HomeMy WebLinkAbout2011-2-09Tenative
BOARD OF SUPERVISORS
T E N T A T I V E
FEBRUARY 9, 2011
9:00 A.M. – 11:00 A.M.
ROOM 241
COUNTY OFFICE BUILDING
1. Call to Order.
2. Joint Meeting with Albemarle County Library Board
Representatives:
a. Work Session: Regional Library Study.
3. From the Board: Matters Not Listed on the Agenda.
4. Adjourn to February 25, 2011, 10:00 a.m., Room 241.
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County of Albemarle
Report on the
Jefferson-Madison
Regional Library
Prepared for the Albemarle County Board of Supervisors
Author: Roxanne W. White
12/23/2010
Report on Jefferson-Madison Regional Library Page 1 January, 2011
TABLE OF CONTENTS
Page Number
I. Study Overview……………………………………………………………………………………………………………. 2
II. Background and Timeline……………………………………………………………………………………………… 2
III. Library Authority and Organizational Structure……………………………….………………….. 3
IV. JMRL Regional Agreement………………………………………………………………………………………….. 4
V. Organizational and Funding Structure for Comparison – Seven Counties………… 9
VI. JMRL Services and Programs………………………………………….…………………………………………..12
VII. Library System Efficiency….……………………………………………………………….………………………19
VIII. JMRL Library Expenditures……………………………………………..……………….…………………………21
IX. State Aid to Libraries…………………...…………………………………………..…….…….…………………….31
X. State Library Board Standards …………………………………………………….……….…….……………34
XI. Major Study Findings………………………………………………………………………………..…….…………….41
XII. Recommendations……………………………………………………..……………………………..…….……………….46
XIII. Appendix
Report on Jefferson-Madison Regional Library Page 2 January, 2011
Report on the Jefferson-Madison Regional Library
Study Overview
Following the FY11 Budget work sessions and discussions with the JMRL Library Board, the Board of
Supervisors charged its staff to prepare a report that would help Board members better understand
the County‘s position in the regional library system, as well as determine if a regional system was more
effective and efficient than a library system implemented and maintained solely by the County. The
Board asked that the report provide the following: a n understanding of the current cost structure and
service levels, federal state and local mandates, existing contractual obligations, CIP impacts and a
comparison of peer community libraries for services and costs.
This report attempts to address these ar eas of interest by presenting detailed information on the
current regional system, both services and costs, as well as comparative information from seven other
library systems, three of which are regional similar to JMRL and four of which are single county
libraries. The comparisons cover 6 counties that are often compared to Albemarle, i.e. Roanoke,
Stafford, Spotsylvania, Fauquier, Hanover and James City County. An additional two, Chesterfield and
Henrico Counties, were added to show additional single county entities, which often are either much
larger than Albemarle or much smaller. In addition to comparative data from other localities, the report
looks at state aid requirements and how it is calculated, as well as the state Library Board‘s standards
for public libraries. Lastly, the report looks at Albemarle‘s library space needs and its impact on the
County‘s Capital Improvement Program.
Report methodology focused on collecting data from local, state and national library archives and
interviewing local library staff, as well as executive staff from comparison localities and libraries. A
Source Bibliography and an Appendix are included at the end of the report.
Background and Timeline
The first public library service, the Albemarle Library Society, was established in 1823 and was located
on Court Square in Charlottesville. The library was incorporated by an act of the Virginia General
Assembly as the Albemarle Library. In 1919, the local philanthropist, Paul Goodloe McIntire, offered the
community a library, which included land, design, building construction, furnishings and the collection of
books. Opening to the public in 1921, the McIntire, or the Charlottesville Public Library, became the
community‘s first public municipal library.
With the development of bookmobile service to Albemarle County in 1947, the name of the library was
changed to the ―Charlottesville-Albemarle Public Library‖. In 1958, six years after the death of Mr.
McIntire, the main library building and the system itself became k nown as the ―McIntire Library.‖
In 1972 with the addition of branches in Scottsville, Crozet, Gordon Avenue, Louisa and Nelson, the
Jefferson-Madison Regional Library was created following General Assembly formation of regional public
library systems. The Commonwealth provided the establishment of grants and financial incentives for
larger, more cost effective units of public library service. Greene County joined the system in 1974.
Report on Jefferson-Madison Regional Library Page 3 January, 2011
In the late 1970‘s, Albemarle County and the City purchased the former Po st Office and Federal
Building on Market Street and renovated the building extensively for regional library headquarters and
expanded services, moving the collection from the McIntire Library next door. During this same time
period, Scottsville Branch suffered a fire and their current library was opened in 1981. In 1979, Louisa
County moved into a former Girl Scout building. Crozet Branch moved into a renovated train station in
1984. Nelson County built a new branch - a memorial to the victims of Hurricane Camille - in 1988. The
Northside Branch, in Albemarle Square, was opened in 1991 as a county/city library.
In 1999, Louisa County Library moved into a new library building of 15,000 square feet, located between
Louisa and Mineral. In 2003, Greene County Library moved into a new librar y building of 8,000 square
feet in Stanardsville. In 1987, the library implemented an automated circulation system and on-line
public access catalog and, in 1995, it opened the Monticello Avenue public access computer lab for
internet access and a community information service. In 2002, the library upgraded the catalog and
circulation system.
Today, Jefferson-Madison Regional Library serves a population of 202,121 residents, with nine locations
consisting of 1 central library, 7 branch libraries and the Albemarle Historical Collection. The
Bookmobile provide services to rural Albemarle County, institutions and, at certain hours each month, in
Charlottesville and Louisa. With combined holdings of over 500,000 items, the library circulates over
1,600,000 items annually.
Library Authority and Organizational Structure
The current regional library system is organized under the Code of Virginia 42.1-37, ―Two or more
political subdivisions, (counties or cities), by action of their governing bodies, may join in establishing and
maintaining a regional free library system under the terms of a contract between such political
subdivisions; provided, that in the case of established county or city free library systems, the library
boards shall agree to such action.‖ (1970).
42.1-39 Library Board Authority
Also according to state code ―The management and control of a free public library system shall be
vested in a board of not less than five members or trustees. They shall be appointed by the governing
body, chosen from the citizens at large with reference to their fitness for such office. Code language
further states that ―If the board of the regional library……is composed of two or more members from
each county, city and town that is a part hereof, then each governing body represented on the board
may appoint a member or an employee of the governing body to the board.‖
The code includes language on the length of terms (4 years), fill ing vacancies, compensation (none) and
removal of a board member for misconduct or neglect of duty. The code give s the Board authority to
―adopt such bylaws, rules and regulations for their own guidance and for the government of the free
public library system as may be expedient. They shall have control of the expenditures of all moneys
credited to the library fund. The board shall have the right to accept donations and bequests of money,
personal property, or real estate for the establishment and maintenance of such free public library
systems or endowments for same.‖
Report on Jefferson-Madison Regional Library Page 4 January, 2011
The code further stipulates that ―The formation, creation or continued existence of boards shall in
nowise be considered or construed in any manner as mandatory upon any city or town with a manager, or
upon any county with a county manager, county executive, urban county manager or urban county
executive form of government or the Counties of Chesterfield and Shenandoah, by virtue of this
chapter.‖ (1970, c. 606; 1978, c. 6; 2002, c. 111.)
§ 42.1-41. Funds and expenses of the regional library system.
―The expenses of the regional library system shall be apportioned among the participating political
subdivisions on such basis as shall be agreed upon in the contract. The treasurer of the regional library
board shall have the custody of the funds of the regional free library system; and the treasurers or
other financial officers of the participating jurisdictions shall transfer quarterly to him all moneys
collected or appropriated for this purpose in their respective jurisdictions. Such funds shall be
expended only for the library service for which the county or city contracted and for no other purpose.
The regional library board shall furnish a detailed report of receipts and disbursements of all funds at
the regular meeting of the governing body of every participating jurisdiction after the close of the
state's fiscal year. It shall make a similar report to The Library o f Virginia. ― (1970, c. 606; 1994, c. 64.)
42.1-42. Withdrawal from regional library system.
―No county or city participating in a regional library system shall withdraw therefro m without two years'
notice to the other participating counties and cities without the consent of such other participating
political subdivisions‖.
(1970, c. 606.)
JMRL Regional Agreement
The current regional library operates under a 1991 amended agreement, the original of which was first
established in 1972 and amended in 1974 and 1982. According to the 1991 agreement Charlottesville and
Albemarle have 3 appointed board members (the 1972 agreement had 4 each for Albemarle and
Charlottesville), however when Louisa and Nelson joined, the trustees for Charlottesville and Albemarle
were reduced to 3 members. Greene, Louisa and Nelson Counties each have one trustee on the Board.
Each board member serves a 4 year term.
There are several critical areas in the current agreement: (full agreement in Appendix A)
Management and control of the Regional Library is vested in the Board
The library board shall provide library services on an equitable basis consistent with wishes of
the governing bodies of the jurisdictions
A cost allocation formula for allocating costs for regional, Charlottesville/Albemarle costs and
local costs of branch libraries
One locality will be the fiscal agent with a 2% administrative fee for accounting and disbursement
of funds, purchasing, payroll and HR functions (the City provides these functions)
Report on Jefferson-Madison Regional Library Page 5 January, 2011
Regional Administration and Technical Services
Total Cost
FY07/08 FY08/09 Average Cost Share
Albemarle 58.37%58.13%58.25%1,454,475 847,232
Charlottesville 19.36%19.47%19.42%1,454,475 282,386
Greene 8.87%8.74%8.81%1,454,475 128,067
Louisa 8.12%7.96%8.04%1,454,475 116,940
Nelson 5.28%5.70%5.49%1,454,475 79,851
Reference Services Survey Total Cost
Result Cost Share
Albemarle 34.43%432,441 148,889
Charlottesville 61.01%432,441 263,832
Greene 1.35%432,441 5,838
Louisa 1.35%432,441 5,838
Nelson 1.86%432,441 8,043
Personnel shall be on a salary scale determined by the library board (the 1972 agreement
required all library employees to be paid equal to city employees, as well as retirement insurance
and other benefits)
The library must submit a budget by January 15th (1972 agreement had submittal by 12/31 and a
joint library committee appointed by the jurisdictions met by Jan 15th and then made a
recommendation to the jurisdictions)
Termination of agreement – allocation of assets determined by a joint committee
Understanding the Current Funding Formula in the 1991 agreement
There are three major parts to the cost allocation plan:
1. Regional Costs include the costs of providing reference services, financial management, branch
coordination and the fair rental value of space required in the Central Library. These regional
costs are determined by the Library Board with each jurisdiction paying a percentage of the
regional costs equal to its percentage of the Library system‘s total circulation. The percentages
are based on the average of the previous two years. The Reference Costs are determined by
actual usage (currently a sample of usage is taken for a month two times a year ).
Report on Jefferson-Madison Regional Library Page 6 January, 2011
2. Charlottesville/Albemarle Costs include all costs of providing both the facilities and the
staff that serve the local collections at the Central Library, Gordon Avenue and Northside
Branches that serve the citizens of both jurisdictions. The cost of providing t his local
collection is determined by the Library Board and the costs are allocated between
Charlottesville and Albemarle based on their respective shares of the total circulation at
Central, Gordon and Northside Branches. The percentage for the next Fiscal Year Budget is
determined by taking the average circulation for the prior two years, i.e., the FY11
percentage of costs is projected using the average of the circulation from FY08 and FY09.
3. Local Costs are all the costs of housing the book collections in all branches of the library
other than Central, Gordon Avenue and Northside branches, as well as the personnel costs
associated with these branch operations.
Albemarle/Charlottesville Shared Costs
Total Cost
Central FY07/08 FY08/09 Average Cost Share
Albemarle 61.27%60.28%60.78%886,609 538,837
Charlottesville 38.73%39.72%39.23%886,609 347,772
Gordon Library
Albemarle 54.86%54.95%54.91%337,937 185,544
Charlottesville 45.14%45.05%45.10%337,937 152,393
Northside
Albemarle 85.66%85.35%85.51%1,025,166 876,568
Charlottesville 14.34%14.65%14.50%1,025,166 148,598
Total Albemarle Share by 1991 Agreement 2,984,572
Local Only Branch Libraries
Scottsville 159,382
Crozet 228,120
Louisa 204,934
Nelson 158,754
Greene 163,756
Report on Jefferson-Madison Regional Library Page 7 January, 2011
Bookmobile, Books-By-Mail and other extension services are contracted separately by each
jurisdiction with terms and conditions that the ―Board and the contracting jurisdiction find
mutually agreeable.‖ These are costs that are not part of the 1991 cost sharing agreement.
The Bookmobile costs are shared by the City and t he County based on bookmobile circulation.
The McIntire Historical Library and Mont-AVV are shared 50/50 by mutual agreement,
although no formal agreement is in place for those shared costs.
Percent Total Cost
Other Program Costs Share Cost Share
Bookmobile
Albemarle 72.86%88,791 64,694
Charlottesville 19.37%88,791 17,197
Louisa 7.77%88,791 6,900
McIntire Historical
Albemarle 50.00%75,474 37,737
Charlottesville 50.00%75,474 37,737
Mont-AVV
Albemarle 50.00%172,289 86,145
Charlottesville 50.00%172,289 86,145
Albemarle Costs for Other Programs 188,576
Total Albemarle Costs for Regional, Shared City/County, Local Branches and Other Programs 3,173,148$
Allocation of Circulation Costs to JMRL Localities
The 1991 Agreement‘s cost sharing formula is based on total circulation for each locality. However, in
practice the formula has been applied unequally causing Albemarle to bear a larger share of circulation
costs than the other localities. The major flaw has been how out-of-area circulation has been figured
into the calculations. Rather than discounting out-of-area circulation in the allocation formula, the
current methodology attributes all the out-of-area circulation to Albemarle County. This practice,
according to library staff, has been in place as long as anyone can remember (although the Library
Director was unaware of this flaw). At some point, there was an agreement that all out-of-area college
students, including UVA, would be credited to Charlottesville and other out-of-area use would be
credited to Albemarle. This arrangement may have seemed fair at the time, but UVA students are no
longer counted as a separate category and out-of-area circulation now accounts for 10% of the annual
circulation. Since the current policy of allocating out-of-area circulation to Albemarle clearly forces
Albemarle to pay a greater share at Central and Northside, as well as in the regional distribution of
costs, this policy must be changed, particularly when out-of-area users have grown at a rate of 51% since
FY08.
Report on Jefferson-Madison Regional Library Page 8 January, 2011
Chart 1 below show s how this impacted Albemarle‘s FY09 percentage shares.
