CIDL Activities 2003

CIDL sponsors Canadian Metadata Forum 2003

Library and Archives Canada September 19 & 20, 2003
CIDL assisted the Library and Archives Canada with preparations for the 2003 Metadata Forum. CIDL also supported the Metadata Forum with a $500 sponsorship. The Metadata Forum purpose is to bring together participants from the Canadian metadata practitioner communities, both government and non-government, to discuss common concerns and develop a common approach to using metadata for improved information discovery.

Assessment of Organizational Options
for Canadian Initiative on Digital Libraries

For the Digital Library Task Force (Library and Archives Canada)
and CIDL Steering Committee, April 2003

Table of Contents

Introduction

Section 1. Review of CIDL: Interview Findings

1. Present Mandate and Programme of CIDL

2. What CIDL Objectives and Tasks should be: Programme Priorities

3. Connections to the Community

4. Relationship to the Library and Archives Canada

5. Effectiveness: Funding, Administrative Support and Sustainability

Section 2. The Environmental Context

1. Role of Library and Archives Canada in Digital Library Activities

2. Canadian Digital Library Issues: Interview Comments

3. Other Organizations: Analogies and Insights for CIDL

Section 3: Organizational Options and Rationale

1. Organizational Options

2. Recommended Option and Key Success Factors

3. Mandate and Programming Priorities

4. Relationship to Library and Archives Canada

5. Funding, Sustainability and Administrative Support

6. Conclusion

Selected Bibliography

Appendix 1. Position Paper and Questionnaire

Appendix 2. People Consulted

Introduction

This report was commissioned in March 2003 by the Digital Library Task Force of the Library & Archives Canada, and the CIDL Steering Committee. The purpose of the study was to:

"examine organizational models for CIDL that will enable it to be more self-sustaining, develop a more active program, and have a clarified relationship with the Library and Archives Canada. The study will address options in the areas of: funding levels and sustainability, mandate and programming priorities, staff and administrative support requirements, and CIDL's organizational relationship to the Library and Archives Canada."

A position paper and questionnaire (Appendix 1) was developed in consultation with the CIDL Steering Committee and Library and Archives Canada staff involved with CIDL, and used as a basis for telephone and email interviews. Interviews were conducted with key stakeholders within CIDL and the Library and Archives Canada, with representatives of other libraries and organizations in Canada and internationally. See Appendix 2 for the list of participants. The information from these interviews was supplemented with research of analogous organizations, funding, and organizational options.

Interview comments were summarized for this report, and the contents of the report are the responsibility of Jocelyn Godolphin and Associates. Thanks are owed to the many people whose willingness to give time and participate was essential to the completion of this report.

Jocelyn Godolphin and Associates
March 31, 2003
(Accepted CIDL Steering Committee, June 13, 2003)

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Section 1. Review of CIDL: Interview Findings

This section summarizes respondents' views on CIDL's mandate, relationships and effectiveness, and includes responses to questions 1-5, 7-11 (Appendix 1).

1. Present Mandate and Programme of CIDL

• Although there was general agreement with the objectives and methods of CIDL, members had many different ideas about the role of CIDL.
• CIDL works at a national level and provides a national forum for Canadian efforts to create a digital library.
• CIDL is not a builder of digital projects, but focuses on collections issues.
• CIDL works most effectively as an information source, a forum, and as a group supporting awareness, education, and networking.
• A number of respondents had anticipated that CIDL would assist with funding of digital projects. This includes being a source of funding, distributing funds from elsewhere, leveraging funds from the government, and/or advocating for funds.
• Some discomfort was also expressed about potential conflict between CIDL as a members' association and being responsible for distribution of funds to members. The CIDL "sponsorship" of the Our Roots project was seen by some as a conflict of interest.
• Some members felt that CIDL funds should be used for national priorities, not for local projects.
• CIDL has had limited or no impact on some members; some are not sure what it is doing.

2. What CIDL Objectives and Tasks Should Be: Programme Priorities

• Members had different ideas about what CIDL priorities should be.
• Be visionary. Develop a national digital library vision. Develop a national framework for the building of a Canadian digital library.
• Be comprehensive in its approach to digital library issues; be engaged in all aspects of digital library efforts that advance Canadian libraries.
• Focus on preservation of retrospective Canadian collections. Other respondents felt that "born digital" collections should be included.
• There is a need to clarify the contents of CIDL's digital library. Some respondents suggested that the focus should be humanities and social sciences; others felt it must include scientific information. There is also a need to clarify whether CIDL's concerns are only for made-in Canada digital collections, or more broadly collections needed by Canadians.
• Possible roles include: leadership, advocacy, coordination of digital collections and projects, lobbying and funding facilitation, coordination of government funding, education and communication, information transfer, networking, monitoring.
• Other work that was suggested was involvement in standards development, including Canadian representation in international standards work, development of toolsets and a common environment to facilitate local digital projects, and providing a source of expertise for digitization practices, for business plans for digital projects, or for funding sources.
• Some respondents noted that CIDL's mission included two separate functions: one as leadership organization for Canadian digital libraries, the other as a service organization providing support and training. Other respondents felt that CIDL was both of these.

