Unit 3.3 : Comparative and Critical Study of Public Library Acts in India.
MLIS-102 (D): Public Libraries
1. Madras Public Libraries Act 1948
The Madras Public Libraries Act holds the distinction of being the first of its kind in independent India. Enacted to establish the foundation of the Public Libraries System in the composite Madras State (pre-November 1956) and subsequently in Tamil Nadu, this pioneering act introduced several key features:
• Establishment of Public Libraries: The primary objective of the act is to facilitate the establishment of Public Libraries throughout the State, fostering a culture of accessibility to knowledge.
• State Library Authority: A significant provision allows for the constitution of a State Library Authority. This body is tasked with advising the Government on matters related to libraries as referred to by the Government.
• Appointment of Director of Public Libraries: Initially, the act provides for appointing a Director of Public Libraries. Notably, from 1972 onward, a separate department was created to oversee this role.
• Local Library Authorities: The act calls for the constitution of Local Library Authorities, with distinct entities for the City of Madras and each District. The District Library Officer serves as the Ex-officio Secretary of the Local Library Authority.
• Library Cess: Each Local Library Authority is empowered to levy a library cess in the form of a surcharge on property tax or house tax, set at a rate of 5 paise per rupee. The government extends a matching grant to each Local Library Authority, excluding Madras, corresponding to the amount of library cess collected.
• Connemara Public Library: Recognizing its significance, the Connemara Public Library in Madras is designated the State Central Library for Tamil Nadu.
• Eligibility for Government Aid: A crucial declaration within the act establishes that libraries are eligible for government aid, underscoring the importance of state support.
• Amendment to Press and Registration of Books Act: In a notable amendment, the act modifies Section 9 of the Press and Registration of Books Act, 1867 (Central Act, XXV of 1867). The amendment stipulates that every printer must deliver five copies of each book to the State Government, with four documents to be deposited in the State Central Library in Madras.
The Madras Public Libraries Act lays the groundwork for a comprehensive public library system. It introduces innovative measures to ensure effective governance, financial sustainability, and accessibility to literary resources across the region.
2. The Andhra Pradesh Public Libraries Act 1960
The Andhra Pradesh Public Libraries Act of 1960 emerged as a solution to administrative challenges that arose when Andhra Pradesh was formed in 1956, incorporating Andhra areas from the composite Madras State and the Telangana area from the Hyderabad State. At the time, the Madras Public Libraries Act was in force in the Andhra region, creating a need for synchronisation and clarity in governance. Both Acts were amalgamated, modified, and updated to address this, establishing the Andhra Pradesh Libraries Act in 1960.
Over subsequent years, significant amendments in 1964, 1969, 1987, and 1989 led to substantial improvements, culminating in the constitution of the Andhra Pradesh Granthalaya Parishad. This body, essentially functioning as a State Library Authority at the apex level, was endowed with statutory powers and functions, surpassing the framework of the earlier Madras Act.
Key features of the Andhra Pradesh Libraries Act include:
• Andhra Pradesh Granthalaya Parishad: This act lays the foundation for the constitution of the Andhra Pradesh Granthalaya Parishad, comprising a nominated body appointed by the government. It serves as the apex body with statutory powers and functions.
• Directorate of Public Libraries: A Directorate of Public Libraries is established to oversee and regulate the Public Library System, providing direction, supervision, and control.
• City/Zilla Granthalaya Samsthas: These entities are formed through the government's nomination of Chairman and Members, ensuring localised governance. Librarians of City/District Central Libraries act as ex-officio Secretaries of the City/Zilla Granthalaya Samsthas.
• Library Cess: The act introduces the provision to collect library cess, set at up to eight paise per rupee, as a surcharge on house tax and property tax collected by local bodies.
• Establishment Charges: The government pays establishment charges for the City/Zilla Granthalaya Samsthas staff.
• Grant-in-Aid: Both the government and City/Zilla Granthalaya Samsthas are empowered to provide grant-in-aid to private libraries, fostering a collaborative approach to library development.
The Andhra Pradesh Libraries Act is more functional than its predecessors, addressing the earlier Madras Act's and Hyderabad Act's shortcomings. The establishment of the Andhra Pradesh Granthalaya Parishad marks a significant stride in enhancing the organisational structure and effectiveness of the state's public library system.
3. The Karnataka Public Libraries Act
The Karnataka Public Libraries Act of 1965 stands out as a commendable piece of legislation that has played a pivotal role in establishing a comprehensive network of public libraries across the state. This act has laid a solid foundation for promoting education and knowledge by covering diverse regions such as Bombay-Karnataka, old Mysore, Hyderabad-Karnataka, Madras-Karnataka, and Coorg.
Key features of this act include:
• State Library Authority: A significant provision entails the creation of a State Library Authority, structured as a corporate body, with the Minister in charge of Education serving as its Chairman. The members of this authority are selected from various segments of society, ensuring diverse representation.
• Independent Department of Public Libraries: The act introduces establishing an independent Department of Public Libraries, with a qualified professional at its helm. This move aims to enhance the efficiency and effectiveness of library services.
• State Central Library: To serve as the apex institution within the Public Library System, the act provides for establishing a State Central Library.
• Local Library Authorities: The constitution of Local Library Authorities for both cities and districts is a noteworthy feature, facilitating localised management and administration.
• Advisory Committees: The act emphasises the importance of Advisory Committees for Branch and Village Library Services, fostering a collaborative and consultative approach.
