Unit 1.3: Role of Public Libraries in Modern Society.
MLIS-102 (D): Public Libraries
1. Introduction
Public libraries are vital to any nation's cultural, educational, and social fabric. In India, the evolution of public libraries has been a dynamic and multifaceted journey, reflecting the country's rich history and diverse cultural landscape. This exploration takes us through the transformation of libraries from ancient times to the contemporary era, showcasing how they have adapted to the changing needs of society. Understanding the growth and development of public libraries in India is a testament to their historical significance and sheds light on the challenges and opportunities they continue to face in the modern age.
2. Examples of Global Public Libraries
• The British Library, United Kingdom: The British Library is one of the largest and most renowned public libraries in the world, housing a vast collection of books, manuscripts, and digital resources. It serves as a hub for research and public access to knowledge.
• The New York Public Library, USA: The New York Public Library system is one of the largest public library systems in the United States, with numerous branches across New York City. It has a rich history and provides a wide range of services and resources to the public.
• The National Library of China, China: The National Library of China, founded in 1909, is one of the largest libraries in Asia and plays a pivotal role in preserving and disseminating Chinese literature and culture.
• The Bibliothèque nationale de France, France: The National Library of France is a prominent example of a national library, housing a vast collection of books, manuscripts, and other materials and serving as a centre for research and scholarship.
The growth and development of public libraries worldwide reflect the evolution of societies, the importance of knowledge, and the ongoing commitment to providing access to information for all community members. These institutions continue to adapt and serve their communities in an ever-changing information landscape.
3. Public Libraries and Social Change
When delving into the history of public libraries worldwide, it becomes evident that they are not just a product of social change but also an agent of change. This transformation is exemplified in the British experience.
In the case of Britain, the emergence of the modern public library was a result of specific developments that laid the groundwork for its growth:
• Formation of a Strong and United Nationhood: England was among the first to establish a legal system and a parliamentary government, which led to a solid and united nation under a liberal monarchy.
• Pioneering Parliamentary Democracy: The birth of parliamentary democracy in Britain was pivotal. The signing of the Magna Carta in 1215 marked a commitment to safeguarding human rights against excessive royal power. The British Parliament earned the moniker "the Mother of Parliaments" and played a significant role in the victory of Parliament during the Civil War of 1642-52.
• Evolution of the English Language: The English language, with its roots in Old English, Middle English, and Modern English, became one of the oldest and most widely used European languages. The vast body of English literature further enriched its prominence.
• Renaissance and Enlightenment: The Renaissance, spanning the 14th to 17th centuries, was a period of profound change and cultural revival. It aimed to produce well-rounded individuals with knowledge in humanities, mathematics, science, arts, and free thought. Studying Greek and Roman literature and arts was crucial in this era.
• European Expansion Overseas: The 17th century marked the onset of European expansion overseas. By the mid-19th century, European powers had established dominion over most of the world. The British Empire, in particular, grew to unprecedented dimensions.
• The Industrial Revolution: The Industrial Revolution, which commenced in Britain around 1750, led to urbanisation and the rise of educated middle classes. This revolution expanded the British Empire and brought immense wealth to the nation.
• Social Reforms: In 1906 Britain initiated a comprehensive social reforms program to improve the working class's social status.
• Educational Transformation: 1870, the Elementary Education Act was passed, signalling the state's responsibility in establishing elementary schools. Secondary education, however, remained with fee-charging Grammar Schools and public schools until 1918, when a national public education system was installed. The Education Act of 1944 was a landmark moment that revamped the educational system. It gave the Minister of Education the authority to enforce minimum standards regarding school infrastructure, equipment, and qualified teachers. A parallel provision was made in the Public Libraries Act of 1944, which we will delve into shortly.
This historical context reveals the symbiotic relationship between societal changes and the development of public libraries, demonstrating how they evolved into powerful instruments of social transformation.
4. Growth of Public Libraries in India
The establishment and evolution of public libraries in India were profoundly influenced by Western practices and occurred during the 185 years of British colonial rule in India, from 1762 to 1947. Interestingly, the developmental stages of public libraries in Britain and India followed similar trajectories, although India's progress lagged. For instance, while Britain enacted its first public library law in 1850, India didn't do so until 1948. The modern concept of shared libraries took root in Britain in 1945, whereas it was not until 1950 that India saw the founding of the Delhi Public Library. Moreover, library education at the university level began in both countries during the First World War (1914-18).
