Community libraries: the concept and its application by the Pinetown Public Library

Public libraries in South Africa have largely failed to address the information needs of developing communities. As a result the establishment of alternative library services, notably resource centres and community libraries, have gathered momentum since the 1980s. The concept of community libraries, currently embraced by an increasing number of public libraries, is explored, and the community library system implemented by the Pinetown Public Library is evaluated against norms derived from the literature on the development of public libraries in Africa and South Africa.

*Author to whom correspondence should be addressed.

Background
African communities initially embraced public libraries, expecting them to support the educational and informational needs of the people, and to assist in the process of general upliftment and development of the disadvantaged. Contrary to these expectations public libraries did not flourish in spite of remarkable quantitative expansion experienced at first. Sturges and Neill (1990:71,73) blame this on a lack of research into the particular information needs of Africa which led to the establishment of services which had very little to offer the African people. Chijioke (\ 989: 176) reports that libraries are not seen as significant role players in the process of national development, for example, a study conducted in Nigeria emphasised information as an important factor in development, but libraries were not assigned any role in the process. In South Africa Zaaiman, Roux & Rykheer (1988:5) came to much the same conclusion. The literature therefore, not surprisingly, shows that existing library services are not extensively used. Less than 2% of the population in Tanzania and approximately 5% in Botswana use libraries (Mchombu 199 I). In South Africa the 1996 figure was 8.8% of the total population which includes a signiticant component of users from developed communities (Mostert 1997 :57). Shera (1972: 190) (Raseroka 1994:6). In South Africa resource centres, being aligned to the progressive movement, were particularly successful during the apartheid years. Between named its new public library the Pretoria Community Library. The Pinetown Public Library claims more progress towards a community library than a mere change of name. It is a conventional public library system which is in the process of establishing community libraries as part of its main library system. The question which interested the research team was,whether the Pinetown community libraries were community libraries in the true sense of the word, or whether they were still conventional public libraries disguised as community libraries to follow the winds of change sweeping the country.

Purpose of the study
The purpose of the study was to identify the characteristics and possible weaknesses of public libraries, specifically in South Africa; to study trends with regard to community libraries and to establish norms for community libraries; to conduct a survey of the community libraries in the Borough of Pinetown, and to test the validity of these libraries against the norms established.

Methodology
The major steps followed in conducting the project were the following: -A literature review of the development of public libraries in South Africa (and also the rest of the African continent) was conducted. The results were used to abstract verbal models to provide a basis for comparison and evaluation.
Only models relevant to this article are included.
A survey was conducted to collect information on the Pinetown community libraries. The survey involved two target groups: the librarians of the community libraries; and members of the communities served, users as well as non-users.
Interviews and self-administered questionnaires were used to collect information from the librarians. The questionnaires provided background material regarding the libraries and the services they provide, while the interviews were used to collect in-depth information with regard to specific aspects of the community libraries. Self-administered questionnaires were used to ascertain the communities' reaction to the community libraries (and libraries in general), and to determine whether the libraries served the purpose which the communities had in mind for them when they initially requested the facilities, namely to assist the school children and students in their school work, to nurture a reading culture and also to contribute to community activities.
Responses were received from ten community librarians (each library had two staff members), and 109 community members. The convenience method was used to select community respondents. Questionnaires were handed out to users who were available at the time when the Zulu-speaking field worker visited a specific library. All the questionnaires were distributed on the same day, and collected on that day before the users left the library. The field worker also remained on hand to assist respondents with questions which needed II clarification. Questionnaires for non-users were distributed at a shopping centre in Pinetown South to the first 25 people willing to co-operate. The field worker collected the questionnaires as they were completed.

