Running Head: CHALLENGES OF TECHNOLOGY IMPLEMENTATION IN RURAL AMERICAN LIBRARIES: DEVELOPING NEW TECHNOLOGIES TO BRIDGE THE DIGITAL DIVIDE

Challenges of Technology Implementation in Rural American Libraries: Developing New Technologies to Bridge the Digital Divide

Elizabeth Bonner, Adam Carlson, Maggie Chamberlin, and Crystal Garcia LI810XO June 10, 2012 Emporia State University

Keywords: rural library, digital divide, technology gap, library budgets, rural technology, technology implementation

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Challenges of Technology Implementation in Rural American Libraries: Developing New Technologies to Bridge the Digital Divide Rural and small public libraries, those serving less than 25,000 people, comprise fourfifths (79% or 7,186) of the 9,074 library systems in the United States, and serve 17% of the

population (Heuertz, A. Gordon, M. Gordon, & Moore, 2003, p. 56). Historically, these libraries have been at a disadvantage when compared to their suburban and urban counterparts (Melott, 2003). A review of existing Library and Information Science (LIS) research reveals that geographic isolation, budgetary restraints, and difficulties recruiting qualified staff are chief among the disadvantages rural libraries face. Taken as a whole, these disadvantages serve to further widen the already existing technology gap, as each represents a barrier to the implementation of new technologies in rural libraries. In our literature review, we will discuss the emergence of the technological gap, or digital divide, in the United States as a whole, and how rural libraries are often on the wrong side of thedigital divide (Boris, 2005, p. 11). We will identify how each of the disadvantages mentioned above have led to the non-implementation of new technologies, thereby serving to widen the technological gap that exists between rural and urban public libraries. While there is no single comprehensive solution to the range of challenges facing rural libraries in regard to technology, we will examine known implementation successes and projects currently underway that endeavor to mitigate the technological gap. Extrapolating from the known research, our research will attempt to discover the most common reason for non-implementation of technology in rural libraries. The goal of our research is to identify the most common barrier for non-implementation of technology. Our findings will help galvanize and focus innovative technology developments specific to rural libraries.

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Statement of Research Problem Existing library science research has identified several barriers regarding the nonimplementation of technology in rural libraries. These barriers, amplify the technological gap between rural and urban libraries. Through our review of the relevant literature, we have found

that the existing research has failed to identify what rural library staff perceives to be the greatest barrier to implementing new technologies. Therefore, rural communities as a whole have not advocated for specific technological solutions that may serve to bolster the technologically lagging in their libraries. In other words, why the digital divide exists between rural and urban libraries is well documented, but what to do about this division in regard to rural libraries has not been well researched. The goal of our research is two-fold. We first intend to discover if financial limitations are, in fact, the greatest barrier regarding technological implementation in rural libraries. We then intend to identify specific, feasible ways to help bridge the technological gap. Our proposed research will employ a mixed methods approach. Quantitative research will be conducted in the form of surveys. Qualitative research will be conducted through semistructured interviews. We judge that a mixed methods approach will give a more complete view of the technological needs of the rural library. Review of Relevant Literature The Digital Divide There are many contributing factors to the current digital divide. But the incredible speed with which the Internet grew into ubiquity initiated the division. In her 2005 article, The Digital Divide and its Impact on the Rural Community, LuAnn Boris puts the rapid growth of the

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Internet into perspective, by stating that; it took 50 years for electricity to light 1/3 of the homes in the U.S. [and] 40 years for 1/3 of the homes to have a telephone. By contrast the Internet reached the 1/3 mark in only seven years (p. 25). Boris (2005) further notes that with the emergence of the Internet the issue of dated information [became] critical, especially because a year or two in Internet time is the equivalent of a decade for older media (p. 9). Therefore, as the wealth of online knowledge continued to expand at a rapid pace, those with limited or no access were left further and further behind. Due to the rapid growth of the Internet early on, it seemed that only those with the financial means to keep up-to-date with the Internet, and other emerging technologies, would be the beneficiaries of it. Therefore, those without the financial means to do so would find themselves playing a never-ending game of catch-up. Boris (2005) asserts that; a more straightforward relationship between income and access has developed over time (2005, p. 19). This has proven true for individuals, and, when looked at as a whole, it is clear that public libraries have also been divided into the haves and have-nots. In her article, Information Needs in Rural America, Patricia Sanchuk (2004) asserts that public librarians are well aware that todays lifestyle relies heavily on the use of technology, and if a person does not have access to technology or the skills to use it, they are at a particular disadvantage in the job market (p. 44). The Rise of Technology in Libraries The use of technology in libraries is widespread and growing. The largest areas of growth within the last 20 years have been the adoption of automated Integrated Library Systems (ILS) and the introduction of Internet connected personal computers for public use. More recently, many libraries have adopted broadband and social networking technologies.

