NATIONAL LIBRARY ACT, 1952 – FROM DRAWING BOARD TO REALITY

Sixty years ago, in January 1953, Canada's National Library Act, took effect. The original statute was passed on May 27, 1952 during the 6th session of 21st Canadian Parliament under the Liberal leader, Prime Minister Louis St-Laurent. The year 1952 was not uneventful. The country was emerging from the immediate postwar era in a more prosperous condition; Elizabeth II became Queen of Canada; Canadian armed forces were fighting in Korea; CBC television went on the air; and a national Old Age Security scheme was introduced. For most Canadians, the National Library was a lesser consideration in nation building.

However, the idea of assembling the greatest collection of literature on Canada in the world and making it available to all Canadians had been an important recommendation of the influential Royal Commission on National Development in the Arts, Letters and Sciences (aka the Massey Report) when it was released in 1951. The report was clear about its national importance:

"That a National Library finds no place among the federal institutions which we have been required to examine is a remarkable fact which has been occasion of much sharp comment during our sessions. Over ninety organizations have discussed this matter, some in great detail, urging that what has been called a 'national disgrace' be remedied."

And the government agreed. It introduced a bill within a year to establish such an institution. When Dr. Kaye Lamb became National Librarian as well as Dominion Archivist, expectations were high. Many librarians and researchers felt an immediate need for a large collection, a union catalogue of holdings of major Canadian libraries, and a national bibliography to replace the effort Toronto Public Library had begun in the 1920s. They wanted coordination among libraries and leadership on matters that required a Canadian voice or liaison with other external agencies like the Library of Congress or UNESCO. What did the new legislation mandate or allow? The 1952 statute was a succinct four-page document with thirteen sections.

Some formalities were dealt within the first seven sections -- a few definitions (e.g. "book"), appointment of a National Librarian and an Assistant National Librarian (Dr. Raymond Tanghe was selected), establishment of a National Library consisting of "all books placed in the care and custody of the National Librarian," and provision for staff in accordance with the Civil Service Act. An Advisory Council was also mandated (sec. 8) to be composed of three ex officio members -- the National Librarian along with the General and Parliamentary Librarians from the Parliamentary Library that had lost many books in a fire in 1952 -- and twelve people representing all Canadian provinces. In mid-twentieth century Canada, important federal institutions featured advisory groups that provided advice and could question policy. Dr. Lamb had already formed a similar advisory committee in 1948 to look into the formation of a national library.

Section 10 was really the heart of the matter. The powers and duties of the National Librarian were as follows: a) the collection of books; b) compilation of a national union catalogue of library holdings which could be utilized for interlibrary lending; c) publication of a national bibliography of works on Canada and by Canadians to make known the country's identity and activities; d) lending, selling, disposing, and exchanging books with institutions in Canada and elsewhere; e) making the Library available to the government and Canadians "to the greatest possible extent" consistent with sound administration. Section 11 established a deposit scheme whereby Canadian publishers were obliged to send copies of books to the Library. It allowed the cabinet Minister having oversight of the National Library to regulate the deposit scheme. Previously, publishers had sent copies to the Parliamentary Library under the Copyright Amendment Act, 1931. Sections 12-13 established an account for Parliamentary grants for books, a special account for donations and bequests, and required the National Librarian to file a report each year.

In the subsequent decade, Dr. Lamb worked assiduously to develop library services in conjunction with its partner, the Public Archives of Canada. At first, Library services, the Bibliographical Centre, then the new divisions of cataloguing, reference, and ordering operated in the Public Archives building on Sussex Drive. By 1955, plans were underway to build a new four-storey building on Wellington Street for two million books. This facility would also include resources and staff from the Public Archives. Both institutions were 'bulging at the seams.' Dr. Lamb believed the national archives and library should operate complementary activities such as information services, a historical reference collection of books, maps, newspapers, and acquisitions, within a single building. It was a matter of logistics to locate the activities of the two professions in one building for better public access and for economical operation. In 1956, the homeless library moved to a new records storage warehouse at Tunney's Pasture.

