17 Planning and Administration of Public Libraries

Dr Renu Thakur

 

INTRODUCTION

 

Planning is considered as the basic management function. It is one of the most important and crucial functions of management. It is also an essential aspect of management process at all executive levels. Planning states how the goals or objectives of an organisation are to be accomplished. Thus it gives direction and meaning to library’s various operations.

 

Planning is deciding in advance what to do how to do when to do and who is to do it. Planning involves decision about the library objectives which are to be achieved in future and the ways to achieve these objectives.

 

In addition to an awareness of existing shortages, planning for library facilities requires an evaluation of future needs. These needs will continue to rise at an accelerated pace. The general population growth is perhaps the most obvious influencing factor, but there are others as important. Traditionally, planning for libraries was the primary responsibility of professional librarians in cooperation with local boards and library consultants. Recently, however, planning departments have been called upon to contribute to this cooperative effort.

 

Administration is another activity required to be undertaken for performance and achieving library goals. It is defined as the process of getting things done through men and materials within the organizational framework. Library organization and library administration are closely related to each other. It is very difficult to distinguish the two as the distinction between the two is very subtle. Organization comes before administration. The latter starts when the organization ends. Organisation lays down theoretical principles, whilst the administration puts those principles into practice.

 

2. NEED FOR PLANNING IN PUBLIC LIBRARIES

Planning is an analytical process which involves an assessment of the future. It is also the determination of desired objectives in the context of that future. The development of alternative courses of action to achieve such objectives is why we need to carry out planning. Besides this, the selection of a course (or courses) of action from among the alternatives completes planning process. It is thus a process which takes an organisation from where it is to where it wants to be in a given period of time.

 

2.1 Objectives of Planning

  •  Provide a framework and direction to public library operations to guide decision making and problem solving,
  •  Improve services, operations and fiscal control through application of computer techniques and management science to information procedures,
  • Ensure development of information  services and resources,
  • Permit anticipation of future resources need for information services by establishing plans based on present decisions, and
  • Bring the skills and experience of the library staff members into planning process.

 

2.2 Advantages of Planning

 

Planning is very essential in public library as there are several advantages of planning as given below:

 

•       Increases the public library’s  ability to adopt future eventualities

•       Helps crystallize objectives

•       Makes activities orderly and purposeful

•       Unproductive work minimized, desired results achieved

•       Reduces irrelevant activities, no overlaps Minimizes  uncertainty

•       Ensures a relatedness among various decisions

•       Helps the public library remain more competitive in society

•       Ensures a more productive use of  library resources

•       Provides a basis for control

•       Increases effectiveness of library staff and improves employees morale

•       Helps the public library to progress in a manner considered most suitable

•      Points out need for future change and future possibilities possible

•       Option of selecting from alternatives

•       Planning helps in achieving economies

•       Encourages innovation

 

2.3 Guidelines for effective planning

 

The public libraries should be planned properly. Without planning they will remain poorly organized and ill equipped to meet the information requirements of their users. Planning not only gives proper direction to carry out various activities of the library but also helps to take appropriate decisions in advance. Given below are some guidelines for effective planning.

 

• Involve top management only at key points in the whole planning process

 

• Involve library staff at all levels while developing the plans

 

• Do not look for the perfect answer

 

• Planning should provide realistic targets  and  alternatives ways to achieve them

 

•  Plans should start on a small scale and should be expanded only when the library staff has learned the technique and has become convinced of their usefulness

 

2.4 Levels of Planning

Levels of planning are usually determined according to time dimension:

  •  Strategic planning (Long-term ) – plans which are for more than 5 years
  • Tactical planning (Medium Term)  –  plans which are for 1 year to 5 years
  • Operational Planning (Short term) – 1-12 months or  upto one year
  • Operations and transactions – present or  day to day planning

 

Strategic plans are plans that apply to the entire organization, establish the public library’s overall objectives, and seek to position the library in terms of its environment. The tactical plans (sometimes also referred to as operational plans) specify the details of how the overall objectives are to be achieved. Strategic and tactical plans differ in three primary ways—their time frame, scope, and whether they include a known set of organizational objectives.

 

Well-implemented strategic planning provides the vision, direction and goals for the library, but operational planning translates that strategy into the everyday execution tactics of the services that will ultimately produce the outcomes defined by the strategy. Simply stated, operational planning is the conversion of strategic goals into managed strategy execution.

