Report of the Interministerial Working Group on the Library and Information Services (LIS) function (National Level): Draft

1. Introduction and background

2. Terms of reference of the working group

5. Advisory and coordinating mechanisms

6. The role of information technology

Acronyms and abbreviations used

Annexure A - Overview of the current state of LIS in South Africa

Annexure B - Governance structures for LIS: a comparative international perspective

Annexure C - List of stakeholders who submitted inputs

Jointly published by
Department of Arts, Culture, Science and Technology and the Department of Education

Cataloguing-in-publication information:

Interministerial Work Group on the Library and Information Services (LIS) function (national level) (South Africa)
Draft report of the Interministerial Working Group on the Library and Information Services (LIS) Function (National Level) as presented to the Minister of Arts, Culture, Science and Technology and the Minister of Education on 14 June 1996 / Interministerial Working Group on the Library and Information Services (LIS) Function (National Level).
Pretoria : Department of Arts, Culture, Science and Technology and the Department of Education, 1996. - 32, 22 p.
Chairman: Prof. SP Manaka. - Working Group jointly appointed by the Minister of Arts, Culture, Science and Technology and the Minister of Education.
ISBN 0-7970-3326-2

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Preface

This report originated from the desire by the Minister of Arts, Culture, Science and Technology and the Minister of Education to be advised by a working group consisting of academics and experts on matters of governance of library and information services (LIS) at the national level.

Previous reports on LIS, for example the ACTAG Report, the CEPD LIS Task Team Report, the NEPI Report, to name the most recent, have concerned themselves with various aspects of LIS policy. This report restricts itself in accordance with the brief of the two ministers mentioned and concentrates specifically on governance of LIS at the National Level and matters related thereto.

The Working Group started its work in November 1995 and targeted itself to complete the report by 31 May 1996. Members of the Working Group set about their task by -

assigning preparations of discussion documents by individual members;
communicating and sharing ideas via e-mail; and
holding meetings for deliberations.

Four meetings were held while a full-day seminar was conducted on 11 March 1996 with heads of provincial library services, metropolitan libraries, provincial school library and media services, representatives of library associations and other LIS organisations and members of the Working Group.

Contributions were received from various stakeholders country-wide consisting of different library types, leaders of library associations, library and information science educators as well as bibliographic databases.

All these contributions by LIS practitioners, academics and stakeholders helped in shaping the content of this report. It is hoped that this report will initiate and stimulate further discussion as well as investigations on governance of LIS at the national level and related issues. This report will be widely distributed to LIS stakeholders for comments. The report, together with comments, will then be considered by the two ministers.

We wish to thank all stakeholders, members of the Interministerial Working Group and officials of the Department of Arts, Culture Science and Technology and Department of Education who were directly involved in the making of this report.

As we lay the foundations of the information society in our country may we be guided by the knowledge that the information society is not a society which nations automatically achieve; most importantly, they must share a vision of that society.

PROF SP MANAKA
CHAIRMAN
DATE: 14 June 1996

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Executive summary

The Minister of Arts, Culture, Science and Technology and the Minister of Education have appointed an Interministerial Working Group on the Library and Information Services (LIS) Function (National Level) to advise them on mechanisms to ensure good governance of the library and information system at the national level in South Africa, and to facilitate maximum availability and use of all relevant information sources to advance the Reconstruction and Development Programme.

The Working Group interpreted its brief in the context of the challenge of bringing the advantages of the information society to all communities of South Africa in order to promote social development and economic growth. Libraries and information services have a crucial role to play in this regard. In expanding the information society, the over-arching goal of the Growth and Development Strategy (GDS), which is to promote socio-economic development in South Africa, must be kept in mind. In the same breath, all programmes and facilities that will provide access to information should be aligned to these broad strategies. This process entails the planning and development of a suitable infrastructure for the information society that can be utilised to support development in all sectors.

The Working Group considered the reports of the previous policy initiatives conducted since the early 1990s, in which some issues were already addressed. The Working Group came to the following conclusions regarding the proposed mechanisms:

Location of mechanisms

The Department of Arts, Culture, Science and Technology (DACST) and the Department of Education (DoE) are equal partners in decision-making regarding library and information services (LIS). DACST has a major role in the development of national information society policy and should therefore continue to be responsible for national LIS issues. It is therefore recommended that DACST remain the national focal point to handle LIS issues at the national level.

DoE is an important partner regarding LIS issues, as educational libraries have a very important role in the LIS sector. The Report of the Arts and Culture Task Group (ACTAG) points out that the university libraries hold the lion's share of the national bookstock of the country. DoE will also develop broad policy for school libraries. Both DACST and DoE would be represented on national governing bodies for LIS issues.

It is recommended that DACST and DoE function in a partnership regarding LIS issues (see par. 5.1.2).

The establishment of a National Council for Library and Information Services

The LIS sector has largely reached consensus on the functions of a national council, but ideas about its composition still differ to some extent. In this investigation, attention has also been given to the international perspective.

The Working Group recommends that DACST and DoE should, as soon as possible, establish an Interdepartmental Coordinating and Planning Committee (ICPC), which would serve as an interim instrument to address some urgent strategic issues until a council has been established (see par. 5.2.1.1).

The Working Group further recommends that a national council for library and information services be established (see par. 5.2.2.3).

The relationship between National LIS structures and functions, and those within the provinces

There is a need for a mechanism to establish linkages between the national and provincial LIS structures. It is recommended that the existing Council of Ministers (MINMEC) for Culture, on which the Minister of Arts, Culture, Science and Technology and the provincial Members of the Executive Councils (MECs) serve, as well as the Council of Education Ministers, be utilised to provide this linking mechanism (see par. 5.3.3).

The role of information technology at the national level to facilitate access to information

Information technology is the enabling instrument that must be harnessed to ensure integrated access to information.

LIS policy should not be approached in isolation from the general national information society policy. The important role of LIS in the broader information society policy should be stressed. Links on all levels, from the strategic to the operational, and on all levels between, national and international sources of information are essential in both policies.

Should a national planning mechanism be established in South Africa for information society policy, it should be represented on a national council for library and information services, and vice versa.

Should community centres and other bodies of excellence be established, they should be linked to local libraries, as well as the South African Bibliographic and Information Network (SABINET) and other information networks and services (see par. 6.6).

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1. Introduction and background

1.1. Development of Library and Information Services (LIS) policy

Previously, and especially since the early 1990s, there have been various policy development initiatives in South Africa to address the continuous challenge to improve access to information for all communities. These issues were also addressed by previous advisory councils. The abolition of the National Advisory Council on Libraries and Information (NACLI) in 1986 left a gap in LIS governing instruments at the national level. Library and information services (LIS) practitioners participated widely in these efforts to bring to the attention of policy makers the problems experienced by LIS in providing access to information to all communities.

The issue of an information society policy to facilitate access to information for all sectors of society, and to examine the role of the information community in promoting socio-economic growth, is at present receiving attention from Government at large. The Department of Arts, Culture, Science and Technology (DACST) is one of the Departments that will play a major role in this initiative. DACST is also cooperating in various international and national information projects to expand access to information in Southern Africa. Development of policy guidelines will take place in consultation with other sectors in society, including civil society. Government is committed to design a process that will ensure participation of all sectors of society in the planning and implementation of the information society in South Africa. Government's determination to establish the information society in all communities in the country is reflected in Deputy President Mbeki's initiative, which resulted in the presentation of the international Information Society and Development (ISAD) Conference, held in South Africa in May 1996. The South African position paper was coordinated by the Department of Arts, Culture, Science and Technology and drafted in cooperation with representatives of the information technology sector.

The Government is committed to promote the free flow of information and, in this respect, the Open Democracy Act (currently a Bill) will be a major enabling instrument.

1.2. Background information

1.2.1. LIS policy investigations

The current investigation resulted from recommendations made in reports of previous policy investigations conducted since 1990, namely those by -

the NEPI (National Education Policy Investigation) Library and Information Services Research Group (a project of the National Education Co-ordinating Committee);
the CEPD (Centre for Education Policy Development ) LIS Task Team; and
ACTAG (Arts and Culture Task Group), appointed by DACST.

1.2.2. National alignment of LIS

An issue that was addressed in the investigations mentioned in par. 1.2.1 concerns the national alignment of library and information services (LIS), i.e. which Government department should handle LIS matters at the national level. Uncertainty regarding this matter increased after the abolition of the Department of National Education in July 1994.

That Department's functions were then carried over to three new departments, namely the Department of Education (DoE), the Department of Arts, Culture, Science and Technology (DACST), and the Department of Sport and Recreation. This resulted in a division of the responsibility for library and information services.

The Subdirectorate of Meta-information was established in May 1993 as part of the old Department of National Education. This new Subdirectorate retained certain functions of the previously existing Public Service Library Service, which can be regarded as its predecessor. In July 1994, the Subdirectorate of Meta-information was transferred to the newly established DACST.

The Subdirectorate of Meta-information advises the Minister of Arts, Culture, Science and Technology on broad library and information services policy matters and also funds the National Libraries. It has a coordinating function for Government departmental libraries and is also responsible for international relations. DACST is also responsible for issues regarding scientific and technical information (STI).

DoE is now responsible for matters concerning educational libraries and also indirectly funds university, technikon, college and school libraries. This change has created the need for some form of liaison/coordination between these departments regarding issues concerning library and information services.

In the report of the CEPD LIS Task Team (1994) it is recommended that there should be an Office of Library and Information Services (OLIS) in the Ministry of Education and Training which would provide the secretariat for the proposed national council for library and information services.

The Report of the Arts and Culture Task Group (ACTAG) (1995) on the other hand recommends that the focal point should be located in DACST, pending a full-scale democratic consultation exercise, which was conducted through a number of workshops in the provinces.

By the time the ACTAG report was published in June 1995, the Minister of Arts, Culture, Science and Technology and the Minister of Education had already decided that they wished to be advised on this issue, which had been under discussion for some time.

At a meeting on 7 March 1995 (which resulted from an inquiry received on this matter by the Minister of Education), the two Ministers decided that they would appoint a Working Group consisting of academics and experts to advise them on certain matters relating to good governance at the national level. Their report would be submitted to all stakeholders for their comments, and would then be considered by both departments. At a further meeting of the Director-General of Arts, Culture, Science and Technology and the Director-General of Education on 3 October 1995, it was clearly stated that the investigation was to focus specifically on the issues as set out in the terms of reference, which they had agreed on, and that it could be followed by further investigations on other LIS issues.

1.2.3 Issues considered in the formulation of the terms of reference of the Interministerial Working Group on the Library and Information Services (LIS) Function (National Level)

DACST and DoE also took three other major issues into account in the formulation of the terms of reference of the Interministerial Working Group on the Library and Information Services (LIS) Function (National Level), hereafter referred to as the Working Group.

