In 2014 homelessness in New York City hit a record high. Over the past 30 years this issue has been thrust into the public consciousness as a result of deinstitutionalization and a decrease in affordable housing initiatives. Subsidized housing was frequently criticized for its low quality and lack of safety and by the late 1970s even the poorest people did not want to live in “the projects”, thus causing building initiatives to subside. Despite renewed efforts throughout the years, no governmental policy or plan has been able to accommodate the thousands of homeless individuals and families in New York. Mass deinstitutionalization introduced a wave of mentally unstable individuals to the streets of New York and other major cities, contributing to stigmas and stereotypes surrounding homeless people as violent or unpredictable. The homeless make the housed uncomfortable.
While urban public institutions, such as public libraries, have a long history of serving marginalized groups, the demands placed upon them have grown more strenuous in an era of broken windows policing tactics and efforts to clean up the streets. The homeless go to libraries because they have nowhere else to go and they are not wanted in view of society. This, combined with the lack of external support or funding, puts city librarians in a very difficult position. Increasingly, librarians are being expected to take on the role of social worker in addition to their library duties. Not only are they dealing with the needs of this patron base, but they are also fielding complaints and addressing concerns from users who pay taxes and believe they have a greater right to the space. Some librarians even question whether or not this is their job and should be their responsibility – I believe it is. Informational needs are only one small facet of modern librarianship but librarians should not be expected to face the issue of homelessness alone.
Public Libraries in the United States
There is a historical connection between librarians, the city and morality beginning with the settlement movement and continuing through the 1900s. During the settlement movement mass housing was constructed for recent immigrants and citizens volunteered to live along side them to act as cultural guides. It was believed that education shaped moral citizens and that corruption and vice were spawned by the uneducated masses seeking work in the cities. Librarians worked closely with social workers to bring culture and education to the immigrants living in the settlement houses in an effort to raise them out of poverty. Librarianship and social work developed as professions in tandem and drew validity through their joint involvement with this movement. Though their target populations and the nature of their practices shifted, there is a precedent of librarian and social worker collaboration.
Due to the large waves of immigrants flooding America in the years prior to World War I, Americanization was a primary focus of public librarians. By the 1920s this had largely given way to adult education classes as the primary library service for poor Americans and recent immigrants. World War I and subsequent economic depression brought great changes to the services of the American public libraries. There was an upswing in library attendance as people used its resources to hunt for jobs and improve their prospects through education. For the first time, large numbers of people were also coming to the library to get warm and to find shelter. At the Chicago Public Library, federal funding helped facilitate a program in which unemployed teachers were hired to teach adult education classes. It is interesting to note that the library staff, already stretched thin trying to meet the demands of the multitude of users, was not expected to take on this additional role but rather to provide space and support to external organizations and professionals.
Library Experiences of the Homeless
It is not surprising that many homeless individuals spend large portions of their day at public libraries. They are warm in the winter and air conditioned in the summer, have restrooms and comfortable seating conducive to sleeping. They provide access to computers and the internet as well as endless reading and entertainment materials. Many are open beyond business hours and traditional shelters that provide accommodations for the homeless at night are typically closed during the day. In fact, homeless shelters in some cities, such as Washington D.C., go so far as to drop off busloads of their homeless residents at the library each morning and pick them up again in the evening. These conditions place librarians in the situation of having to balance the needs and rights of the homeless patrons with the demands and concerns of the other library users, many of whom believe that because they pay taxes and the homeless do not they have a greater right to public space.
The experiences of the homeless are almost as varied as their needs. Some homeless people use the library for a whole host of personal, financial and legal needs such as access to healthcare or government programs, such as welfare. In the age of E-government, where so many forms require internet submission, libraries have become pivotal in providing not only computer access but also guidance in enrolling in government assistance programs. Taking on this additional social service role furthers the need for backing and direct support from social work professionals. For the homeless, the library can act as more than just an information hub or even a warm place. It is their social connector and a place where they can feel involved and part of the community rather than a marginalized other, cast out on the streets.
A padded bench in a secluded corner, ideal for sleeping. Photo by Beth Jarret.
Librarians’ Experiences
Not all librarians are in favor of this assumed responsibility as social workers, arguing that it is not within the intended scope of the profession. Others are more sympathetic and in support of equal access because of how much the homeless can benefit. In a study conducted by Keith Anderson, librarians in several metropolitan areas were asked to complete a survey by mail, considering things like their relationship with homeless patrons and how prepared they felt to deal with needs and situations surrounding their homeless users (Anderson, 2012). The results of the survey indicated that the vast majority of librarians, 86.2%, had not received any formal training in mental or physical healthcare and 80.7% would be interested in such training, some expressing the concern that not knowing how to be able to assist with homeless needs hindered their involvement with them. This survey provides tremendous insight into the mixed experiences of librarians in their interactions with the homeless as well as their comfort levels and feelings of preparedness. It also illustrates the need for partnerships with social service agencies not only for the enhancement of services for library users, but also for the support of the library staff who are dealing with such problems on a day-to-day basis.
What Could Be Done?
Perhaps the most important thing each and every library can do is to construct and enforce a clear behavior policy. While many libraries have such policies they can be vaguely worded and enforced inconsistently, if at all. Such policies can be used to target homeless people and provide librarians with an excuse to throw them out. The discretionary nature of policy enforcement is problematic for this reason. Each librarian must be familiar with the library policies and enforce them equally. This suggestion does not only apply to behavioral policies, but access policies as well. Some libraries allow homeless individuals to get a library card with the address of a homeless shelter, but others make no provisions for people lacking a permanent residence. Not only is the equal enforcement of policy important, but library management must also be careful of the legality of such policies. First Amendment rights should be taken seriously to avoid lawsuits.
