HomeMy WebLinkAboutAgenda - 10-19-2004-7cORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: October 19, 2004
Action Agenda
Item No. '7- G.
SUBJECT: Library Services Task Force Final Report
DEPARTMENT: Library
PUBLIC HEARING: (Y/N) No
ATTACHMENT(S):
1. Task Force Final Report
2. Consultant's Report
INFORMATION CONTACT:
Dr, Evelyn Daniel, Chair, Library
Services Task Force
Barry Jacobs, Chair, BOCC
Brenda Stephens, Director, ext 2528
Hillsborough
Chapel Hill
Durham
Mebane
TELEPHONE NUMBERS:
732-8181
968-4501
688-7331
336-227-2031
PURPOSE: The Library Services Task Force has completed its charge and will present its
Final Report to the BOCC.
BACKGROUND: In .January 2004, the BOCC formally re-convened a Library Services Task
Force and charged it with reviewing its original work from November 2001 and making
recommendations on improving library services/facilities -especially as they related to the
Central Library in Hillsborough and the branch library in Carrboro - by the fall of 2004.
The Task Force conducted a total of twelve meetings extending from May through October. A
consultant, retired Director of Durham County Public Library Dale Caddis, was retained by the
Task Farce (with financial assistance provided by the BOCC, the Friends of the Orange County
Library and Friends of the Carrboro Library) in .)uly to prepare a needs assessment of Orange
County library facilities. Ms. Caddis' report was issued on September 30, 2004, and provided
material background for review and recommendations by the Task Force.
The Final Report at Attachment 1 addresses the following major areas, among other
opportunities as described:
• Construction of a new Central Library (including pros/cons on ca-location at the planned
Durham Technical Community College satellite campus Waterstone site);
• Consolidation of the Cybrary and McDougle Branch Libraries in Carrboro;
• Establishment of an Orange County Heritage Center; and
• Establishment of a Branch Library to serve the Efland -Cheeks Township.
A copy of the consultant's report is included as Attachment 2.
The Chair of the Library Services Task Force, Dr, Evelyn Daniel, will make the presentation to
the BOCC,
FINANCIAL IMPACT: At this point, County staff has not conducted a thorough analysis of the
direct or indirect casts associated with any of the recommendations by the Task Force. The
BOCC would ultimately need tc discuss and determine the overall magnitude and relative
priority of any it~ture capital project proposal alongside various funding scenarios for
development/construction and on-going operational costs. The Library currently holds
$120,000 in a NC Collection Endowment Fund grant that can be used as a capital contribution
towards a Heritage Center.
RECOMMENDATION(S): The Manager recommends that the Board receive the Final Report
as information and provide feedback and direction to the Task Force and/ar County staff as
desired.
Library Services Task Force, Reconvened 2004
Final Report & Recommendations
October 19, 2004
The Library Services Task Force was appointed in January 2004 and charged by the
BOCC
"to review the Library Services Task Force report of November 2001
and to make recommendations to improve library services/facilities in
Orange County specifically related to the expansion of the Central
library in Hillsborough and the branch library in Carrboro.
"Potential areas of study for the Task Force were: 1) pursue co-
location of a new facility for the Central Library in Hillsborough with
the Orange county campus of Durham Technical Community college
scheduled to open in Fa112006, and 2) possibly combine Carrboro
]ibrazy operation of a Cybrary and the McDougle Branch Library."
Members of the Task Force were: Barbaza Baker, DTCC; Bridget Booher, Friends of the
Orange County Public Librazy; Keith Cook, At-Large; Evelyn Daniel, Library Services
Task Force 2001; Amy Efland, Hyconeechee Board of Trustees; Mike Gering, Town of
Hillsborough; Barry Jacobs, Board of Orange County Commissioners; Jessica Kem,
Chape] Hill Public Library Board of Trustees; Senator Ellie Kinnaird, At-Lazge; Nerys
Levy, Friends of the Carrboro Librazy; Diana McDuffee, Carrboro Board of Aldermen;
Heidi Perry, Friends of the Carrboro Library; .Jeffrey Schmitt, At-Large; Brenda
Stephens, Director of Hyconeechee Library System; Lisa Stuckey, CHCCS; Kathleen
Thompson, Director of the Chapel Hill Public Librazy; James Ward, Town of Chapel
Hill.
Commissioner Baay.Jacobs convened the first meeting and reviewed the charge and
informed the group that the task force recommendations were to be completed and
submitted by October 2004.. Evelyn Daniel was elected chair..
All meetings were held at the Central Library conference room in the Whitted facility.
May I8, 2004
June 7, 2004
.Tune 28, 2004
.July 6, 2004 -Consultant with Library Director
July 12, 2004 -Consultant with LSTF members
.July 2Q 2004 -Orange County Library Staff met with the Consultant
.Iuly 26, 2004 -with Consultant
August 9, 2004 -with Consultant
August 18, 2004 -Archival Task Force, subcommittee of the LSTF
September 7, 2004 -with Consultant
September 20, 2004 -with Consultant
October 12, 2004
In .Tune 2004, the BOCC approved hiring a librazy consultant to provide
recommendations on the size needed for a library headquarters facility for Orange County
and guidelines on co-locating library facilities using professional library standazds and
community needs. Dale Gaddis, retired Director of Durham County Public Library was
engaged as the consultant. Her final report was delivered on September .30, 2004 and is
attached.
The Task Force members and consultant have thoroughly investigated the charge and
reviewed the consultant's report and recommendations. Members have worked very
diligently to provide this report in a short period of time.
Below aze the recommendations that we are making:
1) That Orange County adopt a long range library facility plan that takes into
consideration the needs of the entire county and is based on 20 year population
projections. (Long-Range Library Facility Planning, Recommendation #I, pgs 11-1.3)
2) That the Orange County Public Libray develop a comprehensive 3 - 5 year strategic
action plan that places priority on achieving a vision of countywide equitable librazy
services and resources for all citizens of Orange County. (Long-Range Library Facility
Plarn:ing, Recommendation #l, pg 1.3)
3) That a new Orange County Central Library be constructed in the vicinity of
Hillsborough, a central location for the County. The recommended size range of the
facility is between 30,000 - 65,000 square feet based on the equations provided by the
consultant using design population estimates for 2025. (Long-Rarrge Z,ibrary Facility
Plmn:ing, Recommendation #.3, pgs 13-17)
• Pursuant to our charge, the Task Force investigated the advantages and disadvantages
of a co-located facility on the DTCC site in Waterstone.