• Centralized Technical Processing: Recognizing the need for efficiency, the act includes a provision for centralised technical processing, streamlining operations.
• Centralized Units: Several centralised units are established, including a Copyright Collection of the State, a State Library for the Blind, and a State Bibliographic Bureau, among others.
• Library Cess: A unique provision allows for the imposition of library cess as a surcharge on all taxable units of State revenues. The District Library Authority receives an annual grant from the State Government, equivalent to 3% of the land revenue.
• State Library Service: The act also envisions the creation of a State Library Service, extending to its employees the same benefits and privileges enjoyed by other State government servants.
The Karnataka Public Libraries Act of 1965 establishes a robust framework for public libraries. It incorporates measures to ensure sustained funding, professional management, and inclusive representation, promoting a vibrant culture of learning and knowledge dissemination throughout the state.
4. The Maharashtra Public Libraries Act 1967
The Maharashtra Public Libraries Act of 1967 marked a significant milestone in the state's commitment to fostering knowledge and education. Formed in 1960, the Maharashtra State comprises Western Maharashtra, Marathwada, Vidarbha, and amalgamated princely states like Kolhapur. Despite efforts for library legislation dating back to 1940, it wasn't until 1967 that the Maharashtra Public Libraries Act was successfully enacted.
Key features of this act include:
• State Library Council: The government is responsible for the constitution of the State Library Council, with the Minister for Education serving as the Ex-officio President. The council's role is to advise the State Government on all matters connected with the administration of the Act.
• Department of Libraries: The act introduces establishing a separate Department of Libraries, headed by a qualified professional serving as its Director. This move aims to enhance the professional management of libraries.
• State Central Library and Divisional Libraries: The act envisions the establishment of a State Central Library along with Divisional Libraries for each administrative division, ensuring accessibility and coverage.
• District Library Committee: For every district, the act calls for the constitution of a District Library Committee. The Ex-officio President of this committee is the Chairman of the Education Committee of the Zilla Parishad in the district. In the case of Greater Bombay, the Chairman of the Education Committee of the Municipal Corporation assumes this role.
• Maharashtra State Library Service: The act introduces the establishment of the Maharashtra State Library Service, treating all its members as government servants, thereby ensuring standardised benefits and privileges.
• Library Fund: Unlike other states, there is no library cess. Instead, the government contributes a minimum of 25 lakh rupees to the library fund annually. Additionally, the government retains the authority to make special grants to the library fund.
• Grant-in-Aid: Recognizing the role of voluntary organisations in promoting public libraries, the act provides grant-in-aid to such libraries organised by these organisations, fostering collaboration in developing public library services.
The Maharashtra Public Libraries Act of 1967 reflects the state's dedication to building a robust library system, addressing administrative gaps, and ensuring sustained financial support for promoting education and knowledge dissemination.
5. The West Bengal Public Libraries Act 1979
The West Bengal Public Libraries Act 1979 made its way into the statute book after a gap of more than a decade, filling a crucial void. While it shares similarities with the Madras Act, this legislation's distinctive feature is the absence of library cess. In this case, the State Government undertakes the responsibility of meeting the expenditure for library maintenance directly from its exchequer.
The key features of this act are outlined below:
• State Library Council: The act provides for the constitution of a State Library Council, with the Minister in charge of the library service serving as its Chairman. This council plays a pivotal role in advising the government on matters about the public library system.
• Employee Representation: A unique aspect of the State Library Council is the inclusion of a representative from the employees of the libraries, ensuring diverse perspectives in the decision-making process.
• Department of Libraries: To streamline and oversee matters related to public libraries, the act calls for establishing a Department of Libraries.
• Local Library Authority: For each district, the act mandates the formation of a Local Library Authority, with the District Magistrate serving as the Ex-officio Chairman of this authority.
• Executive Committee for Local Library Authority (LLA): The act allows for the constitution of an Executive Committee for the Local Library Authority, adding a layer of organisational structure to local library governance.
• Appointment of District Library Officers and District Librarians: The government is empowered to appoint District Library Officers and District Librarians in districts. The Act allows for placing District Libraries under the charge of the District Librarian after consultation with the Authority. The District Librarian manages library affairs subject to the control of the Authority.
• No Library Cess: Unlike some states, this act does not include provisions for a library cess. Instead, financial management for local libraries falls under the purview of the Local Library Authority. Funding sources include contributions, gifts, income from endowments, grants from the government for general maintenance or specific purposes, and amounts collected by the LLA under the Act or the rules.
The West Bengal Public Libraries Act 1979 thus establishes a framework for effective library governance, focusing on financial sustainability through direct government funding and a decentralised approach to local library management.
6. The Manipur Public Libraries Act 1988
The Manipur Public Libraries Act, enacted in 1988, marked a significant development for the small state of Manipur in the eastern part of India. The salient features of this legislation are outlined below:
• State Library Committee: The act provides for the constitution of a State Library Committee. This committee advises the State Government on all matters arising under the Act and exercising and performing other prescribed powers and duties.
• Department of Public Libraries: The legislation establishes a Department of Public Libraries to oversee and manage public library affairs in the state.
• Executive Committee for District Library Authority: A provision is made for the constitution of an Executive Committee for the District Library Authority, enhancing the efficiency and effectiveness of local library governance.
• District Library Authority: A corporate body known as the District Library Authority is formed in each district. This body is responsible for organising and administering public library services within the district.