These issues are the following:

1.2.3.1 A national council for library and information services

An outstanding issue regarding governance concerns a proposed national council for library and information services, as recommended in previous policy initiatives, as there was still much difference of opinion among LIS practitioners on the composition of such a council and related issues.

1.2.3.2 Relationship between national and provincial LIS structures

It would be necessary to look at the relationship of the national LIS structures and functions and those within the provinces. The focus of the investigation of the Interministerial Working Group would be on mechanisms to ensure good governance at the national level.

1.2.3.3 Role of information technology and the information society

It was considered advisable to include the impact of the information society and the role of information technology at the national level in facilitating access to information.

1.2.4 Members of the Working Group

The Working Group consisted of the following members:

Prof. S. Manaka (Chairman) (University of the North)
Dr J. Blignaut (Department of Education)
Dr D.E. Botha (Department of Education)
Prof. A. Dick (University of South Africa)
Dr B. Fouché (Council for Scientific and Industrial Research)
Prof. E.D. Gerryts (University of Pretoria)
Mr G.H. Haffajee (University of Natal, Durban)
Prof. A. Kaniki (University of Natal, Pietermaritzburg)
Mrs J. Matlala (Department of Education)
Dr M. Nassimbeni (University of Cape Town)
Dr C.J. Scheffer (Department of Arts,Culture, Science and Technology)
Prof. W.M. Vermeulen (University of Zululand)
Mrs S. Witbooi (University of the Western Cape)
Mrs R.M. Cillié (Secretary) (Department of Arts, Culture, Science and Technology)

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2.Terms of reference of the Working Group

On 3 October 1995, the following terms of reference of the Working Group were agreed on at a meeting between the Director-General of Arts, Culture, Science and Technology and the Director-General of Education.

The Working Group is to advise the two Ministers on mechanisms to ensure good governance of the library and information system at the national level in South Africa to facilitate maximum availability and use of all relevant information sources to advance the Reconstruction and Development Programme.

This brief included making recommendations on the following:

The location of these mechanisms.
The possible establishment of a national council for library and information services.
The relationship between national LIS structures and functions, and those within the provinces.
The role of information technology at the national level to facilitate access to information.

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3. Problem statement

LIS in South Africa is characterised by a mix of information provision through a modern information technology to a mainly academic, business and scientific user group, and rudimentary or non-existent library provision to the majority of the population. The services are stratified along race, class and urban lines. (See Annexure A). The LIS agencies are governed by a variety of national statutes, provincial ordinances and municipal regulations and controlled and funded by many different authorities. There is, however, a lack of a coherent legislative framework, integrated strategy, structure, or programmes to manage, develop and promote the LIS system and to manage the transformation process of the sector so that it can achieve its new mission and imperatives. There is no single authority coordinating LIS in South Africa, the previous government having abrogated its responsibility for this task by disbanding the previously existing National Advisory Council on Libraries and Information (NACLI). There is also uncertainty regarding the departmental alignment of LIS, i.e. which national Government department must bear responsibility for national LIS issues. The impact of the global information society, and the developmental challenges that it raises, necessitate a change in strategic approach regarding LIS, in order to integrate LIS policies into broader information society policy. Furthermore the relationship between information and education technology provides new challenges and opportunities.

Library and information services are at the centre of the information revolution and as a result will be fundamentally changed in form, function and practice. The Working Group is of the opinion that all future planning to provide a LIS infrastructure must be done against the background of the information society and that this approach must be the departure point in redress.

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4. Strategic approach

4.1. Introduction

On the one hand, it is necessary to take urgent action to correct deficiencies of inequitable distribution of the past by extending, expanding, and enhancing LIS for those communities previously excluded or not served. On the other hand, the optimum use of modern information technology must be accomplished.

The power of the infrastructure and collective resources must be harnessed into a truly national asset to the benefit of the entire population for the advancement of the national goals of socio-economic growth, life-long learning, human resource development, and international competitiveness.

Cost-effective and efficient solutions to the problems of fragmentation must be found to create a single, coordinated, efficient and affordable system which would achieve maximum impact of resources already invested in library and information services which is an important public sector.

A new, strategic approach must be developed in order to promote the information society in South Africa. Such an approach is necessary to manage the transformation and reconstruction of LIS in South Africa in a manner that would ensure that all communities have access to information.

The role of the proposed council would include guiding all South African LIS workers to internalise a new and common vision, mission and values to enable them to develop an integrated system that will serve the needs of all South Africans.

A common goal is necessary to enable librarians and other information workers to cooperate and to direct planning for transformation. A national vision, to be realised by 2005, will provide the ideal to aim and work for and will serve to inspire all LIS stakeholders.

4.2. Vision of the South African LIS system

Librarians and other information workers require a challenging vision of a future South African LIS system. The Working Group envisages

a new and uniquely South African system of library and information services created wherein ample provision is made for satisfying the needs of all communities and where access to the national and international wealth of information is ensured by an expanding and dynamic information infrastructure.

4.3. Mission of the South African LIS system

All LIS activities should be guided by a common mission to clarify the kind of business involved in to promote commitment to a common cause.

The mission of library and information services in South Africa is to support and stimulate the socio-economic, educational, cultural, scientific and informational development of all communities in the country by providing access to levels of information for all, and raise the levels of information awareness and information literacy of all our people.

4.4. Values of the South African LIS system

The inequitable distribution and diversity of library and information services implies an urgent need for synergism. The provision of library and information services should therefore be guided by a set of common values which will promote alignment among role players with a shared vision and mission.

These values are the following:

Equitable and efficient public access to information is the fundamental right of all South Africans.
Free access to basic information, including Government-produced information, is fundamental to a democratic society.
Access to information is essential to support life-long learning and reskilling of the South African people, who are empowered through information literacy to effectively utilise information for socio-economic development.
Library and information services are user-driven and generally function in support of the ideals of a parent institution.
The holdings of library/resource centres collectively constitute a national resource.
A flexible information infrastructure makes full use of a rapidly changing information technology.
The love and appreciation of reading is a precious attribute that enriches peoples' lives and is therefore actively promoted by library services to develop a life-long reading habit.

4.5 Strategic goals

4.5.1 Introduction

Strategic goals will be necessary to form the basis for action plans and to realise the ideals that are expressed in the vision, mission and values. The proposed national council for library and information services should then develop action plans in cooperation with LIS stakeholders to attain these goals and to provide a single, coordinated and efficient library and information system in South Africa.

A national council for library and information services should consider the advisability of developing a master strategic plan. A national council for library and information services would also have to advise Government on the resources required, and the linking of budgets to these goals and action plans. It would be necessary to determine the library and information needs of communities to develop these plans.

In the reconstruction of the national information infrastructure, sensitivity to social equity issues should play an important role to transform the present system. Priority should be given to the role of information as a strategic resource in managing library and information services as a national asset. Liaison with local, provincial and other authorities should be a priority to advise these authorities on the crucial role libraries should play.

4.5.2 The proposed strategic goals

The proposed strategic goals are the following:

To coordinate the integration of the national information system to support its vision of ample provision and free and optimal access to meet the information needs of all communities.
To develop and implement a national library and information policy.
To establish a high-level coordinating body for LIS.
To bridge the educational gap or "educational disconnect" between the availability of information technologies and resources and the ability of all South Africans to use those resources by promoting basic information and computer literacy to support life-long learning and reskilling.
To prioritise the issue of redress so that an equitable distribution of services can be ensured.
To strengthen the libraries that serve the general public in order to serve as "safety nets" and as development agents for those who may otherwise be bypassed by electronic developments.
To participate in efforts to coordinate and promote legislation that protect the free flow of, and free access to, information by all South Africans.
To uphold the principle of representativeness in all activities and initiatives of the LIS system.
To make optimal use of modern information and educational technology and to continuously explore their mutual importance and support.
To ensure free and optimal access to all Government-produced information.

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5. Advisory and coordinating mechanisms

5.1 Alignment of LIS

5.1.1 Departmental responsibility for LIS

Although the LIS community in South Africa would prefer that one national Government department should be responsible for national LIS issues, this would not be practical, as both DoE and DACST are major partners concerning LIS issues.

Libraries have a cultural, informational and educational role and also support science and technology. It must be noted that, as far as the LIS location is concerned, the objectives of each kind of library, for example, national, school, public, etc., are different, and therefore different departments usually handle different kinds of libraries. Although the future direction would probably be that all library and information services would serve broader groups of users, and the "seamless web" of libraries is an ideal, many libraries would still have a major responsibility towards their main user group.

Various countries, for example in Africa and in Europe, have solved this problem in different ways, such as locating a particular type of library in a corresponding department, for example school and university libraries in an education department, community libraries in a cultural department, national libraries in a cultural or research department.

The practice in many countries is for the department responsible for the national library to handle library issues at the national level and to provide the secretariat for an advisory council, should the particular country have such a body.

Educational libraries serving universities, technikons, colleges and schools probably together constitute the largest group of libraries in South Africa. According to the ACTAG report, the university libraries hold the lion's share of the country's national bookstock, and meet more than half of the country's total interlending demand. Educational libraries should also play a major role in supporting all educational programmes and in running programmes which would empower pupils, students and adults to become information-literate as LIS is indispensable to life-long learning.

DACST will cooperate with Deputy President Mbeki's office and other Government departments in addressing issues regarding national information society policy. DACST will play a major role in addressing all matters regarding the strengthening of the information society in South Africa. The development of the information infrastructure, designing and providing applications to serve the diverse needs of the South African society, and people empowerment, will be major components of such a policy. Libraries which should also be regarded as information centres would play an important role in these matters and they would have to be included in policy formulation. Libraries would therefore also benefit from the role of DACST in information matters.

Although it could be argued that this would result in a fragmented system if more than one department handled matters related to libraries, it must be borne in mind that this was brought about by the creation of separate departments when the Department of National Education was abolished (see par. 1.2.2). The Department of National Education was the ideal department to handle LIS issues as libraries support educational, cultural and scientific activities.

Since education, culture and science are interrelated, links will now have to be established to coordinate LIS matters. Science is a broad concept and education is of the utmost importance for the transmission of information in the fields of science and culture. A link for LIS matters concerning both departments could possibly be established between DACST and DoE by establishing an Interdepartmental Coordinating and Planning Committee (ICPC) for LIS, comprising members of DACST and DoE in order to act as a channel for advice and liaison.

5.1.2 Recommendations

It is recommended that -

a unit for library and information services policy matters within DACST remain the focal point for LIS policy matters at the national level; and

DACST and DoE function as equal partners regarding LIS issues.

