Free Library Movement

The Free Library Movement was a social movement or organization in the late 1930s in Australia with the goal of making progress in providing free public libraries in Australia, specifically in New South Wales. The movement was initiated following the Munn-Pitt Report on Australian libraries in 1935, which pointed out that Australia's library system ranked far below most other countries and that Australia was better provided with local libraries in 1880 than in the 1930s.

These revelations encouraged Geoffrey Remington and many others to win over the masses and the media to help pass the New South Wales Library Act in 1939.

History

Public Library of New South Wales, 1948.

The 'long gestation' is an expression coined by Alan Bundy to describe the slow development of public libraries in Australia. In Australia, the history of libraries predates the Free Library Movement, a crucial turning point that revolutionized access to information. During the colonial era, access to books and information was limited in Australia. The earliest libraries were private collections belonging to wealthy individuals, institutions, or religious organizations. One notable example was the Macquarie Library, founded in 1826 by Governor Lachlan Macquarie, which primarily served the government and military personnel.

In the mid-19th century, subscription libraries and mechanics' institutes emerged as important sources of knowledge. These institutions allowed members to access books and periodicals for a fee. The Sydney Mechanics' School of Arts, established in 1833, was one of the first of its kind in Australia. Such organizations played a vital role in promoting education and intellectual development among the working classes.

The movement towards establishing public libraries gained momentum in the late 19th century. In 1854, the Melbourne Public Library (now State Library Victoria) was founded, making it the first publicly funded library in Australia. Its establishment set a precedent for other states and territories. The late 19th and early 20th centuries saw the development of state library systems across Australia. State libraries, such as the Public Library of New South Wales (now State Library of New South Wales) and the State Library of Victoria, aimed to collect, preserve, and provide access to a wide range of materials. These institutions played a crucial role in building comprehensive collections and providing services to the public.

In addition to public libraries, educational institutions also contributed to libraries in Australia. Universities, colleges, and schools established their own libraries to support teaching, research, and student learning. The University of Sydney's Fisher Library, established in 1909, is an example of an educational library that made significant contributions to the academic community. Before the Free Library Movement, libraries in Australia had a diverse and fragmented landscape. Private collections, subscription libraries, mechanics' institutes, and educational institutions played vital roles in providing access to information. However, widespread access to libraries and knowledge remained a challenge. The establishment of public libraries and the subsequent Free Library Movement brought about a paradigm shift, aiming to provide free and equal access to information for all Australians.

Statistical study of the chief libraries in each State and the Commonwealth (1935)

	Date Established	Population of state	Population of Capital	Number of Volumes	Number of books received	Number of periodicals	Number of staff	Expenditure					County service (Number of books sent)
								Salaries	Books	Periodicals and Newspapers	Binding	Total	To Institutions	To Individuals
Commonwealth	1902	6,630,600	7,325	107,587	5,661	529	13	4,797	1,400	370	N/A	6,792	N/A	N/A
New South Wales	1869	2,601,104	1,235,367	459,726	6,756	1,635	58	13,240	6,662	1,701	N/A	24,556	103,521	48,014
Victoria	1856	1,820,360	992,048	517,223	8,027	1,900	46	10,000	5,709	2,525	1,596	20,047	5,485	61,229
Queensland	1896	947,789	299,782	37,004	204	270	7	1,351	10	162	31	1,874	N/A	N/A
South Australia	1884	580,987	312,629	166,163	4,330	1,066	19	4,851	343	873	250	6,725	N/A	N/A
Western Australia	1887	438,948	207,464	167,585	3,273	174	8	1,891	500	110	818	3,500	N/A	N/A
Tasmania	1870	227,605	60,408	35,000	1,042	290	6	1,216	50	96	16	1,644	N/A	27,012

The Munn-Pitt Report

In 1934, the Australian council for educational research appealed to the Carnegie Corporation of New York to finance and undertake a survey similar to a Carnegie survey in South Africa conducted the previous year. in May 1934, Ralph Munn, the President of the American Library Association, and Ernest Pitt, chief librarian of Public library of Victoria, were funded to study the Australian library system for two months. Over the two months they visited over 100 Australian libraries, in all states. Although the report was ready for publication by the end of 1934, its release was delayed until January of 1935, hoping that it might pick up additional coverage during the newspaper 'silly season'. The report stated: "While Great Britain, the United States, and to a lesser extent Canada and New Zealand, have made creditable progress in establishing rate-supported municipal libraries, Australia has accomplished almost nothing". The survey claimed that these unfavorable conditions were due to a lack of interest in public libraries among Australians.