3. Connections to the Community

• Respondents agreed that collaboration and cooperation is essential in the digital library environment.
• Focus on creating relationships among libraries first, before looking to museums and archives communities.
• Connections with the archival community exist, since many libraries' digital projects occur in archives. The integration of the National Library and the National Archives will encourage these connections.
• Potential partners included OCLC, CIHM, provincial groups and initiatives, foundations (mostly unspecified).
• Convergence between cultural institutions, museums, archives and libraries, is occurring in the digital context. Some respondents also noted that there are still real differences in terms of users and audience needs, and in technical issues such as object representations, etc.

4. Relationship to Library and Archives Canada

• Some respondents suggested that CIDL should be folded into Library and Archives Canada and become a program, an initiative, or perhaps a funding agency in the way VMC acts for CHIN. Others felt independence would best ensure it remained member-driven. Others felt it should remain connected with a clearer dotted line relationship. For others, a close relationship is appropriate, but clarification of that relationship is needed.
• The original intent was separation from LAC.
• Library and Archives Canada provides significant support and contributions to CIDL, including in-kind administrative support.
• Library and Archives Canada sees CIDL as a support to Library activities, as a conduit from the community, and from the Library to the community, and as a mechanism for sharing.
• Nimbleness and ability to react may be limited by CIDL's being part of a bureaucracy. A lack of clarity of purpose may also be a result.
• CIDL's funding and funding role are constrained by its relationship to the Library and Archives Canada. It cannot hold money, and it is tied to government spending regulations in its operations.
• Lack of visibility and confusion on the part of funders and government agencies about what CIDL may also result from a close relationship.
• Respondents perceived this relationship as a dilemma, in several ways: Lobbying: work within the Library, or as an independent lobbying group for the Library and the digital library community?
• Sustainability: If within the Library, what commitment to sustainability is there and how can it be assured? Outside of the Library, financial viability of a small member organization is an issue.
• Priority setting: Who decides priorities: CIDL or Library and Archives Canada? Are CIDL priorities always Library priorities? Will the group's priorities be swallowed up in the larger unit's needs?
• Leadership or ownership: Being part of a large organization and having access to expertise, support, etc., is balanced by the possibility of being lost in it.

5. Effectiveness: Funding, Administrative Support, and Sustainability

• Some respondents recognized the need for CIDL and were committed to its continuing.
• Others wondered if it was a solution in search of a problem. Others suggested that another middle group may make the funding situation more complex.
• Many respondents expressed a need for a strategic planning process and a review, involving all members. It is important to clarify CIDL's purpose, and not play too many roles, to define its mission more narrowly. Don't do things that other groups can do; look for the gaps. Ensure sustainability.
• The need for person power was recognized in making CIDL more effective, including a director or project officer, even part-time, and supporting resources. It was noted that completely volunteer organizations have difficulties being really active.
• Respondents suggested the need to engage and organize members, and use their expertise. Working groups were suggested as one way of doing this.
• Community news in the Newsletter and the bursary program were ways of providing value to members. Some members were not aware of the bursary program.
• Some respondents said that if CIDL was more active, they would provide a little more. A need for accountability was also expressed.
• Some suggested that Library and Archives Canada could contribute more, as an investment in the library community, and recognition of its central coordinating responsibility. Others felt that an in-kind contribution from the Library was sufficient.
• Contributions from members are a means of ensuring commitment to the goals of th organization. Centrally supported (i.e. federally funded) organizations tend not to survive.
• Respondents wanted to see a return for their investment, with some coming back to the members. It was important to offer benefits to the members, such as discounts for conferences, information, and support.
• Some members would have a hard time paying more. Some don't want to support more than a secretariat. It was suggested that membership fees could be on a graduated scale.
• Increasing the membership base is important. Review membership criteria, with a view to widening the types of groups that could join.
• Respondents wondered if funding could come from sponsors, foundations, other funding sources, but had few concrete suggestions.
• The membership base is constrained because many libraries (especially public libraries) are not engaged in digitization projects, and their priorities for action are elsewhere. Even some CIDL members do not have digital projects.

