The Impact of the COVID-19 Pandemic on the Functioning of Public Libraries in Cameroon: A Case Study

The COVID-19 pandemic caused unprecedented disruptions across all sectors of society, including public libraries. For many libraries, it generated fear and uncertainty. According to Harris (2021), libraries were largely unprepared for the crisis, facing a lack of pandemic response plans, limited awareness and training in the use of Information and Communication Technologies (ICTs) to address such emergencies, and significant shortages of resources, equipment, and infrastructure needed to deliver online services. In addition, the sudden shift in users’ information-seeking behavior, combined with limited digital literacy skills among many library users, further exacerbated the challenges faced by libraries (Ameen, 2021; Rafiq, Batool, et al., 2021).

The COVID-19 pandemic has generated a substantial body of literature worldwide. Institutions and researchers have conducted retrospective studies to examine the attitudes and behaviours of librarians during the pandemic. Identifying, synthesizing, and critically examining the diverse experiences of library professionals is essential for theory building and for developing practices that can be adopted in similar contexts. Researchers in information science have adopted this approach in studies of library and information services. However, there remains a paucity of literature focusing on public libraries and the COVID-19 pandemic in Cameroon, and only a limited number of studies have addressed public libraries in Africa more broadly (Ashiq et al., 2022).

This study seeks to address this gap by gathering information and perspectives from librarians at three public libraries in Yaoundé on the management and organization of work during the lockdown period. Specifically, it aims to assess their capacity to respond to crises such as the COVID-19 pandemic. The study is organized into three main sections: the first presents a review of the literature, the second outlines the methodology and theoretical framework, and the third presents and discusses the findings.

Literature review

A substantial body of literature has emerged worldwide in response to the COVID-19 pandemic. While some studies have focused on specific institutions, others have examined particular social groups or communities. Three years after the peak of the pandemic, a growing number of studies now offer syntheses of earlier research on the subject. Many of the issues identified appear to be common across institutions operating within the same sectors, and several findings are applicable to various types of libraries.

Ashiq et al. (2022), through a systematic literature review, synthesized 23 studies on library services during the COVID-19 and post-COVID-19 periods. Their findings (Ashiq et al. 2022) indicate that one of the most significant transformations was the accelerated and immediate adoption of information and communication technologies  (ICTs) by both librarians and users. As the authors note, “the worldwide pandemic has greatly affected library facilities, library users, and library staff.” Users’ information-seeking behaviour changed considerably, leading to greater awareness of the need to enhance their information literacy and a more frequent reliance on reliable information sources.

The same study highlights that during the initial phase of the pandemic, primary concerns centered on the health and well-being of users and staff, the development of new operational protocols, and the expansion of online access to information. These challenges prompted libraries to rethink and redesign their service offerings. The authors categorized libraries into three groups: those that rapidly transformed their services, those that proactively engaged users to promote available services, and those that transitioned primarily to online operations. Overall, public libraries were characterized by the suspension of physical services, which paved the way for the increased provision of online services.

Challenges

Libraries faced multiple challenges during the COVID-19 period. First, internal pressure on management compelled library professionals to innovate in order to continue serving users while safeguarding the health and well-being of staff and patrons. These challenges were both infrastructural and human in nature. Questions arose regarding how libraries could continue to fulfill their mission in contexts marked by inadequate infrastructure and how leadership could be maintained when established organizational structures struggled to plan and implement activities under unprecedented conditions. As a result, public libraries found themselves operating in environments where leadership models and business planning required critical reassessment.

Changes in users’ information-seeking behaviour also necessitated adaptation among library professionals. Social media assumed a more prominent role in the dissemination of digital library content, further underscoring the need for libraries to strengthen their digital presence. Within this context, it became evident that public libraries must invest in modern infrastructure and improve accessibility to effectively support users who access resources remotely in an increasingly dynamic digital environment.

Empirical research by Chakraborty and Jana (2021) identified four major challenges faced by libraries during the COVID-19 crisis. The first concerned space planning and organization under health and safety constraints. The second related to the management of collections, particularly the balance between print and online resources. The third challenge involved ensuring equity of access to digital materials, especially in the face of inadequate funding to acquire online resources. Finally, the fourth challenge was the lack of sufficient ICT skills and the limited capacity of many librarians to deliver digital services.

