Report on the Jefferson-Madison Regional Library

Transcription

1 County of Albemarle Report on the Jefferson-Madison Regional Library Prepared for the Albemarle County Board of Supervisors Author: Roxanne W. White 12/23/2010

2 TABLE OF CONTENTS Page Number I. Study Overview. 2 II. Background and Timeline 2 III. Library Authority and Organizational Structure... 3 IV. JMRL Regional Agreement.. 4 V. Organizational and Funding Structure for Comparison Seven Counties 9 VI. JMRL Services and Programs...12 VII. Library System Efficiency.. 19 VIII. JMRL Library Expenditures IX. State Aid to Libraries X. State Library Board Standards XI. Major Study Findings XII. Recommendations XIII. Appendix Report on Jefferson-Madison Regional Library Page 1 January, 2011

3 Report on the Jefferson-Madison Regional Library Study Overview Following the FY11 Budget work sessions and discussions with the JMRL Library Board, the Board of Supervisors charged its staff to prepare a report that would help Board members better understand the County s position in the regional library system, as well as determine if a regional system was more effective and efficient than a library system implemented and maintained solely by the County. The Board asked that the report provide the following: an understanding of the current cost structure and service levels, federal state and local mandates, existing contractual obligations, CIP impacts and a comparison of peer community libraries for services and costs. This report attempts to address these areas of interest by presenting detailed information on the current regional system, both services and costs, as well as comparative information from seven other library systems, three of which are regional similar to JMRL and four of which are single county libraries. The comparisons cover 6 counties that are often compared to Albemarle, i.e. Roanoke, Stafford, Spotsylvania, Fauquier, Hanover and James City County. An additional two, Chesterfield and Henrico Counties, were added to show additional single county entities, which often are either much larger than Albemarle or much smaller. In addition to comparative data from other localities, the report looks at state aid requirements and how it is calculated, as well as the state Library Board s standards for public libraries. Lastly, the report looks at Albemarle s library space needs and its impact on the County s Capital Improvement Program. Report methodology focused on collecting data from local, state and national library archives and interviewing local library staff, as well as executive staff from comparison localities and libraries. A Source Bibliography and an Appendix are included at the end of the report. Background and Timeline The first public library service, the Albemarle Library Society, was established in 1823 and was located on Court Square in Charlottesville. The library was incorporated by an act of the Virginia General Assembly as the Albemarle Library. In 1919, the local philanthropist, Paul Goodloe McIntire, offered the community a library, which included land, design, building construction, furnishings and the collection of books. Opening to the public in 1921, the McIntire, or the Charlottesville Public Library, became the community s first public municipal library. With the development of bookmobile service to Albemarle County in 1947, the name of the library was changed to the Charlottesville-Albemarle Public Library. In 1958, six years after the death of Mr. McIntire, the main library building and the system itself became known as the McIntire Library. In 1972 with the addition of branches in Scottsville, Crozet, Gordon Avenue, Louisa and Nelson, the Jefferson-Madison Regional Library was created following General Assembly formation of regional public library systems. The Commonwealth provided the establishment of grants and financial incentives for larger, more cost effective units of public library service. Greene County joined the system in Report on Jefferson-Madison Regional Library Page 2 January, 2011

4 In the late 1970 s, Albemarle County and the City purchased the former Post Office and Federal Building on Market Street and renovated the building extensively for regional library headquarters and expanded services, moving the collection from the McIntire Library next door. During this same time period, Scottsville Branch suffered a fire and their current library was opened in In 1979, Louisa County moved into a former Girl Scout building. Crozet Branch moved into a renovated train station in Nelson County built a new branch - a memorial to the victims of Hurricane Camille - in The Northside Branch, in Albemarle Square, was opened in 1991 as a county/city library. In 1999, Louisa County Library moved into a new library building of 15,000 square feet, located between Louisa and Mineral. In 2003, Greene County Library moved into a new library building of 8,000 square feet in Stanardsville. In 1987, the library implemented an automated circulation system and on-line public access catalog and, in 1995, it opened the Monticello Avenue public access computer lab for internet access and a community information service. In 2002, the library upgraded the catalog and circulation system. Today, Jefferson-Madison Regional Library serves a population of 202,121 residents, with nine locations consisting of 1 central library, 7 branch libraries and the Albemarle Historical Collection. The Bookmobile provide services to rural Albemarle County, institutions and, at certain hours each month, in Charlottesville and Louisa. With combined holdings of over 500,000 items, the library circulates over 1,600,000 items annually. Library Authority and Organizational Structure The current regional library system is organized under the Code of Virginia , Two or more political subdivisions, (counties or cities), by action of their governing bodies, may join in establishing and maintaining a regional free library system under the terms of a contract between such political subdivisions; provided, that in the case of established county or city free library systems, the library boards shall agree to such action. (1970) Library Board Authority Also according to state code The management and control of a free public library system shall be vested in a board of not less than five members or trustees. They shall be appointed by the governing body, chosen from the citizens at large with reference to their fitness for such office. Code language further states that If the board of the regional library is composed of two or more members from each county, city and town that is a part hereof, then each governing body represented on the board may appoint a member or an employee of the governing body to the board. The code includes language on the length of terms (4 years), filling vacancies, compensation (none) and removal of a board member for misconduct or neglect of duty. The code gives the Board authority to adopt such bylaws, rules and regulations for their own guidance and for the government of the free public library system as may be expedient. They shall have control of the expenditures of all moneys credited to the library fund. The board shall have the right to accept donations and bequests of money, personal property, or real estate for the establishment and maintenance of such free public library systems or endowments for same. Report on Jefferson-Madison Regional Library Page 3 January, 2011

5 The code further stipulates that The formation, creation or continued existence of boards shall in nowise be considered or construed in any manner as mandatory upon any city or town with a manager, or upon any county with a county manager, county executive, urban county manager or urban county executive form of government or the Counties of Chesterfield and Shenandoah, by virtue of this chapter. (1970, c. 606; 1978, c. 6; 2002, c. 111.) Funds and expenses of the regional library system. The expenses of the regional library system shall be apportioned among the participating political subdivisions on such basis as shall be agreed upon in the contract. The treasurer of the regional library board shall have the custody of the funds of the regional free library system; and the treasurers or other financial officers of the participating jurisdictions shall transfer quarterly to him all moneys collected or appropriated for this purpose in their respective jurisdictions. Such funds shall be expended only for the library service for which the county or city contracted and for no other purpose. The regional library board shall furnish a detailed report of receipts and disbursements of all funds at the regular meeting of the governing body of every participating jurisdiction after the close of the state's fiscal year. It shall make a similar report to The Library of Virginia. (1970, c. 606; 1994, c. 64.) Withdrawal from regional library system. No county or city participating in a regional library system shall withdraw therefrom without two years' notice to the other participating counties and cities without the consent of such other participating political subdivisions. (1970, c. 606.) JMRL Regional Agreement The current regional library operates under a 1991 amended agreement, the original of which was first established in 1972 and amended in 1974 and According to the 1991 agreement Charlottesville and Albemarle have 3 appointed board members (the 1972 agreement had 4 each for Albemarle and Charlottesville), however when Louisa and Nelson joined, the trustees for Charlottesville and Albemarle were reduced to 3 members. Greene, Louisa and Nelson Counties each have one trustee on the Board. Each board member serves a 4 year term. There are several critical areas in the current agreement: (full agreement in Appendix A) Management and control of the Regional Library is vested in the Board The library board shall provide library services on an equitable basis consistent with wishes of the governing bodies of the jurisdictions A cost allocation formula for allocating costs for regional, Charlottesville/Albemarle costs and local costs of branch libraries One locality will be the fiscal agent with a 2% administrative fee for accounting and disbursement of funds, purchasing, payroll and HR functions (the City provides these functions) Report on Jefferson-Madison Regional Library Page 4 January, 2011

6 Personnel shall be on a salary scale determined by the library board (the 1972 agreement required all library employees to be paid equal to city employees, as well as retirement insurance and other benefits) The library must submit a budget by January 15th (1972 agreement had submittal by 12/31 and a joint library committee appointed by the jurisdictions met by Jan 15th and then made a recommendation to the jurisdictions) Termination of agreement allocation of assets determined by a joint committee Understanding the Current Funding Formula in the 1991 agreement There are three major parts to the cost allocation plan: 1. Regional Costs include the costs of providing reference services, financial management, branch coordination and the fair rental value of space required in the Central Library. These regional costs are determined by the Library Board with each jurisdiction paying a percentage of the regional costs equal to its percentage of the Library system s total circulation. The percentages are based on the average of the previous two years. The Reference Costs are determined by actual usage (currently a sample of usage is taken for a month two times a year). Regional Administration and Technical Services Total Cost FY07/08 FY08/09 Average Cost Share Albemarle 58.37% 58.13% 58.25% 1,454, ,232 Charlottesville 19.36% 19.47% 19.42% 1,454, ,386 Greene 8.87% 8.74% 8.81% 1,454, ,067 Louisa 8.12% 7.96% 8.04% 1,454, ,940 Nelson 5.28% 5.70% 5.49% 1,454,475 79,851 Reference Services Survey Total Cost Result Cost Share Albemarle 34.43% 432, ,889 Charlottesville 61.01% 432, ,832 Greene 1.35% 432,441 5,838 Louisa 1.35% 432,441 5,838 Nelson 1.86% 432,441 8,043 Report on Jefferson-Madison Regional Library Page 5 January, 2011

7 2. Charlottesville/Albemarle Costs include all costs of providing both the facilities and the staff that serve the local collections at the Central Library, Gordon Avenue and Northside Branches that serve the citizens of both jurisdictions. The cost of providing this local collection is determined by the Library Board and the costs are allocated between Charlottesville and Albemarle based on their respective shares of the total circulation at Central, Gordon and Northside Branches. The percentage for the next Fiscal Year Budget is determined by taking the average circulation for the prior two years, i.e., the FY11 percentage of costs is projected using the average of the circulation from FY08 and FY09. Albemarle/Charlottesville Shared Costs Total Cost Central FY07/08 FY08/09 Average Cost Share Albemarle 61.27% 60.28% 60.78% 886, ,837 Charlottesville 38.73% 39.72% 39.23% 886, ,772 Gordon Library Albemarle 54.86% 54.95% 54.91% 337, ,544 Charlottesville 45.14% 45.05% 45.10% 337, ,393 Northside Albemarle 85.66% 85.35% 85.51% 1,025, ,568 Charlottesville 14.34% 14.65% 14.50% 1,025, , Local Costs are all the costs of housing the book collections in all branches of the library other than Central, Gordon Avenue and Northside branches, as well as the personnel costs associated with these branch operations. Local Only Branch Libraries Scottsville 159,382 Crozet 228,120 Louisa 204,934 Nelson 158,754 Greene 163,756 Total Albemarle Share by 1991 Agreement 2,984,572 Report on Jefferson-Madison Regional Library Page 6 January, 2011

8 Bookmobile, Books-By-Mail and other extension services are contracted separately by each jurisdiction with terms and conditions that the Board and the contracting jurisdiction find mutually agreeable. These are costs that are not part of the 1991 cost sharing agreement. The Bookmobile costs are shared by the City and the County based on bookmobile circulation. The McIntire Historical Library and Mont-AVV are shared 50/50 by mutual agreement, although no formal agreement is in place for those shared costs. Percent Total Cost Other Program Costs Share Cost Share Bookmobile Albemarle 72.86% 88,791 64,694 Charlottesville 19.37% 88,791 17,197 Louisa 7.77% 88,791 6,900 McIntire Historical Albemarle 50.00% 75,474 37,737 Charlottesville 50.00% 75,474 37,737 Mont-AVV Albemarle 50.00% 172,289 86,145 Charlottesville 50.00% 172,289 86,145 Albemarle Costs for Other Programs 188,576 Total Albemarle Costs for Regional, Shared City/County, Local Branches and Other Programs $ 3,173,148 Allocation of Circulation Costs to JMRL Localities The 1991 Agreement s cost sharing formula is based on total circulation for each locality. However, in practice the formula has been applied unequally causing Albemarle to bear a larger share of circulation costs than the other localities. The major flaw has been how out-of-area circulation has been figured into the calculations. Rather than discounting out-of-area circulation in the allocation formula, the current methodology attributes all the out-of-area circulation to Albemarle County. This practice, according to library staff, has been in place as long as anyone can remember (although the Library Director was unaware of this flaw). At some point, there was an agreement that all out-of-area college students, including UVA, would be credited to Charlottesville and other out-of-area use would be credited to Albemarle. This arrangement may have seemed fair at the time, but UVA students are no longer counted as a separate category and out-of-area circulation now accounts for 10% of the annual circulation. Since the current policy of allocating out-of-area circulation to Albemarle clearly forces Albemarle to pay a greater share at Central and Northside, as well as in the regional distribution of costs, this policy must be changed, particularly when out-of-area users have grown at a rate of 51% since FY08. Report on Jefferson-Madison Regional Library Page 7 January, 2011

