HomeMy WebLinkAboutMINUTES - 09191989 - IO.12 TG: Board of Supervisors
FROM: INTERNAL OPERATIONS COMMITTEE n '
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DATE: September 11, 1989 �•.� == ,-�`
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SUBJECT: PROPOSED RESPONSE TO THE REPORT OF THE 1988-89 GRAND JURY
ENTITLED "THE CONTRA COSTA COUNTY LIBRARY A NEGLECTED PUBLIC SERVICE"
Specific Request(s) or Recommendations(s) & Background & Justification
RECOMMENDATIONS:
1. Adopt the following report of our Committee as the Board of Supervisors' response to the Report of the 1988-
89 Grand Jury entitled "The Contra Costa County Library A Neglected Public Service".
2. Remove this item as a referral to our Committee.
BACKGROUND:
On June 16, 1989 the 1988-89 Grand Jury approved the attached report on "The Contra Costa County Library A
Neglected Public Service". On September 11, 1989 our Committee met with the County Librarian and members
of the 1988-89 and 1989-90 Grand Juries. We reviewed the proposed response suggested by Mr.Siegel and discussed
the Grand Jury's recommendations with the members of the Grand Jury and Mr. Siegel. At the conclusion of these
discussions we formulated the following response,utilizing a format suggested by the Grand Jury in their final report,
in which the Grand Jury requested that written responses to Grand Jury recommendations clearly specify:
A. Whether the recommendation is accepted or adopted.
B. If the recommendation is accepted, a statement as to who will be responsible for implementation and a definite
target date.
C. A delineation of constraints, if a recommendation is accepted but cannot be implemented within the calendar
year.
D. The reason for not adopting a recommendation.
Continued on attachment: YES Signature:
Reco mend io ounty Administrator Recommendation of Board Committee
Appr a Other:
POAM
/1Signature(s): P S SUNNE WRIGHT MC PEAK
Action of Boald on: _ September 19, 1989 Approved as Recommended x Other
Vote of Supervisors I HEREBY CERTIFY THAT THIS IS A TRUE
AND CORRECT COPY OF AN ACTION TAKEN
x Unanimous (Absent ) AND ENTERED ON THE MINUTES OF THE
Ayes: Noes: BOARD OF SUPERVISORS ON DATE SHOWN.
Absent: Abstain:
Attested /q, /989
cc: County Administrator
County Librarian Phil Batchelor, Clerk of the Board
Director of General services of Supervisors and County Administrator
Director of Personnel e
County Counsel BU4 De ut Clerk
Grand Jury _ 61 Y � p Y
Judge. Westover
This and all future responses to Grand Jury recommendations coming from our Committee will follow this format
as closely as possible.
RECOMMENDATION# 1:
The Board of Supervisors and city and town councils,except Richmond which maintains its own library,give
a high priority to improving and expanding library services in the County.
RESPONSE:
A. This recommendation is accepted, subject to the availability of funding to accomplish the recommendation.
B. The County Librarian will be responsible for implementing this recommendation, within the fiscal resources
which the Board of Supervisors is able to provide and subject to the responses to the following recommendation
regarding alternative sources of funding for library services.
RECOMMENDATION#2:
City and/or town councils establish City Library Commissions consisting of persons with a strong
commitment to public libraries. Communities in the unincorporated areas of the County should form similar
commissions or committees.
RESPONSE:
A. This recommendation is accepted subject to the Board of Supervisors'jurisdiction over the subject matter of the
recommendation and subject to the following comments.
B. The Board of Supervisors has no jurisdiction over whether city council establish Library Commissions. We
assume the Grand Jury will forward this recommendation to the cities. The Board of Supervisors believes that
the establishment of such Commissions in the unincorporated areas of the County or a County Library
Commission should be contingent on reaching a consensus with the cities and community on an alternative
funding mechanism for library service. We believe that such a Commission could serve a valuable function by
sponsoring a bond issue or other funding mechanism to support library services. In the absence of such a funding
strategy,we question the value of such a Commission. The responsibility to pursue such a funding mechanism
will rest with the County Librarian.
RECOMMENDATION#3:
The Board of Supervisors establish a County Library Commission which consists primarily of representa-
tives of local library commissions or committees. This commission would serve as the lead agency in
coordinating a County-wide program to improve library services.
RESPONSE:
A. See response to Recommendation #2.
RECOMMENDATION#4:
Charges to the library commissions or committees include as a first priority the development of proposals
for establishing a stable and adequate funding level for libraries in the County. These groups shall also serve
in an advisory capacity to their respective local legislative bodies on matters of library policy.
