MANAGEMENT REPORT

Date:

July 17, 2014

Author:

Shelagh Flaherty, Director, Library Experience

Phone No.:

604-331-4004

VanDocs#:

DOC/2014/231453

Meeting Date:

July 23, 2014

TO:

Library Board

FROM:

Shelagh Flaherty, Director, Library Experience

SUBJECT:

Public Internet Use

SUMMARY
The report recommends changes to the Public Internet and Computer Usage Policy to ensure that VPL
libraries are safe and comfortable for all patrons and staff, to strengthen the policy to support staff and
security personnel in applying the policy, and to ensure VPL maintains a work environment free of
harassment.
PURPOSE
This report is for decision.
RECOMMENDATION
That the Board revise the Public Internet and Computer Usage Policy to include the following clauses to
the Acceptable Use of the Internet and Public Workstations:
Users must not use any workstation or the public wireless network to display explicit sexual
images.
Staff will advise users of inappropriate conduct as required and will ask that any behavior
deemed to be inappropriate cease immediately. Violations may result in loss of privileges for
both the user and the cards used.
The policy with proposed edits is attached to this report.
CHIEF LIBRARIANS COMMENTS
Access to the Internet has been a cornerstone of VPLs collections and information services provision
since early 1996 when public Internet access was first introduced. Since then, use of these services has
DOC/2014/231453

Page 1 of 12

become even more critical with the assertive migration of educational, informational, commercial,
social, and civic engagement opportunities to web-based digital formats experienced since 1996. At the
same time, as digital media evolves and transmission options for diverse content expanded to include
streaming media over the web, the complexities of managing public internet access as it intersects with
public space provision has become more challenging. This policy revision suggests a more assertive
approach to free public Internet use with regards to the viewing of overtly sexualized content in public
spaces.
POLICY
VPL Board policies related to this report are the Public Internet and Computer Usage policy and the
Human Rights and Harassment and Respectful Workplace policies. VPLs Human Rights and Harassment
Policy aligns with the BC Human Rights Code and, along with the Respectful Workplace policy, meets the
requirements of WorkSafeBC to provide a safe workplace free of harassment. A more detailed
discussion of these policies is provided below.
STRATEGIC IMPLICATIONS
Providing Internet resources is an extension of the librarys material collections for library users and
provides access to one of the richest information resources available to the public. VPL initially
developed its Public Internet and Computer Use Policy and related procedures within the framework of
the Vision and Mission Statement of the day and continued to assess the policy in subsequent years.
This most recent review continues the tradition of periodically reviewing important public service
provision frameworks, both policies and models.
Further, as an employer, ensuring staff feel safe in the performance of their duties is core to VPLs
strategic foundational goal of supporting skilled and resilient staff who meet changing community
needs with confidence as well as is critical to obligations as an employer around safe workplace.
BACKGROUND
Internet access via library workstations and public wireless network is a core service and VPLs policies
and procedures have evolved over time to reflect the changing nature of technology and Internet
access. Consultation with staff and an increase in number of patron comments and security incidents
particularly at Central Library and Mount Pleasant Branch in 2014 related to explicit sexual images
necessitated a review of public Internet and computer use to ensure library spaces are safe and
comfortable for all and free from harassment.
DISCUSSION
Intellectual freedom, freedom of thought and expression of thought, as well as freedom of information
are fundamental principles in public library service. VPLs commitment to these principles is reflected in
our Public Internet and Computer Usage Policy as well as our Collection Development Policy, the latter