Chart 1
Albemarle‘s actual circulation in FY09 was 861,487 or 56.23% of total circulation among all the
jurisdictions. However, when out-of-area circulation of 87,283 is added, Albemarle‘s share increases to
58.14%, while the other jurisdiction‘s shares go down. These revised percentages are then used to
calculate how future budget costs are allocated.
In Chart 2 below, the top line shows Albemarle‘s actual circulation (without out -of-area) for FY08 and
FY09. The average of these two or 56.28% is then used to calculate Albemarle‘s FY11 share of the
regional costs or $818,560. The bottom line shows the impact o f adding the out-of-area, which
increases Albemarle‘s percentage share of the FY11 costs to 58.25% or $847,275, a difference of
$28,715.
Chart 2
This same methodology is also being used to calculate Albemarle‘s share of Central, Gordon and
Northside, which increases Albemarle‘s share by $25,091, $6,674 and $11,226 respectively for a total
increased cost of $71,706. Even if this methodology seemed reasonable in the past, the fact that
Albemarle is being charged for the out-of-area users shared by Albemarle and Charlottesville libraries
is clearly not a fair method and it should be changed prior to the next budget allocation to reflect
Albemarle‘s true circulation costs.
Out-of-Area users have increased dramatically, particularly at Scottsville and Northside. There needs
to be a fair way to address this issue without making it difficult for Virginians from other counties to
access library services, particularly in the rural areas when the closest library may be in another
FY09 Albemarle Circulation and Revised with Out-of-Area
FY09 Percent of Out-of Area Revised Revised Percent
Circulation Circulation*Circulation Circulation of Circulation
Albemarle 861,487 56.23%87,283 948,770 58.14%
Charlottesville 317,749 20.74%0 317,749 19.47%
Louisa 125,528 8.19%4,297 129,825 7.96%
Nelson 89,945 5.87%3,075 93,020 5.70%
Greene 137,439 8.97%5,183 142,622 8.74%
Total 1,532,148 100.00%99,838 1,631,986 100.00%
*Albemarle includes out-of-area at Central, Northside, Gordon, Scottsville, Crozet and Bookmobile
Budget Implication of Revised Circulation on Regional Share
FY11 Region Albemarle
FY08 FY09 Avg Costs Share
Albemarle Circulation 56.33%56.23%56.28%1,454,475 818,560
Albemarle with out-of-area 58.37%58.14%58.25%1,454,475 847,275
Funding Difference $28,715
Report on Jefferson-Madison Regional Library Page 9 January, 2011
jurisdiction. This is not just a one-way problem, since JMRL residents also use out-of-area libraries
without a charge.
A 2006 study showed that there were 4,450 out -of-area users who registered at JMRL, the highest
number being from Fluvanna County. However in the same year, 4,510 JMRL residents registered at
other libraries outside the region, the highest number being Nelson County residents, who went to
Waynesboro or Amherst Counties. Results of the 2006 study can be found in Appendix B.
Organizational and Funding Structure for Comparison Seven Localities
Of the seven localities being compared throughout this report, four are separate County libraries, i.e.
Fauquier, Roanoke, Henrico and Chesterfield and three are part of a larger regional library system, i.e.
Spotsylvania and Stafford are part of the Central Rappahannock Regional Library, Hanover County is
part of Pamunkey Regional Library and James City County is part of the Williamsburg Regional Library.
Fauquier County
The Fauquier Library Board is a policy mak ing or decision making board, not an advisory board and is
composed of five members, one appointed from each magisterial district. They develop the library
budget and make recommendations to the Board of Supervisors. The County has reciprocal agreements
with the following counties/cities, which allows anyone from those jurisdictions to apply for a Fauquier
County library card: Alexandria, Arlington, Central Rappahannock Regional Library, Culpeper, Fairfax,
Handley Regional Library (Winchester, Frederick, and Clarke Counties) Loudoun, Prince William, Falls
Church and Rappahannock County. If someone who lives outside one of these jurisdictions applies for a
card, they must pay a fee. The county considers this arrangement to be beneficial, because many of
their citizens use the Northern Virginia libraries. Fauquier has one central library and three branch
libraries for a population of 64,612.
Roanoke
The Roanoke Library has an advisory only board with the County having sole authority to make policy and
budgetary decisions and to treat their library system like a county department. Roanoke County,
although they maintain their own separate library system, jointly funds the technology infrastructure
and software for a consortium that provides an on-line Inter Library System (ILS) for the County, the
City of Roanoke, Botetourt County and the City of Salem. The automated ILS system allows anyone in
those localities to reserve books on-line and then pick up and drop off at any library in the system. Each
locality pays for this service based on a cost sharing formula based on five factors: circulation, number
of items, population, FTE staff and number of branches. Roanoke County‘s share was 41% last year with
an annual cost of $95,000. The City of Roanoke proposed several years ago to set up a regional system,
but a contracted study showed no advantages to regionalization, so Roanoke County decided to maintain a
separate library system, but to work together with the other localities. Roanoke County has one
central library and 5 branch libraries for a population of 90,135.
Report on Jefferson-Madison Regional Library Page 10 January, 2011
Henrico
Henrico has a seven-member advisory board composed of five citizens appointed from each magisterial
district, the library director and a county representative. Both the library director and staff
representative are non-voting members. As with Roanoke, Fauquier and Chesterfield, the library
functions as a department of local government, not as a separate entity. The advisory board is not
involved in budget discussions.
Henrico has a reciprocal agreement with Chesterfield and Richmond where anyone in those jurisdictions
can obtain a Henrico county library card and vice versa. They also have a non-written agreement with
Pamunkey Regional Library, which allows their residents with a library card and in good standing to obtain
an annual Henrico library card. New Kent County is a big user of the Henrico Library, so Henrico
charges a $15 annual fee for each out-of-area user.
Chesterfield
Chesterfield has its own library system, which functions organizationally as a department of local
government. There is no advisory board. Library cards are issued to all Chesterfield residents without
charge upon proof of residency. Agreements with many neighboring localities make it possible for
Chesterfield citizens to use other area libraries and for neighbors to use Chesterfield libraries at no
charge. Chesterfield has an agreement with Richmond for one of their branch libraries that is heavily
used by Richmond residents. Richmond helps pay for expansion costs and for services provided to its
residents. The County is currently looking at the possibility of incorporating Amelia County into its
system due to its small size. The County of Chesterfield provides a range of administrative and
operating support to the libraries, i.e. HR, payroll, accounting, legal, purchasing, maintenance, custodial
and technology infrastructure.
Stafford/Spotsylvania
Both Stafford and Spotsylvania Counties are part of the Central Rappahannock Regional Library, which
also serves the City of Fredericksburg and Westmorland County. Central Rappahannock has a twelve
member governing board based on their most recent 2002 amended agreement. In that agreement,
board membership was increased from seven to 12 members, i.e. Stafford increased from 2 members to
4, Spotsylvania from 2–4, Westmorland from 1-2 and Fredericksburg remained at 2 members. Their
agreement allows a member of the governing body or employees of the governing body to be on the
board. The funding formula for the localities is based on circulation from the prior year. There are 8
libraries and a bookmobile with regional coordination from the Fredericksburg Library. Stafford County
has 2 branch libraries and Spotsylvania has 1.
Hanover
Hanover is part of the Pamunkey Regional Library along with the Counties of Goochland, King and Queen
and King William. The library is governed by a ten member Library Board, four trustees from Hanover,
two from Goochland, two from King and Queen and two from King William. Appr opriations are made to
the library in proportion to the population of each County, not on circulation. The agreement also
stipulates that the ―Board of Trustees shall………apportion services between the four (4) Counties in
proportion to the appropriations ma de by each County for annual operating expenses.‖
Report on Jefferson-Madison Regional Library Page 11 January, 2011
For 2012, the Deputy County Administrator indicated that they are analyzing local contributions versus
the cost of services, since the per capita costs for Hanover are high. Some localities are paying less,
but are able to pay more.
The Pamunkey Regional Library has one main regional library, a bookmobile and 9 branches. The main
library and 6 branch libraries are in Hanover.
James City County
James City County is part of the Williamsburg Regional Library (WRL), which consists of the County and
the City of Williamsburg. They have a nine – member governing board represented by five trustees from
James City County and four from Williamsburg. The Williamsburg Regional Library operates under a
contract first signed by the City of Williamsbur g and James City County in 1977 which has been
amended in 1993, 1999, 2001, and 2006. Under the contract, they agree to contribute to the mutual
costs of operating the library based on circulation by residency
As a legally established regional library, WRL provides free services to residents of its contractual
service area, Williamsburg and James City County, although the Board also extends free library service
to all residents of the Commonwealth of Virginia. The regional library has a MOU with upper York
County, negotiated with them to address the higher participation rate for their residents than City of
Williamsburg residents. WRL is not certain that York County is going to honor the MOU when it comes
up again and they are unsure how they will react or how they are going to restrict usage if York County
does pull out. In October, the Williamsburg library circulated 12,285 items to York C ounty residents
and 15,000 to Williamsburg residents.
The regional library has an agreement with the City to be the fiscal agent and the County to do payroll
and follow County policies. The library provides their own maintenance. The system has two libraries –
one in Williamsburg and one in James City County
Report on Jefferson-Madison Regional Library Page 12 January, 2011
Albemarle’s Regional Library System
Due to its greater population, Albemarle comprises the major part of the regional JMRL system with the
largest share of circulation (53%), the highest percentage of users (40%) and the largest share of
operating costs (59%). Chart 3 below summarizes the library services provided to Albemarle County
residents at Albemarle‘s 5 library sites. A complete description of Albemarle‘s five library sites, as well
as the Bookmobile, the Albemarle Historical Collection and Mont -AVV, i.e. history, programs, staffing,
etc. is provided in the Appendix C.
Chart 3
JMRL Services and Programs
The first area to look at is the effectiveness of the current regional library system, i.e. does it deliver
the services the community wants and are the collection and the programs used by its citizens and young
people and children. Effectiveness can be measured by gathering community input and by comparing and
benchmarking data.
Community Input
Albemarle County has community input on libraries in its 2006 and 2008 Customer Surveys. In the 2006
survey, 75.3% of citizens ranked libraries as a Very Important Service. In the same question on the
2008 survey, 64.2% of citizens ranked libraries as Very Important, still a sizeable part of the population
but a drop of 10%. In the 2006 survey, 93.8% of citizens were satisfied with library services; in 2008
93.7% were similarly satisfied.
The 2008 survey also asked the importance of library services to the community. Of those surveyed,
64.2% said that resources should be devoted to libraries and 58.6% said they favored using tax dollars
for libraries. The survey also reported that people living in the rural areas gave more importance
(80.6%) to libraries than urban dwellers.
Albemarle's Libraries
Central Gordon Northside Crozet Scottsville Total
Total Branch Circulation 394,610 183,127 526,961 137,746 67,318 1,309,762
Albemarle Share of Circulation 49.0%42.0%68.0%87.0%63.0%60.0%
Circulation Increase (from FY04)-3.0%11.8%16.4%48.0%19.4%11.6%
Collection Size 143,382 67,253 102,634 32,960 19,096 365,325
Percent of Collection 39.2%18.4%28.1%9.0%5.2%100.0%
Square Feet 29,000 7,394 15,500 1,728 3,940 57,562
Service Hours 68 52 55 48 48 271
Number of Visits *373,093 115,749 317,124 71,050 57,649 934,665
Staff (FTE's)28.42 6.47 15.96 4.57 3.09 58.51
Computers 47 10 14 5 8 84
meeting rooms 3 3 1 1 1 9
Albemarle Annual Cost 538,792 185,527 876,619 228,120 159,382 1,988,440
Assessed Value 3,219,700 2,596,700 N/A 615,000 847,300 7,278,700
* includes all jurisdictions
Report on Jefferson-Madison Regional Library Page 13 January, 2011
JMRL and Comparison Libraries
The following section provides data for JMRL, as well as comparative data from the other library
systems to measure how JMRL is doing compared to its peers. Peer libraries include: Fauquier, Roanoke,
Henrico, Chesterfield, Central Rappahannock Library, Pamunkey Regional Library and Williamsburg
Regional Library. The comparative data is from the Institute of Museum and Library Services, which
collects and publishes data from public libraries across the country. Their most recent data is from
FY08.
Chart 4
Circulation
Circulation is one of the most
important measures of a library‘s
effectiveness, because it measures
usage of the collection. It is also
used to allocate costs for most
jurisdictions that have a regional
library.
Chart 4 shows circulation trends
by library which reflect increasing
circulation at Northside, a 16.3%
increase from FY04 and decreasing
circulation at Central, -3% from
FY04 to FY10. Gordon Ave. has remained fairly steady at a 10 – 11% increase; Crozet has increased by
48% and Greene has increased by 34%. The percentage of circulation for the other branches has stayed
relatively flat. The sharp decline in circulation from FY03 to FY04 reflects a change in the way items
were counted and has no significant impact.
Chart 5
Chart 5 shows the trend in
circulation for the 5 JMRL
jurisdictions from FY04 through
FY10. Albemarle‘s circulation is
the highest at 853,693 units in
FY10, increasing 14.4% since
FY04 or approximately 2.4% a
year. Only two areas exceed
Albemarle‘s growth: Greene
County increased circulation by
26.8% since FY04 or 4.5% a year;
Out-of-Area circulation
increased over 50% since FY04
at an average 8.5% a year, the
fastest growing segment of
circulation. Charlottesville by contrast has increased its circulati on by only 1.1% since FY04.
Report on Jefferson-Madison Regional Library Page 14 January, 2011
Chart 6
Chart 6 shows the circulation per capita
rates for each jurisdiction with Albemarle
at the highest of 8.96 items circulated per
capita.
.
Chart 7
Another measure of the JMRL
library is the number of users
registered for each locality
which relates to circulation.
Chart 7 shows that the number
of Albemarle users has only
grown by .5% since FY04 while
Charlottesville users have
declined by - 8.5%. A large user
increase has been seen in
Greene and Louisa where both
experienced a 19% growth over
the 6-year period. The largest
increase has been in the out-of-
area users which has increased
84% since FY04 from 4,878
users to 8,976.
Four major indicators that the Commonwealth of Virginia uses to measure the effectiveness of libraries
across the state in addition to circulation are library visits, holdings (the collection of materials) and
turn-over.
Chart 8 on the next page shows comparative information on circulation per capita, as well as library
visits, holdings and turnover rate for JMRL and the seven comparative library systems.