9 Chart 1 below shows how this impacted Albemarle s FY09 percentage shares. Chart 1 FY09 Albemarle Circulation and Revised with Out-of-Area FY09 Percent of Out-of Area Revised Revised Percent Circulation Circulation* Circulation Circulation of Circulation Albemarle 861, % 87, , % Charlottesville 317, % 0 317, % Louisa 125, % 4, , % Nelson 89, % 3,075 93, % Greene 137, % 5, , % Total 1,532, % 99,838 1,631, % *Albemarle includes out-of-area at Central, Northside, Gordon, Scottsville, Crozet and Bookmobile Albemarle s actual circulation in FY09 was 861,487 or 56.23% of total circulation among all the jurisdictions. However, when out-of-area circulation of 87,283 is added, Albemarle s share increases to 58.14%, while the other jurisdiction s shares go down. These revised percentages are then used to calculate how future budget costs are allocated. In Chart 2 below, the top line shows Albemarle s actual circulation (without out-of-area) for FY08 and FY09. The average of these two or 56.28% is then used to calculate Albemarle s FY11 share of the regional costs or $818,560. The bottom line shows the impact of adding the out-of-area, which increases Albemarle s percentage share of the FY11 costs to 58.25% or $847,275, a difference of $28,715. Chart 2 Budget Implication of Revised Circulation on Regional Share FY11 Region Albemarle FY08 FY09 Avg Costs Share Albemarle Circulation 56.33% 56.23% 56.28% 1,454, ,560 Albemarle with out-of-area 58.37% 58.14% 58.25% 1,454, ,275 Funding Difference $28,715 This same methodology is also being used to calculate Albemarle s share of Central, Gordon and Northside, which increases Albemarle s share by $25,091, $6,674 and $11,226 respectively for a total increased cost of $71,706. Even if this methodology seemed reasonable in the past, the fact that Albemarle is being charged for the out-of-area users shared by Albemarle and Charlottesville libraries is clearly not a fair method and it should be changed prior to the next budget allocation to reflect Albemarle s true circulation costs. Out-of-Area users have increased dramatically, particularly at Scottsville and Northside. There needs to be a fair way to address this issue without making it difficult for Virginians from other counties to access library services, particularly in the rural areas when the closest library may be in another Report on Jefferson-Madison Regional Library Page 8 January, 2011

10 jurisdiction. This is not just a one-way problem, since JMRL residents also use out-of-area libraries without a charge. A 2006 study showed that there were 4,450 out-of-area users who registered at JMRL, the highest number being from Fluvanna County. However in the same year, 4,510 JMRL residents registered at other libraries outside the region, the highest number being Nelson County residents, who went to Waynesboro or Amherst Counties. Results of the 2006 study can be found in Appendix B. Organizational and Funding Structure for Comparison Seven Localities Of the seven localities being compared throughout this report, four are separate County libraries, i.e. Fauquier, Roanoke, Henrico and Chesterfield and three are part of a larger regional library system, i.e. Spotsylvania and Stafford are part of the Central Rappahannock Regional Library, Hanover County is part of Pamunkey Regional Library and James City County is part of the Williamsburg Regional Library. Fauquier County The Fauquier Library Board is a policy making or decision making board, not an advisory board and is composed of five members, one appointed from each magisterial district. They develop the library budget and make recommendations to the Board of Supervisors. The County has reciprocal agreements with the following counties/cities, which allows anyone from those jurisdictions to apply for a Fauquier County library card: Alexandria, Arlington, Central Rappahannock Regional Library, Culpeper, Fairfax, Handley Regional Library (Winchester, Frederick, and Clarke Counties) Loudoun, Prince William, Falls Church and Rappahannock County. If someone who lives outside one of these jurisdictions applies for a card, they must pay a fee. The county considers this arrangement to be beneficial, because many of their citizens use the Northern Virginia libraries. Fauquier has one central library and three branch libraries for a population of 64,612. Roanoke The Roanoke Library has an advisory only board with the County having sole authority to make policy and budgetary decisions and to treat their library system like a county department. Roanoke County, although they maintain their own separate library system, jointly funds the technology infrastructure and software for a consortium that provides an on-line Inter Library System (ILS) for the County, the City of Roanoke, Botetourt County and the City of Salem. The automated ILS system allows anyone in those localities to reserve books on-line and then pick up and drop off at any library in the system. Each locality pays for this service based on a cost sharing formula based on five factors: circulation, number of items, population, FTE staff and number of branches. Roanoke County s share was 41% last year with an annual cost of $95,000. The City of Roanoke proposed several years ago to set up a regional system, but a contracted study showed no advantages to regionalization, so Roanoke County decided to maintain a separate library system, but to work together with the other localities. Roanoke County has one central library and 5 branch libraries for a population of 90,135. Report on Jefferson-Madison Regional Library Page 9 January, 2011

11 Henrico Henrico has a seven-member advisory board composed of five citizens appointed from each magisterial district, the library director and a county representative. Both the library director and staff representative are non-voting members. As with Roanoke, Fauquier and Chesterfield, the library functions as a department of local government, not as a separate entity. The advisory board is not involved in budget discussions. Henrico has a reciprocal agreement with Chesterfield and Richmond where anyone in those jurisdictions can obtain a Henrico county library card and vice versa. They also have a non-written agreement with Pamunkey Regional Library, which allows their residents with a library card and in good standing to obtain an annual Henrico library card. New Kent County is a big user of the Henrico Library, so Henrico charges a $15 annual fee for each out-of-area user. Chesterfield Chesterfield has its own library system, which functions organizationally as a department of local government. There is no advisory board. Library cards are issued to all Chesterfield residents without charge upon proof of residency. Agreements with many neighboring localities make it possible for Chesterfield citizens to use other area libraries and for neighbors to use Chesterfield libraries at no charge. Chesterfield has an agreement with Richmond for one of their branch libraries that is heavily used by Richmond residents. Richmond helps pay for expansion costs and for services provided to its residents. The County is currently looking at the possibility of incorporating Amelia County into its system due to its small size. The County of Chesterfield provides a range of administrative and operating support to the libraries, i.e. HR, payroll, accounting, legal, purchasing, maintenance, custodial and technology infrastructure. Stafford/Spotsylvania Both Stafford and Spotsylvania Counties are part of the Central Rappahannock Regional Library, which also serves the City of Fredericksburg and Westmorland County. Central Rappahannock has a twelve member governing board based on their most recent 2002 amended agreement. In that agreement, board membership was increased from seven to 12 members, i.e. Stafford increased from 2 members to 4, Spotsylvania from 2 4, Westmorland from 1-2 and Fredericksburg remained at 2 members. Their agreement allows a member of the governing body or employees of the governing body to be on the board. The funding formula for the localities is based on circulation from the prior year. There are 8 libraries and a bookmobile with regional coordination from the Fredericksburg Library. Stafford County has 2 branch libraries and Spotsylvania has 1. Hanover Hanover is part of the Pamunkey Regional Library along with the Counties of Goochland, King and Queen and King William. The library is governed by a ten member Library Board, four trustees from Hanover, two from Goochland, two from King and Queen and two from King William. Appropriations are made to the library in proportion to the population of each County, not on circulation. The agreement also stipulates that the Board of Trustees shall apportion services between the four (4) Counties in proportion to the appropriations made by each County for annual operating expenses. Report on Jefferson-Madison Regional Library Page 10 January, 2011

12 For 2012, the Deputy County Administrator indicated that they are analyzing local contributions versus the cost of services, since the per capita costs for Hanover are high. Some localities are paying less, but are able to pay more. The Pamunkey Regional Library has one main regional library, a bookmobile and 9 branches. The main library and 6 branch libraries are in Hanover. James City County James City County is part of the Williamsburg Regional Library (WRL), which consists of the County and the City of Williamsburg. They have a nine member governing board represented by five trustees from James City County and four from Williamsburg. The Williamsburg Regional Library operates under a contract first signed by the City of Williamsburg and James City County in 1977 which has been amended in 1993, 1999, 2001, and Under the contract, they agree to contribute to the mutual costs of operating the library based on circulation by residency As a legally established regional library, WRL provides free services to residents of its contractual service area, Williamsburg and James City County, although the Board also extends free library service to all residents of the Commonwealth of Virginia. The regional library has a MOU with upper York County, negotiated with them to address the higher participation rate for their residents than City of Williamsburg residents. WRL is not certain that York County is going to honor the MOU when it comes up again and they are unsure how they will react or how they are going to restrict usage if York County does pull out. In October, the Williamsburg library circulated 12,285 items to York County residents and 15,000 to Williamsburg residents. The regional library has an agreement with the City to be the fiscal agent and the County to do payroll and follow County policies. The library provides their own maintenance. The system has two libraries one in Williamsburg and one in James City County Report on Jefferson-Madison Regional Library Page 11 January, 2011

13 Albemarle s Regional Library System Due to its greater population, Albemarle comprises the major part of the regional JMRL system with the largest share of circulation (53%), the highest percentage of users (40%) and the largest share of operating costs (59%). Chart 3 below summarizes the library services provided to Albemarle County residents at Albemarle s 5 library sites. A complete description of Albemarle s five library sites, as well as the Bookmobile, the Albemarle Historical Collection and Mont-AVV, i.e. history, programs, staffing, etc. is provided in the Appendix C. Chart 3 Albemarle's Libraries Central Gordon Northside Crozet Scottsville Total Total Branch Circulation 394, , , ,746 67,318 1,309,762 Albemarle Share of Circulation 49.0% 42.0% 68.0% 87.0% 63.0% 60.0% Circulation Increase (from FY04) -3.0% 11.8% 16.4% 48.0% 19.4% 11.6% Collection Size 143,382 67, ,634 32,960 19, ,325 Percent of Collection 39.2% 18.4% 28.1% 9.0% 5.2% 100.0% Square Feet 29,000 7,394 15,500 1,728 3,940 57,562 Service Hours Number of Visits * 373, , ,124 71,050 57, ,665 Staff (FTE's) Computers meeting rooms Albemarle Annual Cost 538, , , , ,382 1,988,440 Assessed Value 3,219,700 2,596,700 N/A 615, ,300 7,278,700 * includes all jurisdictions JMRL Services and Programs The first area to look at is the effectiveness of the current regional library system, i.e. does it deliver the services the community wants and are the collection and the programs used by its citizens and young people and children. Effectiveness can be measured by gathering community input and by comparing and benchmarking data. Community Input Albemarle County has community input on libraries in its 2006 and 2008 Customer Surveys. In the 2006 survey, 75.3% of citizens ranked libraries as a Very Important Service. In the same question on the 2008 survey, 64.2% of citizens ranked libraries as Very Important, still a sizeable part of the population but a drop of 10%. In the 2006 survey, 93.8% of citizens were satisfied with library services; in % were similarly satisfied. The 2008 survey also asked the importance of library services to the community. Of those surveyed, 64.2% said that resources should be devoted to libraries and 58.6% said they favored using tax dollars for libraries. The survey also reported that people living in the rural areas gave more importance (80.6%) to libraries than urban dwellers. Report on Jefferson-Madison Regional Library Page 12 January, 2011

14 JMRL and Comparison Libraries The following section provides data for JMRL, as well as comparative data from the other library systems to measure how JMRL is doing compared to its peers. Peer libraries include: Fauquier, Roanoke, Henrico, Chesterfield, Central Rappahannock Library, Pamunkey Regional Library and Williamsburg Regional Library. The comparative data is from the Institute of Museum and Library Services, which collects and publishes data from public libraries across the country. Their most recent data is from FY08. Chart 4 Circulation Circulation is one of the most important measures of a library s effectiveness, because it measures usage of the collection. It is also used to allocate costs for most jurisdictions that have a regional library. Chart 4 shows circulation trends by library which reflect increasing circulation at Northside, a 16.3% increase from FY04 and decreasing circulation at Central, -3% from FY04 to FY10. Gordon Ave. has remained fairly steady at a 10 11% increase; Crozet has increased by 48% and Greene has increased by 34%. The percentage of circulation for the other branches has stayed relatively flat. The sharp decline in circulation from FY03 to FY04 reflects a change in the way items were counted and has no significant impact. Chart 5 Chart 5 shows the trend in circulation for the 5 JMRL jurisdictions from FY04 through FY10. Albemarle s circulation is the highest at 853,693 units in FY10, increasing 14.4% since FY04 or approximately 2.4% a year. Only two areas exceed Albemarle s growth: Greene County increased circulation by 26.8% since FY04 or 4.5% a year; Out-of-Area circulation increased over 50% since FY04 at an average 8.5% a year, the fastest growing segment of circulation. Charlottesville by contrast has increased its circulation by only 1.1% since FY04. Report on Jefferson-Madison Regional Library Page 13 January, 2011