DOC/2014/231453

Page 2 of 12

which also embeds an endorsement of the Canadian Library Associations Statement of Intellectual
Freedom (attached).
VPL is also committed to providing an environment in which all individuals, staff and patrons, are
treated with mutual respect and dignity. The Library recognizes that employees have the right to work in
an environment that is free from harassment as prohibited by the BC Human Rights Code.
VPLs services and spaces are for everyones use and enjoyment. Patrons are not to use the library and
its resources in a way that consciously or unconsciously violates or restricts the rights and ability of
others to use the library.
Current Policy Context
Internet and Computer Usage Policy
The Board last reviewed and revised the Public Internet and Computer Usage Policy in February 2011.
The policy was updated to include use of VPLs public wireless network and online engagement in the
policy, and further support freedom of information in providing Internet access at VPL. VPLs Internet
and Computer Usage Policy has evolved over time to reflect the changing nature of technology and
Internet access. The original policy reflected the initial notion of the Internet as an extension of the
librarys collections and has evolved to include language to address the use of VPLs free public Internet
access for online engagement. VPLs longstanding and critical adoption of the CLA Statement on
Intellectual Freedom and decision not to filter adult Internet stations has demonstrated the librarys
commitment to freedom of information in the online context.
The Public Internet and Computer Usage Policy states that library workstations are located in public
areas shared by library users of all ages, backgrounds, and sensibilities; individuals are asked to consider
other patrons when accessing the Internet or electronic resources, and, must not use any workstation
for the public wireless network or illegal, actionable, or criminal purpose. This information is included
with the Internet use disclaimer which patrons must acknowledge as part of logging on to public
Internet workstations and the wireless network. The policy does not explicitly say that viewing
inappropriate material is not allowed. Consequences for infractions are not included in the policy.
Workplace Policies - Human Rights and Harassment and Respectful Workplace
VPLs workplace policies align with the BC Human Rights Code and the WorkSafeBC occupational health
& safety policies. The Human Rights and Harassment and Respectful Workplace policies address the
requirement of the employer and all staff to provide a work environment that is free from harassment.
The Human Rights and Harassment Policy states: Vancouver Public Library is committed to providing a
work environment in which all individuals are treated with mutual respect and dignity. The Library also
recognizes that employees have the right to work in an environment that is free from harassment as
prohibited by the BC Human Rights Code.
Harassment is a form of discrimination and is prohibited by the BC Human Rights Code. It is defined as
behaviour that a reasonable person would find unwelcome, has a negative impact on the workplace,
DOC/2014/231453

Page 3 of 12

and is related to any of the characteristics which are listed as prohibited grounds of discrimination in the
BC Human Rights Code.
Behaviour does not need to be intentional in order to be considered harassment. Some examples of
harassment listed in the policy include, but are not limited to:
Displaying or distributing derogatory or offensive pictures, graffiti or other materials related to
any of the Prohibited Grounds, including but not limited to racist, sexist, or homophobic
materials;
Unwelcome, offensive behaviour related to a Prohibited Ground, where tolerance of the
behaviour is explicitly or implicitly made a term of employment or a consideration in job-related
decisions;
Further, the library has a primary responsibility to establish and maintain a work environment free of
harassment. The library and staff responsible for supervision must:
Ensure staff is provided with information about and access to policies and procedures related
to harassment; and, intervene promptly and appropriately when they know, or ought
reasonably to know, that harassment is occurring.
Procedures and Practice
Filtering
While VPL has a policy and practice of not filtering Internet stations for adult access, the computers in
the Childrens Department and one computer in each branchs Childrens Area is filtered.
Staff Intervention
When patrons inform staff that someone is viewing inappropriate content, staff are asked to speak to
the patron directly. At Central Library and Mount Pleasant Branch, staff can call security personnel or
guards to assist or to speak to the patron. When we approach patrons, we remind them that libraries
are shared spaces, ask them to consider the impact on other patrons the library, and ask them to stop
viewing the inappropriate content. The Library security coordinators report that in the vast majority of
cases patrons comply. If they do not, they are asked to leave the library. It should be noted that patrons
may revert to viewing inappropriate material when library and security staff are not in view or when
they next return to the library. Importantly, as discussed below, for a variety of reasons not all staff are
comfortable interacting with patrons on these matters and some may not speak with a patron if they
observe someone viewing inappropriate material. At branches generally, staff handle these concerns
themselves directly.
With the changes in the service delivery at Central, Information Services and Circulation staff have had
discussions in the past months on policies and procedures. The Central security coordinator and
DOC/2014/231453