RESPONSE:
A. This recommendation is approved, subject to the comments made in the response to Recommendation #2.
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RECOMMENDATION#5:
The Board of Supervisors and city and town councils give serious consideration to a library funding
arrangement that maintains current County funding levels and calls for financial support from cities on the
condition that the cities will assume a measure of local control and authority over branch libraries.
RESPONSE:
A. This recommendation is accepted to the extent that it applies to the Board of Supervisors. The Board of
Supervisors has no jurisdiction over the cities and assumes that the Grand Jury will forward this recommendation
to those jurisdictions.
B. The County Librarian will be responsible for opening a dialogue between the County and the cities on the
possibility of one or another of a variety of alternative funding arrangements to augment current funding for
library services. A bond issue for county library services can only be successful with the wholehearted support
and cooperation of the cities as well as those groups of citizens who are committed to the need for additional
library services.
RECOMMENDATION#6:
The County Librarian review the relationship between branch librarians and central administration for the
purpose of allowing the branch librarians to maximize their role as key members of a professional
management team.
RESPONSE:
A. This recommendation is accepted.
B. The County Librarian will be responsible for such a review and may wish to consult as appropriate with the
County Administrator in formulating any plans in this regard.
RECOMMENDATION#7:
Branch librarians initiate action to separate themselves from their present union bargaining unit and, if
desired, affiliate with a unit representing managers or form a separate unit.
RESPONSE:
A. It is not appropriate for the Board of Supervisors to advise its employees how they should handle the question
of their representation,because of the likelihood of a charge of an unfair labor practice from the current employee
organizations. Any represented unit of county employees has the right, subject to established procedures, to
petition for a change in their representation.
RECOMMENDATION#8:
The County Librarian insist that the position of Library Clerk requires a high school diploma or its
equivalent.
RESPONSE:
A. The Board of Supervisors will ask the Director of Personnel to research this recommendation and provide a report
to the Board of Supervisors.
B. Despite the concerns expressed by the County Librarian,a recommendation to review the minimum qualifica-
tions for any county merit system classification is always appropriate. The Director of Personnel will be
responsible for discussing this matter with the County Librarian, determining the general practice in other
comparable jurisdictions and then advising the Board of Supervisors if any change in the minimum qualifications
is appropriate.
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RECOMMENDATION#9:
The County Librarian include as an early priority the development of long range plans for library services
in the areas of the County with a growing population. .
RESPONSE:
A. This recommendation is accepted.
B. The County Librarian noted in his response that the County has done this type of long-range planning with the
City of Hercules. An update of the current long-range facilities plan is currently underway.
RECOMMENDATION#10:
The County Librarian have printers installed as part of the computerized information system at each library.
Ideally,this would include one printer for the library staff and one or more printers for the work stations,
but it is possible that one printer could serve the needs of all work stations within a library.
RESPONSE:
A. This recommendation is accepted for the purpose of studying its cost and feasibility.
B. The County Librarian will be responsible for continuing his present study of the feasibility of adding printers
as the next step of the Library's automation program and making recommendations in this regard to the County
Administrator and Board of Supervisors when this study is concluded.
RECOMMENDATION#It:
The County Librarian install electronic security systems for book check-out at all branch libraries.
RESPONSE:
A. This recommendation is accepted for the purpose of studying its cost and feasibility.
B. The County Librarian notes that the cost of installing electronic security systems in all branches would be
$150,000 for equipment plus $120,00 for magnetic strips, plus staff costs. The County Librarian will be
responsible fordetermining the feasibility of such a system once the automated circulation system has been fully
installed, since the automated circulation system is considered to be a system which will prevent a much more
serious loss of books.
RECOMMENDATION# 12:
The County Librarian,the Director of General Services and the County Administrator make themselves fully
aware of the inadequate custodial services in libraries and take corrective action to provide an improved and
uniform standard of cleanliness at least comparable to that which is maintained in most other public buildings
in the County.
RESPONSE:
A. This recommendation is accepted for the purpose of entering into further discussions between the County
Administrator, General Services Department and County Library for the purpose of determining whether an
increased level of services can be provided within the County Library's budget.
B. The County Administrator will be responsible for convening a meeting of appropriate staff from the County
Library and General Services Department to discuss the level of custodial services and the cost of those services.
Any changes which are agreed to will be reported to the Board of Supervisors.
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RECOMMENDATION# 13:
The County contract with cities for custodial and maintenance services when savings can be achieved.