Just as subscription libraries preceded modern public libraries in Britain around 1750, a parallel evolution occurred in India around 1850. Subscription libraries, which required members to pay security deposits and annual subscriptions, gained momentum, mainly due to the freedom struggle. By the time of India's independence in mid-1947, the country had a remarkable tally of approximately 50,000 subscription libraries, although many were relatively small in scale. This made India stand out among developing countries, boasting many public libraries.
The First Phase (1808-1900): A pivotal moment in developing public libraries in India occurred in 1808. During this year, the Bombay Presidency initiated a proposal to register libraries eligible to receive copies of books published using the "Funds for the Encouragement of Literature."
By the mid-19th century, all three Presidency towns - Bombay, Calcutta, and Madras - had their "public libraries," primarily established with active support and initiatives from the European community in these cities. It was the Indians with a Western education who later adopted this concept and began establishing their subscription libraries. However, it's worth noting that subscription libraries open only to paying members still need to embody the essence of public libraries fully. Two fundamental conditions set the criteria for a public library: first, it should be accessible to all, and second, it should provide its services without charge. Only a library financed by public funds and established under a legal framework by a public authority could offer free services to the public.
The Second Phase (1900-1937): The history of the public library movement in India can be segmented into distinct phases. The second phase, from 1900 to 1937, witnessed a shift in the driving forces behind public libraries. While the first phase was marked by active involvement from state governments, the second phase saw increased intellectual community interest. The onset of this phase can be traced back to 1900 when the Calcutta Library, initially a subscription library established in 1832, opened its doors to the general public by showing a reading room. In 1902, Lord Curzon, the Governor-General of India, took over the Calcutta Library and renamed it the Imperial Library. Following India's independence, an Act of Parliament in 1948 bestowed the title of the National Library upon it.
One notable achievement during this era was the library movement in the princely state of Baroda. From 1906 to 1911, Sir Sayaji Rao III, the ruler of Baroda, pioneered an extensive system of public libraries, which included the Central Library, Village Libraries, and Traveling Libraries. This model library system set a precedent for the entire nation. The Maharaja enlisted the services of an American librarian, Mr. Bowden, to organise this system.
Mr. Bowden was pivotal in establishing India's first Library School in Baroda in 1906. This institution admitted students from across India and continued to operate for several years. Subsequently, the second library school was established at Panjab University, Lahore (now in Pakistan), in 1915 by another American librarian, Mr. Asa Don Dickinson, a contemporary of Melvil Dewey.
During this phase, the first State Library Association was formed in Andhra in 1914, followed by Bengal in 1927. Additionally, the Indian Library Association (ILA) was established in Calcutta in 1933. Asa Don Dickinson was the first in India to publish the "Library Primer" in 1916, which served as a textbook for his students. The Panjab Library Association pioneered publishing the library journal in 1935, titled the "Modern Librarian," based in Lahore; this period marked significant strides in library education, professional organisations, and publications, contributing to the advancement of the public library movement in India.
The Third Phase (1937-1947):
The third phase of the library movement in India began in 1937, coinciding with the Indian National Congress Party's ascension to power in many provinces. This phase marked a synthesis of the preceding two stages, with elected governments showing increased responsiveness to the people's demands. In response to the villagers ' requests between 1937 and 1942, state governments established around 13,000 village libraries. These libraries were a product of the Indian Adult Education movement, gaining momentum nationwide during this period.
A pivotal development during this phase was the report of the Library Development Committee in Bombay (1939-40), chaired by Professor A.A.A. Fyze. This report outlined a comprehensive scheme for developing public libraries in the province, structured in six stages, including a Central Library and a Regional Library in each Revenue Division. The estimated cost of the scheme was around Rs 15 lakhs, but the provincial government needed help to allocate that amount.
The Fourth Phase (1947 TO DATE):
The fourth phase of the Indian public library movement commenced on August 15, 1947, with India achieving independence. It witnessed two significant milestones:
• Madras Public Libraries Act (1948): This marked the passage of the Madras Public Libraries Act in 1948, the first of its kind in the country's history.
• Delhi Public Library: This landmark event established the Delhi Public Library, a joint public library project funded by UNESCO and the Government of India.
In 1949, UNESCO initiated a pilot project for a modern public library as a cultural centre for the people, based on the UNESCO Manifesto defining the library's nature and scope. This project was offered to developing countries worldwide, and India was the first to accept the invitation. The UNESCO Manifesto organised the Delhi Public Library adopted in 1948, meeting all the criteria. It distinguished itself with the following features:
• Open to all without discrimination.
