House of Commons Culture, Media and Sport Committee
Library Closures
Third Report of Session 2012-13
Volume I Volume I: Report, together with formal minutes, oral and written evidence
Additional written evidence is contained in Volume II, available on the Committee website at www.parliament.uk/cmscom
Ordered by the House of Commons to be printed 30 October 2012
HC 587 (Incorporating HC 1815-i to iii of Session 2010-12) Published on 6 November 2012 by authority of the House of Commons London: The Stationery Office Limited £17.50
The Culture, Media and Sport Committee
The Culture, Media and Sport Committee is appointed by the House of Commons to examine the expenditure, administration and policy of the Department for Culture, Media and Sport and its associated public bodies.
Current membership Mr John Whittingdale MP (Conservative, Maldon) (Chair) Mr Ben Bradshaw MP (Labour, Exeter) Angie Bray MP (Conservative, Ealing Central and Acton) Conor Burns MP (Conservative, Bournemouth West) Tracey Crouch MP (Conservative, Chatham and Aylesford) Philip Davies MP (Conservative, Shipley) Paul Farrelly MP (Labour, Newcastle-under-Lyme) Steve Rotheram MP (Labour, Liverpool, Walton) Mr Adrian Sanders MP (Liberal Democrat, Torbay) Jim Sheridan MP (Labour, Paisley and Renfrewshire North) Mr Gerry Sutcliffe MP (Labour, Bradford South)
The following were also members of the Committee during the Parliament:
David Cairns MP (Labour, Inverclyde) Dr Thérèse Coffey MP (Conservative, Suffolk Coastal) Damian Collins MP (Conservative, Folkestone and Hythe) Alan Keen MP (Labour Co-operative, Feltham and Heston) Louise Mensch MP (Conservative, Corby) Mr Tom Watson MP (Labour, West Bromwich East)
Powers The committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the internet via www.parliament.uk.
Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the internet at www.parliament.uk/cmscom. A list of Reports of the Committee in the present Parliament is at the back of this volume.
The Reports of the Committee, the formal minutes relating to that report, oral evidence taken and some of the written evidence are available in a printed volume.
Additional written evidence is published on the internet only.
Committee staff The current staff of the Committee are Elizabeth Flood (Clerk), Grahame Danby (Second Clerk), Victoria Butt (Senior Committee Assistant), Keely Bishop/Alison Pratt (Committee Assistants) and Jessica Bridges-Palmer (Media Officer).
Contacts All correspondence should be addressed to the Clerk of the Culture, Media and Sport Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 6188; the Committee’s email address is [email protected]
Library Closures 1
Contents
Report Page
Summary 3
1 Background 5 Introduction 5 This Inquiry 6 The Public Libraries and Museums Act 1964 6 The Wirral Inquiry and the Charteris Report 7 Library usage and the impact of funding cuts 8 Visitor numbers and book loans 9 Local authority expenditure on libraries 11 Number of Libraries 12 Opening hours 13 Staff numbers 14
2 A comprehensive and efficient service 15 Defining a ‘comprehensive and efficient service’ 15 Assessing local needs 18 Library buildings 22 Library staff 25
3 A library service for the 21st century 28 Co-operation and mergers 29 Community libraries and the role of volunteers 32 Responsibility for ensuring a comprehensive and efficient service 35 Role of the Secretary of State 35 Role of the Arts Council 39
Conclusions and recommendations 41
Formal Minutes 44
Witnesses 45
List of printed written evidence 45
List of additional written evidence 46
List of Reports from the Committee during the current Parliament 49
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Summary
Public libraries providing free access to books and other sources of information are a vital and much-loved service. Recent campaigns against the closure of local libraries have highlighted the strong attachment that many people feel to this service. However, much of the focus of the campaigns has been on library branches rather than the broader question of the preservation—and, if possible, enhancement—of the library service. Reductions in opening hours and the loss of professional staff may damage the service more than the closure of particular buildings, even though premises are clearly key to comprehensive provision.
Local authorities are under considerable financial pressure at present and have to make budgetary decisions swiftly. The provision of a library service is a statutory duty, but a number of councils have drawn up plans that fail to comply with the requirement to provide a ‘comprehensive and efficient’ service. A good starting point is the consultation being carried out under the aegis of the Arts Council into exactly how people use the service at present. Making a full assessment of the needs of the local population for the services provided by libraries is key to developing plans for changes to the service. While guidance on how to assess local needs is available, the Department for Culture, Media and Sport and the Arts Council (the body which now has responsibility for promoting good practice in the service) need to do more to disseminate it. The support of the Local Government Association and the professional librarians will be needed in this task.
Although the current crisis may appear to bode ill for the future of public libraries, it also presents an opportunity for a thorough reassessment of their role and of the way they are organised. We were given many examples of innovative thinking about what libraries can offer to the local population, and a number of models of how those services might be provided. Under the pressure of budget cuts, co-operation between library authorities, partnerships with other public and private bodies, development of new services and the greater sharing of good practice open the possibility of providing more flexible, imaginative and efficient library services in future.
Councils which have transferred the running of libraries to community volunteers must, however, continue to give them the necessary support, otherwise they may well wither on the vine and therefore be viewed as closures by stealth.
During our inquiry, the Minister gave us a commitment to produce a report by the end of 2014 on the cumulative effect on library services of the cuts in local authority provision and the promotion of alternatives such as transfers to community volunteers. We welcome that commitment and look forward to that report. Enthusiasm over the scope for volunteers, and for new models of provision, is fine, but—given the importance of library services—a systematic look at the impact of funding cuts and re-organisation is needed to assess the durability of such changes over time.
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1 Background
Introduction
1. Public Libraries have been an important element of local life since 1850, when the first Public Libraries Act gave power to town councils to levy a small rate for the establishment of public libraries and museums in all municipal towns. (The rate was intended only for buildings: no provision was made for the purchase of books.) This—to modern eyes— modest measure raised considerable concerns, and the debate on Second Reading of the Bill threw up a number of arguments familiar to those interested in the public library service today: the utility of libraries in spreading literacy and the love of learning; the benefits of voluntarism over public provision; even disagreements about the use of library facilities for other purposes, such as lectures.1 Certainly, the provision of public libraries has been a subject of controversy from the beginning.
2. The most recent legislation governing the provision of public libraries is the Public Libraries and Museums Act 1964 (the 1964 Act). This was introduced mainly because of the proliferation of library authorities under the then statutory regime: the Government of the day wished to reduce the total number of authorities (there were more than 600 by 1942), and in particular to merge or dissolve the smallest and least efficient authorities. In addition to sweeping away several hundred authorities, the Act imposed duties on both local library authorities and the relevant Minister in respect of delivering a free and effective library service to the public.2
3. Currently, the Department for Culture, Media and Sport (DCMS) has overall responsibility for national library policy and individual local authorities are responsible for the library service in their areas. There are 151 library authorities in England, running 3 nearly 3,500 libraries and spending more than £900 million each year on library services. Central Government funding for local libraries comes from the local government finance settlement and is administered by the Department for Communities and Local Government (DCLG). It is not ring-fenced. Local authorities are responsible for deciding how to allocate core funding to public libraries in the light of their statutory duties under the 1964 Act and local priorities.
4. Since the Comprehensive Spending Review instituted by the new Government in 2010, the grants given by central government to local authorities have reduced significantly while restrictions on the ability of local authorities to increase council tax for their residents and local businesses remain in place. Local authorities face a decrease of, on average, 28% in their income over the Spending Review period4 and, in reviewing which services they should cut, some local authorities have decided to close one or more libraries in their area. This has sparked a series of campaigns and protests in areas where library closures have been planned.
1 HC Deb, 13 March 1850, col 838–849 2 The relevant provisions of the Act are discussed in paragraphs 7 and 8 below 3 Ev 68 4 Ev 78, para 1
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This Inquiry
5. After receiving numerous letters and emails from campaigners, we decided to launch an inquiry into library closures and, on 23 November 2011, asked for written evidence on the following terms of reference:
• what constitutes a comprehensive and efficient library service for the 21st century
• the extent to which planned library closures are compatible with the requirements of the Public Libraries and Museums Act 1964 and the Charteris Report5
• the impact library closures have on local communities
• the effectiveness of the Secretary of State’s powers of intervention under the Public Libraries and Museums Act 1964.
6. We took oral evidence from three organisations representing those campaigning for maintenance of the library service (The Reading Agency, Voices for the Library and The Library Campaign); the Chartered Institute of Library and Information Professionals; three representatives of local authorities, one of whom also represented the Local Government Association; the Arts Council; Sue Charteris, who in 2009 carried out the most recent inquiry into a local authority’s library service; and Ed Vaizey MP, Parliamentary Under- Secretary of State for Culture, Communications and the Creative Industries at the Department for Culture, Media and Sport. As well as being familiar with library provision in our own constituencies, we visited two libraries in London, in Pimlico and at Canary Wharf, to see two different approaches to providing new and imaginative library services in a time of financial stringency. We also received 136 written submissions to this inquiry. We would like to record our thanks to all who submitted evidence to us and who welcomed us during our visits.
The Public Libraries and Museums Act 1964
7. The Public Libraries and Museums Act 1964 imposes a duty on the Secretary of State to promote the improvement of the public library service provided by local authorities in England and Wales and sets out the statutory duty for all local authorities to provide a 6 “comprehensive and efficient library service for all persons to make use thereof”. “Comprehensive and efficient” are not defined in the 1964 Act: it is the responsibility of the library authorities to determine how they deliver public services in the context of local need—specifically, the needs of those who live, work and study in the local area.
8. The main duties of library authorities outlined in the 1964 Act may be summarised as:
• providing a “comprehensive and efficient” library service for local people;
• keeping adequate stocks of “books and other printed matter, and pictures, gramophone records, films and other materials”; and
5 For a summary of the Act and the Charteris Report see paragraphs 7–14 below 6 Public Libraries and Museums Act 1964 s7(1)
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• encouraging adults and children to make full use of the library service.7
The Act contains provisions allowing the Secretary of State to hold an inquiry into any local authority’s library service if there is a complaint to the effect that the authority is running an inadequate service and is therefore in breach of the Act. It also states that if, following an inquiry, a local authority is found to be in breach of the Act, the Secretary of 8 State can take direct control of the public libraries in that area.
9. The view of the DCMS is:
The closure of one or even a small number of library branches is not necessarily a breach of the 1964 Act. Sometimes a local authority will close a library to ensure a better, more efficient service across its whole area. We judge such cases on the basis of the authority’s overall provision. We would be concerned if libraries were closed, or their services disproportionately reduced, just to save money.9
10. Successive Secretaries of State have used their powers under the Act sparingly. In the last 21 years, they have been used only twice: in the form of a threat to investigate library closures in Derbyshire in 1991 and, more recently, an actual inquiry in 2009 in the 10 Wirral.
The Wirral Inquiry and the Charteris Report
11. In February 2009, Wirral Metropolitan Borough Council (Wirral MBC) was asked to work with the Museums, Libraries and Archives Council—the non-departmental public body then holding responsibility for the development and improvement of libraries—on the MBC’s proposals to restructure its library services. The Council’s plans to close 11 of Wirral’s 24 public libraries had been the subject of a large volume of correspondence to the DCMS, mainly from the public, but also from professional bodies.
12. On 3 April 2009, the then Secretary of State for Culture, Media and Sport, Andy Burnham MP, exercised his power under section 10(1) of the 1964 Act to commence a local inquiry into Wirral MBC’s compliance with the duties imposed upon it by section 7 of the Act.11 Sue Charteris, a public policy consultant specialising in local government and public service reform, was asked to conduct the inquiry. In formulating her advice and recommendations, Sue Charteris was asked by the Secretary of State to consider the following questions:
• Did Wirral MBC make a reasonable assessment of local needs in respect of library services and, in any event, what were those needs?
7 Public Libraries and Museums Act 1964 s7(2) 8 Public Libraries and Museums Act 1964 s10 9 http://www.culture.gov.uk/what_we_do/libraries/3416.aspx 10 “Custodian of public libraries?”, Update (the trade journal for the Chartered Institute of Library and Information Professionals), January 2011, pp12-14 11 DCMS, A local inquiry into the public library service provided by Wirral Metropolitan Borough Council: led by Sue Charteris, 2009, p3 (‘Charteris Report’)
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• On assessment of local needs, did Wirral MBC act reasonably in meeting such needs through their proposals in the context of available resources and their statutory obligations?12
13. In its final Report in September 2009, the inquiry found the Council’s decision to restructure its Library Service to be in breach of its statutory duties to provide a “comprehensive and efficient” service.13 Wirral MBC revoked its decision to close the 11 library branches. On 30 November 2009, DCMS issued a press release explaining that the Secretary of State had concluded that, since the closures had been revoked, it was no longer appropriate to rule on whether the decision to close them had been in breach of the 1964 Act.14
14. There is renewed interest in the Wirral Inquiry and the Charteris Report in light of possible implications for public library services following the Comprehensive Spending Review. In January 2011, in an interview for the Chartered Institute of Library and Information Professionals’ (CILIP’s) Update magazine, the current Minister with responsibility for libraries, Ed Vaizey MP, said that he had “told councils to base their decisions on the guidance set out for Wirral by Sue Charteris in 2009.”15 In another article in the same publication, he described the report as “an immensely important influence on library provision in that authority, but also on how we speak about the statutory duty at national level”.16
Library usage and the impact of funding cuts
15. It has been suggested that fewer and fewer of the public are making use of the library service, and—by inference—that the service is less valued and valuable than it was 40 or 50 years ago. Our witnesses considered this was not a complete or accurate picture. The DCMS told us that its ‘Taking Part’ survey showed adult visits to libraries had declined steeply between 2005/06 and 2010/11 from 48.2% to 39.7% of the adult population,17 but there had been no statistically significant decrease over the last few years, and children’s visits remained at a very high level (75.6%).18 We were also informed that lending of children’s books had risen for seven years in a row.19 Alan Davey of the Arts Council England told us that 90% of the adult population thought libraries were important or essential to their community.20 Annie Mauger, of the Chartered Institute of Library and Information Professionals (CILIP), said it was simplistic to paint a picture of steady decline: “There is changed usage. We can’t deny that there is a decline but it is not of a scale at the moment that would suggest that this is a service that is utterly in decline, and there is
12 Charteris Report, pii 13 Charteris Report, pi More detailed findings are discussed on page x below 14 ‘Statement on Wirral library service’, DCMS press release, 30 November 2009 15 ‘1964 and all that, in 2011’, CILIP’s Update magazine, January 2011, p4 16 ‘Guardian of public libraries?’, Update, January 2011, pp12-14 17 Defined as those aged 16 and over. 18 Taking Part: The National Survey of Culture, Leisure and Sport Adult and Child Report 2010/11: http://www.culture.gov.uk/images/research/Y7_Taking_Part_2011-12-Annual_Report_REVISED0812.pdf 19 Q 1 (Miranda McKearney of The Reading agency) 20 Q 62 See also Qq 1 and 2 (Abigail Barker of Voices for the Library and Miranda McKearney of The Reading Agency)
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a correlation with reduction in budget.” In support of this argument, she told us that in 2011 there were 314 million visits to libraries and 300 million loans of books, a decline of, respectively, 2.3% and 2.9% over the previous year. She contrasted this with the fact that loans of children’s books had slightly increased, and that there had been a cut of 6.3% in library budgets and 14% in stock acquisitions.21
16. In order to provide a longer perspective of use of library services, we commissioned the House of Commons Library to produce some statistics about recent library use. The following tables are based on those statistics, which the Library compiled using data from the Chartered Institute of Public Finance and Accountancy (CIPFA).
Visitor numbers and book loans
17. In 2009–10 there were 322 million visits to libraries, but slightly fewer book loans at 309 million. The number of visits exceeded book issues in each of the last seven years. Figure 1 shows that visitor numbers fell in each year between 1993–94 to 2001–02, from 391 million to 318 million. There was an increase between 2003 and 2005, but numbers declined again subsequently.
Figure 1: Number of visits to the public libraries
Number of visits to public libraries, UK 400 millions 350
300
250
200
150
100
50
0 1992/93 1996/97 2000/01 2004/05 2008/09 Source: Public Library Statistics, CIPFA
21 Q 62
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18. Figures on the number of books loaned by libraries are available for a longer time period and trends are illustrated in Figure 2:
Figure 2: Books issued by all public libraries 700 Books issued by all public libraries, UK millions 600
500
400
300
200
100
0 1979/77 1979/80 1982/83 1985/86 1988/89 1991/92 1994/95 1997/98 2000/01 2003/04 2006/07 2009/10 Source: Public Library Statistics, CIPFA
19. The total number of books issued has decreased steadily from around 650 million a year in the early 1980s to fewer than half this number. In each of the years since 1992 there has been a fall in the number of books loaned, an average annual decline of 3.4%. Loans of audio, visual, electronic and other stock increased during the 1990s to a peak of 42 million in 2002-03. However, loans of these items have also fallen since then to 26 million in 2009- 10.
20. Most of our witnesses argued that data on footfall and loans were too crude a measure of the use the public makes of libraries.22 Annie Mauger of CILIP suggested that some libraries that had been closed because of low numbers of book issues had actually made a more significant impact in terms of working with the local community in other ways: in other words, that they may have been the wrong branches to close.23 Nigel Thomas, from Leicestershire Library Services, encapsulated the question as being ‘what is performance for the library sector?’. He contrasted the ‘hard’ data on footfall with the more focused, and very resource-intensive, work accomplished with vulnerable adults, which was much more difficult to quantify.24 He also advocated a wider view of the core book-lending role of libraries as being not only an important educational tool, but also as having major benefits in terms of mental health.25 Others cited the work done in encouraging children to read, notably those of primary school age but also among teenagers as well.26 The Campaign for the Book not only argued that libraries were vital for improving literacy, but that this support for literacy from the grassroots up was fundamental to social cohesion:
The UK, which has performed relatively poorly in international comparisons, can ill afford to allow the erosion of the mainstay of its reading culture, the public library service. We need a greater focus on literacy and reading, not a weaker one. Any cost- savings will prove illusory as the impact of poor literacy levels in reduced
22 See, for example, Q 1 (Abigail Barker of Voices for the Library)
23 Q 87 24 Q 129
25 Q 109
26 See, for example, Qq 2-3 ( Miranda McKearney of The Reading Agency)
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international competitiveness and social deprivation is seen. We need only look at 27 the fact that 80% of August rioters arrested had poor literacy levels.
Similarly, many of our witnesses emphasised the importance of the free access to the internet and information technology provided by libraries, particularly for the unemployed and socially excluded. The Minister said that library staff and volunteers based in libraries had helped 2.5 million people to “get online” as part of the Government’s Race Online 2012 initiative to help tackle the ‘digital divide’.28
21. We were given a wealth of other examples of the uses made of library facilities (homework groups, social groups for older people, craft groups and many more),29 and we return to this issue later in this report. Those representing local authorities emphasised the importance of surveys and the local knowledge of councillors in providing the sort of ‘soft’ data on how people actually used libraries that could not be captured by mere visitor numbers.30 Annie Mauger of CILIP suggested that there was still too little information about the broader impact of libraries on communities; she therefore welcomed the research being commissioned by the Arts Council to fill this gap.31
Local authority expenditure on libraries
22. As already stated, the income of local authorities is set to decrease by about 28% over the course of the current Comprehensive Spending Review period. Although the provision of libraries is a statutory duty for local authorities, the funding for libraries is not ring- fenced, and libraries have to compete with other services provided by authorities, both statutory and non-statutory, for shrinking resources. The House of Commons Library provided us with information about trends in real levels of spending on libraries in England and Wales. Spending has varied little year-on-year over the last 35 years. After around a decade of stable expenditure, there were real increases in the late 1980s and early 1990s, but expenditure fell back in the mid 1990s. Increases in spending from 1997–98 have been only partially reversed in recent years.
27 Ev w6 See also Ev 47 (The Reading Agency) 28 Speech to The Future of Library services conference, 28 June 2012: http://www.culture.gov.uk/news/ministers_speeches/9167 29 See, for example, Q 1 (Abigail Barker of Voices for the Library) 30 Q 129 31 Q 78 The Arts Council has started a programme of research into the use made of libraries and the value placed on them by the public and professionals. For further details, see paragraph 34 below.
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Figure 3: Revenue expenditure on libraries in England and Wales
1,200 Revenue expenditure on libraries in England and Wales £ million 2009-10 prices 1,000
800
600
400
200
0 1977/78 1980/81 1983/84 1986/87 1989/90 1992/93 1995/96 1998/99 2001/02 2004/05 2007/08 Source: Public Library Statistics, CIPFA
23. The proportion of expenditure devoted to books fell from 18% at the start of the period to less than 8% in 2008–09. Spending on staff increased as a proportion of the total from just below 50% to 55% in 2009–10.
24. In its written submission to this inquiry, CILIP provided some results of its recent survey of local authority library services, although at the time of its submission only 83 out of the 151 library authorities had responded. Of those that had responded:
• 80% had reduced library staff;
• 30% had reduced opening hours;
• 65% were looking at alternative methods of service delivery;
• 14% had already, or planned to close libraries; and
32 • 13% had set up community managed (that is, volunteer-run) libraries.