Advantages:
- The site is centrally located and would be convenient to the needs of the
total county population;
- A substantial synergy between DTCC students and county residents would
be realized;
The tax burden would be reduced through facility cost sharing and co-use
of the land;
Users of the new facility would have access to a larger, broader collection.
Public library patrons would have access to other DTCC resources;
students would have access to a significantly larger collection;
The dual collections of a combined public and community college library
would enrich the experience of students in the proposed middle college
high school program;
Disadvantaees
- There aze unresolved issues related to DTCC restrictions /expectations
about maximum square footage for a new library facility;
- Concerns have been expressed about the loss of the Orange County Public
Librazy from Central Hillsborough;
If a new central library is constructed at Waterstone, the Task Force recommends that a
library presence continue in central Hillsborough in conjunction with the proposed
Orange County Heritage Center (see recommendation 5 below).
4) That the Carrboro Library Workgroup recommendations be supported and that a
southwest regional branch library be established combining the collections, staff, and
services presently located at McDougle Middle School Carrboro Branch and the Century
Center Cybrary. This branch should be centered in the town of Cazrboro. (Long-Rattge
Libtaty Facility Platnting, Reconvnendatiott #4, pg 17)
5) That an Orange County Heritage Center be established to make accessible the local
history materials now located in the central library as well as appropriate materials from
other archival collections in the county such as from NC Room of the Orange County
Public Library, Burwell School, Cazrboro Branch Library archives, Orange County
Historical Museum, and Hillsborough Historical Society, The Orange County Public
Library currently holds $120,000 in a NC Collection Endowment fund for use as a capital
contribution toward this facility.. (Long-Rmtge Libtaty Facility Planning,
Reconnnendation #3, pg 16)
6) That the Chapel Hill Public Librazy be recognized as a significant partner in, and
primary service provider of, library services to southeastern Orange County.. (Long-
Range Libtaty Facility Planttittg, Reconnnendatia: #8, pg 19)
7) That the Orange County Public Library establish a branch library to serve the central
west area of the county centered on Cheeks Township, that will accommodate the future
population growth of this area over the next 10 - 20 years A possible synergy might be a
co-located facility with Middle School #.3 of the Orange County school system.. (Lottg-
Range Libt°my Facility Plmtnittg, Reeotnntendation #.5, pgs 17-18)
8) That the population in the northwest area of the county centered on Cedar Grove
Township be served by the Cedar Grove Branch Library in the Northern Orange County
Human Services Center.. This branch library needs to be monitored and plans be
considered to expand the library facility in the future. (L,ong-Range Libtaty Facility
Planning, Reconnnendation #6, pg IS)
9) That the rural community be evaluated for the establishment of cybraries or small
branch libraries to provide access to library resources at these more distant sites. (Lottg-
Range Library Facility Planning, Reconnnendation #7, pgs 18-19)
These recommendations were approved by the Library Services Task Force Members on
October 12, 2004.
Qrange County Public Library
Long-Range Library Facility
Planning
Through 2025
Dale Gaddis
Library Consultant
September 2004
Orange County Library Long-Range Facility Planning "'~
l
Contents
Executive Summary 3
Introduction
Findings
^ Library Systems Serving Orange County
^ Disparities and Inadequacies of Library Service
o Orange County Demographic Trends 9
^ Effect of Chapel Hill Public Library on Countywide Library Development 10
^ Access to Orange County Historic Resources 11
Recommendations 11
^ Adoption of Long-Range Library Facility Plan 11
^ Proposed Population Criteria for Facility Design
^ Strategic Planning 1.3
^ Construction of New Orange County Central Library 1.3
^ Facility Size 14
^ Location in Waterstone Development 14
^ Joint Use Library with DTCC 15
^ Orange County Heritage Center 16
^ Hillsborough Cybrary or Neighborhood Branch 16
^ Construction of New Cazrboro/Southwest Regional Library 17
^ Establishment of Branch Library to Serve Cheeks Township 17
^ Monitoring of Growth of Cedar Grove 18
^ Use of Rural Community Nodes as Outreach Sites 19
^ Recognition of Chapel Hill Public Library as Significant Partner 19
Appendices
^ A: Orange County Library Facilities -Space Planning Spreadsheet
^ B: Service and Space Needs Summary- Central Library
^ C: Proposed Orange County Central Library -Square Footage by Area
^ D: Meeting Notes Regarding Proposed Joint Use Facility with DTCC
^ E: Space Needs Summary -Heritage Center/Cybrary
^ F: Space Needs Sumrnazy - Carrboro/Southwest Regional Branch
^ G: Space Needs Summary - Efland-Cheeks Branch
Orange County Library Long-2ange Facility Planning Q
Executive Summary
In .January, 2004, the Orange County Board of Commissioners appointed a Library Services
Task Force to review the recommendations aprevious task force had submitted to the County
in 2001 regarding library services and to "subsequently make recommendations to improve
library services and facilities specifically related to the expansion ofthe Central Library in
Hillsborough and the branch library in Carrboro." Specific areas of interest were the potential
for co-location of a new central facility with the Orange County carnpus of Durham
Technical Community College (DTCC) and combining the operations of Carrboro's
McDougle Branch Library and Cybrary into one branch library facility..
The Task Force began its work in May and contracted with library consultant Dale Gaddis in
July to assist with needs assessment and development of recommendations.
It became very evident from the outset of the work of the Task Force that the
recommendations for the central library and the Carrboro facility needed to be part of a larger
vision for the county as a whole. As a result, the recommendations being presented are more
comprehensive in scope than originally requested. Details are submitted only for the areas of
priority identified in the charge from the Board of County Commissioners; however, if the
County is to be successful in addressing these areas, it is important for the County and library
administration to recognize and address the broader planning issues.
