Analysis Of India's National Mission On Libraries, 2012 - IMPRI Impact And Policy Research Institute

Policy Update
Shivashish Narayan

Ministry of Culture celebrated the library’s 250th anniversary by hosting the Festival of Libraries in New Delhi, a new chapter in modernising India’s public libraries. The union government put this effort into the National Mission on Libraries (NML), which was launched in 2014 to digitise and upgrade libraries nationwide. As a state subject under the Seventh Schedule of the Indian Constitution, the responsibility for public libraries lies with individual States and Union Territories, despite having the National Library Act of 1948, which grants the National Library ‘Institution of National Importance’ status.

Attempts to create a national framework for public libraries date back to S.R. Ranganathan’s Model Library Act of 1930, which proposed free and accessible public libraries supported by statutory funding but this was never enacted. Subsequent efforts such as the Model Public Library Bill of 1942 and the Union Government Bill of 1948, also failed. Currently, the Ministry of Culture oversees key institutions like the National Library and National Archives but lacks a dedicated department for public libraries leaving this responsibility to the Raja Rammohun Roy Library Foundation (RRRLF) which supports public library services nationwide.

However, the absence of a national policy on public libraries has slowed the progress of library expansion according to higher standards. Nineteen states and six Union Territories have passed legislation for public library systems but states with lower literacy rates often lack such laws only five states have provisions for a library cess or tax levy to fund public libraries. Moreover, many states do not regularly report data on public libraries and there is no national-level aggregation of statistics on the number of libraries, per capita expenditure or budget allocations for their development resulting in significant gaps in information and planning.

The National Knowledge Commission (NKC) in its ‘Report to the Nation’ (2006-2009) made key recommendations regarding the development of libraries in India. Recognizing that libraries are vital instruments for educational, cultural, social and economic progress. The NKC emphasized that modernizing library infrastructure was essential to meet the demands of a rapidly transforming world driven by Information and Communication Technology (ICT).

In response to these recommendations, the Ministry of Culture (MoC) initiated the establishment of the NML. Following a meeting of key stakeholders in February 2009, the NML was officially set up by the MoC, detailed in a Gazette notification on May 4, 2012. However, it wasn’t until February 21, 2014, that the NML was formally launched with a budget allocation of ₹400 crore, to be spent over three years. The aim was to ensure sustained attention to the development of libraries, with the RRRLF acting as the nodal agency.

Functioning

The NML launched under the Twelfth Five-Year Plan (2012-2017) with an allocated budget of Rs. 400 crores, the NML has focused on four key components:

National Virtual Library of India (NVLI)
The NVLI aims to create a vast digital repository that provides open access to a range of cultural and knowledge resources, including books, manuscripts and cultural artefacts. Its objective is to bridge the gap between “knowledge-rich” and “knowledge-deficit” communities by offering multilingual content through a user-friendly interface. Developed by IIT Bombay, the Indian Culture Portal ( https://indianculture.gov.in ) showcases India’s tangible and intangible heritage through 34 categories, such as manuscripts, paintings, archival photographs, musical instruments and social practices.
Establishment of NML Model Libraries
A core aspect of the NML is the modernization of library infrastructure through the Model Library Scheme. This scheme provides financial assistance for upgrading 1 State Central Library 1 District Library in each state/UT and 6 central libraries identified by the Ministry of Culture. Libraries are upgraded with modern technologies, dedicated sections for children and senior citizens and facilities for the differently-abled, including Braille corners. State governments are required to share project costs with the central government at a 25:75 ratio, while for Northeast states the ratio is 10:90. Union Territories receive 100% central funding. However, disparities in implementation and technology adoption across districts remain a challenge and some regions lag in infrastructure upgrades.
Quantitative and Qualitative Surveys
The NML conducts surveys to assess the state of libraries, including infrastructure quality, user satisfaction and the impact of library services on local communities. The most recent survey conducted by IMRB, Kantar in July 2018 covered 5140 libraries and interviewed 7120 citizens. The findings accepted by the Ministry in July 2019 offer valuable insights into the performance and satisfaction of both library users and non-users. These surveys inform future planning and resource allocation but have faced delays in execution, impacting timely modernization efforts
Capacity Building for Library Personnel
The NML recognizes the importance of well-trained library staff in delivering modern services. To address the Capacity Building program provides training to librarians and other library personnel, focusing on library management, information technology operations and service delivery. This program is essential for equipping library staff with the necessary skills for digitization and modern service offerings. Despite the availability of such programs, there are still gaps in reach particularly in rural areas where many libraries continue to struggle with a shortage of trained staff.