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Section 2. Environmental Context

1. Role of Library and Archives Canada in Digital Library Activities (responses to question 6, Appendix 1)

• Some respondents felt Library and Archives Canada was showing real leadership in digital library activities, others perceived that it was still finding its way.
• Respondents suggested that the Library could play a stronger role in advancing digital library activities in Canada, since this was part of its mandate. National libraries in other countries were doing what CIDL had as its mission. Some suggested that the coordination of a national initiative is the role of the Library.
• Perhaps the CIDL - Library relationship has affected the visibility of some of the activities of Library and Archives Canada. The Digital Library Task Force may not have communicated its work effectively to the community.
• Respondents suggested that Library and Archives Canada could take responsibility for standards development, for copyright and rights management issues, for preservation of digital government publications, or indeed the preservation of all Canadian content.
• Some respondents felt that the Inventory of Canadian Digital Initiatives should be maintained by the Library, others felt it was appropriate with CIDL because of its community base.

2. Canadian Digital Library Issues: Interview Comments

• Respondents recognized the need for both policy and coordination for digital library activities in Canada. Presently the risk is the fragmentation of the national strategy.
• The involvement of the community in the creation of the digital library in Canada was essential. Digital libraries had to be done as partnerships; distributed models were an advantage.
• The community has gone beyond digital projects to digital programs, and sustainability is a key issue.
• Some felt that there was a piece missing in Canadian Heritage's programs, since there was no plan for digital library funding, for long-term digital projects or sustainability. The current focus on youth and K-12 is at odds with the sustainability requirement for digital collections.
• The "Wall Report", commissioned by Canadian Heritage, identifies the options for financing and sustaining digital projects. www.pch.gc.ca/progs/pcceccop/reana/wall_e.cfm
• The intent of Canadian Heritage funding is to make Canadian content accessible to Canadians, with a focus on youth. Sustainability of projects is not necessarily a primary consideration. Canadian Heritage, in its funding objectives, is pursuing its stated objectives of making Canadian culture accessible to all Canadians. Thematic projects are important, and funded projects must fit objectives
• Using technology to make content engaging is an important aspect of innovation for Canadian Heritage funding. Some suggested that innovation was seen by Canadian Heritage through a technology lens. Innovative content or other ways of being innovative were not recognized.
• Preservation is not being addressed by Canadian Heritage. Preservation is not a focus of Canadian Heritage programs.
• Copyright issues are important for libraries. Canadian Heritage's objective of protecting creators' rights may not be in the best interests of libraries, and the Canadian public.
• Open access to published information is at risk, if copyright in the electronic environment rests with the first appearance of a work. It is important that libraries take this message to Canadian Heritage.
• Having one organization represent a group of libraries can make life easier for Canadian Heritage since they are presented with a coordinated plan. On the other hand, presenting a choice of projects to Canadian Heritage allows them to choose the projects that best fit their objectives.
• CISTI is interested in digital projects for scientific literature published in Canada and for information needed by Canadian researchers. The perspective is useability, as much as preservation. These needs should be reflected in CIDL activities, if it represents the Canadian digital library.
• What is the definition of the Canadian digital library? Does this concept include all information in Canada, including scientific information? Is this also part of Library and Archives Canada's mandate? These issues of scope have not been discussed and clarified at a national level.

3. Other Organizations: Analogies and Insights for CIDL

Canadian Institute for Historical Microreproductions (CIHM) www.canadiana.org/cihm

CIHM was originally founded nearly twenty-five years ago with a grant from Canada Council. Its funding model has changed considerably, and despite obtaining funding from a variety of sources, sustainability remains an issue because not all of the funding sources are stable. CIHM develops digital collections on behalf of the research community, whose members are represented on the Board of Directors and various Advisory Committees. Some respondents noted that it is engaged in national preservation work, and therefore has a relationship to themandate of Library and Archives Canada

Canadian Association of Research Libraries CARL (www.carl-abrc.ca)

Recently members of CARL agreed to an increase in membership fees to add a third person to staff, in order to have more active programmes. CARL works on digital library issues of interest to the research library community. It does not represent all research libraries, since the research community as defined by CNSLP membership is larger. CARL members make up the bulk of CIDL members, and only one CARL member does not belong to CIDL.

