLIC LIBRARY Primary characteristics State legislation authorizes local election to establish and fund a new library and elect trustees Legislation specifies service area and election process Boundaries freely drawn to reflect library user base Library has consistent funding stream – funding level continues until voters approve new amount Separate from any municipality and school district Library has ability to bond for capital projects

SPECIAL LEGISLATIVE DISTRICT PUBLIC LIBRARY - Steps for Creating 1. Features of proposed district defined – service area etc. 2. Local elected and appointed officials briefed 3. State Legislator introduces bill authorizing local election 4. If required, “home rule” message requested 5. If bill passes, election scheduled, candidates file petitions 6. Public education campaign conducted 7. If proposition passes, trustees take office and file for charter 8. Existing library dissolved - assets transferred to new entity 9. Municipality collects taxes - turns funds over to Library 10. Funding remains unchanged until library requests increase

SPECIAL LEGISLATIVE DISTRICT PUBLIC LIBRARY Advantages Service areas can be freely drawn to mirror usage patterns Service areas can be freely drawn to mirror usage patterns Opportunity to eliminate unserved areas & equalize support Opportunity to eliminate unserved areas & equalize support District can bond for capital projects District can bond for capital projects Library can set time & place for initial and succeeding votes Library can set time & place for initial and succeeding votes Stable funding – once budget approved by voters - cannot be reduced Stable funding – once budget approved by voters - cannot be reduced Library is independent from municipalities & school district Library is independent from municipalities & school district Elected trustees provide “representation” for taxpayers Elected trustees provide “representation” for taxpayers Straightforward process for seeking increase Straightforward process for seeking increase

SPECIAL LEGISLATIVE PUBLIC LIBRARY DISTRICT Considerations Library responsible for running local election Library responsible for running local election Trustees are subject to election Trustees are subject to election Requires strong education & advocacy effort Requires strong education & advocacy effort Once created, library must comply with Civil Service & Municipal Purchasing laws Once created, library must comply with Civil Service & Municipal Purchasing laws

CURRENT SITUATION TOWN OF SCHODACK

Town of Schodack is funding three libraries – East Greenbush, Castleton Public Library, Nassau Free Library Town of Schodack is funding three libraries – East Greenbush, Castleton Public Library, Nassau Free Library Castleton is a municipal library chartered to serve the Village of Castleton Castleton is a municipal library chartered to serve the Village of Castleton East Greenbush is a special legislative district public library chartered to serve the Town of East Greenbush East Greenbush is a special legislative district public library chartered to serve the Town of East Greenbush Nassau Free is an association library chartered to serve the Town of Nassau Nassau Free is an association library chartered to serve the Town of Nassau No library is chartered to serve the Town of Schodack No library is chartered to serve the Town of Schodack

SOME POTENTIAL OPTIONS 1. 1.Maintain status quo and continue to appropriate funds for three libraries 2. 2.East Greenbush, Castleton and Nassau libraries could place funding propositions on the municipal or school district ballots if town of Schodack eliminates its appropriation 3. 3.Create a new municipal public library serving the Town of Schodack except for village of Castleton 4. 4.Castleton Public Library could re-charter as a town library and open up a second branch in the center of Town 5. 5.Create new special legislative district public library serving the Town 6. 6.The East Greenbush Library District could be expanded to incorporate the Town of Schodack 7. 7.East Greenbush and Castleton could re-charter as school district public libraries serving their respective School Districts

MAINTAIN STATUS QUO

MAINTAIN STATUS QUO Advantages Path of least resistance if no consensus can be found Path of least resistance if no consensus can be found Requires no effort to change things Requires no effort to change things Enables Schodack residents to access all three libraries Enables Schodack residents to access all three libraries

MAINTAIN STATUS QUO Considerations No representation for Town residents on library boards No representation for Town residents on library boards Town & its residents have no control over costs of library services Town & its residents have no control over costs of library services Potential for continued disagreement within Town on best option for library service Potential for continued disagreement within Town on best option for library service No library officially chartered to serve town residents No library officially chartered to serve town residents Town residents have limited sense of “ownership” of libraries Town residents have limited sense of “ownership” of libraries

LIBRARIES COULD PLACE FUNDING PROPOSITIONS ON MUNICIPAL OR SCHOOL BALLOTS

MUNICIPAL & SCHOOL BALLOT FUNDING Advantages  Libraries can appeal directly to Town residents for tax support  If propositions pass on municipal ballot, the appropriation cannot be decreased unless approved by voters  School ballot process requires limited number of signatures on petition  Process does not require any changes in governance of the three libraries  Short timeline for implementation

MUNICIPAL & SCHOOL BALLOT FUNDING Considerations  Requires considerable advocacy & education effort  Town residents will have no representation on library boards  Number of signatures required on petition for municipal ballot may be difficult to obtain and petition process must be repeated each time an increase is sought  If school ballot used, process is subject to counter-propositions that could reduce the amounts earmarked for libraries  Voters may be confused if all three libraries place separate propositions on ballot