• Library Fund: The act introduces the concept of a 'Library Fund,' primarily composed of contributions from the State Government. This fund serves as a crucial financial resource for supporting public library services.
• No Library Cess: Distinguishing itself from some other states, the Manipur Public Libraries Act does not include provisions for a library cess. Instead, the financial foundation for public libraries is built on contributions from the State Government and the formation of the Library Fund.
The Manipur Public Libraries Act of 1988 underscores the state's commitment to developing public library services, providing a structured framework for governance, financial support, and advisory mechanisms to ensure effective implementation.
7. The Kerala Public Libraries Act 1989
The Kerala Public Libraries Act of 1989 is a distinctive and unique legislation due to its democratic and decentralised pattern. The key characteristics of this act are outlined below:
• Three-Tier Administrative System: The act introduces a three-tier administrative system for organising and administering the public library system in Kerala. This system comprises the Kerala State Library Council, District Library Council, and Taluk Library Union.
• Elected Office Bearers: Presidents, Vice-Presidents, Secretaries, and Joint Secretaries of the State Library Council, District Library Councils, and Taluk Library Unions are elected. They are responsible for the administration and organisation of public libraries.
• Role of State Library Council: The State Library Council not only advises the Government on matters related to the development of public libraries but also functions as an authority. It coordinates the working of District Library Councils and Taluk Library Unions, exercising control over the Public Library System in the state.
• Designation of State Library: The Trivandrum Public Library is designated as the State Library of Kerala.
• Supervision by District Library Council: District Library Councils are tasked with supervising, coordinating, and controlling the library service within the district.
• Taluk Library Union: This union has powers to supervise, coordinate, and control the library service in the Taluk. It also provides guidance and advice to affiliated libraries in their day-to-day functions and management.
• Transfer of Kerala Granthasala Sangham: The act mandates the transfer of Kerala Granthasala Sangham, along with its staff, assets, and liabilities, to the State Library Council.
• Library Cess: A unique feature is the levy of library cess in the form of a surcharge on building tax or property tax within the jurisdiction of panchayats, municipalities, and corporations.
• State Library Fund: The State Library Council maintains the State Library Fund. All expenses of the State Library Council, District Library Councils, and Taluk Library Unions are met from this fund. The library cess collected in the state and grants from the State and Central Governments are credited to the State Library Fund.
• Reservation in Committees: The act includes provisions for reservation, ensuring representation for at least one woman and one person belonging to scheduled castes and scheduled tribes in all committees.
While the Kerala Public Libraries Act of 1989 appears to be a functional and comprehensive piece of legislation, it is noted that it has yet to be implemented, and the reasons for non-implementation still need to be discovered.
8. The Haryana Public Libraries Act 1989
The Haryana Public Libraries Act of 1989, crafted after the formation of the Haryana State in 1966, outlines various features to establish a robust library service across the region. The notable features of this act include:
• State Library Authority: The act initiates the formation of the State Library Authority, tasked with advising the Government on all matters related to promoting Library Services in the State.
• State Library Directorate: To execute the approved programs and initiatives, the act establishes the State Library Directorate.
• State Central Library: The legislation includes provisions for establishing the State Central Library, serving as a key hub in the state's library network.
• District Library Committee: The act mandates forming a District Library Committee for each district, emphasising localised governance and decision-making.
• City and Town Library Committee: The act provides for the constitution of City and Town Library Committees for cities with populations exceeding one lakh and Town Library Committees for Municipal Towns with people of not more than one lakh. The rules governing these committees are to be framed by the District Library Committee.
• Block Library Committee and Panchayat Library Committees: The District Library Committee is empowered to establish Block Library Committees and Panchayat Library Committees to enhance library services at the local level.
• Library Funds: Multiple funds, including the State Library Fund, District Library Fund, City or Town Block or Village Library Fund, are created to support the development, improvement, and maintenance of the Library Service.
• Library Cess: The act introduces the levy of Library Cess as a surcharge on property and house taxes. The rate is to be decided by the Government from time to time.
• Recognition of Associations and Co-operative Institutions: The State Library Authority is granted the power to recognise State library associations and co-operative institutions to foster collaboration and community involvement.
Despite its comprehensive approach to establishing a network of libraries for both rural and urban areas, it is noted that the Haryana Public Libraries Act of 1989 has yet to come into force, and the reasons for this non-implementation still need to be clarified.
9. The Mizoram Public Libraries Act 1993
The Mizoram Public Libraries Act of 1993, enacted within five years of Mizoram attaining full statehood in 1987, incorporates several distinctive features to promote and develop libraries in the state. The key features of this act include:
• State Library Council: The act initiates the constitution of the State Library Council, which serves the crucial role of advising the Government on library matters and the overall promotion and development of libraries in the state.
• Department of Public Libraries: A Department of Public Libraries is established to control and supervise the public library system in the state, ensuring efficient governance and coordination.
• Library Establishments: The legislation establishes various library levels, including the State Library, District Library, Sub-divisional Libraries, Village Libraries, and more, creating a multi-tiered network to cater to diverse communities.
• Grant-in-Aid for Private Libraries: The act introduces provisions for grant-in-aid, extending financial support to private libraries to encourage their contribution to the public library system.
• No Library Cess: There is no imposition of library cess. Instead, the total expenditure for establishing and maintaining the public library system is met from State funds, indicating a commitment to financial support from the government.
The Mizoram Public Libraries Act reflects a forward-looking approach to library development, emphasising inclusivity, financial support, and establishing a comprehensive network of libraries to serve the diverse needs of the state's population.