• Providing all services free of charge.
• No cash security is required if a responsible person recommends the borrower.
• Open access to all books.
• Organizing cultural groups like Literature Groups, Drama Groups, and Arts Groups, with members electing their leaders. Similar activities were arranged for children and young adults.
• Utilizing a fleet of bookmobiles to distribute books at various city centres.
• Offering Braille books and talking books for the visually impaired, delivered to their homes free of charge.
• Providing music cassettes and gramophone records at no cost.
• Comprising structural units such as city central libraries, zonal libraries, social branches, and community centres throughout the city.
• Holding the distinction of being Asia's busiest public library, enrolling approximately 100,000 members and lending about 10,000 books daily at its peak.
In 1956, UNESCO evaluated the library and declared it its most successful project. The library hosted an Asian seminar the same year, demonstrating its services to librarians across Asia. UNESCO also published a book titled "The Delhi Public Library" to document its accomplishments and impact. This marked a significant turning point in the evolution of public libraries in India.
5. Central Government Aided Public Library Projects
The Ministry of Education, Government of India, took a significant step in 1952-53 by offering grants to the states to establish public libraries. This initiative was later incorporated into the First Five-Year Plan (1951-56), which allocated resources for establishing state and district central libraries and branches in all district habitations. Approximately Rs 1 crore was invested in these libraries, with two-thirds of the funding provided by the Central Government.
In 1952, the Government of India introduced the Community Development program, which accorded social education a pivotal role. This program had a profound impact on rural libraries, providing them with the impetus to thrive and cater to the educational needs of rural communities.
In 1954, the Central Government adopted the Delivery of Books Act, which mandated publishers deposit copies of their books in each of the four designated Public Libraries nationwide. Subsequently, the Act was amended in 1956 to include newspapers as well. The four libraries entrusted with this responsibility are:
• The National Library, Calcutta: Located in Kolkata, the National Library is the largest in India and plays a crucial role in preserving the country's literary heritage.
• The Connemara Public Library, Madras: Situated in Chennai, the Connemara Public Library has been a vital institution for the people of South India.
• The Sachivalaya Central Library, Bombay: This library in Mumbai is an essential resource for the bustling city and the state of Maharashtra.
• The Delhi Public Library: Located in Delhi, this library is known for its extensive services and community outreach, making it a vital centre for knowledge dissemination.
These measures by the Central Government not only enhanced the infrastructure and accessibility of public libraries but also reinforced the importance of literature and education across India.
6. Public Libraries in India: Tracing the Growth and Origins
Public libraries have played an essential role in the dissemination of knowledge and the promotion of literacy across the world. India is no exception, with a rich history of libraries that evolved in response to changing societal needs. Throughout history, India's libraries have been influenced by rulers, capitalists, and philanthropists who contributed significantly to their development.
• Ancient Libraries: Learning Centers
In ancient India, libraries began to emerge with the patronage of emperors, significant capitalists, and scholars. These libraries were a testament to the support of emperors and kings for the cause of scholarship and knowledge. Remarkably, evidence of well-established libraries dates back to the sixth century A.D. For instance, the renowned Nalanda University in Bihar boasted a magnificent library with an extensive collection of manuscripts covering a broad spectrum of knowledge. Access to these early libraries was primarily limited to scholars. Other ancient universities, including Taxila and Vikramashila, also maintained valuable libraries.
• Colonial Impact: British Arrival and Chaos
While libraries established by kings and capitalists operated as private institutions with limited access, the British played a pivotal role in shaping India's modern public library system. In 1808, the Government of Bombay proposed the registration of libraries, with books distributed from the "funds for the encouragement of literature." This marked the beginning of the first phase of public library development in India. In the first half of the 19th century, the presidency towns of Bombay, Calcutta, and Madras had public libraries financed mainly by European residents.
One significant milestone during this period was the establishment of the public library in Calcutta in 1835, which later evolved into the National Library of India. Simultaneously, subscription libraries emerged in various Indian cities, mimicking their Western counterparts. However, these private libraries served only a tiny, affluent portion of society.