RESPONSE:
A. This recommendation is accepted for the purpose of further discussion with the cities and County Librarian.
B. As the Director of General Services has noted in his response, the state law restricts the ability of the County
to contract with anyone for such services as custodial services. A determination can be made that a site is remote
from the rest of County services. The County Administrator will be responsible for meeting with appropriate
city and Library staff to determine whether a finding of"remoteness"can be made in any of the existing situations
where the General Services Department provides custodial services. It may also be necessary for the Director
of Personnel to enter into a"meet and confer"process with affected employee organizations in order to comply
with state law before a recommendation is made to the Board of Supervisors that they make a finding that a site
is "remote".
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A REPORT BY
THE 1988-89 CONTRA COSTA COUNTY GRAND JURY
P. 0. Box 1110
Martinez, CA 94553
( 415) 646-2345
THE CONTRA COSTA COUNTY LIBRARY
A NEGLECTED PUBLIC SERVICE
Contra Costa County
RECEIVED
JUN 2 11989
Office Of
County Admini-strator
APPROVED BY THE GRAND JURY:
DATE:.
PHILIP )E.' SIrfZMAN, SR.
GRAND JURY FOREMAN
ACCEPTED FOR FILING:
DATE: /G / 7 GrGG/
� AYNE AK11 ESTOVER
JUDGE OF THE SUPERIOR COURT
w
THE CONTRA COSTA COUNTY LIBRARY
A NEGLECTED PUBLIC SERVICE
SUMMARY
As stated in its mission statement, the Contra Costa County
Library has one basic goal:
. . .to provide all residents with authoritative and
timely information to support daily living,
occupational interests, educational pursuit and
intellectual curiosity.
The 1988-89 grand jury found that the County' s library system
falls far short of accomplishing this goal. All residents of the .
County do not have ready access to libraries; there are sizeable
areas without branch libraries. While librarians and their
staffs are doing a commendable job serving the public, they are
severely limited in their ability to deliver what they consider
to be adequate services . . Faced with financial limitations
imposed following the passage of Proposition 13 , the library
system was forced to reduce staff, hours of operation were cut
back, allocations for books and materials were curtailed, some
special services were eliminated and maintenance and cleaning
standards were lowered. Most branches have inadequate space to
meet the needs of the County' s growing population.
A prime factor in the inadequacy of the Contra Costa County
Library is its failure to compete against other high priority
County obligations. Contra Costa County' s libraries are among
the least funded in the State. Sources of new funding must be
found and in the opinion of the grand jury the solution can be in
joint County/community efforts in which communities would take
greater responsibility in supporting library services. The
public-private financing of an impressive new library in San
Ramon and plans in Concord and Danville to seek funds for new
facilities indicate that the potential exists at the local level
to support quality library services.
The grand jury recognizes the advantages of maintaining a cen-
tralized library system with its many specialized services and
support activities. However, if cities and communities are
expected to provide a greater share in funding libraries, they
should expect to be given a measure of local control over
branches. Professional branch librarians need to be involved as
key players in giving direction to the libraries they manage.
FINDINGS:
1. The Contra Costa County Library (the Library) , established
in 1913, is a department of the County and answers directly
to the Board of Supervisors and the County' s voters. The
County Librarian serves as the chief administrator. The
Library employs 174 people, not including student
assistants. Of the 146 . 15 full time equivalent employees,
59. 5 are professional librarians, and the remainder are
classified as support staff, including library aides and
clerks at the branch libraries. All librarians hold
Master' s degrees from accredited library schools.
The provision of library services by county governments in
California is not mandated by law.
With the opening of the San Ramon branch on April 15, 1989
the Library has a total of twenty-one outlets: the Central
Library in Pleasant Hill and twenty branches. A bookmobile
is available in some areas and library services are provided
in the County' s detention facilities. The Library has
branches in sixteen of the eighteen incorporated cities of
the County. Eleven of the twenty-one library buildings are
owned by the County, cities are owners of eight, the title
to one library (Orinda) is held by a local library board and
another (Crockett) is the property of a refinery. The City
of Richmond operates its own library and is independent of
the County Library.
2. The mission statement for the Contra Costa County Library is
stated in its 1988 Long Range Plan:
The Contra Costa County Library strives through
its Central Library and community branches to
provide all residents with authoritative and
timely information to support daily living,
occupational interests, educational pursuits and
intellectual curiosity. The Library is also a
source of the best in popular reading for
recreation, knowledge and cultural enrichment. A
trained and dedicated staff offers quality service
in a welcoming environment. The Library has a
special responsibility to complement the
educational system with books, magazines,
newspapers and other materials. This educational
role includes a commitment to work with pre-school
children and their parents to instill a love of
books .and a lifelong habit of reading.
