Table Of ContentDOCUMENT RESUME
ED 450 810 IR 058 084
AUTHOR McClure, Charles R.; Eppes, Francis; Bordonaro, Gaelynn
Wolf; Smith, Bruce
Creating Stability and Equity in Michigan Public Libraries:
TITLE
Ending the Crisis.
INSTITUTION Florida State Univ., Tallahassee.
PUB DATE
2001-01-00
262p.; With the assistance of Denise Kleinman, Bruce T.
NOTE
Fraser, and John Carlo Bertot. "Final report to the Michigan
Public Library Funding Initiative Group (PLFIG), Kalamazoo,
Michigan."
PUB TYPE
Evaluative (142)
Reports
EDRS PRICE
MF01/PC11 Plus Postage.
DESCRIPTORS
Library Development; *Library Funding; Library Planning;
*Library Statistics; *Public Libraries; State Action; *State
Aid; State Programs; Statewide Planning; *Strategic Planning
IDENTIFIERS
*Michigan
ABSTRACT
There is significant inequality in funding public libraries
in Michigan, and there is every likelihood that there will be increased
instability in that funding if action is not taken immediately. The
objectives of this study included the following: provide an analysis of how
public libraries in Michigan are currently funded; identify current threats
to revenue streams and comment as appropriate; conduct a policy analysis of
existing statewide laws affecting the funding of Michigan public libraries;
describe the funding relationships between library cooperatives and public
libraries and how such funding relationships might evolve in the future;
provide a means of dealing with covering the cost of inflation when
considering any funding formula for public libraries and cooperatives;
identify existing funding models in other states that could be adapted to
Michigan; and initially, develop a strategy to gain the support of public
libraries throughout the state and subsequently, the state legislature for
the recommended funding model. The overall goal of the study was to recommend
possible approaches for addressing the specific funding problems identified
through the research and outline a strategy for the systemic implementation
of potential solutions. Findings suggest that there is considerable support
for a combined short-term and long-term strategic effort. Public libraries in
Michigan need immediate and significant relief as soon as possible, but they
also need a long-term strategy to address a range of legal/statutory
problems. Chapters are: (2) The Current Context of Michigan
(1) Introduction;
(3) Examining Peer State Public Library Funding;
Public Library Funding;
(4)
Michigan Law Summary;
(5) Survey Data Analysis;
(6) Site Visits; and (7)
Developing a Strategic Plan for Equitable and Stable Public Library Funding.
Appendices include: funding issues report; Finance Study Committee Report to
PLFIG; Valuation of a Mill Across Michigan table; Public Library Reliance on
Voted Millage table; Penal Fine Reliance (1999) table; Michigan Cooperative
Library Survey; and Finance Study Committee Report. Twenty-eight tables,
figures, and charts are included throughout the text.
(AEF)
Reproductions supplied by EDRS are the best that can be made
from the original document.
CREATING STABILITY AND EQUITY IN
MICHIGAN PUBLIC LIBRARIES:
ENDING THE CRISIS
Final Report to the
Michigan Public Library Funding Initiative Group (PLFIG)
Kalamazoo, Michigan
By
Charles it McClure, [email protected]
Francis Eppes Professor and Director
Gaelynn Wolf Bordonaro, Research Assistant
Bruce Smith, Research Assistant
And with the Assistance of
Denise Kleinman, Research Assistant
Bruce T. Fraser, Assistant Director
John Carlo Bertot, Associate Director
Information Use Management and Policy Institute
School of Information Studies
Louis Shores Building, Room 226
Florida State University
Tallahassee, Florida 32306-2100
850-645-3328
January 2001
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Table of Contents
FSU Information Institute
Table of Contents
Chapter
Page
Number
Title
Number
LIST OF TABLES
x
LIST OF CHARTS
x
LIST OF FIGURES
xi
EXECUTIVE SUMMARY
xii
THE CRISIS IN MICHIGAN PUBLIC LIBRARY
FUNDING
xii
STUDY OBJECTIVES
xi
OVERVIEW OF STUDY METHOD
xii
SELECTED KEY FINDINGS
xii
ENDING THE CRISIS: SHORT-TERM
AND LONG-TERM INITIATIVES
xiv
THE SHORT-TERM STRATEGY
xiv
THE LONG-TERM STRATEGY
xvi
SPECIFIC LONG-TERM RECOMMENDATIONS
xvi
END THE CRISIS
xvii
I
CHAPTER ONE: INTRODUCTION
1-1
THE CRISIS IN MICHIGAN PUBLIC
LIBRARY FUNDING
1-1
MICHIGAN PUBLIC LIBRARY
FUNDING BACKGROUND
1-2
IMPEDIMENTS TO STABLE AND EQUAL
FUNDING IN MICHIGAN
1-3
EXPLORING POSSIBLE FUNDING ALTERNATIVES
1-4
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BACKGROUND OF THE STUDY
1 -6
STUDY OBJECTIVES
1 -7
PROJECT PARTICIPANTS
1 -7
METHODOLOGY
1 -8
PLFIG INVOLVEMENT IN THE STUDY
1 -9
IMPROVING PUBLIC LIBRARY FUNDING
IN MICHIGAN
1 -10
II
CHAPTER TWO: THE CURRENT CONTEXT OF MICHIGAN
PUBLIC LIBRARY FUNDING
2-1
INTRODUCTION
2 -1
CURRENT CONTEXT OF FUNDING FOR
MICHIGAN PUBLIC LIBRARIES
2-1
THE LIBRARY OF MICHIGAN
2-1
MICHIGAN STATE FUNDING OF
PUBLIC LIBRARIES
2-2
DIRECT AID
2-2
INDIRECT STATE AID
2-4
LIBRARY COOPERATIVE STATE AID
2-4
ADDITIONAL STATE SUPPORT
2-5
LOCAL SUPPORT
2-5
LOCAL MILLAGE
2-5
APPROPRIATIONS
2-7
DISTRICT LIBRARIES
2-7
PENAL FINES
2-8
HOW DOES PENAL FINE FUNDING WORK?