5.2 Establishment of a National Council for Library and Information Services

The impetus for the establishment of a national council for the LIS sector has a history going back to the National Library Advisory Council (NLAC) (1967-1982) and the National Advisory Council on Libraries and Information (NACLI) (1982-1986), and to the reports of the policy development initiatives and investigations of the early 1990s. Reports that resulted from these policy investigations of the Nineties, pointed out that the need for a national council for library and information services still exists to serve as a mechanism to achieve coordination of the national strategy within the LIS system. Such an action would be in accord with the wishes of the South African LIS sector and also with UNESCO (United Nations Educational, Scientific and Cultural Organisation) guidelines. (See Annexure B).

5.2.1 Interdepartmental Coordinating and Planning Committee (ICPC) for LIS

5.2.1.1 Introduction

The Working Group is of the opinion that it could take some time to establish the proposed national council for library and information services and that it is therefore essential to establish an interim mechanism that could advise DACST and DoE about the establishment of the proposed Council.

As DACST has the infrastructure to manage the process, it is recommended that an Interdepartmental Coordinating and Planning Committee (ICPC) for LIS be established between DACST and DoE and that the Secretariat be provided by DACST. In order for the ICPC to function effectively it should be a small committee that would only function until the Council had been established. It could, however, continue as an interdepartmental committee, should DACST and DoE consider it necessary for dealing with specific matters that require coordination.

5.2.1.2 Composition of the Interdepartmental Coordinating and Planning Committee (ICPC) for LIS

The number of members should not exceed ten and the following guidelines are proposed for the appointment of members:

Two persons each from DACST and DoE.
Four persons from the LIS sector selected for their knowledge, grasp and experience of relevant LIS policy issues at the strategic level.
Two persons from civil society (including business).

The Chairperson would be elected by the members of the ICPC for LIS. DACST would ask for nominations providing guidelines for the selection of candidates and using present mechanisms to manage the process.

DACST would act as convener and Secretariat.

5.2.1.3 Recommendation

It is recommended that an Interdepartmental Coordinating and Planning Committee (ICPC) for LIS be established.

5.2.2 The proposed National Council for Library and Information Services

5.2.2.1 Introduction

Consensus has been largely reached on some of the national council's fundamental functions (e.g. coordination), but ideas about its composition and procedures for its establishment differ in their details. Proposals in this report, therefore, take into account the issues raised in the preceding reports and their attendant discussion forums, and expand the scope of previous investigations through focused research into the nature, role and functions of statutory library and information councils from an international perspective, drawing on the experience and lessons of library and information professionals in other countries. (See Annexure B).

The functions of a national council for library and information services could include representing the needs of the LIS sector to Government, helping develop a national library and information policy, representing national LIS interests at international forums, setting and monitoring standards and developing Key Performance Indicators, etc. These functions would be linked to the strategic goals (see par. 4.5.2).

5.2.2.2 Composition of national council for library and information services

The following criteria are recommended to provide guidelines for the composition of a national council for library and information services:

Representativeness should be balanced with expertise, as well as the interests of specific sectors with the national interest.
Membership should reflect a fair representation of stakeholders.
Stakeholder representatives should be elected through an acceptable process/procedure.
The size of the council should be consistent with manageability of operation/communication, bearing in mind the relationship between cost and size.
Implementers of policy (e.g. officials in the relevant division/s of departments such as DACST and DoE) should be ex officio members of the body/council.
Guidelines with regard to areas of expertise and representativeness for suitable candidates would include:
- Possession of information skills.
- Knowledge of information technology.
- Knowledge of policy issues at strategic level and knowledge of Government.
- LIS interests.
- Being representative of a specific user community, business and labour, non-governmental organisations, government (provincial and national), etc.
DACST, housing the nodal point for LIS, would provide the secretariat for a national council for library and information services.
The appointment of various subcommittees to advise on professional norms, standards, and other professional issues, and the issues relevant to specific sectors such as school libraries, community libraries and resource centres should be considered. These subcommittees could take ownership for development and implementation of action plans.

5.2.2.3 Recommendation

It is recommended that a national council for library and information services be established.

5.3 Coordination between national LIS structures and those at the provincial level

5.3.1 Introduction

Information provided by heads of provincial library and information services indicated their urgent need for a voice at the national level to ensure equitable development of services in the provinces. They expressed themselves in favour of MINMEC as a linking mechanism.

5.3.2 MINMEC mechanism

MINMEC is a Council of Ministers, consisting of the Minister of a specific national department (e.g. DACST), plus Members of the Executive Councils (MECs) of the provinces concerned with specific portfolios, e.g. culture, education, etc.

At the national level, a MINMEC for Culture and one for Education have already been established. The former consists of the national Minister for Culture and MECs concerned with cultural affairs. The latter consists of the national Minister for Education and MECs concerned with educational affairs. In the case of the MINMEC for Culture, a Technical Committee has been appointed to deal with matters pertaining to the work of the various sectors under the jurisdiction of these ministers. A Subcommittee for libraries has also been established.

Not all provincial LIS sectors are as yet represented in the above mechanisms, or even aware of their existence, which is a stumbling block.

5.3.3 Recommendations

The relevant MINMEC, supported by the required technical committees, should act as the linking mechanism between the national and provincial levels. Representatives of DACST and DoE should serve on respectively the technical committee (or subcommittee for libraries) of the MINMEC for Culture and the Council of Education Ministers.
- The MINMEC for Culture, already established, will handle public and other related types of libraries.

The Council of Education Ministers, will manage matters concerning school, college and university libraries.

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6. The role of information technology

6.1 Introduction

Information sharing and access is a key issue in all sectors. Central to this is not only an effective library infrastructure, but also electronic access to information, provided by various computerised information networks.

6.1.1 Impact and strategic context of the globalised information society

Developments in information and communications technologies enable us to process, store, retrieve and communicate information in any form (oral, written or visual) unconstrained by distance, time and volume. The so-called information revolution enhances the capacity of human intelligence and constitutes a resource which fundamentally changes the way that people through out the world live and work. The result is an increasingly globalised information-based economy and society.

6.1.2 "Infrastructure and "info"structure

"The information is not an end in itself, but simply a means to an end. Relevant, timely, culturally relevant information must be made available. Thus, many writers in the developing world are speaking of an "infra"structure and an "info"structure. The former refers to the backbone information and communications networks, including telecommunications networks, broadcasting, satellite, and other wired and wireless options, which serve as conduits for all electronic communications. The latter - the "info"structure - refers to the "higher order" delivery systems of the information infrastructure, including programs and software, the information content, the methods for producing that content, as well as services and applications." (SA. Dept. of Arts, Culture, Science and Technology. 1996. The information society and development. Version 4.1:20).

6.1.3 The role of the information society in development

"For South Africa, most governmental and increasingly private sector strategies are driven by the objectives of the Reconstruction and Development Programme (RDP). There are four broad areas of emphasis in the RDP: (1) meeting basic needs; (2) developing human resources; (3) building the economy; (4) democratising the state and society. In the National Strategic Vision agreed in November 1995, six pillars of the Growth and Development strategy were spelled out: (1) Investing in people; (2) Creating employment; (3) Investing in household and economic infrastructure; (4) A national crime prevention strategy; (5) Building efficient and effective government; (6) Welfare safety net." (SA. Dept. of Arts, Culture, Science and Technology. 1996. The information society and development. Version 4.1:20).

An effective information infrastructure will support delivery of services, promote efficiency of government and empower communities, and the learning nation, and thus support socio-economic development.

6.2 Information networks

Information networks, in the sense of computerised information networks, have had a major impact on the way information is disseminated and accessed. The Internet is a well known example. Some of the most important national information networks in Southern Africa are SABINET (South African Bibliographic and Information Network), the CSIR's (Council for Scientific and Industrial Research's) WORLDNET GATEWAY service, and SANGONeT (Southern African NGO Network). PADISNET (Pan African Development Information System Network) focuses on the whole African continent and recently became accessible to South Africans. These networks increasingly use Internet protocols and technologies to connect to information sources and users globally. All the above mentioned networks are supported by public sector funding.

6.3 The virtual electronic library

The computerised information networks extend the role and function of the library. Not only can bibliographic references and full text documents be retrieved interactively in real time from across the world, but human beings can communicate with each other and exchange information as well. By using the networks, educational and community libraries can play a new role as the access points and information providers to the global, virtual electronic library.

6.4 Cooperation

It is imperative that the information networks in South and Southern Africa should link with one another to make the most comprehensive range of information services available to the largest possible number of users, irrespective of time or location.

6.5 LIS policy and information society policy

LIS policy should not be approached in isolation from the general national information society policy. The important role of LIS in the broader information society policy should be stressed. Links on all levels, from the strategic to the operational, and links on all levels between local, national and internationl sources of information are essential in both policies.

6.6 Recommendation

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List of sources consulted

This list pertains to both the Report and its Annexures.

Angula, N. 1993. Right to information and citizenship: opening address, in Co-ordination of information systems and services in Namibia, editors A.-J. Tötemeyer, J. Loubser, J. & A.E. Marais. Bonn and Windhoek: Zentrallstelle für Erziehung, Wissenschaft und Dokumentation:5-7.

Arts and Culture Task Group (South Africa). Library and Information Services Subcommittee. 1995. Report on libraries and information services: chapter six of the Report of the Arts and Culture Task Group as presented to the Minister of Arts, Culture, Science and Technology on 31 July 1995: with supplementary and background documents. Pretoria: State Library for the Department of Arts, Culture, Science and Technology.

Bergdahl, B. 1994. Libraries and information in the Third World, in Librarianship & information work worldwide 1994, editors G. Mackenzie and J. Feather. London: Bowker Saur:133-164.

Biskup, P. 1994. Libraries in Australia. Wagga Wagga: Centre for Information Studies.

Centre for Education Policy Development. Library and Information Services (LIS) Task Team. [1994?] The LIS Task Team interim report: summary for the IPET synthesis document. Unpublished.

Cooper, D., Hamilton, R. & H. Mashabela. 1993. Race Relations Survey 1992/1993. Johannesburg: SAIRR.

Dreyer, L. 1991. Towards a new public library policy, in CNLASA proceedings. (paper read at the 6th Annual Meeting of the CNLASA, held in Umtata, 23-26 July 1991). Pretoria: State Library.

Ellis, D. 1994. Culture and the information highway: new roles for carriers and content providers. Ottawa: Stentor Telecom Policy Inc.

Gardner, F.M. 1971. Public library administration: a comparative study. Paris: UNESCO.

Gray, John. 1988. National information policies: problems and progress. London: Mansell.

Hill, Michael. 1989. National information policies: a review of the situation in seventeen industrialised countries, with particular reference to scientific and technical information. The Hague: Federation Internationale d'Information et de Documentation.

Job, C.A. 1993. The influence of change on the role and profession of the media teacher in modern education in South Africa. D.Lib. thesis, Pretoria: UNISA.

Kaniki, A.M. 1994. Community resource centres and resource centres forums in the transformation and post-transformation era in South Africa. African Journal of Librarianship, Archives and Information Science, 4(1): 47-54.