They concluded that forming a combined state-municipal library in capital cities was essential to improve Australia's library system. The required changes, as suggested by the report, were (verbatim):

1. Formation by special legislation of a library district to include the metropolitan area.
2. Provision of a governing board to include representatives of the municipalities in the area, and the state government.
3. This governing board should make a study each year to determine the cost of lending services which is to be given to the city, and the cost of all services to the rest of the state.
4. The governing board should be given the power to strike a rate throughout the library district up to a fixed maximum.
5. Transfer of the present state library to a new governing board.

The main takeaways of the report for the lay readers were to establish tax-supported municipal free libraries and to strengthen and extend librarianship by professionalizing the training and registration of librarians.

Reactions to the report

Most sources claim that this report was met with good spirit but in the words of Remington "Although I hate to disillusion the Corporation, our reaction was more that of a bewildered boxer appearing to bow courteously to a blow in the solar plexus!".

1. John Metcalfe, 1937: "Up to 1935 the library scene in New South Wales was static... The Munn-Pitt Report changed all that. The scene now is dynamic, a revolution, we hope, is coming into being. Instead of 1937, we almost speak oft he year II, dating an era anew."
2. H.L. White, 1939: "A clarion call for public spirited citizens."
3. Norman Lynraven.1948: "The seed from which the modern library philosophy was engendered."
4. Lionel McColvin, 1947: " 'A profound impression upon all those Australians who were concerned with library development', and added: 'In few of the places which I visited did I fail to find improvement directly attributable to its inspiration and the most progressive features of the present day are surely derived from its pages.', and in relation to New South Wales: 'Progress is attributable to a logical sequence of events - the inspiration of the Munn-Pitt Report, the financial assistance that came as a result of that report to establish the Free Library Movement, the untiring, unremitting work of that organization, and its success in securing the passing of the Library Act of 1939.' "
5. A.C. McMicken,1938: "Never in the history of Victoria had so much prominence been given to the future of libraries as in the last few years. It could be greatly attributed to the report on Australian libraries... The report, which, in many cases, was severely critical, had caused authorities and the public generally to consider the question of the present position of libraries very seriously."
6. Australian Council for Educational Research, 1935: "The severe but constructive criticism contained in the report has succeeded in arousing thoughtful people throughout the Commonwealth to a realization of the serious backwardness of present library facilities."
7. G.H. Pitt, 1938: "This historic document revealed our nakedness, and the citizens of South Australia, like those of the other States, awoke to the fact that, in a Library sense, we were a backward people living in darkness"
8. Barry Scott, 1956: "It was perhaps more than anything else the impact of the Munn-Pitt Report which gave the will to organization and a direction for policy."
9. A Victorian government enquiry into public libraries, 1940-44: "We are of opinion that the admirable Munn-Pitt report on Australian libraries... did more to arouse the thoughtful section of the public to the need for libraries than any other single event in the library history of the state."
10. William Ifould: "It had an impact on leading citizens and legislators, and provided for librarians an opportunity to awaken public conscience and sensibility."
11. S.L. Ryan, 1974: "It marked an 'accession to American influence', a 'formal introduction to international standards', and a sustained impact through the Library Group.". He also sees the report as 'a propaganda weapon with which those interested in libraries belaboured those who were not', and argues that the report 'decisively sharpened the issues for librarians, who had hesitated about what should be done'.