Nature of public libraries
Society creates institutions to provide for needs which are regarded as crucial for its survival. Six spheres of needs are commonly distinguished: the economy, religion, law, the family, politics and education, and the public library is regarded as part of the institution of education (Wilson 1977: 6). The manner in which to function as an educational agency has however posed problems for public libraries, resulting in several paradigm shifts. To achieve the most appropriate paradigm to meet the challenge of relevance to the demands of society, public libraries have at various times tried to play different roles, even attempting to be all things to all men which Martin (1989: 18) ironically describes as a passive stage because this role requires social neutrality. By the early 1980s shifts in roles, for example, from outreach to community librarianship, to community information centres left public librarians rather confused with regard to their professional identity because their many initiatives had still not provided the ideal solution. Williams (1988: 137) and Astbury (1993:64-65) introduced some sanity into this confusion by a strong plea for the public library's identity to be restored to that of an institution for formal self-education. It should be left to perform the only task of importance it ever had, namely to provide education for those who seek it, adapting its educational role to changing circumstances.
In developing countries the public library's educational role is closely linked to support for development, a process during which the quality of human life is improved (Todaro 1989: 89-90). Cillie (1995:4) describes information as a strategic resource which contributes directly to socio-cultural, economic, scientific, technological and personal development, and which is indispensable for education and fulfilment of public life. Therefore it is a commodity from which the entire community must benefit. Zaaiman, Roux and Rykheer (1988: 35) as well as Kagan (1982: I) emphasize the role of libraries in disadvantaged communities with regard to educational and developmental work.
Table I provides a model showing the various positions occupied by the public library in society, and the roles it should play. Stilwell (1991 b:237) identifies several problems which have plagued public libraries in Africa, as well as in South Africa. These basically all revolve around the application of, what she calls, the anachronistic and inappropriate Western model. The application of this model affected every aspect of public library provision: type of accommodation; collection development, and services (aimed at the literate sector of society which caused a late start with literacy programmes, -Society's judgement causes service to succeed, fail, or be replaced.

Public library in South Africa
S. Afr.Tydskr.Bibl.Inligtingk., 1998,66( I) (1993: 101) conclude that public libraries, also those established especially for Blacks, are neither reflecting, nor addressing the real needs of their communities. This corroborates Bekker and Lategan's earlier finding (1988:69) that by their nature urban libraries do not cater _ for the needs of the black community because people need to be advised, and need to be given the opportunity to ask questions. It is the awareness of the inadequate provision of library services to disadvantaged communities that led to the establishment of the alternative services referred to above. Table 2 summarises the characteristics of the South African public library system as revealed by the literature.
retarding the public library's entry into the development arena); inappropriate traInIng of staff; and poor cooperation with other information agencies especially with regard to information for developmental purposes (Cillie 1995:2). Underlying most of these weaknesses is the lack of in-depth needs analysis. Fairer-Wessels and Machet

