Free for All: removing the charges on internet access at Auckland City Libraries

Free for All: removing the charges on internet access at
                      Auckland City Libraries

                                      Joanne Crummer
                            Project Planner – Customer Services
                                   Auckland City Libraries
                           joanne.crummer@aucklandcity.govt.nz

Abstract:
Auckland City Libraries launched free internet access in April 2007. Previously library
databases, MS Office software and selected web content had been free to use, but
customers paid to search the full web and access their email accounts etc.

Two of the library's strategic roles - the information gateway and the learning centre - led it
to seek additional funding that would remove perceived and sometimes actual barriers to
the world of knowledge. Auckland City Council met the funding request as one of its
"Making community facilities more relevant" initiatives.

Auckland City Libraries was already using software to manage the use of its public access
PCs across 17 sites. The change to free internet meant removing the charging mechanism
(other than for printing), reviewing session lengths, and placing more emphasis on
encouraging customers to use the online reservation functionality. Ideally the demand for
PC time is managed by the customer base itself.

This workshop will share the philosophy behind providing free internet access, cover the
planning and implementation phases, and look at the service approaches taken to manage
customer demand. It will report on customer uptake and feedback, and then summarise
key learnings from the change.

The presentation will be short so that there will be time for questions and discussion.

Workshop profile
Auckland City Libraries launched free internet access in April 2007. Previously library
databases, MS Office software and selected web content had been free to use, but
customers paid to search the full web and access their email accounts.

The purpose of this workshop is to provide participants the opportunity to learn about
Auckland City Libraries' experience of removing internet charges. The key areas the
workshop will focus on are the philosophy behind providing free internet access, the
planning and implementation phases, service approaches taken to manage customer
demand, customer uptake and key learnings from the change.

Discussion and questions will be encouraged throughout the workshop. An overview of the
material to be covered is provided in the following paper.

Philosophy behind removing internet charges
The introduction of free internet at Auckland City Libraries supports the New Zealand
Digital Strategy and Auckland City Libraries strategic direction “Ki Mua.” Ki Mua challenges
Auckland City Libraries to respond to customer needs in key areas, including information
access and learning.

Auckland City Libraries managers identified benefits expected from removing internet
charges. These included:
   • reducing perceived and actual barriers to accessing the world of knowledge
   • creating opportunities for communities of interest to engage online
   • enabling greater participation in e-govt and e-democracy

The provision of free internet is seen as one of the ways in which customers can find
information in a supportive and friendly environment.

Funding
Removing internet charges was funded as part of money allocated by the Mayor and
councillors over a ten-year period to enhance the city’s community facilities. The proposal
to remove internet charges was strongly endorsed by senior council management,
councillors and the mayor.

The major cost to offset was the loss of revenue. Previously Auckland City Libraries
charged $1 per half hour and $2 per hour for customers to search the full web or access
their email accounts. Overall, the cost has proven to be relatively small in comparison to
the level of use and benefits delivered.

Implementation
The implementation of free internet access at Auckland City Libraries took five months
from November 2006, when the funding was approved, to April 2007 when free internet
went live.

Although removing the charges to free internet was easy to achieve technically, the project
team identified a number of key issues that required resolution before free internet went
live. These included:
    • who should have free access to the internet?
    • installation of new computers and furniture
    • upskilling of staff
    • communication and promotion
    • managing demand

Who should have free access?

One of the main policy decisions needed of the library’s management team was who
should have access to free internet. The two options were: (1) library members only or (2)
all visitors to Auckland City Libraries.

One view was that the option of restricting free internet access to library members only
was a way to help increase membership. But after considerable discussion it was decided
that enforcing the membership requirement did not fully remove a barrier to accessing
online information by the library's total customer base.

The management team therefore endorsed the recommendation that free internet was to
be made available to all visitors to Auckland City Libraries, with the proviso that library
membership would be promoted to non-members who accessed the service.

New computers and furniture

As part of the implementation of free internet, 46 new computers were ordered through
Auckland City Council’s Information Technology and Communications (ITC) department.
This brought the total computers available for free internet to 228 across the seventeen
sites.