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ILS use was primarily developed in the 1990s. In 2003, Melott conducted a survey of ILS usage comparing her findings to a similar study done in 1991. The 1991 study found that only ten of the 97 respondents had automated their catalogs (Melott, 2003, p. 38), while the 2003 study found that 34 out of 36 were using automated ILS systems. Melott (2003) writes that, the 1990s were a decade of improvement and change in library technology. The number of libraries utilizing ILS systems increased dramatically, and the technology involved in these systems also evolved to be more user-friendly and convenient for librarians (2003, p. 42). The establishment of Internet access in libraries began soon after its introduction in the 1980s (Becker, Crandall, Fisher, Kinney, Landry, & Rocha, 2010). Internet connected PCs in all public libraries have seen huge growth since the mid 90s. Most authors surveyed agreed that; almost all public library branches offer visitors free access to computers and the Internet (Becker, et al., 2010, p. 1). One recent study found that public library Internet connectivity jumped from 20.9 percent in 1994 to 99.1 percent in 2008 (Bertot, Jaeger, McClure, Wright, & Jensen, 2009, p. 2). Implementation Challenges Given their unique situation, rural libraries are more commonly faced with implementation challenges than successes. Implementation of technology in rural areas can be a challenge for several reasons. Based on our research of the relevant literature, maintenance of technology hardware and software, support, money, people, and distance, are all factors that inhibit the adoption of new technologies in rural libraries. In situations where technologies such as the Internet are already in place, equipment failure is common, and it is often the responsibility of the librarians to maintain or repair this

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION equipment, despite having little knowledge about how to do so. A common problem facing libraries today with regard to equipment is overstretched bandwidth. As demand for internet increases, the bandwidth available at any given library is often stretched beyond its limit making connection speeds...less sufficient (Bertot et al., 2009, p. 8), and contributing to an increased degradation of the equipment itself (Becker et al., 2010, p. 10). This can put a serious strain on library resources, and often takes away funding from other areas of the library. Heuertz et al. (2003) point out that the Bill & Melinda Gates Foundation U.S. Library Program has taken steps to limit equipment failures and, at the same time, educate rural library staff. By providing rural libraries with computers that are easy to care for and difficult for the patron to break (i.e. change settings), the program endeavors to lessen the burden on the staff in terms of maintenance. Access to computer stores and tech professionals are often miles away, therefore, when a computer breaks in a rural library it can take weeks to be repaired. The program not only provides rural libraries with computers and Internet access, it provides

technology support. This comes in the form of training for the library staff. This training teaches library staff about how to use the computers, how to teach their patrons to use them, shows them how to troubleshoot the computers, and most important, provides them with free technical support. As a result, this helps ease the library staff into the world of modern technology. Support for the library is also an issue that challenges the implementation of technology in the rural library. Without proper support from the public, and government institutions, funding for the library is very often reduced. In their report from 2011, The Rural Public Library as Leader in Community Broadband Services, researchers Alemanne, Mandel, and McClure assert that administrative and political support from local appointed and elected officials, as well as other anchor institutions, is a known barrier to technological growth (2011, p. 20).

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Garnering public support in rural communities is often a difficult task when facing economically depressed communities with low literacy levels. According to Heuertz et al.