Community libraries
A community library means different things to different people and its services will differ according to the needs of specific communities. The literature therefore attributes a variety of characteristics to community libraries. Community libraries differ from public libraries in that they are established at the request of the community, and are maintained and funded through resources made available by the community. Community libraries need to be established with the full co-operation of the local population. Consultation with accepted leaders in the community should be used to establish the nature of the service expected. Stilwell (in South African libraries must adapt or die, 1991 :6) advocates participative research and participative management as methods for ascertaining the needs of the community. An important aspect that needs to be taken into account is the existing information networks in the community, so as to harness, and not compete with them.
The social purpose of these libraries differs .markedly from those of the public library. While the public library is passive about its sense of social purpose, community libraries are pro-active. In community libraries neutrality of service is seen as neither possible nor desirable.
Community libraries should be accessible to all members of the community, regardless of social standing. Coleman (in Barnes 1994:79) describes these services as highly political by nature in the sense that everybody should have the right to equal access of information and society's resources. This is also a characteristic that distinguishes the community library from other information servIces. Expensive buildings do not have to be the norm for housing these libraries. According to Stilwell (in Soltth African libraries must adapt or die, 1991 :6) small, cheap units, in close proximity to the people's abodes, can be used.
Information provided should address the real needs of the people.
Positive discrimination In favour of the disadvantaged is needed when providing access to the nation's resources. Community information services aim at providing information to the community to help members cope with their designated roles within that community. The information provided covers all aspects of life to assist http://sajlis.journals.ac.za/ S.Afr.J .Libr.Inf.Sci., I998,66{ I) -Inappropriate for developing communities, with low levels of education and literacy, poor socio-economic conditions and an oral tradition.
-Infrastructure -Well developed in former white areas, nearly non-existent in other areas; -Provincial library system prioritising disadvantaged areas.
-Authorities still reluctant; -Access to networks. -Community information service -Still not widely practised, although a feature of resource centres and community libraries. -More research required.
-Training mainly geared to skills required in developed communities; -Awareness of need for changes in curricula to accommodate needs of black communities; -Non-traditional skills addressed but not yet adequately; -Profession divided on issue of literacy training.
-Relatively well-established, sophisticated systems exist; -Interlibrary lending facilitated through joint catalogues, databases and networking; -State Library co-ordinates interlibrary lending.
-Two main types of alternative models: -Resource centres; -Community libraries.
-Aim at empowering disadvantaged communities; -Forge close links with the community; -Collections based on community needs. Consist mostly of alternative material, for example pamphlets, newspapers and audio-visual material; -Services rendered according to needs expressed by the community. Level of services determined by users.
community members to cope with day-to-day problems and to improve their quality of life (Legoabe 1995: 16). This type of information encompasses:   -Needs full co-operation from community.
-Participative management in the form of a community committee; -Participation ensures relevant services.
-Funds provided by community/sponsors.
-Pro-active service; -Empowerment of all community members, especially the disadvantaged; -Making all community resources available to all community members.
-Can determine membership -either open to whole community, or restrictions can be imposed.
-Directly linked to the everyday lives of community members; -Two kinds of information: -survival information, for example, on health and childcare; -citizens action information, for example, information concerning social. political and legal rights; -Mainly alternative materiaL for example, pamphlets, brochures, newspaper clippings and oral material; -Pro-actively provides information to the disadvantaged in the community. to help them cope with problems in their daily lives.
-Active interaction between librarians and users; -Pro-active approach necessitates different forms of service, for example.
-Information and referral: -Linking the correct service with the correct user.
-Direct service: -Face-to-face contact between the librarian and user to solve the user's problem: -Back-up service: -Based on active involvement of library staff in community activities and services that can make the community aware of sources that can solve their problems; -Self-help: -Teaching the users to become self-reliant.
-Each community determines the type of service rendered.
-Different qualities than those of traditional librarians. are required from staff-members. for example.
-Staff are known to. and trusted by the community; -Good communication and motivational skills are essential; -Staff are able to repackage information.
-Active co-operation exists between library and other community organisations. The community questionnaire was compiled to: -obtain personal information about members of the community, both library members and non-members, for example, age, sex, educational level and employment; establish the extent of reading among the community members, as well as their preferred language type of material; determine reasons for non-use of the community library; establish the extent of community library utilisation, as well as the type of material used to find information; determine the attendance of activities organised by the community library, as well as the need for certain activities normally associated with community libraries.

Problems experienced
Several problems were experienced during the empirical testing of the community library programmes. With the translation of the questionnaires to and from Zulu some of the original meaning of sentences could have been lost, resulting in not eliciting the response anticipated.
Concentrating the. community survey on a central shopping area where people were readily available, could have resulted in not all the communities being represented evenly.
The use of a ranking system for some of the questions also proved to be a problem especially in the community questionnaire. A large number of the respondents did not follow the instructions correctly, and therefore the questions requiring ranking showed many discrepancies. The feedback that was received was however regarded as useful for identifying certain trends.