Kaniki, A.M. 1995, Exploratory study of information needs in the Kwa-Ngwanase (Natal) and Qumbu (Transkei) communities of South Africa. South African Journal of Library and Information Science, 63(1):9-18.

Karlsson, J. 1994. So you want to start a resource centre, in Proceedings of the Info Africa Nova Conference, Pretoria, 1993. Pretoria: Info Africa Nova.

Klinec, P. 1994. Public responsibility for public library services concerning law, funding, staffing and networking. Libri, 44(2):111-122.

Library 2000 Review Committee. 1994. Report of the Library 2000 Review Committee. Singapore: Ministry of Information and Arts.

Library Association. 1995. The public library service: information for elected members. London.

Line, M. 1980. The role of national libraries: a reassessment. Libri, 30.

Lor, P.J. 1992. Information resource sharing in Southern Africa: towards the twenty-first century, in Conference on library and information services for future development of Southern Africa, Pretoria, 6-8 May, 1992. Proceedings, edited by A.G. Coetzer. Pretoria: Info Africa Nova:737-774.

National Education Policy Investigation. Library and Information Services Research Group. 1992. Library and information services: report of the NEPI Library and Information Services Research Group: a project of the National Education Co-ordinating Committee. Cape Town: Oxford University Press. (National Education Policy Investigation)

Niegaard, H. 1994. The right to know: revision of the UNESCO Public Library Manifesto 1994. Libri, 44(2):99-110.

Overduin, P.G.J. & De Wit, N. 1986. School librarianship in South Africa: a critical evaluation. Bloemfontein: University of the Orange Free State.

Policy statement and recommendations by seminar participants. 1993. In Co-ordination of information systems and services in Namibia, editors A.-J. Totemeyer, J. Loubser, J & A.E. Marais. Bonn and Windhoek: Zentrallstelle für Erziehung, Wissenschaft und Dokumentation:228-239.

The Public Library Service: information for elected members. 1995. London: Library Association.

Raseroka, K. 1994. Changes in public libraries during the last twenty years: an African perspective. Libri, 44(2):153-163.

Raseroka, K. 1994. National library policies of select African countries: commissioned report, in Centre for Education Policy Development. Implementation plan on education and training: interim report of LIS task team. Appendix C. (Unpublished).

Review lacks vision. 1995. Library Association Record, 97(12):639.

South Africa. Dept. of Arts, Culture, Science and Technology. 1996. The information society and development. Version 4.1:20. [Pretoria]. Unpublished.

Special issue on public library legislation. 1994. Scandinavian public library quarterly, 27(1).

Stilwell, C. 1991. Community libraries: a viable alternative to the public library in South Africa? Progressive librarian, 4(Winter): 17-27.

Stilwell,C. 1995 An analysis of staff perceptions of the structure of the provincial library services. D. Phil. theses. Pietermaritzburg: University of Natal, Department of Information studies.

Sturges, P. & Neill, R. 1990. The quiet struggle: libraries and information for Africa. London: Mansell.

Tötemeyer, A.-J. 1993. Namibia: Information policy issues and the state of information services for the nation, in Co-ordination of information systems and services in Namibia, editors A.-J. Tötemeyer, J. Loubser, & A.E. Marais. Bonn and Windhoek: Zentrallstelle für Erziehung, Wissenschaft und Dokumentation:8-20.

Tötemeyer, A.J. 1995. Focus on Namibia: five years of transformation in the library and information field. Unpublished paper delivered at the SAILIS Annual Conference in Cape Town, September 1995.

United Kingdom. Department of National Heritage. 1995. Guidance for local authorities from the Department of National heritage. London.

Vavrek, B. 1980. Information services and rural library. Library Trends, 28 (Spring): 563-578.

Vermeulen, W.M. & Vermeulen, C.H. 1990. RSA/KwaZulu Development Project: library survey (Durban/Pietermaritzburg area). KwaDlangezwa: University of Zululand.

Vermeulen, W.M. 1981. Skoolbiblioteekontwikkeling as kollateraal van onderwysontwikkeling. M.Bibl. thesis. Stellenbosch: University of Stellenbosch.

Vermeulen, W.M. 1987. Skoolbiblioteekstandaarde vir Suid-Afrikaanse herskole. D.Bibl. thesis. Bloemfontein: UOFS.

Vermeulen, W.M. and Vermeulen, C.H. 1990. RSA/KwaZulu development project: library survey (Durban/ Pietermaritzburg Area). KwaDlangezwa: University of Zululand.

Weech, T.L. 1980. Public library standards and rural library service. Library Trends, 28 (Spring): 599-617.

Wise, M. (ed.) 1985. Aspects of African librarianship. London, Mansell.

Zaaiman, R.B. Roux, P.J.A. & J.H. Rykheer. 1988. The use of libraries for the development of South Africa: final report of an investigation for the South African Institute for Librarianship and Information Science. Pretoria: University of South Africa, Department of Library and information Science

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Acronyms and abbreviations used

ACTAG - Arts and Culture Task Group

CEPD - Centre for Education Policy Development

DACST - Department of Arts, Culture, Science and Technology

DoE - Department of Education

GDS - Growth and Development Strategy

ICPC - Interdepartmental Coordinating and Planning Committee

ISAD - Information Society and Development (Conference)

LIS - Library and information services

MEC - Member of Executive Council

MINMEC - Council of Ministers and Members of the Executive Councils of the provinces

NACLI - National Advisory Council on Libraries and Information

NLAC - National Library Advisory Council

NEPI - National Education Policy Investigation

RDP - Reconstruction and Development Programme

STI - Scientific and technical information

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Annexure A: Overview of the current state of LIS in South Africa

Compiled by Prof. A. Kaniki, Prof. W. Vermeulen and S. Witbooi

1. Introduction

This overview is intended to serve as a background to members of the Interministerial Working Group on the LIS function (National level). The principal sources used to compile the text are the Appendix in Actag Report (Lor, 1995), a paper by Lor (1992) and the National Education Policy Investigation (1992). Information was also solicited from experts in the field, especially directors of library services. The structure of this report is based on the section of the Actag Report compiled by Peter Lor (1995).

The South African library and information system is relatively well established with a variety of types of libraries serving the needs of different user groups.

2. Types of LIS agencies

2.1 National libraries

A national library is one which serves the population of a country through collecting, preserving, and making available the national literary and scholarly heritage, and providing a structure for the provision of library and information services to the country. There are two national libraries in South Africa: the State Library in Pretoria, founded in 1887, and the South African Library in Cape Town, founded in 1818 as the South African Public Library.

Their functions and aims are laid down in the National Libraries Act of 1985. The national library functions are formally divided between the two national libraries, which also serve as legal deposit libraries. Line (1980: 1) contends that the traditional concept of the role and functions of national libraries is in need of reassessment; that national information and document supply should be given priority in all countries.

Ten "national libraries" were also established in the homelands. They served primarily as headquarters of regional library services, functioning in much the same way as the provincial library services of the four pre-1994 provinces. It is likely that these libraries will be absorbed into the provincial library services of the new provinces.

2.2 Legal deposit libraries

There are three legal deposit libraries, namely the Library of Parliament, the Natal Society Library and the Bloemfontein Public Library.

The legal deposit libraries in Pietermaritzburg and Bloemfontein emphasise collections of legal deposit material relating to their respective provinces. The primary task of the Library of Parliament is to serve the information needs of parliamentarians, politicians and legislators.

The future of these libraries, the appropriate number of them and the question of which materials they should collect will depend on the future constitutional dispensation.

2.3 Public libraries

Each of the four pre-1994 provinces had a provincial library service which in 1990 between them provided services to 670 affiliated public libraries and an additional 1029 service points. Traditionally, the affiliated public library was a joint responsibility of the local authority and the provincial library service. This applied mainly in white-run local authorities. The local authority was responsible for buildings, staff and running costs. The provincial library service ordered, processed and delivered the bookstock and provided support services such as promotional programmes and materials, in-service training, professional guidance and advice, and backup reference and document delivery services. More recently provincial library services have become involved in funding library buildings in less affluent communities and subsidising staff positions. Some affiliated public libraries supplement the bookstock provided by their provinces by the purchase of material they select themselves. In certain provinces the provincial library services have responsibilities extending to museums (Transvaal) or school libraries (Orange Free State).

In addition to the affiliated public libraries, there are ten independent public libraries controlled by the larger municipalities, such as Cape Town, Port Elizabeth, Durban, Johannesburg and Pretoria. Some of these receive provincial subsidies. They are independent in the sense that they provide their own library materials and support services. They have branch libraries serving suburban areas and townships.

Many of the larger and older public libraries, whether independent or affiliated to provincial services, hold information resources of great value to students, professional persons and researchers in their areas, and in some cases these resources are of national and international significance. In terms of the number of volumes held, the public libraries hold almost three quarters of the country's bookstock, especially monographs. However, much of this consists of material of a popular nature, which is heavily duplicated in the various service points.

Although many affiliated public libraries and independent urban public libraries have branch libraries or depots in "non-white" townships, and some public libraries are supported by township local authorities, many unserved or poorly served areas remain and there is a vast disparity between the black and white population in respect of access to LIS.

2.4 School libraries

In South Africa it is a generally accepted ideal that each school should have its own, central school library, adequately stocked with a range of educational resources and staffed by a trained teacher-librarian. The school library should be fully integrated into the curriculum to make resource-based learning possible. School libraries, also known as media centres, were the responsibility of the nineteen separate education departments that controlled education in pre-democratic South Africa.

2.4.1 Introduction

To meet the challenges of modern society, characterised by rapid technological changes and an information explosion, education emphasises the development of the whole individual so that people can reach their full potential, and play a meaningful role in society. To achieve this objective modern education has certain basic aims (Job 1993:36), namely to -

to stimulate independent learning so that students can acquire the ability to become life-long learners;
to make the most appropriate media available for use by teachers and pupils to suit individual capabilities and to enrich teaching and learning experiences;
to develop information skills in pupils so that they will know how to plan a project, and how to locate and assess information critically;
to provide for individual differences by providing access to a great variety of information and creating learning experiences which will actively involve individual pupils in a way that will suit their abilities and interests; and
to provide a variety of opportunities for individuals so that they can learn how to deal with the complexities of their future lives.

School libraries are recognised as an integral part of this modern approach to teaching and learning. In advanced countries such as the United States and Britain, school libraries developed collaterally with the move away from textbooks and the teaching of basic skills and facts, and towards independent, media-based learning. (Vermeulen, 1981)

The modern aims of education have also been endorsed by educationists in South Africa (Vermeulen, 1987:205-215), especially since 1971 when differentiated education became policy as a result of a proclamation by the Minister of National Education (Vermeulen, 1987:5). In 1984 equal educational standards and principles became mandatory (by law) for all racial groups (Vermeulen, 1987:6). However, school library development in the country does not seem to reflect these aims.