Page 4 of 12

supervisors have reviewed practice and policy related to inappropriate material visible on public
workstation screens with staff in the two departments. Some information staff report that as they rove
and move around the floors more widely as part of the new information services model, they are more
aware of people viewing inappropriate content at stations beyond the purview of the previous desk
placement. Conversely, several patrons at Central have commented this year that because there is no
longer a desk that is staffed at all times there are more people viewing inappropriate content.
As noted above, not all staff are comfortable in the role of asking people to stop viewing material or do
not feel safe doing so. Additionally, despite years of training and communication, there has not been a
consistent approach among staff and security guards. Some staff do not feel safe with the patrons they
approach and/or with the content that the patron is viewing. Some staff prefer to avoid possible conflict
and do not approach patrons. Other staff interpret that what people are viewing is not illegal
pornography and therefore allowed under the Public Internet and Computer Usage Policy. Some staff
and security guards ask patrons to move to less public area. We have had several patrons report
recently that staff and security guards have told them that what people are viewing is not illegal and
that nothing that can be done. While security coordinators note that almost all people comply if asked
to stop viewing this material, this does not make staff feel any more comfortable.
Some staff and VPL security coordinators have stated that it would assist them in ensuring a welcoming,
safe space for all if policy stated that viewing inappropriate material was not acceptable or allowed.
Public Feedback about Content Viewing
Some patrons contact library staff when they have observed others viewing offensive and inappropriate
material. They may do this immediately in person or later by letter, email or telephone. As the chart
below shows, this is not frequent. Inappropriate or offensive material may be legal pornography,
sexually explicit images, or other offensive content or images. As stated in the policy, workstations and
VPL public wireless must not be used for illegal purposes. Viewing illegal pornography is not allowed and
the police are called immediately.
Patrons express a variety of reasons for objecting to others using library workstations to view offensive
material. In most cases, patrons state they are offended by the material that they see and some express
that they feel intimidated when they sit near someone who is viewing this material. Patrons express
concern that libraries are public spaces where children and women can see screens with objectionable
material. Others have said that allowing people to look at offensive or pornographic material is not a
proper use of public resources. Below is a review of complaints and security incidents from 2013 and
the first half of 2014.

DOC/2014/231453

Page 5 of 12

Central
Library

Mount Pleasant
Branch

Other
Branches

Totals

Letter, Email, Telephone Correspondence

2014

Letter, Email, Telephone Correspondence

2013

Patron Comment Cards 2014 (Jan-June)

Patron Comment Cards 2013

Security Reports 2014

(Jan-June)

15

19

Security Reports 2013

16

31

As the table above indicates, the number of formal complaints via email, letter, or telephone concerning
pornography or inappropriate material has historically been quite low. There is one complaint on record
for 2013 and this is much like the several years previous. In the first six months of 2014, four patrons
have contacted us because of concerns with seeing objectionable material displayed on library
workstations. This year there have been five patron comment cards left at Central and one at Mount
Pleasant compared to one for the system in 2013.
Security incident reports may also include information on a patron viewing pornography or offensive
material. Most of these incidents are documented because of other factors such as the patron was
creating a disturbance or was uncooperative, there was conflict with staff or third party, or, there were
other infractions such as alcohol use. Like patron comment cards and correspondence, most security
incident reports are from Central and Mount Pleasant libraries.
Complaints about people viewing inappropriate content are also made directly to a staff. As well, staff in
the course of their work may observe someone viewing inappropriate content. These incidents are not
formally tracked so we do not know how often this occurs.
Technology Impacts
Improvements to technology at the library have made access to all that is available via the Internet
easier. High resolution 19 computer monitors have been the norm for public workstations for the past
5 years and in the regular cycle are being replaced by 22 monitors. While bandwidth capacity is an issue
for the library, patrons are able to stream web content. The advent of YouTube and similar adult
websites means that streaming of adult movies is easily done and is more noticeable to patrons and
staff. While content is more visible, most Internet users will have several browser tabs open at one time
and move between them. Someone may be observed viewing inappropriate content and a different
screen may be visible minutes or seconds later.