The CILIP survey suggested that in 2011–12 the library authorities that responded planned to make 909 staff reductions and reduce weekly opening hours by 2,438.33 We asked the House of Commons Library to provide us with further historical context in relation to the number of library buildings, library staff and trends in opening hours.
Number of Libraries
25. One of the most obvious impacts of the recent decrease in funding has been the closure of library buildings. There are no official statistics for the precise number of proposed library closures at present, although various figures have been quoted in the media, with 34 some reports suggesting that up to 600 public libraries across England may close. In June 2012, the Minister, Ed Vaizey MP, said this estimate of 600 closures was “very wide of the
32 Ev 50 33 Ibid. 34 “Library usage falls as branches close”, the Guardian website, 3 November 2011 http://www.guardian.co.uk/books/2011/nov/03/library-usage-falls-branches-close
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mark”, and that a truer picture would be about a tenth of that.35 In fact, leaving aside mobile libraries, the total number of public libraries has remained fairly constant from the late 1970s to the present day, at between 3,300 and 3,400. The only exception was a short dip in the late 1980s/early 1990s when numbers fell to just over 3,200, but the total increased by more than 200 in the following two years.
26. The most widely reported proposed library closures recently are as follows:
• Brent Council made a decision in April 2011 to close six libraries, half of the libraries in the borough. This sparked a series of campaigns under the umbrella group Brent SOS Libraries, which sought a judicial review of the council’s decision. The High Court ruled on 13 October 2011 that Brent Council’s decision had been lawful. On the same afternoon as the court ruling, all six libraries were closed and boarded up. The campaigners appealed the decision, but the appeal was rejected in December 2011.
• Gloucestershire and Somerset County Councils initially planned to close (in Gloucestershire) 10 out of 38 and (in Somerset) 11 out of 34 libraries in 2010. Friends of Gloucestershire Libraries campaign group took joint legal action with Somerset campaigners against their respective councils’ decisions in November 2011. The High Court found that neither council had carried out a sufficiently comprehensive and detailed analysis of local needs—especially those of disadvantaged groups—for library services and it overturned both councils’ decisions to close the libraries. Both councils are now exploring alternative approaches.36
• Initial media reports in 2010 suggested that Isle of Wight Council proposed to close nine out of its 11 libraries. However, the council conducted a public consultation and evidence-gathering exercise and eventually proposed the closure of five libraries. Campaigners sought a judicial review, but the request was rejected. The council has now closed the five libraries and is establishing community libraries in place of the five closed sites.
• In January 2011 Dorset County Council proposed the closure of 20 of its 34 libraries. In June 2011, after protests and petitions from campaigners, it revised its proposal in favour of a compromise of nine closures.
Opening hours
27. While there was no major change in the number of public libraries over 30 years, there has been a significant change in the availability of library services, in that more libraries extended their opening hours: according to CIPFA, over the decade to 2010 the number of libraries open for fewer than 45 hours per week fell by around 470, while the number open for 45 or more hours per week increased by around 440. On the other hand, CILIP’s research indicates that the trend to longer opening hours is now being reversed. As the Chief Executive of the Arts Council said, if cuts in opening hours resulted in people being
35 Speech to The Future of Library Services Conference on 28 June 2012: http://www.culture.gov.uk/news/ministers_speeches/9167 36 For a full account of these cases, see Ev w288 (Public Interest Lawyers)
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unsure whether or not their local library would be open, then that would have an effect on library usage.37
Staff numbers
28. A less immediately obvious change to the library service has been the decrease in the number of library staff. We were interested to see whether this was a new phenomenon. The House of Commons Library provided statistics which show that the long term trend in the number of staff employed in libraries is downward. Their total full-time equivalent number in England and Wales fell from just over 25,000 in the late 1970s and early 1980s to 21,300 in 2009–10. Short term trends have varied over this period, but the total has fallen in each year since 2004–05, and the 2009–10 figure was the lowest of any during this period. Within this total the full-time equivalent number of professional posts fell from 6,700 in March 1999 to just under 5,000 in March 2010. Most of this fall occurred between 2004 and 2009.
37 Q 62
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2 A comprehensive and efficient service
Defining a ‘comprehensive and efficient service’
29. The 1964 Act requires local authorities to provide a “comprehensive and efficient” library service for local people.38 Neither of these terms is defined in the Act, and both are open to widely varying interpretation.39 In 2005 our predecessor Committee conducted an inquiry into public libraries and in its Report said that there was “need for more clarity as to what constitutes ‘comprehensive and efficient’ service and what action will be taken when this criterion is not met”.40 The 2005 Report went on to recommend that the DCMS should review the case for new library legislation.41 However, in its response to the Report, the DCMS said that it did not see a compelling need for new legislation.42 Currently, as a number of judicial challenges are being brought against local authorities’ decisions to close libraries and/or make other cuts to library services, the definition of ‘comprehensive and efficient’ is becoming a legal minefield.43
30. Opinions among our witnesses differed, however, as to whether it was desirable to have a clearer definition of the core criteria for a comprehensive and efficient service and, if so, whether it should be provided through statute, through guidance from the Secretary of State, or left to local authorities themselves (with the backstop of judicial review). Andrew Coburn, of The Library Campaign, argued that, while the final decision had to rest with the local authority, “Nationally there needs to be assistance, guidance and possibly something stronger than that”. He lamented the demise in England of the public library standards drawn up by the DCMS (they have been retained in Wales).44 Our predecessor Committee summarised the library standards in its 2005 Report, and suggested some additions. An outline of the then standards is set out in the textbox below.
Library service standards in 2005
The top ten Public Library Service Standards with which library authorities had to aim to comply in 2005 related to: i. the proportion of households living within a specified distance of a static library; ii. aggregate scheduled opening hours; iii. the percentage of static libraries providing access to electronic information
38 Section 7 39 The Minister explained the original purpose of this phrase as follows: ‘comprehensive’ reflected the desire for libraries to have a wide stock of books, and ‘efficient’ the need to reduce the number of library authorities, which in 1964 totalled about 450. Neither adjective, he argued, referred to the distribution of library buildings. Q 180 40 Culture, Media and Sport Select Committee, Third Report of Session 2004-2005, Public libraries, HC 81-I, para 79 (Public Libraries) 41 Public libraries, para 80 42 Government Response to the Third Report of the Culture, Media and Sport Select Committee, Session 2004-2005: Public Libraries, Cm 6648, para 33 43 Q 34 44 Q 23 See also the replies given to Q 23 by Voices for the Library and The Reading Agency
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resources connected to the internet; iv. the number of electronic workstations with access to the internet and the libraries catalogue; v. dealing with requests; vi. number of library visits; vii. adults' satisfaction rates; viii. children's satisfaction rates; ix. number of books and other items acquired annually; and x. time taken to replenish the lending stock.
Standards which were omitted in 2005, but had been incorporated in those published in 2001, referred to: book issue periods; the number of books permitted to be borrowed at any one time; the number of visits to library websites; levels of success in finding a specific book or gaining information; and other types of satisfaction rates.
Our predecessor Committee said it had sympathy with those who wished to see the standards strengthened and the list extended. It recommended that the list of standards should be extended and/or revised to include measures of: the number of adult and children's book loans; the provision of material for users with disabilities; extended opening times; value for money and the three Es (efficiency, effectiveness and economy—including the balance of management and frontline staff); free access to the internet; and the quality of user consultation (and subsequent action).45
31. The Public Library Service Standards shared the flaws of those imposed elsewhere in the public sector, in that they concentrated on the measurable rather than giving a rounded indication of the quality of service—let alone its responsiveness to changing customer needs and demands. It is noteworthy that most of our witnesses wanted a broader and more permissive approach on the interpretation of ‘comprehensive and efficient’.
32. CILIP argued in its submission that the Government should set out a “fresh vision for the 21st century public library service defining what comprehensive, efficient and accessible 46 mean and forming a basis for local planning and delivery”. We noted the addition of the word ‘accessible’. Annie Mauger of CILIP suggested that the Secretary of State should set out a framework for what a public library service should provide and how the needs of the local community should be assessed, but that it should then be for the local authority to decide how to deliver that.47 Alan Davey of the Arts Council was of the view that it was necessary to have a debate about what a comprehensive service would comprise, but he also considered that guidance should be in the form of a framework rather than a detailed prescription.48 The Minister thought that enough guidance had been made available
45 Public Libraries, paragraphs 60-63 46 Ev 50 47 Qq 76 and 77 48 Q 77
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already, given the cumulative effect of the Charteris Report, the guidelines published by the Museums, Libraries and Archives Council and CILIP’s advice.49 Despite this, a number of library authorities have had to curtail their plans for changes to their local services in the light of judicial reviews and discussions with DCMS officials.
33. Sue Charteris and the representatives of the local authorities argued for greater confidence in the ability of local authorities to judge local needs.50 The Local Government Association emphasised that not only did local needs differ widely, but also any attempt to give a detailed statutory definition of service standards would soon fail to reflect changes in technology and broader social changes: the example often cited was that the 1964 Act required libraries to supply gramophone records, while, unsurprisingly, there is no requirement in the Act in respect of digital material or services.51 Local authorities therefore regarded the prospect of central government defining ‘comprehensive and efficient’ as imposing a “straitjacket” and “immediately building in obsolescence”. They argued that councils must ultimately take the decisions; accountability for those decisions would be through the ballot box. They accepted that this model required individual councils to make it very clear what they considered a ‘comprehensive and efficient service’ to comprise, so that they could be held fully to account.52
34. In February 2012, the Arts Council launched a consultation called Envisioning the Library of the Future, which was intended to discover the value which the public placed on library services, to provide an overview of trends in society, and to provide information about best practice—and, indeed, innovative developments that, for some reason, it had been difficult or impossible to implement. The consultation included desk research, interviews with a carefully selected cross-section of professionals and users, seminars and workshops, and an online public consultation. Interim conclusions were published in March and May, and the final report will be published this autumn.53 The Chief Executive of the Arts Council admitted that it would have been very useful to have completed this work before local authorities had had to start making decisions about the future of their library services, but “we are where we are”.54
35. The professional librarians have also given serious consideration to what constitutes a good library service: CILIP distributed a leaflet on the subject to all local authorities and councillors in 2010.55 CILIP stated it was willing to work with the Arts Council and the Secretary of State to help formulate guidance to local authorities about the way in which they should approach the construction of a comprehensive and efficient library service.
36. Local authorities are having to take decisions now about the funding and shape of the library service but a number appear insufficiently aware of the available guidance
49 Q 180 50 Ev 81 and Ev 54 51 Qq 111 and 114The relevant section of the 1964 Act is section 7(2)(a) 52 Q 111 53 Qq 78 and 88-92 See also the Arts Council’s webpage: http://www.artscouncil.org.uk/what-we-do/supporting- libraries/libraries-consultation 54 Q 94 55 Q 83
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on the definition of ‘comprehensive and efficient’. They also appear to lack information about the requirements emerging from multiple judicial reviews. It is not cost-effective for policy to be made by judicial review and it undermines democratic accountability. While we are firmly of the view that decisions ultimately are for local authorities in the light of local needs, the provision of public libraries is mandatory and local authorities should be assisted to understand what is expected of them under the Act and subsequent guidance. We recommend that the Secretary of State provide all local library authorities with the guidance arising from the Arts Council’s consultation exercise as swiftly as possible, and to take that opportunity again to remind local authorities of the recommendations of the Charteris Report.
Assessing local needs
37. When asked what they want of libraries, the public tend to answer more access (which is a question partly of the location of services and in part of opening times) and more books.56 However, all our witnesses were of the view that libraries provided a number of benefits to the community in addition to access to books and reference materials, and those championing library services were especially anxious that these wider considerations should be taken into account in assessing local needs.
38. It was failure to make adequate needs assessments that led the High Court to rule against Gloucestershire and Somerset County Councils’ library closures in November 2011. In his ruling, Judge McKenna said that, in order for the councils to have known whether they would still be compliant with Section 7 of the 1964 Act after closing libraries, they would have had to properly analyse:
the library related needs of people living in particular areas, the needs of particular groups of people and the particular ways in which people use libraries in different contexts. Further, in order to design a comprehensive and efficient service it was necessary to assess such factors as who used libraries in particular areas, what they 57 use them for, when they use them and how they travel to them.
Judge McKenna went on to say that this assessment must also take into account “persons with specific needs such as the elderly, the disabled, the poor, the unemployed and parents 58 of children”, and that both councils’ assessments had fallen short of what was required.
39. A number of witnesses suggested that the best guide to how local authorities should approach an assessment of local needs was the Charteris Report. Sue Charteris’s inquiry into the library service in the Wirral concluded that the local authority was in breach of its duty to provide a comprehensive and efficient service. The primary reason for this breach was “that the Council failed to make an assessment of local needs (or alternatively to evidence knowledge of verifiable local needs) in respect of its Library Services”.59 She
56 Q 78 (Annie Mauger, citing research undertaken by the Museums, Libraries and Archives Council in the year before its abolition) 57 Green v Gloucestershire County Council; Rowe v Somerset County Council; [2011] EWHC 2687; para 108; 16 November 2011 58 [2011] EWHC 2687; para 108; 16 November 2011 59 Charteris Report, piii
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further considered that the Council had taken the decision to close 11 of its libraries “in the absence of a strategic plan or review of the Library Service” and “without a clear understanding of the extent and range of services [then] being provided in the libraries”. She found there had been a further breach in relation to the needs of deprived communities, and a key concern was that there had been no adequate plan for and commitment to a comprehensive outreach service. Without an assessment of needs and a strategic Library Service review, the Council had “displayed a lack of logic around why some facilities were recommended for closure and not others”.60
40. She concluded that there was a strong case for reviewing the decision to close 11 libraries and for retaining at least some physical presence at some sites earmarked for closure. The criteria for selecting sites where some physical presence should be maintained were that the library was located in an area of significant deprivation; and/or had inter- dependent links with schools or children’s centres; and where the Council had:
• changed its decision on which libraries to close; and/or
• identified an area of need but “subsequently chose to ignore this information”; and/or
61 • failed to meet its own standards in terms of a reasonable distance to travel.
41. The Charteris report set out proposals for the sort of analysis local authorities should be doing to assess local need. We reproduce the relevant passages in the textbox below. In her written evidence to us, she highlighted several key principles, drawn from her practical experience of working with local authorities:
• Comprehensiveness did not mean “a library on every corner” or “blanket coverage”—it depended on a needs assessment matched against the resources available for the service;
• The needs assessment would enable the council to show it had acted reasonably in drawing up new plans for its services. This did not mean that it would not still have to make difficult and/or unpopular decisions;
• The analysis should be made in accordance with the Equality Act 2010, particularly the requirement for a thorough equalities impact analysis of any proposed changes to that model of delivery and evidence that the authority had sought to mitigate any adverse impact identified on protected groups;
• The assessment of local need should cover the existing service configuration and any proposed changes. It was highly unlikely that the existing pattern of delivery fully met local needs and the analysis was therefore helpful in drawing up potentially different 62 models of delivery.
60 Ibid., pp iii-iv 61 Ibid., pp iv-v 62 Ev 81
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Charteris Report paras 6.26 – 6.28
While the analysis of local needs may involve a shifting set of circumstances and a developing methodology over time, I would currently reasonably expect an analysis of needs to be based on:
• consideration of the wide range of those needs caught by the definition of all those who live, work and study in the area, and the specific needs of adults and children and young people of all ages;
• an assessment of accessibility—drawing on travel data including car usage data, public transport routes and the cost of services;
• consideration of the views of existing users, and an attempt to analyse the reasons and motivations of non users and how their use could be encouraged;
• an assessment as to whether there is any differential impact (via an equalities impact assessment) on whether any specific communities or groups would suffer any adverse impacts as a result of the changes to the service; and
• consideration of information from partner organisations and other departments, including reference to learning strategies for children and adults, links with social and adult care, and employment initiatives.
I would also expect there to be a consideration of new and or amended ways of operating the service that might be more efficient. Currently, this might reasonably include an assessment of:
• whether the library buildings are fit for purpose, and/or in the right place to serve the needs of the community;
• whether there is scope for more effective use of resources, through for example flexible staffing arrangements, self-issuing, or the Community Asset Transfer model or partial model;
• whether there is scope to provide the service more efficiently via delivery partnerships within and outside of the authority, for example through Service Level Agreements (SLAs) with other council functions;
• whether there is demand for the services in the way that they are currently offered;
• whether the buildings are beyond their useful life and what the scope of shared facilities might be;
• whether a physical presence is necessary, taking into account the particular needs
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of that community, and if it could be replaced by other means such as a mobile service; and
• whether steps are needed to encourage use of library provision.
While this is not an exhaustive or definitive set of criteria, I would expect a ‘reasonable’ authority to use such evidence, together with an assessment of resources available, to devise a comprehensive vision and development plan for the service, which addresses these considerations within the development plan. It may, having done this, still draw different conclusions than those others might draw, and it might make decisions that are unpopular, but importantly, these decisions would be based on evidence which could be used to demonstrate the comprehensiveness and efficiency of the service provided by reference to demonstrable need and resources.
42. We were told that further guidance on how to undertake a needs analysis had been produced recently by the Arts Council which had updated the recommendations from the Future Libraries Programme initiated by its predecessor.63 These recommendations include the preparation of Equality Impact Assessments to ensure the rights of protected groups, as required under the Equalities Act 2010.
43. When she gave evidence to us, Sue Charteris’s concern was that the current situation made it more difficult for councils to take rational decisions based on a thorough assessment of local needs and a wide consideration of options. Given the pressure on local authorities to make budgetary decisions swiftly, and without more guidance to them from the Secretary of State and possibly the Arts Council (particularly on the conclusions to be drawn from the various judicial reviews), she feared that some councils would decide it was too difficult to close library buildings and would look to reduce funding to other elements of the library service, without regard to whether this was more damaging to the principles of comprehensiveness and efficiency.64 Her prescription for ensuring a comprehensive and efficient service continued to be a proper assessment by councils of local needs, taking into account the requirements of different groups of the population and such issues as access and deprivation, and ideally bringing local communities into the decision-making process.65 Such an assessment had to start with a good understanding of what libraries were doing at present, and then to consider the provision of those services in the round by taking into account what other facilities there were locally that might provide an alternative location for those services and which facilities were best placed to meet local needs.66
44. The supporters of library services did not disagree with this view — they even suggested that in some places library services had improved thanks to a more creative use of
63 Q 77 64 Q 34 65 Qq 34 and 33 66 Q 35
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resources by local authorities67— but they were far more sceptical about the willingness and the ability of all local authorities to carry out such an assessment of local needs.68 Abigail Barker of Voices for the Library said:
Lots of cuts have been made with no thought of the needs of local residents. There have been consultations that were basically, “If you do not step forward and run your libraries, they will close.” People were not asked, “How and when do you use your library? How could we improve it? If we closed earlier in the week and it meant we could open at the weekend, how would you use it?” In Suffolk, there are libraries that open in schools on a Saturday and Sunday that nobody uses. Of course cuts need to be made, and we are not saying that the library service should be immune from cuts, but why not close those libraries that are not used at the weekend and save or put the money elsewhere?69
She also implied that some councils did not sufficiently consider that they would have to provide some services whether or not libraries were kept open, noting, for example, the need to provide access to online reference databases, which would still have to be paid for whether or not they were part of the library budget.70 Andrew Coburn of The Library Campaign emphasised that local users and campaign groups had to be given access to information about the existing service in order to make a rational decision about options and to suggest alternatives. Anything less, he said, was not true consultation.71
45. The representatives of local authorities agreed that a needs assessment and proper consultation with the public and library professionals were crucial.72 Nigel Thomas gave us a good example of how a library authority should go about assessing local needs. He said that, when Leicestershire wished to relocate a library branch or operate it in a different way: “In order to make that final decision, I think we have to have a very clear idea of what the nature of that locality is, what its transport links are, what the levels of literacy and employment are and so on, and then we are better informed to make a strategic and informed decision.”73 While the Leader of the Isle of Wight Council—whose decision to close five public libraries unless volunteers were willing to run them led to vociferous protests—placed emphasis on sustaining the service,74 campaigners have often focused on the retention of individual library buildings.
Library buildings
46. Proposals to close a local library often cause considerable protest. Apart from questions of the ease of access to library and other services in alternative locations, the buildings themselves may have a symbolic value: older ones have been community hubs for a century
67 Q 62 (CILIP) 68 See, for example, Q 2 (Andrew Coburn of The Library Campaign) 69 Q 2; also Qq 23 and 24 70 Q 2 71 Q 24 72 Qq 109, 112 and 113 73 Q 127 74 Qq 109 and 113
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or more and may be handsome buildings in themselves.75 Moreover, as one of our witnesses said, “Sometimes the library is the only public building left in the locality.”76 In all these ways, the current proposals to close some library branches are reminiscent of recent programmes of post office closures, and have provoked similar reactions.
