Transforming Libraries

Public libraries have evolved and continue to evolve in the ways they serve communities. In Saint Paul, our libraries operate as neighborhood resilience centers. They provide free gathering spaces for neighborhood meetings, for job seekers to access Wi-Fi and resume help, for children to discover and learn through play, and for community members to work, study, and access services that help them meet their goals.

We know that not all our libraries do this equally. Our libraries are well-loved and well-used in Saint Paul, and some are well-worn. We are transforming three of our libraries, Hamline Midway, Hayden Heights, and Riverview, to bring these locations into the 21st century in their ability to serve their communities. These three libraries have not been renovated in more than 30 years and are part of our vision to transform all libraries in Saint Paul. That vision also includes enhancing technology and spaces to play and learn in all library buildings.

Our vision and designs so far are informed by community engagement. We have heard from more than 3,500 people since we started the work in 2018 with community to build a vision for library spaces in Saint Paul.

In 2019, Saint Paul Public Library rewrote its mission, vision, values and goals through community input. One of the key strategic goals resulting from this process was to invest in spaces that are safe, inviting, affirming, and comfortable for people of all cultures, abilities, and communities. With that goal, we engaged the community to develop a Facilities Direction, a document that presents a vision and recommendations for investments in library facilities, including the Hamline Midway, Hayden Heights, and Riverview libraries.

In 2018, the Library learned and engaged with staff and community to create a new vision, mission, values and strategic goals for libraries. SPPL engaged nearly 3,000 people in that process through in-person engagement sessions at libraries, youth-led neighborhood pop-ups, one-on-one interviews, and an online survey. You can learn more about the Strategic Direction engagement process here.

Based on insights from that community learning process, the Library set forth this specific goal regarding our buildings: invest in spaces that are safe, inviting, affirming, and comfortable for people of all cultures, abilities, and communities.

With the Strategic Direction as our springboard, the Library again led a community engagement process to inform our Facilities Direction in late 2019 and early 2020.

The Facilities Direction presented a vision and recommendations for SPPL facilities. This vision and recommendation built off the Saint Paul Public Library’s 2022 Strategic Direction. The Facilities Direction included recommendations for system-wide technology and play-based learning. It also focused on three libraries: Hamline Midway, Hayden Heights, and Riverview libraries. These libraries have not been renovated in more than 30 years.

The Facilities Direction is not a detailed implementation plan or branch-by-branch facility design.

We engaged 1,680 people through the process by online survey and, in order to go deeper with neighbors near the three branches in need of most repair, in-person, design thinking-based engagement sessions that reached more than 53 community members were held. The survey was translated into Somali and Spanish, and “Design Your Library” take-home engagement kits were made available for individuals and community groups. View photos from the Hamline Midway engagement session here.

With community input gathered through multiple avenues, along with an assessment of the condition and function of library buildings, the Library and our consultant, HGA, created a Facilities Direction report, which was made available to the public on our website. The report included methodology, themes from community engagement, and recommendations for SPPL.

The recommendations included a unique decision point for Hamline Midway Library, one of three locations in need of repairs: rebuild or renovate.

On March 4, 2020, the report was presented to the Saint Paul Library Board (who are also the City Council). One week later, the World Health Organization declared COVID-19 to be a global pandemic. As Saint Paul Public Library, we spent the remainder of 2020 responding to our community’s most urgent needs, developing and maintaining safety measures for staff and community, and managing budget and workforce reductions. The unprecedented scope, scale, and duration of multiple crises in 2020 meant we were unable to adhere to the original timeline laid out for further community engagement that year.

In early March of 2021, the Library organized a virtual community discussion to seek input from Hamline Midway neighbors on the two possible directions for that location: renovation or new building. Community input informed our decision on which option the Library would submit for funding through the City of Saint Paul’s Capital Investment Budget (CIB) process. The community discussion’s presentation and feedback shared by attendees can be found on this webpage.

Community members also provided input on the three priority library projects via a CIB online survey and community meeting in March 2021.

We have heard that Libraries in Saint Paul are well-loved, well-used, and well-worn.

In 2018, through engagement to inform our Strategic Direction, the Library heard:

• People want libraries to focus on young people and families.
• People want libraries to hold space for both quiet and loud activities.
• People face structural, cultural, and financial barriers to using libraries.
• People seek an environment that fosters safety and belonging.
• People seek programing beyond books and buildings.