Canadian National Site Licensing Project (www.cnslp.ca)

Presently working under the umbrella of the University of Ottawa, CNSLP is moving towards incorporation because of its need to enter into contracts, because of its scale, and because of liability issues. It will continue to be a program, representing its members. Incorporation is seen as a vehicle to do the work, not as a transformation of the organization.

Museums Community: CHIN and the Virtual Museum of Canada

CHIN (Canadian Heritage Information Network) (www.chin.gc.ca) is a Special Operating Agency in the Dept. of Canadian Heritage, whose activities are oriented around 2 elements: content development and building capacity for the museum community. It provides the "heritage community with professional resources, with a focus on skills for creating, presenting and managing digital content," and collaborates with the community to provide public access to Canadian museum resources. CHIN membership is free to all public, not-for-profit, Canadian museums.

Developing online content is a collaborative effort through the Virtual Museum of Canada (VMC) (www.virtualmuseum.ca) Investment Program, which is not a grants and contributions program. Rather CHIN enters into joint project agreements with members to create content. CHIN operates the VM search engine and promotes the Virtual Museum. Museums develop content and may host content on their web sites. An Editorial Board provides strategic direction, evaluates, and recommends proposals to CHIN. VMC also contributes to skill developmentthrough courses, and fostering learning in various ways.

Archives Community: CCA, CHIN, and Library and Archives Canada

The Library and Archives Canada is committed to digitization as a way of developing relationships with user groups, and is looking at repositories of selected primary resources, as well as interpretative materials to support the use of these resources. Digital collections are a means of outreach, of making the Archives a part of people's lives. This is a transformation in the role of archives, and encourages interaction with other cultural institutions. The way that re:source, the British agency which represents museums, archives, and libraries, is fostering collaboration is viewed as a possible model.

The Canadian Council on Archives (www.cdncouncilarchives.ca) was established in 1985 to represent the archives community. Originally part of the National Archives, since 1990 it has functioned as a separate organization, although still housed in and supported by the Library & Archives Canada. The community representatives are from the councils of the provincial/territorial archives networks. The CCA and its programs are supported through funding from Canadian Heritage and the Library and Archives Canada. CCA operates quite independently, and is planning a physical separation, with the realization that there are both positive and negative effects. CCA shares programs with CLA, ASTED, and some other library organizations.

The Canadian Archival Information Network (CAIN) (www.cain-rcia.ca) was established in 2001 to provide access to Canadian archival holdings through a distributed network of networks to integrate and share information. The digital activities that are a part of CAIN are a result of the funding policies of Heritage Canada. Since digitization is not a means of preservation, it is less important for the archival community. Sustainability of these digital projects is a real issue, since funding will end next year.

International Consortium of Museums CIMI

CIMI is mostly concerned with technical issues and standards, although its general mission includes leadership, research, education and awareness. "Its history is mainly a history of projects and their results." Its maximum membership level is about 30 members and 4 sponsors.

In January 2003, CIMI eliminated the membership dues requirement, in hopes of widening the membership base. Major sponsors are now committed for 3 years. CIMI will be seeking museum partners, and is hoping to find additional sponsors to fund the secretariat. It may also establish a category for commercial members, and will continue to look for grants to fund its research work. It has a three-year window to make this work.

CIMI has a close relationship with government bodies in many countries, and some libraries are involved. CHIN is a sponsor. Members are eligible for discounts on CIMI Institute events. Open meetings and online forum are means of communication. Training sessions are offered by sponsors. Everyone takes part in open implementation initiatives. The Executive Director of CIMI stressed the need for an organization to have focus and purpose, and suggested that leadership or service is the choice. Adequate resources are important, to avoid becoming a hamster wheel organization. He noted the importance of being nimble, of taking advantage of opportunities, and being responsive to members. (The Digital Library Federation works on a five-year mandate, followed by a review. They have recently begun another five-year program. CIMI is working within a three-year time-frame.)

National Library of Australia (www.nla.gov.au)

In its digital library activities, the National Library of Australia recognizes the need for collaboration between libraries, national cultural institutions, and cultural agencies. The Library works with other institutions, particularly the scholarly sector, on digital projects. As well as its own digitization projects, it hosts several collaborative services focused on digital library collections. At this moment, it is hosting a secretariat to a new body, Public Libraries Australia, which is developing a new national network among public libraries. This is seen as a way to develop stronger relationships with public libraries, and is not envisaged as permanent support.

The National Library of Australia is a member of the Council of Australian State Libraries and the Council of Australian University Librarians, and participates in projects sponsored by these groups. Public libraries are usually supported within their state or territory.

The Library also produces support documents intended for all levels of libraries as well as other agencies, with the intention of educating and sharing information. They host a discussion list, as well as details of Australian digitization projects.