47. Our witnesses recognised that library buildings often acted as hubs in the community. One described them as “sort of indoor parks”, a safe environment for both the young and the isolated old.77 Another pointed out that a relationship of trust developed between the staff in local libraries and the population, encouraging and enabling the population to use the library as a general source of information and support not just somewhere to borrow a book.78 Local libraries were places to hold homework clubs, reading groups, baby rhyme times: all ways to use the library’s resources and to make reading and study a more ‘social’ activity, while also providing a quiet and secure environment.79 The Association of Senior Children’s and Education Librarians (ASCEL) argued that, while electronic services were changing some of the focus of library services, the building itself was “still a compelling and significant part of a community”, adding “In times of economic hardship, it could be argued that more people will need libraries to learn new skills, seek employment, apply for jobs, write CVs etc.”80
48. A number of those who submitted written evidence believed that libraries earmarked for closure were often smaller, branch libraries. This was summed up by Sue Charteris:
As part of the mapping of local need against current usage data it will inevitably become clear that some library facilities are so optimally located that they act as centres of gravity or because of the quality of its offer or both (for example, Newcastle and Norwich Central libraries and the forthcoming new/refurbished libraries in Birmingham and Liverpool would qualify on both counts). Others may serve the community in a medium sized town and others still serve a specific community, for example, a village, suburb or inner city housing estate. It is this last group of libraries ... that are most under threat; yet they often meet highly localised 81 need.
Friends of Gloucestershire Libraries said that the libraries earmarked for closure were in the more deprived areas of their county, and therefore that the impact of their closure 82 would have affected the least well off and most in need. The Royal National Institute of Blind People argued that the presence of libraries in residential areas was of importance particularly for more vulnerable users, such as elderly and disabled people, who were often 83 less able to travel, and more likely not to be able to afford books and IT.
75 Q 7 (Abigail Barker) 76 Q 35 (Sue Charteris) see also Q2 (Andrew Coburn), Ev 81 (Sue Charteris) 77 Q 111 (Elizabeth Campbell of the Local Government Association) 78 Q 12 (Andrew Coburn) 79 Q 8 (Miranda McKearney); Ev w50 (ASCEL) see also, for example, Ev w3, ev w19, Ev w71, Ev w77 80 Ev w50 see also Ev w71, paras 9 and 10 81 Ev 81 82 Ev w46
83 Ev w107
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49. While accepting that the benefits of a distributed library network did not require the retention of every existing library building, Annie Mauger issued the warning that, when a library in a local community closed, 44% of the children in that community who had used that branch did not transfer to another library.84 This was not only a loss for the local population but could also have an impact on national policy objectives, for example by reducing the ability to deliver the Summer Reading Challenge for young people.85 The study that she was citing found also that 18% of those affected by library closures did not transfer their custom to another library facility; 35% of respondents said their children were using library facilities less; and 36% of respondents felt their children were reading less.86 This was not a recent study—it was conducted by Sheffield University in the late 1990s—but CILIP said that the lack of more recent data was because “it is some time since there has been anything like the scale of library closures currently happening”.87
50. On the other hand, many library buildings are not being used to the full, are difficult to maintain or situated in the wrong place, or do not have enough space to develop services beyond book lending.88 Brent Council said that the six libraries that it closed were “poorly located and poorly used”, and that this was true in many areas of London where libraries had been built in response to 19th or early 20th century population profiles and habits of life. It added: “Brent Council finds that 21st century public libraries flourish if they are located in town centres close to public transport and this view has long been proven correct. Brent 89 is a London borough that is exceptionally well served by public transport.”
51. Whether or not Brent Council’s analysis proves correct in the longer term, our visit to Tower Hamlets demonstrated the value in reviewing library facilities: the Borough Council had closed a number of old, crumbling, under-used buildings in less accessible locations in order to focus resources on a number of purpose-built libraries with meeting rooms and facilities for many types of events, with the result that library use had significantly increased across the borough.
52. One of our witnesses cited Swindon, where a campaign to retain the old town library had failed, but a new building had opened nearby: although it was not exactly what the campaigners had hoped for, they had had some influence on retaining part of the service locally.90 This is a reminder that focussing on library closures does not give a complete picture: 39 new or extensively refurbished libraries were due to open in 2012.91 We also received evidence from a number of local authorities—Cornwall County Council, Leicestershire County Council, the London Borough of Hillingdon, Staffordshire County
84 Q 87 See also, for example, Ev w67, paras 14-24 and 28 85 Ibid. 86 Ev 50 87 Ibid. 88 Qq 44 (Sue Charteris) and86 (Annie Mauger) 89 Ev w290 90 Q 24 (Andrew Coburn) 91 Ev 74 (Arts Council)
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Council and Derbyshire County Council—which explained how they had avoided closing 92 libraries.
53. We noted that, while many local campaigns focus on buildings, one of the areas of expenditure under particular pressure was the provision of mobile libraries: about one in ten of all ‘library service points’ in England and Wales (350 out of about 3600) were mobile libraries, but we were told that many of these services were being removed on the grounds that the cost per person served by a mobile library was considered too high.93 Despite this, the Arts Council assured us that it thought mobile libraries were still an important element in the provision of a good service, though it was also looking at alternative ways of getting books to people who did not have easy access to ‘static’ libraries.94 As far as simple access to books was concerned, witnesses cited village halls, churches and pubs as being possible alternatives to under-used library buildings or infrequent visits by mobile libraries.95
54. It may not be possible or even desirable to retain every existing library building, but wholesale closures are unlikely to facilitate an appropriate level of service. The key to ensuring that an adequate—and preferably a good— library service is available to the whole local population appears to be the retention of a distributed service, in accessible locations, but with flexibility over whether the service is provided in dedicated library buildings, in other locations, via mobile libraries, or in any other way that best fits local needs.96
55. While concerned about the geographical spread of library services, CILIP was of the view that “where buildings are not closed, cuts to services, resource funds, opening hours, 97 building maintenance and staffing are equally significant”. CILIP told us that significant cuts had been made in staff numbers and opening hours in the 2011–12 financial year.98 In the case of opening hours, this would reverse the recent trend to have libraries opening for longer periods, especially in the evenings and at weekends, which has been intended to encourage access by previously excluded groups.99 It also tends to confirm Sue Charteris’s fears that local authorities may be tempted to opt for a programme of cuts in areas less obvious than library closures, even if these cuts damage the overall service more than a closure would have done.
Library staff
56. A number of our witnesses argued that professional librarians were critical to delivering a comprehensive and efficient library service. Not only do they assist the public with finding the books and information they want, help them to use technology with which they
92 Ev w31, Ev 72, Ev w39, Ev w57 and Ev w99 respectively 93 Q 95 94 Ibid. 95 Q 42 96 Qq 2 and 8 (Miranda McKearney), 7 (Andrew Coburn), 9 and 10 (Abigail Barker), 45 (Sue Charteris), 87 and 95 (Annie Mauger) and 95 (Arts Council) 97 Ev 50 98 Q 86 see also Ev w42 99 See paragraph 27 above
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are unfamiliar, ensure that the stock of books and other materials are kept up to date and meet the varied needs of different sorts of customers, and manage the environment (dealing with health and safety, child protection issues, copyright law and so on), but they also carry out a lot of ‘outreach’ work with the community, especially reading and literacy schemes.100
57. CILIP has estimated that in the 2011–12 financial year, there has been a reduction of possibly as many as 700 posts out of the 3,500 staff working in public libraries. UNISON, the public sector trade union that represents many library staff in the UK, told us that the latest figures from the Chartered Institute of Public Finance and Accountancy showed a drop in paid staff numbers of over 4%, whilst the number of volunteers within libraries had 101 increased by 22% since 2010. Those campaigning for library services said the reduction in paid staff had resulted in the loss in particular of expertise in child literacy (we were told that many reader support posts were being merged so that there were no longer separate posts for adult and child support); and in developments such as the closure of information services or the abandonment of the Summer Reading Challenge, for lack of professional support. More generally, pressure of work on the remaining staff hindered training and staff development, and discouraged co-operation with other services or across authority boundaries.102
58. When we asked whether she thought that policymakers understood the role of the librarian, Annie Mauger said “no, I really don’t think many of them do”. She went on to say: “I don’t believe that a service that isn’t professionally delivered is best for anybody’s local area.”103
59. The local authority representatives who gave evidence to us were keen to emphasise that job losses were directed away from professional librarians and/or front-line staff. Councillor David Pugh denied that any of those who had lost their jobs when the Isle of Wight divested itself of five libraries were ‘professional staff’: he drew the distinction between professionally qualified librarians and other staff who could, he felt, however experienced they were, be adequately replaced by volunteers.104 Local campaigners, however—who had forced the Isle of Wight to backtrack on an even more radical programme of closures—strongly disagreed, given that professional, front-line staff were indeed being lost.105 During our visit to the Pimlico Library, we were told that under the tri-borough programme job losses had been among the managerial ranks (as three sets of managers were merged into one) and in back-room functions such as stock control, not among the library staff who dealt directly with the public. We were also told of projects such as the Enquire project carried out by the Arts Council in conjunction with the Society of Chief Librarians, to use IT in such a way that libraries without a professional librarian on their staff would still have access to professional advice 24 hours a day.106 The Minister was
100 See, for example, Qq 2, 15, 47,67, 69 and 70; Ev 50, Ev w243 and Ev w268 101 Ev w135 102 Q 67 and 71 (CILIP), 17 (Andrew Coburn and Miranda McKearney), 103 Qq 68 and 72 104 Qq 123, 141 and 143-147 105 Q 147 106 Q 82
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of the view it was unnecessary to have highly qualified, highly trained and therefore highly paid librarians in every library branch. He argued that there was scope for employing the professional expertise of librarians more “creatively”, to train and support volunteers. He suggested that this approach might lead to the opening of more libraries.107
60. Staff costs are a significant and have been an increasing proportion of library costs and, if the service is losing up to 35% of its budget,108 some staff cuts are inevitable. As with other cuts, however, local authorities need to give careful consideration to how to do least damage to the service provided to the public now and for the future. They must ensure that they retain enough experienced and/or professionally qualified staff to develop the services on offer to the public to reflect changing needs, and to support the growing number of volunteers both within their core library service and in any community libraries that may be established locally.
107 Qq 171–172 108 Q 84
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3 A library service for the 21st century
61. While the core offering of a library service is access to books and other sources of information, especially for those who have little or no access at home to printed or electronically-provided information,109 our witnesses were unanimous that much greater value came from linking the resources and facilities available in libraries into wider programmes reaching out into the local community. Many libraries already do this in a variety of ways, but the need for local authorities to prune budgets has increased the urgency of reviewing the library service in the light not only of its own value but also of the value it can add to other services.110
62. One area of symbiosis is with education, not least because many school libraries also face considerable funding reductions at present. The local public library provides not only access to information, but also a safe space for study, with the additional advantage of access to the knowledge of trained library staff.111 In some cases, local authorities have found that locating a public library within a school or college benefits both the educational establishment and the local community; but we were told that this did not work everywhere.112 The Government has recently taken up an idea put forward by the children’s author, Michael Rosen, of automatic library membership for all primary school pupils, to encourage them to use their local library.113
63. Other examples of shared facilities are less obvious. Our witnesses referred to combining a library with the registry of births, marriages and deaths (in Sevenoaks) or with a tourist information office (in north-east England).114 Those who hosted our visit to the library in Pimlico emphasised the potential for libraries to support the health service, both in the provision of written information and as a place where medical staff could meet the local community in a relaxed environment in order to promote understanding of public health issues.115 One of the witnesses to our predecessor Committee drew attention to other government departments whose work was supported by the library service: in providing information and practical support to those seeking work (the Department of Work and Pensions); in helping small businesses (the Department for Business, Innovation and Skills); and in addressing those disaffected from schooling and thus helping to tackle anti- social behaviour and truancy (the Home Office).116 Annie Mauger of CILIP and the Minister also wished to persuade departments other than the DCMS of the contribution libraries could make to the outcomes which they wanted to achieve.117
109 Qq 12 and 39 110 Qq 124-127 111 Qq4, 8and 12 112 Qq 96 (Annie Mauger and Alan Davey) and136 [Elizabeth Campbell] 113 Minister’s speech to The Future of Library Services conference, 28 June 2012 114 Qq 62 and 38 115 Q 2 (Miranda McKearney), Ev w3, para 7, Ev w34, paras 2.1-2.8 116 Public Libraries, paragraph 58 117 Qq 103 and 188
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64. Leicestershire has taken the approach of viewing libraries as part of its heritage and arts services, enabling the council to concentrate on medium-term aims for this sector rather than just immediate cuts (for example, it has decided not to close any libraries or museums but to look at redesigning, joining up or, in some cases, reducing services). This approach has enabled significant savings, mainly through staff reorganisation, while retaining the expertise of librarians and curators; and it has also had some collateral benefits in terms of applying the commercial expertise developed in the museums and arts service to exploiting the potential of library facilities.118
65. There has also been a renewed emphasis on the role of the library building as a meeting place for the community.119 In some places, this has been achieved partly by — for example—locating a privately-run cafe in the library, which has contributed to a rise in the number of visitors to the library.120 Such partnerships may provide some additional income, though experience is that this has not been substantial: it is the increase in usage that is more significant for the library service. Bradford Metropolitan District Council has adopted a different approach. Under its ‘Library Links’ initiative, it has located ‘library service points’ in shops.121
66. Such relationships with the private sector are not universally welcome, however. We ♥ Libraries, a Hertfordshire-based library campaign group, expressed concern that co- location with private retailers would turn libraries from neutral venues open and welcoming to all into something more commercial and less inclusive.122
Co-operation and mergers
67. One area on which our witnesses agreed was that there were considerable potential benefits to be gained from procurement partnerships for purchasing books, and possibly in other areas where a ‘national’ approach might reap substantial savings and efficiencies.123 Miranda McKearney of The Reading Agency mentioned as examples a national digital portal for libraries, and a suite of planned services to be available 24 hours a day.124 Other witnesses argued that it would be impossible for libraries to engage with e-books except on a national basis: publishers were not very interested in the concept of lending e-books as licensing difficulties could not be adequately addressed at a local level and significant demand for a lending service from readers was yet to emerge.125 Miranda McKearney also suggested there was scope for engagement with potential partners, such as the BBC in relation to its digital resources, but said that this was being hindered by “a major gap in the ability of libraries to act and plan nationally”.126
118 Qq 124, 126 and 137 119 Qq 2, 43 and 132; see also the Southend example of shared buildings cited in Q 96 (Alan Davey) 120 Q 53, relating to Hillingdon. We also saw an example during our visit to the library in Pimlico in London 121 Ev 78 (LGA) 122 Ev w42 123 Qq 38 (Sue Charteris) and 84 (Annie Mauger) 124 Q 5 125 Qq 40 and 41 (Sue Charteris) and 4 (Andrew Coburn) 126 Q 5
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68. A number of our witnesses were cautious about the idea of forming regional hubs: there was resistance to the idea of ‘mega-libraries’ or ‘destination libraries’ given the difficulty of travelling long distances to them, though some regional hubs (such as in Newcastle) were acknowledged to work well.127 Nevertheless, it was acknowledged that there was scope for far more partnership between local authorities, and—in the view of Sue Charteris—such co-operation was vital because the scale of the cuts meant that otherwise there would not be enough professional expertise available to run the library service.128
69. Unfortunately, our witnesses reported that, with certain exceptions (one of which we discuss in more detail below), co-operation between authorities had recently become more, not less, difficult: one witness said that the ‘good old days’ where one authority would specialise in books on fine arts and another on 20th century history had gone as many of “those co-operative systems” had broken down.129 Another witness explained that the emphasis on local finances in the last 18 months, and the resulting focus on local library services, had, perversely, made such co-operation ‘politically’ difficult.130 While the Library Campaign acknowledged that collaborations could be an effective way for libraries to improve efficiency, it suggested:
Shared services may be one way of making more efficiencies but only if the authority—and its users—has/ have the same amount of guarantee that services will be delivered on time, to budget and where required. There is no point in a shared service which simply means shipping books from one huge central depot to the 131 branch if there is no other saving.
70. South Gloucestershire Council told us about the Libraries West Consortium (consisting of itself, North Somerset, Bath and NE Somerset, Bristol and Somerset library authorities) which had managed to make significant savings from shared procurement of ICT and stock, from shared services (IT support, bibliographic services, information provision via an Enquiry Centre, marketing and the development of new services), and shared training and development.132 While we were told of other examples of successful cross-boundary co-operation in Warwickshire, Cornwall and Devon, the north-west and potentially Leicestershire,133 the most commonly cited example was that of the ‘tri- borough’ project, encompassing the London boroughs of Westminster, Hammersmith & Fulham and Kensington and Chelsea.
71. This initiative covers a considerably wider set of services than those relating to public libraries or even the arts in general: it is a project to save money by, wherever possible, combining services in order to rationalise and reduce management structures and simultaneously improve front-line services. The Local Government Association described it as “an integrated libraries and archives service managed as a single service across the
127 Qq 19-21 128 Q 37 129 Q 20 (Andrew Coburn) 130 Qq 20 and 21 (Miranda McKearney) 131 Ev 64 132 Ev w94 133 Qq 20and 133 and Ev w31
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three boroughs, with local branding and delivery in line with local community needs”. Launched in April 2012, the tri-borough initiative for libraries was intended to produce savings of more than £1 million a year as a result of the single back office/management structure and from introducing best practice in the deployment of operational staff.134 Elizabeth Campbell of the Local Government Association and also a councillor in Kensington and Chelsea, described the thinking behind the approach as follows:
[We] saw cuts were coming, and thought, “How do we not only safeguard what we have, how do we keep our 21 libraries across three boroughs open, maintain the number of hours, but at the end of the day produce a better library service for our customers?” I suppose that is what has galvanised all our thinking; how are we going to be more resourceful, more ready to modernise at the end of it, at the same time as taking £1 million out of the service? We feel that we will have done that. We will have taken £1 million out over the next couple of years, but we will have one library card serving all our customers. We will have a million books that they can take out. We hope our footfall of 5 million over the three boroughs, coming forward, will mean that we are probably more open to sponsorship or other deals. We may say that this is the first step. We will merge first, make our library service efficient and then think, “What now? What other things can we do?135
She added that the library service had always been part of the plan to merge services as the management and back office structures in the three boroughs more or less mirrored one another, so it was easy to rationalise them.136 When we asked whether it would be simple to replicate this across England and Wales, she replied that it would be difficult to achieve where the participating authorities were not of the same political persuasion as a lot had to be taken on trust, particularly as each authority would make gains in some areas and losses in others.137
72. There have been suggestions that the tri-borough experiment with libraries should be repeated on a larger scale, for example by combining the library services of all 33 London boroughs into a single unit. It was estimated that, by removing administrative duplication, 138 this might save up to £80 million a year. While making administrative savings on this scale is attractive, such centralisation runs the risk of losing the detailed knowledge of local needs which has, for example, allowed both Westminster and Tower Hamlets to develop their library services in ways which clearly reflect the needs of their local resident and working population.
73. While several of our witnesses expressed considerable enthusiasm for the tri-borough project,139 Sue Charteris noted that many council leaders believed that this approach would work only in urban areas. She accepted that it would be much easier where there were clear
134 Ev 78 135 Q 128 136 Q 130 137 Q 132 138 ‘Give Mayor control of all London libraries’, Evening Standard; 23 February 2012 The article was quoting the former head of the Waterstone’s book chain, Tim Coates. 139 See, for example, Qq 2 Miranda McKearney) and 36 (Sue Charteris)
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economies of scale, but she was still of the view that there were significant possible benefits to be had from partnerships even among counties. The vital ingredients, she thought, were real professional expertise and political leadership.140
74. Some very good models of co-operation between library authorities already exist. Local authorities must ensure that they maintain and improve co-operation, both across boundaries and nationally, as this will free money for front-line library services. It is short-sighted to reduce co-operation at this time of financial constraint.