Financial Assistance and Role of Raja Rammohun Roy Library Foundation

The RRRLF an autonomous body under the Ministry of Culture plays a critical role in the development and modernization of public libraries. The RRRLF provides financial aid for infrastructure upgrades, procurement of books, construction of library buildings and capacity-building programs for library personnel. This support extends to outreach programs including creating children’s corners and facilities for specially-abled individuals. Libraries supported by the RRRLF are integral to promoting inclusivity and accessibility although uneven implementation has slowed progress in some regions.[PIB (Delhi) December 2023]

Performance

The NML implemented through the RRRLF under the Ministry of Culture, focuses on modernizing library services and infrastructure across India. The scheme provides financial assistance to State Central Libraries (SCLs) and District Libraries (DLs) for technological upgrades, infrastructure improvements and services aimed at enhancing accessibility including resources for specially-abled users and the procurement of e-journals and e-books.

Based on data presented in the Lok Sabha [PIB (Delhi) December 2023] by the Minister of Culture, Shri G. Kishan Reddy, the NML has sanctioned substantial funds for libraries across several states and union territories. An analysis of the fund utilization reveals mixed performance with some projects completed successfully while others remain ongoing or pending due to various reasons.

The total amount sanctioned for the setup of NML model libraries across various states is ₹77.10 crores out of which ₹35.59 crores has been released to date. Many of the projects are already completed with a significant portion of the sanctioned funds utilized. States such as Uttar Pradesh, West Bengal, Arunachal Pradesh, Mizoram, Assam and Nagaland have completed their projects with nearly full disbursement of funds. For instance, the State Central Library in Prayagraj received ₹20.38 crores out of ₹20.60 crores marking the project as completed. Similarly, the District Library in Jorhat has utilized almost the entire sanctioned budget of ₹4.00 crores.

At the same time, several projects are still ongoing, with only partial funds disbursed. The State Central Library in Bhubaneswar has received ₹13.30 crores out of the sanctioned ₹22.30 crores while the State Central Library in Thiruvananthapuram has received ₹7.49 crores out of ₹11.66 crores. These projects are in various stages of completion awaiting further fund releases. Some regions such as Bihar and Jharkhand have projects that have been sanctioned but have yet to receive any disbursement. For example, the District Library in Hajipur and Vaishali has been sanctioned ₹8.70 crores but has not yet received funds. In Jharkhand, the State Central Library in Dhanbad is still awaiting state contributions before fund release can begin.

A pattern emerges with states like Uttar Pradesh, West Bengal and Nagaland showing high levels of fund utilization and timely completion of projects. However, there are states such as Odisha, Karnataka and Telangana where funds have only partially been disbursed and projects are still in progress. Manipur, Kerala and Sikkim are also in similar stages with significant amounts of their sanctioned budgets yet to be released. Other regions like Chandigarh, Delhi, Ladakh, Lakshadweep and Andaman & Nicobar Islands have either not yet participated in the program or are awaiting the release of their sanctioned amounts.