15 Chart 6 shows the circulation per capita rates for each jurisdiction with Albemarle at the highest of 8.96 items circulated per capita Chart 6 Per Capita Circulation Albemarle Charlottesville Greene Louisa Nelson Chart 7 Another measure of the JMRL library is the number of users registered for each locality which relates to circulation. Chart 7 shows that the number of Albemarle users has only grown by.5% since FY04 while Charlottesville users have declined by - 8.5%. A large user increase has been seen in Greene and Louisa where both experienced a 19% growth over the 6-year period. The largest increase has been in the out-ofarea users which has increased 84% since FY04 from 4,878 users to 8,976. Four major indicators that the Commonwealth of Virginia uses to measure the effectiveness of libraries across the state in addition to circulation are library visits, holdings (the collection of materials) and turn-over. Chart 8 on the next page shows comparative information on circulation per capita, as well as library visits, holdings and turnover rate for JMRL and the seven comparative library systems. Circulation per capita is a measure of the community's use of the library. It can be thought of as representing the average number of items checked out in a year by each member of the community. A high number on this measure indicates heavy use of the library's circulating materials. A low number may indicate several things. For example: 1) the library's collection may not meet the community's needs or Report on Jefferson-Madison Regional Library Page 14 January, 2011

16 interest; 2) residents may be unaware of the library's resources; and/or 3) the library may have an extensive collection of non-circulating materials. Among the peer libraries, JMRL has the second lowest circulation per capita at 8.05 with only Fauquier County lower at 7.15 per capita. Central Rappahannock, which includes Stafford and Spotsylvania Counties, has the highest per capita circulation at JMRL s per capita circulation is just above the state average of 7.28 and well above the state median of Chart 8 FY08 Comparative Data Service Area Circulation Library Library Visits Holdings Holdings Turnover Library Name Population Per Capita Visits Per Capita Per Capita Rate Fauquier 64, , , Williamsburg Regional 72, , , Roanoke 90, , , Pamunkey Regional 137, , , Jefferson-Madison Regional 193, ,279, , Central Rappahannock 276, ,366, , Henrico 286, ,803, , Chesterfield 292, ,736, , Comarison Libraries Average 176, ,200, , Comparison Libraries Median 165, ,057, , State Average State Median Library Visits represents the average number of times during a year that each member of the community uses the library. A high number of visits indicates heavy use. A low number of visits may indicate several things. For example: 1) the hours the library is open do not fit the needs of the community; 2) the library's collection and programming do not meet the interest or needs of the community; 3) residents may be unaware of what the library has to offer; 4) the facility may be uninviting; and/or 5) the location may be inconvenient. Chart 8 also shows that Albemarle at 6.63 visits per capita is just slightly above the median for the comparative counties and slightly above the state median as well. Holdings Per Capita Holdings per capita are one measure of the match between the size of the library s collection and the community it serves. It assesses collection size, not quality. This measure should be interpreted in connection with turnover rate and circulation per capita. Size alone is not an indicator of quality or usefulness. Chart 8 shows the holdings or collection of materials for each of the comparison libraries. JMRL s collection has 626,806 holdings or materials at 3.25 items per capita, which reflects the median for the comparison libraries. Only Fauquier, Williamsburg and Roanoke have higher per capita holdings than JMRL. At 3.25, JMRL is above the state median of 2.96 per capita. Report on Jefferson-Madison Regional Library Page 15 January, 2011

17 Turnover Rate Chart 8 shows the turnover rates for the comparative counties. Turnover measures the use of the library's circulating collection. It indicates the number of times each item would have circulated during the year if circulation had been spread evenly throughout the collection. A library that emphasizes the circulation of popular reading materials should have a higher turnover rate than a library that emphasizes the breadth of its collection and has an extensive non-circulating reference collection. JMRL has a turnover rate of 2.48, which is the second lowest turnover rate for the comparative counties. The median turnover rate for the comparative counties is 3.31 times while the state median is 2.96 or slightly higher than JMRL s turnover rate. Size of Library Collection Chart 9 FY08 Comparative Data Print Print Subscriptions Electronic Video Audio Service Area Materials per 1000 Subscriptions Materials Materials Electronic Library Name Population per Capita population per 1000 per 1000 per 1000 Books Fauquier 64, ,584 Williamsburg Regional 72, ,137 Roanoke 90, ,166 Pamunkey Regional 137, Jefferson-Madison Regional 193, Central Rappahannock 276, ,950 Henrico 286, ,059 Chesterfield 292, Comarison Libraries Average 176, ,113 Comparison Libraries Median 165, , State Average State Median Chart 9 shows that JMRL is about average in printed materials and printed subscriptions per capita compared to the other localities, but spends considerably less per 1000 population on video and audio materials. From the chart, one can see that the Williamsburg Regional Library purchases a substantial collection of materials with print materials at 4.12 per capita and the highest number of video and audio materials per 1000 population. This may show that they are an effective library system in building a large and diverse collection for their users, but that has to be looked at in conjunction with their resources compared in Chart 15. Some indicators do not necessarily measure the effectiveness of library services, but rather show community preferences for certain types of materials. Availability of resources to purchase materials is also a major factor. Most localities use state funding to purchase materials, but as state funding has been reduced many localities have had to either supplement their materials budget with local funds or reduce purchases. JMRL is also comparatively low in the purchase of electronic books, although the chart reflects FY08 data and JMRL through a foundation grant has just purchased and implemented a downloadable book program which will substantially increase this number. Anyone with a JMRL library card can access an Report on Jefferson-Madison Regional Library Page 16 January, 2011

18 electronic book through the following website: 46D4-A0B9-D24A75FBF7A0/10/518/en/Help-QuickStartGuide.htm Services Chart 10 FY08 Comparative Data Reference Interlibrary InterLibrary Users of Users of Users of Avg. Wkly Service Area Transactions Loans Loans Public Computers Elec. Resources Public Hours Library Name Population per Capita Received Provided Computers per Capita per Capita per Outlet Fauquier 64, , , Williamsburg Regional 72, ,772 3, , Roanoke 90, , , Pamunkey Regional 137, , , Jefferson-Madison Regional 193, , , Central Rappahannock 276, ,275 2, , Henrico 286, ,762 2, , Chesterfield 292, , , Comparison Libraries Average 176, ,407 1, , Comparison Libraries Median 165, , , State Average State Median Chart 10 reflects services provided by regional and county libraries as measured by the Public Libraries Survey. In reference transactions per capita, JMRL has the lowest number of transactions per capita, significantly below both the mean and the median. The table also shows that JMRL is an importer of material through the inter library loan process, rather than a provider of materials to other libraries. JMRL has the highest number of loans received of any of the localities, as well as the lowest number of library loans provided to others. Fauquier, Roanoke and Pamunkey also receive considerably more loans than they provide. An interlibrary loan is based on a request to another library which is an autonomous library outside their system. On public computer users, JMRL has 147,455 users per year (FY08), but at.76 computer users per capita JMRL is slightly below the comparative median at 0.80 users per capita. This can be a function of the number of computers available, but also may be dependent on the geography of the locality and citizens access to a library or it may relate to the populations technology savy. Availability of services and computers may also be dependent on the number of service hours at each of the outlets. The average weekly public service hours per outlet for JMRL is 43, which is below the median for the other libraries at 53 hours per week. Report on Jefferson-Madison Regional Library Page 17 January, 2011

19 Services (continued) Chart 11 FY08 Comparative Data Total Total Program Childrens Children's Materials Service Area Library Programs Program Attandance Attendance Percent of Total Library Name Population Programs Per 1000 pop Attendance Per Capita Per Capita Circulation Fauquier 64,612 1, , % Williamsburg Regional 72,513 1, , % Roanoke 90,135 1, , % Pamunkey Regional 137,980 1, , N/A Jefferson-Madison Regional 193,037 1, , % Central Rappahannock 276,640 3, , % Henrico 286,842 3, , % Chesterfield 292,491 1, , % Comparison Libraries Average 176,781 2, , % Comparison Libraries Median 165,509 1, , % State Average State Median An important service offered by public libraries are special programs, so measuring the number of programs and their attendance is one of the measures of an effective library system. For total programs offered, JMRL is at the median of 1,626 programs for the comparative counties, although when measured by 1000 population, JMRL is the second lowest in programs per population except for Chesterfield County and substantially below both the average and the median for the comparative counties. On program attendance, which is possibly a more relevant measure for meeting customer expectations than simply the number of programs offered, JMRL is just slightly below the median number with 32,233 programs per year. JMRL is at.17 per capita in program attendance, which is the second lowest with only Chesterfield being lower at.10 and slightly below the median of.24 per capita program for the comparison group. In measuring children s attendance, JMRL is tied for 2 nd lowest along with Henrico, with Chesterfield again being the lowest in children s attendance. JMRL is at.16 just below the median for the other libraries at.18 per capita. A lower rate of attendance may be due to accessibility in a large geographic area, as well as the program content or relevance to the children. One interesting note is that JMRL has the second highest percent of circulation for children s material at 46.2% significantly higher than the median 32.3% or the average 33.5% for the comparison libraries. Almost half of JMRL s circulating materials are for children. Report on Jefferson-Madison Regional Library Page 18 January, 2011

20 Organizational Characteristics The final area of library effectiveness relates to the structures and support in place in each of the library systems. Chart 12 FY08 Comparative Data Number of Number of Avg. Number Number of Number of Number of Staff Service Area Internet Terminals Terminals Central Branch Libraries per Total Per 1000 Library Name Population Terminals per 1000 per Outlet Libraries Libraries 1000 pop Staff Population Fauquier 64, Williamsburg Regional 72, Roanoke 90, Pamunkey Regional 137, Jefferson-Madison Regional 193, Central Rappahannock 276, Henrico 286, Chesterfield 292, Comparison Libraries Average 176, Comparison Libraries Median 165, State Average State Median Chart 12 shows the organizational assets that are in place to provide services to the library community. In providing access to computers, JMRL at.46 computers per capita ranks significantly below the comparative libraries in both the average.93 and median.76. JMRL also has the second lowest number of terminals per stationary outlet at 11 per outlet, while the comparative median is 17 per outlet. Williamsburg Regional Library has the highest number of terminals at 62 per outlet, but only has two library sites, one in Williamsburg and one in James City County. By contrast the lowest is Pamunkey Regional with an average of 10 per site, but with 10 branch libraries across their region. Henrico with 45 per site also has 10 sites. In total staff per 1000 population, JMRL has the lowest number of all the library systems and is below both the average and the median. Library System Efficiency This next section attempts to show some measure of library efficiency by looking at how a library uses its resources to provide the most service to the most people. JMRL revenue and expenditure trends are shown here, as well as how JMRL compares with its use of resources with the other comparative library systems. The last part of this section looks at the different ways the comparative communities have reduced their budgets in the face of reduced revenues. Report on Jefferson-Madison Regional Library Page 19 January, 2011

21 Resources Chart 13 shows the revenue trend from FY00 to FY11 for the JMRL library. Local revenues have increased approximately $2.2 million (70%) while state revenues have decreased by approximately $175,000, a 25% reduction over the ten year period. State revenues have gone from a high of $844,000 in FY01 to $543,000 in FY11. Federal revenues have remained level and reflect only the e- grant which comes directly to JMRL and has been used by the Library Board solely for technology. JMRL uses State Aid dollars to purchase materials, which is how most other Virginia libraries use their state dollars. The FY11 collections budget is $610,734, most of which is state aid, but also includes approximately $50,000 from anticipated fines and a foundation grant of $20,000 which is being used to purchase downloadable books. Chart 13 Other local revenues have remained fairly steady at $250,000 a year and consist of grants, fines and contributions from the Friends of the Library. The majority of fines collected (average $134,000 a year) are put into the equipment fund, which pays for service contracts on computer equipment, data lines, and new and replacement equipment for all the regional services, as well as the branch libraries. The equipment fund expenditures run about $500,000 per year, using fines and year-end-balances. Fines were recently increased from $10 to $25 cents a day with anticipated new revenues of approximately $50,000 which will also go to the equipment fund. Resources Comparing Other Libraries Public libraries receive funding from three primary sources: Local spending comprises the majority of library funding. State grants-in-aid now represent about 10 percent of the funding to public libraries. Recently, State support has also included separate funding earmarked for technology initiatives. Federal funds are less than one percent of library funding. While most local funds are derived from tax revenues (80 percent), they may also include endowments, gifts, donations, and bequests. Chart 14 Report on Jefferson-Madison Regional Library Page 20 January, 2011