National Library of New Zealand (www.natlib.govt.nz)

The National Library of New Zealand's digital library activities involve digitization, standards, and processes for managing digital collections under their national mandate. To facilitate interoperability, they have been developing a formal approach to metadata standards, believing that the New Zealand library community is looking to the National Library for leadership in this area. They are also working on internal processes to incorporate digital material as a collecting agency and also to implement digital library activities. The National Library is presently engaged in a review of their digital library activities with a view to developing a benchmark for progress.

They are discussing with Archives New Zealand and the national museum Te Papa the potential for shared activities, and are clear on the need for the museum, library, and archives community to work together on common issues around digitization. The key vehicle for collaboration in the library community is the National Digital Forum, which includes a Committee to ensure that Forum outcomes are pursued. One was held in 2002 and another is planned for later this year. The Library also supports a register of digitization initiatives, and is looking to developing closerbconnections to the university libraries and the national library association.

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Section 3. Organizational Options for CIDL

1. Organizational Options

The following organizational options for the Canadian Initiative on Digital Libraries were considered in view of the interview responses and environmental factors summarized in the first two sections.

1. Cease to exist. Library and Archives Canada can decide what community support is needed for digital library activities, and establish a consultative committee or support group. Other library organizations would continue digital library activities. However, most members would like CIDL to continue, and the Library and Archives Canada has indicated the usefulness of CIDL and its willingness to continue support.
   
   
2. Integrate with another group or organization. Many CIDL members belong to CARL, but CARL does not represent public or other types of libraries. Although CLA has been lobbying on issues such as preservation of digital government publications, many CIDL concerns would be lost in this larger organization. There is no CLA interest group for digital library issues.
   
   
3. Separate from Library and Archives Canada, and cease the contractual relationship. Sustainability would be a real issue. CIDL would be free to lobby, engage in funding, etc., but would have to find funding for space, network connections, technical support, and the other inkind support provided by the Library and Archives Canada.
   
   
4. Continue in the present role and relationship. Since this review was requested from a conviction that change is needed, this alternative is not viable.
   
   
5. Develop a mission and objectives that are realistic for CIDL, in the context of the relationship with the Library & Archives of Canada. Embody these objectives in the context of a short-term work plan, including modest increases in staffing support and funding.

2. Recommended Option and Key Success Factors

The recommended option is the preceding last one (5.): develop a mission and objectives that are realistic for CIDL, in the context of the relationship with the Library and Archives Canada.bEmbody these objectives in the context of a short-term work plan, including modest increases in staffing support and funding.

This option builds on CIDL's strengths and relationships, while recognizing the realities of the Canadian context. A critical part of this recommendation is a strategic planning process.

Key success factors include:

1. Separate the mission and purpose of CIDL from that of the Library and Archives Canada. Acknowledge organizational realities of CIDL. Develop a consensus among the members of its mission and objectives in an inclusive and focused process. This study was commissioned as an organizational review, but as one respondent commented: "The organizational structure is a tool; the first task is to determine the purpose of the tool."
   
   
2. Develop a strategic plan for action that clearly identifies tasks, who is responsible for ensuring their completion, timelines and expected outcomes. Consider allocating funds for an executive director to work with the Steering Committee on this action plan. Develop this for a relatively short time frame of three to five years.
   
   
3. Consider opening membership to library organizations and consortia as well as libraries, andb recruit sponsors. Peg increases in membership fees to activities to demonstrate accountability. Involve more members in activities.
   
   
4. Discuss the possibilities for more support for CIDL activities with the Library & Archives Canada. Consider the possibility of CIDL being an adjunct of the Digital Library Task Force unit, for more efficient communication within the supporting organization.

3. Mandate and Programming Priorities

Changed environment: a need remains

Since CIDL was founded in 1997 as a membership association contractually related to the then National Library of Canada, the terrain for digital libraries in Canada has changed. The Library & Archives Canada has become more active in digital issues. Development work on technical issues has clarified needs and areas for action. Many digital projects have been completed. And the need for community action on preservation, access and funding issues for a Canadian digital library program is just as pressing. (Examples are the creation of the Digital Library Task Force Unit in 2000, and the document, "Positioning the National Library of Canada in the Digital Environment: Strategic Directions" www.collectionscanada.gc.ca/about-us/010/012010-1002-e.html)

The Library and Archives Canada's mandate, which includes building the Canadian digital library, will need community support. If it is a truism that the digital library must be a collaborative effort, the usefulness of a national, multi-institutional member association is equally obvious. Persuading Canadian Heritage and other governmental agencies that preservation and sustainability of digital collections are important for Canadian culture is a critical task for a library community organization.