Suru»rmy ofSignificant Fiadiugs
^ The population of the county as a whole values education and is supportive of library
services, but it is confused by the current system of library governance azrd funding
responsibilities.
^ The development of library services for Orange County residents has been
fragmented at best, resulting in great disparity in the level of librazy services provided
throughout the county.
^ The facilities and resources of the Orange County Public Librazy system are
significantly below the standard required to provide effective public library services.
Library staff has been creative and resourceful in "making do" with very limited
resources..
^ The population is growing at a high rate, with significant growth in the number of
older residents azrd residents moving here from other countries. The central library
has not been enlarged in over 20 years, despite the growth in population during the
same period..
^ The residents of the county depend heavily on the Chapel Hill Public Library to
supplement the resources of the Orange County Library for their library needs. The
presence of this librazy, operated by a sepazate,jurisdiction, affects the planning of
countywide library services.
Orange County Library Long-Range Facility Planning
q
Orange County is proud of its history and rich in historic resources that are preserved
by a number of institutions in Hillsborough, including the public library. Public
access to these resources is limited, however,
Reconur:endatiorrs
1, That Orange Comity adopt a long range library facility plan as proposed in this
document, which takes into consideration the needs of the entire county and 20 year
population projections.
2. That the Orange County Public Library develop a comprehensive .3-5 year strategic
action plan, which places priority on achieving a vision of countywide library service
and continues to address the inequities in service and resources available in the
county.
That a new Orange County Central Library be constructed adjacent to or within the
Town of Hillsborough. The proposed librazy would continue to serve as headquarters
for the Hyconeechee Regional and Orange County Library systems and serve as a
reference services center for the county as a whole, as well as provide general public
library services, programs, and collections serving all ages. It is estimated that given
the current 20-year population projections and a design population of 100,000, a
65,000 square foot facility would be needed.
^ That the County pursue locating the proposed facility in the Waterstone
development
^ That the proposed library provide library services for students of Durham
Technical Community College, depending on further negotiations between the
County and DTCC
^ That an Orange County Heritage Center be established in Hillsborough's historic
district to make accessible the local history materials now located in the central
library as well as appropriate materials from other archival collections in the
county
• That, if the proposed central library is located outside of downtown Hillsborough,
the Heritage Center include neighborhood branch library services for the residents
of downtown Hillsborough, including Internet Access, a small popular collection
and children's materials for check-out, and children's programs
4. That the Orazige County Public Library combine the collections, staff; and services
presently located at McDougle Middle School and the Century Center, and establish
one branch library facility to serve the Town of Carrboro, western unincorporated
areas of the Chapel Hill Township, and the southern area of Bingham Township, It is
estimated that given the current 20-year population projections and a design
population of 40,000, a newly constructed facility of 25,000 square feet would be
needed.
Orange County Library Long-Range Facility Planning
10
That the Orange County Public Library establish a branch library to serve Cheeks
Township, its size dependent on the timing of the opening of the library and
subsequent changes in population projections for the township. It is estimated that,
given the current 20-year population projections, a newly constructed facility of
10,000 square feet would be needed. The Library should continue to investigate co-
loration in the new Efland-Cheeks Middle School in the short term if public library
user service needs and space requirements can be met with that arrangement.
6. That the population growth in the Cedar Grove Township be monitored and plans be
considered to expand the library facility in the Orange County Services Center as
indicated
7. That rural community nodes be evaluated for the establishment of cybrazies to
provide access to more distant library resources; or, alternatively, reestablish
bookmobile service with Internet access to county areas not served by an accessible
library facility.
8, That the Chapel Hill Public Library be recognized as a significant partner in the
provision of libraz'y services to the County.
^ That the allocation of County funds to the Chapel Hill Library reflect the role of
that Librazy in providing county services.
^ That a study be undertaken to determine the feasibility of,joint computer
operations of the Orange County Library System with the Chapel Hill Public
Library..
Orange Counry Library Long-Range Facility Planning '
Introduction
In .January, 2004, the Orange County Board of Commissioners appointed a Library Services
Task Force to review the recommendations aprevious task force had submitted to the County
in 2001 and to "subsequently make recommendations to improve library services and
facilities specifically related to the expansion of the Central Library in Hillsborough and the
branch library in Carrboro." Specific areas of interest were the potential for co-location of a
new central facility with the Orange County campus of Durham Technical Community
College (DTCC) and combining the operations of Carrboro's McDougle Branch Library and
Cybrary into one branch library facility.
The Task Force held its first meeting in May, and identified four areas of interest to be
investigated:
^ Co-located central library with DTCC Orange County Campus
^ Carrboro facility
^ Need for Orange County archival repository
^ Linking of all public libraries in Orange County, including the Chapel Hill Public
Library, technologically
The Library contracted with Dale Gaddis, Library Consultant, in .Tiny, 2004, to assist with the
work of the Task Force, as follows:
^ Identify critical issues that need to be addressed regarding library Facilities, needed
and desired functions to be housed in the new headquarters facility, and priorities
regarding service development throughout the county
• Determine the space requirements of a new headquarters library facility which will
adequately address community needs and priorities for library services and meet
accepted public library standards, using a 15-20 year planning time frame
^ Analyze issues raised by the possibility of combining the headquarters library with a
community college library, with recommendations regarding a joint use library
facility, and identification of potential needs for other library facilities in the county
within the same time frame.
The Task Force and Consultant reviewed the work of the previous task force. The Consultant
gathered and documented for the Task Force more recent planning and statistical information
regarding Orange County and the Library. She met with the Library Director to get her
perspective on the project and gain arr understanding of administrative and financial issues
and structures. She met with Barbara Baker from DTCC and documented the expectations of
the college regarding a joint use facility. She facilitated meetings with library staff and the
Task Force to identify critical issues that needed to be addressed regarding library facilities
and services.