Timeline of the 1930s movement

In 1935, following the Munn-Pitt report, William Ifould, the Principal Librarian of the Public Library of New South Wales, urged State librarians to issue a statement in support of the survey report. A group of librarians, including Ifould, drafted a statement endorsing the recommendations of the report and advocating for the establishment of free libraries in towns with populations over 10,000. They also called for the restoration of book votes for Commonwealth and State libraries. Reactions to the report varied among librarians and institutions. While Ifould and his colleagues were enthusiastic and optimistic about the potential of the report, Ralph Munn, one of the surveyors, privately expressed pessimism about the development of library services in Australia, citing the lack of capable librarians and the ongoing conflict between the Public Library and the Institutes Association in South Australia.

1935: formation of Library Group

Despite the mixed responses, the report generated interest and support for the establishment of free public library services in Australia, leading to the formation of the Library Group, a committee of librarians tasked with communicating with the Carnegie Corporation and advocating for library development. The prospects of regional library projects seemed promising at the time, with potential funding from the Corporation and support from local authorities and government officials. The Free Library Movement was established during this period to promote the cause of free public libraries, with Ifould playing a significant role in supporting the movement financially and otherwise. The Free Library Movement gained momentum as more people rallied behind the cause of establishing free public libraries in Australia. The movement garnered support from various sectors, including educators, intellectuals, and politicians. It became a platform for advocating the importance of libraries in promoting education, economic efficiency, and social welfare. Ifould, with his influential connections and expertise, played a pivotal role in shaping the movement. He recognized the need for strong leadership and competent individuals who could drive library development forward. He identified a few key figures, such as Rutherford Purnell, Ernest Pitt, John Metcalfe, and Morris Miller, who understood the challenges and potential solutions.

The Library Group, formed under the auspices of the Australian Council for Educational Research (ACER), became the primary channel of communication between Australian libraries and the Carnegie Corporation. Frank Tate, Chairman of the ACER, led the group, and K. S. Cunningham served as its secretary. The library members of the group, including Ifould, Binns, Pitt, and Purnell, or their deputies, worked together to provide professional advice and advocate for library development. In early 1935, there were promising prospects for the establishment of regional libraries in Newcastle and Armidale. The Rotary Club of Newcastle expressed its support for a public library in the city, while David Drummond, the New South Wales Minister for Education, showed enthusiasm for a regional library in Armidale. Ifould and his colleagues saw these initiatives as potential demonstration projects that could pave the way for further development. Public opinion and media support were crucial in advancing the cause. Ifould enjoyed a positive relationship with the press, particularly with Brunsdon Fletcher, the editor of the Sydney Morning Herald.

The Herald offered extensive coverage and provided a platform for promoting library development. The Premier's policy speech also signaled a commitment to improving library facilities and establishing a system of regional libraries. Despite the initial enthusiasm and progress, Munn, the "prophet" from abroad, remained privately pessimistic about the rapid development of library services in Australia. He believed there were few competent and alert librarians who could drive the necessary changes. Munn's assessment reflected the challenges posed by the existing institutional landscape, the war between the Public Library and the Institutes Association in South Australia, and the limited public experience of free library services. The Free Library Movement, the Library Group, and the support from the Carnegie Corporation provided a foundation for advocating library development in Australia. The efforts of Ifould, along with other dedicated individuals, aimed to establish free public libraries, secure government support, and address the deficiencies in the existing system. However, the ultimate success of these endeavors would depend on various factors, including the willingness of local authorities to assume responsibility for library services and the availability of competent leaders to drive the progress forward.

The Ifould Report describes the disappointment of Drummond and Ifould regarding the failure of the New South Wales Government to implement a regional system of free public libraries in 1935. Their proposed scheme lacked detailed financial analysis and consultation with key stakeholders, resulting in setbacks for the free library cause.