The 1988 Long Range Plan for the Contra Costa County Library
recognized the limited availability of resources and that
" . . .the library budget suffers increasing strain." The
introduction to the Plan further stated that . .by plan-
ning, the library can strive to identify and allocate
resources to those services of most importance to the
community. "
The Plan includes a mission statement which identifies the
Library's role and establishes goals and specific object-
ives. By January 1991, the Library expects to begin
developing goals for the next three-year planning phase.
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3 . Volunteers play an important role in the delivery of library
services. Tasks performed include delivering and picking up
books for convalescent hospital patients, maintaining files
and bulletin _oards and helping with registration of
borrowers. A reoort on volunteers for 1988 noted that 122
volunteers devoted 4 ,140 hours in at least 13 support
activities.
Contra Costa County libraries also provide f acilit_es and
other forms of support for Project Second Chance, a program
to eliminate fuctional illiteracy. In 1988, 538 -volunteers
provided 35,967 hours of service, primarily as tutors.
In addition to hands-on assistance, local volunteer
organizations have raised significant amounts of: money to
augment library book collections, materials and fac_lities.
Friends of the Library groups are active in most comiunities
and it is esti-mated that volunteer contributions for all
branches totalled $50,000 in 1988. Alliance for Better
Living, an ad hoc volunteer committee, was formed in 1987 to
help improve library services in the County.
4. With the passage of Proposition 13, property tax f;Lzds for
the Library were greatly diminished. Although supplementary
monies were made available from the Special District Augmen-
tation Fund, budget limitations were such that severe cuts
had to be made in services in all branches. An additional
impact of budgetary limitations has been on the Library' s
ability to provide services and new facilities in the
rapidly expanding population areas of the County, especially
in East County.
5. The Library is funded primarily with property tax revenues
that are restricted solely to support of the Library and
this now produces approximately $5.7 million in revenue
annually. In addition, its share of the Special District
Augmentation Fund was $1.75 million for 1988-89. Other
sources of income included a State library grant ($440,000
for 1988-89) , Friends of the Library donations and book
fines. Of the $8,708 , 333 total approved budget for 1988-89,
65 percent is allocated for salaries and employee benefits
and 35 percent for services and supplies.
The Library budget has increased in recent years from $5.7
million in 1983-84 to $8.3 million in 1988-89. However,
increases due to inflation in salaries and benefits, higher .
costs for books and materials and the staffing of a new
library in San Ramon have precluded the restoration of
services previously provided by the system.
The Contra Costa County Board of Supervisors has given a low
priority to Library funding. Other services such as law
enforcement, detention facilities, health, welfare and
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public works have been considered to have more compelling
needs when allocating public monies.
6 . Local financial support of the County Library suffers by
comparison with neighboring communities (Exhibit 1) . Of the
Bay Area' s 31 library systems with populations of 20,000 or
more, Contra Costa County ranks 30th in per capita library
spending. Only the City of Benicia puts less money into its
libraries. Average per capita support for all California
county and local libraries is $14.78 for 1988-89; Contra
Costa County provides only $11.79 per capita. Ricimond, the
only city-run library in the County, provides 520 .28 per
capita for its library. All other Bay Area counties fund
their libraries at a higher level than does Contra Costa
County and some; including Alameda, Santa Clara, San
Francisco and San Mateo, allocate more than twice the
amount.
Contra Costa County is penalized when annual allocations are
made from the State Library Fund because of its failure to
provide an adequate level of funding for its libraries.
Library systems that meet or exceed the State average in per
capita support ($14.78) receive 100' percent in matching
funds. Because of its less than average support, Contra
Costa County' s .share of State monies will be reduced by 20
. percent for 1988-89 . Of the 31 aforementioned library
systems (Exhibit 1) Contra Costa County was among only seven
that failed to meet the 100 percent funding level.