10. The Goa Public Libraries Act 1994
The Goa Public Libraries Act of 1994, making Goa the tenth state to enact library legislation, incorporates several key features to foster the development and administration of public libraries. The salient features of this act are as follows:
• State Library Authority: The act establishes the State Library Authority, with the Minister in Charge of Libraries serving as its Chairman. This authority is empowered to advise the Government on all matters arising under the Act.
• State Library Directorate: A State Library Directorate is constituted to control and direct the public library system in the state, ensuring effective governance and coordination.
• Library Establishments: The legislation organises various levels of libraries, including the State Library, District Library, Taluk, and Village libraries, creating a structured framework for library services across different regions.
• Government Employee Status: All employees within the public library system are treated as Government Employees, entitling them to corresponding benefits and privileges.
• Grant-in-Aid for Private Libraries: Provisions are made for grant-in-aid to support private libraries, encouraging their participation in the broader public library system.
• Recognition of State Library Associations: The act recognises State Library Associations, fostering collaboration and engagement within the library community.
• No Library Cess: The Goa Public Libraries Act does not impose a library cess like other states. Instead, the state's consolidated fund covers the expenditure on the Department's maintenance, indicating financial support from the government.
The Goa Public Libraries Act underscores the state's commitment to developing and sustaining public libraries, providing a comprehensive framework for governance, financial support, and collaboration within the library community.
11. Gujarat Public Libraries Act 2001
The journey toward enacting the Public Library Bill in Gujarat unfolded over several years, involving various attempts and contributors:
• 1964 Draft Bill: In 1964, a Committee appointed by the Government in Gujarat prepared the Model Public Library Bill. Despite submitting the draft bill to the Government, it was not considered.
• 1969 Non-Official Bill: On November 4, 1969, the first non-official Public Library Bill was introduced in the Gujarat Legislative Assembly by Shri Manoharsinhji Jadeja and Shri Sanatbhai Mehta. However, it couldn't be discussed as the Assembly was dissolved with the imposition of the President's rule in the state.
• 1973 Non-Official Bill (Maneklal Gandhi): Another non-official Bill, moved by Shri Maneklal Gandhi, the Leader of the Opposition Party, on February 27, 1973, aimed at establishing, maintaining, and developing public libraries. Unfortunately, this Bill was rejected by a voice vote.
• 1977 Bill by State Library Advisory Committee (Manoharsinhji Jadeja): Shri Manoharsinhji Jadeja, then Chairman of the State Library Advisory Committee, submitted a comprehensive Public Library Bill in 1977. This bill outlined provisions for establishing, maintaining, and developing public libraries organising a comprehensive rural and urban library service in Gujarat.
• 2001 Passage of Library Act: Finally, the Gujarat state passed the Public Library Bill in 2001. It was published as the 'Gujarat Public Libraries Act No. 25 of 2001' on September 1, 2001, after receiving the Governor's assent, as published in the Gujarat Government Gazette.
11.1 Salient Features:
• The Gujarat State Development Council serves as the apex body of the Library System.
• The Director of Public Libraries is entrusted with the administration of the Act.
• The Public Library System comprises one or more State Central Libraries, District Libraries, and Taluka Libraries.
• District and Taluka Advisory Committees are established.
• The 'State Library Development Fund,' comprising grants, contributions, and gifts, is instituted.
• Recognition is granted to Public Libraries and public library associations.
• The Director or an authorised officer can inspect public libraries.
• Members of the Council are designated as public servants.
This legislative journey reflects the persistent efforts to establish a robust framework for public libraries in Gujarat, culminating in the passage of the Gujarat Public Libraries Act in 2001.
12. Orissa Public Libraries Act 2001
The journey towards the promulgation of the Library Act in Orissa involved persistent efforts over several years:
• 1974 State Conference: In 1974 a State Conference on Public Library Planning was organised in Bolangir. During this event, a Draft library Bill and a Development Plan prepared by B.B. Shukla were discussed and approved. The Bill was subsequently submitted to the Government in March 1974.
• 1979 Revised Bill: In 1979, Mr B.B. Shukla submitted a revised bill to the Chief Minister of Orissa.
• 1983 Draft by R.K. Rout: In 1983, Mr. R.K. Rout prepared a draft bill, contributing to the ongoing efforts for library legislation.
• 1987 Delegation Meeting: In November 1987, a fifteen-member delegation met with the Chief Minister to advocate for library legislation in Orissa.
• 1992 Seminar: A Seminar on Library Movement and Library Development in Orissa, held in Cuttack in 1992, once again emphasised the necessity for library legislation.
• 1992 High Power Committee: In 1992, the Government constituted a High Power Committee to finalise the draft bill, marking a more formalised step.
• 1997 Expert Committee: In 1997, an Expert Committee led by Dr. P. Padhi was constituted to draft a fresh Bill.
• 2000 Passage of Orissa Public Libraries Act: In 2000, the Orissa Assembly passed the 'Orissa Public Libraries Act,' receiving the governor's assent on February 28, 2002.
12.1 Salient Features of the Act:
• The Orissa Public Library Council, consisting of 19 members, serves as the apex body of the library system in the state.
• The Orissa Public Library Authority administers the Act and works towards achieving its objectives.
• The Directorate of Public Library Services is responsible for the functioning of the library system.
• The Director of Public Library Services is required to have professional qualifications.