2.4.2 Development of South African libraries

In 1986 Overduin and De Wit reported glaring disparities with regard to school library provision in various departments of education, and even within departments, for example:

Organisation: Transvaal schools had reached a high standard but Coloured schools were below standard.
Accommodation: 72% of secondary schools in Natal had library areas of more than 100m but only 4% of Coloured schools. In the Transvaal 38% had areas of less than 50m, and 29% more than 150m.
Staff: 94% of Transvaal secondary schools had full-time teacher-librarians and only 23% of Department of Education and Training schools.
Collection: Natal secondary schools had an average of 12,8 books per pupil and Department of Education and Training secondary schools 2,4 (Vermeulen, 1987:8)

The situation has not improved since the Overduin and De Wit investigation. In 1990 teacher-librarians in the Cape expressed their concern about teacher-librarians being removed from the library and used to teach other subjects (Job, 1993:6). In 1990 Vermeulen and Vermeulen reported that only 26% of schools in the township areas around Durban and Pietermaritzburg had libraries, and 49% of those with school libraries used this designation for collections of fewer than 500 books. In 1991 black pupils complained about "libraries with no books" (Job, 1993:8), and in 1992 the NEPI report on school libraries found media centres in white schools to be in decline (1992:9)

A glaring gap in the South African school library scenario is the lack of any official statement of standards (or guidelines). In the United States and Britain it was found that "the overall effect of standards [was] to update libraries, providing sub-standard institutions with yard-sticks by which to measure their deficiences" (Vermeulen, 1987:7)

2.4.3 Role of national level in school libraries

In South Africa it is generally accepted that each school should have its own, central school library, stocked with a relevant and adequate collection of materials in a variety of formats, and staffed by a trained librarian. However, without a statement of standards these "norms" are vague, and in the present economic climate providing a school library meeting even minimum standards, in every school, would not be possible. In the mean-time pupils and teachers need information. With the current backlog in departments of education the provinces are not likely to give priority to school library facilities, which means solutions for the short and even medium term will have to be found. Assistance from government at the national level, will be required particularly with regard to funds, research and coordination of the efforts of various role players.

2.4.3.1 Funds

Additional funds over a long period of five years would assist education departments and schools to kick-start or upgrade their school libraries, and to establish and support model programmes. This is in fact exactly what the United States did in 1966.

2.4.3.2 Research

Research at the national level is required to -

determine the current state of school library facilities in the country. A national body would ensure active participation in projects such as the mapping of the country's schools, was recently announced (Natal Mercury, 1996:3);
formulate standards which can serve as guidelines for provincial departments of education to develop their school libraries;
develop plans for possible options for school library provision, for example, combined/joint use libraries;
investigate possibilities for centralised services, e.g. a centralised database for school libraries;
develop demonstration centres to ensure the successful implementation of the standards;
develop information packages suitable for South African teaching and learning programmes;
develop training courses for teachers and teacher-librarians, which will motivate and enable them to implement media-based teaching and learning;
develop evaluation strategies to guide progress and establish a suitable system of rewards for achievers.

2.4.3.3 Coordination

In the absence of adequate school libraies in most schools, public libraries have been supporting schools on an informal basis. Ways and means of establishing a firm partnership need to be developed.

READ has developed considerable expertise in the field of school librarianship, and this expertise should be fully utilised.

2.4.4 Conclusion

South African departments of education seem to have been paying mainly lip service to modern educational principles. School libraries which are regarded as an essential and integral part of the independent learning process on which modern education hinges, are either completely lacking in schools, under-achieving, or in decline. To turn this situation around, national initiatives and support are required to put school libraries on track, and to facilitate cooperation with other relevant role players, to ensure full exploitation of the available resources for the benefit of teachers and pupils through out the country.

2.5 Academic libraries

In 1990 there were 88 university, college and technikon libraries. They are primarily responsible to their student bodies and teaching and research staff. They are established to support and enhance the study, teaching and research programmes of their academic institutions.

There are considerable disparities between the levels of library provision within and between these groups. Within the group of university libraries the disparities between historically white and black universities are reflected in their holdings of their libraries. Certain universities hold impressive information collections and are able to utilise sophisticated information technology to provide their users with access to international resources. At the other extreme some of the colleges of education and nursing colleges which serve mainly black constituencies have only the most rudimentary libraries.

In recent years all academic libraries have been affected by financial austerity measures. University libraries have between them had to cut thousands of periodical subscriptions, while book purchases have not kept pace with either the volume of international publishing or the increase in student numbers. While austerity has taught academic libraries the virtues of cooperation and resource sharing, it is inevitable that continued budgetary constraints will cause long-term damage to the educational and research capacities of their institutions, and to their ability to support information needs in other sectors through national resource sharing.

2.6 Special libraries

In 1990 there were 456 special libraries of various types. Special libraries support the research and development work carried out by companies. Major special libraries are maintained by parastatal organisations, which include the statutory research councils (e.g. CSIR and HSRC), museums, art galleries and research institutions, and state corporations (e.g. Iscor and the Atomic Energy Corporation). The majority of special libraries are maintained by the private sector. They include special libraries of mining houses, financial institutions, manufacturing companies, and professional practices. Trade associations, professional associations, provincial administrations and large municipalities are among the other organisations which maintain special libraries.

2.7 Government libraries

There were 91 government libraries in 1990 which can be regarded as special libraries established to support the technical and professional tasks of the respective departments. These libraries all participate in the inter-library lending scheme, making their resources available for sharing.

2.8 Resource centres

At the end of 1990 there were an estimated 120 resource centres serving a variety of organisations and communities. The resource centres constituted an "informal" LIS sector, many of them having their origins and raison d'être in the struggle against apartheid and serving either as the sole facilities in their communities, or as an alternative to the "formal" library facilities provided by discredited local and other authorities. Now that a legitimate government is in place, resource centres are coming under budgetary pressure as foreign and domestic donors increasingly direct their contributions to institutions in the formal sector.

2.9 Rural information services

2.9.1 Introduction

The provincial library services in South Africa articulate their mission as follows:

".... to raise the quality of life of all the residents of the Republic of South Africa by enabling library authorities to provide public library services to the various communities" (Stilwell 1995:54).

Various reports indicate that this mission is still to be realised in developing communities. For example, a survey of library services around Durban and Pietermaritzburg (Vermeulen & Vermeulen, 1990) revealed that, according to the conservative (1985) census figures available at the time, nearly two million people living in townships outside the mainstream urban areas were without libraries.

In South Africa a large percentage of the population is categorised as rural. Cooper, Hamilton and Mashaba (1993) reported that South African rural communities are almost entirely African with 50 % of the 30 million African, and only one percent of the coloured, Indian and white populations living in rural areas. In addition, black rural areas have been severely disadvantaged as a result of the apartheid system. While the South African LIS sector is quite well developed in urban areas, it has been much neglected in rural and township areas. Rural information services in South africa need to be given a high profile which can only be attained through national level coordination and guidance.

2.9.2 Characteristics of rural communities

Rural library service is a complex problem that affects a significant percentage of the South African population, as indicated above. It cannot be separated from the national library community just as the rural community cannot be separated from the national state. However, it has unique and specific problems due to the nature of the population to be served.

The United States Library Services Act of 1956 defined 'rural areas' as areas which do not include a town having a population of more than 10 000 persons (Weech, 1980:600). This figure is sometimes reduced to 2 500 or increased to 25 000, or 50 000, or even to 100 000 (Vavrek, 1980:564). In the South African context 'rural areas' are described as 'remaining areas', i.e. remaining outside the areas included under Transitional Local Councils, and therefore without proclaimed urban settlements. 'Remaining areas' are administered by Regional or District Councils consisting of members of various interest groups such as political parties, chiefs, and agricultural and women's organisations. The population size may vary, and numbers of up to 20 000 have been quoted (De Clercq, 1996).

General characteristics of rural areas which have to be taken into consideration are:

2.9.2.1 Remoteness

Remoteness entails obtaining information in different ways: a lack of knowledge of and access to social service and legal agencies resulting in limited bargaining power and exploitation by outsiders; remoteness from adequate education as well as access to continuing education; from special services for young children; from a variety of leisure activities; and from choice of mass media.

2.9.2.2 Lack of transportation and other basic services

Absence of convenient transportation results in isolation from even relatively nearby facilities.

2.9.2.3 Low population size and population density

A scattered population calls for special methods of information delivery which must still be cost efficient.

2.9.2.4 Poverty

Poverty is usually accompanied by poor housing, chronic diseases, low levels of education, even illiteracy, and financial vulnerability.

According to United Nations standards, about 40 % of the rural population live in a state of absolute poverty, and the rest in a state of relative poverty (Zaaiman, Roux & Rykheer, 1988:54). The negative factors which accompany poverty lead to apathy and as a result people do not respond enthusiastically to inputs provided. They should therefore be addressed in a holistic manner: education (including information), health, nutrition, unemployment and housing should be treated as facets of the same problem.

However, there is usually also a minority of well-to-do and highly educated people among the rural population, for example, prosperous farmers, teachers, and government officials developing and administering rural areas. Their information needs should therefore also be considered.

2.9.3 Information needs of rural communities

Kaniki (1995:14-15) considers rural communities in South Africa to be in need of basic "coping/survival information" and "helping information", as well as more general urban oriented academic and reference services, financial information, etc. The Zaaiman investigation (1988:56) distinguished four basic categories of information required by underdeveloped rural communities:

Sensitising information to make them aware of their situation, and that it can be changed and improved.
Development information which generates skills and abilities, specifically information in audio-visual format.
Legal information, i.e. judicial status of households, rights and obligations in regard to contracts, litigation and legal aid.
Cultural information for enjoyment and recreation, for example recreational films and literature, including information on sport. Although essentially recreational, this kind of information can also be educational.

Information for a large illiterate and semi-literate South African rural population should be adapted and repackaged for local consumption. At the same time educated members of rural communities have new and accelerated demands for a wide variety of information in various formats, for example, technical data and information for government officials administering rural areas and for rural planners developing community services, as well as information required by teachers and leading farmers.

2.9.4 Nature of rural information services

Structures are needed to determine the information needs of rural communities. A great deal of research will be required to gain the type of information needed for the successful implementation of a community project such as a library. Sound knowledge of the community's traditions and preferences is required. The Zaaiman report (1988:57) suggests collaboration between library services and other rural development agencies such as the Rural Foundation.

Libraries in towns are not sufficiently accessible to rural communities. Rural (Community) Information Resource Centres suggest themselves as a suitable starting point. Zaaiman (1988:57) proposes a pilot project planned and launched in collaboration with the community. Once the model is in operation, the people should help to evaluate and change it to suit their needs.