7. Severe cutbacks in Library services and a moratorium on
needed expansion have had to be made as a result of County
budget limitations. An inspection of all branches by grand
jurors verified what the library administration has been
reporting. Major issues and concerns in the delivery of
library services include:
a. Most libraries have inadequate space. All but four of
the library buildings fall short of the standard amount
in floor space for the population served.
b. The operating hours of the Central and branch libraries
have been severely reduced (Exhibit 2) . Open hours for
branch libraries, now 40 hours per week, were 60 hours
in 1978. Ten years ago libraries were available to the
community both during the day and evening four days a
week and during the day on Friday and Saturday. Now a
typical schedule of hours has branch libraries open
Monday and Tuesday from 12 to 8 p.m. , Wednesday and
Thursday from 10 a.m. to 6 p.m. , and Friday and
Saturday from 1 to 5 p.m.
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a
C. Concurrent with the curtailment of library hours, major
staff reductions were made, especially in the nu:-aber of
personnel assigned to branch libraries. Many full time
assignments in Library Aide and Library Clerk positions
were reduced to half-time. The total Library system
staff has dropped from 191. 6 full time equivalent
positions to 146 .15 in a ten-year period (Exhibit 2) .
d. Personnel cuts have limited the ability of libraries to
give attention to coordinating the use of library
services with school personnel. Branch library staffs
have had to reduce community-related and children's and
youth activities . In addition, special programs such
as the popular Poetry Contest for Young Adults in
Concord will no longer be under Library sponsorship.
e. Libraries have inadequate collections of books and
materials. Branch librarians expressed concern about
their inability to acquire multiple copies of books in
great demand, specialized volumes and materials and
collections for certain populations, large print books
and adult basic education materials. The Library owns
about 1.6 volumes per capita, - low for a county of
Contra Costa's size. In the United States, for librar-
ies serving between 500,000 and 1,000,000 people, the
median number is 2 . 0 volumes per capita.
f. The County' s library facilities are poorly maintained.
While there are exceptions, regular custodial service
is inadequate and maintenance and repair is slow in
being performed and is often deferred for long periods.
It is not unusual for professional librarians to
perform janitorial work, including window washing and
toilet cleaning, to make facilities presentable to the
public. Saturday is the busiest day at many branches
and by the end of that day there is evident need for
cleaning before the library can again be ready for
business. However, the libraries open. on Monday with
floors, windows and restrooms in dire need of service
which is not provided until Monday evening. It is the
grand. jury' s observation that library buildings are
serviced at a lower standard of cleanliness and mainte-
nance than is found in most other County and city
public facilities. At some libraries, there are
windows that have not been washed for several years.
Upon visiting some libraries, grand jurors found that
it had been ten years since a complete window-washing
had been accomplished!
8. The cleaning and maintenance of libraries is provided by the
General Services Department of the County government and
paid for from the Library budget. The County library
administration maintains that these services may be obtained
at a lesser cost by contracting with other providers.
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a
Because of limitations imposed by State law, the library
system, as a county agency is precluded from contracting
with private firms for maintenance services. However, it is
permissible to contract with other government agencies for
cleaning and maintenance and this is now being done by
arrangement with some cities. For example, the Library
reimburses the cities of Brentwood and San Ramon for custod-
ial and related services at the Brentwood and San Ramon
Libraries. These facilities are being maintained at a
savings to the County and the branch library staf:Es have
praised the prompt and efficient manner in which the work is
accomplished. Unfortunately, the majority of branch librar-
ies are still being serviced by County General Services.
9. The Library has moved into the world of automation. A
computerized information system, which has been installed at
the Central Library and is being installed at the branches,
provides catalog and circulation information. The system
consists of a number of "user friendly" work stations
(monitor with key board) at each branch for the librarians
and patrons. These stations are linked by telephone line to
the main data base at the Central Library.
The system's catalog retrieval component is replacing
microfilm readers. It rapidly searches the catalog data
base for items that meet user criteria such as subject,
author or "key word" and displays this information on the
monitor.
The capabilities of the system' s circulation component
include quick and efficient check-in and check-out of
material, prompt location of books and materials in the
Contra Costa County and some Alameda County libraries to
indicate their availability, expediting book reservations
and efficient computing and recording of fines. To imple-
ment this component, bar-codes are being placed on more than
a million books along with the issuance of compatible
library cards.
The configuration of the computerized information system, as
it is being installed in Contra Costa County libraries, does
not include printers that could be used by either librarians
or patrons to provide printed copies of information dis-
played on work station monitors.
10. An electronic security system, such as the one at Central
Library which controls the theft of books, has not been
installed in any of the branches.
11. There is increasing evidence that local communities are
being roused to restore as well as upgrade library services.
