Part 19

This library which Franklin started for the advantage of himself and his fifty young business associates, in the early time, when, as he says, "there was not a good bookseller's shop in any of the colonies to the southward of Boston," and when most of the books had to be imported from England, was followed soon by the establishment of more ambitious similar libraries in Newport (1747) and Hartford (1774); and later in many other places in England and this country. These were called public libraries, though books could only be taken out by subscribers. Probably, however, as in Philadelphia, the librarian could "permit any civil gentlemen to peruse the books of the library in the library room."

But it was in the formation of many so-called "Social Libraries" in the smaller cities and country towns of New England and the Middle States, early in the present century, that the foundations of the free municipal library were laid. These subscription libraries, in their growth and in their decay, no less than in the appetite for books they developed, created a demand and at length a necessity for public provision for what had come to be one of the prime intellectual needs of many communities.

Meantime in Scotland, in 1816, Samuel Brown of Haddington, following in part the methods of London booksellers, established a system of free itinerating libraries, loaning without cost selections of fifty books in each package to villages and neighborhoods that would engage to circulate and take proper care of them. At the end of two years each loan was called in, and another of different works sent in its place. This scheme was for many years highly successful, and doubtless highly useful; but seems to have failed soon after the death of its projector and inspirer in 1839. The system had the earnest sanction of Lord Brougham, and about 1825 was taken up in some parts of England; and, in a modified form, has had a great success in Melbourne and its neighborhood, in Australia. Stanley Jevons, whose article on the rationale of free public libraries in his "Methods of Social Reform" is one of the most interesting and valuable contributions to the literature of this subject, commends it as the best form of extending free public libraries in the rural portions of Great Britain, and he estimates that there ought to be three thousand such literary itinerants in England and Wales.

This system was copied in this country in the School District Libraries which were started in the state of New York in 1835, and a few years afterward were in successful operation in Massachusetts and other New England states, and in Michigan and Ohio at least, among states further west. At first every school district raising thirty dollars the first year and ten dollars thereafter, by tax or subscription, was assisted by the state--I cite the Massachusetts statute--to a like sum; and a small but choice selection of books sent to it for free circulation within the district. A little later Massachusetts, at least, removed this condition; and supplied every school district with such a library. These libraries after remaining in use for a while, and generally being thoroughly read, were exchanged among the districts. New books were thus continually coming to new readers. This movement was earnestly forwarded by that pioneer among American educators, Horace Mann, and during the period of my boyhood was a godsend to the young people of New England. I want to bless the memory of Samuel Brown, Father Page (a pioneer of the system in New York), and Horace Mann for the gleams of literary light thus cast across the bookless darkness of New England rural homes forty to fifty years ago. This highly economical missionary agency of general intelligence passed away in New England with the incoming of the more satisfactory town system of free libraries. The cause of its decadence elsewhere is not clear, but it has lately had a remarkable resurrection in New York, as we soon shall see.

The first free town library in America, or the world, supported by municipal taxation, was established by the efforts of Abiel Abbot, D.D., in Peterboro, New Hampshire, in 1833. A decayed social library and an operatives' library, and perhaps some other small collections, were thus gathered under the shelter of the town; and took on new life from its fostering care, and the small annual appropriation for new books which is the breath of life to all libraries. Here, as always, it was a man that inspired the advance movement and carried it on to successful fulfilment.

In 1849, New Hampshire passed a general law enabling towns and cities to maintain free libraries by taxation; and in 1851 Massachusetts, which had granted Boston in 1847 the right to establish such a library, passed a similar general enabling act. Several other states followed almost immediately, and nearly every northern and northwestern state, except Pennsylvania, has since adopted the measure. In 1893, twenty states had enacted similar statutes; and, in all, more than seven hundred free libraries have been established under them. They have increased--as might naturally have been expected--most rapidly in the portions of the country where other library agencies, and where an efficient public school system, have been longest and most efficiently at work. Thus, of the seven hundred libraries, more than three hundred are in Massachusetts (according to the returns of the Public Library Commission for 1894), or 1,233 volumes for every thousand of population; in New Hampshire something over one hundred (in 1894), or 464 volumes per thousand of inhabitants.

