Survey of internet access in public libraries

Executive summary

The first object of the Australian Library and Information Association (ALIA) is to promote the free flow of information and ideas in the interest of all Australians and a thriving culture, economy and democracy. The Association has been active in the public debate on the regulation of internet content in Australia. This report of a recent survey by the ALIA of internet access in public libraries is a contribution to that debate. A preliminary report of the survey was submitted by ALIA in late-2002 to the Commonwealth government's review of online content regulation.

The survey provides data on the experiences of libraries in providing public access to the internet and on the impact on libraries of the online co-regulatory scheme introduced by the Broadcasting Service Amendment (Online Services) Act 1999. The survey gives insights into how people are using the internet and the ways in which libraries are promoting community education and assisting responsible and effective access to online content.

Local government library services in all states and territories, all state and territory libraries and the National Library of Australia took part in the survey. The survey covers ninety-one public library services that are institutional members of ALIA. At the time of the survey these library services had 445 branches and other access points providing services to over four million registered users and with almost 2000 public access internet terminals. It is estimated that over 50 000 people used internet access services each week in these libraries.

The survey asked participating library services about internet use policies, community education and training, complaints from users about internet content, use of internet filtering software and children's use of the internet in libraries.

Key findings

• Internet services in public libraries are popular, heavily-used and in high demand. To meet demand, almost all of the library services participating in the survey operated booking systems and imposed time restrictions on internet use.
• Almost all of the participating library services had well-publicised internet-use policies that included user behaviour policies.
• Ninety-seven per cent of participating library services provided some form of community education about the internet. Over eighty per cent offered internet training courses; many offered free training.
• Thirty per cent of participating library services were aware of NetAlert, the Commonwealth government's internet education initiative, and only seven (eight per cent) reported actively using it.
• The level of complaints from users about internet content was very low. Most negative comments from users related to the quality and capacity of internet-access services, such as slow connection speeds and service restrictions or concern about the behaviour of other users, rather than offensive content.
• Eighteen per cent of participating library services were using filtering software.
• Most participating library services (seventy-two per cent) required parental consent for children to use the internet and twenty-nine per cent required a parent to be present when children were using the internet. The age up to which a parent was required either to give consent for or to be present with a child using the internet varied widely among the participating library services.
• Almost half of the participating library services provided websites for children and young adults that linked to material specially recommended for them, and one-third offered internet training programs specifically for children and/or parents.

Conclusion and recommendations

The survey of internet access in public libraries demonstrates that libraries have developed use policies and service practices to manage access so that using the internet is a positive and rewarding experience for the great majority of users, including children. The key components of a high-quality and responsible internet access service are:

• well-publicised internet use policies and internal complaints procedures that are able to deal effectively with inappropriate use;
• provision of training and skilled assistance in information searching and using online resources;
• good technical infrastructure, high-speed connectivity, adequate numbers of internet access terminals and maintaining currency of hardware and software.

Internet content regulation

It can also be concluded that the current regulatory scheme is meeting the underlying objectives of the legislation of providing a means for addressing complaints about internet content, of restricting access to internet content that is likely to offend reasonable adults and of protecting children from content that is unsuitable for them. This is supported by the findings of the survey that there is not a high level of community concern or complaint from users of public library internet access services about offensive of illegal internet content.

However, the survey found that while public libraries are important centres for community education about the internet, they have a relatively low level of awareness and use of NetAlert, one the major government internet education initiatives under BSA 1999.

Based on the findings of the survey, ALIA has recommended to the current review of online content regulation that:

Issues for the library and information sector

The survey has highlighted the range of policies and practices among public libraries, for example in community education and in managing internet access by children. It has also highlighted the variations in measuring internet use. In the quest to improve services and to establish best practices these issues are worthy of further discussion and debate among libraries.

ALIA will incorporate the findings of the survey into its lobbying and advocacy for public library services and in support of freedom of access to information. The findings will also be used to update its guidelines for members on internet content regulation. ALIA will publicise the findings of the survey and will seek comments and suggestions from members.