 

Short-term plans are plans that cover less than one year. Long-term plans are plans that extend beyond five years. Their differences lie in the length of future commitments and the degree of variability organizations face.

 

Specific plans have clearly defined objectives and leave no room for misinterpretation. Directional plans are flexible plans that set out general guidelines. Besides this, single-use plans are used to meet the needs of particular or unique situation. Standing plans are ongoing, and provide guidance for repeatedly performed actions in an organization.

 

Librarians and other library staff of public libraries must understand the plan, have the resources to implement it, and be motivated to do so. Successful implementation requires a plan to be linked to other systems in the library, particularly the budget of the library.

 

3. STEPS OF PLANNING

 

Planning is the conscious and systematic process of making decisions about goals and activities that an individual, group, work unit, or organization will pursue in the future. Understanding the six steps of the planning process will turn the librarian’s decision making abilities into plans that will help to achieve desired goals. These are:

 

1)    Situational analysis and determination of the objectives

 

2)    Development of alternative goals and plans

 

3)    Selection of best goal and plan

 

4)    Plan implementation

 

5)    Monitor and control

 

6)    Follow-up action

 

The above mentioned six steps are discussed below in detail.

 

Situational analysis and determination of the objectives is the first step of the planning process. During this step all information relevant to the situation should be gathered and analysed in depth. This step explores internal and external factors, influences, and environments, and it studies and determines events and patterns of the past, present, and future. The first step of the planning process provides with all the information required to begin creating a successful plan.

 

Alternative goals and plans should be considered when formulating a plan, and this is the second step of the planning process. During this step, goals must be specified in order to create a plan. There are five basic ideas that should be considered when choosing a goal. These are specifics, measurability, attainability, relevance, and time frame and all should be part of the goal choosing process when creating a plan.

 

The third step of the planning process is evaluation, and during this part of the planning process librarian has to consider the effects of alternative goals and plans. The librarian will weigh out the advantages and disadvantages, and focus strongly on cost effectiveness.

 

Goal and plan selection is the fourth step in the planning process, and it entails identifying the priorities among the goals and plans in order to select a plan that is the most “appropriate and feasible”. During this step, the librarian must use the information gathered in the previous step to determine what goal and plan he must choose.

 

Implementation is the fifth step in the planning process. The librarian and library staff must understand the plan, have the resources to implement it, and be motivated to do so. This step is integral because an excellent plan is not going to work if it is not properly implemented. A plan that has been influenced by the inputs of library staff is a great way to provide them with motivation.

 

Monitoring and controlling is an important step to the planning process because it allows for review and change wherever needed. Planning is a continual process that allows for new plans and strategies to be formulated and implemented when situations change.

 

The six steps of the planning process are all very valuable and important to the success of any goal or plan, and understanding each step can influence if the library’s goals are achieved.

 

4. AREAS OF PLANNING

 

In addition to an awareness of existing shortages, planning for library facilities requires an evaluation of future needs. Traditionally, planning for public libraries was the primary responsibility of professional librarians in cooperation with local boards and library consultants. Recently, however,planning departments have been called upon to contribute to this cooperative effort. While evaluation of existing facilities, the entire planning and related programme should be prepared with the next 20 years in mind.

 

The traditional public library does not meet the changing needs of information provision of today’s information society. Library buildings, which are planned on old norms and standards, do not satisfy today’s situation. Some aspects of modern library’s activity requiring proper planning are discussed below:

 

1. The modern public library has to be multifunctional

 

The modern public library has to be multifunctional and to provide not only informational or other typical library services but cultural, communicational and other extra services as well. Such library will comprise two functional parts: 1) provision of library’s traditional (informational) services, and 2) cultural and social services. These non-traditional services (cultural, educational, commercial, sports, recreational, entertainment etc.) will make the library more attractive and can lead to an increase of the number of users of the traditional library services.

 

For this new cultural and social functional part, adequate facilities have to be planned. This will give the library a new image of social importance. The modern public library will become a social centre of culture, a home for society. It will be a multifunctional and vital centre, organising and joining society. A library with such social and cultural activity will be more attractive for every member of the society. The library will become a library information centre for the society. Oriented to the various needs of society, such a library will satisfy needs of different social groups and ages. It will become a synthesis of various cultural activities. All these different kinds of activity will stimulate other kinds of cultural activities and all kinds of culture in general. So, the public library has to be perceived as an information institution and as an art centre and organizer of recreation and communication as well.