• The public libraries include the State Central Library (named after Hare Krishna Mahatab), the City Library System, District Libraries, and other libraries declared part of the system.
• All members of the library service are considered employees of the State government.
• The Act does not provide for a library cess, indicating that the State government covers the financial aspects.
13. Uttar Pradesh Public Libraries Act 2005
The journey toward library legislation in Uttar Pradesh (formerly United Provinces) unfolded over several decades, with multiple efforts and developments:
• 1946: Initial Draft and Plan by Dr. Ranganathan: Dr. Ranganathan prepared a Library Bill for the State of United Provinces in 1946. He also formulated a 20-year program for developing the public library system in UP, incorporated in a publication in 1949. Dr. Sampurnanand promised to implement the plan and the draft bill after the General Election in 1946 but did not act on it.
• 1956: Formation of UP Library Association: UP Library Association was inaugurated by Dr. Sampurnanand, then Chief Minister of UP. The association recommended the Draft Library Bill to the State Government.
• 1958: Revised Draft Public Library Bill: Dr Ranganathan presented a revised Draft Public Library Bill to Dr Sampurnanand in Lucknow.
• 1960: Submission of Draft Library Bill: At an All-U.P Library Conference in Varanasi, the Draft Library Bill was discussed and approved. The bill was submitted to the government by the UP Library Association.
• 1970: Public Libraries Enquiry Committee: Prof Vasudav Singh proposed the establishment of a Public Libraries Enquiry Committee in 1970. A seven-member committee, with the Minister of State for Education as Chairman, was set up on April 1, 1972, to suggest the creation of a Directorate of Library Services and the Draft Library Bill.
13.1 Other Efforts:
• In 1973, the Goswami Committee proposed the Uttar Pradesh Public Libraries Bill.
• Further efforts in 1983 and 1992 by the Venkatappaiah and Vishwanathan Committees.
• 2006: Adoption of the Library Act: The UP Legislature finally adopted the Library Act in 2006.
13.2 Salient Features of the Act:
• State Library Council: Advisory in nature, headed by the Minister-in-charge of libraries.
• State Standing Committee: Ensures proper implementation of the decisions of the Council.
• Director of Public Libraries: The Director of Secondary Education is the Director of Public Libraries.
• Library System: Includes a State Central Library, State Reference Library, District Libraries, and District Library Committees.
• No Provision for Cess: The Act does not include provisions for imposing a library cess, indicating financial support from the state government.
14. Uttarakhand (Uttaranchal) Public Libraries Act 2005
The evolution of the public library system in Uttarakhand, essentially inherited from Uttar Pradesh, has seen positive and swift developments initiated by the Uttarakhand government. Critical steps in this direction include:
• Enactment of "The Uttaranchal Public Library Act" (Act No. 19 of 2005): The government of Uttarakhand took a significant step by enacting "The Uttaranchal Public Library Act" in 2005. This legislative framework laid the foundation for establishing and regulating public libraries in the state.
• Formation of "Doon Library and Research Centre" (December 2006): In December 2006, the government supported the establishment of the "Doon Library and Research Centre," indicating a commitment to fostering research and knowledge dissemination.
14.1 Salient Features of the Act:
• State Library Committee: The Act establishes a State Library Committee. The Minister-in-charge of Education serves as the ex-officio Chairman. The Principal Secretary/Secretary to the Government in the Education Department is the ex-officio Vice-Chairman. The Director of School Education acts as the Member-Secretary.
• Department of Public Libraries: The Department of Public Libraries functions as a 'Cell' within the Education Department.
• District Library Authority: The administration of public libraries at the district level falls under the purview of the District Library Authority. A District Library Authority has the authority to appoint Executive Committees and Sub-committees.
• Library Fee (Cess): The Act includes provisions for imposing a 'Library Fee,' equivalent to a cess, to support the financial needs of the public library system.
• Inspection Authority: The Director of Public Libraries or their nominee can inspect any public library, ensuring adherence to standards and guidelines.
The enactment of the Uttaranchal Public Library Act and the establishment of the Doon Library and Research Centre reflect the Uttarakhand government's commitment to enhancing and formalising the public library system in the state.
15. Rajasthan Public Libraries Act 2006
The process of establishing library legislation in Rajasthan spanned several years, with various attempts by the Rajasthan Library Association. The timeline of events is as follows:
• 1962 Inauguration of Rajasthan Library Association: Dr. Sampurnanand, the Governor of Rajasthan, inaugurated the Rajasthan Library Association (RLA) on August 13, 1962, emphasising the need for library legislation.
• 1965 and 1969 Attempts: The Rajasthan Library Association made efforts for library legislation, preparing a bill in 1965 and renewing their attempt in 1969. In 1969, a memorandum was submitted to the Government.
• 1970 Seminar and Model Public Library Bill: In February 1970, a Seminar on 'Libraries in Rajasthan,' organised by RLA, discussed a Model Public Library Bill prepared for the State. The draft bill resulting from the seminar was submitted to the Government and forwarded to the Law Department.
• Observations from the Law Department were discussed at a meeting called by the Deputy Director of Primary and Secondary Education.
• 1992 State Library Advisory Committee Meeting: The State Library Advisory Committee, at its meeting on September 18, 1992, modified the draft bill and submitted it to the Law Department on January 15, 1993.
• 2006 Passage of the Bill: In 2006, the Government of Rajasthan passed the Bill, receiving the assent of the Governor on April 20, 2006.
15.1 Salient Features of the Act:
• State Library Council: The State Library Council is chaired by the Minister-in-charge of libraries.