1936: study tours

In 1936, Ifould traveled to North America and Europe to study public library experiences, including a regional library system in British Columbia, funded initially by the Carnegie Corporation. Ifould believed a similar scheme could be sponsored in the Hunter Valley. Drummond also embarked on a study tour of educational systems and libraries in the United States, the United Kingdom, and Europe. Both Ifould and Drummond returned to Sydney with a greater understanding of the need for community support and were more determined to promote library development. Throughout 1936, the Free Library Movement gained support from various public servants, professionals, academics, parliamentarians, and local government officials. The movement attracted members from all sides of politics, with conservative ranks generally being more influential supporters. Trade unions also participated in the movement.

Women played a significant role in the movement, both as general members and in leadership positions. Branches of the movement were established in metropolitan and country areas, and support came from organizations such as schools of arts, parents and citizens associations, and the Returned Sailors and Soldiers League of Australia. Propaganda efforts, including pamphlets and media support, helped spread the movement's message, highlighting the insufficient library provision in Australia compared to education spending. The movement advocated for central library services on a contract basis, regional libraries, adequate training for librarians, and the completion of the Public Library of New South Wales building.

1937: proposed Library Act

In February 1937, a meeting between Remington, Ifould, Metcalfe, and Drummond led to the proposal of a Library Act and training for librarians. Drummond expressed strong support for the movement and suggested establishing a committee with members from the Free Library Movement, Ifould, Metcalfe, and a skilled individual from his own office to draft a Library Bill. The committee, known as the Libraries Advisory Committee, was appointed in June 1937. Ifould served as the chairman, and Metcalfe as the secretary. The committee's role was to inquire into existing library provision in New South Wales and draft necessary legislation. The committee distributed a questionnaire to gather information about library services in different areas. They also discussed the library needs of metropolitan Sydney with the Sydney Municipal Council, which expressed enthusiasm for maintaining lending libraries and providing services on a contract basis to other municipalities. The committee started its work with the support of a keen minister, a sympathetic Board of Trustees, and evidence of public support, though challenges lay ahead.

The passage describes the increasing pressure on shires and municipalities to establish public libraries in Australia, particularly in areas where the Free Library Movement had a branch. The local branch of the movement in North Sydney urged the municipal council to establish a public library, and some aldermen were also members of the movement's council. It became clear that shires and municipalities would have to play a major role in library development. The possibility of receiving assistance from the Carnegie Corporation was discussed, and there was confidence that aid could be obtained if the Council adopted the proposed Act and implemented a library rate. The leading librarian of the Public Library of New South Wales believed that their opinion would carry weight with the Carnegie Corporation. Legislation was needed to provide a framework for library development. Initially, the proposed bills focused on administrative structures, but a series of clauses were prepared instead. The involvement of R. A. Johnson, a legal officer, was beneficial due to his expertise in the Local Government Act. The interest in library services from local authorities was assessed through a questionnaire sent to 311 local authorities in New South Wales. About three-quarters of the authorities responded, revealing little change from the situation reported three years earlier. Most areas lacked free municipal libraries and had decaying schools of arts and literary institutes. There was a need for legislation to establish library services, and the Committee consulted with overseas visitors experienced in public library services.

They also took into account the report of a South African interdepartmental committee on library services. A draft report was prepared, emphasizing the educational role of libraries and recommending state aid to encourage local authorities to establish viable services. The proposed scheme included a sliding scale of subsidies based on the Unimproved Capital Value (UCV) of properties, with the aim of providing a minimum expenditure of two shillings per head. Government subsidy would be based on the population, and the local contribution would be calculated based on the UCV of the municipality or shire. The draft report suggested that within the Sydney metropolitan area, reference services would continue to be provided by the Public Library of New South Wales, while lending services would be administered by the Sydney Municipal Library. Outlying country areas would initially rely on the Country Circulation Department of the Public Library, and larger municipalities would be encouraged to establish libraries. The proposed scheme aimed for statewide resource sharing through a central clearinghouse, similar to the National Central Library in the UK. Service standards would be monitored by a Library Board, and a library school would be established at the Public Library, possibly affiliated with the University of Sydney. The passage also briefly mentions tensions between Drummond, the Minister for Education, and the Trustees of the Public Library, as well as criticism of the Trustees for not taking a more active role in promoting library services.

