Survey of internet access in public libraries 2002

This is a summary report of the survey: a detailed report is also available.

In late 2002, the Australian Library and Information Association (ALIA) conducted a survey of internet use in public libraries. Ninety-one library services, all of whom were institutional members of ALIA, participated in the survey including local government libraries in all states and territories (metropolitan and rural), all state and territory libraries and the National Library of Australia. The survey was developed by ALIA's Online Content and Regulation Reference Group.

It is estimated that over 50 000 people use internet access services each week in these libraries. The survey provides insights into how these people are using the internet and the ways in which libraries are providing community education and are promoting and assisting responsible and effective access to online content.

The issues that public libraries were asked about included internet access services, internet use policies, community education and training, NetAlert, complaints about internet content, filtering software, children and internet access services, monitoring of public internet use, and what library users think about internet access services.

Internet content in Australia is regulated by the Broadcasting Services Amendment (Online Services) Act 1999. The Act covers the regulation of internet service providers and internet content hosts as well as providing a complaints mechanism administered by the Australian Broadcasting Authority. ALIA's survey of internet access in public libraries was used in the Association's submission to the government's review of the regulation of online content. The review commenced in 2002 and as at November 2003 has not yet reported.

1. Internet use

Participants were asked how many users accessed the internet each week, as well as the nature and type of internet access services provided. Internet access services included e-mail and chat, information searching and use of online databases. Information was also sought as to how libraries measure internet usage and user fees.

It came as no surprise that the survey found that internet services in public libraries are popular, heavily used and in high demand. The survey also found that standardised measures for internet usage would be useful and that charging for internet services varied across libraries.

2. Internet use policies

All the participating libraries except one had an internet use policy. Specific questions asked in relation to these policies included: did libraries have user-behaviour policies; time restrictions on internet use and booking systems; publicising of internet policies; community consultation; and at what level the policy had been endorsed.

The survey findings indicated that nearly all of the libraries had user-behaviour policies, imposed time restrictions and operated booking systems, publicised their internet use policy and that the policy had been endorsed by library management. However, in regards to community consultation, most had not consulted the community when developing their internet use policy.

3. Community education and training

Participants were surveyed as to what user education services were offered. The services were either in the way of internet training and/or traditional forms of community education conducted in public libraries. The survey also investigated whether any of these services were specifically aimed at children and/or adults, was the internet training free, and if staff received internet training.

The results showed that nearly all of the libraries provided some form of community education about the internet. One-third offered specific training to children and/or parents and more than half provided free internet training. Also, most libraries provided internet training for staff.

4. NetAlert

The survey wanted to ascertain the awareness and use by public libraries of NetAlert, the Commonwealth Government's internet education initiative. The survey found that awareness of NetAlert was relatively low and very few libraries reported actively using NetAlert.

5. Complaints about internet content

Offensive or illegal content is an issue that attracts public interest and comment. The survey asked a number of questions about internet content complaints, including how many complaints had been received in the past twelve months, whether the complaints related to sexually-explicit, violent or racist material, and whether any complaints had concerned access by children. The survey also asked whether any libraries were aware of any cases where users had referred complaints about internet content to the Australian Broadcasting Authority.

The survey found that the level of complaints from library users about internet content was low. Most negative comments from users related to the quality and capacity of internet access services, such as slow connection speeds and service restrictions rather than offensive content.

The survey provides evidence showing that the public libraries' internet use policies and existing internal complaints mechanisms are more than adequate in managing public internet access services and the behaviour of users.

6. Filtering software

Filtering software is another issue that also draws media and public attention. The survey investigated whether filters were used and if so the type used, whether there were unfiltered terminals for adults and whether any complaints about the use of filters had been received.

The findings indicated that most libraries are providing unfiltered access to the internet. Public libraries have not experienced a high level of demand from the community for their internet access services to be filtered.

ALIA does not advocate the use of filtering technologies. The Association supports fundamental rights of all individuals to access to information and believes that filtering software is limited in its effectiveness.

7. Children and internet access services

Children accessing internet services is also an issue that generates considerable community debate. The survey investigated whether libraries have separate terminals for children, and websites for children and young adults with links to material especially recommended for them. It asked whether parental consent was required for children to use the internet and whether parents were required to present with children using the internet.

The survey found that public libraries are significant centres for internet access for children. Many libraries have responded by providing recommended websites and links, training programs for children and/or parents and some have set up separate terminals especially for children. Policies on parental consent and whether parents are required to be present with children using the internet varied widely among the library services surveyed. It appears that, in the main, library services have developed their policies based on their individual circumstances and their knowledge of their user community.

There is scope for discussion and sharing of experiences among libraries about policies and practices relating to parental consent and parental supervision for childrens' use of internet access services.

8. Monitoring of public internet use

The survey sought to ascertain whether public libraries monitored internet use and if so what data was collected and how was it used.

Most libraries monitored internet use. Data is collected for a range of purposes including: statistical (to fulfil reporting requirements for Council and funding bodies); setting filters to block undesirable sites; monitoring staff use for adherence to Council policy; identifying inappropriate use and breaches of internet use policy; and planning for development of library services and information technology infrastructure.

9. What library users think of internet access services

The survey asked library staff to comment on the nature and type of feedback, positive and negative, they had received from users about internet access in the library.

The findings showed that public access internet services are highly-valued and that staff assistance is well-appreciated, However, there are significant areas of dissatisfaction about connection and computer speeds and about not providing enough computers to meet demand.

Conclusion and recommendations

Internet access can justly be described as a core public library service to the community. Libraries have become key players in addressing the need for equitable access to online services. They have become a location for internet training, a resource for electronic access and providers of valuable online content.

In regards to internet content regulation, the current regulatory regime is meeting the underlying objectives of the legislation by 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. Based on the findings of the survey ALIA has recommended to the current review of online content regulation that:

The survey highlights the range of policies and practices among public libraries. Examples include, 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 practice principles, these issues are worthy of further investigation and discussion among libraries. ALIA therefore recommends:

Finally, ALIA will incorporate the findings of the survey into the lobbying and advocacy for public library services and in support of freedom of access to information. The findings have also been used to update its guidelines for members on internet content regulation.

Further information

Australian Library and Information Association. Statement on online content regulation The statement sets out ALIAs policy on online content regulation and includes links to other relevant ALIA and IFLA policies.

NetAlert

Review of the operation of Schedule 5 to the Broadcasting Services Act 1992 - issues paper and submissions to the review - follow the 'consultation' link