• Grant-in-Aid Determination: The State Library Council also has the authority to decide the quantum of grant-in-aid provided by the Government.
• Director of Public Libraries: The Director of Language and Libraries serves as the Director of Public Libraries.
• State Library System: The State Library System comprises the State Central Library, Divisional Libraries, District Libraries, Panchayat Samiti Libraries, and Village Libraries.
• Library Advisory Committees: Library Advisory Committees are established for all Public Libraries.
• No Provision for Cess: The Act does not include provisions for imposing a library cess, indicating that the state government covers the financial aspects.
16. Bihar Public Libraries Act 2007
The establishment of library legislation in Bihar was a gradual process, marked by the efforts of the Bihar Library Association. The key events are outlined below:
• 1936: Formation of Bihar Library Association: Bihar Library Association was initiated in 1936.
• 1937: Bihar Library Conference: The association organised the Bihar Library Conference in 1937. A draft scheme for developing libraries in Bihar was prepared and passed at this conference. The government accepted the plan in principle, but financial constraints prevented its implementation.
• 1973: Submission of Draft Bill: At the government's request, a draft bill was prepared and submitted in 1973 but was unfortunately lost in floods in 1975.
• 1979: Resubmission of Draft Bill: The draft bill was revised and resubmitted to the government in 1979.
• Subsequent Revisions: The draft underwent further revisions in 1989, 1999, and 2003.
• 2008: Enactment of the Bihar State Public Library and Information Centre Act. Finally, the Bihar Legislature enacted the Bihar State Public Library and Information Centre Act in 2008.
16.1 Salient Features of the Act:
• State Library and Information Centre Authority: The Act establishes a 'State Library and Information Centre Authority.
• Government Nomination: The State Government nominates the Chairman, Vice-chairman, and other members of the Authority.
• Separate Directorate: The Act provides a separate Directorate, with the Director performing the role of a 'Superintendent of Libraries.
• No Provision for Cess: The Act does not include provisions for imposing a library cess, indicating financial support from the state government.
17. Chattisgarh Public Libraries Act 2007
In Chhattisgarh, the initiative for the Chhattisgarh Public Libraries Act came from the government itself, leading to its passage in 2008. Here are the salient features of the Act:
• State Library Council: Headed by the Minister of the School Education Department. The Principal Secretary of the School Education Department serves as the Vice-chairman.
• Member Secretary: The Officer on Special Duty (Library Cell) in the School Education Department is designated as the Member Secretary.
• Standing Committee: Led by the Principal Secretary of the School Education Department.
• District Libraries: District Libraries are established and guided by District Library Committees.
• Director of Public Libraries: The Director of Secondary Education, Chhattisgarh, assumes the Director of Public Libraries role.
This framework suggests a centralised approach with government involvement in the leadership and administration of the public library system in Chhattisgarh.
18. Arunachal Pradesh Public Libraries Act 2009
The Arunachal Pradesh Legislative Assembly enacted the Arunachal Pradesh Public Libraries Act (Act No. 6 of 2009), which received the Governor's assent on August 31, 2009. The key features of the Act are as follows:
• Library Planning Committee: Establishes a 'Library Planning Committee' with the Minister in charge serving as the Chairman.
• Library Service to Government Departments: Envisages providing library services to all Government Departments.
• Promotion of Reading and Library Habit: Aims to promote reading and library habits among the public.
• Promotion of Literature Production: Encourages the production of helpful literature.
• Compulsory Enrollment in Public Libraries: Makes it compulsory for every student to enrol in public libraries upon reaching standard eight.
• Department of Public Libraries: Calls for creating the Department of Public Libraries with a full-time Director.
• Public Library System Components: Defines the Public Library System to consist of a State Central Library, Sub-Divisional Libraries, District Libraries, Circle Libraries, Branch Libraries, Mobile Libraries, and Children’s Libraries.
• No Provision for Cess: The Act does not include provisions for imposing a library cess.
19. Comparative and Critical Study of Public Library Acts in India
To facilitate comparison, we'll establish a matrix based on five criteria: public access to libraries, infrastructure development, governance system establishment, financial management provisions, and the organisation of a self-reporting and regulating system.
19.1 Public Access to Libraries
Dr. Ranganathan's vision emphasises the need for an integrated nationwide network of public libraries, offering free book services to all citizens, regardless of literacy level. To achieve this objective, a well-organized public library system is essential. This system should provide:
• Access without Consideration: Ensure citizens can use libraries without barriers.
• Common Pool of Reading Materials: Establish a shared repository of reading materials accessible to users from the state to the village.
• Access to Needed Information: Provide users with the required information.
• Free Facilities for Cultural and Educational Benefits: Offer accessible facilities for individuals to benefit from cultural heritage, arts, scientific achievements, and innovations.
• Facilities for Personal Development: Create opportunities and resources for personal development.
• Periodic Evaluation and Feedback: Implement mechanisms for periodic service evaluation and gather user feedback to improve administration.
• Regulation of Finances: Manage financial income and expenditure to meet societal needs efficiently.