22 Chart 15 below looks at revenues from the comparative localities. In local revenue per capita, JMRL is the second lowest at $26.65 per capita just above Chesterfield, but below both the average and the median for our comparison localities. In state revenues, the high of $729,432 goes to the Central Rappahannock Library with the next highest of $658,032 going to JMRL. Lowest on the state revenues is Fauquier County at $190,824, although Roanoke is only slightly higher at $195,239. The huge difference in state revenues is due to the state formula discussed later in this report that provides per capita and square mile supplements to libraries that regionalize. Therefore, Central Rappahannock receives $2.64 per capita although their service area is similar in size to those of Henrico and Chesterfield, which receive substantially less state revenue per capita at $0.84 and $0.82. In state revenues per capita, JMRL is at $3.41, the third highest below Williamsburg and Pamunkey Regional Library. In total revenues per capita, JMRL is the second lowest again just above Chesterfield, but below both the comparison average of $43.99 and the median of $ Chart 15 FY08 Comparative Data Local State Total Service Area Local Revenue State Revenue Federal Other Revenue Library Name Population Revenue Per Capita Revenue per Capita Revenue Revenue per Capita Fauquier 64,612 1,991, , , Williamsburg Regional 72,513 5,324, , , Roanoke 90,135 2,911, , , Pamunkey Regional 137,980 3,811, , , , Jefferson-Madison Regional 193,037 5,144, , , , Central Rappahannock 276,640 11,188, , , Henrico 286,842 15,396, , Chesterfield 292,491 7,334, , , , Comparison Libraries Average 176,781 6,637, , , , Comparison Libraries Median 165,509 5,234, , , State Average State Median JMRL Library Expenditures JMRL FY11 expenditures, in Chart 16, are broken out by programs and branches. The JMRL total budget of $5.4 million reflects only local operating revenues that go into the budget. Other expenditures for books and equipment using state funds and other local monies are not reflected in the budget below. Report on Jefferson-Madison Regional Library Page 21 January, 2011

23 Chart 16 JMRL Budget by Categories The JMRL operating budget has increased over the past 7 years by 43% or 6.2% a year from $3.1 million in FY04 to $4.4 million in FY11. Chart 17 shows the basic functional areas of personnel, fringe and operations over this same time period. As in many service organizations, the personnel costs, both salaries and benefits, have increased the most. salaries have increased by 33% or 4.7% a year, benefits by 75% or 10.7% a year. However, since FY09, salaries and benefits have increased by only 0.6% Chart 17 Although salary and benefits are administered by the City of Charlottesville, the library has its own salary scale with salaries comparable to other library organizations. Their latest salary survey was conducted by Carolyn Fowler in The large increase in benefits is partly due to the higher benefit package associated with the City s plan, mostly the health plan for retirees. Although JMRL staff will continue on the City s health insurance, the Library Board, in an effort to save money, proposed to the City to offer their own Defined Contribution Retirement Plan without full medical benefits after Report on Jefferson-Madison Regional Library Page 22 January, 2011

24 retirement. This request is awaiting approval by City Council and should be implemented for new employees on July 1, Chart 17 also shows that JMRL operating costs have been fairly level over the last 7 years going from $853,000 thousand to approximately $1.1 million, a 27% increase or approximately 3.9% a year. Branch Library Expenditure Growth Chart 18 One explanation for the increased growth in costs has been the expansion of costs for the branch libraries. Chart 18 shows the increase in dollars spent on the branch libraries since FY05. The two highest dollar increases for branches have been in Crozet (65.4% increase due to an additional librarian in FY07) and Greene (60.3% with the opening of the new library in FY08). The next largest dollar increase is at Gordon with 34% and Northside with a 32% increase. These have been the branches with the greatest jumps in circulation, Crozet 48%, Greene, 34%, Scottsville 19% and Northside 16%. Expenditures by Locality Local expenditure trends mirror increased circulation trends. Albemarle s expenditures increased 41.4% since FY05 or an annual increase of almost 6%. These increases reflect any/all baseline increases, as well as the following expanded services: FY2005 Funds to enhance services including Crozet Branch support, Northside Circulation support, and a Northside Reference Specialist. FY2006 New Central Library/Outreach Manager, part-time technical support specialist, part-time assistant to help with outreach to nursing homes and assisted living facilities. FY2007 Half-year funding of an additional librarian at Crozet. FY2008 Expansion of Northside Library hours, additional half-time lab monitor, half-time technical support position, additional hours for human resources benefits specialist, and fullyear funding of additional Crozet librarian added in FY2007. Report on Jefferson-Madison Regional Library Page 23 January, 2011

25 Chart 19 During that same time period, Albemarle had a large overall circulation increase of 14.4% compared to the City s 1.1%, Louisa s 6.4% and Nelson at 1.9%. Only Greene surpassed Albemarle s circulation at 26.8%, although it is difficult to see it on this chart as it is blocked by both Nelson and Louisa County lines. Chart 20 FY11 Budget Albemarle Share Administration costs 864, % 503,745 Technical 589, % 343,486 Reference 432, % 148,889 Main 886, % 538,792 Gordon 337, % 185,527 Northside 1,025, % 876,619 Crozet 228, % 228,120 Scottsville 159, % 159,382 McIntire 75, % 37,737 Monticello AVV 172, % 86,145 Bookmobile 88, % 64,694 4,860, % 3,173,138 Albemarle FY09 population 95,247 Cost per capita $33.31 Per Capita Spending Expenditures per capita reflect the community's financial support for the library in relation to its size. Operating expenditures (personnel, collections, and general operations) from other sources such as state aid and grants are also included. Capital expenditures that vary dramatically from year to year are not included. One of the most important comparison measures is the per capita cost of running a library. Looking at the JMRL FY11 budget, Albemarle s total share of the budget is comprised of various shares of the budget based on circulation, i.e % of the regional administration costs based on Albemarle s percentage of total circulation among the 5 localities, 85.51% of Northside based on circulation, etc. Report on Jefferson-Madison Regional Library Page 24 January, 2011

26 Adding up the various shares of branches and programs, Albemarle s overall share of the regional budget is $3,173,138 or 65.28% of the budget. When Albemarle s total contribution to the library is divided by the FY09 estimated population, Albemarle s per capita cost is $ Chart 21 Per Capita FY 09 FY10 Locality Cost Population Cost Albemarle $ ,247 3,173,138 Charlottesville $ ,317 1,355,385 Greene $ , ,909 Louisa $ , ,172 Nelson $ , ,648 Chart 21 shows that Albemarle and Charlottesville are equal on the per capita costs, although the smaller jurisdictions with only one small library per jurisdiction have significantly lower per capita cost. The other jurisdictions also do not share in the costs of Mont-AVV, McIntire and the Bookmobile. Note: Albemarle is paying $226,365 in annual leasing costs at Northside (85.51 % of the total rent of $264,724). Since most localities, including the other localities in our system, do not pay rent for their facilities, Albemarle pays a higher cost per capita than the other jurisdictions in this region, as well as across the state. If rent of $264,724 is deducted from Albemarle s total costs, Albemarle s per capita cost is reduced to $30.9. JMRL Per User Cost Report on Jefferson-Madison Regional Library Page 25 January, 2011

27 Chart 22 Per User FY10 FY10 Locality Cost Cost Users Albemarle $ ,173,138 44,770 Charlottesville $ ,355,385 21,085 Greene $ ,909 8,901 Louisa $ ,172 12,943 Nelson $ ,648 5,820 Although Albemarle s cost is based on its share of circulation, seen in the prior section, another efficiency measure is the per user cost. Albemarle also has the highest number of users in the JMRL system. Again if you deduct the high cost of rent at Northside, Albemarle s per user cost comes down to $65.82 per user comparable to Charlottesville s per user cost. Expenditure Comparisons with Other Localities Chart 23 shows how the comparison localities use their resources to build their collection and the choices they make between printed vs. electronic materials. The dollars allocated to one area over another may be the Library Board s decision, as well as a lack of resources. Although Williamsburg has the highest per capita funding of any of the comparison localities, their per capita spending for electronic materials is extremely small compared to others. Each library system decides independently what is important to purchase for their particular users or they may decide to spend more on programs or computer access. In Chart 23, JMRL spends considerably less on their collection than other localities, i.e. at $3.70 per capita, JMRL is the lowest compared to Henrico at $6.57 per capita. Although JMRL is just at the median in electronic materials per 1000 population, JMRL uses a higher percentage of their collection budget than most of the other counties with the exception of Henrico and Central Rappahannock. Chart 23 FY08 Comparative Data Total Total Collection Expen. Print Materials Electronic Electronic Electronic Service Area Collection Collection as % of Total Expenditures Materials Materials as % of Total Library Name Population Expenditures per Capita Expenditures per Capita Expenditures per 1000 Collection Exp Fauquier 64, ,333 $ % $ ,116 $ % Williamsburg Regional 72, ,127 $ % $5.51 4,558 $ % Roanoke 90, ,720 $ % $ ,446 $ % Pamunkey Regional 137, ,843 $ % $ ,479 $ % Jefferson-Madison Regional 193, ,037 $ % $ ,567 $ % Central Rappahannock 276,640 1,194,002 $ % $ ,746 $1, % Henrico 286,842 1,883,336 $ % $ ,200 $ % Chesterfield 292,491 1,166,354 $ % $ ,289 $ % Comparison Libraries Average 176, ,969 $ % $ ,300 $ % Comparison Libraries Median 165, ,940 $ % $ ,523 $ % State Average State Median Report on Jefferson-Madison Regional Library Page 26 January, 2011

28 Staff and Operating Expenses Chart 24 FY08 Comparative Data Salaries and Employee Total Total Staff Exp Other Total Total Oper Service Area Waes Benefits Staff as % of Total Operating Operating Expenditures Library Name Population Expenditures ExpendituresExpenditures Expenditures Expenditures Expenditures per Capita Fauquier 64,612 1,255, ,347 1,653, % 219,415 2,149, Williamsburg Regional 72,513 3,546,834 1,046,392 4,593, % 1,264,406 6,417, Roanoke 90,135 1,558, ,720 2,046, % 649,833 3,197, Pamunkey Regional 137,980 2,129, ,136 2,588, % 1,154,875 4,492, Jefferson-Madison Regional 193,037 2,789,301 1,164,266 3,953, % 1,336,688 6,004, Central Rappahannock 276,640 6,365,410 1,945,009 8,310, % 2,430,266 11,934, Henrico 286,842 7,339,699 2,493,544 9,833, % 2,219,079 13,935, Chesterfield 292,491 4,744,604 1,206,271 5,950, % 1,096,231 8,213, Comparison Libraries Average 176,781 3,716,048 1,150,086 4,866, % 1,296,349 7,043, Comparison Libraries Median 165,509 3,168,068 1,105,329 4,273, % 1,209,641 6,211, State Average State Median Chart 24 compares staff and operating expenditures for the comparison counties. Looking at total staff expenditures as a % of total expenditures, JMRL at 65.9% is below the median of 70.1% and the third lowest after Pamunkey and Roanoke County. When looking at the total operating expenditures per capita, JMRL is again well below the average and below the median as well. JMRL at $31.10 has the lowest expenditures per capita than all the other localities except Chesterfield. Chart 24 compares the FY08 per capita spending by the comparison libraries, but it does not measure the per capita spending by the 8 comparison counties. Chart 25 below compares the dollars that each of the localities allocated to their respective libraries in F Y11. This per capita expenditure does not include any state funds or other funds, only local tax supported dollars, so the per capita numbers will not be comparable with the FY08 per capita data seen in the previous chart. Chart 25 Locality FY11 Per Capita Cost Chesterfield Hanover Fauquier Roanoke Spotsylvania Albemarle Stafford Henrico James City County Average Median Comparing Albemarle County with the other localities, Albemarle s per capita costs at $33.31 are slightly above the county median at $ Although the per capita costs represent the actual dollars budgeted for libraries by each locality, one factor that must be taken into consideration when comparing level of effort is that some localities provide considerable in-kind services to their libraries that are not accounted for in these numbers. For example, Roanoke County provides several services not in the budget, i.e. payroll and HR, purchasing, accounting, legal services, custodial and maintenance. Stafford pays for maintenance, custodial and Report on Jefferson-Madison Regional Library Page 27 January, 2011

29 grounds maintenance for their branch libraries, expenditures that are not accounted for in the per capita library costs. Chesterfield pays for a wide number of services, i.e., payroll, accounting, purchasing, maintenance, custodial, legal and technology infrastructure. In the single jurisdictions, the libraries are treated like a county department and receive a number of county services without a recorded cost. To compare the true costs per capita, you would have to know the extent and the cost of those services to get a comparable per capita cost. Therefore, to determine the true cost of a single entity library system, Albemarle would need to determine the costs of those in-kind services and then decide if the County was willing to absorb these costs that now are reflected in the regional library budget. Chart 26 Budget Reductions by Comparison Libraries/Localities Chart 26 shows local government funding for the comparison county libraries over the past 3 years. The chart clearly shows that most of the budgets were either severely cut or level funded for FY09, FY10 and FY11. 6 Locality Budget Reduction Strategies Each locality interviewed made significant cuts to their library systems, as well as to other community agencies as a result of declining tax dollars. In discussions with the administrators and/or librarians from the comparable county libraries, many different strategies and solutions were implemented to reduce the library allocation, some of which resulted in drastic reductions in dollars and services. The following section summarizes how these localities responded to reduced funding: Fauquier County The library was told in the last part of FY09 to cut back, so closed on Sundays and limited their outreach, supplies, and other soft costs. This decision based on staff recommendation was approved and presented by Library Board. The community was unhappy, but adjusted by using the libraries more on Fridays and Saturdays. For FY11, the County said library had to make an additional 10% cut. Library couldn t cut across the board without losing full-time positions, so Library Board put forward two options: one to close a small branch library and the other to make deep cuts in hours, staff, etc. Board of Supervisors chose to cut the small branch, but because of neighborhood objections the Board Report on Jefferson-Madison Regional Library Page 28 January, 2011