On the users’ side

Okpala (2021) conducted a survey at the onset of the pandemic to examine the effects of COVID-19 on library services in Nigeria and to identify users’ needs. The findings revealed a strong and unanimous demand for online services. Specifically, users emphasized the need for access to e-books, functional library websites, and digital platforms to enhance library visibility, all of which recorded a 100% response rate. In addition, respondents highlighted the need for improved internet connectivity at lower costs, more reliable energy supply, and the strategic use of social media, whose importance became particularly evident during the lockdown period.

Oyedele et al. proposed a framework comprising three main strategies to support African libraries in overcoming challenges during crises such as the COVID-19 pandemic. Their study underscores that effective responses must be grounded in strong collaboration between library management—namely decision-makers — and professional staff.

First, librarians must be prepared for what is often referred to as the “new normal” and be capable of leveraging the opportunities offered by digital technologies. In parallel, top management should increase budgetary allocations and develop operational guidelines adapted to this evolving context. Smith et al. (2023) further emphasize the importance of leadership training for librarians, as well as the need to master legal and regulatory issues related to service provision in digital environments. Staff training and skills development therefore emerge as critical priorities. Such training, according to the authors, should also encompass advocacy skills, as well as competencies in data analysis and interpretation.

Methodology and theoretical framework

This study does not seek to address all the issues identified in the literature review in detail. Rather, it aims to examine how public libraries responded internally to the COVID-19 pandemic in order to continue fulfilling their mission. A qualitative research approach was adopted, combining questionnaires and semi-structured interviews. Questionnaires were hand-delivered to the managers of each selected library. Interviews were conducted face to face and, where necessary, by telephone to clarify or expand on certain responses.

The questionnaire was administered in three public libraries selected on the basis of the diversity of their user populations: the Public Reading Center, the Médiathèque of the Institut Français du Cameroun, and the Goethe-Institut Library. The instrument was structured around several thematic sections, including administrative organization, number and qualifications of staff, media and collections, usual financial situation, financial and technical challenges generated by the pandemic, changes in library operations, and relationships with users during the lockdown period.

The theoretical framework adopted for this study is systems theory. The term systemic refers to the notion of assemblage or composition, that is, the organization of different components into a coherent whole in which elements are interdependent and hierarchically structured to serve a common purpose. In this perspective, a library is viewed as a system composed of several interrelated services that work together to achieve user satisfaction.

Within this system, multiple functions can be identified: the managerial function, which provides leadership; the production function, which includes the acquisition, processing, and dissemination of documents as well as service delivery and equipment; human resource management; financial management; control; and marketing. When the pandemic emerged, all these functions were mobilized to varying degrees, depending on available resources, institutional needs, and contextual constraints. While this study does not aim to analyze each function in detail, it seeks to understand how librarians attempted to implement solutions to the COVID-19 crisis by activating and interrelating these system components.

Public libraries are considered open systems, meaning they interact continuously with their external environment—particularly their users. As noted by Jean-Claude Lugan (2009) , systems both influence and are influenced by their environments. This interaction was especially evident during the lockdown, when libraries and their socio-cultural environments engaged in new forms of exchange. However, the present study focuses primarily on the internal, or “back-office,” measures adopted to continue meeting users’ needs.

Guided by this framework, the study seeks to answer the following research questions:

• What needs did librarians identify during the COVID-19 lockdown?
• What challenges did they face?
• To what extent were libraries prepared, particularly in terms of financial and infrastructural capacity?
• What resources and support were provided by institutional hierarchies to enable libraries to respond to the health crisis?
• How did these libraries reorganize their operations to maintain communication with users and ensure access to information?

Library surveys

The sections presented below follow a logical structure, covering the general presentation of the libraries, their collections, personnel, financial resources, and public relations. Table I presents historical data relating to the establishment of the libraries and the length of service of the librarians in charge.

The Institut Français library is the oldest of the three. It benefits from strong visibility and public recognition, having played a prominent role in Yaoundé’s cultural landscape since its establishment. This visibility is largely attributable to the wide range of cultural activities organized by the institution and its strategic location at the intersection of one of the busiest avenues in Yaoundé, Cameroon.

The National Public Reading Center operates under the supervision of the Ministry of Arts and Culture (MINAC). Although it is also located in the city centre, the library is less visible from the main thoroughfare. The institution currently has approximately 200 registered users.