Circulation per capita is a measure of the community's use of the library. It can be thought of as
representing the average number of items checked out in a year by each memb er of the community. A
high number on this measure indicates heavy use of the library's circulating materials. A low number may
indicate several things. For example: 1) the library's collection may not meet the community's needs or
8.96
7.80 8.00
3.70
5.60
Albemarle Charlottesville Greene Louisa Nelson
Per Capita Circulation
Report on Jefferson-Madison Regional Library Page 15 January, 2011
FY08 Comparative Data
Service Area Circulation Library Library Visits Holdings Holdings Turnover
Library Name Population Per Capita Visits Per Capita Per Capita Rate
Fauquier 64,612 7.15 278,842 4.32 232,611.00 3.60 1.99
Williamsburg Regional 72,513 17.11 635,938 8.77 343,125.00 4.73 3.62
Roanoke 90,135 12.66 834,770 9.26 399,832.00 4.44 2.85
Pamunkey Regional 137,980 9.2 665,402 4.82 321,181.00 2.33 3.95
Jefferson-Madison Regional 193,037 8.05 1,279,589 6.63 626,806.00 3.25 2.48
Central Rappahannock 276,640 26.31 2,366,266 8.55 639,681.00 2.31 11.38
Henrico 286,842 11.34 1,803,468 6.29 933,739.00 3.26 3.48
Chesterfield 292,491 13.45 1,736,740 5.94 747,941.00 2.56 5.26
Comarison Libraries Average 176,781 13.15875 1,200,127 6.82 530,614.50 3.31 4.38
Comparison Libraries Median 165,509 12.00 1,057,180 6.46 513,319.00 3.26 3.55
State Average 7.28 3.09
State Median 5.57 6.41 2.96 3.28
interest; 2) residents may be unaware of the library's resources; and/or 3) the library may have an
extensive collection of non-circulating materials.
Among the peer libraries, JMRL has the second lowest circulation per capita at 8.05 with only Fauquier
County lower at 7.15 per capita. Central Rappahannock, which includes Stafford and Spotsylvania
Counties, has the highest per capita circulation at 26.31. JMRL‘s per capita circulation is just above the
state average of 7.28 and well above the state median of 5.57.
Chart 8
Library Visits represents the average number of times during a year that each member of the
community uses the library. A high number of visits indicates heavy use. A low number of visits may
indicate several things. For example: 1) the hours the library is open do not fit the needs of the
community; 2) the library's collection and programming do not meet the interest or needs of the
community; 3) residents may be unaware of what the library has to offer; 4) the facility may be
uninviting; and/or 5) the location may be inconvenient.
Chart 8 also shows that Albemarle at 6.63 visits per capita is just slightly above the median for the
comparative counties and slightly above the state median as well.
Holdings Per Capita
Holdings per capita are one measure of the match between the size of the library‘s collection and the
community it serves. It assesses collection size, not quality. This measure should be interpreted in
connection with turnover rate and circulation per capita. Size alone is not an indicator of quality or
usefulness.
Chart 8 shows the holdings or collection of materials for each of the comparison libraries. JMRL‘s
collection has 626,806 holdings or materials at 3.25 items per capita, which reflects the median for the
comparison libraries. Only Fauquier, Williamsburg and Roanoke have higher per capita holdings than
JMRL. At 3.25, JMRL is above the state median of 2.96 per capita.
Report on Jefferson-Madison Regional Library Page 16 January, 2011
Turnover Rate
Chart 8 shows the turnover rates for the comparative counties. Turnover measures the use of the
library's circulating collection. It indicates the number of times each item would have circulated during
the year if circulation had been spread evenly throughout the collection. A library that emphasizes the
circulation of popular reading materials shoul d have a higher turnover rate than a library that
emphasizes the breadth of its collection and has an extensive non-circulating reference collection. JMRL
has a turnover rate of 2.48, which is the second lowest turnover rate for the comparative counties. The
median turnover rate for the comparative counties is 3.31 times while the state median is 2.96 or
slightly higher than JMRL‘s turnover rate.
Size of Library Collection – Chart 9
FY08 Comparative Data Print Print Subscriptions Electronic Video Audio
Service Area Materials per 1000 Subscriptions Materials Materials Electronic
Library Name Population per Capita population per 1000 per 1000 per 1000 Books
Fauquier 64,612 2.79 2.79 0.26 89.24 215.72 31,584
Williamsburg Regional 72,513 4.12 4.12 0.01 337.82 222.40 1,137
Roanoke 90,135 3.53 3.53 0.06 217.35 142.81 47,166
Pamunkey Regional 137,980 2.05 2.05 0.22 91.07 178.68 0
Jefferson-Madison Regional 193,037 2.52 2.52 0.01 52.34 93.32 8
Central Rappahannock 276,640 1.73 1.73 0.00 113.28 127.65 55,950
Henrico 286,842 2.94 2.94 0.74 137.22 105.03 17,059
Chesterfield 292,491 2.32 2.32 0.00 122.93 98.44 0
Comarison Libraries Average 176,781 2.75 2.75 0.16 145.16 148.01 19,113
Comparison Libraries Median 165,509 2.66 2.66 0.04 118.11 135.23 9,098.00
State Average
State Median
Chart 9 shows that JMRL is about average in printed materials and printed subscriptions per capita
compared to the other localities, but spends considerably less per 1000 population on video and audio
materials. From the chart, one can see that the Williamsburg Regional Library purchases a substantial
collection of mater ials with print materials at 4.12 per capita and the highest number of video and audio
materials per 1000 population. This may show that they are an effective library system in building a
large and diverse collection for their users, but that has to be l ooked at in conjunction with their
resources compared in Chart 15.
Some indicators do not necessarily measure the effectiveness of library services, but rather show
community preferences for certain types of materials. Availability of resources to purchase materials is
also a major factor. Most localities use state funding to purchase materials, but as state funding has
been reduced many localities have had to either supplement their materials budget with local funds or
reduce purchases.
JMRL is also comparatively low in the purchase of electronic books, although the chart reflects FY08
data and JMRL through a foundation grant has just purchased and implemented a downloadable book
program which will substantially increase this number. Anyone with a JMRL library card can access an
Report on Jefferson-Madison Regional Library Page 17 January, 2011
electronic book through the following website: http://swvapub.lib.overdrive.com/E099FF0F-27AE-
46D4-A0B9-D24A75FBF7A0/10/518/en/Help-QuickStartGuide.htm
Services Chart 10
FY08 Comparative Data Reference Interlibrary InterLibrary Users of Users of Users of Avg. Wkly
Service Area Transactions Loans Loans Public Computers Elec. Resources Public Hours
Library Name Population per Capita Received Provided Computers per Capita per Capita per Outlet
Fauquier 64,612 1.01 1,537 901 90,614 1.40 1.40 57
Williamsburg Regional 72,513 1.81 1,772 3,578 127,063 1.75 1.75 27
Roanoke 90,135 0.77 2,619 530 16,619 0.18 0.18 53
Pamunkey Regional 137,980 2.02 1,090 17 113,993 0.83 0.83 53
Jefferson-Madison Regional 193,037 0.47 5,492 7 147,455 0.76 0.76 43
Central Rappahannock 276,640 2.77 2,275 2,765 145,802 0.53 0.53 45
Henrico 286,842 1.65 2,762 2,514 138,642 0.48 0.48 53
Chesterfield 292,491 0.65 1,706 73 450,168 1.54 1.54 57
Comparison Libraries Average 176,781 1.39 2,407 1,298 153,795 0.93 0.93 49
Comparison Libraries Median 165,509 1.33 2,024 716 132,853 0.80 0.80 53
State Average
State Median
Chart 10 reflects services provided by regional and county libraries as measured by the Public Libraries
Survey. In reference transactions per capita, JMRL has the lowest number of transactions per capita,
significantly below both the mean and the median. The table also shows that JMRL is an importer of
material through the inter library loan process, rather than a provider of materials to other libraries.
JMRL has the highest number of loans received of any of the localities, as well as the lowest number of
library loans provided to others. Fauquier, Roanoke and Pamunkey also receive considerably more loans
than they provide. An interlibrary loan is based on a request to another library which is an autonomous
library outside their system.
On public computer users, JMRL has 147,455 users per year (FY08), but at .76 computer users per
capita JMRL is slightly below the comparative median at 0.80 users per capita. This can be a function of
the number of computers available, but also may be dependent on the geo graphy of the locality and
citizens access to a library or it may relate to the populations technology savy. Availability of services
and computers may also be dependent on the number of service hours at each of the outlets. The
average weekly public service hours per outlet for JMRL is 43, which is below the median for the other
libraries at 53 hours per week.
Report on Jefferson-Madison Regional Library Page 18 January, 2011
Services (continued)
Chart 11
FY08 Comparative Data Total Total Program Childrens Children's Materials
Service Area Library Programs Program Attandance Attendance Percent of Total
Library Name Population Programs Per 1000 pop Attendance Per Capita Per Capita Circulation
Fauquier 64,612 1,165 18.03 21,875 0.34 0.28 47.2%
Williamsburg Regional 72,513 1,910 26.34 141,606 1.95 1.42 29.4%
Roanoke 90,135 1,334 14.80 24,461 0.27 0.22 20.6%
Pamunkey Regional 137,980 1,625 11.78 37,034 0.27 0.20 N/A
Jefferson-Madison Regional 193,037 1,626 8.42 32,233 0.17 0.16 46.2%
Central Rappahannock 276,640 3,256 11.77 58,908 0.21 0.14 20.2%
Henrico 286,842 3,842 13.39 53,075 0.19 0.16 32.3%
Chesterfield 292,491 1,520 5.20 30,452 0.10 0.08 38.6%
Comparison Libraries Average 176,781 2,035 13.72 49,956 0.44 0.33 33.5%
Comparison Libraries Median 165,509 1,626 12.59 34,634 0.24 0.18 32.3%
State Average
State Median
An important service offered by public libraries are special programs, so measuring the number of
programs and their attendance is one of the measures of an effective library system. For total
programs offered, JMRL is at the median of 1,626 programs for the comparative counties, although
when measured by 1000 population, JMRL is the second lowest in programs per population except for
Chesterfield County and substantially below both the average and the median for the comparative
counties. On progr am attendance, which is possibly a more relevant measure for meeting customer
expectations than simply the number of programs offered, JMRL is just slightly below the median
number with 32,233 programs per year. JMRL is at .17 per capita in program attendance, which is the
second lowest with only Chesterfield being lower at .10 and slightly below the median of .24 per capita
program for the comparison group.
In measuring children‘s attendance, JMRL is tied for 2nd lowest along with Henrico, with Chesterfield
again being the lowest in children‘s attendance. JMRL is at .16 just below the median for the other
libraries at .18 per capita. A lower rate of attendance may be due to accessibility in a large geographic
area, as well as the program content or relevance to the children. One interesting note is that JMRL has
the second highest percent of circulation for children‘s material at 46.2% significantly higher than the
median 32.3% or the average 33.5% for the comparison libraries. Almost half of JMRL‘s circulating
materials are for children.
Report on Jefferson-Madison Regional Library Page 19 January, 2011
Organizational Characteristics
The final area of library effectiveness relates to the structures and support in place in each of the
library systems.
Chart 12
FY08 Comparative Data Number of Number of Avg. Number Number of Number of Number of Staff
Service Area Internet Terminals Terminals Central Branch Libraries per Total Per 1000
Library Name Population Terminals per 1000 per Outlet Libraries Libraries 1000 pop Staff Population
Fauquier 64,612 52 0.80 17 1 2 0.05 34 0.53
Williamsburg Regional 72,513 124 1.71 62 0 2 0.03 89 1.23
Roanoke 90,135 101 1.12 17 1 5 0.07 47 0.52
Pamunkey Regional 137,980 100 0.72 10 0 10 0.07 87 0.63
Jefferson-Madison Regional 193,037 88 0.46 11 1 7 0.04 87 0.45
Central Rappahannock 276,640 130 0.47 19 1 6 0.03 142 0.51
Henrico 286,842 173 0.60 45 0 10 0.03 222 0.77
Chesterfield 292,491 445 1.52 17 1 9 0.03 140 0.48
Comparison Libraries Average 176,781 152 0.93 25 6 0.04 106 0.64
Comparison Libraries Median 165,509 113 0.76 17 7 0.04 88 0.52
State Average
State Median
Chart 12 shows the organizational assets that are in place to provide services to the library community.
In providing access to computers, JMRL at .46 computers per capita ranks significantly below the
comparative libraries in both the average .93 and median .76. JMRL also has the second lowest number
of terminals per stationary outlet at 11 per outlet, while the comparative median is 17 per outlet.
Williamsburg Regional Library has the highest number of terminals at 62 per outlet, but only has two
library sites, one in Williamsburg and one in James City County. By contra st the lowest is Pamunkey
Regional with an average of 10 per site, but with 10 branch libraries across their region. Henrico with 45
per site also has 10 sites.
In total staff per 1000 population, JMRL has the lowest number of all the library systems and is below
both the average and the median.
Library System Efficiency
This next section attempts to show some measure of library efficiency by looking at how a library uses
its resources to provide the most service to the most people. JMRL revenue and expenditure trends are
shown here, as well as how JMRL compares with its use of resources with the other comparative library
systems. The last part of this section looks at the different ways the comparative communities have
reduced their budgets in the face of reduced revenues.
Report on Jefferson-Madison Regional Library Page 20 January, 2011
Resources
Chart 13 shows the revenue trend from FY00 to FY11 for the JMRL library. Local revenues have
increased approximately $2.2 million (70%) while state revenues have decreased by approximately
$175,000, a 25% reduction over the ten year period. State revenues have gone from a high of
$844,000 in FY01 to $543,000 in FY11. Federal revenues have remained level and reflect only the e-
grant which comes directly to JMRL and has been used by the Library Board solely for technology.
Chart 13
JMRL uses State Aid dollars to
purchase materials, which is how
most other Virginia libraries use
their state dollars. The FY11
collections budget is $610,734,
most of which is state aid, but also
includes approximately $50,000
from anticipated fines and a
foundation grant of $20,000
which is being used to purchase
downloadable books.
Other local revenues have
remained fairly steady at
$250,000 a year and consist of grants, fines and contributions from the Friends of the Library. The
majority of fines collected (average $134,000 a year) are put into the equipment fund, which pays for
service contracts on computer equipment, data lines, and new and replacement equipment for all the
regional services, as well as the branch libraries. The equipment fund expenditures run about $500,000
per year, using fines and year -end-balances. Fines were recently increased from $10 to $25 cents a day
with anticipated new revenues of approximately $50,000 which will also go to the equipment fund.
Resources – Comparing Other Libraries
Chart 14
Public libraries receive funding from three primary
sources: Local spending comprises the majority of
library funding. State grants-in-aid now represent
about 10 percent of the funding to public libraries.
Recently, State support has also included separate
funding earmarked for technology initiatives.