Things moved slowly, very slowly. On Dominion Day 1959, a Toronto Globe and Mail editorial strongly suggested "the Government should now consider giving special priority to the National Library project. The library is needed in the life of this country, and there can be no library in any real sense until there is a building with shelves to put books on, where people can get at them." The government eventually designated the building as a national Centennial project and authorized a budget for its construction. Just in time for Dominion Day, on June 20th 1967, Prime Minister Lester B. Pearson opened the new Public Archives and National Library Building.

The Massey Report recommendations and Dr. Lamb's vision of national library service had taken shape over fifteen long years. During this time Canadian society and libraries were changing dramatically. Bi-culturalism was flourishing: two months after opening the Wellington St. building, the Quebec National Assembly enacted provisions for a 'national' library in Montreal to collect materials about Quebec, books published in Quebec and by Quebec authors. The Bibliothèque nationale du Québec was mandated to produce its own bibliographic record. As well, scientific research across Canada was escalating rapidly and the National Library had already relinquished its role in these extensive areas. A few miles along the Ottawa River, the National Research Council library formally became Canada's "National Science Library" shortly before the 1967 celebrations.

Government decisions, telecommunications, computers, and new media were altering the operation and scope of libraries in Ottawa and throughout the country. The task at hand would be the development of new ideas, resources, and roles for the National Library.

Further Reading:

View the CBC coverage of the National Library opening with Lloyd Robertson at
The National Library Act, 1952 is available at the Internet Archive of books(Revised Statutes of Canada 1952, chap. 330)
The Massey Commission briefs and report are available at http://www.collectionscanada.gc.ca/2/5/h5-400-e.html

Review—The Library Book: A History of Service to British Columbia by David Obee (2011)

The Library Book: A History of Service to British Columbia by David Obee. Vancouver, British Columbia Library Association, 2011. 264 p., illus., $50.00.

A modestly sized coffee table book with 300 photographs is an unusual entry for a library history but, in this case, well worth reading and possessing. The Library Book covers more than a hundred years in three major sections with eighteen chapters. David Obee is a respected journalist, a local-family historian, as well as a genealogist; and he has combined his knowledge and skills to craft an informative and entertaining history of all types of libraries in British Columbia from the late eighteenth century up to the present. With the help of a number of prominent BC people in the library community, this book was published to celebrate the centenary of the British Columbia Library Association in 2011.
     David Obee covers the development of a valued provincial service to many different clienteles by public, school, college and university, special, government and legislative libraries. While 'service' is a keynote theme, Obee also includes details and chapters on intellectual freedom, information technology, library associations, and library organization. The text is divided into three main periods with fairly even treatment: 1796 to 1926; 1927-1959; and 1960 to today. Often, of course, books that celebrate contemporary milestones concentrate on the latest period, but that is not the case in The Library Book.