During the beginning of 1939, there was progress and support for the establishment of a Library School and the adoption of the Libraries Advisory Committee Report in New South Wales. The Cabinet agreed to the establishment of the Library School and adopted the report in principle. They aimed to have the library scheme operational by January 1940, and work began immediately on a draft Bill to be introduced in the next parliamentary session. The Libraries Advisory Committee Report was widely distributed, reaching various institutes, schools, organizations, and government departments. The Free Library Movement, which had been advocating for library services, saw the publication of the report as a signal for renewed agitation and pressure. The Trustees of the Public Library of New South Wales assured the Minister for Education of their cooperation in implementing the recommendations. Ralph Munn, an authority on library development, praised the report and expressed his approval of the provision for government subsidy, which required the opening of local libraries as free and raising funds through rates. The press coverage was favorable, with newspapers commending the wisdom of basing developments on the Public Library of New South Wales. Local interest in library services was stimulated, and some authorities wished to establish libraries immediately. However, Ifould advised caution and suggested considering regional cooperation.

Inverell, a town with a population below the recommended minimum, resolved to adopt the principles of the report but proposed an ambitious regional scheme involving neighboring shires. Ifould believed this plan was too ambitious and doubted the acceptance of other shires. Library developments were also stirring in the southern end of the state, with interest from people in the Murrumbidgee Irrigation Area. Ifould asked for propaganda efforts to come from the Free Library Movement rather than official sources. Eric Spooner, the Minister for Local Government, expressed his satisfaction with councils considering free public libraries, indicating his continued involvement in the library debate. The Local Government Association raised concerns about the draft Library Bill. They objected to the proposed funding formula, the use of Unimproved Capital Value (UCV) for assessing subsidy, and the empowerment of electors to inflict rates on ratepayers through a poll on library services. Spooner aligned with the Association, suggesting that library services should fall under the responsibility of the Local Government Department rather than the Education Department. Ifould began unofficial discussions with the Under-Secretary of Spooner's Department, hoping to ease tensions and ensure smooth reception of the draft Bill.

The Local Government Association and the Free Library Movement met to resolve their differences, eventually agreeing on several aspects but disagreeing on financial provisions. Spooner expressed Parliament's likely resistance to the Bill in its recommended form, indicating that local governing bodies objected to library services being under the Education Department instead of the Local Government Department. Drummond, angered by Spooner's interference, rejected the suggestion that libraries should be the responsibility of the Local Government Department and sought legal advice on the matter. The Local Government Association and Drummond's executive met to discuss their concerns, particularly regarding finances and the poll of electors. Drummond conceded to reducing the maximum contribution of councils to fifty percent and was willing to forgo the poll if both the Association and the Free Library Movement opposed it. Overall, there were mixed reactions and ongoing negotiations surrounding the Libraries Advisory Committee Report and the draft Library Bill. The Free Library Movement and supporters welcomed the progress, while the Local Government Association raised concerns about financial provisions and control of libraries. The disagreements between the Minister for Education and the Minister for Local Government added further complexity to the situation.

In the midst of negotiations over the Library Bill, Ifould found himself in a compromising situation. While he was hesitant to give up the idea of a poll of electors, he realized that the pressure from local government could force Drummond's hand. The Local Government Association seemed satisfied with the concessions made by Drummond, but there was still the issue of Spooner's claim to administer the library scheme. Unable to reach a resolution, Drummond decided to bring the matter to the Premier and seek a decision from the Cabinet. In the midst of these discussions, Street, the Undersecretary of the Department of Local Government, proposed a compromise. He suggested looking at the Noxious Weeds Act as a precedent, which involved the joint administration of two departments. However, Ifould and Remington believed that having two departments administering the Library Act would be impractical. To find a solution, Ifould sought the assistance of Johnson, the legal officer of the Department of Local Government. Johnson, sympathetic to Ifould's viewpoint, couldn't identify sections of the Bill that pertained more to Local Government than Education. Despite their efforts, the issue remained unresolved. However, Ifould proposed another compromise, suggesting that all regulations under the Act be transmitted to the Executive Council through the Minister for Local Government. As discussions continued throughout the winter of 1939, Ifould and his colleagues faced challenges not only in finalizing the Library Bill but also in dealing with the escalating tension in Europe.