A major issue that the project team had to face was the time involved for the manufacture
of desks for the new computers and the undertaking of cabling work. It was confirmed that
it would take six weeks for the desks to be manufactured and one month for the cabling to
be completed.

It was agreed that it was important to go live with the extra computers in place. The
original go live date of late February 2007 was extended to April 2007.

Upskilling of staff

The library’s management team wanted staff to be competent in using the reservation
software, “Pharos,” to manage bookings for free internet. There was a perception that
most staff would be already competent in using the software as it had previously been
used to manage charging.

Following a needs analysis, there appeared to be a need for staff to receive more training
in using the software application. Gaps were also found in the area of assisting customers
to do things like save documents to CDs and set up email accounts. The project team
recruited four staff who were competent in using the reservation software to train key staff
at each site.

Communication and promotion

Auckland City Libraries has a dedicated Marketing team who put together a promotional
campaign for free internet. The promotion ran for a period of one month, beginning three
days after the charges were removed. The buffer of three days provided staff with time to
resolve any ITC issues and get used to the new configuration.

Promotional tactics included media releases, adverts in suburban newspapers, promotion
to schools via newsletters, exterior window signage, in-house posters and banners and
branded wristbands for children.

Managing demand

The project team put in place a number of strategies before the charges were removed to
manage potential demand. These included:
   • limiting the maximum number of internet sessions a customer can have to three per
      day
   • introducing computers that were available for either 30 minute or 60 minute
      sessions. The 30 minute computers are beneficial to customers who wish to carry
      out quick transactions, e.g. check their email
   • dedicating computers for accessing the OPAC and Auckland City Libraries website.
      The ratio of OPACs to free internet capable computers can be changed according
      to demand at a particular site

Post implementation
Since the removal of internet charges there has been a significant increase in the numbers
of customers accessing the internet within the library. Within a three month period:
    • the time free internet has been accessed has more than doubled from 11,208 hours
       in April 2007 to 23,029 hours in July 2007
    • the amount of internet sessions have increased by 124%
    • use of the printing facilities is averaging 23% more jobs than before free internet

With the increase in use of the internet within the library, two key issues have emerged: (1)
internet response times and performance, and (2) behavioural issues with children during
the school holidays.

Internet response times and performance
Customer complaints regarding the slowness of speed and international sites not loading
correctly have been received since the internet charges were removed,. Options under
consideration to address this issue include:
   • increasing the bandwidth. Currently the international bandwidth is 3Mb. The
       possibility of increasing this to 4Mb is being investigated
   • charging for high usage websites such as Bebo and YouTube which are popular
       social networking sites – this option isn’t favoured as it goes against the principle of
       free internet for all.
   • introduce "diversionary" activities to reduce demand i.e Xbox or Playstations. This
       is a tactic employed at other libraries through out New Zealand, for example New
       Brighton Library in Christchurch and Tupu Youth Library in Manukau

School holidays
The second key issue experienced since internet charges were removed occurred during
the last school holidays. Children clambered to access the internet for gaming. Complaints
were received from adults who questioned why children were allowed to use the
computers for gaming when adults had legitimate research to carry out. Incidents were
also reported of children bullying other children to gain access to their passwords. A
number of tactics have been investigated to assist in managing demand during the
holidays. These include:
    • setting aside computers specifically for adults and children who wish to study
    • reducing further the number of sessions allowed per day
    • reviewing behavioural management strategies for peak times (including but not only
       school holidays)

Key learnings
In summary and from a project perspective, the key learnings from in removing the internet
charges are:
    • the removal of charges does increase the number of people accessing the internet
      within the library. Anecdotally, free internet is attracting people who previously
      would not see the library as being relevant to them
    • never underestimate the delivery period of furniture and the availability of
      tradespeople
    • ensure support is in place for staff in the form of. training and communication
    • ensure strategies are in place before the internet charges are removed to manage
      demand in school holidays and at other peak times
    • engage the support and expertise of information technology and marketing staff
    • having a robust case based on bridging the information divide is the vital step in
      convincing councillors of the need to reduce revenue to inspire use