Once librarians are familiar with the official policy, additional training can help them know when and how to enforce it. It is important that librarians be trained in the proper procedures for handling various situations. Certainly, sometimes calling the police is warranted, but maybe it would be better to call a social service agency. Maybe a patron needs to be banned or maybe an explanation of rules is needed. Perhaps a person is having a fit or perhaps they are having a seizure. Librarians need support to know when extreme measures should be taken. Knowing what to do relates directly to knowing how to read the situation. Anderson’s survey found that about 75% of librarians rated their ability to recognize emotional or physical distress as moderate or low. Participating in external workshops or in-house exercises could provide the basis for these skill sets. Some Library School courses have begun to include sections relating to library services for special user groups, including the homeless. Perhaps, in the future, basic psychology courses will also be taught as libraries become more fully integrated with social service agencies. Management must also consider the opinions and feedback of the staff. Homelessness is an emotionally charged issue and not everyone agrees on how to handle it on an individual and institutional level. Knowing where the staff stands is crucial to proper education and creating a positive atmosphere where everyone subscribes to the same standards.
Before librarians can know how to react to, or help, a homeless person they need to first understand their needs and their barriers to equal access. The only way to do this is through communication with the individuals themselves. Greensboro Public Library’s e-librarian, Jennifer Worrells “thought that the homeless would be interested in computer classes and job search information… Participants made it clear that their immediate needs were a place to sleep and health care” (Lilienthal, 2011). Understanding that basic needs need to be addressed before informational needs can help library workers in their efforts and allow them to take action. They can strengthen their collections and provide displays containing materials that might appeal to the needs of the homeless. Pulling these materials out and making them more visible may help individuals who have a hard time deciphering the library classification system or the professional jargon, especially because some may be too embarrassed to ask for assistance. Libraries can also create unique spaces dedicated to the needs of homeless individuals such as specialized reading rooms or even establish spaces in the community beyond.
Signature flag denoting a Public Library in NYC. Photo by Beth Jarret.
Library Initiatives
A regular feature at the Seattle Public Library is a series of life-skills rebuilding classes to help people reintegrate with society. This is a simple measure that many libraries can take. Sometimes libraries, like the Greensboro Public Library, help with fundamental needs such as haircuts, oral hygiene supplies and health screenings provided by nursing students. They have also partnered with their local chapter of Food, Not Bombs, to provide a free meal every Monday night in the winter. The Haverhill Public Library in Massachusetts created a unique reading space for homeless users that provides them with a television, access to newspapers and other resources that allow them to comfortably spend the day, almost like a day shelter or community center. The J. Erik Jonsson Central Library in Dallas Texas hosts a podcast called “Street View” that discusses issues related to the homeless and hosts guest from local social service agencies. The main goal of these projects is to break down the barriers between the homeless and the housed.
Social Work Partnerships
A growing trend that is perhaps most beneficial to library staff and patrons alike is the collaboration with a professional social worker or agency. The credit of “first library to hire a social worker” is given to the San Francisco Public Library where, in 2009, Leah Esguerra was hired to work directly with the homeless library users, offering help, guidance and access to resources. Since being there, she has gone on to assemble a team of her own, comprised of homeless and formally homeless peer-counselors. The homeless can be a hard user-group to reach because they can be very guarded and suspicious. The peer-counselors can help to break down walls by gently engaging in conversations with the visibly homeless and sharing their stories. This also helps with gentle enforcement of rules. If a peer-counselor or Leah, herself, comes across a patron bathing or sleeping they can use that as an “in” to approach the person and while explaining library policies, offer suggestions for where to access free showers and beds throughout the day (Nieves, 2013).
At the Martin Luther King Jr. Memorial Library in Washington D.C. Jean Badalamenti was hired as the library’s first Health and Human Services Coordinator, approaching the problems of library services from a broader and more policy-based angle. By working on site she can observe the needs and experiences of the users and employ her professional knowledge to help libraries best address the problems that arise and develop meaningful services. She also acts as a liaison, connecting with other community organizations to build partnerships and draw attention to the greater community-wide issues.
The “Social Worker in the Library” program started in San Jose operates differently, and a little more formally than that of Washington D.C. or San Francisco. Modeled after the “Lawyers in the Library” program, it is closer to a partnership than an employment. Professional social workers along with faculty and students from San Jose State University volunteer their time to facilitate brief face-to-face consultations in a relaxed and friendly atmosphere. These meetings are offered twice a month for two hours and the library staff facilitates scheduling and appointments. After three years, SJPL reviewed the program, gathering feedback through surveys in questionnaires and was met with a positive response.
Suggestions Moving Forward
It is the “Social Worker in the Library” model that I believe would best serve New York City. While library funding is limited, NYC is home to several prominent social work schools with dozens of students who need experience hours and internships. In spite of the NYPL’s inability to pay students, they could arrange programs for course credit. This would take the pressure off the librarians, help the homeless and give experience to the city’s budding social workers. Although aiding the homeless is within a librarian’s call to duty, libraries cannot combat homelessness alone. It is not enough to simply equip librarians for the task; they need a larger social and political network of support. Providing alternative spaces for homeless individuals to spend their days could alleviate some of the weight of responsibility thrust upon librarians and partnering with social work agencies would provide the best resources for the homeless library users. Professional training is a practical place to start because it provides an immediate benefit, but the true change has to be much larger in scale.
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