Community libraries and the role of volunteers
75. A far more controversial response to funding cuts has been to hand over library facilities to volunteers, with the intention that they should be run as ‘community libraries’. We were told that this phrase covered a wide variety of models and very different levels of consultation, engagement and support from the relevant local authorities. At one end of the spectrum, there is the example where a library has been handed over completely to the community, without any professional support and even (in some cases) with the removal of vital IT equipment such as computers, so that it is impossible to join the library or request a book at that place.141 At the other end of the spectrum, the facilities remain intact, there is continued access to the advice and support of professional librarians, but the professional staff are “not necessarily the people who open and close the building every day”.142 While acknowledging that libraries had often made good use of voluntary staff in the past to enhance the service, our witnesses were generally of the view that, unless there was access to the advice and support of trained staff, facilities could not be considered to be part of the public library network.143
76. Sue Charteris told us about the development of the community libraries programme under the auspices of the Big Lottery Fund. She said that the key determinants of the success of that project were, first, it involved an injection of capital; and secondly, it required slow and painstaking work with the local community to design, deliver and develop the service. She cited as a particularly successful example a healthy living centre on a housing estate in Weston-super-Mare, where the library—run by a social enterprise— shared its facilities with a church, a social services area office and a community cafe.144 She told us:
Councils need to decide, when they are considering cuts, what they mean. Do they mean that they have done a needs analysis and do not think that that library is needed at all? Or do they mean that, actually, they do still think they need that network of provision? It might be in those places that need it most and use it least that a different community partnering model might be more effective, but it will not
140 Q 37 See also Q 36 141 Qq 24 and 30 (Miranda McKearney), 74 (Annie Mauger) 142 Q 48 (Sue Charteris) 143 See, for example, on the proper use of volunteers: Qq 31 (Abigail Barker), 50 (Sue Charteris) ,75 (Annie Mauger and Alan Davey) ; on the need for professional support, Qq 48 (Sue Charteris), 74 (Annie Mauger and Alan Davey), Ev w42 (We ♥ Libraries) 144 Qq 49 and 52 See also Ev 54
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work if it is a case of “Here are the keys of the building, get on with it, it is up to you whether you use it or not.” The council needs to be part of it.145
77. The Isle of Wight Council has been the subject of particular criticism for its decision to reduce the number of public libraries on the island from eleven to six. The other five have been handed over to local volunteers and Councillor David Pugh, Leader of the Isle of Wight Council, made it clear that those five libraries were no longer part of the statutory service.146 We examined exactly what this meant in practice for the volunteers. We were told that none of the community libraries was accountable to the local authority; each library had responsibility for recruiting its own voluntary staff and, though the council asked volunteers to agree to comply with certain basic legal requirements, such as data protection, it was for each community to develop its library service as it saw fit. There were no common service standards.147 The buildings had been made available on a peppercorn rent, but other costs—in particular utility costs—were the responsibility of the relevant library, albeit that some transitional funding from the Isle of Wight Council was still in place and the local rural community council had some involvement with two of the libraries. This had resulted in some parish councils increasing their precepts, at least in part to support their local community library. Some communities wanted to move their library to a different building to co-locate with other services: Councillor Pugh said that the local authority would support them “to whatever extent they need within reason.”148 The community libraries did not have any employees of the local authority working there, with the exception of one part-time person, paid for by a town council, who was the library volunteer co-ordinator. (Councillor Pugh argued that volunteers had not replaced professional librarians as the previous staff, though competent, were not professional librarians.)149 The five libraries continued to have access to the council’s library IT service, including the full database of books, and Councillor Pugh expected that stock would be rotated and new books would be able to be ordered via the Isle of Wight’s central stock controls, as previously.150
78. The Minister made it clear that an authority that had handed over a large proportion of its library facilities to volunteers would not escape his Department’s scrutiny: “we would still want to see a comprehensive and efficient local-authority-run service in the local [area]”.151
79. Volunteers have long been a valuable and valued part of the library service, and there are places where their work may help the local community to retain at least some ability to borrow books and access reference material. It will require considerable dedication by the volunteers and, as the Isle of Wight example shows, the financial costs may be high, even if buildings are made available at a nominal rent. It is not clear how sustainable some of these community libraries may be, nor what impact the change will
145 Q 48 146 Q 123 147 Qq 138-139 and 150 148 Qq 142 and 156-157 149 Qq 123, 141 and 145-146 150 Qq 149 and 151-153 151 Q 175
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have on some of the outreach work conducted by libraries, particularly in relation to children and reading. It is clear, however, that community libraries will fail unless given at least some support by the local authority in terms of access to stock (including new stock), retaining computer equipment and IT support, and access to the advice and assistance of professional library staff. It would be very helpful to councils to receive some guidance from the DCMS on best practice in the provision of support. Councils which have transferred the running of libraries to community volunteers must above all, however, continue to give them the necessary support, otherwise they may wither on the vine and therefore be viewed as closures by stealth.
80. A different model of devolved library provision is that presented by the Industrial and Provident Society (IPS), currently being piloted in Suffolk. In December 2011, Suffolk County Council decided to adopt an IPS model for its libraries which involved setting up an independent not-for-profit organisation with a Chair. In its written submission, Suffolk IPS Ltd stated that the IPS was still in a transitional phase, becoming fully operational in June 2012. It went on to explain:
The County Council retains its statutory responsibilities for providing comprehensive and efficient library services. It will fund the IPS through a contract and service agreement; monitor progress and ensure compliance.
All libraries will remain open, and public opening hours will not be reduced. Community management groups are planning to develop the scope and public offer 152 of the new service locally.
81. The Minister told us that the Government had no preference about who ran the statutory library service—whether it was run in-house or under contract with a not-for- profit, mutual or private company—provided it could meet the ‘comprehensive and efficient’ criteria.153
82. We will be very interested to follow the development of the Industrial and Provident Society model for library provision in Suffolk. Again, it relies heavily on the goodwill of volunteers, but it has the advantage to the local population that the county council retains overall responsibility for the service. There may be many other potential models for providing library services than those discussed in this report. We urge the DCMS, Arts Council and Local Government Association to evaluate the effectiveness of the different models being developed round the country and to produce an analysis for councils by the end of 2013.
83. We very much welcome the commitment given to us by the Minister to produce a report by the end of 2014 on the cumulative effect on library services of the reduction in local-authority provision and the growth of alternatives such as community libraries.154 We look forward to receiving that report. Enthusiasm over the scope for volunteer involvement, and for new models of provision, is fine, but—given the importance of
152 Ev w297 153 Q 178 154 Q 189
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library services—a systematic look at the impact of funding cuts and organisation changes is needed to assess the durability of new approaches over time.
Responsibility for ensuring a comprehensive and efficient service
84. Much of the frustration of those campaigning for the retention of library services has arisen from a perception that the Secretary of State has been refusing to exercise his statutory responsibility for ensuring the provision of a comprehensive and efficient library service.155 Appeals to the Secretary of State to initiate Wirral-style inquiries into the decisions of individual authorities have failed: judicial reviews of council decisions have resulted in courts limiting themselves to considerations of process, while referring back the definition of ‘comprehensive and efficient’ to the Minister.156 Moreover, with the abolition of the Museums, Libraries and Archives Council, and the transfer (as recently as 1 October 2011) of some of its responsibilities to the Arts Council, there is no longer a body with specific responsibility for maintaining standards within the library service at national level.
Role of the Secretary of State
85. Section 1(1) of the Public Libraries and Museums Act 1964 states:
From the commencement of this Act it shall be the duty of the Secretary of State to superintend, and promote the improvement of, the public library service provided by local authorities in England and Wales, and to secure the proper discharge by local authorities of the functions in relation to libraries conferred on them as library authorities by or under this Act.
There is therefore a clear duty on the Secretary of State to “superintend, and promote the improvement” of the library service provided by individual local authorities. It seems reasonable to conclude it is his responsibility to provide at least a framework for judging whether a service is ‘comprehensive and efficient’.
86. Under section 10 of the same Act, as subsequently amended, the “default powers” of the Secretary of State are outlined as follows:.
(1)If—
(a)a complaint is made to the Secretary of State that any library authority has failed to carry out duties relating to the public library service imposed on it by or under this Act; or
(b)the Secretary of State is of opinion that an investigation should be made as to whether any such failure by a library authority has occurred,
and, after causing a local enquiry to be held into the matter, the Secretary of State is satisfied that there has been such a failure by the library authority, he may make an order declaring it to be in default and directing it for the purpose of removing the
155 See, for example, Ev w186 (Friends of Lambeth Libraries), Ev 50 (CILIP) 156 Qq 79 (CILIP and Arts Council), 97–99 (CILIP)
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default to carry out such of its duties, in such manner and within such time, as may be specified in the order.
(2)If a library authority with respect to which an order has been made under the preceding subsection fails to comply with any requirement of the order, the Secretary of State, instead of enforcing the order by mandamus or otherwise,—
(a)[repealed]
(b)[relates to joint boards, which may be dissolved back into their constituent parts and those parts reconstituted as separate library authorities], or
(c)in any other case, may make an order providing that the functions of the authority relating to the public library service shall be transferred to the Secretary of State.
(3)A power conferred by subsection (2) above to make an order shall be exercisable by statutory instrument, which shall be subject to annulment in pursuance of a resolution of either House of Parliament.
(4)Where functions of a library authority have been transferred to the Secretary of State under subsection (2) above he may at any time by order transfer those functions back to the authority, and the order may contain such supplemental provisions as may appear to him to be expedient for that purpose.
It is these powers that the Secretary of State has recently declined to use in respect of the half dozen or so cases referred for judicial review, on the grounds that they were not serious enough for him to intervene.157
87. We suggested to some of our witnesses that there were good pragmatic reasons for the Secretary of State to refrain from intervening at present: the sheer scale of the budget cuts meant that so many closures and other changes were being proposed that he would simply be overwhelmed if he intervened. The response was that, nevertheless, he had a statutory duty to fulfil.158 Andrew Coburn summed up the reason why campaigners thought it appropriate for there to be responsibility at a national level for a service which, they agreed, had to reflect local needs and be delivered locally:
it is a de facto national service. I can go into my local library and discover that the nearest copy of the book I want to borrow is in Keswick; I live in Essex, but I can get that book, perhaps not the next day, but very quickly. There are all sorts of other aspects that make it a national service, and, therefore, there is a place for some national governance, for want of a better word.159
88. The local authorities, on the other hand, favoured the current light-touch approach to supervision and, if anything, would have preferred the Secretary of State to have no powers to intervene.160 They placed heavy emphasis on learning from one another, and particularly
157 Qq 26–29 158 Q 100 (CILIP) 159 Q 28 160 Qq 159–160 Ev 78 (Local Government Association) and Ev w225 (Gloucestershire County Council)
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on the role of the Local Government Association in disseminating information, conducting peer reviews, and generally promoting different models of good practice.161
89. Alan Davey of the Arts Council explained why, in his opinion, it was wrong to rely solely on the process of judicial review to decide whether local authorities were fulfilling their statutory duty to provide a comprehensive and efficient library service: “the judicial cases all focus on process and no one is talking about policy, about innovation, about where libraries could be going, about why libraries do matter to people, how they could matter to people more.”162 Sue Charteris, who had similar concerns, considered that this pointed to a need to amend the 1964 Act, not so much to remove responsibility from the Secretary of State, but to make him more ‘proactive’: to give him a clear role in relation to areas that needed to be addressed at national level (for example, negotiating digital access and using scale to achieve savings in the purchase of goods and services) and to make his supervisory role more akin to that of the relevant Secretaries of State in respect of the health and education services.163 To some extent, Ministers are already assuming a more active role in relation to national objectives: the DCMS is now working with other government departments to explore the possibility of providing Wi-Fi in every library in England by 2015.164
90. The Minister said that he intended to hold discussions with the Chartered Institute of Finance and Accountancy (CIPFA) about the re-structuring of the statistics they collected from local authorities to ‘flag up’ possible areas of concern relating to expenditure on libraries. He added that he wanted to develop a ‘proper partnership’ between CIPFA and the Arts Council.165 Subsequently, he announced that CIPFA had developed ‘comparative profile reports’ to enable fair comparisons to be made between comparable local authorities in the way in which they delivered library services. The Minister denied this was a reimposition of inflexible library standards; it was intended to enable the DCMS to ask questions if, for example, there were wide divergences in the apparent efficiency of expenditure on books. To this end, the DCMS was commissioning reports on all library authorities in England, to be completed in December 2012 and to be made available to the public as well as councillors, MPs and other interested parties.166
91. The Minister considered that the role given to the Secretary of State by the 1964 Act was still of value. He said:
There is an interesting debate going on, if you like, a perspective certainly from local authorities that would like the Act repealed. They do not want a superintending duty. They do not want it to be a statutory duty. They want complete freedom, so they regard it as frustrating that they have to account to us. I would say it is good that they are frustrated that they have to account to us because it shows that we are taking an active interest in what they are doing. I do not think that superintendent function is
161 Qq 134 (Elizabeth Campbell) ,55 and 61 (Sue Charteris), 162 Q 79 163 Q 57 164 Speech to The Future of Library Services conference, 28 June 2012 165 Q 164 166 Speech to the Future of Library services Conference, 28 June 2012
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redundant. I am not sure the exact question was asked in the transcript, but I think it is in the mind of every local authority when it looks at its library service: will we breach our duty? What will happen if we go too far? Will we be called in by the Department?167
92. It would be possible to remove the Secretary of State altogether from any role in respect of libraries by repealing sections 1 and 10 of the 1964 Act, and making any consequential amendments; but, though it has the benefits of simplicity and clarity, this is not entirely satisfactory. The more libraries develop their role in order to deliver national goals, whether in education or in promising new areas such as public health, the more they match the model of a ‘national service delivered locally’ rather than just a ‘local service’. Consequently, there is an argument for retaining an element of national oversight. The current situation, however, where the Secretary of State has considerable reserve powers but is unwilling at present to use them, satisfies no one. One of the key problems for those trying to conduct judicial reviews of local decisions is that, since the revocation of the library standards, there is no national definition of ‘comprehensive and efficient’. We have already recommended that the Secretary of State issue guidance on what, in broad terms, constitutes a good library service. We note that the Arts Council’s libraries team is based in all the regions and is intended to advise on best practice. This team could also be used to feed information on potential problem areas back to the DCMS. This system of advice backed up by intelligence should both help councils to adapt their approach to reductions in the library service—which may serve to reduce the recourse to judicial review—and enable the Secretary of State to give a swifter and clearer response to any complaints or judicial referrals. Section 10 of the 1964 Act then really would be a final resort.
93. We are attracted by Sue Charteris’s outline of a modern approach to the Secretary of State’s supervisory duty, with its emphasis on developing the service, promoting best practice and supporting the service through intervention at a national level in areas where there are potential efficiencies of scale. This leaves responsibility for both determining and meeting local needs to the local authorities, where it should rest. It also—as we discuss below—fits the stance taken by the Arts Council in respect of its advisory role for libraries. We do not think that adopting this approach would require any amendment to legislation, as the Secretary of State already has the duty of ‘promoting the improvement’ of library services.
94. We note one suggestion of a small but significant change to the current procedures and practices relating to the Secretary of State’s powers to call a local inquiry into the actions of a library authority. Sue Charteris argued forcefully that the Public Libraries (Inquiries Procedure) Rules 1992 were virtually unworkable and so adversarial that they hindered, rather than helped, to solve the underlying problem. She believed that they should be changed.168 We concur.
95. We briefly explored whether it made sense for the DCMS to continue with responsibility for libraries, given the DCMS gives no direct funding for libraries but instead
167 Q 183 See also Qq 166, 168–169 168 Q 56
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national funding comes from the Department for Communities and Local Government. Our witnesses were divided on this question, but were generally of the view that the identity of the parent department mattered less than the political commitment to the service.169
Role of the Arts Council
96. When we heard from its Chief Executive in February, the Arts Council had only recently taken over some of the role and responsibilities of the Museums, Libraries and Archives Council (MLA). The Arts Council saw its role in relation to libraries as two-fold: it had to provide the Secretary of State with information (such as on the extent of closures), and it had to assist with the Secretary of State’s duty to promote the improvement of library services, which it saw mainly in terms of spreading good practice. Formally, it took over from its predecessor responsibility for the Future Libraries programme. The Arts Council did not, however, have the ‘semi-supervisory’ role of the body it replaced, a sort of devolution of the Secretary of State’s statutory duty to superintend the service. This duty was anyway—in the view of the Chief Executive—“not terribly well-defined” and he argued it properly and firmly rested with the DCMS itself.170
97. Moreover, as the Chief Executive admitted, the amount of money allocated to libraries within the Arts Council’s budget, was “tiny”: £230,000 or about £76 per library.171 This fund, which is part of the Libraries Development Initiative launched in November 2011, is intended to fund 13 projects to “test new approaches to library service delivery.”172 The Chief Executive denied that libraries were a low priority for his organisation, arguing that, rather than regarding them as a simple add-on to museums, the Arts Council viewed the role of libraries as popular and trusted local institutions with a strong role to play in encouraging people throughout the country to engage more with culture.173 He also said that an area he wished to develop was increasing access by libraries to lottery funds: many library services had been unaware that they were eligible to apply for these, and he thought the Arts Council could help improve both application and success rates for libraries.174 After we had finished taking oral evidence, on 28 June, the Minister announced that the Arts Council was allocating £6 million from its Grants for the Arts programme for library authorities to work with arts and cultural organisations on projects to promote art and cultural activities.175 Applications for this funding opened on 27 September 2012 and the programme is due to finish in March 2015.
98. The Minister acknowledged that the abolition of the Museums, Archives and Libraries Council had caused disquiet, especially as the Arts Council was in receipt of a smaller grant-in-aid than its predecessor. He noted that the MLA had already reduced its staff by
169 Pro-transfer to the DCLG: Q 11 (Miranda McKearney); suggesting this is a minor detail: Qq 60 (Sue Charteris) and 188 (Minister) 170 Qq 65–66 and 101 171 Qq 64 and 102 172 http://www.arts.council.org.uk/funding/apply-for-funding/libraries-development-initiative 173 Qq 64, 102 and 106 and Ev 74 (Arts Council) 174 Q 64; see also Q 190 (Minister) 175 Speech to The Future of Library Services conference: http://www.culture.gov.uk/news/ministers_speeches/9167
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half and had closed its regional offices by 2010; he argued, moreover, that it did not have a separate cadre of library staff. He stated that the Arts Council was spending more on library development projects and its consultation programme than the MLA had.176 He hoped that the Arts Council would fulfil the function of a “libraries development agency”, a resource for collecting and disseminating best practice and for providing support where needed, rather than an Ofsted-style inspectorate.177
99. Our other witnesses seemed largely satisfied with the part played by the Arts Council so far, with both librarians and local authorities expressing approval of its commitment to the spread of best practice, and with CILIP and Sue Charteris encouraging it to work closely with the Local Government Association and professional bodies to develop advice and support.178
100. We have no doubt that the Arts Council will fulfil its duties in respect of libraries efficiently and with enthusiasm. Its decision immediately to start a major consultation on how libraries should look in the future bodes well. However, rightly or wrongly, the demise of the Museums, Libraries and Archives Council—and the transfer of libraries to a much larger body with a more circumscribed responsibility for the service and a very low direct budget allocation for it—contributes to an impression that the library service in general is being afforded a lower priority than in the past. In the current climate, it is inevitable that library services will be asked to bear their share of local authority cuts and in some areas be rationalised, even though others have committed to keeping all libraries open. We believe, however, that all those involved in providing this service to the public—local authorities, Arts Council and the Secretary of State—need to work harder to demonstrate that it is still much-valued and has a promising future.
176 Q 190 On concerns about the dowry from the MLA, see, for example, Q 84 177 Qq 181 and 190–192 178 Qq 58–59, 94, 135
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Conclusions and recommendations
1. The Public Library Service Standards shared the flaws of those imposed elsewhere in the public sector, in that they concentrated on the measurable rather than giving a rounded indication of the quality of service—let alone its responsiveness to changing customer needs and demands. It is noteworthy that most of our witnesses wanted a broader and more permissive approach on the interpretation of ‘comprehensive and efficient’. (Paragraph 31)
2. Local authorities are having to take decisions now about the funding and shape of the library service but a number appear insufficiently aware of the available guidance on the definition of ‘comprehensive and efficient’. They also appear to lack information about the requirements emerging from multiple judicial reviews. It is not cost-effective for policy to be made by judicial review and it undermines democratic accountability. While we are firmly of the view that decisions ultimately are for local authorities in the light of local needs, the provision of public libraries is mandatory and local authorities should be assisted to understand what is expected of them under the Act and subsequent guidance. We recommend that the Secretary of State provide all local library authorities with the guidance arising from the Arts Council’s consultation exercise as swiftly as possible, and to take that opportunity again to remind local authorities of the recommendations of the Charteris Report. (Paragraph 36)
3. It may not be possible or even desirable to retain every existing library building, but wholesale closures are unlikely to facilitate an appropriate level of service. The key to ensuring that an adequate—and preferably a good— library service is available to the whole local population appears to be the retention of a distributed service, in accessible locations, but with flexibility over whether the service is provided in dedicated library buildings, in other locations, via mobile libraries, or in any other way that best fits local needs. (Paragraph 54)
4. Staff costs are a significant and have been an increasing proportion of library costs and, if the service is losing up to 35% of its budget, some staff cuts are inevitable. As with other cuts, however, local authorities need to give careful consideration to how to do least damage to the service provided to the public now and for the future. They must ensure that they retain enough experienced and/or professionally qualified staff to develop the services on offer to the public to reflect changing needs, and to support the growing number of volunteers both within their core library service and in any community libraries that may be established locally. (Paragraph 60)
5. Some very good models of co-operation between library authorities already exist. Local authorities must ensure that they maintain and improve co-operation, both across boundaries and nationally, as this will free money for front-line library services. It is short-sighted to reduce co-operation at this time of financial constraint. (Paragraph 74)
6. Volunteers have long been a valuable and valued part of the library service, and there are places where their work may help the local community to retain at least some
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ability to borrow books and access reference material. It will require considerable dedication by the volunteers and, as the Isle of Wight example shows, the financial costs may be high, even if buildings are made available at a nominal rent. It is not clear how sustainable some of these community libraries may be, nor what impact the change will have on some of the outreach work conducted by libraries, particularly in relation to children and reading. It is clear, however, that community libraries will fail unless given at least some support by the local authority in terms of access to stock (including new stock), retaining computer equipment and IT support, and access to the advice and assistance of professional library staff. It would be very helpful to councils to receive some guidance from the DCMS on best practice in the provision of support. Councils which have transferred the running of libraries to community volunteers must above all, however, continue to give them the necessary support, otherwise they may wither on the vine and therefore be viewed as closures by stealth. (Paragraph 79)
7. There may be many other potential models for providing library services than those discussed in this report. We urge the DCMS, Arts Council and Local Government Association to evaluate the effectiveness of the different models being developed round the country and to produce an analysis for councils by the end of 2013. (Paragraph 82)
8. We very much welcome the commitment given to us by the Minister to produce a report by the end of 2014 on the cumulative effect on library services of the reduction in local-authority provision and the growth of alternatives such as community libraries. We look forward to receiving that report. Enthusiasm over the scope for volunteer involvement, and for new models of provision, is fine, but—given the importance of library services—a systematic look at the impact of funding cuts and organisation changes is needed to assess the durability of new approaches over time. (Paragraph 83)
9. there is an argument for retaining an element of national oversight. The current situation, however, where the Secretary of State has considerable reserve powers but is unwilling at present to use them, satisfies no one. We note that the Arts Council’s libraries team is based in all the regions and is intended to advise on best practice. This team could also be used to feed information on potential problem areas back to the DCMS. This system of advice backed up by intelligence should both help councils to adapt their approach to reductions in the library service—which may serve to reduce the recourse to judicial review—and enable the Secretary of State to give a swifter and clearer response to any complaints or judicial referrals. Section 10 of the 1964 Act then really would be a final resort. (Paragraph 92)
10. We are attracted by Sue Charteris’s outline of a modern approach to the Secretary of State’s supervisory duty, with its emphasis on developing the service, promoting best practice and supporting the service through intervention at a national level in areas where there are potential efficiencies of scale. This leaves responsibility for both determining and meeting local needs to the local authorities, where it should rest. It also—as we discuss below—fits the stance taken by the Arts Council in respect of its advisory role for libraries. We do not think that adopting this approach would
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require any amendment to legislation, as the Secretary of State already has the duty of ‘promoting the improvement’ of library services. (Paragraph 93)
11. We note one suggestion of a small but significant change to the current procedures and practices relating to the Secretary of State’s powers to call a local inquiry into the actions of a library authority. Sue Charteris argued forcefully that the Public Libraries (Inquiries Procedure) Rules 1992 were virtually unworkable and so adversarial that they hindered, rather than helped, to solve the underlying problem. She believed that they should be changed. We concur. (Paragraph 94)
12. We have no doubt that the Arts Council will fulfil its duties in respect of libraries efficiently and with enthusiasm. Its decision immediately to start a major consultation on how libraries should look in the future bodes well. However, rightly or wrongly, the demise of the Museums, Libraries and Archives Council—and the transfer of libraries to a much larger body with a more circumscribed responsibility for the service and a very low direct budget allocation for it—contributes to an impression that the library service in general is being afforded a lower priority than in the past. In the current climate, it is inevitable that library services will be asked to bear their share of local authority cuts and in some areas be rationalised, even though others have committed to keeping all libraries open. We believe, however, that all those involved in providing this service to the public—local authorities, Arts Council and the Secretary of State—need to work harder to demonstrate that it is still much- valued and has a promising future. (Paragraph 100)
44 Library Closures
Formal Minutes
Tuesday 30 October 2012
Members present:
Mr John Whittingdale, in the Chair
Mr Ben Bradshaw Steve Rotheram Angie Bray Mr Adrian Sanders Tracey Crouch Jim Sheridan Philip Davies Mr Gerry Sutcliffe Paul Farrelly
Draft Report (Library Closures), proposed by the Chair, brought up and read.