Federal funds are less than one percent of library
funding. While most local funds are derived from
tax revenues (80 percent), they may also incl ude
endowments, gifts, donations, and bequests.
Report on Jefferson-Madison Regional Library Page 21 January, 2011
Chart 15 below looks at revenues from the comparative localities. In local revenue per capita, JMRL is
the second lowest at $26.65 per capita just above Chesterfield, but below both the average and the
median for our comparison localities. In state revenues, the high of $729,432 goes to the Central
Rappahannock Library with the next highest of $658,032 going to JMRL. Lowest on the state revenues
is Fauquier County at $190,824, although Roanoke is only slightly higher at $195,239. The huge
difference in state revenues is due to the state formula discussed later in this report that provides per
capita and square mile supplements to libraries that regionalize. Therefore , Central Rappahannock
receives $2.64 per capita although their service area is similar in size to those of Henrico and
Chesterfield, which receive substantially less state revenue per capita at $0.84 and $0.82. In state
revenues per capita, JMRL is at $3.41, the third highest below Williamsburg and Pamunkey Regional
Library. In total revenues per capita, JMRL is the second lowest again just above Chesterfield, but
below both the comparison average of $43.99 and the median of $35.50.
Chart 15
FY08 Comparative Data Local State Total
Service Area Local Revenue State Revenue Federal Other Revenue
Library Name Population Revenue Per Capita Revenue per Capita Revenue Revenue per Capita
Fauquier 64,612 1,991,218 30.82 190,824.00 2.95 0.00 61,899 34.73
Williamsburg Regional 72,513 5,324,640 73.43 370,510 5.11 0.00 819,074 89.84
Roanoke 90,135 2,911,529 32.30 195,239.00 2.17 0.00 162,696 36.27
Pamunkey Regional 137,980 3,811,563 27.62 489,607 3.55 1,250.00 178,435 32.47
Jefferson-Madison Regional 193,037 5,144,029 26.65 658,032.00 3.41 53,083.00 219,205 31.47
Central Rappahannock 276,640 11,188,409 40.44 729,432 2.64 0.00 318,728 44.23
Henrico 286,842 15,396,880 53.68 240,839.00 0.84 0.00 0 54.52
Chesterfield 292,491 7,334,681 25.08 239,945 0.82 21,254.00 698,443 28.36
Comparison Libraries Average 176,781 6,637,869 38.75 389,304 2.69 9,448 307,310 43.99
Comparison Libraries Median 165,509 5,234,335 31.56 305,675 2.80 0 198,820 35.50
State Average
State Median
JMRL Library Expenditures
JMRL FY11 expenditures, in Chart 16, are broken out by programs and branches. The JMRL total budget
of $5.4 million reflects only local operating revenues that go into the budget. Other expenditures for
books and equipment using state funds and other local monies are not reflected in the budget below.
Report on Jefferson-Madison Regional Library Page 22 January, 2011
Chart 16
Chart 17
JMRL Budget by Categories
The JMRL operating budget has
increased over the past 7 years by
43% or 6.2% a year from $3.1 million in
FY04 to $4.4 million in FY11. Chart 17
show s the basic functional areas of
personnel, fringe and operations over
this same time period. As in many
service organizations, the personnel
costs, both salaries and benefits, have
increased the most. salaries have
increased by 33% or 4.7% a year,
benefits by 75% or 10.7% a year.
However, since FY09, salaries and
benefits have increased by only 0.6%
Although salary and benefits are administered by the City of Charlottesville, the library has its own
salary scale with salaries comparable to other library or ganizations. Their latest salary survey was
conducted by Carolyn Fowler in 2005. The large increase in benefits is partly due to the higher benefit
package associated with the City‘s plan, mostly the health plan for retirees. Although JMRL staff will
continue on the City‘s health insurance, the Library Board, in an effort to save money, proposed to the
City to offer their own Defined Contribution Retirement Plan without full medical benefits after
Report on Jefferson-Madison Regional Library Page 23 January, 2011
retirement. This request is awaiting approval by City Council and should be implemented for new
employees on July 1, 2011.
Chart 17 also shows that JMRL operating costs have been fairly level over the last 7 years going from
$853,000 thousand to approximately $1.1 million, a 27% increase or approximately 3.9% a year.
Branch Library Expenditure Growth Chart 18
One explanation for the
increased growth in costs has
been the expansion of costs
for the branch libraries.
Chart 18 shows the increase in
dollars spent on the branch
libraries since FY05. The two
highest dollar increases for
branches have been in Crozet
(65.4% increase due to an
additional librarian in FY07)
and Greene (60.3% with the
opening of the new library in
FY08). The next largest dollar
increase is at Gordon with
34% and Northside with a
32% increase. These have been the branches with the greatest jumps in circulation, Crozet 48%,
Greene, 34%, Scottsville 19% and Northside 16%.
Expenditures by Locality
Local expenditure trends mirror increased circulation trends. Albemarle‘s expe nditures increased 41.4%
since FY05 or an annual increase of almost 6%. These increases reflect any/all baseline increases, as well
as the following expanded services:
FY2005 – Funds to enhance services including Crozet Branch support, Northside Circulati on
support, and a Northside Reference Specialist.
FY2006 – New Central Library/Outreach Manager, part-time technical support specialist,
part-time assistant to help with outreach to nursing homes and assisted living facilities.
FY2007 – Half-year funding of an additional librarian at Crozet.
FY2008 – Expansion of Northside Library hours, additional half-time lab monitor, half-time
technical support position, additional hours for human resources benefits specialist, and full -
year funding of additional Crozet librarian added in FY2007.
Report on Jefferson-Madison Regional Library Page 24 January, 2011
Chart 19
During that same time
period, Albemarle had a
large overall circulation
increase of 14.4%
compared to the City‘s
1.1%, Louisa‘s 6.4% and
Nelson at 1.9%. Only
Greene surpassed
Albemarle‘s circulation at
26.8%, although it is
difficult to see it on this
chart as it is blocked by
both Nelson and Louisa
County lines.
Chart 20
Per Capita Spending
Expenditures per capita reflect the
community's financial support for the
library in relation to its size. Operating
expenditures (personnel, collections, and
general operations) from other sources
such as state aid and grants are also
included. Capital expenditures that vary
dramatically from year to year are not
included.
One of the most important comparison
measures is the per capita cost of running
a library. Looking at the JMRL FY11
budget, Albemarle‘s total share of the
budget is comprised of various shares of
the budget based on circulation, i.e.
58.25% of the regional administration costs based on Albemar le‘s percentage of total circulation among
the 5 localities, 85.51% of Northside based on circulation, etc.
FY11 Budget Albemarle Share
Administration costs 864,799 58.25%503,745
Technical 589,676 58.25%343,486
Reference 432,441 34.43%148,889
Main 886,609 60.77%538,792
Gordon 337,937 54.90%185,527
Northside 1,025,166 85.51%876,619
Crozet 228,120 100.00%228,120
Scottsville 159,382 100.00%159,382
McIntire 75,474 50.00%37,737
Monticello AVV 172,289 50.00%86,145
Bookmobile 88,791 72.86%64,694
4,860,684 65.28%3,173,138
Albemarle FY09 population 95,247
Cost per capita $33.31
Report on Jefferson-Madison Regional Library Page 25 January, 2011
Chart 21
Adding up the various shares of branches
and programs, Albemarle‘s overall share
of the regional budget is $3,173,138 or
65.28% of the budget. When Albemarle‘s
total contribution to the library is divided
by the FY09 estimated population,
Albemarle‘s per capita cost is $33.31.
Chart 21 shows that Albemarle and Charlottesville are equal on the per capita costs, although the
smaller jurisdictions with only one small library per jurisdiction have significantly lower per capita cost .
The other jurisdictions also do not share in the costs of Mont -AVV, McIntire and the Bookmobile.
Note: Albemarle is paying $226,365 in annual leasing costs at Northside (85.51 % of the total rent of
$264,724). Since most localities, including the other localities in our system, do not pay rent for their
facilities, Albemarle pays a higher cost per capita than the other jurisdictions in this region , as well as
across the state. If rent of $264,724 is deducted from Albemarle‘s total costs, Albemarle‘s per capita
cost is reduced to $30.9.
JMRL Per User Cost
Per Capita FY 09 FY10
Locality Cost Population Cost
Albemarle 33.31$ 95,247 3,173,138
Charlottesville 33.62$ 40,317 1,355,385
Greene 15.95$ 18,112 288,909
Louisa 9.97$ 32,926 328,172
Nelson 15.70$ 15,519 243,648
Report on Jefferson-Madison Regional Library Page 26 January, 2011
Chart 22
Although Albemarle‘s cost is based on its
share of circulation, seen in the prior
section, another efficiency measure is
the per user cost. Albemarle also has the
highest number of users in the JMRL
system. Again if you deduct the high
cost of rent at Northside, Albemarle‘s
per user cost comes down to $65.82 per
user comparable to Charlottesville‘s per
user cost.
Expenditure Comparisons with Other Localities
Chart 23 shows how the comparison localities use their resources to build their collection and the
choices they make between printed vs. electronic materials. The dollars allocated to one area over
another may be the Library Board‘s decision, as well as a lack of resources. Although Williamsburg has
the highest per capita funding of any of the comparison localities, their per capita spending for
electronic materials is extremely small compared to other s. Each library system decides independently
what is important to purchase for their particular users or they may decide to spend more on programs
or computer access.
In Chart 23, JMRL spends considerably less on their collection than other localities, i.e. at $3.70 per
capita, JMRL is the lowest compared to Henr ico at $6.57 per capita. Although JMRL is just at the
median in electronic materials per 1000 population, JMRL uses a higher percentage of their collection
budget than most of the other counties with the exception of Henrico and Central Rappahannock.
Chart
23
FY08 Comparative Data Total Total Collection Expen.Print Materials Electronic Electronic Electronic
Service Area Collection Collection as % of Total Expenditures Materials Materials as % of Total
Library Name Population Expenditures per Capita Expenditures per Capita Expenditures per 1000 Collection Exp
Fauquier 64,612 276,333 $4.28 12.9%$2.42 43,116 $667.31 8.50%
Williamsburg Regional 72,513 560,127 $7.72 8.7%$5.51 4,558 $62.86 0.80%
Roanoke 90,135 487,720 $5.57 15.7%$3.77 32,446 $359.97 6.50%
Pamunkey Regional 137,980 749,843 $5.43 16.7%$3.63 55,479 $402.08 7.40%
Jefferson-Madison Regional 193,037 714,037 $3.70 11.9%$2.60 75,567 $391.46 10.60%
Central Rappahannock 276,640 1,194,002 $4.32 10.0%$3.01 276,746 $1,000.38 23.20%
Henrico 286,842 1,883,336 $6.57 13.5%$5.17 223,200 $778.13 11.90%
Chesterfield 292,491 1,166,354 $3.99 14.2%$2.49 99,289 $339.46 8.50%
Comparison Libraries Average 176,781 878,969 $5.20 13.0%$3.58 101,300 $500.21 9.68%
Comparison Libraries Median 165,509 731,940 $4.88 13.2%$3.32 65,523 $396.77 8.50%
State Average
State Median
Per User FY10 FY10
Locality Cost Cost Users
Albemarle 70.88$ 3,173,138 44,770
Charlottesville 64.28$ 1,355,385 21,085
Greene 32.46$ 288,909 8,901
Louisa 25.36$ 328,172 12,943
Nelson 41.86$ 243,648 5,820
Report on Jefferson-Madison Regional Library Page 27 January, 2011
Staff and Operating Expenses
Chart 24
FY08 Comparative Data Salaries and Employee Total Total Staff Exp Other Total Total Oper
Service Area Waes Benefits Staff as % of Total Operating Operating Expenditures
Library Name Population Expenditures ExpendituresExpenditures Expenditures Expenditures Expenditures per Capita
Fauquier 64,612 1,255,121 398,347 1,653,468 76.9%219,415 2,149,216 33.26
Williamsburg Regional 72,513 3,546,834 1,046,392 4,593,226 71.6%1,264,406 6,417,759 88.50
Roanoke 90,135 1,558,287 487,720 2,046,007 64.0%649,833 3,197,910 35.48
Pamunkey Regional 137,980 2,129,128 459,136 2,588,264 57.6%1,154,875 4,492,982 32.56
Jefferson-Madison Regional 193,037 2,789,301 1,164,266 3,953,567 65.9%1,336,688 6,004,292 31.10
Central Rappahannock 276,640 6,365,410 1,945,009 8,310,419 69.6%2,430,266 11,934,687 43.14
Henrico 286,842 7,339,699 2,493,544 9,833,243 70.6%2,219,079 13,935,658 48.58
Chesterfield 292,491 4,744,604 1,206,271 5,950,875 72.5%1,096,231 8,213,460 28.08
Comparison Libraries Average 176,781 3,716,048 1,150,086 4,866,134 68.6%1,296,349 7,043,246 42.59
Comparison Libraries Median 165,509 3,168,068 1,105,329 4,273,397 70.1%1,209,641 6,211,026 34.37
State Average
State Median
Chart 24 compares staff and operating expenditures for the comparison counties. Looking at total staff
expenditures as a % of total expenditures, JMRL at 65.9% is below the median of 70.1% and the third
lowest after Pamunkey and Roanoke County. When looking at the total operating expenditures per
capita, JMRL is again well below the average and below the median as well. JMRL at $31.10 has the
lowest expenditures per capita than all the other localities except Chesterfield.
Chart 24 compares the FY08 per capita spending by the comparison libraries, but it does not measure
the per capita spending by the 8 comparison counties. Chart 25 below compares the dollars that each
of the localities allocated to their respective libraries in F Y11. Th is per capita expenditure does not
include any state funds or other funds, only local tax supported dollars, so the per capita numbers will
not be comparable with the FY08 per capita data seen in the previous chart.
Chart 25
Comparing Albemarle County with the other localities,
Albemarle‘s per capita costs at $33.31 are slightly above
the county median at $32.73.
Although the per capita costs represent the actual dollars
budgeted for libraries by each locality, one factor that
must be taken into consideration when comparing level of
effort is that some localities provide considerable in-kind
services to their libraries that are not accounted for in
these numbers. For example, Roanoke County provides
several services not in the budget, i.e. payroll and HR,
purchasing, accounting, legal services, custodial and
maintenance. Stafford pays for maintenance, custodial and
FY11 Per
Locality Capita Cost
Chesterfield 23.24
Hanover 27.60
Fauquier 28.39
Roanoke 32.04
Spotsylvania 32.73
Albemarle 33.31
Stafford 36.43
Henrico 52.73
James City County 64.41
Average 36.77
Median 32.73
Report on Jefferson-Madison Regional Library Page 28 January, 2011
grounds maintenance for their branch libraries, expenditures that are not accounted for in the per
capita library costs. Chesterfield pays for a wide number of services, i.e., payroll, accounting,
purchasing, maintenance, custodial, legal and technology infrastructure. In the single jurisdictions, the
libraries are treated like a county department and receive a number of county services without a
recorded cost.