(2003), 40% of families living in rural communities live below the federal poverty line and often have very low literacy rates. Rural residents make up 28% of the United States population and account for 42% of the functionally illiterate. These communities often have a limited availability of goods and services, which can make the goods and services that are offered more expensive. This means that expectations of available services are lower. As such, communities with low literacy rates tend to not view the library as a crucial part of their community. Even if the library were considered a crucial part of the community, it would be difficult for many struggling families to justify paying increased taxes for a public library. Furthermore, libraries are often competing against other needed services like police and fire support. Because budgetary restraints are so commonly cited in rural library literature, it is easy to assume that a lack of funding is the most significant barrier to implementation of technology in rural libraries. In light of our nation's current economic crisis, it is not surprising that budget cuts and funding deficits exist, and are seriously affecting the growth of our public libraries. Due to budget cuts and a lack of funding from public and private organizations, libraries are unable to keep up with the demand for new technologies. The 2009 article, Public libraries and the Internet 2008-2009: Issues, implications, and challenges, presents survey findings which demonstrate that despite the growing demand, the average number of computer terminals is roughly the same as it was in 2002... (Bertot et al., p. 15). Findings such as these are common throughout the relevant literature. According to many sources, budget cuts, and insufficient funding are a common problem in rural libraries. In Opportunity for All: How the American Public Benefits from Internet Access at U.S. Libraries,

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Becker et al. (2010) present a longitudinal analysis from 1998-2006 which ...suggests that despite external funding initiatives, overall library funding has not kept pace with the growth of

patron demands or library service provision; while Internet provision has skyrocketed, operating income, staffing levels, and open hours have remained flat or increased only moderately (2010, p. 18). Although budget is one of the many constraints that rural libraries face in adding new technology, such as public access computing, Heuertz et al. (2003) asserts that the investment pays off in the long run. Public access computing is a valuable resource to the rural library. It provides the patron and librarian with access to information from the whole world. Librarians can communicate with their counterparts for support, and patrons can access information that is not available on site. Human resources can also be an impediment to implementation of technology in rural libraries. A lack of staff, staff resistance to change, and undereducated staff are often cited as human resource challenges facing rural libraries. Due to budget cuts and funding deficits, many libraries have been forced to hire under-qualified staff and reduce staff hours. According to Becker et al. (2010) although demand for library computers is high and continues to grow, since 2001 the number of librarians available to assist patrons has not grown at the same pace as the rapid increase in visits, circulation, and availability of public access computers (2010, p. 17). In a survey from 2009 by Greg S. Borman, rural librarians indicated that limited staffing is a major obstacle. The librarians surveyed noted that one-person libraries, and libraries where staff are busy with the essential operations of the library, have extremely limited time available to educate their patrons. Thus, even with programs such as the Bill & Melinda Gates Foundation U.S. Library Program which provides technology training for rural library staff, these staff

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION persons would not necessarily have the time to assist patrons struggling to learn new technologies. Alemanne et al. (2011) and Vavrek (1995) have also identified resistance to change among library staff, especially with regard to new technology, as a common impediment. According to Alemanne et al. (2011) resistance to change and organizational inertia (2011, p. 25-26), are among the many barriers contributing to a lack of resources such as new

technologies. A lack of qualified and educated staff is another issue regarding people. According to Vavrek (1995), in populations of fewer than 2,500 people, only 4 percent of the librarians have academic training (p. 14). In her article Rural Libraries: The Heart of Our Communities from 2007, California State Librarian Susan Hildreth also identifies lack of academically trained staff (p. 8) as a rural library issue. The lack of qualified staff in rural libraries may have a larger impact regarding the nonimplementation of new technologies in rural libraries than is obvious at first. In his 1983 article, A Struggle for Survival, Bernard Vavrek noted that due to budgetary constraints, few rural librarians could afford to belong to professional library organizations, leading to rural librarians being unevenly represented in the library profession. The cycle, then, of not being a participant and, therefore, not being heard keeps the problems of providinginformation service in the small public library hidden to all but those who are directly affected (Vavrek, 1983, p. 966). Unfortunately, twenty years later Heuertz et al. (2003) noted that this cycle had not been broken, stating that: In general, [rural] libraries receive less attention from the library leadership in the U.S. than the larger urban and suburban libraries [and this] may be the result of the relative lack of awareness in the small libraries of the importance of gaining

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION the attention of the U.S. library leadership, as well as a possible lack of training in how to do it. As a resultthere is relatively little information available regarding the particular needs, struggles, and accomplishment of [rural] libraries (p. 2). Finally, there is the issue of distance itself. The isolation of rural libraries has been