 

2. The modern public library has to be comfortable

 

Comfortableness of service is one of the most important indicators of modern library activity’s value. This includes easy access to the library building, rational planning of the building and impressive architecture. There should be created a good working environment in the library. Comfortableness also includes: providing the library with soft furnishing, plants, aquariums, soft carpet, large windows, balconies, premises for communication of people with different interests, and provisions with sound and video equipment. There is one more important demand for comfortableness. This is the accessibility of the collection. The collection has to be located according to library’s collection profile, library’s strategy and expectable users. The whole collection, arranged in subject groups, has to be located in different areas of open stacks.

 

3. The modern library has to exist in harmony with its natural and urban environment

 

The library has to become an integral part of the natural and urban  environment.

 

4. The modern library as an open, democratic and intellectual communication institution

 

A modern library has to express the image of the library as an open, democratic and intellectual communication institution. This image can be created by planning buildings of ‘virtual’ architecture what can be characterized by “dematerialised” forms of clear, laconic, simple and visible bulks. In the process of making constructional resolutions and choosing the building materials one has to orient on comfortableness of the internal and external environment of the library. There has to be a balanced thermal, illumination and noise regime.

 

5. Planning of the building has to be flexible and simple

 

The planning of the building has to be flexible and simple in the general plan. There have to be possibilities of extension or transformation. That is why it is advisable to use as much as possible movable columns, equally located ventilation, heating and aeration systems. The construction of light screens should also be easily movable from one to another to create a large space.

 

6. Service Areas

 

To evaluate existing facilities, it is first necessary to determine the actual area served by each library, the number of people who live within this area, and the services they require.

 

7. Improving Library Services

 

The services performed by the modern public libraries extend beyond the simple function of storing books. The modern librarians stress the importance of diversified services and the actual promotion of library facilities for entertainment, information, and self-education. Increased emphasis on services emerges from a concern that a large segment of the population does not now avail itself of existing facilities.

 

8. Library Collection

 

The total number of volumes which should be available to each library is usually expressed in terms of basic collection according to per capita of total population, plus a given number of additional books per capita served. But a more accurate indication of actual collection needs can be obtained by using registration rather than population figures.

 

9. Planning for Library Automation

 

Planning a library automation project in a public library is one of the most important steps in ensuring that library automation occurs effectively and efficiently. Implementing and executing an automation project requires additional work and may require additional staff. Besides additional staff, computers, barcodes, barcode scanners and miscellaneous cataloguing supplies are some of the expenses that are to be taken care of when libraries decide to automate their collections. Once it is known how much money library automation project will cost, the kind of automation system can be finalised. The decision regarding the library automation system should be based on a system that is affordable, meets the needs of public library’s collection and staff, and is easily applicable. Lastly, after the library automation project has been purchased, staff and user requirements determined, training of individuals responsible for carrying out the project is to be carried out.

 

 

5. PUBLIC LIBRARY ORGANISATION

 

‘Organizing’ literally, is a process of doing work or making arrangement for work, while ‘organization’ is a structure in which the work takes place. It is relatively easy for one to separate organization from management and administration, but it is difficult to bring a distinction between ‘management’ and ‘administration’ as these two terms are closely inter-woven.

 

Organization vs. Administration

 

Library organization and library administration are closely related to each other. The distinction between the two is very subtle. Organization comes before administration. The latter starts where the former ends. One lays down theoretical principles, whilst the other puts those principles into practice.

 

An institution or enterprise is established with the aim of attaining certain determined objectives. But ‘how’ and ‘who’ is to achieve these ? For this, an organizational structure is raised, an administrative machinery is created, and management authority is appointed. The administrative machinery is responsible for laying down the basic policies of the institution; for providing a proper organizational structure; and for appointing the personnel for achieving the desired aims. Organization is a process of classification and arrangement of various functions and jobs of an institution to assign them to respective, classified individuals in various units or departments, while administration involves setting out of definite methods, plans and policies to carry out those functions to achieve the pro-determined objectives. Administration is that phase of an institution which concerns itself with the overall determination and achievement of the major policies and objectives.

 

Administration is that function of management which, in reality, executes or carries out the objectives for which the institution is planned, established and then organized. Organization ensures that men, materials, jobs, various units and their included activities are properly classified, defined and nicely arranged showing harmony and functional relationships, whilst administrative function ensures that personnel are properly fitted to the jobs; works are performed properly with satisfaction; and that men, materials, finance and working conditions are suited to achieve desired results.