To compare the true costs per capita, you would have to know the extent and the cost of those services
to get a comparable per capita cost. Therefore, to determine the true cost of a single entity library
system, Albemarle would need to determine the costs of those in-kind services and then decide if the
County was willing to absorb these costs that now are reflected in the regional library budget.
Chart 26
6
Budget Reductions by Comparison
Libraries/Localities
Chart 26 shows local government funding
for the comparison county libraries over
the past 3 years. The chart clearly
shows that most of the budgets were
either severely cut or level funded for
FY09, FY10 and FY11.
Locality Budget Reduction Strategies
Each locality inter viewed made significant cuts to their library systems, as well as to other community
agencies as a result of declining tax dollars. In discussions with the administrators and/or librarians
from the comparable county libraries, many different strategies and solutions were implemented to
reduce the library allocation, some of which resulted in drastic reductions in dollars and services. The
following section summarizes how these localities responded to reduced funding:
Fauquier County
The library was told in the last part of FY09 to cut back, so closed on Sundays and limited their
outreach, supplies, and other soft costs. This decision based on staff recommendation was
approved and presented by Library Board. The community was unhappy, but adjusted by using the
libraries more on Fridays and Saturdays.
For FY11, the County said library had to make an additional 10% cut. Library couldn‘t cut across
the board without losing full-time positions, so Library Board put forward two options: one to
close a small branch library and the other to make deep cuts in hours, staff, etc. Board of
Supervisors chose to cut the small branch, but because of neighborhood objections the Board
Report on Jefferson-Madison Regional Library Page 29 January, 2011
imposed only a 4-5% reduction, told them to keep the small branch open but make cuts across the
board.
The library cut Friday hours (only open 9-1:00), did not fill the children‘s position and other part-
time positions and reduced some part-time positions to 19 hours without health insurance..
From FY08 to FY11, the allocation to the library went from $2.1 million to $1.9 million, a reduction
of $183,000 or 8.6%.
Hanover County (Pamunkey Regional Library)
County administrator met with the library ahead of budget and gave them a reduction goal: the
library board determined the reductions. The library now closes on certain days concentrated
around holidays, not reduction in hours each week.
The closures impacted only Hanover County, not the other localities in the Pamunkey Regional
Library system.
For 2012, the library staff is analyzing contributions versus the cost of services since the per
capita costs for Stafford are higher than the other jurisdictions. Some localities are paying less,
but are able to pay more.
May switch from leasing to purchasing while debt costs are low. They are now leasing some
facilities. Even if they purchase building, they may lease it back to the librar y system.
In FY09, Hanover‘s contribution to the library system increased from $2.493 million to $2.722
million, an increase of $0.229 thousand (9%). The budget has been level funded at $2.7 million
for FY10 and the FY11.
Hanover is projecting to fund $2.756 million in FY12, level funding again.
James City County
The Williamsburg Regional Library was very proactive in FY10 and FY11 and self imposed a 5% cut
in their budget request. They r earranged staff, but did not reduce hours.
Biggest impact was from reduced state funding, which cut back on their book and material
purchases.
Friends of the Library contributed $50,000 to their budget for materials.
New and expanded library facilities are no longer in the CIP, as they were several years ago.
From FY09 to FY11 the library budget was reduced by $0.390 thousand, 8.6% decrease
Roanoke County
To reduce the budget last year, the library cut back on books, technology and part-time staff.
They also closed Sunday afternoons and are now operating 6 days instead of 7 days a week.
The library also withdrew from the Botetourt agreement in which Roanoke contributed funds to
the Botetour t library. More Botetourt citizens were using the Roanoke library than Roanoke
citizens were using the Botetourt libraries.
New county library being built to be used as distribution center (old one is now used that way).
Also building another branch library – citizens came to board to ask for more libraries.
County provides several services not in the budget, i.e. payroll and HR, purchasing, accounting,
legal services and a custodial and maintenance budget.
Report on Jefferson-Madison Regional Library Page 30 January, 2011
The Roanoke budget went from $2.664 in FY08 to $2.979 in FY11, an increase of $315,000, a 12%
increase over the 3-year period. However, administrative costs went down, while automation costs
rose.
Spotsylvania (Central Rappanhannock Regional Library)
Quote from their revised by-laws - ― in the event any participating locality chooses to
appropriate funds at a level lower than requested, the Board shall have the right to reduce or
freeze service levels, other than by imposing a book limit, within such jurisdiction proportionately
in accordance with the funding reduction. The governing body of such jurisdiction shall be
afforded the opportunity to make evaluation and indicate the particular areas of service it wishes
reduced, modified or frozen and such decisions by the governing body concerning service shall be
implemented by the Board.‖
Stafford County
Stafford County reports a great deal of friction around the library budget cuts.
Stafford began dialogue with community agencies, including the library, ahead of the FY09
budget cycle. All agencies told to look at their own operations and find efficiencies and
reductions, although library was slow to implement changes.
In FY11, the library proposed solutions, which included reducing a different day at each of the
branch libraries, so there was always a branch open on the day another library was closed.
Stafford is opening a new branch library. The county maintains the building and the grounds and
also provides the custodial work, interior painting, etc.
County administration now has budget discussions with the library, as well as the other
jurisdictions in the library system, starting in Oct and November. The library now submits their
budget much earlier in the process, so everyone knows what the library is asking for before
budget sessions begin.
Stafford‘s contribution to the library in FY08 was $4.666 million and $4.585 million in FY11, a
reduction of $81,000 thousand over the three fiscal years. However, the FY11 budget reflects
additional opening costs for the new Stafford branch, so funding for existing services actually
went down by 6% in FY11.
Henrico
The library is treated as a County department.
County manager set a target for the library budget with no reduction in service to the public.
Library reduced operations by eliminating half of their printing and postage costs by using e-mail
correspondence, revisited vendor agreements for better pricing and cut back on their material
purchases.
Reduced 10 vacant positions and rearranged staff to fit new responsibilities.
Upcoming budget will ask for another 2.5% cut in operations, not personnel. The County Manager
will make the decisions on personnel i.e., to fill or maint ain more vacant positions on a case by case
basis.
Henrico has level funded the library at $15.6 million level for the past three fiscal years.
Report on Jefferson-Madison Regional Library Page 31 January, 2011
Chesterfield
The county allocation to the library system is down $1.6 million with 10 reduced positions. The
Board did restore $200,000 back to library for materials on a one-time basis.
All libraries are now closed on Thursdays, except the main library which opens late on that day.
The eliminated positions were Library Associates – they eliminated by classification, rather than
seniority. Library Associates were not certified librarians.
There was more public reaction to the lack of funding for the materials than for closing for one
day.
The County expects to level fund the library next year.
From discussions with local administers and library dir ectors, it is clear that these libraries have made
significant reductions in operations and some in services to the public despite 1991 State Library Board
regulations that stipulate that ―Local operating expenditures from taxation or endowment for any
library, or library system, shall not fall below that of the previous year‖ (full language for this section on
page 30). This state policy seems to have had no impact on the other counties ability to reduce their
library allocations.
State Aid to Libraries
The General Assembly first appropriated funds ($50,000) to the Library of Virginia in 1942 to primarily
develop new libraries, but they also included provisions to aid existing libraries, particularly regional
libraries. In 1936, although funding for state aid was not allocated, the General Assembly enacted the
first comprehensive general library law and declared, "It the policy of the Commonwealth, as a part of
its provision for public education, to promote the establishment and development of public library
service throughout its various political subdivisions." This very important language remains in the Code of
Virginia §42.1-46.
In the original state-aid formula, city libraries were eligible for grants up to $5,000 while county and
regional libraries were eligible for grants up to $15,000. The state -aid program took its current form
after changes to the formula and library laws in 1970.
The State aid formula established by Section 42.1-48 of the Code of Virginia has three goals:
improve library services to the public,
bolster maintenance and development of standards, and
encourage economy through the formation of regional library budgets
State aid represents approximately 10 percent of total librar y funding across the state and funds may
be used for books and other library materials, salaries, equipment, supplies, and contractual services.
State aid may not be used for construction or capital expenditures. Currently, the majority of State aid
is used to purchase books and materials.
Chart 28 shows how state aid is used throughout the state. JMRL uses 100% of its state aid to purchase
materials for its collection.
Report on Jefferson-Madison Regional Library Page 32 January, 2011
State aid requirements are set up to encourage local effort through the following provisions:
Chart 28
1. Local expenditures must be equal to or greater than the amount expended the prior year.*
2. Local operating expenditures
must be at least 50 percent of
the Statewide median. (FY09
median statewide library
expenditures were $1,058,533
x 50% = $529,267; JMRL was
$5.3 million.
3. Two thirds of funding must
come from taxation or
endowment. (JMRL in FY10 was
85%)
4. The State aid requirements
mandate that public libraries
must employ a certified
librarian as director. (JMRL –
yes)
The State Library requires ‖ Local
operating expenditures from taxation or endowment for any library, or library system, shall not
fall below that of the previous year. In cases where the budgets of all the departments of local
government are reduced below those of the previous year, the library‘s state grant-in-aid would
be reduced. The State Library may require that the amount of such reduction in the library ‘s
total expenditures be subtracted from the library‘s eligibility and that the state grant be
reduced accordingly. If the library‘s budget is reduced and other agencies‘ budgets are not, then
the library would receive no state grant-in-aid and would be ineligible for one until local
expenditures shall have again reached or exceeded the local effort at the time of the last
previous grant‖.
―The library would be ineligible for any federal funds if local funds are reduced below that of the
previous year.‖
http://www.lva.virginia.gov/lib-edu/LDND/state-aid/
State Aid Formula
The current state aid formula is based on three components:
1. The local expenditures grant pays libraries 40 cents for every local dollar spent on operating
expenses, exclusive of State and federal aid. The grant to any city or county shall not exceed
$250,000. For regional libraries, the cap is applied to each participating locality.
2. Population - a per capita based on the population of the area served and the number of
participating counties or cities: Thirty cents per capita for the first 600,000 persons to a
library or system servicing one city or county and an additional ten cents per capita for the
first 600,000 persons for each additional city or county served
Report on Jefferson-Madison Regional Library Page 33 January, 2011
3. Square miles served; a grant of ten dollars per square mil e of area served to every library or
library system, and an additional grant of twenty dollars per square mile of area served to
every library system serving more than one city or county
How Does the State Aid Formula Work for JMRL?
The state aid formula is based on three components, which favor regional libraries because of factor 2)
the additional 0.10 cents per capita for the additional jurisdictions and factor 3) the $20.00 per square
mile for a regional system. In calculating JMRL‘s state aid for FY11, the three components entitled
JMRL to a total of $1,030,697, although the 55% funding cap imposed by the 2010 legislature brought
the actual funding down to $572,564.
If Albemarle were operating as a single County library, state aid funding would be reduced due to the
formula that favors regionalization. Using the same formula calculations, the FY11 estimate for
Albemarle would be $328,645, a difference of $702,052 in eligibility for state funds. With the 55%
funding cap, Albemarle would receive $180,755 compared to $572,564 for its regional system or a
funding difference of $391,809. Full calculations for the regional and single county options are included
in the Appendix D.
While the local expenditure cap was increased in 1990 from $150,000 to $250,000, it has not been
adjusted for inflation since. The square mileage and per capita grants have not changed since 1970. Full
funding occurs when the General Assembly allocates sufficient funds to permit each system to claim all
monies due from the combination of local effort (40% or cap of $250,000), per capita, and square miles
served.
Chart 29
Chart 29 to the left shows the gap between fund
eligibility and actual funding from 1992 to 2002.
FY2001 was the only year that full funding was
achieved.
Since 2002 the gap has widened significantly. In
FY11, actual state funding was only 55% of
eligibility and the percentage for the FY12
budget is currently projected to be 54.6% or
lower. Estimates show that the gap between full
funding (code eligibility) and actual state funding
between FY2000 and FY2008 has cost local
libraries $32.3 million in lost revenues. In FY11,
libraries were eligible under the state formula to $26.3 million, but actual funding was only $16.3 million,
a $9.9 million dollar gap which is not expected to narrow.
Report on Jefferson-Madison Regional Library Page 34 January, 2011
Chart 30
State Library Board Standards
To insure that Virginia libraries are up to a minimum standard in order to receive state aid, the State
Library Board has developed a set of standards that are used to measure every aspect or function of a
local library‘s programs and resources. There are 11 major categories of standards upon which a Virginia
library is judged with multiple criteria under each category: Governance and Ad ministration, Funding and
Administration, Public Relations, Resources, which includes Staff Level, Staff Development and
Volunteers, Collections, Facilities, Technology, Services, which includes access and services, Information
Services, Programs, Services to Targeted Groups.
In order to receive state-aid, a library or a library system must provide the minimum standards at level
A. JMRL meets the minimum standards set at Level A and most standards set at Level AA. Their five
year plan includes many goals with the objective of reaching level AA in all categories.
With the number of standards, it is not possible within the confines of this study to show where JMRL
is on all them. More detailed information on the Standards can be found in the Appendix.
The following Chart 31 does shows how JMRL meets some of the major ones at the Level A, minimum
level standard or Level AA, strong level on all qualities .
Report on Jefferson-Madison Regional Library Page 35 January, 2011
Chart 31
Although state data lags behind by several years, the relative numbers still provide a sense of where
JMRL resides on the Level A or Level AA scale. From the chart, JMRL is below the Level A minimum
level standard on a number of the financial indicators shown in pink above, but at level A or above on
other local funds and state aid. JMRL is at Level A or slightly above in FTE‘s per capita, professional
staff per capita, items per capita and undup licated service hours. JMRL meets the Level II Standard on
two items, public workstations per population and per capita program attend ance.