It became evident from this initial research that the recommendations requested by the Board
of County Commissioners needed to be part of a larger vision for the county as a whole, As a
result, the Consultant developed, for Task Force review, facility planning criteria and
recommendations which addressed countywide development of library facilities, The Library
Director initiated a parallel process during the same time period to investigate the need for an
6
Orange County Library Long-Range Facility Planning
~a
Orange County archival repository and determine resources that would be housed in such a
repository.
Findings
The 2001 Task Force identified inequities in service in the various areas of the county and
noted that the funding level from the County was significantly below the state average. It
endorsed minimum standards for public library service and recommended policies to guide
library development. Specific recommendations included the following:
^ That the operational funding for' Orange County public libraries be increased to
the state average level of funding by 2004
^ That new library projects be initiated simultaneously in the northern and southern
parts of the county and be viewed as complementing rather than competing
^ That the Boards of the Hyconeechee Regional Library and Chapel Hil] Public
Library meet at ]east annually and explore areas of cooperation
^ That an Orange County Heritage Center be built to house historic and public
records
Since 2001, operational funding has increased but it still lags behind the state average, as
noted below. A branch library has been opened in Cedar Grove and a cybrazy in Carrboro.
Members of both the Hyconeechee and Chapel Hill Library Boazds are active members of the
current Task Force. An Archival Task Force has been formed to pursue the establishment of
the Heritage Center.
Although there has been progress, this study has found that significant inequities persist and
funding remains a challenge. Specific findings are as follows:
^ Tlee population of the county as a wlrole values education mrd is supportive of library
services, brrt is confused by the current systeur of library governance and, funding
resporsibi[ities.
This theme was reiterated a number of times in the planning meetings held with Task Force
members and library staff.
Residents of Orange County are served by three library systems: the Hyconeechee Regional
Library, the Chapel Hill Public Library, and to a minimal degree, the Central North Carolina
Regional Library, which operates the Mebane Public Library serving both Alamance and
Orange County residents ofMebane. As a result, library service planning for the county as a
whole has been fragmented, there is great disparity in the level of services provided, and the
public does not have a clear understanding of librazy governance and funding
responsibilities..
The Orange County Library system is part of the Hyconeechee Regional Librazy system,
which serves Orange, Caswell and Person Counties.. As such, residents of Orange County
have free access to the services in Caswell and Person Counties. The system receives funding
from the County, the State, and a small appropriation from the Town of Carrboro.
Orange County Library Long-Range Facility Planning
13
The jurisdiction of the Orange County Library system includes all areas of Orange County
exclusive of the Town of Chapel Hill, although services are extended free of charge to
Chapel Hill residents. The system includes a central library located in a 12,650 square foot
facility in Hillsborough, the Cedar Grove Branch Library located with other Orange County
services on Highway 86N, the Carrboro Branch Library co-located with the media center in
the McDougle Middle School, and the Carrboro Cybrary recently opened in downtown
Carrboro.
An analysis of registered borrowers of the Orange County Library system by township
residence in 2001 indicated that the highest percentage of library borrowers lived in the
Cheeks, Hillsborough, and Chapel Hill Townships, with the majority of the Chapel Hill
Township registrations representing Carrboro Library borrowers, Further analysis 'indicates
that not only do the borrower's from Cheeks and Hillsborough represent a large percentage of
the total library borrowers, but a relatively high percentage of the total population of these
townships (46% and 50% respectively).
Although the central library is housed in a facility with other Orange County government
offices, it has gained an identity as "Hillsborough's librazy," rather than "Orange County's
Library." It is the sense of the Task Force that this identity has contributed to the lack of
understanding among the public of library governance and funding responsibilities.
The progress made in the last several years to extend azrd improve services to the Town of
Carrboro has been the result of approaches fiom Can-bozo residents directly to the Board of
Commissioners. Although the resulting services are under the auspices of the Orange County
Library administration, acompetitive tension appears to have developed that could interfere
with library progress overall if the County does not assume a more comprehensive approach
to library service and facility development.
^ The developureut of library services for Orange County residents bas been fragurented
at best, resulting in great disparity in the level of library services provided tlrrougkout
the county.
^ The, facilities mid resources of the Orange County Public Library system are
significantly below the stmrdard required to provide effective public library services.
Library staff bas been creative and resourceful in "making do" witb very limited
resources.
Chart #1 compares the resources available in 2002-200.3 to Orange County residents from the
Central Library with those at the Chapel Hill Public Library and in the State as a whole.. It
demonstrates the disparity in available resources and the inadequacy of resources in relation
to state averages and professional standards. 2002-2003 is the most recent year that
comparative figures are available for North Carolina as a whole.
Orange County Library Long-Range Facility Planning /~
Chart #1: Orange County Library Resources Conrpnred to State Averages mrd Standards
2002-2003
Resources Orange County Chapel Hill NC
Central Libra Public Libra Avera elCuidelines
Estimated Population 71,225 50,540 8,323,375
(est.2002) total NC o ulation
Books per capita 1..01 2.75 1.88
Basic Standard = 2
Reader seats/1,000 88 1.8 Not Available
po ulation Prof. Standard = 3-5
Full-time equivalent 27 1,22 1
staff/2,000 population
S uare foota e/ca ita .18 .54 Standard = .65
Registered 19.8% 50% 50%
borrowers/% of
population
Circulation er ca ita 2.02 15.55 5.38
Library income per $10.12* $38..40 $18,.88
ca ita
Local Government $8.16* $3.3.03 (Town & $15..55
revenues er ca ita County)
*Includes funds to support the Carrboro and Cedar Grove Libraries
Despite a number of very positive attributes of the Orange County Library -the quality,
creativity and initiative of library staff, its programs and outreach efforts, and its local history
collection, among others -facility space, staffing levels and collection size are significantly
below average and do not come close to meeting professional standards.
Steps have been taken in the last several years to extend services beyond the central library,
including opening the Carrboro Librazy, the recent opening of the Carrboro Cybrary, and the
opening of the Cedaz Grove Library. The library administration has made a concerted effort
to find creative and collaborative ways to offer library services and utilize existing space..
