PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND
LEGAL ASPECTS
Dr.iur. Inga Kudeikina
Riga Stradiņš University
Mg.iur. Sanita Kitajeva
Riga Stradiņš University
Abstract
Libraries have a long history. They existed ever since writing began. Historical
transformation affected not only the contents of libraries, but also their form,
mission, functions and services. With changing times and societies, evolving
information and communication technologies, and contrary to predictions that
libraries might lose their role and disappear altogether, they have changed along with
the needs, demands and habits of society, learned to draw on new technologies, so
forming a completely new understanding of libraries, their definition and role in
today’s educational, cultural, political and social environment. Development of the
library sector was affected also by global changes and crises, but libraries were able
to respond to challenges and use them as an opportunity for development, positive
changes and transformation. This was mainly thanks to a user-oriented approach
pursued by libraries, putting people and their needs, demands and rights at the
heart of library activities. This forms a new culture of libraries, taking the place of
their old philosophy, which was collection-oriented. Libraries provide free access to
information, knowledge, education, cultural heritage and cultural events, and play
a key role in science, lifelong learning, developing digital skills, improving literacy
and information literacy in society, strengthening democracy and ensuring civic
participation, promoting the use of creative potential, and ensuring access to state
and municipal services. Thus, the phenomenon of today’s library is associated with
Culture Crossroads
Volume 25, 2024, doi https://doi.org/10.55877/cc.vol25.480
© Latvian Academy of Culture, Inga Kudeikina, Sanita Kitajeva
All Rights Reserved.
ISSN: 2500-9974
PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND LEGAL ASPECTS 59
both accumulating and preserving cultural heritage and taking part in securing an
individual’s social and civil rights.
The article analyses the phenomenon of the public library as a cultural
establishment, its role in meeting the social needs of society, and problems of
legislation in the sustainable development of library activities. The focus of the
article is on public libraries, as their main task is to provide services to the entire
society. The analysis of the legal framework was carried out in the context of Latvia,
observing the international framework. This is necessary to understand how the
legal framework can ensure the development of libraries. Following the mission of
libraries to act for the public good and to put people and their needs at the heart
of library activities, the legal framework for libraries should reflect and protect
public interests and an individual’s right to information, freedom of expression and
association, diversity of opinion and belief, artistic freedom, equal treatment, culture
and education. A narrow understanding of library functions can restrict the right of
access to information, education, culture and social services. The legislator should
introduce library functions in the legal framework by including also a social aspect,
clarifying and expanding information, educational and cultural functions.
Keywords: library, cultural space, cultural heritage, civil rights, social rights.
Introduction
Considering the multi-functional role of libraries in sustainability of society,
a state’s positive duty is to develop a legal framework that would provide the legal
basis that is necessary for the functioning of public libraries, including financing.
The legal framework should serve as the legal basis for the effective functioning
of libraries, the safeguarding of public interests and rights, and the justification of
necessary funding. Libraries should be strengthened both legally and in practice as
institutions securing the effective functioning and needs of a democratic society,
as mechanisms for strengthening democratic values, as contemporary and multi-
functional information, cultural, educational and social centres.
Trends for the development of public libraries are defined in Public Library
Manifesto 2022 issued by the International Federation of Library Associations
and Institutions (hereinafter – IFLA), according to which the public library is
the local centre of information, making all kinds of knowledge and information
readily available to its users [IFLA 2022]. The role of libraries in community’s
life, lifelong learning and development of civil society is thus underscored. These
are three pillars forming a sustainable, socially responsible and prosperous society.
These trends should underpin public library legislation. In Latvia, public libraries
60 INGA KUDEIKINA, SANITA KITAJEVA
are governed by the Library Law [Latvijas Republikas Saeima 1998] and relevant
Cabinet regulations, such as the Norms of Financing Needed for Library Activities
[Ministru kabinets 2001], the Norms of the Material and Technical Basis of Libraries
[Ministru kabinets 2001a], the Regulation for the Accreditation of Libraries [Ministru
kabinets 2006], etc. Theoretically, the legislation is comprehensive, while practice
is revealing certain deficiencies associated with the application of these rules. For
instance, the list of library functions provided in the legislation has become obsolete,
which hinders libraries in obtaining financing they need, meanwhile conferring upon
local governments a wide discretion to open and shut down libraries, and, in certain
situations, municipal budget availability prevails over society’s cultural and social
needs. By highlighting the role of the public library in community’s and society’s
life, policy planners and politicians need to be alerted to the existing problems in
order to facilitate the improvement of the legal framework in line with the needs
of contemporary society in the public library sector. The impact of private libraries
on providing important functions to society is less. The differences can be seen in
features, availability, resource management and target audience. Private libraries
can be created with a specific purpose or on a topic of interest to their founders
or members. Public libraries, on the other hand, serve the general public and are
oriented towards general access to information. Private libraries usually serve specific
groups with special interests and needs. The scope of the public interest dictates that
the focus of the article is on public libraries.