30 imposed only a 4-5% reduction, told them to keep the small branch open but make cuts across the board. The library cut Friday hours (only open 9-1:00), did not fill the children s position and other parttime positions and reduced some part-time positions to 19 hours without health insurance.. From FY08 to FY11, the allocation to the library went from $2.1 million to $1.9 million, a reduction of $183,000 or 8.6%. Hanover County (Pamunkey Regional Library) County administrator met with the library ahead of budget and gave them a reduction goal: the library board determined the reductions. The library now closes on certain days concentrated around holidays, not reduction in hours each week. The closures impacted only Hanover County, not the other localities in the Pamunkey Regional Library system. For 2012, the library staff is analyzing contributions versus the cost of services since the per capita costs for Stafford are higher than the other jurisdictions. Some localities are paying less, but are able to pay more. May switch from leasing to purchasing while debt costs are low. They are now leasing some facilities. Even if they purchase building, they may lease it back to the library system. In FY09, Hanover s contribution to the library system increased from $2.493 million to $2.722 million, an increase of $0.229 thousand (9%). The budget has been level funded at $2.7 million for FY10 and the FY11. Hanover is projecting to fund $2.756 million in FY12, level funding again. James City County The Williamsburg Regional Library was very proactive in FY10 and FY11 and self imposed a 5% cut in their budget request. They rearranged staff, but did not reduce hours. Biggest impact was from reduced state funding, which cut back on their book and material purchases. Friends of the Library contributed $50,000 to their budget for materials. New and expanded library facilities are no longer in the CIP, as they were several years ago. From FY09 to FY11 the library budget was reduced by $0.390 thousand, 8.6% decrease Roanoke County To reduce the budget last year, the library cut back on books, technology and part-time staff. They also closed Sunday afternoons and are now operating 6 days instead of 7 days a week. The library also withdrew from the Botetourt agreement in which Roanoke contributed funds to the Botetourt library. More Botetourt citizens were using the Roanoke library than Roanoke citizens were using the Botetourt libraries. New county library being built to be used as distribution center (old one is now used that way). Also building another branch library citizens came to board to ask for more libraries. County provides several services not in the budget, i.e. payroll and HR, purchasing, accounting, legal services and a custodial and maintenance budget. Report on Jefferson-Madison Regional Library Page 29 January, 2011

31 The Roanoke budget went from $2.664 in FY08 to $2.979 in FY11, an increase of $315,000, a 12% increase over the 3-year period. However, administrative costs went down, while automation costs rose. Spotsylvania (Central Rappanhannock Regional Library) Quote from their revised by-laws - in the event any participating locality chooses to appropriate funds at a level lower than requested, the Board shall have the right to reduce or freeze service levels, other than by imposing a book limit, within such jurisdiction proportionately in accordance with the funding reduction. The governing body of such jurisdiction shall be afforded the opportunity to make evaluation and indicate the particular areas of service it wishes reduced, modified or frozen and such decisions by the governing body concerning service shall be implemented by the Board. Stafford County Stafford County reports a great deal of friction around the library budget cuts. Stafford began dialogue with community agencies, including the library, ahead of the FY09 budget cycle. All agencies told to look at their own operations and find efficiencies and reductions, although library was slow to implement changes. In FY11, the library proposed solutions, which included reducing a different day at each of the branch libraries, so there was always a branch open on the day another library was closed. Stafford is opening a new branch library. The county maintains the building and the grounds and also provides the custodial work, interior painting, etc. County administration now has budget discussions with the library, as well as the other jurisdictions in the library system, starting in Oct and November. The library now submits their budget much earlier in the process, so everyone knows what the library is asking for before budget sessions begin. Stafford s contribution to the library in FY08 was $4.666 million and $4.585 million in FY11, a reduction of $81,000 thousand over the three fiscal years. However, the FY11 budget reflects additional opening costs for the new Stafford branch, so funding for existing services actually went down by 6% in FY11. Henrico The library is treated as a County department. County manager set a target for the library budget with no reduction in service to the public. Library reduced operations by eliminating half of their printing and postage costs by using correspondence, revisited vendor agreements for better pricing and cut back on their material purchases. Reduced 10 vacant positions and rearranged staff to fit new responsibilities. Upcoming budget will ask for another 2.5% cut in operations, not personnel. The County Manager will make the decisions on personnel i.e., to fill or maintain more vacant positions on a case by case basis. Henrico has level funded the library at $15.6 million level for the past three fiscal years. Report on Jefferson-Madison Regional Library Page 30 January, 2011

32 Chesterfield The county allocation to the library system is down $1.6 million with 10 reduced positions. The Board did restore $200,000 back to library for materials on a one-time basis. All libraries are now closed on Thursdays, except the main library which opens late on that day. The eliminated positions were Library Associates they eliminated by classification, rather than seniority. Library Associates were not certified librarians. There was more public reaction to the lack of funding for the materials than for closing for one day. The County expects to level fund the library next year. From discussions with local administers and library directors, it is clear that these libraries have made significant reductions in operations and some in services to the public despite 1991 State Library Board regulations that stipulate that Local operating expenditures from taxation or endowment for any library, or library system, shall not fall below that of the previous year (full language for this section on page 30). This state policy seems to have had no impact on the other counties ability to reduce their library allocations. State Aid to Libraries The General Assembly first appropriated funds ($50,000) to the Library of Virginia in 1942 to primarily develop new libraries, but they also included provisions to aid existing libraries, particularly regional libraries. In 1936, although funding for state aid was not allocated, the General Assembly enacted the first comprehensive general library law and declared, "It the policy of the Commonwealth, as a part of its provision for public education, to promote the establishment and development of public library service throughout its various political subdivisions." This very important language remains in the Code of Virginia In the original state-aid formula, city libraries were eligible for grants up to $5,000 while county and regional libraries were eligible for grants up to $15,000. The state-aid program took its current form after changes to the formula and library laws in The State aid formula established by Section of the Code of Virginia has three goals: improve library services to the public, bolster maintenance and development of standards, and encourage economy through the formation of regional library budgets State aid represents approximately 10 percent of total library funding across the state and funds may be used for books and other library materials, salaries, equipment, supplies, and contractual services. State aid may not be used for construction or capital expenditures. Currently, the majority of State aid is used to purchase books and materials. Chart 28 shows how state aid is used throughout the state. JMRL uses 100% of its state aid to purchase materials for its collection. Report on Jefferson-Madison Regional Library Page 31 January, 2011

33 State aid requirements are set up to encourage local effort through the following provisions: Chart Local expenditures must be equal to or greater than the amount expended the prior year.* 2. Local operating expenditures must be at least 50 percent of the Statewide median. (FY09 median statewide library expenditures were $1,058,533 x 50% = $529,267; JMRL was $5.3 million. 3. Two thirds of funding must come from taxation or endowment. (JMRL in FY10 was 85%) 4. The State aid requirements mandate that public libraries must employ a certified librarian as director. (JMRL yes) The State Library requires Local operating expenditures from taxation or endowment for any library, or library system, shall not fall below that of the previous year. In cases where the budgets of all the departments of local government are reduced below those of the previous year, the library s state grant-in-aid would be reduced. The State Library may require that the amount of such reduction in the library s total expenditures be subtracted from the library s eligibility and that the state grant be reduced accordingly. If the library s budget is reduced and other agencies budgets are not, then the library would receive no state grant-in-aid and would be ineligible for one until local expenditures shall have again reached or exceeded the local effort at the time of the last previous grant. The library would be ineligible for any federal funds if local funds are reduced below that of the previous year. State Aid Formula The current state aid formula is based on three components: 1. The local expenditures grant pays libraries 40 cents for every local dollar spent on operating expenses, exclusive of State and federal aid. The grant to any city or county shall not exceed $250,000. For regional libraries, the cap is applied to each participating locality. 2. Population - a per capita based on the population of the area served and the number of participating counties or cities: Thirty cents per capita for the first 600,000 persons to a library or system servicing one city or county and an additional ten cents per capita for the first 600,000 persons for each additional city or county served Report on Jefferson-Madison Regional Library Page 32 January, 2011

34 3. Square miles served; a grant of ten dollars per square mile of area served to every library or library system, and an additional grant of twenty dollars per square mile of area served to every library system serving more than one city or county How Does the State Aid Formula Work for JMRL? The state aid formula is based on three components, which favor regional libraries because of factor 2) the additional 0.10 cents per capita for the additional jurisdictions and factor 3) the $20.00 per square mile for a regional system. In calculating JMRL s state aid for FY11, the three components entitled JMRL to a total of $1,030,697, although the 55% funding cap imposed by the 2010 legislature brought the actual funding down to $572,564. If Albemarle were operating as a single County library, state aid funding would be reduced due to the formula that favors regionalization. Using the same formula calculations, the FY11 estimate for Albemarle would be $328,645, a difference of $702,052 in eligibility for state funds. With the 55% funding cap, Albemarle would receive $180,755 compared to $572,564 for its regional system or a funding difference of $391,809. Full calculations for the regional and single county options are included in the Appendix D. While the local expenditure cap was increased in 1990 from $150,000 to $250,000, it has not been adjusted for inflation since. The square mileage and per capita grants have not changed since Full funding occurs when the General Assembly allocates sufficient funds to permit each system to claim all monies due from the combination of local effort (40% or cap of $250,000), per capita, and square miles served. Chart 29 Chart 29 to the left shows the gap between fund eligibility and actual funding from 1992 to FY2001 was the only year that full funding was achieved. Since 2002 the gap has widened significantly. In FY11, actual state funding was only 55% of eligibility and the percentage for the FY12 budget is currently projected to be 54.6% or lower. Estimates show that the gap between full funding (code eligibility) and actual state funding between FY2000 and FY2008 has cost local libraries $32.3 million in lost revenues. In FY11, libraries were eligible under the state formula to $26.3 million, but actual funding was only $16.3 million, a $9.9 million dollar gap which is not expected to narrow. Report on Jefferson-Madison Regional Library Page 33 January, 2011

35 Chart 30 State Library Board Standards To insure that Virginia libraries are up to a minimum standard in order to receive state aid, the State Library Board has developed a set of standards that are used to measure every aspect or function of a local library s programs and resources. There are 11 major categories of standards upon which a Virginia library is judged with multiple criteria under each category: Governance and Administration, Funding and Administration, Public Relations, Resources, which includes Staff Level, Staff Development and Volunteers, Collections, Facilities, Technology, Services, which includes access and services, Information Services, Programs, Services to Targeted Groups. In order to receive state-aid, a library or a library system must provide the minimum standards at level A. JMRL meets the minimum standards set at Level A and most standards set at Level AA. Their five year plan includes many goals with the objective of reaching level AA in all categories. With the number of standards, it is not possible within the confines of this study to show where JMRL is on all them. More detailed information on the Standards can be found in the Appendix. The following Chart 31 does shows how JMRL meets some of the major ones at the Level A, minimum level standard or Level AA, strong level on all qualities. Report on Jefferson-Madison Regional Library Page 34 January, 2011

36 Chart 31 STANDARDS FOR VIRGINIA PUBLIC LIBRARIES - Based on FY06 data MEASURE OR STANDARD JMRL Level A Level AA Level AAA Local Public Funds 77% 88% Other local funds 5% 4% state aid 12% 7% Federal funds 1% 2% Other grants 5% 6% Operating Exp per capita $ 0.28 $ 0.32 Local Operating exp per capita $ 0.26 $ 0.30 % expenditure for staff 63% 66% % Expenditure for Collections 13% 14% % Other 24% 20% FTE's per capita Professional staff per 25,000 pop % of budget allocated to staff development 0.56% 1.00% 2.00% Items per capita in collection for 100,000 to 750,000 pop Percent of op budget to purchase collection materials 13% public workstation per population number Unduplicated service hours with 3 68 (20 are 76 (7days/wk; consecutive evenings and 4 evenings evening hrs weekends Percent of population registered for library card 50% 25% 40% 60% Average wait time (mnutes) for computer workstations Program attendance per capita no waiting lists Below Minimum Standard Level A Minimum Standard Level AA Strong Standard Although state data lags behind by several years, the relative numbers still provide a sense of where JMRL resides on the Level A or Level AA scale. From the chart, JMRL is below the Level A minimum level standard on a number of the financial indicators shown in pink above, but at level A or above on other local funds and state aid. JMRL is at Level A or slightly above in FTE s per capita, professional staff per capita, items per capita and unduplicated service hours. JMRL meets the Level II Standard on two items, public workstations per population and per capita program attendance. JMRL Library Space/Capital Needs State Standards also apply to per capita square footage minimum requirements for public library facilities in Virginia. Level A or the minimum standard is.6 square feet per capita, while the Level II or recommended level is.7 square feet per capita. Chart 32 State Standards for Facilities JMRL A AA AAA population up to 25,000.6 sq with.8 desired.9 sf 1.0 sf population up to 25, ,000.6 sf.8 sf 1.0 sf population 100, ,000.6 sf.7 sf 1.0 sf Report on Jefferson-Madison Regional Library Page 35 January, 2011