• The Golden Age of Indian Libraries
The early 20th century is often regarded as the golden age of the Indian library system. On January 31, 1902, the Imperial Library Act was passed, and Lord Curzon transformed the Calcutta Public Library into the Imperial Library in 1906. Notable developments took place in Baroda, where Maharaja Sayaji Rao Gaekwad III was deeply impressed by the role of public libraries in promoting education during his global travels. In 1910, he invited American expert William Alson Borden to organise a public library system for his state, resulting in a remarkable public library movement that remained unique to that region. The era also witnessed various library conferences, reflecting a growing interest in the field, including the first All India Library Conference and the All India Public Library Conference.
• Era of Democratic Governments and Library Expansion
The period following the existence of democratic governments in several provinces from 1937 marked another phase of library development in India. Between 1937 and 1942, the establishment of village libraries and travelling libraries gained momentum in states like Assam, Bihar, Punjab, and Travancore. It is estimated that approximately 13,000 village libraries were present in India by 1942. One of the notable developments during this time was the formation of the 'Library Development Committee' by the Government of Bombay, with A.A.A. Fyzee as its chairman. The committee's ambitious recommendations aimed to create a comprehensive library system in three successive stages, although financial constraints limited the full implementation of these proposals.
• Post-Independence Progress
Following India's independence, she witnessed significant library growth, although this progress was more noticeable in academic and special libraries. In the post-independence era, India confronted numerous challenges. The vast rural population, constituting 88 per cent of the total, faced high illiteracy rates. Transportation infrastructure needed to be developed, and mass media had limited reach. Despite these challenges, the landscape of public libraries in India gradually improved despite several shortcomings.
• Post-Independence Library Scene
The 1951 census, the first to be conducted after India gained independence, revealed 2,843 local governments in urban and rural areas across the country, with 320 of them being rustic district boards. Surprisingly, only about one-third of these local governments maintained public libraries, numbering approximately 950. Additionally, there were around 1,500 subscription libraries. The so-called "public libraries" of this time were essentially reading rooms with a limited collection of books for on-premises reading.
7. The Significance of the Delhi Public Library
One library that merits special mention is the Delhi Public Library, established in 1951 as the inaugural UNESCO Public Library Pilot Project, conducted jointly by UNESCO and the Government of India. The library was envisioned to adapt "modern techniques to Indian conditions" and serve as a model public library for Asia (Verma & Agarwal, 1994, p. 8). The establishment of the Delhi Public Library, the active engagement of the central government in the public library movement, and the enactment of public library legislation in several states played a pivotal role in enhancing public libraries post-independence.
Challenges in Funding and Planning
While India's government allocated funds for public library development within its five-year plans, there needed to be more disconnection between these financial allocations and effective planning. This gap led to a need for more efficient resource utilisation and limited public library progress.
8. Advisory Committee for Libraries' Recommendations: Sinha Committee
In 1957, the Government of India took a significant step by appointing a committee to assess the status of public library development in the country. This committee, commonly referred to as the Sinha Committee, after its chair, Dr. A.P. Sinha, who was then serving as the Director of Public Instruction in Bihar, was tasked with evaluating various aspects of library services and charting a course for the future of public libraries in India.
Scope of the Sinha Committee:
The responsibilities entrusted to the Sinha Committee were comprehensive and included:
• Reading Needs Assessment: Determining the current reading needs of the population, how these needs are being met, and the role played by existing library systems in addressing these needs.
• Understanding Reading Tastes: Examining reading preferences, identifying agencies that provide suitable literature, and proposing ways to enhance reading preferences.
• Library Structure Recommendations: Formulating recommendations for the future structure of libraries in India.
• Library-Education Cooperation: Recommending areas of collaboration between libraries and educational systems.
• Librarian Training and Service Conditions: Assessing the training of librarians and the conditions of their service.
• Administrative and Financial Measures: Suggest the necessary administrative and financial measures required to support public libraries in India (Ministry of Education, India, 1961, p. 126).
Committee Findings:
The Sinha Committee, in its comprehensive evaluation, portrayed a rather bleak scenario of the public library landscape in India. It noted that libraries, in many cases, were "stagnant pools of books" due to the irregular addition of new books. The rigidity of rules hindered the utilisation of extensive collections, and library users were often subjected to onerous financial requirements, which disadvantaged lower-income individuals.
As of March 1954, there were approximately 32,000 libraries in India, collectively housing a little over 7,100,000 books, with a total circulation of about 37,700,000. The report highlighted the rarity of genuine public library service and expressed dissatisfaction with the state of public library service across the nation.