In 2019, through engagement to inform our Facilities Direction, we talked with our community about our library buildings. We assessed their condition and function. We learned:

• Community members feel pride for their neighborhood library. The library is a strong connector in Saint Paul neighborhoods and patrons would like the library to play a stronger role. More than half of the respondents in the survey said, “I am willing to help make the library better.”
• Across demographic and age groups, the library is viewed as a place for exposure to new things and people and as a place to have connections with other people.
  • Most white respondents strongly valued access to diverse resources and the physical space and feel of the library.
  • In comparison, BIPOC respondents strongly valued their library as a place to spend time with family, attend meetings/gatherings, and be exposed to new things and people.
• Outdated buildings struggle to support high use.
  • While circulation and visits remain strong, the collection is large and diverse, and program attendance is increasing, technology is falling behind, surfaces are worn, and the buildings are in serious need of investment.
  • In SPPL’s historic two-level buildings, many spaces are not easily accessible.
  • These buildings have limited access to outlets and data ports, and many are experiencing water infiltration.
  • Mechanical, electrical and plumbing (MEP) systems need significant investment.
• SPPL facilities are falling behind their peers. Interior spaces are inflexible and are challenged to provide consistent, quality learning, and play spaces. Entry areas should be more welcoming. Exterior and interior signage and wayfinding need improvement. Sightlines and staff work areas need reconfiguration. Meeting rooms require enhanced flexibility and improved AV technology. Furniture throughout the system needs replacement.

Key recommendations given to the Library by our consultant, based on their assessment of all buildings, usage and service data, and input from staff and community, included these insights:

• Cultural nuances and perceptions affect sense of belonging. Cultural includes generational, ethnic, family structure, and economic.
• Not all users understand how libraries are evolving, which can create clashing “norms.”
• Patrons look to have higher quality settings and experiential subtleties (inside and outside) that match their pride.
• Redesign space that is accessible and inclusive for a variety of modes of use.
• Engage teen space to meet their needs to grow, connect, and play.
• Activate the front and create a sense of welcome.
• Create initiatives to bring the neighborhoods together.
• Program intergenerational transition space.
• Create space and systems to support staff interacting with patrons.
• Technology within the library must evolve. Development of a consistent, base level of technology services delivered throughout the library system will create resources patrons can rely on.
• Library spaces should evolve to support play-based learning. Patrons helped SPPL understand the vast definitions and approaches of how play supports their learning and connecting—with themselves and others.

We have heard from more than 1,000 people this year through multiple engagements. We employed the IAP2 spectrum, which is designed to advance the practice of public participation by outlining public participation goals and our promises to the public through a spectrum of impacts on the decision made: inform, consult, involve, collaborate, and empower. These are noted in parenthesis below.

In our pre-design phase, we engaged the public through

• Teen focus groups led by Youth Leadership Institute (collaborate)
• Two community open houses (involve)
• Listening sessions at each transformed library (involve)
• Artist creative encounters (involve)
• Community survey (involve)
• Pop-up events to increase the reach of the survey (involve)
• Online forms for feedback and paper feedback forms and activities in our libraries (involve)

In addition, during the predesign phase we:

• Engaged library design project ambassadors who are community leaders of neighborhood groups, associations, and students who shared the needs they were hearing from their communities and could help share out about the process to their communities/colleagues/constituents. (involve/collaborate)
• Workshopped SPPL branch staff at three transforming library locations (collaborate)
• Emailed multiple newsletter updates (inform)
• Built a robust website (inform)
• Presented twice at the Library Board during the predesign stage (inform/consult)

SPPL was intentional in listening to voices of historically excluded voices of BIPOC residents, youth, and trans/non-binary community members by:

• Using an Artist Cohort model. Art helps connect people to processes that can otherwise be inaccessible due to power structures, distrust in institutions, and language barriers.
• Dedicating time and space for Youth Leadership Institute (YLI) cohort. Intentionally giving young people power, voice, and more strategic influence over the process.
• Hosting Pop Up events in community gathering sites like grocery stores, laundromats, and youth centers to talk to current and potential users of libraries.
• Inviting community leaders to be Library Design Project Ambassadors who are embedded into community serving organizations to avoid voyeuristic or extractive engagement processes.
• Highlighting disaggregated data on race/ ethnic background in the presentation and analysis of survey results.

These Community Engagement findings are outlined in the appendix of LSE’s predesign report.

SPPL and LSE will continue to engage the community through the next (design) phase of work Please sign up for the newsletter to be notified about upcoming opportunities.

• Participate in surveys
• Share ideas on a Dream Board
• Join a community open house

If you would like to connect us to a community publication, organization, or group to help ensure we are reaching all community members, including historically excluded perspectives and communities, please contact Marika Staloch at marika.staloch@ci.stpaul.mn.us.