37 Currently, JMRL has 91,955 square feet of library space with a 2009 service population of 202,121. This translates to.46 square feet per capita, which is less than the minimum state requirement of.6 sq. ft. Chart 33 below shows the State Standards Level A minimum square footage of.6 sq. ft. per capita, which would require JMRL to add 29,278 sq. ft. of library space to meet the space needs for its service area. Using the commonly accepted standard of.7 sq. ft. per capita or the Level AA State Standard (used in both prior planning studies), JMRL would need 49,490 additional square feet. Chart 33 Current JMRL Library Square Feet Current Space Requirements Central 29,000 Level A Minium per capita Sq.ft. 0.6 Gordon 7,394 Minimum Square Feet 121,273 Northside 15,572 Deficit 29,278 Crozet 1,728 Scottsville 3,940 Greene 15,000 Level AA Recommended Standard 0.7 Louisa 15,000 Desired Square Feet 141,485 Nelson 4,361 Deficit 49,490 Total 91,995 JMRL 2009 Population 202,121 Current Sq. Ft. Per Capita 0.46 Albemarle Library Space Needs Albemarle County, assuming that it uses 50% of Central Library space and 50% at Gordon Avenue Library, has a total of 39,427sq. feet of space in its libraries, i.e. Central, Gordon, Northside, Crozet and Scottsville. With a 2009 population of 95,247, Albemarle has a current deficit of 17,711 sq. ft. of space using the Level A minimum state requirement. Using the State Standard, Level AA, which is the recommended standard used in prior studies, the County has a deficit of 27,236 square feet of library space. See Chart 34 below. Chart 34 Current Albemarle Square Feet Current Space Requirements Central (50%) 14,500 Level A Minium per capita Sq.ft. 0.6 Gordon (50%) 3,697 Minimum Square Feet 57,148 Northside 15,572 Deficit 17,711 Crozet 1,728 Scottsville 3,940 Total 39,437 Level AA Recommened Standard 0.7 Albemarle 2009 Population 95,247 Desired Square Feet 66,673 Current Sq.Ft Per Capita 0.41 Deficit 27,236 Report on Jefferson-Madison Regional Library Page 36 January, 2011

38 To address Albemarle s lack of adequate facility space, there are two important library studies that were undertaken for Albemarle, which form the background or rationale for the proposed library facilities in the county s long-range Capital Needs Assessment. The first study, the 1999 Building Assessment Report, was completed by library staff and city and county planning staff. This study was important because it looked not only at current library space, but it identified current and future library facilities that would serve specific neighborhoods and rural areas in the comp plan. The 1999 study used the library planning standard or target of a minimum of.7 square feet per capita and a minimum of 4500 square feet for any branch library. The study also assumed a Level III minimum collection requirement of 4 items per capita. The 1999 study concluded that, to bring Albemarle up to full capacity (square footage at.7 and a collection of.4 items per capita), library services should be expanded in the Route 29 corridor with either one large facility or 2 small facilities. It also recommended that a new facility be built in Crozet to replace the current train station and that another new branch was needed to address the population growth south of the City, i.e. Mill Creek, Lakeside and Lake Reynovia. The study also recommended a small expansion to Scottsville to bring it up to the minimum space requirement for a branch library of 4500 sq. feet. Following this study, in 2001 Train and Partners prepared a Facility Planning Study that again looked at the square footage needs and concluded that the County s population had outpaced the library s physical facilities and there was a need to upgrade and increase the square footage of the branch libraries. The Train study recommended the following in this order: 1. Build a 15,000 square foot library in Crozet 2. Build an additional Northern Facility of 25,000 square feet near Airport Road that would include 5,000 square feet for regional operations and the bookmobile (lease on current Northside would be retained for 5 years) 3. Renovate the Central Library (with the City) 4. Build a 15,000 square foot Southside Library near Mill Creek 5. Replace current Northside lease with a new 20,000 square foot branch facility near Agnor-Hurt on Berkmar Drive area. 6. Moderate expansion of Scottsville to come up to minimum square footage of 7,500 sq ft, an additional 3,560 square feet. The County s previous CIP s basically followed these recommendations, although for the Northern 29 library, the County determined that it was more cost effective to build one main branch at 40,000, rather than two smaller libraries at 25,000 and 20,000. The Crozet Library is now 23,000 sq. ft., not 15,000 and Scottsville is 4540 sq. ft. not the 7500 recommended in the study. Due to the current fiscal crisis, all library projects, except Crozet Library, are no longer in the CIP but have been pushed into the out years until the County undertakes a new Capital Needs Assessment. Chart35 below shows the impact of both the Crozet Library and the proposed Northern Library on the square footage requirements. With the Crozet Library in place, the County s square foot per capita Report on Jefferson-Madison Regional Library Page 37 January, 2011

39 would increase to 0.51; with a new Northern Library, the County s per capita sq. ft. would be at the recommended level of 0.72 Chart 35 Proposed Library Facilities Albemarle County Space Current With new With new With Expanded Space Crozet Library Northern Library Scottsville Central (50%) 14,500 14,500 14,500 14,500 Gordon (50%) 3,697 3,697 3,697 3,697 Northside 15,600 15, Northern Library 0 40,000 40,000 Crozet 1,900 23,000 23,000 23,000 Southern Urban Scottsville 3,900 3,900 3,900 4,540 Total Square Feet 39,597 60,697 85,097 85,737 Minimum Sq Chart 36 below shows the impact on square footage if the County were to withdraw from the JMRL system and lose the space at Central and Gordon Avenue Libraries in the City. Current space without Central and Gordon would be at.22 sq. ft. per capita, half of what Albemarle has now. Even with the new Crozet Library and the Northern Library, in 2020 the County would still be below the.6 sq. ft. minimum at Only by building a Southern Urban Branch with 15,000 square feet would the County be above the minimum and at the recommended level with 0.69 sq. ft. in Without building a Southern Urban Library, the sq. ft. per capita would be down to 0.52 by Chart 36 Proposed Library Facilities Albemarle County Space Current With new With new With New Without Without City Facilities Space Crozet Library Northern Library Southern Urban Southern Urban Central (50%) Gordon (50%) Northside 15,600 15, Northern Library 0 40,000 40,000 40,000 Crozet 1,900 23,000 23,000 23,000 23,000 Southern Urban 15,000 0 Scottsville 3,900 3,900 3,900 3,900 3,900 Total Square Feet 21,400 42,500 66,900 81,900 66,900 Minimum Sq Report on Jefferson-Madison Regional Library Page 38 January, 2011

40 Proposed Library Capital Projects The following section describes the library capital projects that, with the exception of Crozet, have been moved into the out year Capital Needs Assessment, FY16 FY20. Chart 37 Capital Improvement Library Projects Crozet Northern Central Southern Scottsville Total Library Albemarle Renovation Urban Renovation Proposed Fiscal Year FY12/13 FY16-FY20 FY16-FY20 FY16-FY20 FY16-FY20 Additional Square Feet 23,000 40, , ,600 Capital costs 9,027,762 13,084,497 7,443,868 10,181,271 2,245,294 41,982,692 New Collection (books) 80,000 61, ,150 4, ,510 Annual Debt Service 902,775 1,308, ,390 1,018, ,530 4,198,270 Crozet Library - FY12-13 The proposed Crozet Library will be a 23,000 square foot LEED certified building that will serve as an anchor for a revitalized downtown, an identified need from the Crozet master planning process. It will be an expanded 2-story building with library function on the 18,000 square foot upper floor and 4,743 on the bottom floor to accommodate a yet-to-be-determined county and community use. This first floor space will serve as future library expansion space. The Library (Friends of the Library) will fund the book expenses and ½ of the furniture and fixtures. The County has spent $1.15 million to acquire parcels and design services to date. Northern Albemarle Library FY16 FY20 The long range plan had proposed a 40,000 facility with 30,000 sq ft and 10,000 sq ft for system operations and the bookmobile. This library will replace the current Northside branch and will be the main library for northern Albemarle, as well as the regional headquarters. The new library will house 61,161 new books for its collection. The Northside lease expires in For a projected cost of $13 million, annual debt service would be approximately $1.3 million. The current rent for Northside is $264,724 per year, so the net additional cost to build the new facility would be $1,043,726 per year, not taking into consideration rent increases over that same 20-year period. Construction costs for these improvements will be shared with the City based on circulation. Central Library Renovations FY16 FY20 The long-range plan had proposed to renovate the Central Library facility to be more adaptable to technology needs with better access to books and computers. However, renovation to the Central Library cannot begin until the new Northside facility is completed, since Technical Services, Administration and Bookmobile services would need to move to Northside in order to start work on Central. Renovation costs for these improvements will again be shared with the City based on circulation. Report on Jefferson-Madison Regional Library Page 39 January, 2011

41 Southern Urban Area Library FY16 FY20 The long-range plan had proposed to build a 15,000 branch library near Mill Creek to serve Urban Neighborhoods 4 and 5 and ½ of rural area 4. Both the 1999 and 2001 library space studies identified this growing area of the County as being underserved by library services. The new library will have a collection of 46,150 books. The Southern library branch could be built on county-owned property near the Monticello Fire Station. Scottsville - FY16 FY20 The Scottsville library currently has 3940 sq. ft. of space, which is below the state minimum standard of 4500 for a branch library. This planned expansion of 600 will bring the library up to The current library space will also be renovated and the library collection will be expanded by 4,200 new books. Report on Jefferson-Madison Regional Library Page 40 January, 2011

42 Major Study Findings One of the major objectives of this study was to provide broad background information, so Board members would have a better understanding of the library and the services provided to its residents. A second objective was a better understanding of the costs of providing library services and how JMRL compared with other similar libraries around the state. The third was to provide some understanding of the state mandates and standards and how the state dollars are allocated. Another objective was to provide an understanding of the impact of future library space needs on the County s CIP. The final objective was to determine if a different structure or type of library system might be more effective and efficient and whether that would mean pulling out of the regional system and setting up an Albemarle County library system Contractual Obligations Albemarle operates under a 1991 Agreement that allocates costs to each regional partner based on circulation. Of the peer regional libraries, two allocate by circulation and one by population. Cost allocation under the Agreement is based on each locality s circulation, although Albemarle is bearing a greater percentage of costs due to the current practice of allocating all out-of-area circulation to Albemarle s share. The Agreement does not speak to levels of service or costs contracted by each locality except for vague language, the Library Board shall provide and regulate library services to its residents... consistent with the wishes of the governing bodies of those jurisdictions. Under the agreement, Albemarle must give 2 years notice if it wants to withdraw. A joint committee is appointed by all the jurisdictions to decide on the distribution or allocation of buildings, books, furnishing and equipment. The assessed value of Central Library is $3.2 million and Gordon is $2.2 million for the building only (land reverts to Perry Foundation). The appointed committee would also decide on the allocation of these property assets. The Agreement does not speak to out-of-area circulation, which is an increasing segment of the region s circulation. Level of service JMRL provides an efficient and effective library system overall when compared to other localities despite having one of the lowest per capita funding levels and the lowest number of staff per capita. In major performance measures of library visits, collection size, print materials, computer usage, and number of libraries, JMRL has been able to maintain a comparable level with its peer localities with less resources. Report on Jefferson-Madison Regional Library Page 41 January, 2011

43 JMRL falls significantly below the median of peer localities in video and audio materials, reference transactions, weekly hours, library programs and program attendance, number of computer terminals and staffing. Albemarle has increasingly the highest circulation per capita in our region, but not among its peer localities, i.e. Albemarle 8.96 to 12 median for other localities. However, Albemarle is still above the state average and median, 7.28 and 5.57 respectively. Fiscal Measures In resource capacity, JMRL falls below the median of its peer localities in local revenue and total revenue per capita, but above the median in per capita State and Federal revenues. On the expenditure side, JMRL is below the median of its peer localities in the money it spends on the material collection, staff expenditures relative to total expenditures and total operating expenditures. JMRL falls below the minimum state standards in local public funds, operating expenditures per capita, local operating expenditures per capita, federal and other grant funds, percent expenditures on staff and percent expenditures on collection. The JMRL budget has increased on average 6.2% a year since FY04 with benefits and salaries increasing 11% and 5% a year respectively. The operational budget has seen modest increases at 4% a year. The Library has taken action to reduce the benefit costs, which have increased by only.6% since FY09. Mandates and Receipt of State Assistance JMRL meets all the state requirements for state aid. The State Library Board requirement that local library funding must be equal or greater each year has had no impact on the localities that have reduced library funding over the past three years. State assistance favors a regional approach. JMRL currently receives the largest grant in the state. Albemarle would receive less dollars per capita if it was a county library system. JMRL meets the minimum state standards or Level A in programmatic areas, but falls below the state standards in level of public funding, total and local operating expenses per capita and percent operating expenditures for staff and collection purchases. Report on Jefferson-Madison Regional Library Page 42 January, 2011