The Goethe-Institut Library operates within the German Cultural Center and is primarily frequented by German language specialists, historians, and students, reflecting the historical ties between Germany and Cameroon. Traditionally serving adults, university students, and secondary school pupils, the library expanded its services two years ago with the introduction of a children’s section.

The seniority and professional experience of the librarians in charge of these institutions have proved to be valuable assets in responding to and proposing solutions to the challenges posed by the COVID-19 pandemic. While the primary mission of the Institut Français and Goethe-Institut libraries is to promote the culture and publishing output of their respective countries — France and Germany — interviews with library managers revealed a growing emphasis on Cameroonian cultural production and local publishing in their documentary policies. All three libraries maintain diverse collections covering a wide range of subject areas.

Collections: types of media

The National Public Reading Center holds exclusively print-based collections. This situation significantly limits the potential user base and reduces the attractiveness of the institution and its resources. Its documentary policy does not currently include plans for the acquisition of digital media. It should be noted, however, that the Ministry of Arts and Culture (MINAC) operates a mobile digital library managed by the Directorate of Books and Reading (Direction du Livre et de la Lecture). This service operates on a seasonal basis and periodically travels to regions without public reading libraries.

In contrast, both the Institut Français du Cameroun (IFC) Médiathèque and the Goethe-Institut Library provide access to both physical and digital collections. According to library managers, these institutions did not experience a pressing need to significantly expand their digital holdings during the period of closure, as their existing documentary policies had already prioritized digital resources prior to the pandemic. Table II presents an overview of the collections held by the three libraries.

The National Public Reading Center is responsible for preserving documents deposited under the legal deposit system. This collection, which includes books and all locally published periodicals, is available for on-site consultation only and is not loaned out. The library does not maintain subscriptions to periodicals.

With regard to language distribution, the majority of adult materials in the Goethe-Institut Library are written in German. At the IFC Médiathèque, collections are predominantly in French, while the National Public Reading Center acquires materials in both French and English without distinction.

The staff

All the institutions rely on a combination of professional librarians and staff trained on the job to perform various library-related tasks. Many staff members hold university degrees in disciplines other than librarianship, while professional librarians possess formal academic qualifications in library and information science. At the Goethe-Institut Library, the head librarian holds a master’s degree in German studies and is currently pursuing a master’s degree in librarianship through an e-learning program in Berlin.

The data presented in the table above indicate that the teams are generally well supervised and possess the competencies necessary to identify and implement context-appropriate solutions within their respective institutions. However, librarians acknowledged that when the pandemic was declared, they were not adequately prepared to confront such an unexpected and unprecedented situation. Library education and professional training programs worldwide had not anticipated a crisis of this magnitude, making it necessary to urgently develop adaptive strategies to respond to users’ needs. Based on the experience gained during the pandemic, institutions are now more likely to integrate crisis preparedness into future training and planning, as highlighted in the literature review.

The strategies adopted to address staffing challenges varied according to institutional context. At the National Public Reading Center, the Ministry of Arts and Culture (MINAC) assigned additional staff in order to implement a rotational system aimed at reducing the risk of contamination. Librarians and support staff were required to submit a negative PCR test every two weeks. The increase in staffing levels also allowed for additional rest days, minimizing prolonged contact among staff members and reducing exposure to high-risk situations.

In contrast, the Goethe-Institut and the Institut Français du Cameroun (IFC) did not recruit additional staff. During the lockdown, IFC librarians worked entirely remotely, while staff at the Goethe-Institut adopted a hybrid model combining on-site and remote work. All three institutions required either targeted training or specific operational guidelines to respond effectively to the new demands imposed by the pandemic. For instance, at the National Public Reading Center, capacity-building sessions were organized for staff assigned to the library. At the IFC Médiathèque, the IT department provided technical guidance on file transfers, format compatibility, and other digital challenges encountered by staff. Similarly, librarians at the Goethe-Institut participated in specialized online training to enable them to implement services adapted to users’ evolving needs.

Pandemic impact on budgets

All three libraries normally operate with an annual operating budget. During the COVID-19 pandemic, these budgets were adjusted to accommodate new operational requirements. Full-time teleworking was implemented at the Institut Français du Cameroun (IFC) Library, while partial teleworking was adopted at the Goethe-Institut Library during the lockdown period from March 17, 2020, to the end of September 2020. This shift necessitated increased personal budget allocations to support librarians’ internet connectivity.