Mandate and programme choices for CIDL

The present mission statement, "CIDL promotes, coordinates and facilitates the development of Canadian digital collections and services in order to optimize national interoperability and longterm access to Canadian digital library resources," gives CIDL a lot of work, and encourages the diversity of opinion among members about CIDL functions. CIDL is a small organization, and unlikely to grow significantly, given the size of the Canadian library community and the presentb level of digital activities. CIDL needs a clearer, more realistic mission and objectives. (A reviewb of CIDL members' websites by Michelle Landriault indicated that a number of CIDL members do not have active programs of digitization.)

The following purposes for CIDL were all suggested during the interviews:

1. Member organization for libraries engaged in digitization of collections
   
   
2. Leadership organization for Canadian libraries on digital library issues
   
   
3. Training and support organization for digital library skills and development
   
   
4. Funding agency, a coordinator of funding, an information source for funding, a funding seeker.

The sphere of CIDL activities also needs definition. Should its concerns be:

1. Historical Canadian collections only, i.e. digitization of Canadian material
   
   
2. All Canadian collections, including born digital, scientific literature, etc.
   
   
3. Collections only, or the full range of digital library issues, such as technical issues,standards, copyright?

Even the decision of the CIDL Steering Committee, October 2001, that CIDL would not produce content, is not understood by all members.

This lack of clarity about the objectives and focus for CIDL activities gives members unrealistic expectations, and makes it a challenge to recommend an appropriate organizational structure. CIDL members are both expecting leadership and wanting support, and it is not clear that CIDL can provide.

Build on strengths

CIDL's leadership role, if the members prefer, needs to be contextualized, by acknowledging the Library and Archives Canada's mandate and its role as a national institution.

Funding is a powerful means of achieving an objective. However, unless CIDL is able to define itself as a formally constituted authority, it may be preferable for the libraries or institutions that are engaged in digital activities to apply directly for funding. CIDL could have an important role in identifying and promoting funding opportunities and in encouraging collaboration in funding applications.

The work of coordination, education, communication and liaison has been a successful part of CIDL's activities, and is highly regarded by members. Training and coordination in the technical aspects of digital library development was also valued by members. Collaboration is an important function, and essential to digital library activities, and there are a number of different areas in which this could be effective.

External relationships

Members were aware of the need to build better library community partnerships, including active connections with other library organizations such as CARL, CISTI, etc. Many of the digital projects in CIDL libraries are occurring in their archives divisions.. Collaboration with archives and museums on common issues would strengthen the initiatives of all sectors.

The importance of collaboration between libraries, archives and museums was noted by respondents from both the New Zealand and Australian national libraries. In Great Britain, the cultural community is connected by re:source, the Council for Museums, Archives and Libraries (www.resource.gov.uk). Re:source works with and through the existing cultural heritage organizations on promoting and facilitating digital activities.

In Canada, the organizational support structures, and connections to governmental agencies, in the museum, archives and library communities, reflect their different histories, aims and concerns. Since the library community is the most developed in terms of digital activities, CIDL might involve museum and archives groups in discussions about commonalities in the digital transition. Although there is enough work to be done in building connections within the library community, it would be well-advised to look for collaboration possibilities with other cultural institutions.

4. Relationship to Library and Archives Canada

Separate identity needed

The relationship to the Library and Archives Canada is important to CIDL's viability, and the Library believes that the community support provided through CIDL is appropriate. Yet CIDL documents, such as its brochure, do not define this connection. CIDL needs to separate its mission, and define its sphere of activity, in relationship to the Library and Archives Canada. The Library & Archives Canada is the public institution with the mandate to build the Canadian digital library, and the role of CIDL needs to play out in that context.

Streamline CIDL's relationship in the Library

The formation of the Digital Library Task Force three years ago represents a significant change in the Library's digital library focus. Consideration should be given to streamlining CIDL's relationship in the Library by situating it in the Digital Library Task Force unit, since this unit and CIDL work closely together.

Community representation possibilities

The reorganization of the Library and Archives Canada may mean that CIDL cannot expect much response from its parent organization in the short term. However, this reorganization process is an opportunity for CIDL to suggest the importance of permanent ongoing community relationship, to assert a community leadership role.