2-8
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PUBLIC LIBRARY DEPENDENCY ON
PENAL FINES
2-9
INEQUITIES AND INSTABILITIES
2-9
SUMMATION OF THE CONTEXT OF
MICHIGAN PUBLIC LIBRARY FUNDING
2-10
III
CHAPTER THREE: EXAMINING PEER STATE PUBLIC
LIBRARY FUNDING
3-1
EXAMINING PEER STATE FUNDING MODELS
3-1
THE FLORIDA MODEL
3-1
EVALUATING THE FLORIDA MODEL
3-3
THE OHIO MODEL
3-4
ADDITIONAL FACTORS IN THE OHIO MODEL
3-6
EVALUATING THE OHIO MODEL
3-6
THE PENNSYLVANIA MODEL
3-9
POSITIVE IMPACTS OF STATE AID INCREASES
3-13
EVALUATING THE PENNSYLVANIA MODEL
3-13
OVERVIEW
3-15
IV
CHAPTER FOUR: MICHIGAN LAW SUMMARY
4-1
INTRODUCTION
4-1
LEGAL ESTABLISHMENT OF PUBLIC LIBRARIES
4-1
PENAL FINES AS REVENUE FOR
PUBLIC LIBRARIES
4-3
SOURCES OF PENAL FINE REVENUE
4-3
DISTRIBUTION OF PENAL FINE REVENUE
4-4
LOCAL SUPPORT
4-4
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CONTRACTUAL AREAS
4-5
STATE AID FOR PUBLIC LIBRARIES
4-5
PUBLIC LIBRARY INCOME PER CAPITA
4-6
INDIRECT OR "SWING AID"
4-6
LIMITS ON REVENUE AND TAXES
4-7
LOCAL SUPPORT FOR PUBLIC LIBRARIES
4-7
LIMITS ON REVENUE AND TAXES
4-8
MUNICIPAL FINANCE REFORM/ECONOMIC
DEVELOPMENT LAWS
4-8
TAX INCREMENT FUNDING AUTHORITIES
4-9
BROWNFLELD AUTHORITIES
4-10
ENTERPRISE ZONE FACILITY
4-10
INDUSTRIAL PROPERTY TAX ABATEMENTS
4-10
NEIGHBORHOOD ENTERPRISE ZONES
4-10
PERSONAL PROPERTY DEPRECIATION
SCHEDULES
4-10
TECHNOLOGY PARK FACILITIES
4-11
OTHER LAWS PERTAINING TO PUBLIC
LIBRARIES
4-11
PRELIMINARY CONCLUSIONS AND
RECOMMENDATIONS
4-11
ADDENDUM 1: MICHIGAN LAWS PERTAINING
TO PUBLIC LIBRARIES
4-13
ADDENDUM II: CATEGORIES OF LEGAL LIBRARY
ESTABLISHMENT
4-15
V
CHAPTER FIVE: SURVEY DATA ANALYSIS
5-1
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INTRODUCTION
5-1
SURVEY SECTION ONE: LIBRARY INFORMATION
5-1
SURVEY SECTION TWO: FUNDING
5-2
SURVEY SECTION THREE: PENAL FINES
5-11
SURVEY SECTION FOUR: COOPERATIVE
LIBRARY MEMBERSHIP
5-13
SURVEY SECTION FIVE: RECOMMENDATIONS
AND ADDITIONAL RESPONSES
5-17
INEQUITABLE AND UNSTABLE FUNDING
5-20
ADDENDUM I: MICHIGAN PUBLIC LIBRARY
DIRECTOR SURVEY
5-22
ADDENDUM II: PLFIG DIRECTOR SURVEY
COVER LETTER
5-27
ADDENDUM DI: MICHIGAN PUBLIC LIBRARY
DIRECTOR SURVEY GLOSSARY OF TERMS
5-29
ADDENDUM IV: MICHIGAN PUBLIC LIBRARY
DIRECTOR SURVEY INSTRUCTION SHEET
5-31
ADDENDUM V: PERCENTAGE OF SOURCE
REVENUE BY CLASS
5-36
ADDENDUM VI: "OTHER" SOURCES OF FUNDING
FOR MICHIGAN'S PUBLIC LIBRARIES
5-38
ADDENDUM VII: FUNDING IMPORTANCE
BY CLASS
5-41
ADDENDUM VDT: PERCEIVED STABILITY OF
FUNDING SOURCE BY CLASS
5-43
ADDENDUM IX: OVERALL PERCEPTION OF
FUNDING SOURCE EQUITY
5-45
ADDENDUM X: PERCEIVED EQUITY OF
FUNDING SOURCE BY CLASS
5-47