Ordered, That the draft Report be read a second time, paragraph by paragraph.
Paragraphs 1 to 100 read and agreed to.
Summary agreed to.
Resolved, That the Report be the Third Report of the Committee to the House.
Ordered, That the Chair make the Report to the House.
Ordered, That embargoed copies of the Report be made available, in accordance with the provisions of Standing Order No. 134.
[Adjourned till Tuesday 6 November at 10.15 am
Library Closures 45
Witnesses
Tuesday 7 February 2012 Page
Miranda McKearney OBE, Director, The Reading Agency, Abigail Barker, Voices for the Library, and Andrew Coburn, Secretary, The Library Campaign Ev 1
Sue Charteris, Independent adviser on public policy and author of the Report on Wirral Library Service Ev 10
Tuesday 21 February 2012
Alan Davey, Chief Executive, Arts Council England, Annie Mauger, Chief Executive, Chartered Institute of Library and Information Professionals (CILIP) Ev 16
David Pugh, Leader, Isle of Wight Council, Nigel Thomas, Service Delivery Manager, Leicestershire Library Services, and Elizabeth Campbell, Local Government Association (LGA) Ev 26
Tuesday 13 March 2012
Ed Vaizey MP, Parliamentary Under-Secretary of State (Minister for Culture, Communications and the Creative Industries), Department for Culture, Media and Sport Ev 37
List of printed written evidence
1 The Reading Agency Ev 47 2 Chartered Institute of Library and Information Professionals (CILIP) Ev 50 3 Councillor David Pugh, Leader of the Isle of Wight Council Ev 54 4 Voices for the Library Ev 58: Ev 64 5 The Library Campaign Ev 64 6 Department for Culture, Media and Sport Ev 68 7 Leicestershire County Council Ev 72 8 Arts Council England Ev 74 9 Local Government Association (LGA) Ev 78 10 Sue Charteris Ev 81
46 Library Closures
List of additional written evidence
(published in Volume II on the Committee’s website www.parliament.uk/cmscom)
1 S R Sibley, Chief Executive Officer, W F Howes Ltd Ev w1 2 Mr D J Williams Ev w2 3 Simon Barron Ev w2 4 Lechlade & District Civic Society Ev w3 5 Campaign for the Book Ev w4 6 Desmond Clarke Ev w6 7 Alice Lock Ev w10 8 June Winifred Quigley Ev w11 9 David James Quigley Ev w12 10 Shirley Burnham Ev w14 11 Mike Cavanagh Ev w18 12 Colin F Gibb Ev w19 13 Camden Public Libraries Users Group Ev w20 14 Black Country Shared Library Project Ev w22 15 Save Bolton Libraries Campaign (SBLC) Ev w24 16 Association of Friends of Dorset Libraries Ev w27 17 Cornwall Council Ev w31 18 West Midlands Society of Chief Librarians Ev w34 19 Christopher Pipe Ev w36 20 London Borough of Hillingdon Ev w39 21 Hereford Library Users’ Group Ev w40 22 The We ♥ Libraries Team Ev w42 23 Friends of Gloucestershire Libraries (FoGL) Ev w46 24 Association of Senior Children’s and Education Librarians (ASCEL) Ev w50 25 Nether Stowey Community Library Steering Committee Ev w53 26 Staffordshire County Council Ev w57 27 Bill Welland Ev w59 28 London Borough of Croydon Ev w60 29 The Booksellers Association Ev w65 30 Save Preston Library Campaign Ev w67 31 The Network Ev w71 32 John Holland on behalf of former librarians of Gloucestershire Library Ev w73 33 Professor Robert Usherwood Ev w77 34 Graham Meadows Ev w80 35 Sarah McClennan Ev w81 36 Libraries and Information East Midlands Ev w81 37 Gillian Johnson Ev w85 38 Jules Channer Ev w88 39 Wyre Forest Agenda Ev w89 40 Libraries for Life for Londoners (LLL) Ev w93 41 South Gloucestershire Council Ev w94
Library Closures 47
42 Share the Vision (STV) Ev w96 43 Derbyshire County Council Ev w99 44 School Library Association Ev w102 45 Lechlade Town Council Library Working Group Ev w104 46 RNIB (Royal National Institute of Blind People) Ev w107 47 Watchet Library Friends Group Ev w110 48 Users and Friends of Manor House Library Ev w114 49 Mrs J E Orman Ev w117 50 Professor John Irven, Treasurer of Watchet Library Friends and Friends of Somerset Libraries Ev w118 51 Mrs R G Lawler Ev w122 52 Friends of Waterloo Library Ev w123 53 The Combined Regions Ltd Ev w124 54 Mr Tony Hoare and Mr Mike Bedford Ev w127 55 Councillor Paul Lorber, Liberal Democrat Group Leader, Brent Council Ev w130 56 UNISON Ev w135 57 Friends of Carnegie Library Ev w138 58 Friends of Goring Library Ev w140 59 Society of Chief Librarians (SCL) Ev w141 60 Pam Jakeman Ev w144 61 Upper Norwood Library Campaign Ev w145 62 Friends of York Gardens Library and Community Centre Ev w149 63 Dorset County Council Ev w151 64 National Federation of Women’s Institutes Ev w152 65 Sarah Tanburn Ev w156 66 Lewisham People before Profit Ev w159 67 Alan Goodearl Ev w161 68 Kirsty Braithwaite Ev w163 69 Anne Bennet Ev w164 70 Newnham Library Support Group Ev w166 71 John Laing Integrated Services Ev w168 72 The Publishers Association Ev w172 73 Lynne Coppendale Ev w174 74 Simon Gurevitz Ev w175 75 Alan Dove Ev w180 76 Kent County Council Ev w183 77 Friends of Lambeth Libraries (FOLL) Ev w186 78 Reynolds Family Ev w189 79 The Friends of Wiveliscombe Library Ev w192 80 Save Friern Barnet Library Group Ev w194 81 We Care Foundation Ev w198 82 Simon Randall CBE, Consultant, and Joanna Bussell, Partner of Solicitors, Winckworth Sherwood LLP Ev w200 83 The Bookseller Ev w203 84 Kirkburton Parish Council Ev w205 85 Alison Hopkins Ev w206
48 Library Closures
86 Elizabeth Chapman Ev w207 87 Old Coulsdon Library Supporters Group Ev w210 88 Birmingham Library and Archive Services Ev w211 89 Laura Collignon Ev w213 90 Save Croydon Libraries Campaign Ev w216 91 Saleem Yousaf Ev w218 92 Gareth Osler Ev w219 93 Josephine Grahl Ev w221 94 Sara Wingate Gray, Alice Corble, The Itinerant Poetry Librarian Ev w223 95 National Union of Journalists Ev w225 96 Gloucestershire County Council Ev w225 97 Friends of the Durning Library Ev w227 98 John Dougherty Ev w229 99 Tim White Ev w230 100 Save Cricklewood Library Campaign Ev w231 101 Anne Howie Ev w232 102 Newcastle City Council Ev w233 103 Roger Backhouse Ev w236 104 Hugh Paton Ev w237 105 Rosehill Readers on behalf of Save Suffolk Libraries Ev w238 106 Save Oxfordshire Libraries Ev w243 107 Peter Griffiths Ev w245 108 Friends of Kensal Rise Library Ev w249 109 Library Systems and Services UK Ltd (LSSI) Ev w256 110 Executive Committee of the Association of London Chief Librarians Ev w258 111 Brent SOS Libraries Campaign Ev w259 112 Lauren Smith Ev w264 113 The Society of Authors Ev w268 114 Yinnon Ezra MBE Ev w273 115 Christina Burnett Ev w275 116 Barry Gardiner MP Ev w277 117 Richard Shirres Ev w278 118 Doncaster Council Ev w286 119 Public Interest Lawyers Ev w288 120 London Borough of Brent Ev w290 121 Trustees of the North Taunton Partnership Ev w292 122 Martyn Everett Ev w295 123 Suffolk’s Libraries IPS Ltd Ev w297 124 Martin Hext Ev w300 125 Serena Brunke Ev w300
Library Closures 49
List of Reports from the Committee during the current Parliament
The reference number of the Government’s response to each Report is printed in brackets after the HC printing number.
Session 2012-13 First Report The Gambling Act 2005: A bet worth taking? HC 421 Second Report Racism in Football HC 89
Printed in the United Kingdom by The Stationery Office Limited 11/2012 18663 19585 cobber Pack: U PL: COE1 [SO] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 1
Oral evidence
Taken before the Culture, Media and Sport on Tuesday 7 February 2012
Members present: Mr John Whittingdale (Chair)
Damian Collins Mr Adrian Sanders Paul Farrelly Jim Sheridan Mrs Mensch Mr Gerry Sutcliffe Steve Rotheram ______
Examination of Witnesses
Witnesses: Miranda McKearney OBE, Director, The Reading Agency, Abigail Barker, Voices for the Library, and Andrew Coburn, Secretary, The Library Campaign, gave evidence.
Chair: Good morning. This is the first session of a groups, such as homework groups; in Suffolk, where short inquiry into library closures that the Committee I come from, there is Top Time, which is for the over- has decided to conduct. I therefore welcome in our 65s who get together; there are craft groups. There is first panel this morning Miranda McKearney of the a huge, wide range. I could probably sit here all day Reading Agency, Andrew Coburn of the Library and list them. Footfall in libraries does not take into Campaign, and Abigail Barker of Voices for the account the increase in online use. I can sit at home Library. and borrow a book from my library or use one of their online reference databases. I could sit in bed and do Q1 Mrs Mensch: Speaking as an author, sadly, I that if I wanted. I do not have to leave the comfort of know that both book loans and library usage in my house. Online access has grown hand in hand with general have declined over the last 20 years. If we can the actual physical space of a library. start with a very general question, what do you think If you ask the public’s view of libraries, I would say that says about the attitude of the public towards that they absolutely love them. On National Libraries their libraries? day, I took part in a Bookstart Bear reading group with Miranda McKearney: The problem with looking at some under-fives. It was brilliant—their faces just lit the global statistics is that they mask the growth areas. up as they ran in and chose their own books and There has actually been some really encouraging handed them to the bear while saying, “Read this one growth, particularly in children’s services, and next! Read this one next!” Their parents got five children’s book issues have actually risen for seven minutes to themselves to choose their own books years now. Some astonishing figure like 77% of five while their kids learned how to use the library. to 10-year-olds use libraries, and the schemes that we Libraries are still very relevant to the public, even if run as a charity—the biggest is the Summer Reading the usage statistics have gone down. Challenge—grow year on year. As with all public services, patterns of use are changing—web visits are Q2 Mrs Mensch: I have a couple of questions that rising, for instance—so when informing library follow on from that. First, you understand that in these strategy, it is really important to look at where the straitened times all local authorities are facing heavy changes are coming in the statistics and where the cuts, and they have to look at what services they can public is showing demand for libraries’ reading cut that will impact the fewest people. Many things services, for example, because the service is changing that all three of you have advocated in favour of so fast. library services can be delivered through other Andrew Coburn: I agree with that. There are also a methods: for example, electronic data do not have to couple of other things. One is that we should not be be delivered via a library; they can be delivered too limited to talking about book issues when we are through other methods. Places for groups that use a discussing library use. Books are clearly important— library to meet can be delivered through other arguably the most important thing—but there are all community services and meeting places. It does not the other areas of libraries’ work in terms of have to library-specific. What does have to be library- information, education, and so on. The second point specific is books, and the withdrawal of books and is that, in the best library services, there are initiatives footfall. I would be interested to know if you have that are raising use and raising issues—perhaps in calibrated whether the increase in children’s usage of particular subject or interest areas is how you would libraries, to which you referred, compensates for the best describe it, and one of the things that we need to general loss of library footfall. Do you not think it is do is capture some of that and spread it around. reasonably natural for local authorities to want to Abigail Barker: A lot of the information and data that close services that have declining users, such as we have is quantitative—it is on footfall and book libraries and footfall, in times when they have to issues. It does not take into account how people use balance their budgets against the needs of their local libraries not only to borrow books. There are lots of residents? cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 2 Culture, Media and Sport Committee: Evidence
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
A perennial problem that local authorities appear to distressing thing is when there is not a strategic have is that while people, when asked, say that they approach to the cuts. There are some examples of love their local library service and want to save it— innovation, where less money is being dealt with very they will say that all day long—they do not actually intelligently: the tri-borough project in London, where use their local library service. Is it not reasonable for three library services are merging and cutting a local authority to make a cut based on evidence of management costs to preserve the front line, is a how that service is being used? As a corollary, why fantastic example of reinventing the delivery of the should they specifically target budget towards libraries service. when some services you have cited can be delivered Even if there were no cuts, libraries would still have elsewhere? to change, because they have to move with the times. Abigail Barker: I do not think those services can be The best services that we see are where there is an delivered elsewhere. If you are talking about online intelligent overview from the council of what this reference databases, they would still need to be paid extraordinary network and force for social change for from the library budget or certainly from a county delivers across the wider local authority. A lot of council budget. Those databases are not free. interesting work is going on in health at the moment, You talk about the needs of local residents. Lots of so sticking to libraries’ fundamental purpose of cuts have been made with no thought of the needs of promoting reading, learning and information, they can local residents. There have been consultations that face that in an intelligent way that capitalises on what were basically, “If you do not step forward and run local authorities have to deliver. With public health your libraries, they will close.” People were not asked, coming into local authorities, the best libraries are “How and when do you use your library? How could looking hard at how their reading and learning work we improve it? If we closed earlier in the week and it delivers on those priorities, which brings them into a meant we could open at the weekend, how would you different relationship with the council. use it?” In Suffolk, there are libraries that open in I always think that the building thing is a complicated schools on a Saturday and Sunday that nobody uses. issue, because clearly the library as a precious civic Of course cuts need to be made, and we are not saying space in the community is vital. I wish we could look that the library service should be immune from cuts, again at what the network means in the 21st century but why not close those libraries that are not used at and what is happening internationally, where places the weekend and save or put the money elsewhere? such as Korea are investing heavily in their public Local needs have not been taken into account and library network. It is about a balance between equality impact assessments have not been carried out. ensuring that we have the right places in the right These cuts have been made as a knee-jerk reaction, communities doing the right things, but it is also about and if they are that concerned that library usage is thinking about the library beyond the building as a going down and they feel the need to make cuts, we force for social change in the community. One of the would ask that they make them sensibly and make things that really concerns me at the moment is the sure that they have the information first. loss of expert staff. A lot of that expertise is focused Andrew Coburn: To add to what Abigail said about on outreach work in the community—spreading the electronic stuff, apart from having to pay for it, reading, but not necessarily doing it in a building- the most effective way of using it is if it is properly based way. mediated. Yes, we can all google, and probably most On your final point about footfall. Although library of us do on occasion, but using some sources that use has declined, I think it has held up remarkably library services can provide, as well as some sources well. If you think about the competitive forces at play, that are out there on the net, is something for which libraries are largely to be congratulated on moving you need staff who have some training, insight and their work forward, particularly their work with the ability to make effective comparisons. children. If we looked at the lessons from children’s On meeting places, yes, there are other community work and thought about how they could be applied to meeting places in many areas, but lots of them—pubs other areas of work in a really strategic way, we could and so on—are closing down, not only in rural areas. look at a more exciting future. It is quite difficult where I live to find a room for a relatively cheap price for a community meeting. I Q3 Mrs Mensch: That leads on neatly to my next know because I have tried, and it was nothing to do question. When I was a girl, my local bookshop and with libraries. The other thing is that the events that library did not have to compete with the internet and libraries hold are very often about the material that is 24-hour kids’ TV for my eyeballs, so I read thousands in the library, or how to make better use of that of books, which led to terrible eyesight but probably material—and, as a spin-off, see if there is a book. quite a good vocabulary. My own children are playing Finally, on closing services, as well as what Abigail computer games; they read books and like books, but, has already said, authorities do need to look quite as a parent, I have to insert reading into the multiple closely at their services, how they are running them choices they have for their leisure time. You have and what they could be doing better, cheaper and more already touched on the encouraging trends in reading effectively. In many areas, not enough of that is by children—as opposed to teenagers, I suppose—so being done. I take it that you mean younger children. Do you? Miranda McKearney: Gosh, there is lots in your Miranda McKearney: The biggest growth has been in question. I do not think anybody here would argue the areas of primary school children and early years that libraries should be immune from all cuts, because work, but there is some really interesting teenage clearly everybody is having to take that hit. The work, too. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 3
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
Q4 Mrs Mensch: That is very important, because if a more focused collection. If I want stuff on the one does not catch a child young and instil that love history of the Second World War, the library has got of reading, it is very difficult to instil it later. What a more focused collection.” can libraries offer in an age when they have to compete with social media, Facebook, free online Q5 Paul Farrelly: On that last point, one of the games and round-the-clock television? Do you see this striking things for me from the briefing that we have as something that libraries can uniquely provide to had is the statistic about children’s visits at a very fight that tide of anti-literacy, if you like, and high level of 75.6%. That certainly accords with my computer screens—IT as the be-all and end-all? experience as a parent. Next week, during half term, Perhaps you could answer a supplementary question. my son would willingly spend his whole week in the Reading trends are changing, and you have referred to library, not only reading but using the computers. For digital borrowing. On my phone I have a Kindle app many families you have to remember that something with perhaps 75 books, so my own reading habits are such as iPlayer is not “freePlayer”, because there is a shifting towards digital reading because it is easier to definite cost in terms of your telephone bill at the end carry around. I know that in publishing we are already of the day, which people may increasingly not be able seeing in this country what is happening in the States, to afford in these straitened times. I just wanted to where the book market is shifting inexorably towards ask the question: do you think there is a danger— e-reading. How do you see that affecting the future particularly among more affluent, older decision of libraries? makers who probably do not use libraries themselves So sum up my two questions: how do you target and, therefore, are possibly not interested in driving young people’s multiplicity of choices; and are change to outdated libraries—that this notion becomes libraries keeping up with changing reading habits in fixed that libraries are old-fashioned and old hat the shift towards electronic books? I do not know because of the changes in social media? Is that a where that shift will end, but it certainly continues to danger that libraries face? grow for the moment. Abigail Barker: Absolutely. I am a professional Andrew Coburn: I’ll go first, although I suspect librarian, so that stereotype of libraries being staid, Miranda will have a lot to say, possibly on both parts boring and dusty places where you should not make a of the question but particularly on the first part. It noise or, heaven forbid, enjoy yourself, really strikes seems to me on children’s participation, that libraries a chord with me. Libraries have very definitely kept have a number of things. One is that they are there, in up, and in some ways are ahead of many other areas specific buildings. There is a space there where of technology. At the weekend a gentleman—a somebody can go and study if they want and get the pensioner—came in, sat down and watched a material that they want. It is not part of this inquiry, programme on iPlayer with his hour’s free internet, but another part of the library world that is facing and off he went home. He did not look at a book and considerable problems is school library services, he did not borrow anything; he went in, watched the which are being closed where they exist, and where iPlayer, watched his hour’s programme and went they do not exist some schools are taking a different home. I do not have the internet at home, which might view of how they should be providing stuff and doing shock some people. If I want to use the internet, if I it electronically. That is not a view that I suspect we do not use it at work, I have to go to my public library would share. to use it. With the technology that libraries have you A lot of libraries are building on the stuff you talked can join online and you can renew your books about—the television, the internet and all the rest of online—again, that might lead to a decrease in library it—to try to get children in in a participative way. use if you do not physically have to go to the library They are having sessions around manga, the Japanese to renew your books, which you certainly did when I graphic novels, and indeed there are libraries that have was a child; it was a weekly outing to avoid fines— had rock concerts and that kind of thing, which you can reserve and use reference services online. capitalise on that. Once you get people in the door, Library management systems are all online now. I had the good libraries will build on that and try to get to use card catalogues. I cannot imagine my teenage them involved in other stuff. The other thing on that self using a card catalogue, but I did to find the books question is that I think libraries are about access. that I wanted. You do not have to do that anymore. There are children and families who do not have all You can serve yourself in a library in the same way that i-stuff and e-stuff. If they can go to the library that you can serve yourself in a supermarket. So they and get access to some of it, they are at least a little are certainly not behind the times at all, although I bit closer to some of their peers. think you are absolutely right: people have an On digital reading, I agree that it is going to make outdated opinion of what a library is. I don’t think a a difference. At the moment, until the publishers get lot of these people who are making these cuts themselves sorted out with what they are prepared to understand what a library is, what a library does or offer libraries and allow libraries to do, we are not even what a librarian can offer. going to have a clearer picture. There are innovations, Miranda McKearney: It is interesting to think about and there are plenty of libraries that are offering e- how museums have had major national investment reading. If Kindle makes its library app available in and why the decision makers you are talking about this country, that will no doubt expand. The catch will have made that possible, but the library network has be that libraries will have to make it attractive to not. The passionate work of the campaigners over the people to say, “Yes, I will borrow that from the last 18 months has started to shift the debate about library,”—free, I hope—“because it is there and it is what the idea of the library means to us all. I would cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 4 Culture, Media and Sport Committee: Evidence