1939 Library Act

With the outbreak of war, Australia was preparing for potential hostilities. Ifould took measures to protect the library's assets, including preparing rosters of staff to guard the building and securing potential entry points. In this uncertain climate, the fate of the Library Bill remained unclear. The Free Library Movement met to discuss its future, awaiting an announcement from the government. Ifould knew that Premier Alexander Mair had reservations about the bill even before the war. Financial constraints and the need to prioritize war-related efforts further complicated the situation. Despite the challenges, Ifould and Remington lobbied discreetly to persuade the government to reconsider its decision. They engaged with newspaper editors, influential community members, and pressure groups to garner support for the library legislation. The Labor Party and the Taxpayers Association also expressed their backing. Driven by the widespread support they received, Drummond and Ifould managed to convince Cabinet to introduce the Library Bill into Parliament. However, the financial provisions of the Bill were suspended, allowing the government discretion regarding subsidies. Although disappointed, all parties involved accepted this compromise. Metcalfe, under Ifould's guidance, prepared an annotated copy of the Bill for the parliamentary debate, addressing potential objections and emphasizing the benefits of the scheme. Finally, on November 3, 1939, the Library Bill passed through the New South Wales Parliament with bipartisan support, although the financial clauses were not yet effective.

Ifould left the Public Library of New South Wales in February 1942, taking on a new role in the Department of War Organization of Industry. John Metcalfe succeeded him as Principal Librarian. The completion of the library's extensions during the war allowed the building to open to the public in June 1942. However, it wasn't until November 1943, when the Allies' position improved, that the official opening ceremony took place. During the event, Premier William McKell announced that the Library Act would be fully proclaimed and come into effect from January 1, 1944. With the Act in place and the war situation improving, free library development in New South Wales gained momentum. By mid-1945, a significant number of councils had adopted the Act, and by 1946, almost a quarter of the state's population was being served by free public libraries. After years of hard work and various setbacks, Ifould's vision of establishing a comprehensive system of free public libraries in New South Wales was finally becoming a reality. The libraries played a crucial role in post-war reconstruction and provided educational and cultural opportunities for communities across the state. Under John Metcalfe's leadership, the Public Library of New South Wales continued to expand its services and collections. Metcalfe recognized the importance of embracing new technologies and adapting to the changing needs of library users. He introduced innovative programs, such as mobile library services and bookmobiles, to reach rural and remote areas that lacked library facilities.

The Library Act of 1939 provided a legal framework for the establishment and operation of public libraries in the state. It mandated that local government authorities establish and maintain free libraries, ensuring that access to knowledge and information was available to all residents. The Act also outlined provisions for funding and governance, establishing the Public Library Fund to support library operations and development. Over the following decades, the public library system in New South Wales continued to thrive. The state government increased its commitment to library funding, recognizing the vital role that libraries played in promoting literacy, education, and community engagement. The Public Library Act was amended and updated to address evolving needs and challenges, ensuring that libraries remained relevant and accessible in the digital age. Today, the public library network in New South Wales is a vibrant and integral part of the community. Libraries offer a wide range of resources and services, including books, digital materials, educational programs, cultural events, and public computer access. They serve as community hubs, providing spaces for learning, collaboration, and social interaction. The legacy of Ifould and his colleagues' efforts in championing the Library Act of 1939 is still felt today. Their vision of equitable access to knowledge and lifelong learning continues to shape the public library landscape in New South Wales. The libraries they fought for have become invaluable institutions that empower individuals, enrich communities, and contribute to the intellectual and cultural fabric of the state.

References

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