      In the first part, we learn that James Strange brought books to BC on a fur-trade mission in 1796; that New Westminster established the first 'public' library in 1865; that the Legislative Library was formed in 1863 to serve the small British colony on Vancouver Island; that three Carnegie libraries had opened by 1905 (Victoria, Vancouver, and New Westminster); that a training course in librarianship appeared in 1913; and that the University of British Columbia library opened in 1915. Progress was never easy, of course. Few municipalities took advantage of the Free Libraries Act of 1891; however, when this act was thoroughly revised in 1919 it also established a Public Library Commission and granted financial aid to 'library associations' which became eligible to receive travelling libraries (small boxes of books) from the Commission's headquarters. This was an important landmark to provide all provincial residents with some form of library service.
     The second section begins with the Commission's efforts to promote the development of regional libraries (a Canadian innovation) under the stewardship of the dynamic Helen Gordon Stewart. In 1930 she began a successful Carnegie funded regional demonstration in the Fraser Valley which led to the creation of two other library systems, the Okanagan and Vancouver Island. The Great Depression and WWII stymied other progress but regional systems and bookmobiles were a major step in reaching rural Canadians. The postwar era saw new buildings, larger collections, better-trained librarians, and the spread of business, government, and school libraries. But perhaps the most interesting chapter in this part touches on a personal confrontation between a librarian, John Marshall, and the Victoria library. During the height of the Cold War and anti-Communist rhetoric, in 1954, Marshall was summarily terminated for his ties with 'Red' organizations. At the same time, pro-Communist books came under fire. Half a century later, in 1998, the Victoria Library publicly apologized to Marshall. By this time, libraries had become advocates of intellectual freedom not guardians of political and moral standards.
     The final section begins in 1960; this is not a seminal date, but perhaps the 1960s decade was for Canadian libraries of all types. There was a boom in new library buildings across Canada and British Columbia was no exception. New universities and colleges--Simon Fraser (1965), Victoria (1963), Capilano (1968), and Okanagan (1963)--rapidly developed with a need for new library operations based around computer technology. Outside cities, the days of the one-room rural schoolhouse had come to end as more centralized schools with better libraries and staffing became the norm. In 1961, a School of Librarianship was established at the University of British Columbia to provide more librarians with a standard degree for professional training, the BLS. Obee concludes his history with chapters on the "tsunami" of technological change that has swept libraries since the 1970s, the explosive growth of the internet, and the emergence of the "library without walls." This period is necessarily compressed, but Obee gives the reader the basics without delving deeply into library jargon and administrivia.
     One feature of The Library Book that deserves special comment is the design and format of the volume. Excellent black and white/colour photographs are sprinkled throughout. Boxed texts with quotes and outlines of important events or people who have made valuable contributions are helpful additions that complement the chronological format. Deserving individuals who receive particular attention are E.O.S. Scholefield, John Ridington, W. Kaye Lamb, Lois Bewley, Basil Stuart-Stubbs, Margaret Clay, and Helen Gordon Stewart. They made contributions on a national level, as well as in British Columbia. At about 12" x 12," the book is still easily readable and displays nicely. There is an excellent timeline and appendices detailing various topics on associations, award winners, etc. The index provides convenient access to persons, subjects, and institutions. Researchers and historians will have to be satisfied with the narrative and pursue their interests elsewhere because there are no footnotes or a bibliography!!! But most general readers can do without the academic apparatus.
     David Obee and the BC Library Association must be congratulated for bringing The Library Book to press. It stands as the most complete Canadian provincial history of libraries produced to date and an important addition to the history of libraries in Canada.