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn love to see that progressed. What about the next Andrew Coburn: Yes, I would echo that. They are spending round? What about a major investment in concerned about having access to a library service. I the library network but done really strategically and said earlier about authorities looking at efficiencies an intelligent look at who the big partners for the and different ways of doing things, and part of that library network are nationally as well as locally? We ought to be, “Can we offer this service in a different are doing some work with the BBC—there is huge place, co-located somehow or offered in a different potential to join up the BBC’s digital riches around way, in a different physical place?” A lot of those reading with the library offer—but there is a major campaigners are also concerned about access and gap in the ability of libraries to act and plan nationally. proximity, which have to be taken into account in There are some things you can only do nationally, those alternative solutions. such as create a national digital portal for libraries and Miranda McKearney: That passion with which a suite of national, planned 24/7 services. If we could people are fighting for their local library is telling us capture the interest of the people you are talking about something loud and clear, isn’t it? But of course in the possibilities, and by thinking much bigger and change has to happen. The key, as we said earlier, is more imaginatively about what nationally, regionally how that change is planned and whether the council and locally the network could look like in 10 or 20 is addressing that in a systematic way. years’ time, we might overcome some of those hurdles. It just drives me bonkers when you hear Q8 Mr Sanders: To what extent do library people on the radio saying that we do not need authorities need bricks and mortar in order to promote libraries anymore because everybody can afford mass literacy and numeracy? Should that not be the task of paperbacks. That does not accord with the experience the education authority, not the library service? of the communities that need them very badly. Abigail Barker: The two are tied hand in hand. The education service needs libraries as much as libraries Q6 Paul Farrelly: A final quick follow-up question: need the education service. I work in a university that statistic—75.6% of children—seems to me to library and I quite often see return-to-study students, speak for itself as to how relevant libraries are. One who are maybe in their early twenties, who did not of the dangers of ill-thought-out cuts is to make have use of the library and are at a disadvantage when irrelevance a self-fulfilling prophecy. they start their degrees. They are the most keen, and Miranda McKearney: Yes, and how do we think they will come and ask how the library service works, about our ambitions as a nation and factoring libraries even down to, “How do I borrow a book? What can I into them? You have one bit of Government today do with this book? Can I take it away with me?” talking about the importance of reading for pleasure Students who have used the libraries all their lives are but that task is seen as located with schools, so what very much more confident and can jump into their about taking a more joined-up approach degree and really enjoy it. Those things are very much systematically between the school and the library in hand in hand. In particular, with the schools library the community as a force for developing children’s service I think they need to be invested in. In some reading? It is remarkably difficult to join up that parts of the country they are under threat, and the link conversation. between education and libraries is unbreakable, as far Chair: Before I call Adrian, we have spent 25 as I am concerned; they are very much partners minutes on the first questions. Given that we have together. quite a lot of ground to cover, can we try to keep Andrew Coburn: Yes. The other thing is that although answers and questions relatively succinct? it is clearly the responsibility of the education system to promote literacy and numeracy, if libraries can offer Q7 Mr Sanders: Many of the library campaigners an alternative, more leisure-related way in, and almost who have written to us seem to have been concerned certainly a greater range of stock and possibilities— with keeping specific library buildings open in their and possibly more locally—there is still a place for area. To what extent could these campaigns be libraries to be doing that kind of work. described as sentimental about buildings and the Miranda McKearney: I would argue that the place is library of yesteryear? really important. It is interesting, picking up on your Abigail Barker: The library building, for some stuff about the digital and how the experience of campaigns, has become a symbol. It is seeing that hub reading is changing, if you look at the music industry of the community potentially being closed down that the growth of digital has been accompanied by a they are trying to put forward in their campaigns. Not growth in the live. In libraries, a lot of their most all campaigns are like that. A lot of campaigns are successful work is around making reading much more based on the service and all the things that the service social and much more engaging. There has been a real can offer. We appreciate that although the library explosion in reading groups, author events and baby building is incredibly important, because it brings the rhyme times. You do need a place to do that. I see community together, some library buildings that are that as being a very important part of libraries’ future. not being used or library services that could be moved There is something too about if they are about to shared buildings—it is not to say that we would not promoting reading and literacy, do they have to just consider that. I think that there is a sentimentality for do that in a building? Absolutely not. Partnering libraries, particularly lovely red-brick buildings—not appropriately, nationally and locally, with the so much the portakabins in a car park somewhere— education system and local schools to fuse their skills, but the majority of campaigners would agree that it is experience and resources into how the community is the library service that needs saving. tackling those issues seems to me important. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 5
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
Q9 Mr Sutcliffe: Having been a councillor for many council is thinking about how it is delivering on its years and also a Minister, that wonderful phrase other priorities, but also from the basis of a real clarity “joined-up government” comes to mind, and you of purpose about what it is there to do. talked about the strategic nature of what needs to happen, but there is that diversity around, and—to go Q12 Jim Sheridan: Miranda, can I frustrate you back to Adrian’s point—how important is a fixed even more? I am one of the millions of people who library site in the scale of things? do not use libraries—if you read my speeches, that Abigail Barker: Fixed libraries can be incredibly will become obvious—and are libraries not just a important, particularly to rural communities that may luxury that we cannot afford in these difficult times? not have a mobile library service. If you are talking Like Gerry, I have been a local councillor, and if I am about joined-up thinking in the promotion and future faced with a decision of keeping either a local health of libraries, you cannot just open a new library or centre or a library open, it is a no-brainer. People improve a library without thinking about things like would say to me, “Close the library.” Convince me public transport. People need to be able to get to the not to do that. library. If you are talking about a very rural part of Miranda McKearney: I am trying not to leap over the the country, there could be a mobile library, which is table. [Laughter.] You clearly have access to the not fixed except for as long as it stops in the village. things that you need to live your life without a library, The library service needs to be delivered, and it needs but there are millions of people who do not. I think it to be delivered in ways that best fit local needs. If it is easy for those of us who are well-provisioned with is a mobile library service, then it is mobile library digital access to forget that many people do not own service. If it is a fixed library, then it is a fixed library. a computer and do not know how to get online. There There is all too great a chance that we will get fixated has been some really interesting work going on on the library as a building when we should be recently around libraries getting loads and loads of looking at the library as a service as well. people online for the first time, because that whole thing about the library as an idea and as a communal Q10 Mr Sutcliffe: Again, some local authorities have asset is very powerful, so people are prepared to do said to us that libraries are best placed in town centres things by going to their library that they would not because of public transport and their availability. Is otherwise be prepared to do, because it is seen as a that an issue? You said that it was in terms of public communal, unintimidating place to go to learn. There transport. are lots of homes where children have no books Abigail Barker: Yes. I live in Ipswich and very close because their parents cannot afford them, and the to the town centre. My nearest library is 10 minutes library, with its free provision of books, is absolutely away, and the town centre library is 20 minutes away. vital for the families that need it most. If we do not I am young. I do not have any children. I am fit and crack some of this country’s literacy problems, which healthy. I can walk to the town library if my local one are shameful for a developed country, and if we do is closed. If I had children and a buggy or if I was not think intelligently about how each bit of the elderly and could not walk, I could not walk for 20 system can do that, we are going to struggle on with minutes, borrow a whole load of books, and then walk the same kind of figures that we have at the moment. back for 20 minutes. It just would not be feasible. The I would say that you are in a privileged position; there disabled parking, for example, is nowhere near the are those who are in much more disadvantaged town library, whereas Rosehill, which is my local positions in life, and they need their library. library, has a disabled parking space right outside the Andrew Coburn: May I add something to that? This door, and it is 10 paces from the door to the issue goes back to the point about the buildings. I am not desk. There is almost a queue sometimes of people arguing for keeping all the buildings, but in a small waiting to use that parking space. Town libraries are rural environment, or even a suburban environment, great, and if people can get into them, then brilliant, the local population know the library staff, so they can but you have to remember branch libraries and that come in and ask a question that has absolutely nothing they have an audience that need to be considered. to do with the library. I was told a story about somebody whose father or elderly relative had died, Q11 Mr Sutcliffe: Is there an issue about where the and they did not know what to do next in terms of library services fits in local government? Would you how to register it, and all those other things. They like to see something different happen in terms of went to the local library and got the answer. They got provision of library services? You talked earlier about more than the answer, because they got some books how we are promoting museums. What would you about bereavement, and that kind of thing. So there is like to see happen? a social place, as well as an actual place, but the actual Miranda McKearney: For me, it is not just locally; it place is quite important for building communities. is nationally as well. It is about how much sense it Abigail Barker: Again, as you mentioned, it is makes to have such an important chunk of our another point where you have to go to your national infrastructure in a small Government constituents and say, “It is either the health service or Department with the money in another and what better the library service.” We are often put in an either/or arrangements might there be for libraries nationally, situation, and, again, there could be more joined-up where they would get the proper attention that they thinking. In Suffolk, they have books on prescription, need. Locally, it depends on what political passion is whereby a GP will recommend a particular book to championing the service, as opposed to which help with, say, depression, or they may suggest, “Go Department it is in, and on how appropriately the and read a novel. It might give you five minutes’ cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 6 Culture, Media and Sport Committee: Evidence
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn peace.” The Future Libraries programme on books and buildings and they do not understand recommended that and said that it was best practice. what a librarian can offer. We are not just there to Library services fit in with health. I refer you to stamp your books or to help you use the automated paragraph 17 of the Voices for the Library submission, machine—although we will if you can’t, in the same which states that we deal with “physical, mental and way that I would expect a supermarket employee to emotional health”. Again, there is another story about help me as I am swearing at the machine. We are there bereavement where a lady whose husband had died to enhance your visit to the library. We can point you took her children into the library, and the librarian in the right direction and help you with queries. We found them books on bereavement and helped to start can tell you how to upload an MP3 on to your iPod, the process. So I think that libraries are entwined in as I have seen in my local library. We can show you all aspects of the community, and people do not how to rip vinyl to your computer, which was necessarily realise that. something else that was going on as well. Jim Sheridan: I could go on, Chair, but I will not push my luck any further. Q16 Chair: I hope you give a lecture on copyright too. Q13 Paul Farrelly: What is happening with local Abigail Barker: Yes, I live in constant terror of the government cuts is that local government, particularly copyright police, I have to say. Librarians are as county councils, are now rationalising their estates important as the library building. and are closing other buildings. I have direct evidence locally that there is an enhanced need for a library to Q17 Paul Farrelly: I have asked three leading remain as a focal point to offer people a warm, lively questions, people might think. A non-leading and safe place to meet and enhance participation question: what do you think will be the impact on among the groups that some people might consider to current trends of the reduction in professional be fundamental to the Big Society. Do you agree? librarians? Andrew Coburn: Yes. Andrew Coburn: In a sense, it is what I talked about before. A lot of what library staff do—because some Q14 Paul Farrelly: Right, thank you very much. of them are professionals and some are not qualified Staffordshire has a Conservative-run county council librarians, but they have a lot of experience, training and I am a Labour politician, but there is cross-party and the rest of it—is about mediation, direction and agreement that we will maintain our libraries. On the assistance. The fewer people you have doing that, and previous point, if anyone wanted to see a succinct the fewer of those qualified librarians, with those summary of what a library can offer, I would draw qualifications and experience, that you have around, their attention to the Conservative county council’s the more difficult it is for people to find out what they submission 26, which concludes: “When library want to know. provision is withdrawn, individuals are denied access You have been talking about a county council but it to more than just books and will lose opportunities to would be equally true in a large urban authority, I am learn, socialise, participate, contribute and volunteer within a safe and strong community.” Yes or no, is sure; the fewer of those people there are anywhere in that a statement that you would agree with. this system, the more difficult it is to get the answer Miranda McKearney, Andrew Coburn and Abigail from anywhere in the system. There might be a Barker: Yes. number of them in the central library and you might be able to ring in from one of 40 branches to ask what the capital of—that is not a very good example. I was Q15 Paul Farrelly: Yes, absolutely—thank you very about to say, “What is the capital of Venezuela?”—it much. In Staffordshire, there is no doubt that they are still could be an example. However, if all those people automating more—I need someone in a library to tell are on the phone dealing with other things, it is much me how to use the automated machine—and cutting more difficult to get the answers. I will stop there. staff. One thing they did in Staffordshire that was not terribly popular is that they made some older Miranda McKearney: There is certainly evidence in librarians redundant just before the new legislation the work that we do that a lot of children’s expertise came in whereby they could have carried on working in particular is being lost. A lot of the reader support beyond the retirement age, which denied libraries posts in libraries are now being merged, so what was some very experienced professionals. Do you agree a separate adult and a children’s post is now becoming that it would to the detriment of libraries if automation a more generic one, which seems extremely short- and cuts went too far, and if people like me or children sighted to me, when you look at the kind of areas of were stuck in a position as in big superstores, where growth that I talked about earlier. you are wandering around for hours trying to find a One other really big impact is that it makes the service number 10 brass Phillips-headed screw, or heaven less able to work in partnership across the local forbid, in a massive supermarket, a jar of pickled authority and indeed, nationally. It is very difficult at ginger? Would it be to the detriment of libraries if the moment to bring librarians to any kind of training librarians could not show people how to use all the or development opportunity, because there are not facilities? enough of them and they are manning the decks. Abigail Barker: Absolutely, you just said yourself that you needed help with the automated machine. Who Q18 Jim Sheridan: What is the capital of helped you? A librarian. The role of the librarian has Venezuela? been almost ignored in these cuts. They are focused Andrew Coburn: Caracas. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 7
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
Q19 Mrs Mensch: Can I ask you one question that time if I have a conversation with friends and they came up from something you said in your very first recommend a book to me, the first thing I will do is answer, when you praised the example of where local go online and reserve it so that I know that in a few authorities had merged a library service to save front- days’ time it will waiting for me at my local library. line services? Might there be a trend where local There is room for both push and pull to lead to an authorities are trying to do things piecemeal with effective library service. small budgets that cannot cope with library services— Andrew Coburn: The other thing about the I am putting this out to ask your opinions—and might destination library is that I am not sure it is necessarily it not be better for individual, small local authorities the right answer. What the question touched on to do cheaper services like a mobile service, let us tangentially is things like, as I understand it, say, and then there could be a destination library, in Warwickshire runs the mobile library that serves the same way that we have seen destination shopping Solihull, which is in a completely separate local centres, which have revived the fortune of retail? authority. Miranda mentioned the tri-borough system. There could be one large mega-library to which In the north-west there is an awful lot of co-operation people would come, an event place, which would be between public library authorities. Those kind of well-stocked, have excellent librarians and be lit up things, if encouraged and focused, are not quite a like Borders bookshops—perhaps not the best mega-library, but you could go back to the good old example, as they have closed—used to be in the days—he said, as someone who has worked in United States with cafes, with everything. So, it is a libraries for too long—where one library authority destination library that really drives people to it. would specialise in books on fine arts and another It strikes me that local authorities which individually would specialise in books on 20th-century history or have very small budgets can only provide small whatever. A lot of those co-operative systems have libraries. One thing we know in bookshops is that it broken down. If we are talking about access and your is the amount of stock that drives usage. You will go destination library is really about regional or sub- to a bookstore that has a large range of stock even if regional destinations, then that might be another way you don’t use the more obscure titles because you are of tackling it. But it requires some co-operation and more likely to get what you need. There is some some thought by the local authority librarians and evidence that mega-libraries—destination libraries— leaders. work very well, but it is not something a local Miranda McKearney: I guess there are two things authority is likely to be able to do within its own there. The sort of underlying system that allows budget. Has research indicated or have your services to share or merge has proved politically to be campaigners ever suggested that shared services and really hard in the last 18 months. So the case may one very large, well equipped, well stocked and well have been made but politically it is really hard to served library might be better than the current little pull off. and piecemeal arrangements which local authorities find it increasingly difficult to justify? Whatever we Q21 Mrs Mensch: Is that because local authorities may say and however we may gloss over the figures, don’t want to share their services? that footfall is dropping. Miranda McKearney: They might set out wanting to Abigail Barker: In Suffolk, the mega-library is do so to save the money but then politically it is very absolutely not what people want. I saw a report on difficult for them to step away from their own “Channel 4 News” last week about the Birmingham particular library service. mega-library, which I think is brilliant. But we have On destination libraries, I agree with the notion of to remember that with destination libraries people having a supercharged building that will drive traffic. have to be able to get to them. The same with mobile Newcastle is an interesting example of a new library libraries: the mobile libraries have to be able to get to that houses some fantastic regional collections. But the people. People in Suffolk very much value their that surely cannot be the only provision there is. local library and their local library staff. It is almost as though they have a mega-library. No matter how Q22 Mrs Mensch: I was not suggesting that. I was small the library may be, they can order any book saying that for those people who could not get to a from anywhere in the county and it will be there large regional library, you would always have the within three days, provided that somebody else does mobile service—there is a back-up. If, however, not have it out on loan. So they do have that selection. overall usage and footfall will be driven by a large and successful library—I was on the library taskforce Q20 Mrs Mensch: Forgive me for interrupting, that in opposition and we have seen that some of these is a pool system where somebody goes to the library large libraries do very well and drive footfall—I was and they are looking for a particular book. The wondering what your thoughts were as experts on it: essence of the library experience for me as a girl going I was not suggesting that should totally replace a local into libraries was that one browsed. You are not going library service. in to look for “The Gruffalo’s Child” but at what children’s books are on the shelves. For that to be Q23 Steve Rotheram: I visited my local library in attractive requires a wide range of stock and books. Fazakerley on Saturday for national libraries day. I Abigail Barker: I agree with you there. I quite often witnessed lots of the non-book stuff—the activities go in completely clueless as to what I want to borrow. that were mentioned earlier such as the internet, CDs, I am afraid I do judge books by their cover and I will DVDs and even a kids’ group who were meeting pick something that I want to read. But at the same there. There were books as well; I saw one by an cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 8 Culture, Media and Sport Committee: Evidence
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn author called Louise Bagshawe, but I did not take it needs of local people. There are very few out. Obviously, the library services in Liverpool are consultations that have asked what people want. The facing cuts, like they are in the rest of the country, consultations have been from the top down, through the poor central Government settlement that effectively saying, “These are the changes we are Liverpool got. I was reading in the notes that the 1964 making. If you do not volunteer to run this library, Act places a statutory duty on local authorities to you will lose it.” For local authorities to say that they provide a “comprehensive and efficient” library are making changes to fit the needs of their service for local people. Given that libraries are a communities is, as far as I am concerned, a lie. local service, to what extent are local authorities best Andrew Coburn: Right—follow that. [Laughter.] I placed to assess what is a comprehensive and efficient am not going to disagree with that, but I think that library service? consultation—I think we said this in our submission— Abigail Barker: The problem with “comprehensive has to be about more than just saying, “Here is option and efficient” is that it is open to interpretation, and A and here is option B; which one would you like?” my definition of “comprehensive and efficient” would Local users and campaign groups need to be able to not necessarily be the same as Suffolk county get access to the data and the information about the council’s. If there is the potential to be more explicit service, so that they can make informed decisions. with what “comprehensive and efficient” means, this They need to be consulted on whether things could be is the time to do it so that we have some kind of done differently and on whether a library could be standard to go by. Local authorities, certainly in my closed if it could be opened up somewhere else. experience, do not understand the library service. Swindon is the classic example. The Old Town library They do not understand what is needed, so they in Swindon had a huge campaign, which was very cannot begin to imagine what a comprehensive and well known and which is probably watching us even efficient library service is, which is why they need now. They have opened a library in a building round more help. They are making these cuts in very the corner. It may not be exactly what the campaigners difficult times, and if you do not have information to wanted, but it came after campaigning and after at hand it makes it even more difficult. If least some discussion with them. We should be “comprehensive and efficient” could be more clearly looking for those kinds of things. defined and more help could be given to local Miranda McKearney: What has really stung recently authorities, they would be making better judgments as is where libraries have been handed over to volunteers far as the cuts are concerned. without appropriate negotiations about how those Andrew Coburn: I boil it down to two words: libraries will stay part of a supported network. It leadership and standards—leadership at both national seems as though they are being cast adrift. Threatened and local level. To answer your question, I think local libraries are often in communities where it is least authorities are where the final decision should rest, but likely that volunteers will be able to step forward. there needs to be leadership locally to ask, “What do That has been one of the things that have most upset we mean by comprehensive and efficient?” and to people. look at the sorts of issues that we have talked about, and some that we have not. Nationally there needs to Q25 Steve Rotheram: Can I suggest to Abigail, be assistance, guidance and possibly something because I think she feels the most strongly about this stronger than that given to local authorities to say, “These are the kind of things that we are looking at.” having come out with what she did, that she come up I recognise that in the current climate that will mean with some criteria or a methodology that might help difficult political decisions, but the demise of the us in our understanding of how local authorities could public library standards was unfortunate, to say the better do what they are being asked to do? least. The Welsh have retained them, and there needs Abigail Barker: My local campaign came up with a to be some consideration given to how something—if methodology that we gave to the local county council, not like that, at least some fairly strong guidance— so I could pass that on. can be given from the top. Miranda McKearney: I agree that “comprehensive Q26 Chair: Thank you. Can I turn to the backstop and efficient” needs more definition and guidance, and power of the Secretary of State? The ability to have an I would ask what the point is of something being inquiry to assess whether the library service is being statutory if that is never called into question. properly provided has only very seldom been used, and the ability actually to take on the direct running Q24 Steve Rotheram: There was an attempt in 2005 has never really been used. Is there any point in the to clarify the definition, but I believe that was Secretary of State having such powers? unsuccessful. The Local Government Association has Andrew Coburn: Not if he or she does not use them. also provided us with some information. It has told us Our submission and those of a number of others have that local authorities do not take the decision to close said that the current Ministers, who were very forceful libraries lightly—I know that from my own in arguing for their predecessors to take action in the experiences—and that local authorities consult local Wirral, have been very reluctant to do so themselves people and their needs are identified. What else should when faced with what are, from my perspective, local authorities be doing before making such drastic equally strong campaigns and cases in a variety of decisions? local authorities. Yes, the argument is that it is a local Abigail Barker: That is something I feel quite authority decision, but the Minister does need to strongly about. Local authorities are not consulting the eventually grasp the nettle. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 9