Improvements to the Hamline Midway Library are badly needed. Many components of the building and its usage—the building accessibility; restrooms; mechanical, electrical and plumbing systems; shelving and furniture; fireplace; community room; and staff workspaces must be replaced or upgraded.

Given the extent of the repairs needed, coupled with the feedback from community engagement, our facilities plan consultant, HGA, recommended in 2020 that we consider two options: renovate or rebuild.

A renovation to the existing building would improve building mechanical, electrical, and plumbing systems, furnishings and finishes, and some of the programming and space constraints. However, a renovation without square footage added would not address the community’s desire for different types of spaces—such as community spaces, individual work/study rooms, teen space—nor would a renovation substantively improve accessibility of the building.

An on-site rebuild of the library would address all issues named with the current building as previously mentioned and increase opportunities to add square footage for types of spaces and improved accessibility asked for through community engagement.

Based on community input that was received in 2021, the Library advanced a proposal submitted to the City’s Capital Improvement Budget (CIB) committee for $8.1M in investment for the Hamline Midway Library through the City’s 2022/23 Capital Investment Budget (CIB) process that would support a new building on the same site or a renovation plus expansion. Recommended by the committee for funding, Mayor Carter proposed and City Council approved an $8.1 million investment in Hamline Midway Library. The Library began to work with community and an architecture consultant in late 2021 to dig into possibilities for an amended set of two options: new building or renovation and expansion.

Based upon the community engagement and design timeline, shifted to allow for more time to complete the community engagement activities outlined in our process, the decision on a direction for Hamline Midway Library was made in May 2022.

From there, a single concept will move forward for more detailed schematic design. There will be continued opportunities for community members to co-create the design all the way through the end of the schematic design process.

The decision on which direction to pursue for how to transform Hamline Midway Library was made by City administration. It was based upon community input, building assessments, project budget, and Saint Paul strategic goals for libraries, sustainability, equity and inclusion, and fiscal responsibility.

Regarding a second floor, having three levels in the library building would present significant operational challenges and increase budget cost related to staffing, programming, ongoing maintenance, and security. Additional operating funds are not provided with capital funds.

Regarding co-location, Years ago, when SPPL heard there was interest in co-location, we looked into it. We learned that this was not in the plans of any of the other institutions.

The Hamline Midway neighborhood’s Hancock Rec Center is not currently within Parks and Recreation established five-year capital program, and not among the very top systemwide stated priorities for investment from Parks and Recreation. This is largely due to significant deferred maintenance needs in City-owned facilities throughout Saint Paul.

Similarly, Saint Paul Public Schools has adopted a five-year capital improvement plan that assembles the major and smaller building projects planned for the next five years within bond and levy funding streams, including those influenced by the District’s strategic plan. Any projects outside of the 5YP would need to go back to the School Board for approval and would have to be based on the District’s strategic plan (SPPS Achieves). School district bonds and levies used for construction are restricted in their use (each of the three different funding sources has its own requirements and restrictions), potentially limiting possible partnership opportunities.

Additionally, safety and security infrastructure of an elementary school is different than that of a public library. Public libraries welcome anyone, no questions asked, to come in, hang out, and spend time in the library. This does not always align with the needs of elementary schools to more closely monitor who comes and goes from their buildings. Library leadership has spoken with other libraries who have facilities co-located with elementary schools. Their general opinion is that these libraries deliver quality service to families with young children, but sometimes at the expense of the broader community who does not always feel welcome or interested in coming to an elementary school property.

In a neighborhood like Hamline Midway, with high interest in the library better serving teens, working adults, and students in need of study and workspace, SPPL believes a stand-alone public library provides most welcoming and accessible experience to all neighbors, and fits into the $8.1 million dollar budget.

Regarding adding/changing current property lines, the City is weighing both short- and long-term fiscal responsibility along with costs and benefits to library patrons and the community. The current library location is already owned and controlled by the City of Saint Paul, so there is no cost to the taxpayers to acquire new property. It is well-located and accessible by walking and transit with both on-street and off-street parking.

Maintaining the existing library building while also building a new library in a new location would not meet the City’s goals for fiscal responsibility in our capital investments and would make any proposed investment in the Hamline Midway Library less likely to fare well in the competitive Capital Investment Budget (CIB) process. Maintaining the existing Hamline Midway Library building while constructing a new library in another location would add to the City’s already over-burdened total liability for long-term maintenance and repair.

The current Hamline Midway Library facility is in bad condition and needs repairs – regardless of who occupies the building. The City’s Office of Financial Services Real Estate division advises that there is little history of market-driven alternative uses for libraries and rec centers in Saint Paul. Re-partnered buildings can remain the City’s responsibility for maintenance and repair over time. If we sought to build a new library in another location, public funding (i.e., taxpayer dollars) may need to pay for repairs to improve the condition of the current building and pay for a new library, while maintaining both buildings over time as City-owned properties.