Great Britain has kept nearly equal pace with our foremost states in free library legislation. A general enabling act to establish and support free libraries for the people from municipal rates was passed by Parliament in 1850, and accepted with great energy and enthusiasm by many of the northern towns and cities. Eighty-six free libraries, not including branches, had been opened before 1880; but, as in this country, the conservatism of the southern portions of the country has prevented their general establishment. For similar reasons only the province of Ontario has made any considerable movement in this direction in the Dominion of Canada.

This hasty historical sketch would be very incomplete without some account of the recent legislation, in several states, for the assistance of the smaller towns and villages in the establishment and increase of public libraries. This legislation has already had marvelous results. Massachusetts, in 1890, appropriated one hundred dollars to any town that would raise by taxation, or appropriate from the dog tax, or otherwise raise, at least fifty dollars (or if its valuation was less than one million dollars it should raise twenty-five dollars, or if less than $250,000 it should raise at least fifteen dollars); and should agree to take care of the books, and furnish the agency of distribution. The sums granted by the state are in the hands of a board of commissioners appointed by the governor (with the advice and consent of the council); and so far these commissioners--librarians and others--have been eminent citizens, serving without salaries, and having only $500 in their hands annually for clerk hire and traveling expenses. The commission is also required to give advice and information to librarians and others concerning selection of books, cataloguing, and administration; and to select and forward the books granted by the state.

Now for results. The commission has thus aided in establishing, in four years, more than sixty free public libraries in small towns (out of one hundred and four not thus supplied) and its action has shamed a few larger towns into establishing them; so that now only two and three fourths per cent of the population of the state, in forty-four small towns, were in January, 1894, without their advantages. And this has been accomplished with an entire expense to the commonwealth of less than ten thousand dollars. Per contra, more than half a million dollars were given by individuals in a single year for similar purposes within the state. Certainly, this has been a most economical and effective public outlay; free, too, from all suspicion of any one's fattening by political jobbery.

The record of New Hampshire is even more remarkable. This state passed a law in 1891, similar to the one outlined above, and over eighty towns accepted its provisions, and established free libraries within a twelvemonth after it came in force. We are glad to read that the states of Maine, Connecticut, and Pennsylvania are moving in the direction of a measure that has proved so effective in its operation, and that must be so widely beneficent.

The state of New York has adopted another system to stimulate the development of the free library. Her enabling act of many years ago produced, as we have seen, comparatively small results; and in 1892 a law was passed authorizing the Regents of the University of New York to lend for a limited time--usually six months--selections of books from the duplicate department of the state library, or from books purchased for the purpose, to any public library in the state; or, where none exists, to twenty-five petitioners in any town or village of the state. A fee of five dollars is required, to cover cost of transportation, catalogue, etc., for a loan of one hundred volumes, and a smaller sum (three dollars) for a loan of fifty volumes. This plan, it will be seen, is a revival of the old school district method; and of that instituted by Samuel Brown in Scotland, and the later one found successful in Australia. The antipodes have a fashion lately of suggesting valuable object-lessons for social legislation. In small communities it has the advantage of making books do manifold duty, and of meeting the wants of varied communities and occupations. By judicious and varied selection, clubs, classes, schools, and reading circles may be aided in special courses and investigations. At the end of twenty months one hundred and twenty-five of these free loan libraries had been sent out by the New York Board of Regents; of which nearly one half (44) went to communities without public libraries, the remainder going to libraries already established (22), to university extension centers (18), and to academy libraries open to the public (22). Eleven thousand nine hundred volumes were thus made accessible to the public, with a total circulation of not far from 25,000 volumes and 9,000 readers. This system, which seems even more economical than the Massachusetts one, has greatly promoted interest in good reading, and led to the establishment of several local public libraries. The system is very elastic and is easily adapted to the rapidly growing demands for its privileges. As a pioneer method, or as auxiliary to municipal libraries, it promises excellent results.