These steps have helped to bring the system a bit closer to the North Carolina average both in
resources available and in per capita use, but the system still lags significantly behind the
noun. Still using the estimated population in 2002 as a basis (i.e. not adjusting for population
increase since then):
• Space per capita has risen to .31 square feet
• Books per capita has risen to 1.2
• Reader seats per capita has risen to 2.97 (the Cazrboro Branch has 120 reader seats
compared to 6.3 at the central library)
• Librazy card registration as a percentage of population has risen to 30..6% (current
year figures)
• Total library income per capita for 2004-2005 has risen to $12.02
• Local revenues (Orange County and Cazrboro) has risen to $11.04 per' capita
a The poprdation is growing at a high rate, with significant growth in tl:e nruuber of
older residents and residents proving here from other countries. Tl:e central library bas
Orange County Library Long-Range Facility Planning /~
not been enlarged in over 20 years, despite the grorvtlr is population during the sarue
period.
Orange County's current central library facility was opened in 1981; since that time the
population exclusive of the Town of Chapel Hill has grown 59% from 45,017 to 71,429 in
2000, with no expansion of the library.. Even in 1981, the facility did not meet the standard
for an adequately sized central library.
Looking forward over the next 20 years, the total population of the county is projected to
grow to approximately 170,000, with an estimated 65,400 of this population residing in the
town of Chapel Hill. This will bring the service population of the Orange County Public
Library system to more than 100,000.
Chart #Z: Population Projections. 2000-2025 (Linear Analysis)
Townshi /Munici alit 2000 2010 2020 2025
BINGHAM 6,181 7,295 8,408 9,000
CEDAR GROVE 4,930 5,812 6,694 7,150
CHAPEL HILL 79,274 93,625 107,976 115,350
Town of Carrboro 16,782 21,415 26,047 28,400
Town of Chapel Hill 46,798 54,178 61,558 65,400
Unincorporated 15,694 18,033 20,371 21,550
CHEEKS 7,064 8,186 9,307 9,900
ENO 6,092 6,913 7,734 8,150
HILLSBOROUGH 11,639 13,159 14,679 15,450
Town of Hillsborough 5,446 6,660 7,873 8,500
Unincorporated 6,193 6,500 6,806 6,950
LITTLE RIVER 3,047 3,824 4,601 5,000
TOTAL COUNTY 118,227 138,814 159,399 170,000
Source: Orange County Planning Department (2025 figures extrapolated by consultant from 2020 and 20.30 projections)
Other demographic trends of particular note for Orange County library planning include the
growth fgures by age and the growth of the Hispanic population. The population of the
county is aging, with the highest percentage growth figures occurring in the 45-59 age range
(baby boomers). This population in 2000 represented 17..6% of the total population, up from
11,9% in 1990, The,juvenile population from 5-14 also is growing faster than the overall
average, as is the population over 75.
In 2000, the Hispanic population represented 4,5% of the total population, up from less than
one percent in 1980, In 2000, 12.3% of Carrboro's population was Hispanic. The "Shaping
Orange County's Future" study projected that the Hispanic population will increase to 9% of
the total population by 2030, The Asian population likewise is growing; in 2000, it
represented 4.1 % of the total population,
a The residents ofYbe county depend keavily mr the Chapel Hill Public Library to
supplement the resources ofYlre Orange Courriy Library for their library needs. The
10
Orange County Library Long-Range Facility Planning / /
presence of this library, operated by a separate, jurisdiction, af/ects the planning of
countywide librmy services.
A contributing factor to the fragmented approach to countywide library service development
is the presence of an independent municipal library serving a significant portion of the
population, the Town of Chapel Hill. The Chapel Hill Public Library is funded by the Town
with a supplemental appropriation from Orange County and a per capita appropriation from
the State. It operates out of one 27,319 square foot facility on Estes Drive. The Town
recently passed a bond referendum to expand the library facility to 75,000 square feet.
The Chapel Hill Library offers services free of change to all residents of Orange County..
Analyses of the Chapel Hill registration and circulation records conducted in 2001 indicated
that 4.3% of registered borrowers lived outside of the Town of Chapel Hill, with the majority
of these in Carrboro and South Orange County (Ruth O'Donnell, Chapel Hill Public Library
Five Year Services Plan: 1001-2006 and Lwrg Terrn Facility Needs Through 2020, page 11).
In determining the proposed size for the expanded library facility, the Library took into
account the use coming from these residents outside of the Chapel Hill town limits. It is
important that Orange County take into account the contributions this library and the Town
of Chapel Hill are making to serve the southern area of Orange County as it proceeds with
plans for library service development in other areas of the county. The residents of Chapel
Hill could have a significant impact on the County's ability to move forward with these
plans,
^ Orange Cmurty is proud of its /tistory mtd rich iu historic resources that are preserved
by a unntber of institutions in Hillsborough, including the public library. Public access
to these resources is limited, however.
Orange County was established in 1852, and Hillsborough is presently celebrating its 250`h
anniversary. The area was the center of political activity during the Colonial and
Revolutionary War years and is the location of many historical buildings and sites, The
community has placed priority on collection and preservation of historical materials„ The
Hillsborough Historical Society, the Orange County Historical Museum, the Burwell School
historic site, the Alliance for Historic Hillsborough, and the Public Library all maintain
collections of historical materials. Public access to these materials, however, is limited. Even
in the public library, not all of the materials are cataloged urd dedicated assistance with the
collection is available only with the help of a weekly volunteer.
Recommendations
^ That Orange County adopt a fang range library, facility plan as proposed in this
docunrerrt, w/tick takes into consideration the needs of the entire county and l0-year
population projections.
Izr planning for new library facilities, it is recommended that total county access to services
be considered and that the resources of the Chapel Hill Library be taken into account. It
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Orange County Library Long-Range Facility Planning
l~
should be made clear to the residents what the overall plan is as parts of it aze implemented
and how they will be served by the plan regardless of the location of their residence. It is also
important that the facilities and resources be part of a coordinated system of services and that
the public be made aware of the connections among the libraries.