As of now approximately 46.15% of the total sanctioned budget has been released indicating that a significant portion of the funds is yet to be utilized. Delays in disbursements appear to be linked to administrative hold-ups or incomplete project proposals as seen in states like Odisha and Andhra Pradesh where revised proposals are needed before funds can be released. Despite these delays, many states have completed their projects, indicating effective fund usage and management in those regions. The performance of the NML scheme shows a combination of success and challenges.[PIB (Delhi) December 2023]

Impact

The NML has had a significant impact on India’s library ecosystem, modernizing infrastructure and expanding accessibility to information, particularly for disadvantaged communities. By prioritizing inclusivity and addressing gaps in access to information the NML has laid a foundation for bridging the digital divide across the country.

One of the standout achievements of the NML is the development of the NVLI which provides open access to a wealth of knowledge resources, including manuscripts, books and cultural artefacts. This initiative has democratized access to information by reaching marginalized communities, offering multilingual content and leveraging technology to make cultural heritage widely accessible. However, its full potential has been tempered by infrastructural challenges in rural areas, where digital penetration remains limited.

Additionally, the NML’s focus on modernizing physical libraries through the Model Library Scheme has led to the upgrading of library infrastructure in several states, providing dedicated spaces for children, senior citizens and the differently-abled. Libraries have been equipped with Braille corners and modern technologies, fostering a more inclusive environment. States like Uttar Pradesh, West Bengal and Nagaland have demonstrated high fund utilization and successful project completion, signalling the scheme’s effectiveness in certain regions.

NML has been pivotal in modernizing India’s libraries, fostering inclusivity and promoting access to information, but there remains a need for improved implementation, particularly in rural regions. Its continued efforts, coupled with the successful execution of ongoing projects, are key to fully realizing the mission’s transformative potential.

Emerging Issues

The NML faces several structural and operational challenges that impede the full realization of its goals. One major issue is the significant disparity between urban and rural libraries in terms of infrastructure, digital access and skilled manpower. Many rural libraries especially in remote areas lack basic facilities like electricity, internet connectivity and modern equipment making it difficult for them to participate in the digital revolution that the NML envisions. The poor digital literacy among both users and staff in these areas further limits the ability to fully leverage digital resources. Additionally, the digitization efforts across the country have been uneven, with some states progressing faster than others due to a lack of uniform guidelines technical expertise and financial resources.

Another pressing issue is the lack of standardization in library services. Libraries across states operate under different administrative frameworks, with varying levels of autonomy and funding resulting in inconsistencies in service delivery and resource management. This fragmentation also impacts the sharing of resources between libraries making it difficult to create a cohesive network under the NML.

Public awareness and community engagement with libraries remain low, particularly in rural and semi-urban areas where libraries are still seen as irrelevant or outdated. The focus of many libraries remains on traditional physical collections neglecting the evolving needs of younger generations who increasingly prefer digital formats and online accessibility. Additionally, a shortage of professionally trained librarians and library management staff exacerbated by outdated recruitment policies and insufficient training programs hinders the efficient functioning of many libraries.

Financial constraints also pose a significant hurdle. The budget allocations for library modernization and resource procurement are often inadequate leading to a lack of proper infrastructure and an inability to continuously update and maintain collections, especially in regional languages.

Way Forward

To effectively address these challenges, a strategic and sustainable roadmap must be developed for the NML. First, a concerted effort is needed to bridge the infrastructure gap between urban and rural libraries. This can be achieved through enhanced government funding and the promotion of public-private partnerships particularly with technology companies and educational institutions that can offer expertise and resources. Implementing solar power solutions and community-driven maintenance initiatives in rural libraries could help mitigate infrastructure issues, particularly in areas with unreliable electricity and internet access. Additionally, establishing region-specific digital literacy programs will be crucial to empowering both users and staff enabling them to make the most of digital resources and modern technology.

The standardization of library services across states should be a priority with uniform policies for library management, digitization and resource sharing. Creating a national-level digital library platform with centralized resources while still allowing for regional customization could foster greater inter-library cooperation and provide seamless access to knowledge for users across the country. Additionally, the NML should focus on encouraging more states to adopt library acts and policies that ensure the establishment, maintenance and funding of public libraries as a statutory obligation.