DOC/2014/231453

Page 6 of 12

Our security coordinators note that with larger screens, better quality resolution, and streaming content
over the past couple of years there has been increasing incidents of patrons, staff and security guards
observing and reporting people viewing unacceptable images on library workstations. In the past, there
would occasionally only be a complaint about a sexually explicit picture and that images were much less
visible to staff and patrons than now.
Review of Public Internet and Computer Usage Policy at Other Libraries
Discussions among staff groups and the 2014 increase in patrons concerns and security related
incidents have led to a review VPL policies and practices to ensure a safe and comfortable environment
for all. While the majority of comments and complaints are from Central Library and Mount Pleasant
Branch, VPL must provide an environment for staff and patrons across the system that is safe and free
from harassment.
A review of computer use policies from 12 other BC and Canadian libraries shows that most of the
libraries policies have statements that are clearer and more directive than VPLs policy. These policies
offer some alternatives for strengthening VPLs policy. Greater Victoria, Edmonton and Hamilton public
libraries all state that library computers and wireless may not be used to display overt or explicit sexual
images. Ottawa and Richmond public libraries both note in their policy that that it is the librarys
responsibility to provide an environment that is free from sexual harassment and discourages Internet
use that denies other a safe environment.
Halifax Public Librarys policy states; There are sites on the Internet inappropriate for viewing in a
public setting. Library staff reserve the right to end Internet sessions when such material is displayed.
Like the Halifax policy, all policies reviewed referenced loss of library privileges or suspending Internet
use if there is an infraction of the policy. Staff from other libraries note that inclusion of consequences
for infractions help enforce the policy.
Each of these libraries shares the same values of intellectual freedom as VPL, but have implemented
more direct language with regards to the use of shared public computing resources and conduct in a
shared space.
Recommended Revisions to VPL Policy
While VPLs Public Internet and Computer Usage Policy states that workstations are located in public
areas shared by library users of all ages, backgrounds, and sensibilities and, further, that individuals are
asked to consider other patrons when accessing the Internet or electronic resources, and, must not use
any workstation or the public wireless network for illegal purposes, the policy does not actually say that
viewing inappropriate material is not allowed.
To ensure that VPL libraries are safe and comfortable for all patrons and staff, support staff and security
personnel in applying a clearly articulated policy, and to ensure VPL maintains a work environment free
of harassment, the attached proposed revisions are recommended to the Public Internet and Computer
DOC/2014/231453

Page 7 of 12

Usage Policy. The recommended changes intend to balance the need to manage public space and the
rights of individuals.
BC Civil Liberties Association staff reviewed our recommended approach and wording and agreed that
the recommended approach and wording balances the need to respect both intellectual freedom and
the qualities of respectful public space. Discussion with the Policy Director focused on the need for
judgement and discretion in applying the policy that takes into account the research and information
needs of patrons. As well, the Policy Director queried whether VPL staff could identify a situation in
which such a policy created a chilling effect; after some consideration, she and VPL staff agreed that
effective use of judgement could effectively manage this potential and that the public space mandate
was a very compelling rationale for a more assertive approach.
FINANCIAL IMPLICATIONS
There are no financial implications.
TIMELINES
If changes to the policy are approved by the Board, management and security staff will ensure that all
staff and the public are provided with information about the revised policy. Training for staff way of
crew talks will be developed. Supervisors and security coordinators will ensure review of policy and
practice is part of regular staff training along with other VPL public service and security procedures, with
the aim of consistent application.
Staff and security will be expected to apply and administer the policy. Staff at Central Library and Mount
Pleasant Branch can ask security to assist if a situation is unsafe or they are uncomfortable with images
being displayed but it is the responsibility of all staff assist in assuring that the our spaces are safe and
comfortable for all.
There will be a period of adjustment as staff become familiar with the new policy and, also, as patrons
are made aware of the changes to the policy. We will need to develop a communications to ensure
patrons know of the changes as they log on to public Internet workstations and the wireless network. As
situation arises, staff and security personnel will need to explain the new policy and subsequent
consequences.
FINAL REMARKS
VPL is committed to the principles intellectual freedom, freedom of thought and expression of thought,
as well as freedom of information. VPL is also committed to providing an environment in which all
individuals, staff and patrons, are treated with mutual respect and dignity. Library services and spaces
are for everyones use and enjoyment and must be safe and comfortable. Including statements in policy
that are clear and directive strengthens the policy to assist staff in balancing the need to manage public
space and the rights of individuals.

DOC/2014/231453

Page 8 of 12

Subject: Internet and Computer Usage, Public

Category: Board Policy
Policy Code: BD-L-2011
Introduction
The Vancouver Public Library (VPL) has developed our Internet and Computer Usage policy within the
framework of our Vision Statement, which states:
An informed, engaged and connected city.
Vancouver Public Library considers Internet resources an extension of our material collections for library
users and one of the richest resources available to the public. The Internet is also a participatory
community space, and an important vehicle for developing community amongst library users.
VPL is not responsible for the content or quality of information retrieved on Library Internet
workstations or through the use of the public wireless network.
Users should be aware that the Internet is not a secure medium and that third parties may be able to
obtain information about users' activities.
Physical Access:
1. The library will make workstations available for Internet access, word processing, and other
public information needs. We will make decisions regarding the number of workstations
according to space availability, branch priorities, telecommunications capability, and systemwide resources.
2. Patron use of Internet workstations will be limited by time per day. Branches with few Internet
workstations may impose shorter time limits. The library will use booking software to track the
total amount of time used at each session and throughout the day. No information is kept on
the content of the session. We may implement additional administrative mechanisms such as
sign-up sheets if required. Public service librarians may make exceptions on specific
workstations as needed.
3. The library will make wireless Internet accessible to the public.
Content Access:
1. VPL endorses the Canadian Library Associations Statement on Intellectual Freedom and believes
that the freedom of access to information is essential to the health and development of a
democratic society. (see references at end of policy)
2. Internet workstations in adult areas will not have any content limitations except as outlined
below.
DOC/2014/231453