It is also recommended that, optimally, 20-year population projections be used in
determining locations and sizes of'facilities. Buildings should be built to accommodate
growth in collections and services as the population grows over the life of the building.
Moreover, it often takes 5 years or more from the time a plan is conceived until a building is
opened, thereby reducing the planned growth allowance for the completed facility.
The consultant has proposed the following facilities to serve the projected Orange County
population, with suggested design populations for each facility:
^ Central Orange County Library
o The recommended design population is 100,000. This figure was determined
by taking the 2025 projected population for the entire county and subtracting
the projected population of the Town of Chapel Hill Alternatively, if the
following facility is designed as recommended and serves as a regional
reference center, the central library design population could be reduced to
65,000.
^ Regional Branch Library Located in Carrboro
o It is proposed that this Facility be designed to serve the Town of Carrboro,
western areas of the Chapel Hill Township, and the southern area of Bingham
Township, It is also acknowledged that the branch will likely experience use
by residents of northern Chatham County. The resulting recommendation is
that the design population be 40,000. This figure was determined by taking the
2025 projected population for the Town of Carrboro and adding 25% of the
projected population of the unincorporated areas of the Chapel Hill Township,
50% of the Bingham Township and 1,600 residents of Chatham County.
^ Branch Library to Serve Cheeks Township
o The recommended design population is 10,000, the projected 2025 population
of the township.
Chapel Hill Public Library
o The Town of Chapel Hill has already approved the expansion of the current
library facility to serve a design population of 93,000. This figure was
determined by taking the projected 2025 population of the Town of Chapel
Hill and adding 32% of the projected populations of the Chapel Hill Township
outside of the town limits and of the Bingham Township (Robert H, Rohlf;
Chapel Hill Public Z,ibra~y: Reco~mnended Lib°a~7~ Building Program, p.ii),
Cedar Grove Branch Library
o Although this plan does not include a recommendation to expand the Cedar
Grove Librazy, it should be noted that lire projected 2025 population is 7,150,
The Orange County Library should continue to monitor demographic trends in
this area of the county and expand services as necessary to respond to the
growth.
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Orange County Library Long-Range Facility Planning
18
NB: These figures include overlap, in recognition that residents will likely use more than
one facility because of complementary services and ease of access to their particular
residence..
a That the Orange Corrrrty Public Library develop a comprehensive 3-5 year strategic
action plan, rvlrich places priority ou achieving a vision of cornrtywide library service
and continues to address the irregnities in service and resources available in tke
county.
This particular study and its recommendations focus on facilities, not on resources and
services. A major finding in this study (and in the 2001 study) is that facilities and the size of
staff and collections are inadequate to serve the population outside of Chapel Hill. A strategic
planning process to develop an action plan to address inadequacies in resources and to
establish service priorities over the next tluee to five years as new facilities are developed is
an essential step that should begin very soon.
o That a new Orange Corurty Central Library be constructed adjacent to or within the
Town of Hillsbororrgk. The proposed library would continue to serve as leadquarters
for the Hyconeedtee Regional and Ormrge Corraty Library systems and serve as a
reference services center, for the county, as well as provide general public Library
services, programs, mul collections serving all ages. It is estimated t/rat given the
current 20 year populatiat projections and a design population of 100,000, a 65,000
sr/uare foot facility would be needed.
^ Tlrat the Corutty parsue locating the proposed facility in the Waterstone
development
Tl:at the proposed library provide library services for students of Durham
Teclurical Conuuuuity College, depending at further negotiations between the
County and DTCC
^ That an Orange County Heritage Center be established iu Hillsborough's /iistoric
district to make accessible the local history materials now located in the central
library as well as appropriate materials from other archival collectiars iu the
county.
^ T/tat, if the proposed central library is located outside of rlowntowu Hillsborough,
t/~e Heritage Center inchrde neighborhood Grauch library services for the residents
of downtown Hillsborough: Internet access, a small popular collection and
children's materials for check-out, arrd children's programs.
There is an immediate need for a new headquarters library facility for Orange County that
also serves as the central library providing in-depth reference resources as well as general
public library services, As mentioned, the existing facility was too small when it opened 2.3
years ago. Deficiencies cited during the plarming process included, among others, lack of
shelving space (for atoo-small collection), shelving too high for children, cramped space that
interferes with work efficiency and public comfort, inadequate restroom facilities, and
structural weakness limiting usability of space. Parking is limited, inconvenient, and unsafe.
The facility is on aland-locked site with no room for expansion.
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Orange Counry Library Long-Range Facility Planning '~
Facility Size
In determining the proposed size of the facility, its proposed fimetions were taken into
account as well as the design population.. The consultant used two methods to determine the
size: aformula-based worksheet designed by Anders Dahlgren, recognized library building
consultant, and a more detailed worksheet, prepared by the consultant, which allocates space
to library functions and areas. In each case, a basic set of requirements was used that was
determined by considering the design population and North Carolina standards, including
needs and desires identified in planning sessions, addressing needs of Durham Technical
Community College students, looking at statistics for other libraries in the state, and
reviewing the building program for the Chapel Hill Public Library.. See Appendix A.
Standard guidelines for space allocation were applied to these requirements. Appendix B
summarizes space requirements using Dahlgren's worksheet. The spreadsheet in Appendix C
breaks down the space by function and provides a tool for applying alternative space and
service scenarios..
Both calculation methods used indicate that a building of approximately G5,000 square feet
would be required to serve through the year 2025, The consultant also calculated the
required size for the alternative design population of 65,000, mentioned on page 12. Using
this scenario, a facility of at least 48,000 square feet would be required.