In summary, a well-structured and accessible public library system is fundamental for nurturing a society that values knowledge, education, and cultural richness.
i) Tamil Nadu: Under the Madras Act (1948), the government has established approximately 4,500 public libraries, including 20 District Libraries, 7 Mobile libraries, 1538 Branch Libraries, and 2,500 village Libraries. These libraries collectively offer access to 24 lakh volumes of documents. The registered borrowers are around two crores, with five crore library visitors annually. Notably, two crores of books are consulted, and three crores are borrowed, indicating a borrowing rate of about 1 volume per literate person.
ii) Andhra Pradesh: In Andhra Pradesh, the library infrastructure comprises 4,000 nodes, including one State Central Library, 6 Regional Libraries, 1426 Branch Libraries, 344 Village Libraries, 3 Mobile libraries under Zilla Granthalaya Samsthas, and approximately 2,400 aided libraries. These libraries provide access to about one crore volumes, serving a registered borrower base of roughly two lakhs. Furthermore, almost two crores of visitors annually, resulting in a borrowing rate of approximately 1.5 volumes per literate person.
iii) Karnataka: The library network in Karnataka includes one State Central Library and 20 District Central Libraries, 10 of which have libraries, and the rest have offices only. Additionally, there are 15 City Central Libraries, 392 Branch Libraries, 1151 Mandal Libraries, and 11 Mobile Libraries. With 6.54 lakh registered borrowers and a total book stock of 371 lakhs, these libraries witness about 81 lakh visits annually.
iv) Maharashtra: as the fifth state to enact a library Act, Maharashtra boasts around 5900 Public Library nodes. This includes a State Central Library, 5 Divisional Libraries, 8 District Libraries, 31 District Public Libraries, 259 Taluk Libraries, and 5589 other types of Libraries. Providing access to about 50 lakh books, the libraries have over 60 thousand registered borrowers, with around 601 lakh consulting readers annually.
v) West Bengal: West Bengal's library network encompasses approximately 3500 Public Library nodes, including a State Library, 21 District Libraries, 234 Town Libraries, 2,300 Government-sponsored Libraries, and 200 other types of libraries. There are additional District Libraries at Siliguri and a City Central Library at Durgapur.
vi) Manipur: In Manipur, there is one State Central Library in Imphal, five District Libraries, and around one hundred Public Libraries managed by voluntary organisations.
vii) Kerala: Kerala, having achieved cent per cent literacy through the Total Literacy Campaign, boasts a robust library system. The earlier Trivandrum Public Library was upgraded to the State Central Library. Approximately 3030 libraries are accessible to the public at the District, Taluk, and village levels.
viii) Mariana: The District Library of Amble was upgraded to the State Central Library of Mariana in 1967. The state now has 12 District Libraries, 11 libraries in Municipal areas, and 11 sub-divisional libraries accessible to the people.
ix) Misogamy (Mizoram): After the formation of the state, a State Library was established at Arial, and two more District Libraries started functioning. Additionally, three sub-divisional libraries are accessible to the people, and about 80 village libraries are recognised by the State Planning Committee.
x) Goa: Despite being a small state influenced by Portuguese rule, Goa has maintained a Central Library for an extended period. The state features five talk libraries and fifty-six rural libraries at the village level.
19.2 Financial Provision for Libraries
Libraries play a crucial role in fostering knowledge and education, and their growth is contingent upon adequate financing. Let's delve into the financial frameworks of the library acts across different states.
i) Tamil Nadu: Tamil Nadu Public Libraries encompass three main types: the State Central Library, Connemara Public Library, the Kaurmani Nilayan Library, and Government Oriental Manuscripts Library, all maintained by Government Funds. District Central Libraries and Branch Libraries established under the Act are funded from the Library Fund, which includes Library Cess plus the Government's matching contribution. Additionally, libraries like the Thanjavur Saraswati Mahal Library, managed by local bodies and voluntary organisations, receive government grant-in-aid.
ii) Andhra Pradesh: The Government bears the total expenditure on Government Libraries in Andhra Pradesh. The Government covers the establishment charges of Zilla Granthalaya Samstha. Expenses related to books, periodicals, buildings, etc., for City/Zilla Granthalaya Samsthas, are met from the library fund, which may also provide grant-in-aid to private libraries.
iii) Karnataka: The State Central Library in Karnataka is fully funded by the State Government. District and City-level libraries, including Branch Libraries, are financed from the 'Library Fund.' This fund is generated through Library Cess and levied as a surcharge on property, motor vehicle, and entertainment taxes. Local bodies, such as Municipal Corporations, Municipalities, District Boards, and Village Panchayats, collect the Cess. The State Government covers the salaries of the staff at all levels.
iv) Maharashtra: Maharashtra's Library Act does not impose any library cess. Instead, the State Government must provide a minimum of 25 lakh rupees as grant-in-aid for library development, excluding administrative and establishment expenditures. Divisional Libraries and District Libraries in Vidarbha receive full financial support from the Government of Maharashtra.
v) West Bengal: In West Bengal, where there is no provision for levying library cess, the entire expenditure on public libraries established through the Act is met from the State's consolidated fund. Local Library Authorities maintain a library fund with grants from the Government, contributions, gifts, and income from endowments. While most private libraries are self-sustaining, a few receive Government grants for maintenance.
vi) Manipur: The Manipur Act lacks a provision for library cess. Consequently, the State Government covers the total expenditure from the State funds and extends grant-in-aid support to private libraries.
vii) Kerala: Though the Kerala Act includes a provision for library cess, its implementation has yet to occur. Instead, the State Government supports libraries through grant-in-aid using the State Funds.
viii) Haryana, ix) Mizoram, and x) Goa: Haryana shares a similar situation with Kerala, where the Library Act remains unimplemented, and the State Government provides support through grant-in-aid. The same holds for Mizoram and Goa, where the Library Act has yet to be enacted.