Review—A Book in Every Hand by Don Kerr (2005)

A Book in Every Hand: Public Libraries in Saskatchewan by Don Kerr. Regina: Coteau Books, 2005. 279 pp.; $19.95. Still available via email from Saskatchewan Library Trustees' Association.

At the start of the 1930s, a national study funded by the Carnegie Corporation, Libraries in Canada, reasoned that Saskatchewan, which had almost a million people, might prosper in the years ahead if public library proponents worked hard to achieve services outside a few major communities. A base existed. Regina and North Battleford had Carnegie library buildings. Saskatoon, Prince Albert, and Moose Jaw were major centres with book collections. But the vast majority of people were rural dwellers who depended on a Travelling Library service of boxes of books for loan, an Open Shelf system of 'books by mail' operated from the provincial Legislature, and small struggling mostly subscription funded libraries. One solution highlighted by this report seemed to be the development of regional libraries through cooperative efforts--of course, 'cooperation' was a buzz word during the Great Depression. It became a byword for library progress in the latter part of the 20th century.
     Don Kerr's welcome volume on public library development in a large province with a small population outlines the successful efforts of library supporters, politicians, governments, trustees and librarians over seventy years up to 2005. Canadian provinces have distinct public library systems and Kerr (a former Saskatoon library trustee) best describes Saskatchewan's development as a 'one-library system' with administration centralized and public services decentralized. The Provincial Library, formed in 1953, is a central coordinating body. Regina and Saskatoon serve as resource centres. Eight unified regional systems gradually formed after 1950 are important hubs. Three in the south: Chinook (1971), Palliser (1973), and Southeast (1966). Four in the centre: Wapiti (1950), Wheatland (1967), Parkland (1968), and Lakeland (1972). Lastly, in the north an autonomous board for the Pahkisimon Nuye?áh Library, a federated structure of communities and school libraries, formed in 1991. Initially, the province provided the majority of funding for regions. Today, the regions are funded principally by local levies supplemented by provincial aid. Kerr concludes that Saskatchewan has one of the best library systems in Canada.
     This study is organized in a chronologic-geographic mode with theme chapters from the very early days when Saskatchewan was a territory to early 21st century arrangements based on a union catalogue, reciprocal borrowing, and interlibrary loan. As mechanics' institutes changed to community libraries, as travelling libraries and the open shelf service disappeared in the 1960s, a provincial-regional partnership emerged. A Regional Libraries Act (1946) and formation of a Provincial Library (1953) set the stage for growth in the 1960s. As the system expanded, periodic reviews took place to update legislation in 1984, in 1996, and to create a multitype library authority to coordinate work and access by all types of libraries to collections and information. For Canadian library history readers there are familiar names scattered through Kerr's history: J.R.C. Honeyman, Marion Gilroy, Mary Donaldson, Don Meadows, and Frances Morrison. In many ways, the success of equitable service throughout the province is underlined by the personal commitments by strong-minded individuals. Although individual effort and local initiative was essential in building Saskatchewan's libraries, Kerr credits the Co-operative Commonwealth Federation governments with much of the initial impetus towards equitable service in rural areas. The CCF under Tommy Douglas was sympathetic and ready to assist library planners.
     A Book in Every Hand details the arduous efforts to form and create regional systems one by one over three decades. 'Planning from below' was never easy--mandatory participation by municipalities in regions did not come into being until 1996. Often, local autonomy trumped universal access, a familiar library theme. The development of urban services in Saskatoon and Regina provide insights into library planning and community building through branches and online access via the internet. Also, budget struggles with city elders! There are interesting separate chapters devoted to the Saskatchewan Library Association's (SLA) contributions; the development of a provincial multitype system in the 1990s; and aboriginal library service that began to function in the 1960s. The SLA was an early supporter of the creation of a National Library in Ottawa in the 1940s and, and along with the Canadian Library Association, a constant source of professional development for the province's librarians. When the federal government began assistance in earnest for Indian band libraries in the mid-1960s, there were plans to train persons, to build suitable collections, to finance and assist aboriginal communities. These efforts usually (but not always) met with success. The short chapter on multitype service offers some information that is comparable to efforts in neighboring Alberta.
     Don Kerr is an excellent writer-poet-scholar, with many books to his credit. His text sweeps the reader along with personable comments from his own interviews and from documentary sources he consulted. He offers a personal account at the outset about his love of libraries and a general outline of his history. Book chapters are interspersed with tables, black and white illustrations, and some beautiful colour plates of public libraries provided by the Saskatchewan Heritage Foundation. More on library architecture would have been a definite plus for A Book in Every Hand. There are frequent scholarly footnotes that will lead researchers to additional information and sources of study. A great index too! Kerr's work impressively documents the development of equitable access and better services hinted at by Libraries Canada in the depression years. There are not many histories of public library development for an entire Canadian province but this is one that makes me wish there was a digital version.    

Review—Library Spirit in the Nordic and Baltic Countries (2009)

Library Spirit in the Nordic and Baltic Countries: Historical Perspectives edited by Martin Dyrbye, Ilkka Makinen, Tiiu Reimo, and Magnus Torstensson. Tampere, Finland: HIBOLIRE, 2009. 188 p. illus. 

