Libraries as Universal Service Providers

Nancy Kranich
KS Consultants
Past President of the American Library Association
Former associate dean of libraries at New York University
nancy.kranich@nyu.edu
814-234-0777

December 1, 2006

In the twentieth century, public libraries deployed a number of creative means such as mobile and outdoor libraries, packhorse rural delivery, literacy training, and reading to the blind to ensure that everyone in their communities was served. Similarly, today's public libraries provide access to the Internet, ensuring equal opportunity and leveling the playing field for all Americans. 2/3 of Americans use a public library at least once every year, either in person, by phone, or by computer. These numbers hold for Americans of all groupings and ethnicities. Thanks to the Universal Service provisions of the Telecommunications Act of 1996, the Gates Foundation, and local, state and federal investments, 99% of public libraries are now wired -- many with broadband and wireless services -- and offer free public access to the Internet. Libraries are now the number one point of access for the public outside the home, school, and work, leveling the playing field for those left behind in the digital age. But universal service programs need increased funding, better coordination, policy changes, and service improvements if every American is to have the opportunity to participate in the 21st century information society.

Kranich identifies a number of issues concerning the E-rate:

1. Program Inequities
While the E-rate program has connected many libraries throughout the country, its impact varies. Just as gaps in citizen’s access to computers and telecommunications networks persist, so do disparities in support for institutions that underpin the universal service infrastructure. Differential levels of service across libraries, particularly between urban and rural and rich and poor districts as well as between states, must be equalized as well as sufficient before America’s evolving information needs are fully met through public access programs like the E-rate.

2. Infrastructure Challenges
Even though many communities, especially those in rural America, are eager to connect their libraries, they lack access to broadband. To achieve the Bush Administration’s stated goal of universal broadband deployment by 2007, the ALA has proposed that the FCC use the E-rate program to aggregate demand from schools and libraries with others in a particular area in order to build a business case for much needed infrastructure buildout and/or expansion.

3. Bureaucratic Complexities
35.3% of libraries that qualify for E-rate discounts did not apply in 2006 because they are either unaware of their eligibility, lack sufficient staff to implement new technologies, or find the application process too complex. Another 31.7% failed did not submit proposals because they felt the low discount rate was not worth the effort to participate.

4. Meaningful Performance Measures
Federal regulators need to collect better data and develop meaningful performance measures related to the core mission of the E-rate program.

5. Demand Outstrips Supply
Although public libraries have leveraged private, federal, state, and local funds to offer high quality Internet access, 80% report that they cannot meet user demand.

6. Federal Laws Undermine Public
The Children’s Internet Protection Act (CIPA), passed by Congress in 2000 and upheld by the Supreme Court in June 2003, mandates use of blocking software on all public library and school computers as a condition for eligibility to receive E-Rate discounts or federal grants under the Library Services and Technology Act (LSTA) and Title II of the Elementary and Secondary Education Act (ESEA). Unfortunately, filters do more harm than good, blocking only some sites with indecent materials and communications sent through e-mail, chat rooms, non-web sources, peer-to-peer exchanges, and streaming video while restricting access to thousands of legal and useful resources.

Policy Recommendations
The following recommendations are proposed to improve the universal service program:

• Promote an evolving concept of universal service
  • Use the federal E-rate program to achieve the Bush Administration’s goal of universal broadband deployment by 2007.
  • Support affordable, advanced universal broadband services for all libraries that offer public access computing.
  • Maintain flexibility for eligible categories for services covered under the E-rate program in order to allow local communities to respond to their particular needs.
  • Keep the E-rate program technology neutral and encourage more local control.
  • Support improved rural high bandwidth connectivity so that libraries can offer more advanced services in these communities.
  • Develop a means for extending the E-Rate program to communities that lack public libraries.
• Simplify the E-rate application process and reduce bureaucratic and other barriers to E-rate participation.
  • Make it easier for less advantaged libraries to apply and receive assistance.
  • Encourage local, regional, and state library organizations to develop technology plans, rather than requiring submission of a plan to USAC that fails to advance the needs of local libraries.
  • Fund more libraries at higher discount rates so they can help America realize the vision behind universal service.
  • Incorporate an evaluation component into the E-Rate program that promotes more useful and timely data collection and demonstrates the substantial state and local contributions to providing access.
  • Rectify inequities in the discount calculation methodology so that libraries and schools can compete on a level playing field.
  • Bring stability and create greater certainty for long term technology planning and budgeting by providing a permanent exemption from the Anti-Deficiency Act requirements and ensuring that future funding is not disrupted.
• Eliminate unwarranted and unfunded mandates that discourage participation and relegate library users to second class Internet use.
  • Offer telecommunications services without content controls.
  • Ensure that libraries continue to provide open access to all types of information to all people.
  • Provide statutory protection for the principles of non-discriminatory open access to the Internet (net neutrality).
• Recognize and support the 4 C’s--connectivity, content, capability and context as part of universal service.
  • Develop a government-wide strategy for closing information access gaps.
  • Coordinate federal, state, and other efforts to close information access gaps by working with agencies and organizations focused on all components of universal service.
  • Leverage the E-rate program with other federal, state and private efforts in order to enhance the reach of the program and services to all Americans.
  • Recognize the vital role that universal service plays during crises and include libraries in the nation’s emergency services planning and funding.
  • Fund libraries to serve as e-government agencies.