The new branch library in San Ramon was built with local
funding and the Town of Danville has plans underway to
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replace its present facility with a larger library. Concord
has appointed a task force aimed at building what would
become Contra Costa County' s largest and most comprehensive
library. One charge to this task force is to seek a State
grant to build a new branch library. The grant money would
come from funds authorized by the recently enacted Library
Construction Bond Act (Proposition 85) . If approved, the
grant could provide up to 65 percent of the $8 million cost
of the new facility. Concord' s interest in this project was
spurred by the efforts of the Alliance for Better Libraries,
a group that is convinced of the need for improved library
services.
Although cities may provide for the construction of new
facilities, there still remains the unresolved matter of
funding for on-going operations. The expectation by the
cities is that the County will provide the monies to staff
and equip the libraries; this assumption may be unrealistic
in view of demands with higher priorities being placed on
the County budget.
12. The potential for acquiring adequate funding, both public
and private, in city jurisdictions is - greater than is to be
found in county government. In addition, community pride
and needs at the local level can be appealing factors in
generating support for adequate funding of public services.
Cities can initiate redevelopment projects that could
include upgrading and building public facilities and
libraries. The resulting incremental tax revenue from the
private sector of these projects would be available to
augment operating costs.
That local support can be generated for public services is
evidenced by the many impressive buildings (city halls,
police stations, etc. ) and other facilities (parks, swimming
pools, recreation and art centers, etc. ) that have resulted
from the local initiatives of cities and special purpose
districts. In fact, in many cities, the branch libraries
pale by comparison with adjacent substantial and well-
maintained city structures.
13 . In its inspection of library facilities, the grand jury
found that the branch libraries are staffed by librarians of
the highest professional caliber who are doing an excellent
job in spite of the many limitations imposed on them by
funding cutbacks.
The grand jury also found that there is a measure of dis-
satisfaction with the central administration of the Library.
The branch librarians ' concerns include:
a. Limitations on their ability to participate in the
decision-making process with regard to:
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+ budget allocations
o book selection
♦ personnel assignments
b. A lack of administrative support.
C. The infrequency of central administration personnel' s
presence in the branch libraries .
d. A desire to have a greater share in funds budgeted for
professional conferences; the County Librarian and
Assistant Head Librarian are currently the chief
recipients of these funds.
14. A branch librarian is responsible for the administration and
operation of a branch library. The job description for the
branch librarian calls for such management/supervisory
duties as training and scheduling of staff, work assignments
and other major responsibilities. However, branch librar-
ians are limited in their ability to assume a true profes-
sional management role inasmuch as they have opted to be
members of the same union bargaining unit that represents
the aides they are supposed to supervise.
15. Full time and part-time library clerks are employed at each
of the branches. The County Personnel Office' s educational
requirements for this position do not require a high- school
diploma or its equivalent to qualify for this assignment in
a County library.
16. Residents of Contra Costa County do not have equal access to
the public library facilities for . which they provide
financial support. Some communities have little or no
library services available and citizens must travel many
miles to avail themselves of a public library. This dispar-
ity is apparent when comparing communities of approximately
like populations. Oakley, population 14,000, has a very
small facility at the rear of a Sheriff' s sub-station and
maintains a meager collection. Hercules, with a comparable
population, has no library at all. On the other hand,
Moraga, only slightly larger than each of the two afore-
mentioned communities, has a modern, commodious facility.
This inequality can be attributed in the main to the
County's inability to add libraries in rapidly expanding
population areas. However, some of the communities have
been in existence long enough to mobilize support for local
financing for new library construction as has happened in
San Ramon.
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CONCLUSIONS
The 1988-89 Contra Ccsta County grand jury concludes
1. The Contra Costa County Library is woefully inadequate in
its ability to deliver library services in a county with a
population nearing 800,000. With few exceptions, there are
serious deficiencies in size and comprehensiveness of
collections, hogs of operation, number of personnel,
children' s and other specialized services and building
maintenance. T-nis lack of ability to maintain adequate
levels of service has led to a degree of disillusionment
with public li =aries. As stated by a consultor^t for the
proposed new Concord library, "Concord residents don' t use
the library much . because they have been disappointed too
often."
2. The prime factor in the deterioration of the Library is its
failure to compete against higher priority County expendi-
tures in the allocation of County funds in the years since
the passage of Proposition 13 . The fact is that the Library
is among the least funded in the State (Exhibit 1) . Further
compounding the problem is a lack of available funds to
provide buildings and services in the rapidly expanding
population areas of the County.
3 . In spite of greatly reduced funding, the Library has been
able to retain a cadre of highly professional and competent
staff members, especially at the branch library level.