44 Comparison of our model with other peer communities There are four different models among the peer groups: a regional approach similar to JMRL with costs based on circulation; a single county library which is operated much like a department of local government; a single county or jurisdiction approach with shared circulation, i.e. Roanoke County; a regional system where the locality pays directly for the maintenance and upkeep costs for its own buildings, i.e. custodial, painting, general maintenance, etc. Some regional library boards have BOS or executive staff as members. All peer libraries have substantially reduced their library budgets over the past three years using different approaches. Some were given a reduction target and some self-imposed reductions to address revenue shortfalls. Some made across the board reductions and some reduced services within a specific jurisdiction depending on that locality s budget allocation. Although peer localities significantly reduced their library budgets, state funding was not reduced or withheld. Most peer localities work with library staff and board members on budget issues prior to the actual budget discussion. Impact of Library Capital Projects Albemarle currently has 0.41 square feet of library space per capita, which is under the recommended standard of 0.7 sq. ft. per capita, as well as the state minimum of 0.6 sq. ft. per capita. To attain these standards, the County would need to add 17,711 sq. ft or 27,236 sq. ft. respectively. There are four library capital projects in the prior long-range Capital Needs Assessment: Northern Albemarle, Central Renovation, Southern Urban and Scottsville for total capital costs of $38.1 million. With the addition of Crozet Library, the County will have 0.51 sq. ft. of space per capita: with a new Northern Albemarle Library, Albemarle would attain the recommended standard of 0.72 sq. ft. per capita. Crozet Library and a New Northern Library will provide an additional 63,000 sq. ft of library space at a cost of $22.1 million in capital costs and annual debt service of approximately $2.21 million. Options for Albemarle Does this information show that the County could provide better services on its own at a lower cost than a regional library? No, the data does not show that. Some regional libraries provide many more services per capita than JMRL, but at a much higher cost per capita. Per capita costs for the county only libraries in this study do not show that they can provide better services at a lower cost than the Report on Jefferson-Madison Regional Library Page 43 January, 2011

45 regional libraries. Even in the county systems with a lower per capita cost, i.e., Chesterfield, Roanoke and Fauquier, there are a number of off-budget operating costs incurred by the localities that are not included in the comparative numbers. In order to make a true comparison, those costs would have to be part of the analysis. Advantages of a County library system: County would have control over library programs and services and the mix of library hours and programs that fit their budget limitations. This assumes that the County maintains the Level A minimum standards for Virginia libraries. There is no requirement to have a Library Board, so Albemarle could operate a library system like a county department. The County could use current county systems, i.e., HR, payroll, purchasing, custodial, maintenance and technology infrastructure, although there would still be a cost to the County. Disadvantages of a County library system: The County would receive less state funding as shown in the state funding scenarios. However, the importance of this will depend on the future of state library funding, which has been on a downward trend. The County, as a single entity library, would not have access to the larger collection of materials, i.e., books, audio, video and electronic books, that are now afforded to Albemarle citizens by the regional library. Albemarle s current collection, assuming 50% of Central and 50% of Gordon and the other branch libraries, is approximately 251,000 items or half of the regional collection. Albemarle would have significant start-up costs to implement an independent library system, i.e. delivery system, record keeping, on-line technology system, as well as additional volumes for the County s collection. There could also be significant buy-out costs for employees currently on the City s retirement system, as well as costs associated with moving employees to the County s health insurance. Albemarle County does not have the needed library space for its residents without Central and Gordon Avenue Libraries. With 95,000 citizens, Albemarle is about 18,000 square feet shy of meeting the.6 minimum sq. ft. requirements for libraries. Without Central and Gordon, Albemarle would be almost 36,000 sq ft short of the minimum or about.2 sq. ft. per capita. Currently there is no library space for Albemarle County residents who live east or south of the City or Ivy area residents except at Central and Gordon Avenue branches. Albemarle County would lose 18,000 square feet of library space at Central and Gordon that has already been paid for in exchange for incurring additional debt at a time when capital funds are limited. Building the Northern Albemarle Library could cost $14.9 million with $1.0 million in annual debt service. Even if $2.7 million in land and building assets from Central and Gordon libraries could be used to offset the capital costs, the additional debt service would be $820, Report on Jefferson-Madison Regional Library Page 44 January, 2011

46 000 a year. More importantly, even if additional library space is built on 29 North, it will not be easily accessible to County residents who live east or south of the city. Unknowns of a County library system Should the County decide to pull out of the regional library agreement, the distribution or allocation of buildings, books, furnishings and equipment shall be negotiated by a joint committee appointed by all the participating jurisdictions. However, any library books or other media, permanently assigned to any particular local collection at the time that negotiation for dissolution begins, shall remain in the jurisdiction responsible for that local collection for its use or disposal. Dependent on the decisions of a joint committee, there are many unknowns and unanswered questions: How would the County s assets be divided? The County and City jointly own Central Library (assessed value $3.2 million), but how would the furniture, equipment, collection, computers, etc. be divided? No deed of record to the County has been found for the Gordon Avenue Library (building value, $2.2 million) and the land reverts back to the Perry Foundation if not used as a library or a park. If ownership is unclear, would Albemarle receive half the assets of Gordon Avenue upon dissolution? If the County had its own system of branch libraries, how would County residents be restricted from using Central Library when it is the closest branch to where they live? How will County residents continue to use the Central or Gordon Library during the hours they work downtown or near the University? If heavy County usage continues at Central and Gordon Libraries, would JMRL charge the County for out-of-area users based on circulation, as Chesterfield does with Richmond? If such an agreement was in place, would Albemarle s costs for Central and Gordon be similar to what they are now? Or would JMRL consider County residents out-of-area users and charge them a fee? Would some County residents (eastern, southern and Ivy) be charged a fee to use a library in the City, while other County residents had free access to a library? Estimating the true cost of setting up a separate library system is uncertain at this point without more detailed information about start up costs, economies of scale and service levels, as well as a better understanding of Albemarle s peer counties off-budget expenditures that support their library operations. Report on Jefferson-Madison Regional Library Page 45 January, 2011

47 Recommendations Organizational The Regional Library Agreement needs to be updated. It has not been reviewed since 1991 and it should be reviewed at least every 5 years. There are a number of amendments that could improve the agreement: 1. Further evaluate Out-of-Area Assessment and strive to achieve more equitable allocation of these costs among all JMRL users. 2. Consider charging out-of-area users for use of library services if a more equitable allocation methodology is not achieved. 3. Further evaluate funding formula for regional services. 4. Formalize cost allocation formula between City and County for Monticello Avenue, McIntire Library and the Bookmobile through formal written agreement with the City pursuant to the JMRL Agreement. 5. Consider making annual appropriations by Regional Services, City/County and County-only categories rather than one lump sum annual appropriation. 6. Provide clear direction related to roles and responsibilities for appointed Library Board Representatives. 7. Consider changing the number of Board members so Albemarle has greater representation for its share of circulation. Currently, the City and County have an equal number of representatives although the County has twice the population, generates 65% of the overall circulation for the system and correspondingly contributes almost 60% of the cost of JMRL operations. Budget Process The budget process might be less acrimonious and more aligned with the County s wishes and needs if the following suggestions were implemented: 1. Modify JMRL budget document to mirror County format: a. Staffing levels by functional area b. Actual expenditures c. Total revenues to include contributions and donations Friends of the Library d. More detailed description of major budget variances and identification of core vs. enhanced services. Report on Jefferson-Madison Regional Library Page 46 January, 2011

48 2. County staff (administrators or budget staff) should establish an official meeting with the library staff and library board members way ahead of the start of the budget process (October) to discuss budget issues and agree on a budget target. 3. Agree upon important library performance measures to be included in the County s performance management system for review during budget discussions. Examples from other localities are included in Appendix F. 4. Include more budget and performance information in the budget for the Board s review in approving funding. Currently, the library with its $3.2 million dollar cost to the taxpayer is included as a single line-item expenditure along with other smaller community agencies ranging from $2,500 to $30,000 with the exception of the Visitor s Bureau with no explanation of the library s performance and/or budget needs. If library service is an important function of local government, the library should then be afforded more space with more scrutiny, accountability and attention similar to a department of government, rather than a small community agency. Other localities include more detailed analyses of their library budgets and their performance in their budget documents. 5. The Library Board and its staff need to recognize that the County s current fiscal crisis severely curtailed its ability to fund, not only its own services, but services provided by community agencies and organizations. Funding reductions were recommended across county government and community agencies, not only to JMRL. This report showed that other libraries across the state, whether they were regional or county, responded to their localities fiscal crises by cutting programs, hours, staff, etc. and that library services like all community services were adjusted to meet the current economic reality. The Library Board should work with the Board of Supervisors and County staff to develop a budget request that meets the library s needs, as well as the County s fiscal constraints. Capital Facilities 1. Continue to monitor and evaluate capital needs for County library services as they relate to evolving changes in technology (on-line transactions, downloadable books/self-check out kiosks), as well as the need for continued investment in downtown library facilities once County facilities are constructed at Crozet, Northside and Southern Development Area. Library buildings may still be needed, but the increasing use of on-line technology to access books and reference materials may have a major impact on the use and configuration of future library space. 2. Explore realistic options for expanding library space at Northside or building a northern or southern urban library before deciding to break from JMRL and the space offered at Central and Gordon Libraries, space that is heavily used by County residents. 3. Since 26% of Scottsville s circulation and much of its growth is attributed to out-of-area users, particularly Fluvanna, agreement with Fluvanna on shared costs may be in order prior to the Scottsville expansion. Report on Jefferson-Madison Regional Library Page 47 January, 2011

49 APPENDIX Appendix A. JMRL 1991 Amended Agreement Appendix B Out-of-Area Library Use 2006 Appendix C Description of Albemarle s Regional Library System Appendix D Calculation of State Funding for Regional Libraries Appendix E State Library Standards Report on Jefferson-Madison Regional Library Page 48 January, 2011

50 Appendix F Peer County Performance Measures Appendix A 1991 JMRL Agreement Report on Jefferson-Madison Regional Library Page 49 January, 2011

51 Report on Jefferson-Madison Regional Library Page 50 January, 2011

52 Report on Jefferson-Madison Regional Library Page 51 January, 2011

53 Report on Jefferson-Madison Regional Library Page 52 January, 2011

54 Report on Jefferson-Madison Regional Library Page 53 January, 2011

55 Report on Jefferson-Madison Regional Library Page 54 January, 2011

56 Report on Jefferson-Madison Regional Library Page 55 January, 2011

57 Report on Jefferson-Madison Regional Library Page 56 January, 2011

58 Appendix B Out-of-Area Library Use 2006 Number of out-of-area users registered at JMRL: Nearby Jurisdictions Fluvanna 2450 Amherst 201 (2007) Buckingham 576 Orange 376 Madison 299 Waynesboro 104 Augusta 99 Subtotal 4105 All Other Virginia 345 GRAND TOTAL OUT-OF-AREA 4450 Number of JMRL residents registered at other libraries: Nearby Jurisdictions. Waynesboro 1143 (75% Nelson, 15% Albemarle) Amherst 900 (Nelson County only) Pamunkey 767 (Louisa County only) Orange 750 (estimate) Augusta 500 (estimate) Fluvanna 350 (estimate mostly Scottsville & Louisa) Staunton 50 (estimate) Buckingham 50 Madison? ESTIMATED TOTAL 4510 % of Out-of-Area Circulation (2005): Scottsville 32.7% Central 4.7% Northside 4.6% Greene 3.4% Nelson 2.3% Gordon Ave. 2% Bookmobile 1.7% Crozet 1% Louisa 1% 6/06 Updated to include Amherst 6/07 Report on Jefferson-Madison Regional Library Page 57 January, 2011

59 Appendix C Albemarle s Regional Library System Central Library Central Library serves as the administrative headquarters for the library, as well as a full service library for City and County residents. The City and County purchased the old Post Office and Federal Building for $250,000 in After a 17-month extensive renovation project for the regional library headquarters and expanded services costing over $2.25 million ($1,030,143 each from the County and City and $200,000 from private donors), the library opened in 1981 after moving the McIntire collection of 90,000 volumes from next door. The library was again renovated in 1995 to allow for the opening of a public computer lab for internet access, as well as the development of a community information network, Monticello Avenue. The 2010 City real estate assessment is Land Value: $869,000, Bldg.Value: $2,350,000 for a total value of $3,219,700. Central Library has 29,000 sq. feet of usable space, 3 public meeting rooms with a capacity of 115 people and holds the largest collection of 143,382 items or 29% of the library s collection. There are 47 computers for public use in the public lab and in the reference section, which also provides access to printers and the microfilm collection. Total circulation at the Main Library is 394,610 or 24.4% of the total circulation of the library system and 23.8% of Albemarle s circulation. Overall circulation has declined 3% since FY04. Central Library is open 68 hrs. per week, M-Th 9 9, Fri-Sat 9-5, Sun 1-5 The County s FY11 cost to operate Central Library is $538,792 based on 60.77% of circulation; the City s cost is $347,817 based on 39.23% of circulation. There are FTE at Central Library Gordon Avenue Library Gordon Avenue Library opened in 1966, the first major addition to library services with construction funded jointly by the City of Charlottesville and Albemarle County. At the time, Gordon Avenue was needed to serve a growing population west of the city and to ease crowded conditions at the McIntire Library (prior to the purchase and renovation of the Central Library in 1977). The Perry Foundation donated the site to the City, as well as 45% of the construction costs. Federal Library Aid through the state funded $120,262. Report on Jefferson-Madison Regional Library Page 58 January, 2011

