Public libraries do not exist without their cities; the cities created them. Iowa Code chapter 392 is entitled "City Administrative Agencies" and section 392.5 is entitled "Library Board." Therefore, libraries are considered city administrative agencies. Public library employees are city employees because the public library is a city agency. Iowa Code section 392.1 explains the relationship between cities and their administrative agencies.
Public library employees' salaries are paid from the city's general fund in the form of an appropriation; that makes public library employees city employees. If the city offers benefits to some city employees but not others, that is a discriminatory practice. An Iowa Attorney General's Opinion dated March 18, 1976, states in the last paragraph: "It is the view of this office that the library board has express power to hire and fire the librarian and other library employees. However, it must be remembered that all such employees are employees of the City of Davenport and the library board is an agency of the city deriving its power under the municipal code."