These individuals have been able to "keep the store open"
and provide reduced services under trying conditions.
4. If the Library is to be restored to its f ormer level of
service and brought up to optimum standards, new sources of
income will have to be found. In the judgment of the grand
jury, it is unrealistic to expect that additional funds can
be extracted from the County budget or from additional State
allocations. Funding for maintenance and expansion of
library services will have to be sought from the cities and
local communities of Contra Costa County.
5. A joint effort should be made by the County and city govern-
ments to find solutions to the problem of providing adequate
library services and planning for new facilities in high-
growth areas. There is no formal mechanism to accomplish
this task. County and city governments have utilized
commissions and task forces to study, deliberate and make
recommendations on policy decisions as they relate to many
public services (planning, police, traffic, recreation,
solid waste, etc. ) . No such arrangement exists for the
Library.
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6. There are some a_parent alternatives to be considered to
improve Library =unding. These include:
a. A voter-ap_rcved tax increase to augment t County-
wide library tax fund. This approach, to be success-
ful, would have to overcome voter resistace to in-
creased taxation and compete with other d=emands to
improve public services that are regarded =_s having
higher and more immediate priorities suc= as law
enforcement, drugs, social welfare and roads. in this
arrangement, the existing library system cou_ continue
in its present form and funding would remain a County
responsibi'iter.
b. An arrangement similar to that in which four cities are
now contrac�ing with the Sheriff ' s Depar`-nent for
police services. This :could preserve the advantage of
participating in a central library system wh_le allow-
ing cities to negotiate for the level of services
determined to be appropriate and affordable for their
particular community.
C. A sharing by cities in the cost of library operation.
This proposal assumes that the County would maintain
its present level of funding. Additional resources
necessary for upgrading, expansion and operation of
libraries would be provided by the cities and com-
munities in which the branches are _ locate. To be
successful, this proposal should involve a "trade-off."
If the cities agree to partially fund library opera-
tions, the County Library should relinquish a measure
of control and authority to the cities in the manage-
ment of local branches. The cities would then partici-
pate in making decisions relating to personnel
selection, program and budget priorities, maintenance
standards, etc. The Library would continue those
services that can be most effectively and efficiently
provided by a centralized operation.
The grand jury recognizes there are other alterna-ives that
can be examined. Whatever proposal is adopted, it should be
the product of intensive study and negotiations by a
commission or task force that is representative of all
cities, communities and the Library.
7 . Branch librarians must be allowed a greater degree of
participation in decisions affecting the branches in keeping
with their roles as professionals and managers cf a major
community organization.
8. If branch librarians are to assume full management responsi-
bilities, they cannot continue as members of the same union
bargaining unit that represents the employees they super-
vise.
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9 . The absence of a high school, diploma or its equivalent as a
job requirement fcr the position of library clerk is not an
acceptable employment standard.
10. The disparity in citizen access to library facil_ties must
be addressed. Regardless of the current lack of avail-
ability of furs, long range plans need to be made that
would assure ccrmunities of the intent to provide all County
residents with equal access to public libraries.
11. Although the Co.:nty Library is to be commended for instal-
ling the computerized information system for both cataloging
and circulation, it was shortsighted for not providing
printers for each library. A person now using the system
has the capability of retrieving vast quantities of infor-
mation in a matter of seconds, yet if he/she wishes to have
a permanent record of this information, it must be labori-
ously transcribed from the monitor. Such a process is not
only subject to errors, but it can be extremely time-
consuming thereby effectively denying use of a work station
to another patron. The installation of one or more rel-
atively inexpensive printers at each library would be cost
effective because the time spent at the work stations would
decrease and result in the need for fewer, relatively
expensive work stations.
12. Most libraries are poorly maintained and custodial care is
inadequate, especially in those facilities whose- responsi-
bility for care rests with County General Services. It is
clear that more efficient, timely and less expensive service
is available when the library system contracts with a city
to provide for this work.
RECON MENDATI ONS
The 1988-89 Contra Costa County grand jury recommends:
1. The Board of Supervisors and city and town councils, except
Richmond which maintains its own library, give a high
priority to improving and expanding library services in the
County.
2. City and/or town councils establish City Library Commissions
consisting of persons with a strong commitment to public
libraries. Communities in the unincorporated areas of the
County should form similar commissions or committees.
3 . The Board of Supervisors establish a County Library Com-
mission which consists primarily of representatives of local
library commissions or committees. This commission would
serve as the lead agency in coordinating a County-wide
program to improve library services.