 

Administration includes various functions or elements, and organization is one of those elements. Organization relates to the establishment of a structure of authority and responsibility which is further defined and co-ordinated for the attainment of specific objectives. It is a design of the structure, the grouping and classifying of positions, on the basis of which staff is chosen, whereas administration finds out devices to best carry out library’s planned goals with the help of selected staff.

 

Organization is thus the formal side of administration, and, in some way, subordinate to it. And one duty of administration is to provide its own administrative instrument, which means to organize. The art or technique of administration is the art of directing and inspiring people, while that of organization is of relating specific duties and functions in a co-ordinated whole. The technique of organizing is prior, in logical order, to that of administering. A good skill of organizing is a necessity antecedent to efficient administration. Administration always presupposes something tangible to administer, and this something only organization can supply.

 

Management vs. Administration

The terms ‘management’ and ‘administration’ are so closely related to one another that some management experts do not separate these terms, and instead, address management as ‘operative management’ and administration as ‘administrative management.’ Some experts aloidentify two distinct functions of an enterprise to be performed, viz. (i) the administrative or policy-determining function, and (ii) the managerial, or, executive, or ‘doing’ function.

 

Administration is defined as the one which predetermines the specific goals and lays down the broad areas within which the goals are to be achieved. It is a determinative function within an enterprise and is the primary responsibility of top management. On the other hand, management directs the active operations within the organisation and combines the work of the staff with the available capital, equipment and materials to produce an acceptable product.

 

6. PUBLIC LIBRARY ADMINISTRATION

 

Management and administration are at times used interchangeably, however, they are two different levels of the organisation. Administration frames the objectives and policies of an organization. Management implements these policies and objectives. The administration is the top level of the organization with the decisive functions. They are responsible for determining the policies and objectives of the organization or the firm. Management, on the other hand is the middle level executive function. They implement the policies and objectives as decided by the administration.

 

The administration includes the people who are either planners or policy makers of a public library. They usually contribute to the library’s overall expenses. The main administrative function is handling the major aspects of the library, such as finance. Other administrative functions usually include planning, organizing, staffing, directing, controlling and budgeting. Administration must integrate leadership and vision, to organize the personnel and resources of the library, in order to achieve common goals and objectives for the library. The library administration is responsible for all aspects of the library collection, services, operations, development and strategic planning.

 

Henri Fayol, regarded as father of scientific management, focused on managerial practices which he felt could minimize misunderstandings and increase efficiency in organizations. In his book entitled, Industrial and General Administration, a translation of his book first published in French in 1916, Fayol identified five administrative functions of management, namely, planning, organising, commanding, coordinating and controlling. Fayol established that these functions are ‘administrative functions’ and that they are universal and every manager performed these in his daily work. Although many other management experts considered these as ‘management functions’.

 

During the early 20th century, Fayol also developed 14 principles of management in order to help managers manage their affairs more effectively. Organizations in technologically advanced countries interpret these principles quite differently from the way they were interpreted during Fayol’s time as well. These differences in interpretation are in part a result of the cultural challenges managers face when implementing this framework. The fourteen principles are: (1) Division of work, (2) Authority and Responsibility, (3) Discipline, (4) Unity of command, (5) Unity of Direction, (6) Subordination of individual to organizational interest, (7) Remuneration, (8) Centralization, (9) Scalar chains, (10) Order, (11) Equity, (12) Stability of Tenure, (13) Initiative, (14) Team-Spirit or Esprit de corps.

 

Fayol believed that managerial practices were the key to predictability and efficiency in organizations. The Administrative theory views communication as a necessary ingredient to successful management and many of Fayol’s practices are still alive in today’s workplace. The elements and principles of management can be found in modern organizations in several ways: as accepted practices in some industries, as revamped versions of the original principles or elements, or as remnants of the organization’s history to which alternative practices and philosophies are being offered.

 

POSDCORB is an acronym widely used in the field of management and public administration that reflects the classic view of administrative management. Largely drawn from the work of French industrialist Henri Fayol, it first appeared in a 1937 paper by Luther Gulick and Lyndall Urwick. The acronym stands for steps             in the administrative process, i.e.,

 

Planning, Organizing, Staffing, Directing, Coordinating, Reporting and Budgeting.