5. Funding, Sustainability and Administrative Support

More members needed

A larger membership would make a more viable organization. The potential for expansion of CIDL membership among libraries is limited, because the appeal of membership is mostly felt by libraries engaged in digital projects, and many libraries, especially in the public library sector, have not begun such projects. CIDL will need to consider expanding membership to other library organizations and consortia. The best publicity is activity.

Involve members

There is a pool of talent among CIDL members that has not been exploited. Consideration to involving more members is needed, such as working groups and subcommittees. Associate members being eligible for Steering Committee membership may be another. Both the website and the CIDL newsletter should be directed towards the news and needs of the community, rather than the internal activities of the Steering Committee.

New funding sources difficult

Member tolerance for fee increases is small, unless increases can be tied to returns to members and increased activity. A sliding scale might better acknowledge the budget constraints felt by smaller members. CIDL has already identified the possibility of a sponsor category for membership.

There are few funding sources for Canadian organizations. If CIDL established itself as a charitable organization, it could appeal to foundations, but it would be unlikely to receive funds for its operations. The main reason for incorporation would also be if CIDL were handling funds for digital projects.

In-kind support

In-kind support provided by the Library and Archives Canada includes office space and network support for the secretariat, accounting and administrative support, in addition to staff commitments. This support is critical to CIDL's sustainability, in the absence of a major funding windfall. (The leasing cost for 500 sq ft of mid-range office space in Ottawa, based upon recent investigations by the Canadian Association for Graduate Studies, is $1000/month. This amount of space provides offices for 2 people, meeting and storage space. For comparison, CIHM, in 2001, estimated the value of the office space, LAN access, technical support, software and staff costs provided for its operations by the National Library of Canada was in the order of $100,000 to $150,000 a year.)

Importance of dedicated staff time

The current administrative assistant supports work that members think is important: newsletter, website, member communications, as well as day-to-day administrative operations. The Library & Archives Canada provides in-kind staff support for CIDL activities and administrative direction. It was also recognized that it is difficult for a purely volunteer organization to be very active. An accountable, committed Executive Director, even if part-time, could have a significant effect on CIDL activities.

6. Conclusion

Digital library activities in other countries demonstrate that both national library and community engagement are critical. The cost of this enterprise requires the support of government funding agencies, and government policies that reflect an understanding of the central importance of preserving a nation's cultural heritage. The library community decided in 1997 to be an active participant in the Canadian digital library enterprise, and this review suggests CIDL's continuing importance as the library community's voice.

Selected Bibliography

Belfall, Donald. Associations in Canada, Future Impact and Influence. Toronto, Foundation for Association Research and Education, 1995

Berthon, Hilary et al. "A Cooperative Approach to Building a Digital Preservation Resource." D-Lib Magazine. Vol. 8:1, Jan 2002. www.dlib.org/dlib/january02/berthon/01berthon.html

Building a National Strategy for Digital Preservation: Issues in Digital Media Archiving. Washington. DC: Council on Library and Information Resources and the Library of Congress, 2002. www.clir.org

Drucker, Peter F. Managing the Non-Profit Organization. N.Y., Harper Collins, 1990.

Gahlinger-Beaune, Rosemary. Good Work, an operations manual for Canadian Not-for-Profit Organizations. Whitby, McGraw-Hill Ryerson, 1993.

MacLeod, Flora. Forming and Managing a Non-Profit Organization in Canada. Vancouver, Self Counsel Press, 1995.

Phillips, Margaret E. "Ensuring Long-Term Access to Online Publications." Journal of Electronic Publishing, v. 4:4, June 1999. www.press.umich.edu

Smith, Bucklin & Associates. The Complete Guide to Nonprofit Management. New York, John Wiley & Sons, 1994. Status of Technology and Digitization in the Nation's Museums and Libraries 2002 Report. Institute of Museum and Library Services IMLS Public Report, May 10, 2002. www.imls.gov/Reports/TechReports/summary02.htm

Stern, Gary J. The Drucker Foundation Self-Assessment Tool. New York, The Drucker Foundation, 1999. A Study of Business Models Sustaining the Development of Digital Cultural Content. Prepared for the Department of Canadian Heritage by Wall Communications Inc. June 4, 2002. www.pch.gc.ca/progs/pcce-ccop/reana/wall_e.cfm

Tanner, Simon and Marilyn Deegan. "Exploring Charging Models for Digital Library Cultural Heritage." Ariadne. Issue. 34, Jan. 14, 2003. www.ariadne.ac.uk/issue34/tanner/intro.html

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Appendix 1. Position Paper and Questionnaire

Canadian Initiative on Digital Libraries
Organizational Review March 2003
Position Paper and Questionnaire

1. Canadian Initiative on Digital Libraries

Purpose and Mission:

"CIDL promotes, coordinates and facilitates the development of Canadian digital collections and services in order to optimize national interoperability and long-term access to Canadian digital library resources." (Website, Brochure, By-Laws) "the development, access and preservation of digital Canadiana" (Vision paper "A Collaborative Digitization and Digital Preservation Strategy for Canadian Libraries, Jan 15, 2003 draft).