Public library yesterday, today and tomorrow
As institutions, libraries initially ensure the collection, accumulation, keeping
and systematisation of cultural and historical sources. The first libraries were loca
ted in palaces and temples but they were not open to the public and were confined
only to the ruling class [Pettegree, Weduwen 2021]. Libraries retained their elite
status for a long time. Researchers demark the development of public libraries by
the following stages: in the Middle Ages, books were still expensive to produce
and acquire, they had the status of a prestigious and valuable item, a work of art
as the highest expression of visual art; in the Renaissance period, science, art and
literature flourished, the value system of society changed, marking a new era also
in the existence of libraries. In Europe, the number of universities, where medicine,
law, philosophy and theology were taught, grew rapidly. Universities took over
the formation of libraries from monasteries. The invention of printing tech-
nology in the 15th century was the greatest revolution and pivotal point in the
history of books and libraries; also, the expansion of libraries and the demand
for books were fuelled by the growth in the world population, the development
of education and literacy, emerging new ways and routes of book transportation
PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND LEGAL ASPECTS 61
[Pettegree, Weduwen 2021]. It can be concluded that the development of libraries
is linked both to technological progress, which created objective prerequisites for
the development of libraries’ technical facilities, and to social and cultural changes
in society, which enabled an increasing number of people to use the opportunities
brought by libraries.
The post-World War II library can be seen as the landmark in the development
of modern library. This period marks a rapid change in human consciousness, in the
transformation of the perception of rights as a value, and in the library as an institution
that provides resources necessary for an individual’s development. Meanwhile,
technology is also evolving rapidly, with the advent of technological tools that did
not exist before – the Internet and, more recently, artificial intelligence. Information,
communication and digital technologies were developing during the 20th century,
and their evolution continues in the 21st century at an unthinkable pace; they are
becoming even more complex and advanced, thereby posing challenges for both the
library – not to lose its role – and the legislator – to predict potential development
scenarios to be in a position to provide the appropriate legislation. Based on the
recent count, there were more than 400,000 public libraries in the world in 2022
[IFLA 2022a].
The mission of public libraries is to serve the society. This is a statutory obliga
tion. The National Library of Latvia is of special importance in the structure of
Latvian public libraries. As follows from the legal framework – “The National Library
of Latvia is a universal research library of the Republic of Latvia which is generally
accessible by the public and serves for the intellectual development of the whole nation”
[Latvijas Republikas Saeima 1992].
Public and research libraries serve important but different functions in society.
Both are essential for education, access to information and cultural preservation, but
their target audiences, resources and services differ.
Both public and research libraries are very important, and each contributes in its
own way to public education, cultural preservation and access to information. Public
libraries are more oriented towards broad public involvement and daily needs, while
scientific libraries are specialized in supporting academic and research works. The
phenomenon of the National Library of Latvia is the ability to combine both the
traditional public and scientific library missions. The third part of Article 1 of the
Law “On the National Library of Latvia” [Latvijas Republikas Saeima 1992] states
that “the National Library of Latvia is a part of the national wealth of the Republic of
Latvia”. It obliges the state to provide the National Library of Latvia with adequate
resources. On the other hand, the contribution of the National Library of Latvia to
society is the provision of diverse and regular educational, cultural, social and other
events necessary for society.
62 INGA KUDEIKINA, SANITA KITAJEVA
In order to achieve the goal of the law and ensure the development of libraries, the
Library Industry Strategy 2023–2027 has been adopted. The overarching goal of the
library industry strategy for 2023–2027 is “to develop libraries as an excellent resource
for smart and sustainable societal growth, which ensures preservation and accessibility
of Latvia’s cultural heritage, improves society’s literacy and information literacy, ensures
civic participation and supports cultural, educational and scientific processes, promotes
the use of creative potential, strengthening social cohesion and resilience, ensures the
provision of state and local government services” [Latvijas Bibliotēku padome 2023].
