October 22, 1997
Mr. Roy Yancy, Chair
Library Board of Trustees
Atlanta-Fulton Public Library System
Dear Mr. Yancy:
I have completed six months of service to the Atlanta-Fulton Public Library System as its Library Director; prior to that, four months were served as the Interim Director. During this period, my ability to lead and direct the operations of this Library System has been thwarted by the continuing micro-management of the Library Board of Trustees. Any library director would find it difficult, if not impossible, to consider him- or herself fully empowered to execute the Library Director's responsibilities given the Library Board's intense involvement in daily operations.
Questions of the Library Board's roles in policy-making vs. implementation and procedure have been raised many times within the Library Board itself as well as by staff. These concerns have not been answered in sufficient depth to allow the Library Board to function smoothly as a policy-making body and staff to interpret and implement the policies handed down to them.
The Trustee Training Workshop held in September, 1997, opened my eyes as to what a cooperative and clear-cut relationship between a library director and library board could, and should, be. During the workshop, clear explanations were given and distinctions drawn between the board's purpose as the policy-setting body of an organization and the staff's function as the implementers of those policies. The library director is the chief interpreter of the library board's policies and architect of their implementation. The workshop stressed that once those lines are blurred by either side, then the organization's effectiveness is compromised, maybe crippled.
Micro-management, in any form, implies a lack of trust or confidence in the hired professional's ability to execute policies set by the governing board. Even though several Trustees attended the training workshop and some Trustees have questioned the Board's role in operating areas, there has been no indication that the Library Board even wants to address the issue of its continuing micro-management. In fact, Trustees have embraced this work style, calling it a part of their policy-making duties.
The Library Board's micro-management is felt throughout all of my responsibilities, from demands on my time to decision making to planning to administration and implementation. The examples listed below are provided to give an indication of the extent of the micro-management. They are by no means all of the incidences.
Time Spent in Board-Called or -Related Meetings
Library Board-related meetings consume an inordinate amount of time. Between January 4 and October 10, as Library Director, I attended 66 Board committees meetings. I also attended 14 regular and special Library Board meetings, three meetings of the Foundation/Board Joint Executive Committee, and two Friends meetings during this period. In addition to the actual time I spent in these meetings, many of which average three to four hours in length, my available time was further reduced by the time needed to prepare for the meeting and then follow-up on Board concerns and questions.
From January 13 to April 2 and from June 16 to August 20, the Library System conducted 42 Community Forums. I attended all but three of them.
For all practical purposes, the time available to actually run the Library System has been that of a part-time executive. And, even much of that period has been spent working through personnel issues, staff disciplinary problems and Fulton County concerns. Precious little time has been left for planning, program projection, staff development, etc.
Decision Making
Instead of the Library Director being able to make day-to-day operational decisions so needs can be met efficiently and effectively, al most every item must be brought to the Board, requiring numerous discussions and meetings before action can be taken.
1. It took nine meetings, over a period of three and one-half months, between Library Board Committees and the full Library Board to decide on the purchase of a processor for the ailing CARL Online Computer Information System.
2. Four meetings were required before I, as Library Director, was granted approval to seek consultant training and to have the consultant study the successes and failures of the Atlanta-Fulton Public Library System.
3. Since mid-summer, seven meetings have been held to study the Library System's hours of operation. Prior to each meeting, the staff has been asked to re-work the proposal of new hours and provide additional information. The Library System is no closer to having new hours than it was three months ago; yet, the public continues to ask for new hours.
Administration and Implementation
The Library Director needs to be able to review the organization and take action to correct problems and meet needs. Often, what is perceived outside the organization is not what the actual problem is, but only a symptom. Yet, the Library Board chooses to determine what is needed and what should be done, often going against the recommendation of the Library Director.
1. Since the Library Deputy Director's position was frozen when I became Library Director, I was offered the services of a Loan Executive to help me. However, the job description I developed, according to what I felt was needed from the Loan Executive, was completely re-worked to reflect what the Library Board felt was the more important use of such a gift. I never received the Loan Executive.
2. Two criticisms of the management of one of the libraries by Trustees have been aired publicly, without any prior discussion of their concerns with me. It is one thing to raise an issue about how the Library System operates; it is quite another to publicly criticize staff without giving the administration the opportunity to investigate the complaint, determine the problem and attempt to resolve it.
Let me add that Trustees are fully aware of the ongoing problem of insufficient staff to meet service demands. Trustees also know that the Library System has struggled with insufficient staffing levels for almost two years. It is one of the Library System's unmet needs that I inherited. But for Trustees to represent it as a new problem, and more specifically, as one that started since my appointment, without allowing me sufficient time to address it, is misleading, improper and unprofessional.
3. I have been labeled as not forthcoming with information requested by some Trustees. While time often does not permit me to answer all of the directives from individual Board members, there is also a concern of Trustees requesting information that cannot be given.
For example, among the many items requested in a letter from a Trustee was "a date when I may begin reviewing the last performance appraisal of each employee of the Library System." This request could not be met because of legal concerns; yet, I was publicly labeled as being uncooperative.
4. The Board's Personnel Committee decided to review job descriptions, one being the Research Library Administrator. As the Library Director and as the former Research Library Administrator, I strongly recommended that the Research Library Administrator position require a Master in Library Science degree as part of its qualifications. Trustees decided that their understanding of the needs in that position were better than mine and eliminated the master's degree requirement.