Interpretation of librarian's questionnaire and interviews
From the answers provided by the librarians, as well as the literature provided by the Chief Librarian of the Pinetown Public Library, it is clear that the community libraries function as part of the Pinetown Public Library system which is accountable to the local authority. Although the request for the establishment of these libraries originated from the communities themselves, apart from some initial consultation with the community leaders, the communities are not in any other way responsible for the management of the libraries. The community does not contribute either in a financial sense or In an administrative or organisational sense.
In the cases where some community involvement does exist, it is fairly limited, for example, at Tshelimnyama the Library Committee members have been trained as assistants to assist the staff whenever one of the staff members is absent, and at St. Wendel ins the Committee members actively try to promote library services. At Thornwood it is mainly the literacy teachers who are involved in the library programme. The only other 17 contribution by the community is through the suggestion box at St. Wendelins which offers the community the opportunity to air their views. Autonomous existence and accountability to the community therefore do not exist. This contradicts Fairer-Wessels and Machet's view (1993: 106) that a community library is one owned, sustained and maintained by members of a disadvantaged community.
In most cases the location of the community libraries is relatively central and they are fairly accessible to the people in the communities, although not all of them are central to the abodes of the people as suggested by Stilwell (South African libraries must adapt or die, 1991:6). Where the community libraries form part of a community centre, especially if an activities hall forms part of the library, it enhances its chances of becoming a focal point in the community's social activities. This concept is also recommended by Iwuji (1990:58). Where the libraries stand isolated, for example, in Mpola, Tshelimnyama, and to some extent, St. Wendelins, they do not form part of the community life. The library thus loses much of its ability to playa meaningful role in the development of the disadvantaged in the community.
The materials offered by these libraries do not differ substantially from those offered by the traditional public library. According to Fairer-Wessels (1988:3) and Shillinglaw (1986: 40) the traditional public library is mainly print-based, and aims at self improvement and leisure reading, thus presupposing a reading public. The Pinetown community libraries concentrate less on leisure reading than traditional public libraries but the information on offer in the community libraries are still mostly print-based. Although the librarians all expressed satisfaction with the subjects covered by the available material, scanning of the shelves indicated that the materials available were those found in any traditional library, with very little, if any, information available on issues concerning the day-to-day life of the community. The material available mainly represented the Western culture, making its applicability remote to the circumstances of people living in Third World conditions. Although the librarians said they were taught repackaging of information, none applied that skill, with the result that the illiterate are left with no way of getting information other than through the oral medium, either from the librarian (an unfamiliar source for most), or from family and friends. An investigation into the audio-visual, as well as the audio materials revealed that most of these were not informative by nature but rather aimed at leisure. The videos contained some informative material, mainly based on the National Geographic series, which is hardly the kind of information needed in South African developing communities. Pamphlets, although available in some of the libraries, were not up to date nor available in large numbers. They can also not be taken home. ,According to the librarians these pamphlets are a popular medium with the members visiting the library, thus attention should be paid to the expansion of this component. Newspaper cuttings were not in evidence, although most of The staff complement is very small, and therefore personalised service can unfortunately not be rendered on a full-time basis. At the same time, empowerment and upliftment of the community are closely related to giving practical assistance to those who are unable to do certain things for themselves, for example, the illiterate and unemployed. Ways and means to render such services should therefore be sought.
All the community libraries, with the exception of Mpola Community Library, are actively trying to be of practical assistance to the disadvantaged in the community, through teaching literacy classes, or by making facilities available for these classes, or by assisting the unemployed to gain skills.
The librarians indicated that they were actively involved with community organisations. This involvement is also used to gather information, and to forge contacts which can be utilised if need be to assist a user with an information need when the opportunity arises. The librarians also use these contacts to advertise their library's services.  Afr.Tydskr.l3ibl.lnligtingk.,I 998.66( I) the training received was mainly based on the traditional chores normally performed in a public library. Although all the librarians claim to have been taught how to repackage information, no evidence of such activities could be found.
They also did not mention that they were taught specific skills like, for example, how to effectively communicate with a person needing advice, or needing guidance in a certain matter, which are communication skills closely associated with a community information service.
All the community librarians are active members of their communities.
Most have lived in the community for a long time, and some were even born and bred in the community.
Despite being well known, some librarians mentioned that they experienced difficulty in being accepted by the community, and had to use their involvement in community organisations to win the trust of the community.  Afr.J.Libr.lnf.Sci.,1998,66( I) master should be determined to attract as many members of the community as possible.

Interpretation of community questionnaire
Although a fair number of the respondents indicated that they found the information they were looking for either always or occasionally when visiting the library, it is alarming that most of the time many (30.2%) did not find what they were looking for. This could indicate that either the material in the collection is not what the community needs, or it could indicate that the users are too shy to ask for assistance from the librarians. Better communication between the librarians and the users would help to rectify the problem, and the collection should also be developed to support the real needs of users.
A significant percentage of the respondents (71.6%) indicated one or more visits within a two-week range. This tendency was confirmed during the authors' visits, when a constant movement of users was observed. The libraries therefore seem to play an important role in the lives of many of the residents in the communities, albeit then only to supply a convenient study space. Non-awareness of the library and its services were indicated as the main reasons for non-use which indicates inadequate marketing. In a community which includes many illiterates the librarians should concentrate on marketing methods that will also reach that part of the community, for example, by making use of audio-visual media like radio and TV to advertise their services. Librarians should also exploit opportunities offered at blood donor clinics, school meetings and local authority meetings to market the library by word of mouth. Attention should also be given to the other reasons for non-use, that is unsuitable library hours, reading difficulties, and uninteresting material, as it could be an indication that other members of the communities could experience the same problems.
As mentioned above attention should be paid to communication between librarians, users and other community members. Although library committees do exist, it would seem that they are only partially involved in giving advice on certain library matters, for example, renovations and literacy classes. The exception is' Thselimnyama where active involvement is encouraged, and the users are actually deployed in the library as assistants when needed. This results in lively community participation in the running of the library and its services. At the two libraries without any community involvement the librarians seemed dejected by the lack of interaction. As user involvement is imperative for the success of community libraries, this is an aspect that needs urgent attention.
The results of the questionnaires and interviews were used to evaluate the Pinetown Community Libraries individually according to the following characteristics: -community involvement in establishment; -financial support provided by community; -community involvement in management of library; -library support for upliftment programmes; -provision of a community information service; -co-operation with other organisations to provide service to users; and