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L
4. Charges to the library commissions or committees _n_ c_ude as
a first priority the development of proposals for es-:ablish-
ing a stable and adec ate funding level for librar in the
County. These groups shall also serve in an advisory
capacity to their respective local legislative bodies on
matters of library policy.
5. The Board of Supervisors and city and town councils give
serious consideration to a library funding arrancenent that
maintains current County funding levels and calls for
financial suppc=- from cities on the condition what the
cities will assume a measure of local control and authority
over branch librar_es.
6 . The County Librarian review the relationship between branch
librarians and central administration for the sur-ose of
allowing the branch librarians to maximize their rale as key
members of a professional management team.
7 . Branch librarians initiate action to separate themselves
from their present union bargaining unit and, if desired,
affiliate with a unit representing managers cr form a
separate unit.
8. The County Librarian insist that the position cf Library
Clerk requires a high school diploma or its equivalent.
9. The County Librarian include as an early priority the
development of long range plans for library services in the
areas of the County with a growing population.
10 . The County Librarian have printers installed as part of the
computerized information system at each library. Ideally,
this would include one printer for the library staff- and one
or more printers for the work stations, but it is possible
that one printer could serve the needs of all work stations
within a library.
11. The County Librarian install electronic security systems for
book check-out at all branch libraries.
12. The County Librarian, the Director of General Services and
the County Administrator make themselves fully aware of the
inadequate custodial services in libraries and take correct-
ive action to provide an improved and uniform standard of
cleanliness at least comparable to that which is maintained
in most other public buildings in the County.
13 . The County contract with cities for custodial and mainte-
nance services when savings can be achieved.
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V EXHIBIT 1
PER CAPITA FUNDING OF
BAY AREA LIBRARIES SERVING POPULATIONS OVER 20,000*
1988-1989
1. Palo Alto $55.73
2 . Redwood City 42.82
3 . Burlingame 38.29
4. Berkeley 35 .80
5 . Mountain View 32. 82
6 . San Mateo County 30. 01
7 . Los Gatos 29. 30
8. Santa Clara County 28. 99
9. Sunnyvale 28.47
10 . Alameda County 26. 38
11. Menlo Park 26.05
12. Santa Clara City 24.30
13 . San Francisco 23. 61
14. San Leandro 23 .04
15. San Mateo City 22.52
16 . San Jose 21.43
17. South San Francisco 21. 43
18. Richmond 20.28
19 . San Bruno 19.71
20. Marin County 19.28
21. Livermore 17.94
22. Hayward 17.74
23 . Oakland 17.16
24. Napa 16. 24
25. San Rafael 14. 51
26. Solano County 14.46
27. Alameda City 13 .34
28. Daly City 12.90
29. Sonoma County 12.44
30. CONTRA COSTA COUNTY 11.79
31. Benicia 8.70
* Compiled from "PUBLIC LIBRARY FUND PAYMENTS, GOVERNORS BUDGET
ESTIMATE, FY 1989/90" dated 3/14/89 and prepared by the
California State Library, Sacramento, California.
The per capita amounts are based on LOCAL support and do not in-
clude allocations from the state library fund. Average per
capita support for all California county and local libraries is
Itl n 7R fes,- 1 OPP-90
2
C. -. tra Ccsta Cocm. tJ L4-Or= SYs=�:
CC2T 1 .-, v� SZ�_1S=1CS
C�CL'L-1_1ON FOS i HONS G 1-- ~� N:
r L CL.(�:Al, Gig ,C1.LJ
1=74/75 513,6CO 21859,883 208 192.6 72 60
_;75/76 S1E800 3,Oi2,202 208 192.6 69 E0
1;76/77 5 �,7C0 3,060,278 214 192.6 69 60
1977/78 5'-=;190 3,1452559 214 191.6 69 EO
78/79 970 3,015,286 208 185.1 69 50
1979/80 574,SCO 2,986,812 194 172.1 60 53
1c80/81 5902500 310102631 187 164.6 60 53
1981/82 590,300 219852867 164 134.1 60 40
1982/83 60526CO 310931783 164 134.1 60 40
1983/84 610,900 31133,437 164 134.7 60 40
1984/85 626,500 321567795 166 137.85 60 40
1_985/86 64514CO 37176,413 165 136.85 60 40
1986/87 6352800 321302649 165 137.55 60 40
1987/88 672,000 310457218 167 140.15 60 40
current 174 146.15 60 40
* Excludes LSA' s (Library Student Assistants)
Data com_iled by t],he Contra Costa County Library, May 1989.
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