The strategic goals of the library industry are: 1) to promote the sustainability of
the library industry; 2) promote renewal and professional development of library
specialists; 3) ensures the availability of cultural, educational and research resources
and services; 4) promote public participation in cultural, educational and research
processes. When applying the relevant legal framework, it is necessary to be guided
by the set goals. Strategic goals reflect the direction of libraries towards ensuring
people’s well-being, building a socially responsible state and meeting the needs of a
democratic state.
The role of the modern library in social communication
Today’s library has evolved far from the original and longest-lasting conception
of the library as a physical space for collecting, preserving and accessing information,
which prevailed in its history. Historical transformation affected not only the con
tents of libraries, but also their outward appearance, mission, functions and services.
With changing times, eras, societies and political regimes, evolving information and
communication technologies, and contrary to predictions that libraries might lose
their role and disappear altogether, they have changed along with the needs, demands
and habits of society, learned to draw on new technologies, so forming a completely
new understanding of libraries, their definition and role in today’s educational,
cultural, information and social environment. Development of the library sector
was affected also by global changes and crises, but libraries were able to respond to
challenges and use them as an opportunity for their development, positive changes
and transformation. Not only have the mission, functions and tasks of libraries
changed, but also their outward appearance. Library professionals and researchers
conclude that libraries today are more than just physical spaces; they are community
hubs, a platform and even a social movement [Lankes 2019]. It is hard not to concur
with this opinion because libraries have evolved from being initially perceived as
a physical space whose core function is to accumulate printed matter to open and
public sites with a much broader array of functions and interdisciplinary nature,
bringing together culture, education, information, technology and social area. The
legal treatment of certain matters is lagging behind what is actually needed in library
PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND LEGAL ASPECTS 63
legislation. According to Article 2(1) of the Library Law, this law deals with public
relationships in the field of libraries in order to ensure the operation of libraries and
to facilitate the preservation and development of Latvia’s cultural heritage [Latvijas
Republikas Saeima 1998]. This provision shows that the purpose of the law is defined
narrowly, omitting international legal relationships and the transnational role of the
library, as well as disregarding the role of the library as a community hub. The future
role of the library is linked to a wider use of technology, which undoubtedly calls for
an appropriate legislation in place.
Development perspective
The biggest global industry association – IFLA, which maintains close links
with the UN and other international organisations, determines professional
trends and sets standards for library services, provides the following definition
of public libraries in its recent trend report 2021: “Public libraries are a world-
wide phenomenon. Libraries occur in a variety of societies, in differing cultures and at
different stages of development. Although the varied contexts in which libraries operate
inevitably result in differences in the services provided, and the way those services are
delivered, libraries normally have characteristics in common, which can be defined as
follows. A public library is an organisation established, supported and funded by the
community, either through local, regional or national government or through some
other form of community organisation. It provides access to knowledge, information,
lifelong learning, and works of the imagination through a range of resources and
services and is equally available to all members of the community regardless of race,
nationality, age, gender, religion, language, disability, economic and employment
status and educational attainment. The primary purpose of the public library is to
provide resources and services in a variety of media to meet the needs of individuals
and groups for education, information and personal development including recreation
and leisure. They have an important role in the development and maintenance of
a democratic society by giving the individual access to a wide and varied range of
knowledge, ideas and opinion” [IFLA 2022b].
The library of the future is based on the orientation of values towards securing
human rights, both social rights and fundamental rights related to active citizenship,
participation in social processes, lifelong learning and, of course, access to cultural
heritage. There is an opinion in scientific literature which describes the library today
and gives a preview of the library of tomorrow: “We can view the library as a social
phenomenon with a specific social mission, which is necessary for the development of
society. The library is a multi-functional institution participating in social processes”
[Sporāne 2016]. Strengthening the social role of the library is a future challenge
associated with library activities.
64 INGA KUDEIKINA, SANITA KITAJEVA
Role of the public library in today’s civil society – Library in the
protection of human rights
Libraries are predominantly educational, information and cultural institutions.
In the 21st century, this function of libraries is perceived and interpreted in the broad
sense. In addition, the library sector is characterised by the synergy and interaction
of educational, information and cultural functions, which overlap, strengthen and
supplement each other and cannot often be isolated from each other. As part of their
information function, libraries provide access to high-quality, diverse and unique
information resources and services. By supplying comprehensive information, the
public library facilitates the involvement of society in the solution of major issues
and important decision-making processes. A major function of public libraries is to
bridge the gap between the information rich and the information poor by providing
public access [edited by Koontz & Gubbin 2010]. Bridging the social gap and
securing equal rights undeniably contribute to social peace, which is essential in the
context of sustainability of both society and the state.