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-needs analysis to determine service needs.
A checklist for these characteristics presented in Table 4, was developed to indicate levels of satisfaction. Table 5 contains the results of the evaluation. If a characteristic is not met, it is indicated by a x. If the characteristic is met, but unsatisfactorily, that is, not sufficiently active, it is indicated by a *. If it is met at a satisfactory level, that is, sufficiently active, it is indicated by **. Table 5 indicates that St. Wendelins and Tshelimnyama performed well in four out of seven categories (10 * each).
Thornwood and Klaarwater in two categories with an overall score of 8* and 7* respectively. The common weakness according to the norms is the lack of community financial support. The level of satisfaction of community members with regard to certain aspects of the community libraries services, for example, the community information service, could not be determined on the information collected. It is possible that according to them, this service did not function at a satisfactorily level. This aspect could be a topic for further research.

Conclusion
The evaluation of the performance of each community library shows that these libraries are still in a transition phase. Through co-operation with other organisations the community libraries are starting to break out of the isolated mould which became a trademark of public libraries, and have become more active participants in the information transfer process. The focus has also shifted from service to the educated elite to involvement in efforts to uplift the disadvantaged in the communities, thus resulting in a whole new attitude towards the library user. One can therefore conclude that the Pinetown Community Libraries have moved away from the traditional public library service model, and at least two, namely St. Wendelins and Tshelimnyama, are well on their way to offering their communities a pro-active community library service. Much more work remains to be done especially in Mpola, with regard to community financial support, and community involvement especially with regard to upliftment programmes.
For these libraries to become community libraries in the full sense of the word, the following aspects should be addressed: -The community should become more involved, especially with regard to the planning of new services, recommendations regarding different types of information sources, assistance with obtaining oral information from members of the community, and the use of community members for activities such as storytelling, crafts classes and music and drama classes. Open communication channels should be created. Regular open community meetings, providing an opportunity for feedback on the services and for suggestions regarding services for which the community has a need, should be held. These meetings can also be used to educate the community on what can be expected from the service. If community actively asked for the establishment, either through correspondence or through meetings with local authority officials -** If libraries were proposed by local authority, and established after some consultation with members of the community -* -Libraries built without any consultation with communities -x -Communities paid for all expenses -** Communities made some form of contribution towards funding the service -* -Communities made no contribution towards funding of services. x -Communities contributed to three or more of the activities listed -** Active involvement in delivering a service, for example, as assistants or library janitors; Active library committee; Community members involved in publicising/marketing library services; Community input through suggestions or meetings as to what services they expect; Involvement of community members in presenting library programmes, for example youth programmes and story hours.
-Community involvement in fewer than three of above-mentioned activities -* -Community involvement in none of the above-mentioned activities -x Active involvement in three or more of the following activities -** -Involvement in literacy classes; Involvement in improving lot of unemployed's plight through co-operation with skills training programmes; -Arrangement of, or involvement in craft or cookery classes; -Presentation of repackaged material conveying information in a simple understandable manner to the illiterate; Providing access to all information resources necessary to cope with daily survival.
-Involvement in fewer than three of above-mentioned activities -* Involvement in none of above-mentioned activities -x Provision of three or more of the following services associated with a community information service -** -Referral; -Advice; Practical assistance with certain tasks for example, the completion of forms; -Provision of community information.
-Provision of fewer than two services associated with a community information service -* -No service provided -x Active co-operation with organisations in community -** -Co-operation on ad hoc basis -* -No co-operation -x Continuous analysis done using a variety of methods, also including non-users ** -Occasional analysis done using a variety of methods, including only library members -* -No analysis done -x http://sajlis.journals.ac.za/ S. Afr.J.Libr.lnf.Sci., 1998,66( I)