In addition, all three libraries allocated supplementary funds for the purchase of protective equipment, including hand sanitizers, face masks, and materials required for the disinfection and “sterilization” of printed documents following each return. Librarians reported that the mandatory sanitization procedures led to delays in the circulation of materials, particularly affecting loan services.

Among the three institutions, the National Public Reading Center required more substantial additional funding, which was subsequently granted, as its regular operating budget is generally considered insufficient by library staff. However, for all the libraries studied, it was not possible to obtain precise budgetary figures related to these adjustments.

Relations with users: opening hours and means of communication

During the lockdown period, the National Public Reading Center did not consider it necessary to close its premises, mainly because of its relatively low user attendance and the availability of sufficiently large reading rooms. User numbers declined further during this period, rendering the space even less crowded. During peak periods, such as examination preparation, the library typically receives around ten users per day. By 2022, the library had approximately 200 registered users. Interviews with the library manager revealed that about 80% of users are students and job seekers. The library’s central location, near several government departments, attracts individuals from other localities seeking employment opportunities, who frequently consult resources related to their professional fields and often require guidance in their research.

In contrast, the Institut Français du Cameroun (IFC) Médiathèque and the Goethe-Institut Library—both of which usually experience high levels of attendance—were closed from March 17 to the end of September 2020. According to library managers, and despite the absence of precise statistics, user attendance did not decline significantly after reopening, as many students were unable to find comparable documentary resources elsewhere. The IFC Médiathèque currently counts 496 active users, defined as individuals who have borrowed at least one document. The institution is also in the process of expanding its premises to accommodate collection growth and to broaden access across disciplines.

Opening hours were modified across all three libraries in order to reduce users’ time on-site and to allow staff to carry out additional internal tasks required by the health context.

As noted, the National Public Reading Center remained open throughout the lockdown, while the IFC Médiathèque and the Goethe-Institut Library were closed from March 17 to September 30, 2020. During this closure, the IFC Médiathèque maintained communication with users through a WhatsApp group created specifically for this purpose. Users were redirected to digital platforms, notably Culturethèque, the digital library of French Institutes and Alliances Françaises worldwide, and Cairn Info, a digital portal specializing in the humanities and social sciences. Similarly, users of the Goethe-Institut Library were directed to the institution’s online library.

Despite these measures, library staff reported a strong sense of distance in their relationships with users, resulting from reduced or nonexistent physical contact during certain periods. This highlighted the limits of digital mediation in fully replacing in-person interactions.

Upon reopening, the IFC Médiathèque implemented strict access regulations: on-site reading was limited to two hours per user per day, and a maximum of 50 users were allowed in the reading areas at any given time. Librarians observed some reluctance among users to return to the library. Additionally, a significant number of borrowed items had not been returned, in some cases by expatriate users who may have returned to their countries of origin. At the Goethe-Institut Library, reopening was also gradual, and users were required to reserve access in advance.

An analysis of user inquiries during this period revealed similar concerns across institutions. At both the Goethe-Institut and IFC libraries, users primarily sought information regarding the operation of physical and digital services, procedures for returning borrowed materials, account creation and access to digital platforms, effective use of digital resources, and updates on reopening schedules.

Conclusion

The COVID-19 pandemic compelled public libraries in Cameroon to confront a range of interconnected and emerging challenges. Among the most pressing issues were the urgent need to digitize collections, to reinvent library services, and to rethink continuing education and professional training for library staff. More than ever, online services proved to be essential to ensuring continuity of access to information.

This study highlights a notable convergence of challenges faced by libraries worldwide, regardless of library type or geographic context. The National Public Reading Center benefited from the availability of large physical spaces and relatively low user attendance, which allowed it to remain open during the lockdown. However, the absence of digital infrastructure limited its ability to maintain contact with users and to provide remote services. Library staff expressed a clear desire to strengthen online engagement and service delivery in the future.

In contrast, the Goethe-Institut and the Institut Français du Cameroun were able to deploy online services rapidly, drawing on pre-existing digital collections and infrastructures. Overall, the findings indicate that the three public libraries examined demonstrated a capacity to respond effectively to the crisis by rapidly mobilizing available resources and implementing emergency planning measures. The experience of the pandemic has also reinforced a user-centred approach to library services, placing users’ needs at the core of institutional priorities.

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