When I pointed out that writing individual job descriptions was not policy, especially when the positions did not report directly to the Board, I was corrected and told it was. If I am unable to determine what qualifications are required to handle a job, how can I expect the person in the position to perform up to my expectations when they are not required to have the knowledge and skills I feel are mandatory?
The Atlanta-Fulton Public Library System was saddled with problems when I assumed the directorship. These problems, ranging from insufficient staffing to outdated technology to inadequate service delivery, are long-standing and difficult to solve as they involve working with other Fulton County departments and procedures. The Library Board has expected me to resolve, within a few months, what was created over years.
Furthermore, the Library Board's insistence on operating from memories of the previous administration and its relationships has caused me to feel that I am constantly trying to outrun shadows from the past, rather than being allowed to pro-actively plan for the future and constructively administer the present.
The micro-management, the expectation of instant problem resolution and the comparison with the past situations constitute a triple burden that no library director should have to carry. Despite this triple burden, in my tenure thus far, the Library System has accomplished many things. These accomplishments [listed in an attachment to the original document] have occurred without a formal understanding in writing of the Library Board's expectations. They reflect, what I, as an experienced library professional, determined the Library System should do as it fulfills its mission of service to the public.
It is difficult to move forward until the state of an organization is understood and its problems brought under control. When I was selected as the Library Director, I was not given a period of time in which to fully learn the Library System. Even without a learning curve, I recognized that we could not move forward until we understood and resolved some of our past unmet needs. In light of this, the objectives I set for my first six months were as follows:
1) Fill the unfrozen personnel positions.
2) Fill the vacant unfrozen administrative personnel positions.
3) Implement the 1997 Budget components:
- Purchase and install Reports Module;
- Replace the voice messaging system;
- Purchase and implement the Telelibrarian;
- Replace existing computers by purchasing and installing new computers to update the hardware.
4) Manage the Fox-Lawson Study for the Library System.
5) Handle issues emanating from Fulton County. Attend the two monthly Commission meetings and County Manager's weekly meetings.
6) Implement Library Board directives.
7)Attend State Library Directors meetings, keeping the Library Board informed of issues and programs with DTAE.
8) Develop a closer relationship between the Library Board, Library Foundation and Library Friends.
9) Work through the 1998 Budget process.
10) Seek updating of the Central Library facility.
11) Implement the East Point and Northeast construction programs and hold ground-breaking activities for each. Complete the Hapeville and Fairburn Renovation projects.
12) Manage and supervise personnel. Build morale among the staff.
13) Enhance customer services in all agencies.
14) Attend professional library meetings; seek and attend other activities related to the
Library System's mission.
15) Study and develop demographics by agencies to help determine service areas.
Many of the tasks above have been concluded or are now in process. If anything is still incomplete, you can rest assured that this staff has either gone as far as it can or is working to complete those still in progress.
However, I would like to address some additional concerns regarding items #1 and #2 above. Item #1 refers to the filling of the 104 positions. As of October 1, 1997, the Library System had filled 74 of those positions; transferred three of the positions to Buildings and Grounds; and, was in the recruitment process for 16 of the remaining of the 26 positions. One of the positions counted in the 104 total was never vacant.
[SEVEN PARAGRAPHS OF TEXT HAVE BEEN BLOCKED DUE TO CONFIDENTIALITY MATTERS PER THE OPINION OF THE LEGAL DEPARTMENT.]
I do not feel that I have failed the Library Board or the Library System. Indeed, I am proud of what has been accomplished under my leadership.
An organization requires its board to give vision and leadership. That is why a board's membership is drawn from diverse backgrounds and occupations–to provide the breadth of thinking and deliberation that lead to carefully considered policies. Such policies, when implemented, demonstrate the board's wisdom in setting the direction that the organization should follow. When a board is mired in the day-to-day operations of the organization for which it is attempting to set policy, then it robs itself of the distance, time and perspective it needs to think about the organization.
For the Atlanta-Fulton Public Library System to become all that it is capable of becoming, its Board of Trustees must allow its chief executive to operate fully empowered as such. To ask someone to guide this Library System without the full authority inherent in the Library Director's position is to set that person up for failure and to ultimately doom this Library System to mediocrity. Today, I am asking that the Library Board of Trustees:
1) cease its current operating style of micro-managing and instead move to establishing policy that will allow the Library System to achieve excellence;
2) concentrate on and develop policy for effective library performance;
3) set a clear understanding of the role of the Board and its members;
4) develop a planning module for the Library Board of Trustees on advocacy issues, fiduciary matters and program projections; set goals and objectives;
5) reduce the meeting schedule so time can be spent to work on the planning and implementation of projects;
6) be an advisor to the Library Director, giving direction and vision;
7) eliminate regionalism and geographical preferences in discussions and decisions and instead serve the needs of the entire System;
8) act as a team, issuing directives from the full-team approach, instead of having each member able to make assignments;
9) approve and initiate, through the Library Director, a strategic planning period for the Library System;
10) be a supporter of the Library System, advising the Library Director of community concerns so they can be addressed by the organization and a response can be given to the community.
In order for the Library System to move forward, the issues of management vs. policy have to be resolved. These have been long-standing issues, whether recognized as such or not, which need to be committed to writing before we being a new operating year. Because these issues are serving as a barricade to the Library System's development, I am asking that the Library Board give these issues top priority over the next two months so there can be closure by the December 17th Library Board Meeting.
Please let me hear from you in the next week as to when I can expect a formal response.
Sincerely,
Julie V. Hunter
Library Director
cc:
Members, Library Board of Trustees
Bob Regus, County Manager
Fulton County Board of Commissioners
Personal Attorney
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