JMRL Library Space/Capital Needs
State Standards also apply to per capita square footage minimum requirements for public library
facilities in Virginia. Level A or the minimum standard is .6 square feet per capita, while the Level II or
recommended level is .7 square feet per capita. Chart 32
State Standards for Facilities JMRL A AA AAA
population up to 25,000 .6 sq with .8 desired .9 sf 1.0 sf
population up to 25,001 - 100,000 .6 sf .8 sf 1.0 sf
population 100,101 - 500,000 .6 sf .7 sf 1.0 sf
STANDARDS FOR VIRGINIA PUBLIC LIBRARIES - Based on FY06 data
MEASURE OR STANDARD JMRL Level A Level AA Level AAA
Local Public Funds 77%88%
Other local funds 5%4%
state aid 12%7%
Federal funds 1%2%
Other grants 5%6%
Operating Exp per capita 0.28$ 0.32$
Local Operating exp per capita 0.26$ 0.30$
% expenditure for staff 63%66%
% Expenditure for Collections 13%14%
% Other 24%20%
FTE's per capita 0.4 0.3 0.5 0.6
Professional staff per 25,000 pop 3.5 2.5 4.5 6.5
% of budget allocated to staff development 0.56%1.00%2.00%
Items per capita in collection for 100,000 to 750,000 pop 2.6 2.0 3 4
Percent of op budget to purchase collection materials 13%.15 - .20
1 public workstation per population number 1900 3000 2000 1000
Unduplicated service hours 43 40 with 3 68 (20 are 76 (7days/wk;
consecutive evenings and 4 evenings
evening hrs weekends
Percent of population registered for library card 50%25%40%60%
Average wait time (mnutes) for computer workstations 30 20 10
Program attendance per capita 0.2 0.15 0.2 no waiting lists
Below Minimum Standard Level A Minimum Standard Level AA Strong Standard
Report on Jefferson-Madison Regional Library Page 36 January, 2011
Currently, JMRL has 91,955 square feet of library space with a 2009 service population of 202,121.
This translates to .46 square feet per capita, which is less than the minimum state requirement of .6 sq.
ft.
Chart 33 below shows the State Standards Level A minimum square footage of .6 sq. ft. per capita,
which would require JMRL to add 29,278 sq. ft. of library space to meet the space needs for its service
area. Using the commonly accepted standard of .7 sq. ft. per capita or the Level AA State Standard
(used in both prior planning studies), JMRL would need 49,490 additional square feet.
Chart 33
Albemarle Library Space Needs
Albemarle County, assuming that it uses 50% of Central Library space and 50% at Gordon Avenue
Library, has a total of 39,427sq. feet of space in its libraries, i.e. Central, Gordon, Northside, Crozet
and Scottsville. With a 2009 population of 95,247, Albemarle has a current deficit of 17,711 sq. ft. of
space using the Level A minimum state requirement. Using the State Standard, Level AA, which is the
recommended standard used in prior studies, the County has a deficit of 27,236 square feet of library
space. See Chart 34 below.
Chart 34
Current Albemarle Square Feet Current Space Requirements
Central (50%)14,500 Level A Minium per capita Sq.ft.0.6
Gordon (50%)3,697 Minimum Square Feet 57,148
Northside 15,572 Deficit 17,711
Crozet 1,728
Scottsville 3,940
Total 39,437 Level AA Recommened Standard 0.7
Albemarle 2009 Population 95,247 Desired Square Feet 66,673
Current Sq.Ft Per Capita 0.41 Deficit 27,236
Current JMRL Library Square Feet Current Space Requirements
Central 29,000 Level A Minium per capita Sq.ft.0.6
Gordon 7,394 Minimum Square Feet 121,273
Northside 15,572 Deficit 29,278
Crozet 1,728
Scottsville 3,940
Greene 15,000 Level AA Recommended Standard 0.7
Louisa 15,000 Desired Square Feet 141,485
Nelson 4,361 Deficit 49,490
Total 91,995
JMRL 2009 Population 202,121
Current Sq. Ft. Per Capita 0.46
Report on Jefferson-Madison Regional Library Page 37 January, 2011
To address Albemarle‘s lack of adequate facility space, there are two important library studies that
were undertaken for Albemarle, which form the background or rationale for the proposed library
facilities in the county‘s long-range Capital Needs Assessment. The first study, the 1999 Building
Assessment R eport, was completed by library staff and city and county planning staff. This study was
important because it looked not only at current library space, but it identified current and future library
facilities that would serve specific neighborhoods and rural areas in the comp plan.
The 1999 study used the library planning standard or target of a minimum of .7 square feet per capita
and a minimum of 4500 square feet for any branch library. The study also assumed a Level III minimum
collection requirement of 4 items per capita.
The 1999 study concluded that, to bring Albemarle up to full capacity (square footage at .7 and a
collection of .4 items per capita), library services should be expanded in the Route 29 corridor with
either one large facility or 2 small facilities. It also recommended that a new facility be built in Crozet
to replace the current train station and that another new branch was needed to address the population
growth south of the City, i.e. Mill Creek, Lakeside and Lake Reynovia. The study also recommended a
small expansion to Scottsville to bring it up to the minimum space requirement for a branch library of
4500 sq. feet.
Following this study, in 2001 Train and Partners prepared a Facility Planning Study that again looked at
the square footage needs and concluded that the County‘s population had outpaced the library‘s physical
facilities and there was a need to upgrade and increase the square footage of the branch libraries.
The Train study recommended the following in this order:
1. Build a 15,000 square foot library in Crozet
2. Build an additional Northern Facility of 25,000 square feet near Airport Road that would include
5,000 square feet for regional operations and the bookmobile (lease on current Northside would
be retained for 5 years)
3. Renovate the Central Library (with the City)
4. Build a 15,000 square foot Southside Library near Mill Creek
5. Replace current Northside lease with a new 20,000 square foot branch facility near Agnor-Hurt
on Berkmar Drive area.
6. Moderate expansion of Scottsville to come up to minimum square footage of 7,500 sq ft, an
additional 3,560 square feet.
The County‘s previous CIP‘s basically followed these recommendations, although for the Northern 29
library, the County determined that it was more cost effective to build one main branch at 40,000‘,
rather than two smaller libraries at 25,000‘ and 20,000‘. The Crozet Library is now 23,000 sq. ft., not
15,000 and Scottsville is 4540 sq. ft. not the 7500 recommended in the study. Due to the current fiscal
crisis, all library projects, except Crozet Library, are no longer in the CIP but have been pushed into
the out years until the County undertakes a new Capital Needs Assessment.
Chart35 below shows the impact of both the Crozet Library and the proposed Northern Library on the
square footage requirements. With the Crozet Library in place, the County‘s square foot per capita
Report on Jefferson-Madison Regional Library Page 38 January, 2011
would increase to 0.51; with a new Northern Librar y, the County‘s per capita sq. ft. would be at the
recommended level of 0.72
Chart 35
Chart 36 below shows the impact on square footage if the County were to withdraw from the JMRL
system and lose the space at Central and Gordon Avenue Libraries in the City. Current space without
Central and Gordon would be at .22 sq. ft. per capita , half of what Albemarle has now. Even with the new
Crozet Library and the Northern Library, in 2020 the County would still be below the .6 sq. ft. minimum
at 0.57. Only by building a Southern Urban Branch with 15,000 square feet would the County be above
the minimum and at the recommended level with 0.69 sq. ft. in 2020. Without building a Southern Urban
Library, the sq. ft. per capita would be down to 0.52 by 2030.
Chart 36
Proposed Library Facilities
Albemarle County Space Current With new With new With Expanded
Space Crozet Library Northern Library Scottsville
2010 2020 2020 2030
Central (50%)14,500 14,500 14,500 14,500
Gordon (50%)3,697 3,697 3,697 3,697
Northside 15,600 15,600 0 0
Northern Library 0 40,000 40,000
Crozet 1,900 23,000 23,000 23,000
Southern Urban
Scottsville 3,900 3,900 3,900 4,540
Total Square Feet 39,597 60,697 85,097 85,737
Minimum Sq. ft. @.6 0.42 0.51 0.72 0.66
Proposed Library Facilities
Albemarle County Space Current With new With new With New Without
Without City Facilities Space Crozet Library Northern Library Southern Urban Southern Urban
2010 2020 2020 2020 2030
Central (50%)0 0 0 0
Gordon (50%)0 0 0 0
Northside 15,600 15,600 0 0 0
Northern Library 0 40,000 40,000 40,000
Crozet 1,900 23,000 23,000 23,000 23,000
Southern Urban 15,000 0
Scottsville 3,900 3,900 3,900 3,900 3,900
Total Square Feet 21,400 42,500 66,900 81,900 66,900
Minimum Sq. ft. @.6 0.22 0.36 0.57 0.69 0.52
Report on Jefferson-Madison Regional Library Page 39 January, 2011
Proposed Library Capital Projects
The following section describes the library capital projects that, with the exception of Crozet, have
been moved into the out year Capital Needs Assessment, FY16 – FY20.
Chart 37
Crozet Library - FY12-13
The proposed Crozet Library will be a 23,000 square foot LEED certified building that will serve as an
anchor for a revitalized downtown , an identified need from the Crozet master planning process. It will
be an expanded 2-story building with library function on the 18,000 square foot upper floor and 4,743‘
on the bottom floor to accommodate a yet-to-be-determined county and community use. This first floor
space will serve as future library expansion space. The Library (Friends of the Library) will fund the
book expenses and ½ of the furniture and fixtures. The County has spent $1.15 million to acquire parcels
and design services to date.
Northern Albemarle Library FY16 – FY20
The long range plan had proposed a 40,000‘ facility with 30,000 sq ft and 10,000 sq ft for system
operations and the bookmobile. This library will replace the current Northside branch and will be the
main library for northern Albemarle, as well as the regional headquarters. The new library will house
61,161 new books for its collection.
The Northside lease expires in 2014. For a projected cost of $13 million, annual debt service would be
approximately $1.3 million. The current rent for Northside is $264,724 per year, so the net additional
cost to build the new facility would be $1,043,726 per year, not taking into consideration rent increases
over that same 20-year period. Construction costs for these improvements will be shared with the City
based on circulation.
Central Library Renovations FY16 – FY20
The long-range plan had proposed to renovate the Central Library facility to be more adaptable to
technology needs with better access to books and computers. However, renovation to the Central
Library cannot begin until the new Northside facility is completed, since Technical Services,
Administration and Bookmobile services would need to move to Northside in order to start work on
Central. Renovation costs for these improvements will again be shared with the City based on
circulation.
Capital Improvement Library Projects
Crozet Northern Central Southern Scottsville Total
Library Albemarle Renovation Urban Renovation
Proposed Fiscal Year FY12/13 FY16-FY20 FY16-FY20 FY16-FY20 FY16-FY20
Additional Square Feet 23,000 40,000 0 15,000 600 78,600
Capital costs 9,027,762 13,084,497 7,443,868 10,181,271 2,245,294 41,982,692
New Collection (books)80,000 61,160 0 46,150 4,200 191,510
Annual Debt Service 902,775 1,308,450 744,390 1,018,125 224,530 4,198,270
Report on Jefferson-Madison Regional Library Page 40 January, 2011
Southern Urban Area Library FY16 – FY20
The long-range plan had proposed to build a 15,000 ‗ branch library near Mill Creek to serve Urban
Neighborhoods 4 and 5 and ½ of rural area 4. Both the 1999 and 2001 library space studies identified
this growing area of the County as being underserved by library services. The new library will have a
collection of 46,150 books. The Southern library branch could be built on county-owned property near
the Monticello Fire Station.
Scottsville - FY16 – FY20
The Scottsville library currently has 3940 sq. ft. of space, which is below the state minimum standard of
4500‘ for a branch library. This planned expansion of 600‘ will bring the library up to 4540‘. The current
library space will also be renovated and the library collection will be expanded by 4,200 new books.
Report on Jefferson-Madison Regional Library Page 41 January, 2011
Major Study Findings
One of the major objectives of this study was to provide broad background information, so Board
members would have a better understanding of the library and t he services provided to its residents. A
second objective was a better understanding of the costs of providing library services and how JMRL
compared with other similar libraries around the state. The third was to provide some understanding of
the state mandates and standards and how the state dollars are allocated. Another objective was to
provide an understanding of the impact of future library space needs on the County‘s CIP. The final
objective was to determine if a different structure or type of library system might be more effective
and efficient and whether that would mean pulling out of the regional system and setting up an
Albemarle County library system
Contractual Obligations
Albemarle operates under a 1991 Agreement that allocates costs to each regional partner based
on circulation. Of the peer regional libraries, two allocate by circulation and one by population.
Cost allocation under the Agreement is based on each locality‘s circulation, although Albemarle is
bearing a greater percentage of costs due to the current practice of allocating all out-of-area
circulation to Albemarle‘s share.
The Agreement does not speak to levels of service or costs contracted by each locality except
for vague language, ―the Library Board shall provide and regulate library services to its
residents..... consistent with the wishes of the governing bodies of those jurisdictions.‖
Under the agreement, Albemarle must give 2 years notice if it wants to withdraw. A joint
committee is appointed by all the jurisdictions to decide on the distribution or allocation of
buildings, books, furnishing and equipment.
The assessed value of Central Library is $3.2 million and Gordon is $2.2 million for the building
only (land reverts to Perry Foundation). The appointed committee would also decide on the
allocation of these property assets.
The Agreement does not speak to out-of-area circulation, which is an increasing segment of the
region‘s circulation.
Level of service
JMRL provides an efficient and effective library system overall when compared to other
localities despite having one of the lowest per capita funding levels and the lowest number of
staff per capita.
In major performance measures of library visits, collection size, print materials, computer usage ,
and number of libraries, JMRL has been able to maintain a comparable level with its peer
localities with less resources.
Report on Jefferson-Madison Regional Library Page 42 January, 2011
JMRL falls significantly below the median of peer localities in video and audio materials,
reference transactions, weekly hours, library programs and program attendance, number of
computer terminals and staffing.
Albemarle has increasingly the highest circulation per capita in our region, but not among its peer
localities, i.e. Albemarle 8.96 to 12 median for other localities. However, Albemarle is still above
the state average and median, 7.28 and 5.57 respectively.
Fiscal Measures
In resource capacity, JMRL falls below the median of its peer localities in local revenue and total
revenue per capita, but above the median in per capita State and Federal revenues.
On the expenditure side, JMRL is below the median of its peer localities in the money it spends
on the material collection, staff expenditures relative to total expenditures and total operating
expenditures.
JMRL falls below the minimum state standards in local public funds, operating expenditures per
capita, local operating expenditures per capita, federal and other grant funds, percent
expenditures on staff and percent expenditures on collection.
The JMRL budget has increased on average 6.2% a year since FY04 with benefits and salaries
increasing 11% and 5% a year respectively. The operational budget has seen modest increases at
4% a year.
The Library has taken action to reduce the benefit costs, which have increased by only .6% since
FY09.
Mandates and Receipt of State Assistance
JMRL meets all the state requirements for state aid.
The State Library Board requirement that local library funding must be equal or greater each
year has had no impact on the localities that have r educed library funding over the past three
years.
State assistance favors a regional approach. JMRL currently receives the largest grant in the
state. Albemarle would receive less dollars per capita if it was a county library system.