Rural Information Resource Centres could take the form of resource centres as defined by the Natal Resource Centre Forum (1992):

A space or building in which human and other [information] resources in a variety of media such as books, journals, newspapers, films, slides, videos, and audio cassettes, three dimensional objects, etc. and [also] equipment such as recorders, cameras, computers, photocopiers, printers, fax machines, etc are arranged or made [easily] accessible in an appropriate manner for empowering people through information production, skills, dissemination, and resource sharing.

Such centres could serve a multi-function purpose of information generation, utilization, and transfer, and could be used as information focal points or satellites and linked to other well established libraries even via the much talked about solar energy, lap-top computers and Internet.

Rural information services would be a long-term project, and sustained effort would be required. Rural people would have to be taught and motivated at grassroots level. Demonstrations and open days at a model project should be part of the development programme. The Zaaiman report (1988:62) also emphasises the need for librarians to be introduced to the problematics of development in the course of their professional education. This will deepen their understanding of human development and thus lead to successful communication with the community. The role of the librarian is regarded as crucial, and it is even recommended that the central authorities should subsidise personnel rather than materials when providing library services in rural areas.

2.9.5 Location of rural community resource centres

Several options for rural information services have been tried in some parts of South Africa and the rest of the world. It would be necessary to look at the advantages and disadvantages of these options. Such possible options are:

School/Community libraries where the rural Information Resource Centres could be shared between the school and the community, preferably in a school environment. With regard to models for joint school and public libraries, certain points should be kept in mind:
- There must be books where the children are. A school community needs at least a core collection at hand - not a block or two away - to use through out the school day to integrate the use of information in the teaching and learning programme.
- Work with teachers from black schools has shown that classroom collections are not regarded with much enthusiasm. They are seen as cheap options for the facilities in Model C schools.
- A resource staff member who can guide and motivate teachers, and negotiate access to community and other collections, should be regarded as a non-negotiable element of a school/community library programme.
Independent Rural (Community) Information Resource Centres built or located at focal points such as shopping centres within a community.
Provincial Library Service affiliated Rural (Community) Information Resource Centres.
Rural reading rooms.
Mobile Rural Information Services using different means such as containers, buses or carts.
Rural Information Resource Centres affiliated to other community centres such as Community Learning Centres, Community Health Centres, or Rural Foundation Social Centres, etc.

2.9.6 Role of national level governance in rural information services

The motivation for the discontinuation in 1988 of the Advisory Council on Libraries and Information (NACLI), viz. that library and information services in South Africa represent a self-regulating system that can manage itself on free-market principles, is not supported by the existing scenarios of uneven provision of services in the public and school library sectors. Governance at the national level should jump-start the development of Rural Information Services. The national level should -

promote and conduct research with regard to existing library conditions and information needs, and how best to meet them; with regard to possible alternatives and/or extensions necessary to provide the information services required; and also with regard to suitable training programmes which would prepare teachers and school and public library staff to face the challenges of developing communities - as a team;
develop guidelines for the development and operation of Rural Information Centres. Such guidelines would address the issues relating to -
- objectives and functions;
- personnel requirements (kinds of skills and training required);
- material and basic equipment; and
- management and operation of the centres, etc.
Develop a plan for information-based services that assure the needs of rural communities are met.
Provide support to those communities which agree to follow the guidelines for the development of Rural Information Centres. Such support should be in the form of -
- funds;
- material;
- personnel resources; and
- training for personnel.
Support model/demonstration projects to ensure the successful implementation of the guidelines for Rural Information Centres
Coordinate national and international assistance for the running of such resource centres.

2.9.7 Conclusion

It is obvious that with the disparities in the development of the rural sector of South Africa, there must be a national drive towards the development of rural information services in order to avoid widening the gap between the rural information poor and urban information rich. While provincial authorities have a right to develop their own rural areas, the development of rural information services will be accelerated if guided at the national level.

Proper mechanics in the relationship between the national governance and provincial would need to be in line with the whole LIS sector. One would then hope that if the guidelines set up and monitored nationally are followed, Rural Information Centres would develop their own identities while meeting the information needs of the communities served.

3 Governance and legal framework

South Africa's several thousand libraries are run in terms of a variety of national statutes, provincial ordinances and municipal by-laws. For example, the two national libraries are controlled by boards appointed by the Minister of Arts, Culture, Science and Technology in terms of the National Libraries Act, 1985. A separate law, the Legal Deposit of Publications Act, 1982 provides for the delivery of free copies of each publication published in South Africa to the five legal deposit libraries. The South African Library for the Blind falls under the Cultural Institutions Act, 1969, along with various national museums and related institutions. The acts establishing certain of the statutory research councils empower them to provide information services.

Three of the pre-1994 provincial library services were established by provincial ordinances, e.g. Ordinance 16 of 1981 regulated the provision of services by the then Cape Provincial Library Service. At the time of the writing of this overview, three provinces (Western Cape, Gauteng and the Free State) had new provincial structures in place, whilst Mpumalanga, the North-West, Eastern Cape and the Northern Province were still negotiating new structures. Northern Cape has a new structure, which is not in operation yet. KwaZulu/Natal is the only province still operating under the old dispensation and old structures. The other provinces are still operating under the old provincial ordinances whilst drafting new legislation (Lubbe, 1996). The independent public libraries were typically established in terms of Provincial Library Service Ordinances. For example, Section 7 of the Provincial Library Service Ordinance of 1981 established Cape Town City Libraries as an independent municipal library. The Local Government Transition Act, Schedule 2, refers to metropolitan libraries as a metropolitan function.

Libraries are controlled by a variety of authorities, including government departments, a variety of statutory boards and councils, institutions, companies and municipalities. In the case of school libraries in the pre-1994 provinces, provision was made for advisory boards and auxiliary services funds in Education Departments resorting under the ex House of Assembly. Remnants of this old dispensation are currently being used in some provinces, e.g. the Western Cape, for the transitional phase to serve the library service of the new education department. There is a felt need for the establishment of a national interim committee to coordinate cooperation on a national level on school library matters such as school library policy, selection policies, the establishing of a national school library database, etc. (Metcalfe, 1996).

There is no single authority coordinating LIS in South Africa. There is not even a national advisory body or legislation. In 1988 the Minister of National Education decide to "discontinue" the National Advisory Council on Libraries and Information (NACLI) on the grounds that LIS in South Africa constitutes a self-regulating system able to manage itself on free market principles.

The lack of a national coordinating or advisory body is exacerbated by the disunity among LIS workers, who, in as far as they belong to any professional organisations, may be members of the African Library Association of SA (ALASA), the Library and Information Workers' Organisation (LIWO), the South African Institute for Librarianship and Information Science (SAILIS), one of the regional resource centre forums, or one of the specialised associations for LIS workers employed or interested in music libraries, school media centres, LIS education and research, indexing, etc. The TRANSLIS (Transforming our Libraries and Information Services) Forum groups together the major organisations, and a movement towards unity was given by the LISDESA (Libraries and Information Services for the Development of South Africa) Conference in January 1995, but the road to unification is likely to be long.

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Annexure B: Governance structures for LIS - A comparative international perspective

Dr Mary Nassimbeni

1. Introduction

An attempt is made in this section to provide examples of governance structures and legislative frameworks from other countries. The sampling was done on the grounds of good practice and also availability of information and documentation. Sources used include:

Published literature (reflected in the list of references).
Unpublished documentary sources obtained through contact with informed sources in the field.
Discussions with experts, for example, Stuart Brewer, the newly appointed Chief Executive of the Library and Information Commission (UK), Dr Bob Usherwood, a member of the consultancy group that conducted the nation-wide comprehensive survey of public libraries in the UK, and Prof A-J Totemeyer, academic and member of the co-ordinating committee tasked with drafting legislation for LIS in Namibia.

In considering examples and models from other countries, the following aspects were explored and are commented on:

Legislation.
Legal framework.
Ministerial alignment.
Statutory obligations and responsibilities of departments and delegated authorities.
Statutory and other bodies (e.g. advisory bodies) involved.
Relationships between different tiers of government and different library types, including agency agreements between different authorities.
Co-ordinating, regulatory and other structures and mechanisms.

A more amplified report on the situation in the UK is provided for the following reasons:

Recent developments (e.g. establishment of the Library and Information Commission and the publication of the landmark Public Library Review in 1995) are germane and instructive.
More up-to-date information was readily available.
The UK system, internationally acknowledged to be excellent, has been influential in the development of South African LIS.

The focus on public libraries in the literature (accordingly also reflected in this section of the report) can be accounted for in part by the fact that they tend to be more numerous than any other library type in most countries, having the widest geographical spread, and reaching more users.

A number of common themes are also identified from the literature, including texts on national information policy which are useful in the consideration of possible structures and frameworks and their implications. The vision of the information superhighway, launched by U.S. Vice-President Al Gore as the National Information Infrastructure (NII) in 1993, is gaining impetus in Western Europe, Canada, Singapore and other countries, and is likely to be an important factor in the development of information policy in these and other countries. The Global Information Infrastructure (GII) promise of a "seamless web of powerful, interconnected networks, allowing for two-way communication of any kind from anyone to anyone else, any time, anywhere" (Ellis, 1994) has implications for LIS in South Africa. The benefits of employing enhanced connectivity and the information highway to improve access to information and to redress information inequity are likely to be among the key policy issues for LIS in South Africa, one of whose primary concerns is the facilitation of access to timely, relevant and useful information through a variety of media and formats, increasingly electronic, for socio-economic development.

2. England

2.1 Statutory responsibilities

Provision of public library services is a statutory requirement upon local authorities resulting from the Public Libraries and Museums Act of 1964. The Department of National Heritage (DNH) carries the statutory responsibility within Central Government for the public library service in England. Its strategic aims in respect of libraries are to facilitate access to books and manuscripts, and to maximise the opportunities which they provide for people to improve the quality of their lives, and their capacity to understand and respond to the world around them.

The remits of other departments also affect the provision of public library service and its relationship with other library sectors. Examples are the Department of Environment which provides funding for public library service through the Standard Spending Assessment allocation for local authorities. Others include the Department of Education and Employment (school libraries, schools library services, national vocation qualifications and open learning); Department of Health (library services for the health sector); the Home Office (prison library services); and the Department of Trade and Industry (non-public sector libraries and information sources, copyright). The Library and Information Commission was established in 1995 by the DNH to co-ordinate library interests across central government, amongst other tasks. The Commission composed of twelve members, is an independent high-level body which is to advise the government and others on library and information matters, notably in the areas of research strategy and international links. It is intended to help the Government develop and update library and information policies and to promote co-ordination between information services of different types.

The Library Advisers to the Secretary of State are available to advise on the interpretation of the strategic guidance provided for local authorities by the Department of National Heritage (contained in a document of the same title, DNH, 19951). Decisions on how to provide a public library service, in terms of the Act of 1964, are for the local authorities themselves with the assistance of detailed expert advice from senior professional advisers. A national mission statement was approved by the four ministers with responsibility for public library services in the United Kingdom in 1991.