After this historical survey it would hardly seem necessary to dwell upon the arguments in behalf of the free public library. "There is probably no mode of expending public money," says Stanley Jevons, "which gives a more extraordinary and immediate return in utility and innocent enjoyment." He affirms that in Manchester, Birmingham, Liverpool, and some other great towns in England, as in similar communities in this country, where such libraries have existed for years, there is but one opinion about them. "They are classed with town-halls, police courts, prisons, and poorhouses as necessary adjuncts of our stage of civilization." A more natural, and certainly more cheerful, collocation would class them with free schools, museums, and public parks, as Jevons himself afterwards suggests. "The main raison d'etre of free public libraries, as indeed of public museums, art galleries, parks, halls, public clocks, and many other kinds of public works, is the enormous increase of utility which is thereby acquired for the community at a trifling cost." He proceeds to illustrate by several instances what he calls "the remarkable multiplication of utility" in the case of free lending libraries by several instances. Every book, in the first year of the Birmingham Free Library, was issued on an average seventeen times, and the periodical literature turned over fifty times. In Leeds, every book was used eighteen times. In larger libraries and in later use, of course, the figures are less, averaging from three to ten times, the whole cost of each issue averaging only from two to five cents. Similar statistics may be found in the Forum article already referred to in regard to the manifold use of books furnished in New York.

The comfort and moral economy of a cheerful, well-lighted reading-room, too, is overwhelmingly illustrated. Mr. Jevons found that in Manchester all persons of suitable age visited the free libraries on an average thirteen times a year, of whom three fourths came to read in the reading-rooms. Such a refuge from the perils of the saloon and the street is an immense benefaction in any neighborhood.

The relative cheapness of securing this means of general culture and enjoyment, this efficient antidote to vice and ignorance, is strikingly shown by comparing its cost with other items of governmental expenditure, and the statistics of national luxuries and vices. The eighty-six free libraries in the large cities of Great Britain cost not more than half a million dollars per year--one fifth the cost of a first class ironclad. The statistics I have given show that the cost of the two war vessels just voted by Congress might be abundantly sufficient to insure the organization on the Massachusetts plan of a free library in every village and country town of the United States, not now accessible to such a library. The expenditure for drink, for horse-racing, or even for tobacco, for a single year, would royally equip and endow a public library for every thousand people now without such privileges. As post-office savings banks are, wherever established, a mighty engine for teaching thrift, as public parks are an incalculable source of health and enjoyment in our cities, so the public library, "the free literary park," as Jevons calls it, is a most effective agency for the promotion of culture and civilization.

In the year 1851, George Ticknor, the distinguished author of the "History of Spanish Literature" and a benefactor of the Boston Public Library, wrote to Edward Everett: "I would establish a library which differs from all free libraries yet attempted; I mean one in which any popular books tending to moral and intellectual improvement shall be furnished in such numbers that many persons can be reading the same book at the same time; in short, that not only the best books of all sorts, but the pleasant literature of the day, shall be made accessible to the whole people when they most care for it--that is, when it is fresh and new. I would thus by following the popular taste--unless it should demand something injurious--create a real appetite for healthy reading. This appetite once formed will take care of itself. It will in a great majority of cases demand better and better books."

Mr. Everett's conservatism doubted the wisdom of these principles for the foundation of a library: but they are essentially those which have proved sound in the free library system of England and New England, of Australia and the Northwestern cities. In the light of fifty years' experience, indeed, Everett's skepticism reads like Governor Berkeley's report on education in Virginia, in which he thanked God that there were no free schools in Virginia and hoped that there would be none for a hundred years. The communities in which libraries, approaching George Ticknor's ideal, have been longest established, would do without paved streets or electric lights sooner than without these libraries, and they support them by taxation as cheerfully as the public schools. Indeed, the free library in not a few communities is reckoned an invaluable and indispensable adjunct of the public school, the very crown of the system of popular education. Such librarians as Green of Worcester, Massachusetts, and Whitney of Watertown, and Hosmer of Minneapolis, keep in touch with the work of the schools, and apprize the various classes of pupils of new books especially valuable for their work. More than this, they have regard to the needs of the various clubs, trades, and professions, and keep their members aware of valuable books in their special departments. But perhaps the most helpful service of all is rendered by capable librarians in the constant advice given to inexperienced readers, and the frequent bulletins sent out to stimulate the interest and instruct the intelligence of the community. It is of special interest to note that the demand for good reading has been greatly increased wherever the public library has been administered in this way. Indeed, booksellers and proprietary libraries have come to favor the opening of the free library as largely increasing the demand for their books.