CREATE NEW MUNICIPAL LIBRARY SERVING TOWN OF SCHODACK EXCEPT FOR VILLAGE OF CASTLETON

CREATE NEW MUNICIPAL LIBRARY Advantages  Town assumes responsibility for funding library at level that meets state minimum standards  Town residents appointed to library board providing residents with representation  Town could bond for capital projects and facilities  Town could also elect to fund existing libraries until new library is able to offer services on par with others

CREATE NEW MUNICIPAL LIBRARY Considerations  Library must compete with other municipal services for funding  May take several years for new library to offer services on par with existing libraries  Access to existing libraries may continue to be curtailed if Town decides to eliminate funding  Potential for future disagreements between new library board and Town officials re: control of library  Castleton Library tax base is diminished

RE-CHARTER CASTLETON AS TOWN LIBRARY WITH TWO BRANCHES

RE-CHARTER CASTLETON Advantages   Relatively easy process to complete   Town would appoint library board  Town could bond for capital projects and facilities   Library Board & Town would determine need for additional branches within town

RE-CHARTER CASTLETON Considerations   Not much different from current situation – Town funds library through appropriation   Library must compete with other municipal services for funding   Access to existing libraries may continue to be curtailed if Town decides to eliminate funding   If library opens second branch within town, operating costs will increase

CREATE NEW SPECIAL LEGISLATIVE LIBRARY DISTRICT SERVING TOWN OF SCHODACK

CREATE NEW SPECIAL LEGISLATIVE LIBRARY DISTRICT FOR TOWN Advantages   Elected library board would be directly accountable to Town residents   New library board could determine need for additional branches within town   New library board could determine need for continued funding to E. Greenbush & Nassau   Public would have opportunity to vote annually on library budget & special bonding propositions   Town could remove library funding from its budget   Governance & funding structure would mirror E. Greenbush & N. Greenbush

CREATE NEW SPECIAL LEGISLATIVE LIBRARY DISTRICT FOR TOWN Considerations   Requires substantial advocacy & education effort   Operating two branches within Town will increase operating costs   Requires dissolution of existing Castleton library and merger into new library district   Town government has no control over library services   May take several years for new library to offer services on par with existing libraries   Access to existing libraries may continue to be curtailed if Town decides to eliminate funding

EXPAND GREENBUSH PL DISTRICT TO INCLUDE TOWN OF SCHODACK

EXPAND E. GREENBUSH DISTRICT TO INCLUDE TOWN OF SCHODACK Advantages   Relatively straightforward process   Would provide Town residents with representation on library board and opportunity to vote on library budget   Determination of number of library outlets to operate within new district would rest with the library board   Potential for Castleton Library to merge into new district   Town would not have to fund library service

EXPAND E. GREENBUSH DISTRICT TO INCLUDE TOWN OF SCHODACK Considerations   Requires E. Greenbush residents approval to expand the library district   Requires significant advocacy and education effort   Territory covered by district is relatively large – need for additional library outlets will increase budget   Town would have no control over library services

RE-CHARTER E. GREENBUSH & CASTLETON AS SCHOOL DISTRICT PUBLIC LIBRARIES

RE-CHARTER E. GREENBUSH & CASTLETON AS SCHOOL DISTRICT PL’S Advantages Library services consistent with School District boundaries – some natural connection New service areas would cover most of the Town of Castleton Town would not have to fund library services Elected boards and publicly approved budgets would provide residents with direct control over library services within each School District Relatively easy process for forming School District Public Libraries Once budgets approved by public, libraries would have consistent funding stream

RE-CHARTER E. GREENBUSH & CASTLETON AS SCHOOL DISTRICT PL’S Considerations Small portion of Town of Schodack lies outside of both School Districts and will remain “un-served” Would encroach on service area of Nassau Free Library may require merger into new district leaving rest of Town of Nassau unserved Requires strong advocacy and education effort Divides the Town re: library services Requires dissolution of existing E. Greenbush and Castleton libraries – creation of new school district libraries Town has no control over library services

RECOMMENDATIONS FOR MOVING AHEAD   Identify process for making decision (appoint blue ribbon panel to recommend best option)   Identify additional options, analyze each, select best for long-term success   Do not underestimate the cost of quality library service (E. Greenbush $50/cap; similar size communities - $44/cap; must meet minimum standards – facilities, hours open, personnel)   Develop timeline for implementation   Determine need for legal and/or consultant support

WHY THE NYS BOARD OF REGENTS RECOMMENDS LIBRARY DISTRICTS Funding is more predictable and steady – once approved by voters, level cannot be decreased Increased autonomy and control by library board Library is more “accountable” to public More ownership by community – elected board Simplified funding stream Potential for offering enhanced services Success rate for ongoing funding propositions exceeds 90% Ability to “bond” for capital projects – improved facilities Libraries funded by public vote have per-capita support that is twice that of libraries that depend on appropriation

INFORMATION SOURCES NY State Library Website NY State Library Website (Click on Public Library District “How to Guide” in pull down menu) Upper Hudson Library System Upper Hudson Library System Other libraries Other libraries