19.3 Human Resources in Public Libraries
The staffing of public libraries varies across states, each having its unique structure.
i) Tamil Nadu: Tamil Nadu boasts a Directorate of Public Libraries, overseeing and managing the public library service. A Librarian leads the State Central Library (Connemara Public Library), while the District Central Library is manned by a trained librarian with a degree in Library Science. Branch Libraries are typically managed by individuals holding a Certificate in Library Science. Local elementary school teachers, employed part-time, handle delivery stations. Inspection responsibilities lie with the Directorate of Public Libraries for District Central Libraries and the District Library Officer for Branch Libraries.
ii) Andhra Pradesh: In Andhra Pradesh, the Director of Public Libraries is pivotal in controlling the library system. All libraries in the system are managed exclusively by professionals. The Librarian of the City/District Central Library serves as the Ex-officio Secretary of the City/Zilla Granthalaya Samstha. The state employs around 250 professionals and over 1000 semi-professionals.
iii) Karnataka: Karnataka has a Director of Public Libraries overseeing all matters concerning public libraries. Professionals manage State, City, District, and Branch Libraries, totalling approximately 500 library staff. Among them, around 150 are professionals with at least a degree in Library Science, while many hold MLISc degrees. The 'Karnataka Library Service' cadre encompasses the entire technical staff of public libraries.
iv) Maharashtra: Under the Maharashtra Act, a Director of Libraries heads the Department of Public Library Service. Assistant Directors in each of the five divisions assist the Director. Professionals maintain libraries up to district and town levels.
v) West Bengal: The West Bengal Act establishes a Director of Libraries as the Chief Executive of the public library system. Professional librarians manage the State Central Library, Calcutta Metropolitan Library, District Libraries, and Town Libraries.
vi) Manipur: While the Manipur Act allows appointing a Director of Public Libraries, the act's implementation has not occurred. Currently, the Chief Librarian of the State Central Library, Imphal, oversees library matters. The total number of professionals in public libraries in the state is fewer than 20.
vii) Kerala: The unique aspect of the Kerala Act is the absence of a post for a Director of Public Libraries. With the act yet to be implemented, the staff's positions will only be clear post-implementation.
viii) Haryana: As the Haryana Act has not been enforced, personnel managing public libraries fall under the Director of Higher Education, Haryana. Presently, the staff working in State and District Libraries are treated as government servants.
ix) Mizoram: The Deputy Director of Education, Government of Mizoram, is the controlling officer. Qualified librarians, numbering at most 20, manage the State Library, District Library, and Sub-Divisional Libraries.
x) Goa: The Central Libraries, Government of Goa, Panaji, acts as the controlling officer for human resources. Approximately 25 professionals work in the State Central Library (Bibliotheca National De Nova Goa) and its five Taluk Libraries. Teacher-librarians are in charge of most Government village libraries.
19.4 Governance of Public Libraries
i) Tamil Nadu: Tamil Nadu, comprising Madras City and 23 Revenue Districts, operates with a Local Library Authority for each Revenue District. The Department of Public Libraries, established in 1972, is responsible for supervising and controlling the local library authorities. The Director of Public Libraries oversees this, with District Educational Officers initially serving as Ex-officio Secretaries of Local Library Authorities. Following the Subbarayan Committee's recommendation, District Educational Officers now render free library service by establishing District Central Libraries and Branch Libraries.
ii) Andhra Pradesh: To enhance library services, the Government of Andhra Pradesh amended the Act in 1989, establishing the Andhra Pradesh Granthalaya Parishad as the principal policy-making body. This Parishad, governing 23 Revenue Districts, functions in a pyramidal structure, with the State Central Library at the apex. Zilla Granthalaya Samsthas operate at the district level, and City Granthalaya Samsthas oversee Hyderabad City.
iii) Karnataka: Karnataka, divided into 20 revenue districts, initiated a separate Department of Public Libraries in 1966 under the Karnataka Public Libraries Act (1965). The State Central Library in Bangalore serves as the reservoir, supported by City Central Libraries and District Central Libraries. The Karnataka State Library Authority advises the government, managing the State Central Library, while Local Library Authorities handle major cities and Revenue Districts.
iv) Maharashtra: In Maharashtra, the State Library Council advises the government on library matters, with District Library Committees at the district level. The Directorate of Public Libraries, led by a Director, manages the planning, organisation, development, and maintenance of public libraries across the state, encompassing 35 revenue districts.
v) West Bengal: West Bengal, with 17 revenue districts, adopted the Public Libraries Act in 1979, establishing a State Library Council and Local Library Authorities. Governed by the Director of Libraries, the public library system includes a paramedical structure with the State Central Library at the apex.
vi) Manipur: Manipur, with 8 Revenue Districts, manages the State Central Library, Imphal, through the Education Department. District Libraries are attached to District Educational Officers.
vii) Kerala: Kerala, divided into 14 districts, directly manages Trivandrum Public Library, while the respective local bodies control Municipal and Panchayat Libraries.
viii) Haryana: Formed in 1956 with 17 revenue districts, Haryana's Library Administration remains under the Department of Higher Education.
ix) Mizoram: Mizoram, a small state with 3 Revenue Districts, controls Public Libraries through the Deputy Director of Education.
x) Goa: Goa, the smallest state with two Revenue Districts, has the curator of the Central Library, Government of Goa, overseeing Public Libraries.
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