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
Abigail Barker: He is offering no guidance at the Abigail Barker: Gloucestershire, Somerset—all the moment. Again, the local authorities are stuck in the ones that have gone to judicial review. As ordinary middle not quite knowing what to do, which is why people who work 9 to 5 and campaign in their spare they are making these rash decisions. Campaigners time feel so powerfully that their library service will feel completely ignored by the Secretary of State. We be taken from them that they are willing to spend their have numerous examples of people who have written time and money taking their local county councils to and received the same pro forma reply, which has court, the Secretary of State should have intervened. been a bit of a slap in the face for them. We are working very hard to point out why we need libraries Q30 Chair: Lastly, there has been a gradual and the hole that they will leave in our communities, development of community-offered library services. and we are told that he will intervene when he feels Do you think that is a good thing, or do you think it that it is serious enough. We wonder what his is a threat to the traditional library model? definition of “serious enough” is when Andrew Coburn: The way it has been done—I am Gloucestershire, Brent, Somerset, Surrey, and others never one to be backward in coming forward—is are going to court and getting judicial reviews. We likely to be a threat. It is being done piecemeal with want to know what will make him intervene and help all sorts of different solutions. There are all sorts of the local authorities, who need his help. problems: do volunteers who have been asked to run Miranda McKearney: It is a national service. It may a library, or who have stepped up to run a library, have be locally delivered, but it is a national service and to have CRB clearance? What about data protection? a national network, and therefore there is a statutory It comes down to whether some of those libraries are national responsibility. going to be part of the statutory service. If they are not going to be part of the statutory service, for all Q27 Chair: For example, the Secretary of State does sorts of reasons—because they are not connected to not have the power to take over the provision of street the library system, they have no accountability to the cleaning or many other local authority services. You local authority—that diminishes the statutory service regard libraries as somehow different to other local and could be argued to be the thin end of a wedge. authority services in that they should have this Miranda McKearney: There is a big spectrum, isn’t special protection. there? There are community libraries that have been Andrew Coburn: We are where we are, and if he has completely divested to the community without any that power, there is no reason why it should not be appropriate support from the network and local used. My understanding is that Ministers have, in authority, and there are others where the arrangements effect, taken over or intervened to get things run in the are very different. When you talk about community- way that they wish in other services, such as failing run libraries, it is important to distinguish between the education authorities. Indeed, in Doncaster, which different models. ironically has serious problems with its libraries, my understanding is that the Secretary of State for Q31 Damian Collins: In your earlier evidence, as a Communities and Local Government has been group you said that the growth area for access to involved there as well. If that is the case, it does not libraries seems to be events, such as reading groups make libraries unique. and programmes aimed at young children. I would Miranda McKearney: It is not necessarily about imagine that libraries with large local-research taking over, but calling an inquiry can be very facilities would support activities such as family powerful. The inquiry before Wirral was Derbyshire, history research. I would have thought that and, if you look at it, the Derbyshire library service is community involvement could be quite successful now absolutely thriving. with such activities, because it would be designed around what the community wants and there would be Q28 Chair: But the thrust of the Government’s an absence of similar services elsewhere. I can see policy across a range of areas is to try to devolve how you might have concerns about the core lending responsibility, because people on the ground at local function and borrowing from other libraries, but, if level are best equipped to determine what is anything, that seems to be a diminishing activity. I am appropriate. Do you not think that local authorities slightly surprised by your level of concern about what should be responsible for deciding what is right for community involvement would bring, because, in their communities? some ways, I think the community is pretty good at Andrew Coburn: Yes, they should, but, as Miranda designing the popular new services that libraries offer. said a couple of seconds ago, it is a de facto national Abigail Barker: Community involvement and service. I can go into my local library and discover volunteers can help to enhance a library service, but I that the nearest copy of the book I want to borrow is do not think they can replace a library service. I find in Keswick; I live in Essex, but I can get that book, it quite insulting at times, as a librarian, that my perhaps not the next day, but very quickly. There are chosen career and profession is so easily thrown all sorts of other aspects that make it a national away—when a retired bank manager can take over. I service, and, therefore, there is a place for some would never go into a bank and say, “I am a retired national governance, for want of a better word. librarian, let me take over,” so I do not see why it should be the other way around. Q29 Chair: Where do you think the Secretary of State should have called an inquiry? Q32 Damian Collins: Maybe you should. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 10 Culture, Media and Sport Committee: Evidence
7 February 2012 Miranda McKearney OBE, Abigail Barker and Andrew Coburn
Abigail Barker: Yes, maybe I should. I think we need in and do the boring day-to-day, behind-the-scenes, to use volunteers and community groups to their best ignored jobs that librarians have to do to make sure advantage. If we have someone who is a local that you can come in and borrow a book. It is not all historian, great. Get them in, and help them to run the boring, sorry—I should take that back. service and enhance the service, but do not ask them Chair: Right. I think that’s all the questions we have. to make stock choices, and do not ask them to come I thank all three of you very much.
Examination of Witness
Witness: Sue Charteris, Independent adviser on public policy; and author of the Report on Wirral Library Service, gave evidence.
Chair: I welcome Sue Charteris for the second part of the Arts Council, on how to navigate your way around this morning’s session. Your report has already been that and what the lessons from the different judgments mentioned this morning, and it is obviously one of the are. You have to be really keen and/or have a great key documents in considering this area. I invite deal of time to read the nuances and all the different Adrian Sanders to begin. judgments that there have been, to pick your way through sound decision-making. This is in a context Q33 Mr Sanders: Do you think it would be helpful where there is not a lot of time, where councils are for local authorities to have set criteria against which faced with profoundly challenging decisions. My to measure whether a library service is comprehensive concern is that some councils now will decide it is all and efficient? too difficult—“Let’s promise to keep all the buildings Sue Charteris: I think that is quite a difficult thing to open and find a different way of taking money out of do beyond the advice I have already given, which is the service”—and that is when we come back to part of my original report and which I have repeated efficient and what we mean by efficient, which here. Only the local authority can evaluate what perhaps I will come back to later. “comprehensive and efficient” means in its particular locality, given how different local government communities are. Key to that is doing a needs Q35 Damian Collins: Do you think local authorities assessment and applying the responsibilities in the Act have the latitude to consider how some of these as currently drafted to serve the needs of all services can be delivered outside of the library as communities. That means looking at a number of well? For example, we heard earlier about the issues, particularly those of access, deprivation and so popularity of children’s reading groups. When on. There is some guidance, but local authorities have libraries were created, we did not have Sure Start to do that decision making themselves and ideally centres and initiatives like Bookstart, which we now with local communities. do, so to what extent should councils consider the provision of those types of local services alongside Q34 Mr Sanders: Isn’t the problem that the terms what libraries can provide? “comprehensive” and “efficient” are subjective and, Sue Charteris: If I can answer your question in a therefore, open to legal challenge, which is precisely slightly different way, I served on the Lambeth what has been happening? Libraries Commission, which is an interesting model Sue Charteris: We are certainly in a situation where for deciding how to review public library services, and it is becoming a legal minefield. I am worried about we had evidence from some really good library policy making by judicial review, so I understand change agents from across the country. They all said, some of the concerns that were mentioned earlier “Don’t try to fix the library service on your own. today. The thrust of my advice in my report in looking Think about it in the round. What facilities are there at “comprehensive”—I will come back to in the locality, and which are best placed to run “efficient”—is looking at the needs of different facilities like reading, or libraries?” Sometimes it will sections of your community. Since I wrote my report be the library. Sometimes the library is the only public we now have the Equality Act, which is very specific building left in the locality. Sometimes it is one of in terms of protected groups. As a mode of analysis nine or 10 buildings, one of which is the Sure Start and as a means of thinking about how well our current centre, and one a community centre—I could go on. service is meeting those needs, and how any changes Where councils can use money more intelligently is we want to make meet those needs, I think it can be a very valuable thing to do. It is not an argument for to have a look at what the stock of physical presence the status quo. It is not an argument for saying that is in a locality and work out where best to locate you must have a library around every corner, which is those facilities. why I am not so keen on more rules and regulations It comes back to needing to know what your service saying that you must have a library every two miles. is currently doing. The good library authorities are Does that mean as the crow flies and so on? You get regularly reviewing their service and regularly into difficulties there. advising their elected members how the service is What would be helpful to councils at the moment, being used, so when they come to a point of needing given that it is a legal minefield, is more guidance to rationalise the service, they have that information from the Secretary of State, maybe with the help of at their fingertips. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 11
7 February 2012 Sue Charteris
Q36 Damian Collins: Do you think that a an awful lot more than books and a wider book stock, combination of perhaps political pressure and a fear which has been seen to drive footfall and library of judicial review is making libraries too conservative visits. in the way they plan their library services for the Perhaps you can comment first on the nature of the future? costs of the digital revolution as a driver for library Sue Charteris: I would rather look at it the other way change; and, secondly, whether the balance has tilted round and say, “Actually, there is some really good too far in favour of computers, IT and other things, practice here. How can we accelerate that good and too far away from books, which are cheaper and practice?” It is going to be a love-in for the tri- where the overall spend appears to be very low at a borough project today, I think. We have heard about national level. it already, but it is a model. We do not have years to Sue Charteris: This is where I come to understanding, get this right. How can we accelerate the partnership on a service-by-service basis, how you are spending between different local authorities and make it really the money on the service. That gets into some tricky worth their while to speed up that inter-borough co- territory in most local authorities, because quite often operation, so that the capacity exists in the service? the IT costs of a library service are part of what is There are some very good models around at the called the central recharges, which is a mysterious moment. area that takes some unravelling. I think there is a very sound case to be made for Q37 Damian Collins: For the library service to be investing in IT—I am talking about electronic book sustainable in the future, do you think those sorts of issuing and so on. Having broadband available in major initiatives like tri-borough in London are going libraries is an essential for a modern library service to be required, otherwise the service will wither on now, but it does have to go alongside books. I agree the vine? with what you are saying about how the offer has to Sue Charteris: It is essential. You cannot take 20%, be stimulating and exciting enough not only in what 25%, or 30% out of the service and expect it to stay you called the flagship stores, but in the local the same. You have to look at how the money is community libraries as well. currently being spent on the service. The more you I remember visiting a wonderful partnership between can do that in partnership with local communities, the a tourist office and a library service in a rural part of more robust decision making you will have and the the north-east. I saw this woman looking anxiously more likely you are to get a consensus about the way along the shelves; she was looking for something that forward. I know that many leaders of councils think she had not read. If you are going to have more that the tri-borough approach only works in an urban limited stock, you do need to rotate it; you need to area, and I can see that it is much easier where you have new opportunities coming forward. Yes, I think have much more economies of scale, but I think that the amount spent on books is embarrassingly low. there are partnership possibilities, even among There is a much better deal to be struck in purchasing counties or different groupings of councils across the arrangements and I do not really see why local country, to do much more working together. If we do authorities are doing that on their own anymore. Other not do that, the professional capacity will not be in people have mentioned today that we need to decide the service—we have heard today how denuded that what is best done nationally and what should be done is. Real expertise and professional leadership, as well in big procurement partnerships; that way, we get a as political leadership, is needed. lot more for our money. Very few libraries spend much money on communications. I can take you past a lot of libraries Q39 Mrs Mensch: Would you say that libraries have where most of the population would not know that lost focus on books overall? there is a library inside. They certainly would not Sue Charteris: It is very hard to generalise. A number know what range of facilities there are going on in it. of libraries have misunderstood the needs of their That is best done by a proper comms team promoting readers and they have had to change tack. For and branding the service. example, some of the newly opened community Damian Collins: Counties are not all the same size, libraries, opened with Big Lottery Fund resources, so some counties manage to run large services over deliberately went for wide open spaces, emptier much bigger areas than others. I imagine it is possible shelves and more IT and they had to change tack to achieve those sorts of synergies. because people did not find they had enough to stimulate and excite in the form of reading material. Q38 Mrs Mensch: You talked about the digital Again, there are imaginative ways of doing this. You revolution and how that has been a driver for change, may have come across the Sutton Bookshare, which but, obviously, digital and IT equipment is pretty is a giving service administered by the library service costly. Since upgrading also costs a lot of money, how alongside the main lending service. When I have done is that being stymied by local authority cuts, because work with people who do not use libraries but care it becomes ever more expensive to upgrade your about them, some of them refer to themselves as services? Perhaps as a secondary question I can ask guilty book buyers—in other words, they have to have you about the proportionate spend on IT and books. the latest book. They have gone out and bought it, but When we did some research on this a few years ago, actually they have not messed it up: they have not I think that we found that the total area of library spilled coffee all over it or written in the margins. The expenditure on books was only 9%, which is a tiny Sutton experiment is worth replicating, so that you amount of money. As a matter of fact, IT services cost can have a mix of books for loan, books for borrowing cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 12 Culture, Media and Sport Committee: Evidence
7 February 2012 Sue Charteris and maybe books for buying in the same place. part of its offer, however small, is better than a mobile Newcastle is a good example of that. service that makes two or three stops in the village for 10 minutes every couple of weeks. We have to look at Q40 Chair: Do you think we will one day get to a the whole provision to get an answer to your question. situation where the library consists of a large stack of Kindles through which you can access a central server Q43 Damian Collins: Is the answer to that question and download digital copies, and there will be no need not inevitably local, rather than national? The way to ever to have any books there at all? save a small library with a lower number of users Sue Charteris: We might. I saw a programme that could be to involve the local history society, which Alan Yentob made recently about the extent of the currently meets somewhere else, or other groups, and digital revolution, and that is a future scenario. The to provide extra services beyond those that a core whole point is that the library service is in transition; library service will deliver. it is in transition because there is a financial crisis and Sue Charteris: Yes, I think so. because there is a digital revolution. The reason why people are so exercised and emotional about this is Q44 Damian Collins: Do you think that one of the that their communities are in that transition space as problems the library service across the country has is well. There are sections of our community, that it has an estate of buildings that might not particularly older adults, who are not yet devotees of necessarily be appropriate for what it needs to work the digital revolution. Libraries have a major role to with, and might be expensive to maintain? Buildings play in helping older adults and people who are not might be too big in some places, or they might be in technologically confident to access information in that the wrong place. new way. I cannot say how long it will take, whether Sue Charteris: Yes. I am not a libraries historian, but it will be 10 years or 50 years, but we have to straddle it seems to me we have the Carnegie and the Tate that journey in the library service. generation of libraries, and then we have a lot of libraries that were modern in the 1950s and 1960s, Q41 Chair: The library service could play a key part which are a maintenance nightmare. We have seen in doing this. Kindles may be much easier for elderly from the newer libraries that have been built what an people to use than traditional books. You can enlarge attractive and much more cost-efficient model they the print and it is easy to turn the pages. The library are, but yes, we are stuck with a difficult estate and service could be a force to encourage adoption of that means looking on a community-by-community these technologies for people who are less familiar basis to see how you can best make provision. with them. Sue Charteris: I absolutely agree. To do that we have Q45 Paul Farrelly: I was pretty lucky growing up to sort out digital licensing. That has to be done compared with many kids of my age. My granddad nationally. Individual library authorities trying to sort did not have much of a formal education before he that out are wasting their time. Even coming out with went to serve in the First World War, but he made individual policies and innovative ways of doing it— sure that I knew the value of an education and that I until we grasp that nationally and get a really good did my homework. Weekend after weekend, he took deal going, then it will be a blighted area. That is me to the local Clayton library, which thankfully is a tragedy. still open. He did not take me to the town centre Chair: That is a whole new Committee inquiry, which library because Clayton library was within walking we may well come on to. distance for a pensioner. What do you think when you hear councils such as Brent say that libraries are best Q42 Damian Collins: Just a follow-up to that last situated in town centres with all the public transport question: do you think there is room for technology links, possibly to the exclusion of other to improve the delivery of library services? For considerations? example, in book retailing Amazon tries to recreate Sue Charteris: I don’t want to talk about Brent or the browsing experience you get in a bookshop by any library authority in particular. It is based on the recommending things to you based on your knowledge that they will have of how people use purchasing patterns and what other people buy. Could facilities in their locality. If a local authority can you see more innovation like that in the online- demonstrate that it can meet needs in a different way, delivered library services and, as the Chair suggested, the question of what you do about the very local the library itself potentially being a smaller building library might have a different answer. Councils need where people go to pick up the books they have to decide whether they still need those very local requested, to attend events or to get other sorts of libraries to deliver their statutory offer and whether information? they can run a comprehensive and efficient service Sue Charteris: Yes, and this is where we come back without them. If they are convinced that they can, with the need for a strategic vision for each library there may be a means of persuading your granddad authority in terms of which of its venues are best that he can have help to go that library or that there is placed to be that, “Now here is everything we have— an offer than can come to him in a different way. The our showcase, our website”. That whole presence has real challenges are in councils where there is a very to be spot on. It is naive to expect that to be replicated large network of rural provision, where public in every place. How best do you it in a local village transport is not that great and where we need different hall, for example? We have to have the debate about models to emerge. That is why I have been giving whether the local village hall, with a library as a key some thought to the whole notion of community cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 13