2.2 Responsibilities of Public Library Authorities

In England and Wales the major legislation concerning public libraries is the Public Libraries and Museums Act (1964). This defines the primary responsibilities of public library authorities as -

to provide a 'comprehensive and efficient library service for all desiring to make use thereof';
to provide facilities for the borrowing of books and other materials to all who live, work or study full-time in an authority's area;
to provide access to 'books and other printed matter, and pictures, gramophone records, film and other materials, sufficient in number, range and quality to meet the general requirements both of adults and children'; and
to encourage the use of the library service by both adults and children and to provide the necessary advice on use and bibliographic aids for effective use.

The Act makes it a duty of the Secretary of State for National Heritage (and the Secretary of State for Wales) to 'superintend, and promote the improvement of, the public library service provided by local authorities in England and Wales.' The Secretary of State has default powers, including that of removing the powers of authority to be a public library authority, should a local authority be shown not to have carried out its duties under the Act. The Act requires every library authority to provide such information and facilities for inspection as the Secretary of State may require. The Act also empowers the Secretary of State to hold an inquiry into any matter relating to the functions of a local authority under the Act. The Act obliges the Secretary of State to submit an annual report to Parliament.

Presently the DNH obtains the statistics it requires from the Chartered Institute of Public Finance and Accountancy (CIPFA) which are supplemented by the work of the Library and Information Statistics Unit (LISU) at Loughborough. It has no plans at present to seek separate statistical returns from library authorities. The Library Association, however, is pressing for a body to create a 'credible regulatory framework' that would receive regular mandatory reports from local authorities (Review lacks vision 1995: 639).

The situation in Scotland and Northern Ireland is very similar except that the responsible ministers do not have the same powers of intervention as they do in England and Wales.

2.3 Public Library Services in the Local Authority Structure

There are no prescriptions laid down as to the public library service's location in an authority's structure. There are examples of many different types of model, from independent department to Leisure Directorate, to Cultural Services to Education. It is recommended, however, that the public library network be managed as a strategic entity and that the Chief Librarian should have direct access to elected members and relevant committees.

The Library Association believes that local authorities are the right bodies to run public library services. This view has been overwhelmingly endorsed by the public, as revealed in the Public Library Reviewpublished in 1995. This important review, comparable to the McColvin Report of some fifty years ago, was commissioned and funded (largely) by the DNH. It was undertaken by the Association for Information Management (Aslib). Among its recommendations are that an independent public library and school library inspectorate be set up to measure public library authorities' performance and to report on them.

2.4 Relationships with users

Many public libraries have developed charters, setting out levels of service which users are entitled to receive. The Library Association has published A Charter for Public Libraries together with a Statement of Standardswhich are sometimes used as models on which an authority's own charter can be based. The D N H advises local authorities to ensure that users are closely involved in drawing up charters and standards of service.

2.5 Library services provided by the public library on an agency basis

School library services - Most public library services operate a service to schools, often under contract to the Education Department. In some authorities the service is operated separately by the Education Department itself. School library services (SLSs) are the responsibility of Local Education Authorities (LEAs), although there is no statutory obligation for LEAs to proved such a service. Frequently the SLS is operated by the public library service on an agency basis.

Health services - Public libraries frequently offer services to patients in hospitals, health centres and clinics. Most of these services involve an agreement with the institution of health authority.

Prison library service - The responsibility for library services within the Prison Service Establishment lies with the Home Office which makes arrangements with public library authorities for the provision of services on a nationally-agreed recharge basis.

3. Scandinavian countries

The information about the situation in the Scandinavian countries comes from a special issue of the Scandinavian public library quarterly (1994).

3.1 Denmark

Denmark has a new Danish Public Libraries Act, passed in December 1994. The Ministry for Cultural Affairs is the responsible department. The Act requires each local authority to maintain a public library with departments for children as well as adults. It also requires the public library to co-operate with municipal school libraries and that identical cataloguing systems etc to be maintained in public libraries and school libraries. The Act specifies financial arrangements, e.g. the State to be responsible for certain expenses.

3.2 Finland

Finland has a Library Act (revised in 1992). The Act regarding the financing of education and culture specifies financial responsibilities and sets out State subsidies based on unit costs, made available to local authorities. Both the State and the local authority contribute to the costs. The Department of Culture, in the Ministry of Education, is responsible for public libraries.

3.3 Norway

The present Norwegian Public Library Act dates from 1985, but has undergone some revisions (the latest in 1993). Up until 1985 library legislation embraced both public and school libraries. The Act declares that public libraries are part of a national library system. The State has the obligation to provide sufficient funds for local authorities to meet their legal obligations. All municipalities are required to have a public library and to formulate regulations on the basis of guidelines laid down by the Ministry of Culture for the running of libraries. They are also required by law to appoint a qualified chief librarian. Another provision of the Act is that each municipality has to ensure that agreements are drawn up with regard to co-operation between municipal public library and school libraries. Public libraries are also required to make their professional expertise available to the school authorities. Guidelines for co-operation between public and school libraries are drawn up by the Ministry.

A new feature of the Library Act of 1985 consists of specific conditions governing the participation of the State in the public library sector. The Norwegian Directorate for Public Libraries is now an institution authorised by law to act on behalf of the Ministry in fulfilling tasks which are the legal responsibility of the State. The Act stipulates that the Directorate shall be administered by a director appointed by the Crown. The Norwegian Directorate for Public Libraries drew up new guidelines for public libraries in 1993 which have been accepted by the Ministry. Special state subsidies may be granted for purposes not covered by the individual municipality's area of responsibility, e.g. special collections of materials for language minorities, services in State hospitals, prison libraries etc. The State also gives substantial financial support to research and development projects in public libraries. School libraries now come under legislation covering the primary school system and secondary education.

3.4 Sweden

Sweden is the only Scandinavian country without library legislation, but claims for a Library Act are more vocal now than ever before. In 1965 the library legislation was replaced by statutes regulating conditions of special grants to public libraries. The circumstances and tradition surrounding the history of legislation are too complex to summarise; readers may refer to the Scandinavian public library quarterly (1994: 29-30) for an explication of the legal framework and financial arrangements.

4. Africa

Raseroka notes that library services acts were established, and library boards established in number of countries in Africa in the 1960's and 1970's, e.g. Tanzania, Malawi, and Kenya. She makes the point that the existence of legislation did not in itself guarantee the establishment of public library services in all countries. Rather the acts seemed to be enabling acts for collection and preservation of published national heritage by institutions designated as national libraries, which often functioned as public libraries. A recent World Bank study which investigated the book situation in nine African countries found that public libraries are in decline because of a lack of government commitment towards funding; that although the libraries have made an important contribution to formal and non-formal education they are poorly supported by government. Out of the nine, two governments were reported to have provided budgets for public library services. Raseroka notes that the declining literacy rate in terms of numbers in many African countries forced information professionals to launch literacy programmes (Raseroka, 1994: 154-157).

In their study of libraries in Africa, Sturges and Neill make the general observation that the NATIS and PGI concepts embraced by so many African countries, essentially failed to produce the national planning, development and co-ordination of library services that were the goals of the approach. They conclude from the mass of reports, documents, studies and guidelines which have been the products of these initiatives, that no single clear message to government ministers and officials has emerged. One of the criticisms voiced has been the inappropriate choice of institutions to act as focal points (Sturges & Neill, 1990: 97-99).

In her survey of libraries and information in the Third World, the burden of Bergdahl's findings regarding the disappointing progress of the development and co-ordination of LIS in African countries is essentially the same as that of Sturges and Neill (1994). She points out, however, that there are more positive reports from Morocco and Namibia. In Morocco the co-ordination of the information and documentation sector is led by the National Centre for Documentation which has a high national standing(1994: 147).

4.1 Namibia

In Namibia the Divisions Library Services, Museums and Archives reside in the Ministry of Culture and Education in the Department of Culture which is responsible for the National Archives, the State Museum, the National Arts Council, the National Theatre of Namibia, the Conservatoire, the National Youth Choir, the Public Library Service, the School Library Service, the Government Library Service and the Estorff Reference Library (Totemeyer, 1993:18). In the 1991 budget, the libraries together received only 0,6% of the Ministry's budget (Angula, 1993: 5), while the Department of Culture received 2,4% of the total budget of R580 million for the Ministry (Totemeyer, 1993: 18). Totemeyer, at the same seminar, argued that a National Library and Services Act is urgently needed in Namibia (1993: 10-11). She and colleagues have been working on a draft act "to provide for the establishment of a National Information Science Council and a national library service." The draft is awaiting finalisation and presentation to the Legislative Assembly.

A meeting of experts, constituted as a sub-committee of the Co-ordinating Council by the Deputy Minister of Education and Culture, prepared and presented the Broad Policy Statement for Library and Information Services to the Ministry in 1990, in which it was recommended that a library and information network be established under the Ministry of Education and Culture. This service should consist of a statutory advisory council, a national library, departmental libraries, school/community libraries, public/community libraries and a subsidy programme for private libraries (Totemeyer, 1993: 11). The seminar adopted a policy statement and a number of recommendations of which the following are germane to the topic of governance models:

A Namibian Library and Services Act making provision for the establishment of a Library and Information Service Advisory Council, and a Library and Information Service should be introduced.

The Library and Information Service should function as a Directorate of Library, Archives and Information Services under an appropriate department in the Ministry of Education and Culture. There should be two divisions, viz. one consisting of sub-divisions for Educational Information Services and Community Library Services, and the other consisting of sub-divisions for the National Library, National Archives and Government Libraries.

Establishment of a statutory Advisory Council appointed by the Minister, which will represent all interested parties, inside and outside the public service. The Statutory Council's main task would be to advise the Minister on LIS policy (A policy statement and recommendations by seminar participants, 1993: 228-229).

Totemeyer reports (1995: 12) that one of the positive outcomes of this seminar was the creation of the Directorate for Library and Archival Services in the Ministry of Education and Culture.

5. Australia

The following summary is taken from a single source ( Biskup, 1994). The library acts passed in Australia between 1939 and 1955 have been permissive in the sense that they did not make the establishment of public libraries compulsory as is the case in some countries, e.g. United Kingdom and some Scandinavian countries. The acts enabled local authorities to establish libraries and to qualify for government subsidy. State library authorities were established for, among other functions, the disbursement of financial assistance to local authorities, since most local authorities do not have populations large enough to support an effective library service. The methods of library authorities are of two types: the centralised model and the decentralised model.

The centralised model which operates in three states is similar to the county system in England. The three other states operate a decentralised system in which the development of regional or joint libraries has occurred in which local authorities pool their resources. There are broadly two types of subsidy system, depending on the model of administration. In the centralised system, subsidies are provided mainly by way of fully processed books and central services, supplemented in two of the states by a cash component, either for subsidised salaries, or for capital costs of new buildings and administrative expenses. In the decentralised states the subsidy is administered on a cash basis, and local authorities select, purchase and process their own books. State library authorities also provide a wide range of supplementary services, but local authorities in the three decentralised states are basically independent (Biskup, 1994: 88-89).