Location in the Waterstone Development
The County Commissioners requested that the Task Force investigate the possibility of co-
locating apublic library on land being purchased for the Orange County Center of Durham
Technical Community College,
The location in Waterstone Development offers a number of advantages. The location is less
than tluee miles from the present central library facility, It is in an area targeted for
development by the Orange County Planning Department and will be accessible using public
transportation, The development plan includes single family and multi-family housing,
offices, a day care center, a continuing care retirement center, retail establishments,
restaurants, and a hotel. Users could walk and bicycle to the library from the homes and
businesses in the development, The area already is a destination point for Orange County
residents due to nearby retail establislunents. The Waterstone development will bolster that
identity, A library in such a location has the potential for heavy use.. The presence of DTCC's
Orange County Center would contribute an additional built-in user population of community
college faculty and students. Also planned is a "middle college," with a student population of
100-150 high school students, another built-in user population.
A very vocal concern expressed during planning sessions about the Waterstone site is that it
would remove the library, a significant public amenity, from its downtown Hillsborough
location contributing to Hillsborough's becoming "a douglmut community;" i.e. empty in the
center with all attractions on the perimeter, This concern is addressed with the
recommendation to co-locate a neighborhood branch library with the proposed Orange
County Heritage Center if the central library is constructed in Waterstone,
14
Orange County Library Long-Range Facility Planning ~~
Joint Use Library
Durham Technical Community College has approved the purchase of twenty acres of land in
the Waterstone Development for an Orange County Center. The County Commissioners have
proposed a,joint use library facility for that site. The consultant has identified a number of
advantages of this arrangement, but also has discovered that it may not serve well the long-
term needs of either institution nor fulfill Commissioner expectations regarding Financial
savings.
]rr addition to adding abuilt-in user population of faculty and students, the library's location
at DTCC's Orange County Center offers these advantages:
^ The County may not have to purchase a separate site for a new library
• The College could possibly contribute towards the operation of the proposed library
(although the amount would require negotiation)
^ The collection required to support the proposed curriculum of the local campus is
typically found in public library collections, so the need to duplicate resources would
be reduced
^ Students would have direct access to a larger, broader librazy collection than would
otherwise be available at the center
^ Resources purchased specifically to support the curriculum would be available to the
general public
^ Communication between faculty and public library staff could be enhanced
^ The library could potentially have access to other resources at the Center (e.g.
classroom and meeting space; student internships)
A number of significant concerns and questions regarding the co-location proposal have
surfaced, however, and would need to be addressed as plans proceed:
^ A major concern for the college is the space that might be required for the public
library facility and its impact on availability of land for future expansion of the
community college
^ Likewise, expansion acreage for the public library would be limited (even if a library
facility were to be built that is smaller than the recommended size, land for future
expansion should be available)
^ There is a possibility that perceived financial benefits and savings of the arrangement
will not be fulfilled
o A question mark exists as to whether the land on which a public library
constructed by the County can be considered part of the required County
match for the State bond funding for the college, especially considering the
suggested size of the library facility
o The College is currently using its North Durham Center as the model for
determining operational costs it would consider helping to underwrite; this
model will need to be reviewed in light of actual needs once the library
becomes operational
Students will expect resources and services not normally offered in a public library
setting so the Library will need to plan for them (e.g. class reserve collections,
bibliographic instruction classes, etc.)
The library must be sufficiently staffed to be able to serve the needs of both the
genera] population and the college population
15
Orange County Library Long-Range Faciliry Planning
ai
^ The design of the facility should take into account the different needs of the various
user populations, so that all will feel welcome
Appendix D summarizes a discussion with the Vice President of DTCC regarding some of
the above issues and specific, requirements the Library would need to fulfill in its role as a
community college library.
Orange County Heritage Center
The 2001 Librazy Task Force recommended the establishment of an Orange County Heritage
Center to consolidate and preserve historical materials and to make them readily accessible to
researchers.. This recommendation is reaffirmed in this report.
If a site is selected for a new Central Library in the downtown area, it is recommended that
the Heritage Center be housed in that library. If not, previous discussions identified the
location of Hassell and Tryon Streets as a preferred location. A building constructed there
and designed to reflect the historic character of the community would contribute to the appeal
of the downtown area. Another option is to locate the center in the current library facility,
thus reducing construction costs. If this option is chosen, environmental concerns must be
addressed and the facility renovated to be conducive to the preservation of archival materials.
One concern noted by staff is the amount of light coming into the main reading area,
resulting in deterioration of printed materials.
The Archival Task Force is in the process of inventorying materials that might be housed in
the facility, The types of materials already identified include books, periodicals, various
types of primary and secondary historic documents, maps, photographs, and organizational
records, Other possible resources include video and audio recordings, including collections
of oral history. In addition to housing the resources, the facility will require staff and
materials processing space, space for researchers, gathering spaces for symposiums and
speakers, display areas, and security including lockers for visitors' bags.
A private trust fund in the amount of approximately $120,000 is available to support the
North Cazolina Collection of the public library and could be applied to the establislunent of
this center.
Hillsborou l~ 1 Cybrary or Neighborhood Branch
It is also recommended that, if a new central library is constructed outside of the downtown
area, the Heritage Center house a small neighborhood branch library to serve residents of
downtown Hillsborough. A substantial number of the current users of the Orange County
Library live downtown and value being able to walk to the facility. In addition, it would offer
service convenience to users of the Heritage Center and the opportunity for shared staff,
program room, and equipment,
It is estimated that a facility of 8,000 to 10,000 square feet would optimally serve both of
these functions (see Appendix E); however, a final determination on size depends on
decisions still to be made regarding the materials to be housed in the Heritage Center and the
goals for future collection development. A note regarding digitization of materials: it is
16
Orange County Library Long-Range Facility Planning
as
unlikely that space requirements will be substantially reduced by the electronic formats.:
Space will still be required for the preservation of'original valuable documents and materials
not easily digitized.
^ That the Orange County Public Library cosrbir:e the collections, staff, anr/ services
presently located at McDorrg/e Middle School and the Century Center, and establish
one branch library facility to serve the Town of Carrboro, western unincorporated
areas of the Chapel H/ll Torvuskip, and flee southern area of Bierghmn Towns/yip. It is
estimated that given the current 20-year population projections, a newly constructed
,facility of 15,000 square feet world be needed
Residents of Carrboro have for many years depended on the Chapel Hill Public Library for
library service and have been seeking a more accessible public library facility. To respond to
these requests, the Orange County Public Library first opened a branch in the media center at
McDougle Middle School. More recently, with support from the Town of Carrboro, it has
added a Cybrary downtown to complement hours and services at the school.