The city has made a commitment of $8.1 million in CIB funds for Hamline Midway Library, and both options that were presented were designed to fit within the $8.1 million budget. Option A had less certainty and more risk since renovation of an existing building can uncover unknown costs. More of the money would go into renovating areas that currently don’t work. In a recent third-party cost estimation contracted by LSE, Option A was already over budget.  Option B has more certainty with a new build, and the money will be going toward increased, better spaces for the public.

The 8.1 million in CIB funds for the Hamline Library covers the cost of a building that meets the library’s goals. The Friends of the Saint Paul Public Library are completing a feasibility study to understand the amount they may be able to raise for system-wide capital investments. These funds will go toward much needed renovations of Hayden Heights and Riverview Libraries, as well as toward system-wide investments of Play & Learn and upgrading our technology, especially in public meeting spaces.

An existing building’s embedded carbon —the carbon it took to make, use, and transport the materials used in construction—is significant. With Hamline-Midway, there is no option where there is no demolition. When looking at sustainability, we are looking for the building that will use the least amount of carbon for the long term.

Constructing a new building enables it to be more energy-efficient through its design and construction, it can ultimately have a smaller carbon footprint over the long run, especially if it is expected to be in operation for many decades.

Another factor is the degree to which the building meets the needs of people within walking or biking distance. If the building does not fully meet residents’ needs and they drive elsewhere to meet those needs, that contributes to its overall carbon footprint.

In Saint Paul, city departments, including Saint Paul Public Library, make recommendations and decisions about Capital Investment Budget (CIB) priorities and funding proposals. Department leaders and staff review all available information and evidence to make recommendations informed by many inputs, including facility condition data, community input, staff expertise and experience, economic conditions, resources required and available (human and financial), feasibility, timeline, fit with department priorities, and fit with citywide priorities. The City of Saint Paul has a long history of strong community engagement informing its capital investment decisions. The CIB Committee provides a structure for residents to review proposals from departments and make recommendations to the Mayor and City Council.

The Library submitted three proposals for funding through the City’s competitive Capital Investment Budget (CIB) Cycle for 2022/2023 bonding. The project proposals include:

• Hamline Midway Library: $8.1 million request to support one of two options: new building or renovation plus expansion on the current site.
  • The library was built in 1930 and last renovated in 1990.
  • Given the poor condition of the building, the Library sought to secure significant capital investment from the City as soon as possible.
  • The Library is engaging community late in 2021 and is continuing to engage in 2022 to help inform which of two options advances forward as the future of this location.
• Hayden Heights Library: Request to renovate the library building, which was built in 1955 and last renovated in 1979.
• Riverview Library: Request to renovate the library building, which was built in 1917 and last renovated in 1989.

Hamline Midway Library was awarded a full investment of $8.1 million through the City’s CIB cycle for 2022/2023 bonding.

Riverview Library in Saint Paul’s West Side neighborhood is a Carnegie Library and is designated as a historical building.

The Library has chosen not to seek historic designation for Hayden Heights and Hamline Midway Libraries. Libraries serve people; the needs of people need to come first. As a library, we need to serve the most people accessibly, safely, and in a building suited for future generations while honoring and incorporating the history that got us here. All questions about historic preservation should be directed to Heritage Preservation.

As part of the City's Capital Investment Planning process, all funding proposals submitted to the Capital Investment Budget (CIB) committee must include relevant information from the City's Adopted Comprehensive Plan and other relevant City-approved plans. This information was included for the Hamline Midway, Hayden Heights, and Riverview Library proposals and is part of the CIB record.

City administration weighed community input; building assessments; the overall project budget; and Saint Paul’s strategic goals for libraries, sustainability, equity and inclusion, and fiscal responsibility.

SPPL’s vision for library facilities that:

• Are safe, inviting, affirming, and comfortable libraries for people of all cultures, abilities, and communities
• Have improved accessibility
• Have additional spaces and study rooms for communities to gather, work, study, and collaborate
• Separate quiet and loud spaces
• Have enhanced play and learn spaces
• Are technology-rich environments

SPPL and LSE shared conceptual designs and listened to community input on the designs. The overall cost and total usable square footage of specific spaces can only be provided in ballpark estimates with conceptual designs. Precise measures of specific rooms such as staff workspaces and partner spaces will not be finalized until later stages of design. The specific sizes and costs of these spaces are part of what gets refined through the feedback process and future design phases.

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