60 Charlottesville and Albemarle County appropriated $75,000 each for the construction and additional funds were donated by individuals and groups, notably the America Association of University Women and the Friends of the Library. If the land is not used for a library or a park, it is returned to the Perry Foundation. The 2010 City real estate assessment is Land Value: $446,000, Bldg. Value: $2,150,700 for a total value of $2,596,700. Total circulation at the Gordon Avenue Library is 183,127 or 11.3% of the total circulation of the library system and 10.4% of Albemarle s circulation. Circulation has increased 11.8% since FY04. There are 10 computers for the public. The library was designed to hold 25,000 volumes (with an additional 10,000 in the Bookmobile "garage" downstairs) with three public meeting rooms. The current collection is 67,253 items or 13.4% of total collection. Gordon Avenue is open 52 hrs. per week, M 9-9, T 9-6, W 12-9,Th 10-6, Fri-Sat 10-5, no Sun and is served by 6.47 FTE. The County s FY11 cost to operate Gordon Avenue Library is $185,527 based on 54.9% of circulation; the City s cost is $152,410 based on 45.1% of circulation. Northside Northside opened its doors in 1991 in a 15,500-square-foot space in Albemarle Square Shopping Center that once housed a discount pharmacy. Albemarle and Charlottesville funded the renovation at $210,000. Albemarle Square also contributed over $100,000 to the renovation. Grants from the Charlottesville/Albemarle Foundation and the Friends of the Jefferson-Madison Regional Library augmented the furnishings budget with an additional $100,000. The library was intended for a capacity of 100,000 and is now at 102,634 9 (capacity) and reflects 20.45% of the total system collection. Northside has 1 meeting room with a 75 person capacity. Total circulation at Northside is 526,961 or 32.54% of the total circulation of the library system and 42% of Albemarle s circulation. Circulation has increased 16.3% since FY04. There are 14 computers for the public. Northside is open 55 hrs. per week, Sun 1-5, M,T 12-9, W 10-9, TH 10-6, F 10-5, Sat 10-5 and is served by FTE s. Report on Jefferson-Madison Regional Library Page 59 January, 2011

61 The County s FY11 cost to operate Northside Library is $876,619 based on 85.51% of circulation; the City s cost is $148,547 based on 14.49% of circulation. Crozet The Crozet Library opened in 1984 in the old railroad depot, which was purchased and restored by the Perry Foundation. The building was built in 1923 at a cost of $16,000. When the automated catalog and record-keeping system was installed in 1987, circulation doubled. The collection at Crozet is now 32,960 items or 6.5% of the collection. Circulation is 137,746 or 8.5% of total circulation and 14% of Albemarle s circulation. Circulation has increased by 48% since FY04 or 8% per year. The library is open for 48 hours each week. M-T 1-9, W-Sat 9-5 Sun none and is served by a staff of 4.57 FTE. There are 5 computers available to the public and a meeting room that seats 25. Albemarle s FY11 cost to operate is $228,120. Scottsville The beginning of the regional library system has been traced back to a cooperative venture between Albemarle and Charlottesville to have a bookmobile go to the Scottsville school for two hours a week. The Scottsville Branch Library opened on June 4, 1959, with 1,500 donated books Open for sixteen hours a week, the new library was governed by a local board, with rent of the building and the salary of the branch s first librarian paid by McIntire Library. In September 1980, the library was hit by lightning and almost totally destroyed by fire, so in 1982 ground was broken for a new building at the site of the old one and in 1982, the current 3900 square foot brick colonial building opened. Scottsville Branch Library has a collection of 19,096 volumes or 3.8% of the total collection. Circulation is 67,318 or 4.14% of total circulation and 5% of Albemarle s circulation. Circulation has increased 19.4% since FY04. The greatest increase in circulation has been from out-of-area users at 26% of circulation. Report on Jefferson-Madison Regional Library Page 60 January, 2011

62 Scottsville has 8 computers for the public and has a staff of 3.09 FTE s. The library is open 48 hours a week: M-T 1-9, W-Sat 9-5. The County s FY11 cost to operate the Scottsville Branch Library is $159,382. Bookmobile The Library has offered Bookmobile services since 1946 with its own collection of 1800 to 2000 books that are carried to each stop. The Bookmobile operates Monday through Thursday in Albemarle County and has scheduled stops in the City in the afternoons and evenings. Twice a month, the Bookmobile travels to Louisa County. Patrons can place holds on materials and pick them up at their respective stops. Patrons may also request materials on particular subjects to be delivered to their stop. Materials borrowed from the Bookmobile may be returned to any JMRL location and materials from other JMRL locations may be returned to the Bookmobile. The new bookmobile valued at $180,000, was purchased in 2005 with funds from Albemarle County, City of Charlottesville, and Friends of the Library. The City and County share funding for the Bookmobile based on circulation. The FY11 cost to the County was $64,694 (72%); the City s cost was $17,197 (19%). Louisa County pays $6,900 (7.7%) for two days per month. The Albemarle County Historical Society Library The Albemarle County Historical Society Library opened in 1974 at 220 Court Square. The library s collection was consolidated in 1987 with those of the Jefferson-Madison Regional Library and the Central Virginia Genealogical Association, to form the Charlottesville-Albemarle Historical Collection. The collection is housed in the former McIntire Library, extensively restored and renovated in 1994, and is a branch jointly operated with the Historical Society. Albemarle and Charlottesville share the cost 50/50 for the operational costs for the Historical Society Library based on an unwritten agreement. The FY11 cost of operations to each jurisdiction is $37,737. Mont-AVV Monticello Avenue is a community information network dedicated to promoting civic use of the World Wide Web by 1) Assisting community organizations in establishing Web pages; 2) Educating community members about the resources available and; 3) Organizing the growing amount of electronic community information. Through Mont-AVV, people can learn about community s government services, school activities and educational opportunities, local businesses, cultural events, health and human service organizations, neighborhood associations and religious groups. Non-profit organizations in Albemarle or Charlottesville are eligible for free space on the community information server, free , and free training and tech support. Monticello Avenue is jointly supported by the City of Charlottesville, the County of Albemarle, and the Jefferson-Madison Regional Library. The server is housed in the Central branch of the Jefferson-Madison Regional Library. In the FY11 budget, the County and the City each contributed $86,145 to maintain the Mont-AVV program. There has been an informal agreement to share the costs of this program 50/50 with the City, but it is not part of the formal agreement. To see the site: Report on Jefferson-Madison Regional Library Page 61 January, 2011

63 Appendix D Step 1 Estimating Locality Expendirues Based on Their Proportional Contribution - using FY06 local expenditures Percent of Contribution Contribution Other Localities to Regional to Regional Regional Unused Total Served Revenues Revenues Revenues Revenues Expenditures a b c (a+b) -d Charlottesville 2,527, % 360, ,887,546 Albemarle 1,155, % 164, ,319,905 Greene 206, % 29, ,310 Louisa 267, % 38, ,065 Nelson 207, % 29, ,879 Total 4,364, , ,986,705 Total Expenditures Local Expenditures Grant 622,499 d d*0.40 JMRL Local Charlottesville 2,887, ,000 Expenditures Grant Albemarle 1,319, ,000 $811,701 Greene 236,310 94,524 Louiisa 306, ,426 Nelson 236,879 94,752 4,986, ,701 Step 2 Step 3 Per Capita Grant Calculations Mileage Grant Calculation JMRL Population ,037 JMRL Square Mileage 1,861 Number of localities served 5 Number of Localities Served 5 Per Capita Grant Calculation 30 cents per capita for first locality 57,911 Mileage Grant Calculation (0.30 x 193,037) $10 per square mile for first locality 18,610 ($10 x 1,861) 10 cents per capita for each additional $20 per square mile for all additional 37,220 locality (0.10 x ) x 4) 77,215 localities served $20 x 1,861) Total Per Capita Grant $135,126 Total Mileage Grant $55,830 Step 4 Final Funding Formula Calculations for Total State Aid Step 1 - Local Expenditure Grant $811,701 Step 2 - Per Capita $135,126 Step 3 - Mileage Grant $55,830 Criterion 1 - No Certified Librarian Funds Final State Aid $1,002,657 Report on Jefferson-Madison Regional Library Page 62 January, 2011

64 Calculations for Albemarle County As a Single County Library System Step 1 Estimating Locality Expenditures Based on Their Proportional Contribution FY08 Local Data to Calculate FY11 State Aid Percent of Contribution Contribution Other Localities to Regional to Regional Regional Unused Total Served Revenues Revenues Revenues Revenues Expenditures a b c (a+b) -d Charlottesville 1,287, % 153, ,789 1,324,797 Albemarle 3,041, % 361, ,519 3,129,450 Greene 276, % 32,833 24, ,073 Louisa 307, % 36,565 27, ,362 Nelson 231, % 27,565 20, ,496 Total 5,144, , ,632 5,293,178 Total Expenditures Local Expenditures Grant d d*0.40 JMRL Local Charlottesville 1,324, ,000 Expenditures Grant Albemarle $250,000 Greene 0 Louisa 0 Nelson 0 1,324, ,000 Step 2 Step 3 Per Capita Grant Calculations Mileage Grant Calculation JMRL Population ,116 JMRL Square Mileage 1,861 Number of localities served 5 Number of Localities 5 Per Capita Grant Calculation 30 cents per capita for first locality 60,035 Mileage Grant Calculation (0.30 x 200,116) $10 per square mile f 18,610 ($10 x 1,861) 10 cents per capita for each additional $20 per square mile for all additional locality (0.10 x 200,116) x 4) localities served $20 x 1,861) Total Per Capita Grant $60,035 Total Mileage Grant $18,610 Step 4 Final Funding Formula Calculations for Total State Aid Step 1 - Local Expenditure Gra $250,000 Step 2 - Per Capita $60,035 Step 3 - Mileage Grant $18,610 Criterion 1 - No Certified Librarian Funds Final State Aid Eligibility $328,645 Final State Allocation $180, % Report on Jefferson-Madison Regional Library Page 63 January, 2011

65 Appendix E State Standards Planning for Library Excellence, 2009 sets the standards for library systems across the Commonwealth and all libraries are expected to meet the minimum or Level A. The history of these requirements began in January 1978 when the State Library Board approved Recommended Minimum Standards for Virginia Public Libraries. The five-page document covered staffing, salaries and benefits, buildings, outlets, collections, reference service, staff development, children s services, adult services, programs, and cooperation. Two additional documents were later approved: Children s Service Suggested Guidelines and Young Adult Services Guidelines for Virginia. In 1982, the Library Development Committee of the Virginia Library Association started to review the Recommended Minimum Standards. In 1986, their document was sent to the Library of Virginia Board for consideration. These standards, Planning for Library Excellence (the blue book), were adopted on November 7, Chapters included Administration and Planning, Resources, and Services. The 1987 edition of Planning for Library Excellence (PLE) established service levels as I, II, III, with the notation that the levels were intended to provide both incentive and achievability to those goals where levels were desirable. The 2002 edition of PLE used the terms essential, aspiring, and excel for the guidelines and added planning profiles based on medians. Planning for Library Excellence, 2009, uses a business model based on the notion of bond ratings, i.e, A, AA, and AAA, as their ranking system. A = Investment grade but likely to be subject to changing business conditions. Minimum standards required for all state funds. AA = Investment grade at a strong level on all qualities. AAA = Strongest investment grade and not subject to business cycle extremes. The 2009 service measures are considered as cumulative. To reach level A (basic and mandated services), all of the measures must be reached. Levels AA and AAA likewise depend on achieving the preceding measures. Wherever possible, the measures are progressive. For example: full-time equivalent staffing levels grow from.3 FTE per 1,000 persons in the library service area at level A to.5 FTE at level AA and increase to.6 FTE at level AAA. There are 11 major categories of standards upon which a Virginia library is judged with multiple criteria under each category: Governance and Administration, Funding and Administration, Public Relations, Resources, which includes Staff Level, Staff Development and Volunteers, Collections, Facilities, Technology, Services, which includes access and services, Information Services, Programs, Services to Targeted Groups. Report on Jefferson-Madison Regional Library Page 64 January, 2011

66 Appendix F Performance Measures examples from Pamunkey, Stafford and Henrico Report on Jefferson-Madison Regional Library Page 65 January, 2011

67 Report on Jefferson-Madison Regional Library Page 66 January, 2011