The understanding of rights starts with awareness, and it indeed requires
literacy, whose promotion is now a voluntary initiative of the library. The role of
the library in this educational aspect is underestimated, and it is not dealt with by
law at a sufficient level. Nor is the libraries’ capacity in supporting formal education
used at the system level. Despite evidence of the role of libraries in the educational
process, public libraries often have difficulties in proving their role and introducing
it in educational guidelines and policies [Goulding 2017].
Promoting literacy and education overall as functions of the library are not the
only areas that have largely been overlooked. Human rights also represent an area
where libraries already have their contribution, which however can be greater. Based
on their essence and underlying principles, public libraries are oriented towards the
public good, meeting public needs and public accessibility.
Human rights as those promoted by libraries are referred to in the IFLA/
UNESCO Public Library Manifesto: “The services of the public library are provided
on the basis of equality of access for all, regardless of age, ethnicity, gender, religion,
nationality, language, social status, and any other characteristic. Specific services and
materials must be provided for those users who cannot, for whatever reason, use the
regular services and materials, for example linguistic minorities, people with disabilities,
poor digital or computer skills, poor literacy abilities or people in hospital or prison. All
age groups must find material relevant to their needs” [IFLA 2022]. Latvian legislation
provides for the right to equal treatment, non-discrimination in having access to
library services and their accessibility. Article 15(1)(8) of the Library Law lays down
that each library has a duty “to provide opportunities for library users to use the library
services regardless of their gender, age, race, nationality, physical status, place of residence
PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND LEGAL ASPECTS 65
and location, and other factors as well as to develop appropriate equipment for the use
of the library by persons with reduced mobility and visual impairments” [Latvijas
Republikas Saeima 1998]. The principle of equality is consistently reflected in
legislation. There are no difficulties with interpreting this principle, but it should be
emphasised that in practice the services of libraries should be accessible financially,
physically, functionally and digitally.
People’s rights to freedom of thought, conscience and expression are ensured
by public libraries through broad information resources, which present different
opinions, experiences, ideas and views. Collections should not be subject to any form
of censorship. These principles are enshrined in the IFLA/UNESCO Public Library
Manifesto [IFLA 2022].
Library for culture and education
In the 21st century, libraries have evolved also as social centres, places for meetings,
socialisation, exchange of ideas and co-creation. This role of libraries is particularly
important in remote areas and regions, where the library may sometimes be the only
available public cultural place and social centre. A well-used library building will
make a significant contribution to the vitality of an urban area and be an important
learning and social communication centre and meeting place, particularly in scattered
rural areas [IFLA 2010]. Thus, libraries are among institutions that directly ensure
the people’s right to freedom of assembly and association with others. These rights
are enshrined in both international documents, such as Article 11 of the Convention
for the Protection of Human Rights and Fundamental Freedoms [Council of Europe
1950], and national laws, such as Article 102 of the Constitution of the Republic of
Latvia [Latvijas Republikas Saeima 1922]. Although this social function of libraries
is being implemented in practice and is essential in the context of human rights, it
is not specifically referred to in the Library Law, which hinders the development of
public libraries in this field.
The role of libraries in education should also be emphasised. Libraries are
educational institutions, and their core functions include building public education
and fostering science, as defined also in the Library Law [Latvijas Republikas Saeima
1998].
All these functions of the public library are causally interlinked, so driving the
development of a civil and democratic society. Libraries provide access to high-quality,
diverse and unique information resources and services, including information raising
awareness of an individual’s rights and fundamental rights, and of how they can be
exercised and safeguarded.
In their capacity as cultural establishments, libraries provide cultural content
and its accessibility, preserve heritage and facilitate the creation of new cultural
66 INGA KUDEIKINA, SANITA KITAJEVA
values. The Constitutional Court of the Republic of Latvia has held that dignified life
and minimum subsistence income comprise also a minimum level of involvement in
social life and opportunities to meet cultural needs and participate in the political life
of the country, in order to ensure that everyone is a full member of society [Latvijas
Republikas Satversmes tiesa 2020].