JMRL meets the minimum state standards or Level A in programmatic areas, but falls below the
state standards in level of public funding, total and local operating expenses per capita and
percent operating expenditures for staff and collection purchases.
Report on Jefferson-Madison Regional Library Page 43 January, 2011
Comparison of our model with other peer communities
There are four different models among the peer groups: a regional approach similar to JMRL with
costs based on circulation; a single county library which is operated much like a department of
local government; a single county or jurisdiction approach with shared circulation, i.e. Roanoke
County; a regional system where the locality pays directly for the maintenance and upkeep costs
for its own buildings, i.e. custodial, painting, general maintenance, etc.
Some regional library boards have BOS or executive staff as members.
All peer libraries have substantially reduced their library budgets over the past three years using
different approaches. Some were given a reduction target and some self-imposed reductions to
address revenue shortfalls. Some made across the board reductions and some reduc ed services
within a specific jurisdiction depending on that locality‘s budget allocation.
Although peer localities significantly reduced their library budgets, state funding was not
reduced or withheld.
Most peer localities work with library staff and board members on budget issues prior to the
actual budget discussion.
Impact of Library Capital Projects
Albemarle currently has 0.41 square feet of library space per capita, which is under the
recommended standard of 0.7 sq. ft. per capita, as well as the state minimum of 0.6 sq. ft. per
capita. To attain these standards, the County would need to add 17,711 sq. ft or 27,236 sq. ft.
respectively.
There are four library capital projects in the prior long-range Capital Needs Assessment:
Northern Albemarle, Central Renovation, Southern Urban and Scottsville for total capital costs
of $38.1 million.
With the addition of Crozet Library, the County will have 0.51 sq. ft. of space per ca pita: with a
new Northern Albemarle Library, Albemarle would attain the recommended standard of 0.72 sq.
ft. per capita.
Crozet Library and a New Northern Library will provide an additional 63,000 sq. ft of library
space at a cost of $22.1 million in capital costs and annual debt service of approximately $2.21
million.
Options for Albemarle
Does this information show that the County could provide better services on its own at a lower cost than
a regional library? No, the data does not show that. Some regional libraries provide many more services
per capita than JMRL, but at a much higher cost per capita. Per capita costs for the county only
libraries in this study do not show that they can provide better services at a lower cost than the
Report on Jefferson-Madison Regional Library Page 44 January, 2011
regional libraries. Even in the county systems with a lower per capita cost, i.e., Chesterfield, Roanoke
and Fauquier, there are a number of off-budget operating costs incurred by the localities that are not
included in the comparative numbers. In order to make a true comparison, those costs would have to be
part of the analysis.
Advantages of a County library system:
County would have control over library programs and services and the mix of library hours and
programs that fit their budget limitations. This assum es that the County maintains the Level A
minimum standards for Virginia libraries.
There is no requirement to have a Library Board, so Albemarle could operate a library system like
a county department.
The County could use current county systems, i.e., HR, payroll, purchasing, custodial, maintenance
and technology infrastructure, although there would still be a cost to the County.
Disadvantages of a County library system:
The County would receive less state funding as shown in the state funding scenarios. However,
the importance of this will depend on the future of state library funding, which has been on a
downward trend.
The County, as a single entity library, would not have access to the larger collection of materials,
i.e., books, audio, video and electronic books, that are now afforded to Albemarle citizens by the
regional library. Albemarle‘s current collection, assuming 50% of Central and 50% of Gordon and
the other branch libraries, is approximately 251,000 items or half of the regional collection.
Albemarle would have significant start-up costs to implement an independent library system, i.e.
delivery system, record keeping, on-line technology system, as well as additional volumes for the
County‘s collection. There could also be significant buy-out costs for employees currently on the
City‘s retirement system, as well as costs associated with moving employees to the County‘s
health insurance.
Albemarle County does not have the needed library space for its residents without Central and
Gordon Avenue Libraries. With 95,000 citizens, Albemarle is about 18,000 square feet shy of
meeting the .6 minimum sq. ft. requirements for libraries. Without Central and Gordon, Albemarle
would be almost 36,000 sq ft short of the minimum or about .2 sq. ft. per capita. Currently there
is no library space for Albemarle County residents who live east or south of the City or Ivy area
residents except at Central and Gordon Avenue branches.
Albemarle County would lose 18,000 square feet of library space at Central and Gordon that has
already been paid for in exchange for incurring additional debt at a time when capital funds are
limited. Building the Northern Albemarle Library could cost $14.9 million with $1.0 million in
annual debt service. Even if $2.7 million in land and building assets from Central and Gordon
libraries could be used to offset the capital costs, the additional debt service would be $820,
Report on Jefferson-Madison Regional Library Page 45 January, 2011
000 a year. More importantly, even if additional library space is built on 29 North, it will not be
easily accessible to County residents who live east or south of the city.
Unknowns of a County library system
Should the County decide to pull out of the regional library agreement, the ―distribution or allocation of
buildings, books, furnishings and equipment shall be negotiated by a joint committee appointed by all the
participating jurisdictions. However, any library books or other media, permanently assigned to any particular local
collection at the time that negotiation for dissolution begins, shall remain in the jurisdiction responsible for that
local collection for its use or disposal.‖
Dependent on the decisions of a joint committee, there are many unknowns and unanswered questions:
How would the County‘s assets be divided? The County and City jointly own Central Library
(assessed value $3.2 million), but how would the furniture, equipment, collection, computers, etc.
be divided?
No deed of record to the County has been found for the Gordon Avenue Library (building value,
$2.2 million) and the land reverts back to the Perry Foundation if not used as a library or a park.
If ownership is unclear, would Albemarle receive half the assets of Gordon Avenue upon
dissolution?
If the County had its own system of branch libraries, how would County residents be restricted
from using Central Library when it is the closest branch to where they live? How will County
residents continue to use the Central or Gordon Library during the hours they work downtown or
near the University?
If heavy County usage continues at Central and Gordon Libraries, would JMRL charge the County
for out-of-area users based on circulation, as Chesterfield does with Richmond? If such an
agreement was in place, would Albemarle‘s costs for Central and Gordon be similar to what they
are now? Or w ould JMRL consider County residents out-of-area users and charge them a fee?
Would some County residents (eastern, southern and Ivy) be charged a fee to use a library in the
City, while other County residents had free access to a library?
Estimating the true cost of setting up a separate library system is uncertain at this point without
more detailed information about start up costs, economies of scale and service levels, as well as a
better understanding of Albemarle‘s peer counties off-budget expenditures that support their
library operations.
Report on Jefferson-Madison Regional Library Page 46 January, 2011
Recommendations
Organizational
The Regional Library Agreement needs to be updated. It has not been reviewed since 1991 and it should
be reviewed at least every 5 years. There are a number of amen dments that could improve the
agreement:
1. Further evaluate Out-of-Area Assessment and strive to achieve more equitable allocation of
these costs among all JMRL users.
2. Consider charging out-of-area users for use of library services if a more equitable allocation
methodology is not achieved.
3. Further evaluate funding formula for regional services.
4. Formalize cost allocation formula between City and County for Monticello Avenue, McIntire
Library and the Bookmobile through formal written agreement with the City pursuant to the
JMRL Agreement.
5. Consider making annual appropriations by Regional Services, City/County and County -only
categories rather than one lump sum annual appropriation.
6. Provide clear direction related to roles and responsibilities for appoin ted Library Board
Representatives.
7. Consider changing the number of Board members so Albemarle has greater representation for its
share of circulation. Currently, the City and County have an equal number of representatives
although the County has twice the population, generates 65% of the overall circulation for the
system and correspondingly contributes almost 60% of the cost of JMRL operations.
Budget Process
The budget process might be less acrimonious and more aligned with the County‘s wishes and needs if
the following suggestions were implemented:
1. Modify JMRL budget document to mirror County format:
a. Staffing levels by functional area
b. Actual expenditures
c. Total revenues to include contributions and donations – Friends of the Library
d. More detailed description of major budget variances and identification of core vs.
enhanced services.
Report on Jefferson-Madison Regional Library Page 47 January, 2011
2. County staff (administrators or budget staff) should establish an official meeting with the
library staff and library board members way ahead of the start of the budget process (October)
to discuss budget issues and agree on a budget target.
3. Agree upon important library performance measures to be included in the County‘s performance
management system for review during budget discussions. Examples from other localities are
included in Appendix F.
4. Include more budget and performance information in the budget for the Board‘s review in
approving funding. Currently, the library with its $3.2 million dollar cost to the taxpayer is
included as a single line-item expenditure along with other smaller community agencies ranging
from $2,500 to $30,000 with the exception of the Visitor‘s Bureau with no explanation of the
library‘s performance and/or budget needs. If library service is an important function of local
government, the library should then be afforded more space with more scrutiny, accountability
and attention similar to a department of government, rather than a small community agency.
Other localities include more detailed analyses of their library budgets and their performance in
their budget documents.
5. The Library Board and its staff need to recognize that the County‘s current fiscal crisis severely
curtailed its ability to fund, not only its own services, but services provided by community
agencies and organizations. Funding reductions were recommended across county government and
community agencies, not only to JMRL. This report showed that other libraries across the state,
whether they were regional or county, responded to their localities fiscal crises by cutting
programs, hours, staff, etc. and that library services like all community services were adjusted to
meet the current economic reality. The Library Board should work with the Board of Supervisors
and County staff to develop a budget request that meets the library‘s needs, as well as the
County‘s fiscal constraints.
Capital Facilities
1. Continue to monitor and evaluate capital needs for County library services as the y relate to
evolving changes in technology (on-line transactions, downloadable books/self-check out kiosks),
as well as the need for continued investment in downtown library facilities once County facilities
are constructed at Crozet, Northside and Southern Development Area. Library buildings may still
be needed, but the increasing use of on-line technology to access books and reference materials
may have a major impact on the use and configuration of future library space.
2. Explore realistic options for expanding library space at Northside or building a northern or
southern urban library before deciding to break from JMRL and the space offered at Central and
Gordon Libraries, space that is heavily used by County residents.
3. Since 26% of Scottsville‘s circulation and much of its growth is attributed to out -of-area users,
particularly Fluvanna, agreement with Fluvanna on shared costs may be in order prior to the
Scottsville expansion.
Report on Jefferson-Madison Regional Library Page 48 January, 2011
Appendix A. JMRL 1991 Amended Agreement
Appendix B Out-of-Area Library Use 2006
Appendix C Description of Albemarle‘s Regional Library System
Appendix D Calculation of State Funding for Regional Libraries
Appendix E State Library Standards
APPENDIX
Report on Jefferson-Madison Regional Library Page 49 January, 2011
Appendix F Peer County Performance Measures
Appendix A – 1991 JMRL Agreement
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Appendix B
Out-of-Area Library Use 2006
Number of out-of-area users registered at JMRL:
Nearby Jurisdictions…………Fluvanna 2450
Amherst 201 (2007)
Buckingham 576
Orange 376
Madison 299
Waynesboro 104
Augusta 99
Subtotal 4105
All Other Virginia 345
GRAND TOTAL OUT-OF-AREA 4450
Number of JMRL residents registered at other libraries:
Nearby Jurisdictions…….…Waynesboro 1143 (75% Nelson, 15% Albemarle)
Amherst 900 (Nelson County only)
Pamunkey 767 (Louisa County only)
Orange 750 (estimate)
Augusta 500 (estimate)
Fluvanna 350 (estimate—mostly Scottsville & Louisa)
Staunton 50 (estimate)
Buckingham 50
Madison ?
ESTIMATED TOTAL 4510
% of Out-of-Area Circulation (2005):
Scottsville 32.7%
Central 4.7%
Northside 4.6%
Greene 3.4%
Nelson 2.3%
Gordon Ave. 2%
Bookmobile 1.7%
Crozet 1%
Louisa 1%
6/06
Updated to include Amherst 6/07
Report on Jefferson-Madison Regional Library Page 58 January, 2011
Appendix C
Albemarle’s Regional Library System
Central Library
Central Library serves as the administrative headquarters for the library , as well as a full service library
for City and County residents. The City and County purchased the old Post Office and Federal Building
for $250,000 in 1978. After a 17-month
extensive renovation project for the regional
library headquarters and expanded services
costing over $2.25 million ($1,030,143 each from
the County and City and $200,000 from private
donors), the library opened in 1981 after moving
the McIntire collection of 90,000 volumes from
next door. The library was again renovated in
1995 to allow for the opening of a public
computer lab for internet access, as well as the
development of a community information
network, Monticello Avenue. The 2010 City real
estate assessment is Land Value: $869,000, Bldg.Value: $2,350,000 for a total value of $3,219,700.
Central Library has 29,000 sq. feet of usable space, 3 public meeting rooms with a capacity of 115 people
and holds the largest collection of 143,382 items or 29% of the library‘s collection. There are 47
computers for public use in the public lab and in the reference section, which also provides access to
printers and the microfilm collection.
Total circulation at the Main Library is 394,610 or 24.4% of the total circulation of the library system
and 23.8% of Albemarle‘s circulation. Overall circulation has declined 3% since FY04.
Central Library is open 68 hrs. per week, M-Th 9–9, Fri-Sat 9-5, Sun 1-5
The County‘s FY11 cost to operate Central Library is $538,792 based on 60.77% of circulation; the City‘s
cost is $347,817 based on 39.23% of circulation. There are 28.42 FTE at Central Library
Gordon Avenue Library
Gordon Avenue Library opened in 1966, the
first major addition to library services with
construction funded jointly by the City of
Charlottesville and Albemarle County. At the
time, Gordon Avenue was needed to serve a
growing population west of the city and to ease
crowded conditions at the McIntire Library
(prior to the purchase and renovation of the
Central Library in 1977). The Perry Foundation
donated the site to the City, as well as 45% of
the construction costs. Federal Library Aid
through the state funded $120,262.
Report on Jefferson-Madison Regional Library Page 59 January, 2011
Charlottesville and Albemarle County appropriated $75,000 each for the construction and additional
funds were donated by individuals and groups, notably the America Association of University Women and
the Friends of the Library.
If the land is not used for a library or a park, it is returned to the Perry Foundation.
The 2010 City real estate assessment is Land Value: $446,000, Bldg. Value: $2,150,700 for a total value
of $2,596,700.
Total circulation at the Gordon Avenue Library is 183,127 or 11.3% of the total circulation of the librar y
system and 10.4% of Albemarle‘s circulation. Circulation has increased 11.8% since FY04. There are 10
computers for the public.
The library was designed to hold 25,000 volumes (with an additional 10,000 in the Bookmobile "garage"
downstairs) with three public meeting rooms. The current collection is 67,253 items or 13.4% of total
collection.