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ADDENDUM XI: PERCEIVED THREATS TO
LIBRARY FUNDING FROM TAX LEVIES OVERALL
5-49
ADDENDUM XII: PERCEIVED THREAT FROM
TAX LEVY EXEMPTIONS BY CLASS
5-51
ADDENDUM XIII: OTHER PERCEIVED
THREATS TO LIBRARY FUNDING
5-54
ADDENDUM XIV: SUGGESTIONS FOR
IMPROVED DISTRIBUTION OF SWING AID
5-56
ADDENDUM XV: PERCEPTIONS OF THE
CURRENT ROLES OF COOPERATIVES
5-58
ADDENDUM XVI: PERCEPTIONS OF THE
FUTURE ROLES OF COOPERATIVES
5-60
ADDENDUM XVII: PERCEPTIONS OF THE
ROLES OF REGIONS OF COOPERATION
5-62
ADDENDUM XVIII: RECOMMENDATIONS FOR
IMPROVING THE STABILITY AND EQUITY OF
FUNDING FOR MICHIGAN PUBLIC LIBRARIES
5-66
VI
CHAPTER SIX: SITE VISITS
6-1
OVERVIEW
6-1
BACKGROUND AND METHODOLOGY
6-1
INTERVIEWS AND FOCUS GROUPS: MAJOR
THEMES AND SELECTED REMARKS
6-3
FACTORS INFLUENCING EXISTING FUNDING
STRUCTURES
6-4
POLITICAL WRANGLING
6-4
CONTRACTUAL LIBRARY SERVICE AREAS
6-4
STATE AID
6-5
COOPERATIVES
6-5
LEGISLATIVE CLIMATE
6-6
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TAX ABATEMENTS
6-7
THE ROLE OF THE LIBRARY OF MICHIGAN
6-7
BASIC ISSUES REQUIRING ATTENTION
6-8
LEADERSHIP
6-8
VISION
6-10
EDUCATION
6-10
PROMOTION OF PUBLIC LIBRARIES
6-11
COMPLACENCY
6-11
ACCOUNTABILITY
6-12
HEARINGS: MAJOR THEMES AND SELECTED
REMARKS
6-13
NEED FOR EDUCATION AND PROMOTION
6-13
THE NEED TO IMPROVE LOBBYING EFFORTS
6-14
STATE AID
6-14
PENAL FINES
6-15
DETROIT PUBLIC LIBRARY
6-15
ADDITIONAL COMMENTS AND
RECOMMENDATIONS
6-16
POSSIBLE SOLUTIONS
6-17
SHORT-TERM: ENHANCE STATEWIDE
LIBRARY PROGRAMS AND SERVICES
6-17
LONG-TERM: OMNIBUS PUBLIC LIBRARY
REORGANIZATION ACT
6-18
PRESENTATION OF PRELIMINARY FINDINGS
6-18
INCREASING KNOWLEDGE AND AWARENESS
6-18
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ADDENDUM I: OPEN HEARING ON PUBLIC LIBRARY
FUNDING IN MICHIGAN
6-20
VII
CHAPTER SEVEN: DEVELOPING A STRATEGIC
PLAN FOR EQUITABLE AND STABLE PUBLIC
LIBRARY FUNDING
7-1
BACKGROUND
7-1
PRINCIPLES FOR DEVELOPING A PLAN
7-1
VISION, GOALS AND OBJECTIVES
7-2
PROPOSED VISION STATEMENT
7-2
PROPOSED GOALS AND OBJECTIVES
7-2
SHORT-TERM STRATEGY
7-4
STEP 1: CLARIFY LEADERSHIP FOR THE
STRATEGIC PLAN
7-4
STEP 2: BEGIN A STATEWIDE EDUCATION
AND AWARENESS PROGRAM
7-4
STEP 3: AGREE TO AGREE, AND AGREE TO
DISAGREE, IF YOU CAN'T AGREE
7-5
THE MICHIGAN PUBLIC LIBRARY TECHNOLOGY
INFRASTRUCTURE ENHANCEMENT INITIATIVE
7-6
LONG-TERM STRATEGY: OMNIBUS PUBLIC
LIBRARY REORGANIZATION ACT
7-11
PRINCIPLES FOR REORGANIZING PUBLIC LAW
7-11
SOME SPECIFIC RECOMMENDATIONS
7-13
CRITICAL SUCCESS FACTORS FOR
IMPLEMENTING THE STRATEGIC PLAN OUTLINE
7-18
ADDRESSING THE CRISIS
7-19
REFERENCES
R-1
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