In the library industry, there is a synergy and interaction of educational,
informative and cultural functions, where they overlap, reinforce and complement
each other, often they are indistinguishable from each other. Libraries offer an
accessible and convenient opportunity to access culture and participate in cultural
life, including by providing online events. They provide spaces for cultural activities,
implement cultural events, supplement the library collection with cultural novelties,
reflect the cultural diversity of the local society and support local cultural traditions.
Various events are provided by the National Library of Latvia. Ludmila
Macpane, Head of the Branch Literature Centre of the Latvian National Library,
said that various cultural events can be related to research projects in which the library
is involved, as well as discussions and readings, as well as those that accompany the
library’s exhibitions or publications. The National Library of Latvia regularly organizes
seminars, discussions and readings also outside the library premises, for example, in
municipal libraries or educational institutions. Conferences organized by clients are
also held in the premises of the National Library of Latvia. Several cultural events are
held every month. Current information is available on the library’s website and social
networks. As L. Macpane points out, it is difficult to single out one type of measures.
Exhibitions and public lectures are well attended. As examples, L. Macpane cites the
March 27, 2024 seminar “Artificial intelligence and education in the future”, the
anthropology reading series of the Latvian Association of Anthropologists “Stories about
man”, etc. [Macpane 2024].
It can be concluded that the contribution of the library as a whole and the
National Library of Latvia to education and culture is significant, giving the wider
public the opportunity to participate in cultural and educational events.
Libraries should be recognised as important institutions, which contribute to
a state’s positive duty to ensure human rights. For instance, it would not be possible
to effectively ensure the right to information without the participation of libraries.
National legislation dealing with the library sector provides for library functions
regarding the right to equal treatment, to freedom of expression and opinion,
to information, education and culture, while the scope of these functions may be
understood in various ways. The legal framework does not expressly or sufficiently
refer to the social and communication function of libraries, which is related to the
right of association.
PUBLIC LIBRARY IN TODAY’S WORLD – SOCIAL AND LEGAL ASPECTS 67
Conclusion
The analysis demonstrates that nowadays the public library with its historical
functions has transformed into an important pillar of civil society. The multiplicity
of public library functions is a key driver of their evolution by constantly developing
new services, implementing the values of an inclusive society, and caring for cultural
heritage. Meanwhile, the multiplicity poses a number of challenges, both in terms
of technological development, which requires financial and human resource
investments, and the adequacy of the legal framework. Latvia’s public libraries are
increasingly becoming aware of their role in improving the quality of life of citizens
and are linking their activities to sustainable development strategies of relevant
municipalities, towns or cities [Latvijas Nacionālā bibliotēka 2021]. It is a positive
sign and also a signal to policy planners that adequate resources need to be provided.
Public library services are based on a number of core tasks related to information,
literacy, education, inclusion, civic participation and culture. By pursuing these
important tasks, public libraries contribute to achieving sustainable development
goals and to building a more just, humane and sustainable society.
Clarifying the definition and functions of libraries would ensure a more
uniform range of services and facilities provided by libraries across the country, thus
promoting the equal treatment of all library customers. Public libraries and their
existence in a commercialised world are a phenomenon, providing access to high-
quality, valuable, global knowledge and information, e-services and technologies, but
one criticism is that the financing of libraries is not among priorities.
It is in public interests that libraries remain in existence and continue their
development as places that implement and safeguard human rights, are inclusive,
promote a more cohesive society, serve as a platform for various opinions and ideas.
The interaction between the library and society contributes to the development of
a democratic state and society, maintains and strengthens fundamental democratic
values, and builds a better, safer and more prosperous life of society. Therefore,
these values and rights should be consolidated by all available means, including
legal tools. Legislation does not show the social nature of libraries and their
real mission and functions, so they are perceived as voluntary and optional. The
social aspect of libraries is linked to the right of association, making it possible
for libraries to function as a common public space, a centre of communication,
a place for discussions and meetings. Differences in the perception of the
functions of libraries lead to differences in financing and supply of resources, staff
remuneration, and the inequality of libraries, their development and the range and
quality of information resources and services offered, so that people from different
regions are not provided with equal opportunities. To eliminate this situation and
strengthen the status of public libraries, relevant amendments need to be made to
68 INGA KUDEIKINA, SANITA KITAJEVA
the Library Law. It is expected that, with adequate financial and human resources
prescribed by law, public libraries would develop even more dynamically, safely
and sustainably, thus contributing significantly to the development of society.
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