It is not strange that with this large and various capacity of social service, the free library should be rapidly growing in public favor; nor that private munificence should frequently come to the municipal provision. There is no public object for which so generous gifts are often made. In the year 1893, for instance, five hundred thousand dollars were contributed to public libraries and the erection of library buildings in Massachusetts alone. "There has been ready perception," says Fletcher in his "Public Libraries in America," "of the truth that one's memory cannot better be perpetuated than by association with an institution so popular and at the same time so elevating and refining as the public library. Memorial libraries are therefore very abundant, and as expense has not been spared in the erection of such memorials, many of our towns, even the smaller ones, are ornamented by library buildings which are gems of architecture.... The fact remains, with all its significance, that about the public library cluster naturally the affections and the interest of the community. In its endowment, on the one hand by private beneficence, and on the other by public taxation, is illustrated that collaboration of the rich and the poor in the pursuit of the highest ends which has in it the promise, and perhaps the potency, of the solution of vexing social questions."

The remembrance that these statements are only locally accepted, and that large portions of England and the United States have hardly moved toward the establishment of public libraries, may prompt a consideration of certain objections which are still sometimes urged. Civilization accepts its most benignant and effective agencies of progress only under protest; and it is not, therefore, wholly inexplicable that fifty years of unmixed and increasing success should have left some excellent and otherwise intelligent people unconvinced of the beneficence of the free public library. A friend of mine was enthusiastically setting forth the advantages of such libraries, and their rapid multiplication and growing service in New England, at the dinner table of one of the most distinguished, philosophic, and progressive of contemporary Englishmen; and was not a little surprised to be cut short with the decided comment, "I do not believe in it." The Englishman's fastidious preference for high fences and compartment railway carriages pervades all his intellectual conceptions also; and makes him impervious even to Stanley Jevons's overwhelming demonstration of the moral, social, and economic utility of the free public library; impervious even to the appeal that ignorance and narrow intellectual opportunity must be supposed to make upon enlightened philanthropy.

Mr. Herbert Spencer and the individualists oppose to the public library, supported by taxation, their wellworn declamation about the injustice of making one man pay for another man's culture and amusement; and urge the dictum of laissez faire in civilization and government. But as the post-office and the public school have survived their onslaughts we may not feel compelled to surrender the advantages of the free library. For, as with the school, it is easy to show that mental health and light are as primary interests of the community as material; and that it is precisely because those most deficient are least sensible of their defect that society must seek to remedy it. Mr. Spencer's analogy between hunger for food and hunger for knowledge is utterly fallacious. The physical appetite may be trusted to seek vigorously its own supply; the intellectual appetite has most to be aroused where intellectual starvation is most imminent; and it grows only by what it feeds on. Men usually value most, indeed, what they work or pay for; but it is precisely those who do not value good books at all who need to be tempted and trained to their appreciation. And it is just the children of those whose parents will not, or cannot, provide them wholesome reading, that society cannot afford to let go wholly unprovided.

The smallest fee here proves an effective bar, as the experience of all subscription libraries proves. When the Springfield (Mass.) library was made free, its circulation was trebled the first year--though the fee had been only one dollar--and in a few years rose six or seven fold. "The Mercantile Library of Peoria, Ill.," says Mr. Crunden, "turned over to the city and made free, notes an increase in ten years, of members from two hundred and seventy-five to four thousand five hundred, and of issues from fifteen thousand to ninety thousand." So always. If the dollar fee were removed from the circulation of the books of our Meadville City Library, for instance, within five years they would go into fifteen hundred families instead of less than three hundred, as now; and the added twelve hundred families would be the very ones where the books would be of highest service. And, perhaps, more beneficent still would be the influence upon the vastly larger number who would frequent the library, and grow intelligent through the multiplied use of its reading facilities, and the help of its valuable reference department. The reaction upon the general intelligence of the community would make itself felt in the increasing intelligence of its working men and the higher standard of life this would bring among them. In short, it would insure economic progress.