To increase public engagement libraries should be transformed into community hubs that not only provide reading materials but also host events, workshops and educational programs that attract diverse groups of people including children, students, researchers and the elderly. Innovative programs such as mobile libraries, reading spaces in public places and digital resource access through mobile apps can help reach underserved populations. Awareness campaigns through social media, educational institutions and local community leaders can also play a key role in raising the profile of libraries and showcasing their relevance in the digital age.

In the long term, a national body to regulate and oversee the professional standards of librarianship should be established to ensure continuous improvement and innovation in library management. To enhance accountability and effectiveness, comprehensive library audits should be instituted as a regular practice. These audits would evaluate library services, infrastructure and user satisfaction providing valuable insights into areas that require improvement. Utilizing the findings from these audits’ libraries can better allocate resources and develop targeted strategies for enhancing service delivery and user engagement. Sustainable funding models are essential to maintaining momentum.

The NML could explore multi-source funding strategies, including international grants, corporate social responsibility (CSR) initiatives and crowdfunding for specific projects like digitizing rare manuscripts or expanding regional language collections. Establishing an NML-specific research and development wing would allow for continuous innovation, particularly in integrating emerging technologies like artificial intelligence, big data analytics and virtual reality into library services ensuring that Indian libraries stay on par with global advancements.

Lastly, monitoring and evaluation mechanisms need to be strengthened to track the progress of NML initiatives and ensure accountability. The creation of real-time data dashboards that track key performance indicators such as user engagement, digital resource usage and infrastructure improvements could provide valuable insights for decision-makers. The NML’s capacity to adapt to changing user demands, emerging technologies and shifting educational landscapes will ultimately determine its success in building a vibrant, inclusive and future-ready library ecosystem in India.

References

One Nation, One Digital Library: India sets its eyes on libraries of the future. (2023, July 21). Money control. https://www.moneycontrol.com/news/trends/entertainment/one-nation-one-digital-library-india-sets-its-eyes-on-libraries-of-the-future-11004651.html
Kumar Rajan, M. & Free Libraries Network. (2022). Public Library Infrastructure in India- National Mission on Libraries. In National Mission on Libraries. https://www.fln.org.in/wp-content/uploads/2023/04/Public-Library-Infrastrucure-in-India-and-NML-Reg-no-1781.pdf
Rath, P. (2019). National Mission on Libraries: A Step Towards Strengthening the Library system in India. ResearchGate. https://www.researchgate.net/publication/331980860_National_Mission_on_Libraries_A_Step_Towards_Strengthening_the_Library_system_in_India
National Mission on Libraries | Ministry of Culture, Government of India. (n.d.). https://www.indiaculture.gov.in/national-mission-libraries-1
NML launched by President Shri Pranab Mukherjee. (n.d.). https://pib.gov.in/newsite/PrintRelease.aspx?relid=102951
National Mission on Libraries SCHEME PROVIDES FINANCIAL ASSISTANCE TO STATE CENTRAL LIBRARY AND DISTRICT LIBRARY IN EACH STATE AND UT. (n.d.). https://pib.gov.in/PressReleaseIframePage.aspx?PRID=1944323
National Missions of Libraries | Ministry of Culture. (n.d.). https://moc.php-staging.com/national-mission-libraries
Modernisation of libraries. (n.d.). https://pib.gov.in/PressReleaseIframePage.aspx?PRID=1982324

About the Contributor: Shivashish Narayan is an Intern at IMPRI. He is a law graduate from Indore Institute of Law. His interest areas are policy and legal.

Acknowledgement: The author would like to express sincere gratitude to Dr. Arjun Kumar, Ms Aasthaba Jadeja, Mr. Goutam Sinha and Mr. Dhruv Tapadia for their invaluable contributions into this article.