 

In 1937, social scientists Luther Gulick and Lyndall Urwick described seven “major activities and duties of any chief executive” as POSDCORB, which is used to describe the seven functions of managers referred to as the ‘Elements of Management’. POSDCORB is an acronym widely used in the field of Management and Public Administration that reflects the classic view of administrative management. POSDCORB stands for: Planning, Organizing, Staffing, Directing, Coordinating, Reporting, and Budgeting. These seven functions of managers are as follows:

 

Planning

 

Planning is working out in broad outline the activities that need to be done and the methods for doing them to accomplish the purpose set for the organisation.

 

Organizing

 

Organizing is the establishment of the formal structure of authority through which various sections or divisions of the organisation are arranged, defined and coordinated for the defined objectives.

 

Staffing

 

Staffing is the whole personnel function of bringing in, training the staff and maintaining favourable conditions of work.

 

Directing

 

Directing is the continuous task of making decisions and embodying them in specific and general order. It involves giving instructions by the top personnel and serving as the leader of the library.

 

Coordinating

Coordinating is the all-important duty of interrelating the various aspects of work in an organisation.

 

Reporting

 

Reporting is keeping those to whom the librarian is responsible informed as to what is going on. It includes keeping authorities, subordinates and users informed through records, reports, etc.

 

Budgeting

 

Budgeting refers to work related to  budget in the form of fiscal planning, accounting and control.

 

The above mentioned seven elements of management are considered to be the core of management process. These essentially refer to the various steps or stages involved in running a typical information organisation. To the above, communication, an eighth function of managers, has also been added.

 

Communication is the exchange and flow of information and ideas from one person to another. It is required for all managerial activities and is key for success of any modern information organisation. Planning, directing and reporting are completely dependent on communication.

 

The above discussed principles and elements of management are also applicable in planning and administration of public libraries.

 

Library administration thus includes all functions and activities that are concerned with the actual work of executing or carrying out the objectives for which the public library has been setup, financed and organized. Administration embraces such functions as issuing orders concerning the work to be done, seeing that the library staff is suitable for the work and trained to operate efficiently, and caring in general for the everyday routine necessary to ensure that men, materials, and equipment are functioning properly toward the desired end.

 

 

7. SUMMARY

 

Planning is an anticipatory theoretical activity which is undertaken to accommodate the future course of events. Any activity that is intended to cater to the present requirements may not adapt to the future hence such activities have to be carried out in such a way that they respond to future occurrences. It is a known fact that without proper planning, the libraries especially the public libraries will not only remain poorly organised but ill equipped too.

 

Public libraries are at a critical juncture because their use is definitely on the increase but their funds are suffering a crunch. It is only with proper planning that the modern public libraries must adapt traditional tools but must employ fresh thinking, new skills, discipline, and hard work. Ensuring the sustainability of public libraries should include special attention to strategic planning,

 

In this lesson, we have also discussed need, advantages and levels of planning. The six steps of the planning process have been explained that turn the librarian’s decision making abilities into plans that help to achieve desired goals. The various areas of public library planning emphasise on the various aspects related to future growth. Special focus is required on converting every public library into a modern automated library.

 

The difference between library organisation and library administration is also covered. Both are closely related to each other and distinction between the two is very subtle. Organization comes before administration. The latter starts where the former ends. One lays down theoretical principles, whilst the other puts those principles into practice.

 

Lastly, the contribution of Henri Fayol to the management and administration of organisations is discussed. The seven elements of management, POSDCORB are also explained in this context.

 

References

 

  • Fayol,  Henri.  Industrial  and  General  Administration.  Translated  by  J.A.Coubrough, London: Sir Isaac Pitman & Sons, 1930.
  • Krishan Kumar. Library administration. New Delhi: Vikas Publishing House.2009. 200 p.
  • Mittal, R. L. Library administration. Delhi: Metropolitan Book Co., 1969. 648 p.
  • Moran, B., Stueart, R., & Morner, C. Library and Information Center Management. California: Libraries Unlimited. 2013.
  • Sharma, C. K., Kiran Singh. Library administration. Atlantic Publishers &Dist, 2005. 272 pages.

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Did you know?

 

  • Administration is the force which lays down the object for which an organization and its management are to exist and the broad policies under which they are to operate. Administration is that function of management which, in reality, executes or carries out the objectives for which the institution is planned, established and then organized. Organization ensures that men, materials, jobs, various units and their included activities are properly classified, defined and nicely arranged showing harmony and functional relationships, whilst administrative function ensures that personnel are properly fitted to the jobs, work is performed properly with satisfaction, and that men, materials, finance and working conditions are suitable and satisfactory to yield the desired results.

 

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