Objectives:

• Access policies and practices to achieve open access and interoperability
• Long-term preservation and accessibility through standards and collaboration
• Increased awareness and reduction of duplication
• Rights management and copyright
• Funding for the Canadian digital library

Methods:

• Leadership and advocacy, within library community and government, nationally and internationally
• Collaboration and coordination, within library community, with government agencies and information providers, nationally and internationally
• Funding/fundraising
• Communication and education.

Achievements include:

• Canadian Inventory of Digital Initiatives
• Initiation and coordination of Our Roots: Canada's Local Histories Online
• Theses meeting, Dec 4, 2000
• Training sessions in metadata and descriptions
• Student bursary program
• Coordination and publicity through Website and Newsletters

2. Other Canadian Digital Library issues include:

• Institutional repositories (university-mounted archives of scholarly papers)
• Preservation of digital government publications
• Archiving of ejournals, licensed or created in Canada
• Provision of educational resources and teaching materials
• Electronic texts for the humanities
• Newspaper digitization
• Numeric, geospatial, image, sound data and files
• Electronic theses
• Preservation of Canadian information on the Web
• Electronic reference services

Questionnaire

1. What are the important aspects of CIDL/ICBN's mission, objectives and methods? Would you suggest any changes?
   
   
2. Should CIDL/ICBN be involved in the issues listed in section 2 above? Which ones?
   
   
3. Other groups are involved in digital library activities in Canada. Which activities can or should be left to them? What should CIDL/ICBN's relationship to these groups be?
   
   
4. Does CIDL/ICBN have a mandate for any particular content?
   
   
5. Currently CIDL/ICBN and the Library & Archives of Canada work closely together. What are the advantages and disadvantages of this?
   
   
6. What is the role of the Library & Archives of Canada in digital library activities?
   
   
7. Should CIDL/ICBN be involved in museum and archives digital initiatives?
   
   
8. Currently CIDL/ICBN is supported through members' fees and in-kind support from the Library & Archives of Canada. How should it be funded? Under what circumstances would your institution be prepared to provide greater levels of support?
   
   
9. What impact has CIDL/ICBN had on your organization? Please give examples.
   
   
10. What is needed to make CIDL/ICBN a more effective organization?
    
    
11. Any other comments about the role or organization of CIDL/ICBN?

CIDL/ICBN Organizational Review
Jocelyn Godolphin and Associates
March 10, 2003

Appendix 2. People Consulted

Magdalene Albert, CIHM
Brian Bell, Halton Information Network, Oakville Public Library
Claude Bonnelly, Bibliothèque, Université Laval
René Bouchard, Heritage Canada
Suzanne Bureau, CISTI
Pam Bjornsen, CISTI
Daniel Boivin, OCLC Canada
Deb de Bruijn, Canadian National Site Licensing Project
Debbie Campbell, National Library of Australia
Lynn Copeland, Simon Fraser University Library
Albert Cyr, Canadian Council of Archives
Bernard Dumouchel, CISTI
Gwynneth Evans
Claude Fournier, Bibliothèque National du Québec
Barbara Freeze, CNIB
Susan Haigh, Digital Library Task Force, Library and Archives Canada
Ernie Ingles, University of Alberta
Bernadette Kennedy, Nova Scotia Provincial Library
Steve Knight, National Library of New Zealand
Michelle Landriault, CIDL/ICBN
Marianne McLean, Archives, Library and Archives Canada
Bill Maes, Dalhousie University Library
Ralph Manning, Library and Archives Canada
Tim Mark, CARL
Carole Moore, University of Toronto Library
John Perkins, Executive Director, CIMI Consortium
Chris Petter, University of Victoria Library
Carolynne Presser, University of Manitoba Library
Mike Ridley, University of Guelph Library
Frits Pannekoek, University of Calgary Library
Leigh Swain, Digital Library Task Force, Library and Archives Canada
John Teskey, University of New Brunswick Library
Karen Turko, University of Toronto Library
Rick Walker, Winnipeg Public Library
Johanna Wellheiser, Toronto Public Library
Paul Whitney, Burnaby Public Library
Patricia Young, Canadian Heritage Information Network