Besides the economic advantages, and much more important, the influence of a well-furnished free library would tell in the training of citizens. The discussion of economic and social questions, eager and often bitter as it is, would become less crude and partisan in the knowledge of the best books and magazine articles upon the topics involved. The reading of history, biography, and travels would exert a broadening, enlightening, and often inspiring influence. To make wholesome literature more accessible than dime novels would save many boys and girls from ruin, rouse many dormant intellects to higher life, and supply effective rivals to the saloons and other low resorts. Philanthropy and religion alike demand the wide opening of such an "effectual door" to the opportunities of the higher life.

It is sometimes objected that the records of all public libraries show that the lightest literature is most read, that fiction constitutes one half or three fourths of the books circulated. But besides the obvious consideration that only wholesome fiction finds place in all well-appointed public libraries, Horace Greeley's view has much to commend it, viz.: that all pure reading, however light, tends to develop a taste for more vigorous and instructive literature. Besides, it may well be urged that fiction is not only the current form of literary art, but also the effective vehicle of current social theories, philanthropies, and reforms; and that much of the most earnest thinking and serious moral purpose of this age is embodied in it. Under such intelligent and careful selection as the public opinion of the community may provide for, the public library will furnish a healthful substitute and corrective for the unappointed and vagrant reading of that large section of young people most in need of guidance.

I have left myself but a moment to suggest one or two practical questions that may need consideration in the establishment of a new system of free public libraries in communities or a commonwealth. Next to thorough discussion of their proved beneficence, an efficient enabling act is certainly the first desideratum, in any state still without it, so that towns and cities may tax themselves for this purpose. And it is most important that this act be not so narrowly limited that communities shall be unable to attempt anything worth while. Better wait five years, or ten years, more for the statute that will enable our communities to put themselves in line with the most advanced in the country in this respect, than to enact a starveling and ineffective statute that shall

"Keep the word of promise in our ear, And break it to our hope,"

as has already sometimes happened. The public appropriation is so limited by penny-wise legislation in a number of states as to discourage all action, and kill all interest in the matter.

In the same way, it is to be hoped that these states will accompany their enabling acts by auxiliary legislation similar to that in Massachusetts and New Hampshire; or, perhaps still better, patterned upon that of New York. It is difficult to decide upon the comparative advantages of these two systems. That of Massachusetts seems to me better for permanent results; but that of New York seems likely to be more immediately effective in stirring the sluggish interest of indifferent communities. Both are wonderfully economical in money, and both have great effectiveness when worked by the intelligent interest of even a few enthusiastic friends of the free library movement in any community. It would seem that even a governor who thinks five million people cannot afford $25,000 for the "Birds of Pennsylvania" might consent to spend a fifth of that sum per year to begin a work that would not end, if once well begun, without putting a new and most effective agency of social culture and even economic progress within the reach of every boy and girl in the state.

The machinery through which to plan and begin this great and hopeful experiment should be carefully considered. Massachusetts's unsalaried commission of eminent citizens, New York's Board of University Regents, alike insure that in those commonwealths the work will be carried on under the most hopeful and efficient conditions. Some such unpartisan and public-spirited agency is absolutely demanded for the success of the movement in a state that has to begin it de novo; and the personnel of the agency is the most important point in any legislation initiating it.

There is also a difference of opinion as to whether school boards, or boards specially constituted for the purpose, should have charge of public libraries. My opinion is decidedly in favor of the latter; for while school boards would bring the library, as is most desirable, into closer relation with the public schools, an independent board, chosen, perhaps, by the school board in connection with the city council, as sometimes in Massachusetts, would be likely to bring more ability, independence, and careful consideration to the affairs of the library, and to separate it more completely from injurious partisan and personal politics.