Although the present facilities are innovative approaches to addressing critical needs for
library services, access and resources are limited.. The public library at the Middle School
operates only during the hours school is not in session. The opening of the Cybrary is an
attempt to increase access and extend hours available, but staffing, collections, and services
are very limited.
The Carrboro Library Workgroup has recently recommended that astand-alone branch
library of 6,000-8,000 square feet replace these two facilities.. As the Orange County Library
Task Force reviewed this situation with the consultant, it agreed that the need for service
extends beyond the town limits of Carrboro and determined that the design population for a
new facility should include the broader region of Southwest Orange County and discussed its
potential role as a regional branch library similar to those in Walce County..
As with the central library, the consultant developed a set of basic requirements for the
branch using the proposed design population (including 20-year projections for the broader
Southwest Orange population) and identified potential functions to be accommodated in the
facility. Appendix A itemizes these requirements and functions.. Appendix F calculates the
proposed size of the facility based on the set of requirements and functions. The resulting
optimal size for a newly constructed facility is 25,000 square feet.
Alternatives to constructing a facility of this size immediately include the following:
^ Leasing a smaller facility and moving to larger facilities as needs indicate
• Constructing a smaller facility but locating it on a site which has space for an
expanded facility
^ That the Orange County Public Library establish a branch library to serve Cheeks
Torves/:ip, its size dependent aer the tiering of the opening of the library and srrbsequeut
changes in population projections for the township. It /s estimated that, given the
current 20 year population projections, a newly constructed facility of 10,000 square
17
Orange County Library Long-Range Facility Planning
a3
,feet worr[d be needed Orange Corurty sleould corrtinrre to investigate co-location of the
branch irr the new Efland-Cheeks Middle School iu the short term if preblic library user
service needs and space requirements can be nret with drat arrangement.
Cheeks Township is expected to experience considerable growth over the next 20 years,
particulazly along I-85 in the areas of Efland and Mebane. The area is home to commuters
who work as far away as Greensboro in one direction and the Research Triangle Park in the
other. The County has targeted this area for economic and industrial development. With the
opening of new companies, residential population may exceed projections..
The 2001 Library Task Force identified the area as a site for a library branch. 50% of the
population of the Township had Orange Comity Library cards at that time and there was
considerable vocal support for a local branch. The Task Force then recommended that
services be provided in alibrary co-located with the Efland Cheeks Elementazy School, This
facility turned out not to be conducive to a co-located azrangement A new Efland Cheeks
Middle School is now planned for the area with the possibility that a,joint use facility be
considered during the design phase. This could provide an opportunity to address the service
needs of the township sooner rather than later; however, as with the Carrboro situation, it
may provide only an interim solution depending on the planning criteria used., Lessons
leazned from the co-location experience at McDougle Middle School should be applied so
that public access is not limited. The computer system should ensure that public library
patrons are part of the larger public libray system and have easy access to all resources in
the system.
As with the other facilities described above, the consultant developed a set of basic
requirements for this branch using a proposed design population based on 2025 projections
and potential functions to be accommodated in the facility. Appendix A itemizes these
requirements and functions.. Appendix G calculates the proposed size of the facility based on
the set of requirements and functions.
o That the population growtk in flee Cedar Grove Towrrskip be monitored and plans be
considered to expand the library facility in the Orange County Services Center ns
indicated
The Cedar Grove Library opened in 2004 in a facility housing other Orange County services.
It serves a very rural area of the northern county.. The facility is adequate to address current
demand; however, the population over a 20-year period is projected to grow to a level that
could warrazit service expansion during this period,
o T/tat rural conunnnity nodes be evaluated, for the establisluuent of cybraries to provide
access to urore distant library resoarces; or, alternatively, reestablish bookmobile
service with Lrterrret access to county areas not served by an accessible library facility.
The 1998 Cruidelirees for North Carolina Public Libraries recommend that 90% of the
service population be no more than a 15-minute drive from a library and that those wha lack
regular transportation to a libray be served by a bookmobile or other outreach service, The
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Orange County Library Long-Range Facility Planning (,~
Orange County Library currently operates an outreach service to preschools and retirement
facilities in the county.. Large areas, particularly in the northern county, are not served by
accessible facilities or outreach services. This study did not identify any particular areas that
required services, but the Plamiing Department has identified in its land use plan "rural
community activity nodes" which could provide a logical location for future cybraries, These
nodes are defined as "land focused on designated road intersections which serves as a nodal
crossroads for the surrounding rural community and is an appropriate location for any of the
following uses: church, fire station, small post office, school, or other similar institutional
uses and one or more commercial uses.."
o T/pat the Chapel HiU Public Library be recoguizert as a siguificartt parhrer irr the
provision of library services to the County.
^ That allocation of Connty./turds to t/re Cbapel Hill Z.ibrary reflect tke role of that
Library ire providing county services.
^ T/eat a study be undertaken to deternriue the feasibility of joint courprrter operations
of the Orange Cororty Library System rvitJ: the Cbapel Hill Public Library.
The Chapel Hill Public Library has for many years been a mainstay of library services in
Orange County and has offered services free of charge to Orange County citizens who reside
beyond the town limits. In return, Orange County has provided an annual appropriation to the
Town for the operation of the library. This appropriation currently is $250,000, In light of the
Town's plan to expand the library and its recognition in the planning that the library will
continue to serve a substantial number of residents beyond the town limits, it is important
that the County maintain and consider expanding its operational support,
The computer networking of all of the libraries in the County would improve access to all
resources and bring a greater sense among county residents that one's local library is part of a
larger whole. Ideally, the Chapel Hill Public Library would be included in this network. The
complexities and costs associated with combining the systems may not be feasible, however,
and require detailed study by an expert in the field.
19