        The authors involved in this publication belong to HIBOLIRE, The Nordic-Baltic-Russian Network on the History of Books, Libraries and Reading, a multinational and multidisciplinary network of scholars. They consider the development of Nordic public libraries to be relatively influential and successful in a broad northern geographic arc from Greenland to the Baltic States. My interest in this library history is on the comparative aspects that I recognize from a Canadian context, not surprising because the Nordic "library spirit" often incorporates Anglo-American ideas about public libraries stemming from the 19th century that were also prevalent in Canada.
        In terms of public library development, several countries evolved services from a variety of pre-1900 'public' institutions: reading societies, school and university libraries open to the public, commercial and scientific groups, parish libraries, and folkbiblioteken (Sweden) to assist lower classes with less access to reading materials. In many ways, this parallels the Canadian experience with a host of "social libraries" -- library associations, mechanics' institutes, athenaeums, literary societies, mercantile libraries, etc. -- that existed in Canada prior to 1900. The transformation of these libraries into free public libraries, i.e. libraries regulated by government legislation, managed as a public trust, financed by municipal tax levies and open to local residents, is recounted a number of times, especially for Denmark, Norway, and Sweden, where Anglo-American concepts took hold at an earlier stage. Of course, state aid was crucial in the development of the public library concept. It is interesting that financial assistance begins in Norway in the 1830s in the same time period as Canadian colonial government grants to mechanics' institutes commence. By the last quarter of the 19th century, popular or people's libraries in the Nordic-Baltic countries were prominent in many communities.
      Canadian provinces began experimenting with general legislation for local libraries and government support as early as 1851. Of course, proximity to the American border states and colonial association with Britain sparked many ideas about libraries, especially after Confederation in 1867 colonial status after 1867, when Canada began to emerge as a fully sovereign nation. Public library legislation for the Nordic-Baltic experience evolved at a slower pace, but many Anglo-American ideas circulated and help promote library progress. Especially, important was the "library spirit" -- the idea of the library as an active educational force that facilitates access to collections and promotes community development though a variety of ever-changing services. Fused with two major concepts, Bildung and Volksbildung, the Nordic library spirit continues today, a combination of self-cultivation or improvement and popular or adult education in the broadest sense. I find these underlying philosophic ideas to be unique, and really without parallel in Canada where early library promoters were mostly influenced by Utilitarian ideas disseminated from Britain.
       The formation of national library associations and librarianship is another focus I found interesting. In Canada, association formation came at the provincial and local level prior to a national organization in 1946, promoted mostly by the need for a national library "voice" and coordinating body. Major Nordic countries had formed national bodies decades before this date, inspired by leading intellectuals and publications about libraries/librarianship. A Finnish association was formed as early as 1910, even before the country's independence from Russia during WW I. Associations not only attempted to improve library services, they sought to improve the social standing and working conditions of librarians. There are insightful chapters on the development of the library profession -- from volunteer status, to vocation, to profession -- in Denmark. The concept of public service for professional librarians was expanded to align with societal needs. As in Canada, this change mostly took place after 1945 as national systems of libraries developed rapidly and educated personnel were required. The development of Library Science as part of the Nordic educational curriculum and training for librarianship also was a crucial development during this period.
       It would be too much to try and summarize all seventeen chapters that record the history of libraries within national cultural and educational progress in the Nordic-Baltic spectrum. Some presentations, such as the Soviet era in the three Baltic Republics, represent discontinuity in library development and a complete rejection of Anglo-American influences. The Scandinavian style of library architecture was obviously influenced by the International Style at an earlier stage than Canada, thus functional forms, open interior design, and horizontal elements as evidenced by the Nyborg Public Library had arrived by 1939. Comparative analysis, like the final chapter which summarizes the work of preceding authors, is important, yet in many ways each chapter has a distinct history based on differing perspectives about libraries.
       Comparative histories usually follow the path of identifying a variable, such as "library spirit," examining various cases to determine similarities (and differences), and then offering an explanation for why (or how, who, or when) the variable succeeded, developed, changed, or varied by case or geography, etc. An important journal in this field is Comparative Studies in Society and History from Cambridge University. A historiographical study by Marc Bloch, The Historian's Craft (translated from French in 1954), still is a reliable and useful guide to comparative history. Bloch was a pioneer in comparative studies, specializing in medieval feudal societies.
        Hopefully, the HIBOLIRE network can continue to produce informative histories that broaden our knowledge about libraries, books, and reading. The comparative approach offers the possibility of identifying recurring social mechanisms and structures as well as observing how different outcomes are possible.
      

Review—The Most Attractive Resort in Town by Barbara Myrvold (2009)

The Most Attractive Resort in Town: Public Library Service in West Toronto Junction, 1888-2009 by Barbara Myrvold. Toronto: Toronto Public Library Board, 2009. 2nd revised and expanded edition, paper, 82 p., 126 illus. Available for sale at $20 at http://www.torontopubliclibrary.ca/local-history-publications/most-attractive-resort.jsp .