Key Recommendations of the Sinha Committee:
The primary recommendations put forth by the Sinha Committee were far-reaching and aimed at reshaping the public library landscape in India:
• Universal Access: The committee recommended making library services freely accessible to every citizen of India.
• Hierarchical Library System: Proposing a structured hierarchy for public library services, commencing with the National Library and progressing to State Central Library, District Library, Block Library, and Panchayat Library.
• Dedicated Director of Social Education and Libraries: Suggesting the establishment of an independent Director of Social Education and Libraries in every state, led by a full-time senior-class officer of the rank of Deputy Director of Education, responsible for planning, organising, and administering library services.
• Central Oversight: Advocating the creation of an All India Library Advisory Council as a central agency to evaluate and assess the work accomplished at the state level.
• Library Associations' Involvement: Encouraging library associations to support development nationwide.
• University-Public Library Collaboration: Promoting cooperation between university libraries and public library systems by allowing selected general readers to access their collections.
• State Government Responsibility: Urging state governments to assume responsibility for public library services within their jurisdictions.
• Librarian-Social Worker Collaboration: Recommending collaboration between librarians and social education workers to promote literacy.
• Library Cess (Tax or Fee): Proposing the imposition of a library cess at the rate of six paise for every rupee of property tax, with the consent of local bodies. The Government of India was expected to match the amounts collected in the states. Furthermore, state governments were encouraged to provide matching grants to local bodies to triple the cess collected over the following 25 years.
9. Empowering Public Libraries: Raja Ram Mohan Roy Library Foundation
To boost library development in India, the Central Government established the Raja Ram Mohan Roy Library Foundation (RRRLF) on May 22, 1972. This initiative coincided with the bicentenary celebrations of the birth of Raja Ram Mohan Roy, an illustrious social reformer from the early 19th century. The foundation, headquartered in Calcutta, aims to foster library development on a national scale, with a specific focus on rural library advancement.
Key Objectives of RRRLF:
• Library Movement Promotion: The foundation's primary goal is to promote and advance the library movement in India, encouraging the establishing and growth of libraries as vital community resources.
• National Library Policy Advocacy: RRRLF actively advocates for the development and adoption of a national library policy by both central and state governments, thereby providing a structured framework for the growth of libraries.
• National Library System Integration: The foundation envisions the creation of a cohesive National Library System. This system would harmoniously integrate the services of National Libraries, State Central Libraries, District Libraries, and other library types through an interlibrary lending network.
• Library Legislation Propagation: RRRLF supports and promotes the formulation and implementation of library legislation throughout the country, which can establish the legal foundation for library services.
• Financial and Technical Assistance: The foundation provides financial and technical aid to libraries, enabling them to enhance their services, resources, and infrastructure.
• Support for Voluntary Organizations: RRRLF extends financial support to voluntary organisations and library associations that actively contribute to promoting and developing libraries.
• Publication of Development Reports: The foundation periodically publishes comprehensive reports on library development, thereby disseminating valuable insights and information.
• Clearing House for Library Ideas: RRRLF acts as a clearing house, facilitating the exchange of ideas and information regarding library development within India and on the global stage.
• Advisory Role: The foundation serves as an advisory body to the Government of India, offering expertise and recommendations on matters related to library development.
• Research Promotion: RRRLF actively supports and promotes research initiatives to address various challenges and aspects of library development.
Programs and Assistance:
The RRRLF has well-rounded programs and assistance initiatives designed to bolster library development and expansion. Some of these programs include:
• Collection Building: Assistance in acquiring and expanding library collections.
• Rural Libraries and Mobile Services: To extend access support establishing libraries in rural areas, including mobile library services.
• Seminars, Workshops, and Conferences: Sponsorship of events and platforms for knowledge sharing, including seminars, workshops, conferences, and training courses.
• Facilities and Equipment: Funding for facilities and equipment for properly storing and displaying library materials.
• Public Library Buildings: Support for constructing and improving public library infrastructure.
• Educational Technology: Provision of television and VCR equipment for educational purposes.
• Assistance to Voluntary Organizations: Financial support to organisations that contribute to public library services.
• Children's Libraries: Assistance for establishing and growing children's libraries or sections within general public libraries.
Foundation's Impact: Over the past three decades, RRRLF has supported over 500 libraries, including those in rural areas. Its multifaceted programs and financial aid initiatives have been instrumental in advancing library services nationwide, contributing to the broader objective of strengthening education and knowledge dissemination.
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