Gordon Avenue is open 52 hrs. per week, M 9-9, T 9-6, W 12-9,Th 10-6, Fri-Sat 10-5, no Sun and is
served by 6.47 FTE.
The County‘s FY11 cost to operate Gordon Avenue Library is $185,527 based on 54.9% of circulation; the
City‘s cost is $152,410 based on 45.1% of circulation.
Northside
Northside opened its doors in 1991 in a
15,500-square-foot space in Albemarle
Square Shopping Center that once housed
a discount pharmacy. Albemarle and
Charlottesville funded the renovation at
$210,000. Albemarle Square also
contributed over $100,000 to the
renovation. Grants from the
Charlottesville/Albemarle Foundation and
the Friends of the Jefferson-Madison
Regional Library augmented the
furnishings‘ budget with an additional
$100,000. The library was intended for a
capacity of 100,000 and is now at 102,634 9 (capacity) and reflects 20.45% of the total system
collection. Northside has 1 meeting room with a 75 person capacity.
Total circulation at Northside is 526,961 or 32.54% of the total circulation of the librar y system and
42% of Albemarle‘s circulation. Circulation has increased 16.3% since FY04.
There are 14 computers for the public.
Northside is open 55 hrs. per week, Sun 1 -5 , M,T 12-9, W 10-9, TH 10-6, F 10-5, Sat 10-5 and is served
by 15.96 FTE‘s.
Report on Jefferson-Madison Regional Library Page 60 January, 2011
The County‘s FY11 cost to operate Northside Library is $876,619 based on 85.51% of circulation; the
City‘s cost is $148,547 based on 14.49% of circulation.
Crozet
The Crozet Library opened in 1984 in the old railroad depot, which was purchased and restored by the
Perry Foundation. The building was built in 1923 at a cost of $16,000. When the automated catalog and
record-keeping system was installed in 1987, circulation doubled. The collection at Crozet is now 32,960
items or 6.5% of the collection. Circulation is 137,746 or 8.5% of t otal circulation and 14% of
Albemarle‘s circulation. Circulation has
increased by 48% since FY04 or 8% per
year.
The library is open for 48 hours each week.
M-T 1-9, W-Sat 9-5 Sun none and is served
by a staff of 4.57 FTE.
There are 5 computers available to the
public and a meeting room that seats 25.
Albemarle‘s FY11 cost to operate is
$228,120.
Scottsville
The beginning of the regional library system
has been traced back to a cooperative
venture between Albemarle and
Charlottesville to have a bookmobile go to the
Scottsville school for two hours a week. The
Scottsville Branch Library opened on June 4,
1959, with 1,500 donated books Open for
sixteen hours a week, the new library was
governed by a local board, with rent of the
building and the salary of the branch‘s first
librarian paid by McIntire Library. In
September 1980, the library was hit by
lightning and almost totally destroyed by fire,
so in 1982 ground was broken for a new building at the site of the old one and in 1982, the current 3900
square foot brick colonial building opened.
Scottsville Branch Library has a collection of 19,096 volumes or 3.8% of the total collection. Circulation
is 67,318 or 4.14% of total circulation and 5% of Albemarle‘s circulation. Circulation has increased 19.4%
since FY04. The greatest increase in circulation has been from out -of-area users at 26% of circulation.
Report on Jefferson-Madison Regional Library Page 61 January, 2011
Scottsville has 8 computers for the public and has a staff of 3.09 FTE‘s. The library is open 48 hours a
week: M-T 1-9, W-Sat 9-5 . The County‘s FY11 cost to operate the Scottsville Branch Library is
$159,382.
Bookmobile
The Library has offered Bookmobile services since 1946 with its own collection of 1800 to 2000 books
that are carried to each stop. The Bookmobile operates Monday through Thursday in Albemarle County
and has scheduled stops in the City in the afternoons and evenings. Twice a month, the Bookmobile
travels to Louisa County. Patrons can place holds on materials and pick them up at their respective stops.
Patrons may also request materials on particular subjects to be delivered to their stop. Materials
borrowed from the Bookmobile may be returned to any JMRL location and materials from other JMRL
locations may be returned to the Bookmobile.
The new bookmobile valued at $180,000, was purchased in 2005 with funds from Albemarle County, City
of Charlottesville, and Friends of the Library. The City and County share funding for the B ookmobile
based on circulation. The FY11 cost to the County was $64,694 (72%); the City‘s cost was $17,197 (19%).
Louisa County pays $6,900 (7.7%) for two days per month.
The Albemarle County Historical Society Library
The Albemarle County Historical Society Library opened in 1974 at 220 Court Square. The library‘s
collection was consolidated in 1987 with those of the Jefferson-Madison Regional Library and the
Central Virginia Genealogical Association, to form the Charlottesville-Albemarle Historical Collection.
The collection is housed in the former McIntire Library, extensively restored and renovated in 1994,
and is a branch jointly operated with the Historical Society. Albemarle and Charlottesville share the
cost 50/50 for the operational costs for the Historical Society Library based on an unwritten
agreement. The FY11 cost of operations to each jurisdiction is $37,737.
Mont-AVV
Monticello Avenue is a community information network dedicated to promoting civic use of the World
Wide Web by 1) Assisting community organizations in establishing Web pages; 2) Educating community
members about the resources available and; 3) Organizing the growing amount of electronic community
information.
Through Mont-AVV, people can learn about community‘s government services, school activities and
educational opportunities, local businesses, cultural events, health and human service organizations,
neighborhood associations and religious groups.
Non-profit organizations in Albemarle or Charlottesville are eligible for free space on the community
information server, free email, and free training and tech support. Monticello Avenue is jointly
supported by the City of Charlottesville, the County of Albemarle, and the Jefferson -Madison Regional
Library. The server is housed in the Central branch of the Jefferson -Madison Regional Library.
In the FY11 budget, the County and the City each contributed $86,145 to maintain the Mont-AVV
program. There has been an informal agreement to share the costs of this program 50/50 with the City,
but it is not part of the formal agreement. To see the site: http://avenue.org/Default.htm
Report on Jefferson-Madison Regional Library Page 62 January, 2011
Appendix D
Step 1
Estimating Locality Expendirues Based on Their Proportional Contribution - using FY06 local expenditures
Percent of
Contribution Contribution Other
Localities to Regional to Regional Regional Unused Total
Served Revenues Revenues Revenues Revenues Expenditures
a b c (a+b) -d
Charlottesville 2,527,089 57.90%360,457 0 2,887,546
Albemarle 1,155,139 26.47%164,766 0 1,319,905
Greene 206,811 4.74%29,499 0 236,310
Louisa 267,858 6.14%38,207 0 306,065
Nelson 207,309 4.75%29,570 0 236,879
Total 4,364,206 622,499 0 4,986,705
622,499
Local
Total Expenditures
Expenditures Grant
d d*0.40 JMRL Local
Charlottesville 2,887,546 250,000 Expenditures Grant
Albemarle 1,319,905 250,000 $811,701
Greene 236,310 94,524
Louiisa 306,065 122,426
Nelson 236,879 94,752
4,986,705 811,701
Step 2 Step 3
Per Capita Grant Calculations Mileage Grant Calculation
JMRL Population -2006 193,037 JMRL Square Mileage 1,861
Number of localities served 5
Number of Localities Served 5
Per Capita Grant Calculation
30 cents per capita for first locality 57,911 Mileage Grant Calculation
(0.30 x 193,037)$10 per square mile for first locality 18,610
($10 x 1,861)
10 cents per capita for each additional $20 per square mile for all additional 37,220
locality (0.10 x 193037) x 4)77,215 localities served $20 x 1,861)
Total Per Capita Grant $135,126 Total Mileage Grant $55,830
Step 4
Final Funding Formula Calculations for Total State Aid
Step 1 - Local Expenditure Grant $811,701
Step 2 - Per Capita $135,126
Step 3 - Mileage Grant $55,830
Criterion 1 - No Certified Librarian Funds
Final State Aid $1,002,657
Report on Jefferson-Madison Regional Library Page 63 January, 2011
Calculations for Albemarle County As a Single County Library System
Step 1
Estimating Locality Expenditures Based on Their Proportional Contribution
FY08 Local Data to Calculate FY11 State Aid
Percent of
Contribution Contribution Other
Localities to Regional to Regional Regional Unused Total
Served Revenues Revenues Revenues Revenues Expenditures
a b c (a+b) -d
Charlottesville 1,287,467 25.03%153,119 115,789 1,324,797
Albemarle 3,041,270 59.12%361,699 273,519 3,129,450
Greene 276,068 5.37%32,833 24,828 284,073
Louisa 307,448 5.98%36,565 27,651 316,362
Nelson 231,776 4.51%27,565 20,845 238,496
Total 5,144,029 611,780 462,632 5,293,178
Local
Total Expenditures
Expenditures Grant
d d*0.40 JMRL Local
Charlottesville 1,324,797 250,000 Expenditures Grant
Albemarle $250,000
Greene 0
Louisa 0
Nelson 0
1,324,797 250,000
Step 2 Step 3
Per Capita Grant Calculations Mileage Grant Calculation
JMRL Population -2008 200,116 JMRL Square Mileage 1,861
Number of localities served 5
Number of Localities Served 5
Per Capita Grant Calculation
30 cents per capita for first locality 60,035 Mileage Grant Calculation
(0.30 x 200,116)$10 per square mile for first locality18,610
($10 x 1,861)
10 cents per capita for each additional $20 per square mile for all additional
locality (0.10 x 200,116) x 4)localities served $20 x 1,861)
Total Per Capita Grant $60,035 Total Mileage Grant $18,610
Step 4
Final Funding Formula Calculations for Total State Aid
Step 1 - Local Expenditure Grant $250,000
Step 2 - Per Capita $60,035
Step 3 - Mileage Grant $18,610
Criterion 1 - No Certified Librarian Funds
Final State Aid Eligibility $328,645
Final State Allocation $180,755 55.00%
Report on Jefferson-Madison Regional Library Page 64 January, 2011
Appendix E
State Standards
Planning for Library Excellence, 2009 sets the standards for library systems across the
Commonwealth and all libraries are expected to meet the minimum or Level A. The history of these
requirements began in January 1978 when the State Library Board approved Recommended Minimum
Standards for Virginia Public Libraries. The five-page document covered staffing, salaries and benefits,
buildings, outlets, collections, reference service, staff development, children‘s services, adult services,
programs, and cooperation. Two additional documents were later approved: Children‘s Service Suggested
Guidelines and Young Adult Services Guidelines for Virginia. In 1982, the Library Development
Committee of the Virginia Library Association started to review the Recommended Minimum Standards.
In 1986, their document was sent to the Library of Virginia Board for consideration. These standards,
Planning for Library Excellence (the blue book), were adopted on November 7, 1987. Chapters included
Administration and Planning, Resources, and Services.
The 1987 edition of Planning for Library Excellence (PLE) established service levels as I, II, III, with
the notation that the levels were intended to provide both incentive and achievability to those goals
where levels were desirable. The 2002 edition of PLE used the terms ―essential, aspiring, and excel for
the guidelines and added planning profiles based on medians.
Planning for Library Excellence, 2009, uses a business model based on the notion of bond ratings, i.e, A,
AA, and AAA, as their ranking system.
A = Investment grade but likely to be subject to changi ng business conditions. Minimum
standards required for all state funds.
AA = Investment grade at a strong level on all qualities.
AAA = Strongest investment grade and not subject to business cycle extremes.
The 2009 service measures are considered as cumulative. To reach level A (basic and mandated
services), all of the measures must be reached. Levels AA and AAA likewise depend on achieving the
preceding measures. Wherever possible, the measures are progressive. For exa mple: full-time equivalent
staffing levels grow from .3 FTE per 1,000 persons in the library service area at level A to .5 FTE at
level AA and increase to .6 FTE at level AAA.
There are 11 major categories of standards upon which a Virginia library is jud ged with multiple criteria
under each category: Governance and Administration, Funding and Administration, Public Relations,
Resources, which includes Staff Level, Staff Development and Volunteers, Collections, Facilities,
Technology, Services, which includes access and services, Information Services, Programs, Services to
Targeted Groups.
Report on Jefferson-Madison Regional Library Page 65 January, 2011
Appendix F
Performance Measures – examples from Pamunkey, Stafford and
Henrico
Report on Jefferson-Madison Regional Library Page 66 January, 2011
Report on Jefferson-Madison Regional Library Page 67 January, 2011
Publications and Websites
Budget documents FY09, FY10. FY11: Chesterfield, Fauquier, Hanover, Henrico, James City
County, Roanoke Spotsylvania and Stafford Counties
County of Albemarle, Adopted Budgets – FY 04/05 – FY10/11
County of Albemarle, FY10/11 – FY19/20 Capital Improvement Program
County of Albemarle, Jennifer C. Lyttle, Assistant County Attorney, Memorandum on Regional
Libraries, 11/16/10
Institute of Museum and Library Services- IMLS Library Comparison – Libraries Comparison
Report http://www.imls.gov/
JLARC, Review of State Aid to Libraries July, 2001
http://jlarc.state.va.us/reports/rpt268.pdf
JM RL website; http://jmrl.org/
JMRL, Annual Circulation Reports – FY04 – FY10
Jefferson-Madison Regional Library Building Assessment Report , September 1999
Library of Virginia, 2003 - 2008 Statistical Data for Virginia Public Libraries.
http://www.lva.virg inia.gov/lib-edu/LDND/libstats/
Planning for Library Excellence - Standards for Virginia Public Libraries, 2009
http://www.lva.virginia.gov/lib-edu/ldnd/standards/PFLE.pdf
Train and Partners Architects, Jefferson-Madison Regional Library Albemarle County Facility
Planning Study, June 2001
VPL Virginia Public Libraries Intranet http://vpl.lib.va.us/
Weldon Cooper ―Population Estimates for Virginia Localities, Planning Districts and Metropolitan
Areas. Final 2008 and Provisional 2009‖; ―Final Population Estimates for 2001-2007, Virginia
Cities and Counties‖
Bibliography
Report on Jefferson-Madison Regional Library Page 68 January, 2011
Other Resources and Interviews
Chesterfield County – Sarah Snead, Deputy County Administrator
Fauquier County - Maria Del Rosso – Library Director
James City County – Sue Mellen, Assistant Finance Manager
Hanover County – John Hodges, Deputy County Administrator
Henrico County - Leon Johnson, Deputy County Administrator and Jerry McKenna, Library
Director
JMRL Library Director – John Halliday
Roanoke County - Diane D. Hyatt, Library Director
Stafford County - Michael Neuhard, Deputy County Administrator