Page 2 of 12

3. Internet workstations in children's areas will have a commercial content filter. In those branches
which do not have Internet stations in the childrens area, at least one terminal with a filter will
be made available elsewhere in the branch. The Library will not alter the commercial content
filter. This policy is consistent with our book and materials collection policy, which stresses that
the childrens collections be appropriate for the ages and interests of children.
4. Monitoring of a child's (up to 14 years of age) use of the Library and the Internet is the
responsibility of the parents/guardians.
5. All members of the public, including children, will have access to workstations with no content
limitations.
Acceptable Use of the Internet and Public Workstations:
1. Users of the Internet must respect copyright law and licensing of programs and data.
2. Library workstations are located in public areas shared by library users of all ages, backgrounds,
and sensibilities; individuals are asked to consider other patrons when accessing the Internet or
electronic resources from the public workstations or through personal devices.
3. Users must not violate the privacy of another library patron.
4. Users must not install software or run any programs on VPL computer equipment that have not
been installed by VPL staff. Users should not develop or use programs that infiltrate a computer
or computer system and/or damage or alter the software components of a local or remote
computer or computing system. No alteration, damage or destruction of the librarys computer
hardware is permitted.
5. Users must have only one library card, use only their own library card and must not use other
individuals' cards.
6. Users must not use any workstation or the public wireless network for illegal, actionable, or
criminal purpose, or seek access into any unauthorized areas, and must not harass other users
locally or remotely.
7. Users must not use any workstation or the public wireless network to display explicit sexual
images.
8. Users must not seek information on, obtain copies of, or modify files, other data, or passwords
belonging to other users. Users should not represent themselves as other users.
9. The library is not responsible for any fees incurred by use of the Internet.
10. The library cannot guarantee the security and confidentiality of any transaction, particularly
ecommerce transactions.
11. The library is not responsible for any damage to patron disks or external devices that may be

connected to or inserted into a library workstation or connected to VPL power supplies.

12. Staff will advise users of inappropriate conduct as required and will ask that any behaviour
deemed to be inappropriate cease immediately. Violations may result in loss of privileges for
both the user and the card(s) used.
Library Patrons Rights:
1. Library patrons have the right to confidentiality and privacy in the use of electronic information
networks to the extent possible given certain constraints such as proximity of other patrons and
staff in public access settings. For legal reasons complaints from patrons that a user is accessing
legally prohibited material may result in a VPL staff member intervening.
The same confidentiality standards and procedures that apply to other library/public
transactions will apply to the use of Internet resources. VPL will make a best effort not to store
any individual information on patron Internet use or other VPL electronic information sources.
VPL may store cumulative, generic statistics to assure equitable access or measure service
utilization and direct information subscription purchases.
2. Library patrons have the right to equitable access to electronic information networks.

APPROVED BY VPL BOARD:

REVISED:

August 23, 2000

May 26, 2010
March 2, 2011

Canadian Library Association Position Statement on Intellectual Freedom

Approved by Executive Council ~ June 27, 1974; Amended November 17, 1983; and November 18, 1985
All persons in Canada have the fundamental right, as embodied in the nation's Bill of Rights and the
Canadian Charter of Rights and Freedoms, to have access to all expressions of knowledge, creativity and
intellectual activity, and to express their thoughts publicly. This right to intellectual freedom, under the
law, is essential to the health and development of Canadian society.
Libraries have a basic responsibility for the development and maintenance of intellectual freedom. It is
the responsibility of libraries to guarantee and facilitate access to all expressions of knowledge and
intellectual activity, including those which some elements of society may consider to be unconventional,
unpopular or unacceptable. To this end, libraries shall acquire and make available the widest variety of
materials.
It is the responsibility of libraries to guarantee the right of free expression by making available all the
library's public facilities and services to all individuals and groups who need them. Libraries should resist
all efforts to limit the exercise of these responsibilities while recognizing the right of criticism by
individuals and groups.
Both employees and employers in libraries have a duty, in addition to their institutional responsibilities,
to uphold these principles.