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known to be a significant impediment to technology implementation as it is logistically difficult to gain access to high speed Internet, for example, in isolated areas. Known Solutions to Implementation Challenges Some of the solutions that have been proposed in the relevant literature include increased advocacy and education, individual librarian initiative to implement change, private and public funding. According to Vavrek (1995), a common refrain in library land has been that people simply do not know what is available in the library (p. 5). Increasing awareness about the resources available beyond books, may contribute to increased funding from the community, and local government. However, in order for any change to take place, librarians and library staff need to take a more active role in the promotion of the library. In the study by Becker et al. (2010) they cite private funding from sources like the Institute of Museum and Library Service, and the Bill & Melinda Gates Foundation, as possible resources for rural libraries. According to them through partnerships with the Bill & Melinda Gates Foundation, the Institute of Museum and Library Services (IMLS), and advocacy in their own communities, virtually all public library systems in the United States have public computers and Internet access, with an average of seven terminals available for every 10,000 residents (2010, p. 12). Heuertz et al. (2003) notes that many rural and small town libraries obtained their first public access computers (PACs) through the assistance of the Bill & Melinda Gates Foundation U.S. Library Program, [by providing] public access computing packages that

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include hardware, software, support materials, training and technical support (2003, p. 1). The Gates Foundation is one of the few programs working with rural libraries that have designed technology specifically for use in rural libraries by building a bullet-proof computer which resists any attempts to modify its core elements, and which looks that same and operates the same for every patron, regardless of what previous patrons may have been doing. To minimize troubleshooting problems, these public access modelsreset themselves and correct many problems when the machines are turned off and on again (Heuertz et al., 2003, p. 18). Alemanne et al. (2011) have also proposed a public funding option that utilizes a community wide planning model. In this instance rural libraries would make partnerships with other local institutions to address community...needs (2011, p. 27), such as the implementation of technology, but, more specifically, broadband services that can be taxing on individual institutions. Broadband is quickly becoming the dividing line between the haves and have-nots. Boris (2005) notes that; if the divide is defined as access to broadband, the gap stubbornly persists, especially in rural areas (p. 9). As such, Alemanne et al. (2011) assert that rural libraries need to rethink how they can provide access to broadband services. Given the current economic difficulties in implementing broadband, it is now necessary for rural libraries to focus efforts on partnering with local governments and other institutions to provide this service. In 2007, the OCLC Council of Small and Rural Libraries recognized the need for rural libraries to seek out partnerships, stating that rural libraries cannot improve their financial and service plights alonethe library would thus function as partner or collaborator in providing services at a more local level (Olszewski et al., p. 5). Research Aim and Questions

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Rural libraries face a number of challenges that hinder them from implementing

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technology, including restricted budgets, undereducated staff, and isolation. These challenges are also disadvantages that contribute to the digital divide. While research has been done to identify these challenges, the reasons why rural libraries lack technology have not been fully explored. Through our research we hope to identify the most common reason for non-implementation of technology. Is funding the main reason why rural libraries have trouble implementing technology? What types of technologies do rural librarians believe will help bridge the digital divide between rural and urban libraries? What changes can be proposed in rural libraries to improve implementation? Research Hypothesis/Assumptions of the Research Using support form our literature review, we hypothesize that the most common cause of non-implementation of new technology in rural libraries is a lack of money due to budget cuts and limited funding. We propose to demonstrate this hypothesis through a mixed method research strategy, using semi-structured interviewing in conjunction with a survey. In the structured interview, we will ask questions related to the technology implementation challenges facing various rural libraries across the country. We will also conduct a survey that will ask librarians and library staff to identify, in order of most to least significant, the challenges that impede technology implementation. Through these research methods we hope to discover what is the most common reason for non-implementation. Significance of the Research

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Our review of the relevant literature has shown consistent, documented evidence that

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rural libraries are lagging behind urban metropolitan libraries in their implementation and use of technology. This disparity is consistent with a broader rural/urban digital divide in the United States. This digital divide creates access issues whereby rural communities do not have as much access to information about job opportunities, scholarships for education, medical resources [and] while it is easy to assume that high speed Internet is a reality in every home, in 73% of rural communities, the library is the sole source for free access to computers and the Internet (Hixon, 2012). Our review has also shown that there are many reasons given for this digital divide in technology implementation. The main reason seems to center around larger funding and budgetary issues. While research has been done on overall library funding, little research has been done on how to address funding issues in rural libraries. Specific to our area of concern, there has been no research to date concerning how rural libraries might address budgetary restraints and still implement current technologies. By focusing our research on funding for technology implementation in rural libraries, we hope to contribute to the LIS field in two ways. First, we hope our study will help to galvanize a focus within LIS on rural library scholarship. Too little LIS scholarship tailors itself to the 78% of all libraries in the United States (Chute, 2006). Second, we hope that this study will benefit LIS practice by helping to provide specific technological solutions, which may help break the rural/urban digital divide.