       Originally published in 1989 with co-author Barbara Forsyth to record the 80th anniversary of the Annette Street branch (1909-1989) of Toronto Public Library, this updated 2009 version is a welcome addition to histories of community library service in Canada. The book title derives from a quote by the Women's Christian Temperance Union when the West Toronto Junction Mechanics Institute was formed in 1888. The WCTU obviously hoped the influence of book reading and social amusements provided would divert young men from less uplifting pursuits in this growing community of 3,000 people. Self-improvement is an important theme in library history and there are frequent references to this trait throughout this book.
       The expanded version includes much more detail, more images, and an updated chapter on post-1989 activities--almost fifty additional pages more than the 1988 edition. The period before West Toronto's annexation in 1909 by the city of Toronto is covered in rich detail. The nuances of bylaws, biographies of board members and civic politicians, buildings, Toronto Junction's growth, streetscapes, and local businesses provides are included within the context of wider socio-economic developments. Annual plans to balance budgets based mostly on membership fees and other contributions give us a picture of how the library was managed and staffed. Like many other Ontario communities, Toronto Junction's service had its roots as a Mechanics' Institute until 1895 provincial legislation transformed MI's into public libraries with various types of management and financing provisions. As the Junction grew rapidly at the turn of 1900 library supporters decided to partake of the Carnegie program of grants for a suitable building.
       An entire chapter is devoted to plans and activities revolving around how a Carnegie grant of $20,000--a handsome sum for a Canadian town--was obtained and expended. Along the way, Toronto Junction passed a bylaw to establish a "free" public library, i.e. one eligible for an annual statutory tax levy of about $2,000 (a Carnegie requirement); the town disappeared as a separate municipal entity after annexation by the city of Toronto; and considerable time was spent procuring a site and architectural renderings and construction of a new library. By the time the building (designed in the popular classic Beaux-Arts style with interior layout for closed book stacks and no separate children's area) opened, it had become Toronto Public Library's "Western Branch," a neighbourhood resource in a large city rather than a standalone civic agency. This was not the "end of history" but rather a new beginning, one unforeseen when the pursuit of Carnegie money commenced.
      Barbara Myrvold guides us through the Junction library's next century as the Western branch (renamed Annette Street in 1962) developed its new identity within a larger city system. For this period, there is less detail; in part because many of the source materials used to build the first part of the library's history no longer existed--there are no separate board or council minutes for the Junction; less space is devoted to activities in Toronto's daily newspapers; and no personal accounts by local residents who served in various capacities in a local municipal environment. As the sources for history change, so does the history for institutional histories such as this one! There are still "facts" and "events," the stuff of history, for the author to illustrate on a larger canvas using different sources at hand. If there is little written about censorship it is because this theme is broader and does not appear to have significantly affected the Junction's reading public.
       After 1909, the library's history is portrayed through various strands of administrative activity, functional library services, and general societal trends. As the ethos of Victorianism declined in the first part of the 20th century, the library's "mission" changed from didactic moral uplift and self-improvement to providing activities, programs, resources, and information guided by community surveys and analysis of users and non-users. After the Ontario government eliminated age restrictions in 1909, children's services became a primary focus of work in libraries and Toronto under the aegis of Lillian Smith, who developed a model of services that was one of the best in North America and the British Commonwealth. In the 1920s, TPL's efforts to bring "the right book to the right reader" extended branch work to recreational adult education programs. As the demographic makeup of the Junction changed from its British origins to a more diverse mosaic, multilingual collections (originally termed foreign language) expanded in the late 1950s in many TPL branches.
       In the 1970s, as "Toronto the Good" became more cosmopolitan, TPL embarked on an extensive renovation program for many branches, turning them into neighbourhood "people places," and Annette profited from a complete remodeling and addition to the original building in 1979-80. In the 1980s, a local history collection was established in conjunction with the local historical society. In the 1990s, a computerized circulation system, catalogue stations, and access to the Internet were important improvements as libraries moved from book places to information providers. As the challenges of the digital library era brought into question the idea of the need for physical resources, Annette Street celebrated its centennial in 2009 after the branch--open about 50 hours per week--had busily circulated 168,132 items in the previous year.
       Added to an informative text are more than a hundred black and white pictures that highlight people, buildings, events, design plans, collections, equipment and furnishings. Special attention is paid to architectural details present in the Carnegie building and the subsequent modest updates in 1962 and complete renovation in 1979-80. The author shows that the Annette branch was a successful instrument for serving and promoting its surrounding community of about 10,000 people. The Most Attractive Resort is peppered with hundreds of footnotes that makes it useful for other library history researchers. Overall, this is one of the best micro library histories produced in Canada to date and it can be used to document broader studies.

Further:  a link to the plaque commemorating the branch by Heritage Toronto is available (now Annette Street branch).