6. Other countries

Responsibility for library policy is divided in most countries; usually more than one Ministry is involved. For example in France, university libraries fall under Direction des Bibliothèques, des Musées et de l'Information Scientifique et Technique (DBMIST) of the Ministry of Education. National and major public libraries are the responsibility of the Ministry of Culture and Communication. Other city and central lending libraries are the responsibility of local authorities.

In the USA direct control is exercised by a wide variety of Federal, Departmental and State Authorities. The National Commission on Libraries and Information Science (NCLIS), established in 1972 has a general role and has issued a number of reports, e.g. Toward a national program for library and information services: goals for action in 1975. Among its notable achievements has been the inauguration of the White House Conference to discuss matters of national importance in LIS. NCLIS has a broad general remit but no executive authority over the affairs of Government Departments. The Library of Congress is under the control of Congress.

7. National Library and Information Policy and coordination of LIS: General observations and common themes from an international perspective

7.1 A national focus for policy making and co-ordination of LIS

Since there are a variety of Ministries and other executive bodies responsible for libraries in the countries referred to, among others, the question arises as to how co-ordination is achieved in order to avoid duplication and minimise the danger of conflicting policies. A variety of institutions and mechanisms have been created for this task. In the Netherlands, for example there are RABIN, the Advisory Council for Librarianship and Management, which advises a Ministerial Committee for Information Policy on librarianship and information supply policy, for use in science and industry and NBBI, the Netherlands Bureau for Librarianship and Information Management, which has executive responsibility for project co-ordination, promotion and initiation (Hill, 1989). Maurice Line observes that academic libraries and public libraries come under different departments in every country that he knows of and that "the division of responsibility between departments can be used as an argument for a single body to co-ordinate activities across all types." (1994: 7).

Gray, in his authoritative exposition of national information policies (1988), provides useful guidance on methods and structures to achieve co-ordination of LIS, and the framework for national policy formulation. He summarises the purpose of having a national information policy as -

allocation of responsibilities;
preventing wasteful duplication;
encouraging the weak to improve;
securing access to information held by government;
ensuring satisfactory provision of education and training for users and information professionals; and
conducting or supporting information R & D.

The assumption is that there should be a national focus providing stimulation and co-ordination. UNESCO proposes a 'national information co-ordinating council' (NICO). The question prompted is what is meant by co-ordination. True co-ordination, as he points out, implies power of coercion, which would require a legal basis. The alternative is to secure co-ordination by means of voluntary agreement or co-operation among agencies with independent policies, which is a very difficult task. A NICO needs a small office staff and a co-ordinating committee representing the principal bodies with general and specialised policy functions. The French NICO is located in the Ministry of Research and Higher Education, and the main German functions lie in a Ministry of Research and Technology. Gray suggests that if a NICO is primarily concerned with scientific and technological information, its logical place would be in a department of education and science, or a department of research and technology - or one combining the two in some way. If, as is preferable, it is concerned with all aspects of economic, social and cultural development, better locations might be in the Prime Minister's or President's Office, the Cabinet Office or the national planning organisation, provided that the organisation chosen is already used to co-ordinating functions of this kind.

In 1976 in the USA, for example, a high-level committee suggested that an Office of Information Policy should be established in the Executive Office of the President, backed by an inter-agency committee and an advisory committee representing the private sector, local government and academic and professional disciplines. In 1979 the White Conference on Libraries recommended the creation of an Office of Library and Information Services in the Department of Education, an interesting choice - according to Gray - because in many countries that department has responsibilities for national, academic and public libraries and could be a suitable host for a NICO. He suggests that the advance of information technology can strengthen the chances of a department of industry, since it is probably the national focus for IT policy.

In countries where there is no central office which can take responsibility for a NICO and no departmental location is acceptable to other departments, two options exist:

The government can set up an interministerial mission, such as existed successfully in France until 1986.
Make the co-ordinating committee the responsible body, and the staff its functionaries, where the government wishes to place some NICO functions with an agency rather than a department.

A NICO needs to receive - and often to stimulate - informed advice from outside government, preferably in a form that combines the approaches of users, information professionals and the information industry. Such advice can be channelled through permanent or through ad hoc groups or committees. When the advisory body is permanent it can act as an extension of the NICO, or it can express its views independently of government departments and agencies. If the second is chosen, this can operate in two ways:

It can be a committee that advises the department directly and is served by staff of the department.
It can be an independent commission financed by a government grant, having its own staff and being entirely responsible for the advice it offers, e.g. NCLIS in the USA.

Such an advisory body can either be made up of individuals chosen to reflect a cross-section of interests and viewpoints, or it can represent national associations.

7.2 Library legislation

Totemeyer, in recounting the experience of the Namibian LIS constituency in their efforts to develop LIS for the whole country after independence emphasises the point that national legislation is critical for the establishment, growth and development of library services, for without statutory obligations, and the funding that flows from it, library services can continue to be neglected by the authorities (1996).

The authoritative study by Gardner of comparative public library legislation recommended the following:

A responsible minister or department should be named with powers to make regulations under the act. An independent body should be created to advise the minister or department on the implementation of the act. It should also be responsible, as far as is considered desirable, for integrating the public library system into a national library system (1971: 276-277).

The UNESCO Public Library Manifesto, revised by the working group of the International Federation of Library Associations (IFLA) Section of Public Libraries has recently been adopted by IFLA and UNESCO. It stipulates that the public library shall be guaranteed by specific legislation and financed by state and/or local authorities and should define goals and structures of national public library networks. According to the drafters:

It is the duty of national governments to recognise the need for consensus between goals of society and to establish ways by which the Public Library can contribute towards realisation of these goals. National authorities are urged to set up national policies for both General Information and Cultural Strategies. These should include the aims and tasks of the Public Library as they are a fundamental part of any national information infrastructure and contribute to the democratic development of society (Klinec, 1994: 112).

One of the drafters notes that there was general support for the concept that the public library should be funded by both the state and local authorities (Niegaard, 1994: 108).

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Annexure C: List of stakeholders who submitted inputs

Name	Institution	Date

Andersen, J.	S.A. National Gallery	96-01-29

Bawa, R.	KwaZulu/Natal Library Services	95-12-27

Crafford A.	P.O. Box 22, Bonnievale	96-01-22

Czanik, P.M.	Highveld Ridge Transitional Local Council	96-01-23

De Jager K.	School of Librarianship, University of Cape Town	96-02-14

Farelo, Maria	The Library & Information Workers' Organisation of South Africa (LIWO)	95-12-07

Jayaram, R.	Greater JHB Transitional Metropolitan Council, Libraries and Museums Dept	95-12-18

Kemp, G.	SABINET	96-01-17

Lor, P.J.	State Library	96-01-26

Metcalfe, L.	Western Cape Education Dept	96-01-23

Moran, H.	Durban Municipal Library	95-11-27, 96-01-22

Moshoeshoe J.	Eastern Cape Department of Education and Culture	96-01-16

Prince, N.L.	60 Melmoth Road, Eshowe	96-01-09

Schroenn, M.B.	Natal Department of Education & Culture	95-12-27

Smit, A.	Mpumalanga Provincial Library and Information Service	96-01-25

Van Schalkwyk, G.	Telkom	96-01-23

Wallis, S.S.	The Natal Society	95-11-29

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Terms of reference of the Working Group

This brief included making recommendations on the following:

The location of these mechanisms.
The possible establishment of a national council for library and information services.
The relationship between national LIS structures and functions, and those within the provinces.
The role of information technology at the national level to facilitate access to information.

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Report of the Interministerial Working Group on the Library and Information Services (LIS) function (National Level): Draft

Jointly published byDepartment of Arts, Culture, Science and Technology and the Department of Education

Preface

Executive summary

Location of mechanisms

The establishment of a National Council for Library and Information Services

The relationship between National LIS structures and functions, and those within the provinces

The role of information technology at the national level to facilitate access to information

1. Introduction and background

1.1. Development of Library and Information Services (LIS) policy

1.2. Background information

1.2.1. LIS policy investigations

1.2.2. National alignment of LIS

1.2.3 Issues considered in the formulation of the terms of reference of the Interministerial Working Group on the Library and Information Services (LIS) Function (National Level)

1.2.3.1 A national council for library and information services

1.2.3.2 Relationship between national and provincial LIS structures

1.2.3.3 Role of information technology and the information society

1.2.4 Members of the Working Group

2.Terms of reference of the Working Group

3. Problem statement

4. Strategic approach

4.1. Introduction

4.2. Vision of the South African LIS system

4.3. Mission of the South African LIS system

4.4. Values of the South African LIS system

4.5 Strategic goals

4.5.1 Introduction

4.5.2 The proposed strategic goals

5. Advisory and coordinating mechanisms

5.1 Alignment of LIS

5.1.1 Departmental responsibility for LIS

5.1.2 Recommendations

5.2 Establishment of a National Council for Library and Information Services

5.2.1 Interdepartmental Coordinating and Planning Committee (ICPC) for LIS

5.2.1.1 Introduction

5.2.1.2 Composition of the Interdepartmental Coordinating and Planning Committee (ICPC) for LIS

5.2.1.3 Recommendation

5.2.2 The proposed National Council for Library and Information Services

5.2.2.1 Introduction

5.2.2.3 Recommendation

5.3 Coordination between national LIS structures and those at the provincial level

5.3.1 Introduction

5.3.2 MINMEC mechanism

5.3.3 Recommendations

6. The role of information technology

6.1 Introduction

6.1.1 Impact and strategic context of the globalised information society

6.1.2 "Infrastructure and "info"structure

6.1.3 The role of the information society in development

6.2 Information networks

6.3 The virtual electronic library

6.4 Cooperation

6.5 LIS policy and information society policy

6.6 Recommendation

List of sources consulted

Acronyms and abbreviations used

Annexure A: Overview of the current state of LIS in South Africa

1. Introduction

2. Types of LIS agencies

2.1 National libraries

2.2 Legal deposit libraries

2.3 Public libraries

2.4 School libraries

2.4.1 Introduction

2.4.2 Development of South African libraries

2.4.3 Role of national level in school libraries

2.4.4 Conclusion

2.5 Academic libraries

2.6 Special libraries

2.7 Government libraries

2.8 Resource centres

2.9 Rural information services

2.9.1 Introduction

2.9.2 Characteristics of rural communities

2.9.2.4 Poverty

2.9.3 Information needs of rural communities

2.9.4 Nature of rural information services

2.9.5 Location of rural community resource centres

2.9.6 Role of national level governance in rural information services

2.9.7 Conclusion

Jointly published by
Department of Arts, Culture, Science and Technology and the Department of Education