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Definitions Anchor Institutions: As defined by the National Telecommunications and Information Administration are Schools, libraries, medical and healthcare providers, community colleges and other institutions of higher education, and other community support organizations and entities to facilitate greater use of broadband service by or through those organizations. Definition retrieved from http://broadband.uwex.edu/resources/anchor-institutions/ Digital Divide: The gap between those individuals and communities that have, and do not have, access to information technologies. Integrated Library System (ILS): An enterprise resource planning system for a library, used to track items owned, orders made, bills paid, and patrons who have borrowed. Public Access Computing: Computers that are connected to the Internet, and freely available to the public for use. Libraries are one of the top providers of such computers. Rural Library: The definition of rural varies throughout LIS literature. The Center for the Study of Rural Librarianship uses two definitions: one follows the US Census definition which defines a rural community as one with up to 2,500 people; the other definition expands the population of what is rural to include up to 25,000 people living outside of a metropolitan area (Heuertz et al., 2003, p. 2).

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION References Alemanne, N.D., Mandel, L.H, & McClure, C.R. (2011). The rural public library as leader in community broadband services. Library Technology Reports, 47(6), 19-28. Becker, S., Crandall, M.D., Fisher, K.E., Kinney, B., Landry, C. & Rocha, A. (2010). Opportunity for all: how the American public benefits from Internet access at U.S.

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libraries. (IMLS-2010-RES-01). Retrieved from http://tascha.washington.edu/usimpact Bertot, J.C., Jaeger, P.T., McClure, C.R., Wright, C.B., & Jensen, E. (2009). Public libraries and the Internet 2008-2009: issues, implications, and challenges. First Monday, 14(11), Retrieved from http://firstmonday.org/htbin/cgiwrap/bin/ojs/index.php/fm/article/view/27 Boris, L. (2005). The digital divide and its impact on the rural community. Rural Libraries, 25(2), 7-35. Borman, G.S. (2009). Rural U.S. libraries: serving populations and meeting challenges. Library Student Journal. Retrieved from http://www.librarystudentjournal.org/index.php/lsj/article/view/117/246 Chute, A., & Kroe, P.E. (2006). Public libraries in the United States: fiscal year 2004. Retrieved from http://nces.ed.gov/pubs2006/2006349.pdf Heuertz, L., Gordon, A.C., Gordon, M.T., & Moore, E.J. (2003). The impact of public access computing on rural and small town libraries. Rural Libraries, 23(1), 51-79. Hildreth, S. (2007). Rural libraries: the heart of our communities. Public Libraries, 46(3), 7-11. Hixon, Kieran. (2012). Leveraging rural collaboration: rural libraries as the 21st century digital nucleus. Colorado Libraries, 36(2). Retrieved from coloradolibrariesjournal.org/articles/leveraging-rural-collaboration-rural libraries-as-the21-century-digital-nucleus

CHALLENGES OF RURAL TECHNOLOGY IMPLEMENTATION Integrated Library System. (n.d.) In Wikipedia. Retrieved June 2, 2012 from http://en.wikipedia.org/wiki/Integrated_library_system Melott, E. (2003). A survey of ILS usage. Rural Libraries, 23(1), 35-50. Olszewski, L., Van Orden, R., & Dalrymple, T. (2007). Small and rural libraries discussion paper. Retrieved from http://www.oclc.org/ca/en/members council/meetings/2007/may/SmallandRuralWhitePaper_May07.pdf Sanchuk, P. (2004). Information needs in rural America. Rural Libraries, 24(2), 41-60. Vavrek, B. (1983). A struggle for survival: references services in the small public library. Library Journal, 108(10), 966-969.

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Vavrek, B. (1995). Rural information needs and the role of the public. Library Trends, 44(1), 2148. Vavrek, B. (2008). Looking to the Future. Bookmobile Outreach Services, 11(2), 7-8.