7 February 2012 Sue Charteris libraries and the role of communities in partnering the generation, you do not go to the genius bar. What on council in a different way. earth can they teach you? You know your way around and how to navigate for information. They can teach Q46 Paul Farrelly: In your evidence you say, not you nothing, but for other people the access to genius surprisingly, that smaller local community libraries are expertise is vital. I think professional librarians are the most under threat. You can understand why. Take absolutely key in doing that. Clayton, which is on a bus route. There are so many Steve Rotheram: I have to go, Chair, but just to let scenarios where, if people are going to cut back, the you know, “Sparkles” is available at Fazakerley little libraries are just going to go indiscriminately, library, with a whole host of similar novels. unless a council, as a body, takes what you might call Paul Farrelly: Because there is a host of novels, it is an emotive decision to protect all its libraries as far as a book I preferred to borrow than to buy. The whole it can. I am not sure how, without that buy-in—that run would have cost a fortune. emotive decision, “We will protect our service”—how Sue Charteris: You could borrow the rest. small and local libraries can be saved by some rigid set of rules about how you assess local need or not. Q48 Paul Farrelly: You are ex-local government, so Sue Charteris: We could discuss whether it is you know the pressures very well. There is a emotive, strategic or political, but what it needs is movement at the moment, because of budgetary local leadership to decide what vision there is for the pressures not only on sport and community centres, pattern of community provision and the role that but everywhere, not just to use it or lose it, but to run libraries play in that. It is a bit like the post offices it or lose it. The danger with a community-run library debate. If the library is the only building left in the is that it could be a library that is being run down, locality, then it gets very challenging and you have rather than being run actively and professionally. ask yourself whether there is a different way of What do you think are the risks associated with running that service, but before you decide, you must jumping wholesale into backing community-run know how much that facility is costing in the first libraries? place—it might be a very small part of the council’s Sue Charteris: This is probably going to sound like a budget. That comes back to balancing the boring bureaucratic answer, but I think councils need comprehensive and the efficient, and how we want to to be really clear about what they mean when they spend our resources on the library service. talk about community-run libraries. We had a big debate on the Lambeth Libraries Commission about Q47 Paul Farrelly: “Emotive” is a very emotive what we meant, and there has been a high-profile word. debate about it in Suffolk. The outcome of the Suffolk Can I now talk about librarians and move us to debate, as far as I understand—I do not know all the Newcastle town centre library? While my son was details—is an interesting industrial and provident busy hovering up acres of shelves of books to borrow society model whereby the council is clear about how in 2010, I decided that a requisite holiday read for it will provide its statutory obligations, how it will Mrs Farrelly was a book called “Sparkles”, and that I service and maintain the network of community-run should find it. It was by a certain author of a certain libraries, how it will resource it, and so on. That is a genre, and I am sure that that gesture will be cited in very interesting model, and I would like to see more the divorce papers in the future. Without a innovation in that area, not necessarily for all libraries, professional librarian, I would not have known which but for some. genre it was. Was it for children? Was it for adults? Councils need to decide, when they are considering Was it a classic, like a Dickens—we are celebrating cuts, what they mean. Do they mean that they have the anniversary of his birth today—or was it a new done a needs analysis and do not think that that library wave book? I would not have known without a is needed at all? Or do they mean that, actually, they professional librarian to show me. Also, if it were a do still think they need that network of provision? It community library, without a professional librarian to might be in those places that need it most and use it order the book and to stock it, I fear that “Sparkles” least that a different community partnering model would not have been there in the first place. What might be more effective, but it will not work if it is a do you think about what is happening to professional case of “Here are the keys of the building, get on with librarians at the moment? it, it is up to you whether you use it or not.” The Sue Charteris: There has to be a prominent role for council needs to be part of it. professional librarians in deciding what good service Is there a different way of providing the service? Yes, looks like, curating the service properly, deciding it would be cheaper—this is emotive—but the what needs to go where, and how to stimulate. I am majority of local authority spending on public libraries as frustrated as you are when I go into some local is staffing, so if a council decides that it is going to libraries and try to find my way around. I do not keep all of its network going, it has to come up with necessarily want to have to go to the catalogue; I want a different model of staffing and supporting those to be stimulated. I may not even find the book I want libraries, with the professionals having a key role, but in alphabetical order, but I am playing to prejudices not necessarily being the people who open and close here. There is a role for professional librarians, and the building every day. they must be used extremely well. These are not my words, but a colleague referred to Q49 Damian Collins: In Sandgate in Kent, which is the role of the professional librarian as being like the in my constituency, the library went from being solely “genius” in the Apple store. If you are of a certain county council provision to being jointly run by the cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Ev 14 Culture, Media and Sport Committee: Evidence
7 February 2012 Sue Charteris community and the parish council. The parish council development of that service is paying off, but it is moved its offices into the library and redesigned some slow and painstaking work. We come back to the issue of the library services around that. It strikes me that a of where local authorities will find the resources to do council might decide to involve the community not that work from, unless they collaborate more on some just to save money, but because the community can of those bigger investment decisions about how they run the library better than the county council. run the service. Sue Charteris: It is an interesting question about what motivates a local community to provide a local service Q53 Damian Collins: Hillingdon also gave us and what other networks of volunteering it can tap evidence. It has gone through a programme of cuts, into. There have been some really good experiences. but it also brought coffee shops into its libraries and I was privileged to be a member of the Big Lottery visitor numbers have gone up. It seems to have been Fund when we developed the community libraries a success in making the libraries popular. Is that a type programme. There are some really good examples, of innovation—a public-private partnership, if you one of which is in a housing estate in Weston-super- like—that we should see more of? Mare and is run by a social enterprise as a healthy Sue Charteris: Hillingdon has been a fantastic success living centre. It shares a building with a church, a and you can tell that there was a strong political vision social services area office and a community café. behind the design and delivery of that service. I think Usage and lending has gone up over 400%—it was that that is sound. Yes, of course, private partnerships pretty low to start with. The engagement in the service are part of the solution. Anything that makes the is dramatic because people buy into it in a different service more attractive is good, but it is not a major way, but it is hard work and finding local people to part of the income that that service will get. manage those services will require a sustained and determined effort. It cannot just be, “Well, it’s up to Q54 Damian Collins: It might not just be about you. Get on with it.” money; it might be about making them more popular destinations. Q50 Damian Collins: Looking at the evidence that Sue Charteris: Absolutely. the Department has given to this inquiry, the number of volunteers assisting in libraries has doubled in the Q55 Damian Collins: Finally, there are initiatives past four years. That suggests that there is a positive like Hillingdon and the tri-borough, which you talked trend towards more volunteer involvement, which is about earlier. Some people say, “Well, if they are that something that communities might embrace. popular, why are more people not doing those things?” Sue Charteris: I think so, but again, it depends. but do you think that people will be looking hard at Volunteers are particularly well placed to do certain some of these more innovative solutions to reducing things, such as young people training older people on costs and still delivering excellent services? Will more how to use Skype or send a digital photo or set up councils be looking to replicate what seems to be their Kindle or whatever it happens to be. That is working elsewhere? absolutely right. There are also some volunteers who Sue Charteris: I really do hope so. I think that there is will quite like doing the filing, but I completely agree a great deal more encouragement and incentivisation with what previous speakers have said: that should needed from a combination of the Secretary of State, not be assumed to be their role. A sound policy on the Arts Council and the Local Government Group. volunteering is absolutely key for every council, it The work that the Local Government Group has been seems to me. doing recently, following the first phase of the Libraries Improvement Programme, in getting local Q51 Damian Collins: I would imagine that libraries council leaders and portfolio holders together to share that have a stronger engagement with their local their experience is invaluable. We need a great deal community are probably more popular libraries. more of that, because I am worried about the timeline. Sue Charteris: That is beginning to be the case, but People are choosing to make cuts in their services, it is early days, because it has not been an expected looking at how the service is currently configured, way of working up to now. because they think that they do not have time to come up with a more strategic way of providing those Q52 Damian Collins: It is interesting that, in the services in the current climate. Somehow we need to evidence from Isle of Wight, they said that one of the accelerate these developments so that they are not benefits out of the high-profile debates they had exceptions, but the norm. locally was the emergence of lots of friends groups around the libraries that were under threat. Those Q56 Chair: You are the only person in recent times groups have now been beneficial to supporting the who has undertaken one of these public inquiries at libraries under the current arrangements. the request of the Secretary of State. Do you think Sue Charteris: The two key determinants of the that it is an effective mechanism? Is it the right way success of the Big Lottery Fund’s community libraries of dealing with these issues? programme were: first, money, because it was a Sue Charteris: It is an absolute last resort. I am on capital injection of funds; and secondly, a requirement record as saying I was obliged to follow something to involve the community in the design, development called the Public Libraries (Inquiries Procedure) Rules and delivery of that service. There were two levers 1992, which had never been used before and which for change in there. We are beginning to see that that are virtually unworkable and need changing. What community involvement in the design, delivery and was very unfortunate about it is that it was like cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG01 Source: /MILES/PKU/INPUT/018663/018663_o001_th_Corrected transcript 20120207.xml
Culture, Media and Sport Committee: Evidence Ev 15
7 February 2012 Sue Charteris running a planning inquiry in all that formality. If you should have this responsibility. Why should it not be really want to hear the views of local people, I do not vested in the Department for Communities and Local think that is the best way of doing it. It sets up a false Government? antagonism between the Secretary of State and the Sue Charteris: As someone said this morning, we are local authority, which is not helpful. It is not a where we are. If there is a debate about rewriting the problem-solving way of working, which is my legislation, all that is up for grabs, but it is the detail preferred way of working; it is a case of asking, “Is in the scheme of things. What we really need is a this legal or isn’t this legal?” I do not think that is contemporary interpretation of the duty to provide helpful. public libraries in the 21st century. I used to think that people who wished for a change in the Act were naive Q57 Chair: How should we change it? and wishing bad things on themselves, but it is Sue Charteris: Those rules need changing. If there is proving very cumbersome and very out of date, and it an appetite to review the public libraries legislation, is important to have a fresh look about that. and I think there should be, the role of the Secretary of State needs to be put much more proactively. It Q61 Paul Farrelly: As we all know, councils have needs to be a much more contemporary role, where it certain statutory duties and some duties that are not is clear what things the Secretary of State makes statutory. Increasingly, when budgets are under happen nationally, such as the digital stuff; what other pressure, they retreat towards that statutory core. If things need to be commissioned nationally; and where some of the councils that have given evidence had the role of the local authority lies. Only then can you their way effectively to get rid of the Secretary of have a discussion about what you mean by the State’s superintending duties, what other protections superintending role of the Secretary of State. It is would need to be provided—perhaps legislated—to more analogous to the health service and the make sure that councils had a statutory duty to protect education service. Particularly in the current climate, libraries and provide a library service? where there is a huge push for localism, we have got Sue Charteris: It gets quite difficult, doesn’t it? I am to come up with something that is much more peer- not sure I have the answer. It would be interesting to led. discuss with the Local Government Group when you see it whether it could design something that was a Q58 Chair: Where does the Arts Council fit into all recognised means of peer—intervention is not quite of this? the right word. What we really need to ask is, “Have Sue Charteris: I think because the Arts Council has you looked at everything? Have you really thought taken over the responsibilities that were with the this through? Isn’t there something you are missing? Museums, Libraries And Archives Council, it is the Why don’t you partner with so and so?” as an Secretary of State’s provider of advice and support on alternative to the rather sledgehammer approach public libraries. I do not think it can do it on its own; enshrined in the procedure rules I mentioned before. it has to work much more closely with the Local Chair: I think that is all we have. Thank you very Government Group, as it has started to do. much. Sue Charteris: Thank you. Q59 Chair: You still see a role for it, though. Sue Charteris: Absolutely.
Q60 Paul Farrelly: One of the fundamental questions is why this particular Secretary of State cobber Pack: U PL: COE1 [SE] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 16 Culture, Media and Sport Committee: Evidence
Tuesday 21 February 2012
Members present: Mr John Whittingdale (Chair)
Dr Thérèse Coffey Steve Rotheram Damian Collins Mr Adrian Sanders Paul Farrelly Mr Gerry Sutcliffe Mrs Mensch Mr Tom Watson ______
Examination of Witnesses
Witnesses: Alan Davey, Chief Executive, Arts Council England, and Annie Mauger, Chief Executive, Chartered Institute of Library and Information Professionals (CILIP), gave evidence.
Q62 Chair: Good morning. This is the second combined the library service with the registration of session of the Committee’s inquiry into library births and deaths. That is proving to have some further closures. I welcome the Chief Executive of the Arts advantages for them in terms of increasing the usage Council, Alan Davey, and Annie Mauger, the Chief of the building and also the convenience of the Executive of the Chartered Institute of Library and service. It shows that in various creative ways—and Information Professionals, and I will start with a there are many creative ways one could look at—if general question. The usage of libraries and the you improve the library service and improve footfall number of book loans has been in decline for some they do become used more. time. Therefore, to what extent is it perhaps It is a complex issue and it is a chicken-and-egg unsurprising that local authorities should look at situation. If you cut library services and, say, cut the libraries as being an area where savings could be opening hours, so you never quite know whether the made? library is open or not, I think that is probably going Annie Mauger: To give you a little bit of the to have an effect on library usage. But where libraries statistical background to the usage figures at the do talk to service users and adapt their services in new moment, last year there were 314 million visits to ways, perhaps co-locating library services, perhaps libraries, which is a 2.3% decline, and there were 300 offering other services within library buildings, you million loans, which is a 2.9% decline. That is holding can improve the footfall and improve usage. up against the context of a 6.3% cut in library budgets and also a 14% reduction in stock acquisitions. Q63 Chair: How many people do you have in the Around that, there is obviously still usage of a certain Arts Council who are tasked with libraries? level despite the fact that the cuts are greater than the Alan Davey: Twelve2—one person in each region level of decline. On top of that, there is a slight and two at head office. increase in children’s loans by libraries; 81.4 million children’s books have been loaned from libraries. So Q64 Chair: How does that compare with the MLA? I think there is a little bit of a methodology issue about Alan Davey: It is difficult to make a direct comparison the level of decline in libraries. There is changed because the MLA staff tended to be generic, so they usage. We can’t deny that there is a decline but it is were never labelled “staff” as such. We have a similar not of a scale at the moment that would suggest that number applying to museums, with new this is a service that is utterly in decline, and there is responsibilities, so we are doing our best to carve out a correlation with reduction in budget. I believe those the right degree of resource. Having one person in two things fit together, and that you can’t separate each region is really important. Those relationship them. managers can make relationships with library Where there is evidence in local authorities that there authorities, can know what is going on and can help is support and development—I would not say spread good practice. One of the things that has been investment, but reuse of funds in more creative ways said to us is having people on the ground is very that are supporting libraries to develop and grow— important. there is evidence of increased usage. So there is a I have to say we do make the staff work hard, direct correlation between usage and investment, or particularly our head office colleagues, because it is a usage and clever use of resources. very broad span. It is a locally delivered service and I Alan Davey: I would agree with Annie there. 40% of think that is entirely right, our job being to advocate the adult population are using libraries, and borrowing for libraries, to spread best practice and encourage books from libraries, and 80%1 of the population development and having some small investment. Our think libraries are important or essential to their grant-in-aid that we have to spend on library projects communities. I was at a library at Sevenoaks on is £230,000, which I think is £76 a library. So we have Friday where they could demonstrate that, having to use that very carefully for looking at ways in which looked at the service they were offering and libraries can develop. reorienting that service and making it more attractive I am interested in getting increasing access to lottery and getting the footfall in the library increased, usage funds for libraries. So, for example, we have an open was up. In that particular incidence, they have Grants for the Arts programme. What we are finding 1 Witness correction: 90% 2 Witness correction: Eleven cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
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21 February 2012 Alan Davey and Annie Mauger is that all library services are not applying to that changes, but the librarians are the people who build because they never knew that they could. This is the services around people and around communities. particularly for activities that might increase libraries’ In a recent survey we have done, we estimate that in attractiveness and draw in other users. I want to look this financial year we are losing possibly as many as at how we can improve libraries’ application rates and 700 librarians out of 3,500 who work in public success rates for those funds, and also the other funds libraries. That is a serious number, and the librarians that we have. We have just announced a touring fund, are the planners, the managers, the technical experts which could get touring exhibitions or touring and their main skills are really in the people work as activities of some kind into library buildings. Libraries well, in connecting people up in the local community. could apply to that. There is also Creative People and They have to understand an enormous range of things Places, which is looking at areas of low engagement that go on: the curriculum, the needs of the elderly, and that is another fund open to libraries. So I think young people and children’s reading, families, the we have to do some work in educating libraries on other services that are being delivered locally that they what is possible for them to apply to us for and help have to plug into and work with, and they are out them to get some more money out of us from— discussing and working with the other professionals in the community who are delivering those services, Q65 Chair: The support that you give libraries you so that libraries can be complementary and tailor would argue is just as good as was available when the services to fit in that local community. MLA had responsibility? Alongside that, they have to understand literacy and Alan Davey: I think it is different. The MLA had a understand how they can best support an impact on semi-superintendent role. We do not have that for the literacy, which is the biggest issue for this country in Act. When we made our settlement with the terms of skills and development of ability to work. Department we were very clear that the Act was for That is not only reading literacy but also digital now, the Secretary of State. We had a development role, i.e. and understanding the information age and that encouraging and spreading best practice, but we were everything you get on Google is not exactly going to not an inspectorate. I think it was important that we be true. Somebody said that a librarian is what Google set out very, very clearly that we were there to work wants to be when it grows up, and that understanding with library authorities to bring about improvement, of how people react and work with information is but our role is not to superintend the Act on behalf of absolutely vital. the Secretary of State. We give him facts and he asks Every local authority has to change and develop their us for data, and we supply him with that and services in the way they think fit, but the point of intelligence but the Act is for the Secretary of State. libraries being a professionally delivered service is that they need to be. Professional librarians need to be Q66 Chair: We will come on to the role of the there to advise the local authority and support them in Secretary of State. But you are clear that you do not tailoring and shaping a real library service that can have a superintendent role and, therefore, are you deliver more than purely a book lending service but a suggesting that nobody does now with the demise of range of things that meet the needs of the community. the MLA? Alan Davey: The MLA’s superintendent role was not Q68 Dr Coffey: Do you think policymakers and local terribly well-defined, I don’t think. It is for the authorities do not understand the role of the librarian? Department to better work out how they fulfil their Annie Mauger: No. I really don’t think many of responsibilities under the Act. I have to say that the them do. whole relationship with the Arts Council, with the Department, is very early and I think everyone is Q69 Dr Coffey: What is CILIP doing about that? working out exactly what the split means. The Isn’t that part of your role? Department are clearly doing some thinking on how Annie Mauger: We are working very hard on that Ministers can best fulfil their duties under the Act and indeed. It is absolutely part of our role. We will be I am sure Annie will be talking about that. talking about that in many different ways and part of Chair: We will come on to that shortly. the reason we are here is because we already have. It is very important that people and local authorities Q67 Dr Coffey: First of all, I probably should understand that just as any other service has to be declare my sister Clare Coffey has a qualification in professional, so do libraries. It is complex. There are library management and I think she is still a member legal issues. There is making safe environments for of CILIP. people to be in and complying with all sorts of law, What is your prediction of the long-term impact of a copyright, freedom of information, data protection, reduction in professional librarians? I am thinking a child protection, all those things. You walk into a few years ago Hampshire significantly reduced the building that is open to the whole of the public and number of professional librarians but it put a lot of you have to know that it is a safe place to be. You investment into the Discovery Centres, as they called also have to know that the collections of material are it, and I understand it had a huge increase in footfall not only right for the community but they are true. in people accessing it, but I understand why people That all the factual books are true and that we are not feel professional librarians are important. Do you giving out-of-date information to people, that we are want to start, Mrs Mauger? assisting them with building the knowledge in that Annie Mauger: Yes certainly. Obviously, I am not community. One campaigner said to me, “I have a going to comment on any specific local authority knowledge manager in the heart of my community cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 18 Culture, Media and Sport Committee: Evidence
21 February 2012 Alan Davey and Annie Mauger and I don’t want to lose that”, and that is how people at the moment—from our evidence gathering that we feel about their librarians. have been doing—I know of one central library in a local authority that is stopping its information service Q70 Dr Coffey: So it is not about libraries anymore, completely because it can’t staff it anymore with it is about knowledge centres? professional librarians. I know of another local Annie Mauger: Libraries have always been authority that is stopping doing Summer Reading knowledge centres because the information you get Challenge because it has no one to promote and from a library turns you into a knowledgeable person, support it. I know those things are happening as well, and what you do with that knowledge is what this is and I think the point about it, really, is to assess in a society is now based on. We hear that more and more, local situation what is the best outcome for that it is a skills-based, knowledge-based society and it population. would be very strange if that society did not value its I can’t believe that removing professional support knowledge professionals. from the service will improve it. I don’t believe that Alan Davey: I would agree with CILIP on the and I am absolutely sure that is not what happened in importance of trained staff. In terms of good practice, any local authority situation. How those services were we would say that having the right level of modelled I can’t tell you, because I haven’t read that professional expertise in the right place in a library report and I don’t know what was done. service—if there is a community facility that it has the right access to professional or trained advice— Q72 Mrs Mensch: In a situation as posited, where is important. As Annie said, libraries are the original money was removed from staffing and placed into knowledge centres, the original world wide web, and other methods of getting people through the door and a skilled librarian can help customers navigate their it worked, isn’t that something that providers of way around knowledge possibilities and help them libraries should be looking at? find things that they never knew existed. So in terms Annie Mauger: I think that every local authority has of good practice, we would clearly say that the right a duty to look at what is best for their local area. But kind of professional expertise, in the right place, at I don’t believe that a service that isn’t professionally the right level, is important. delivered is best for anybody’s local area. Mrs Mensch: Do you know of this situation, Mr Q71 Mrs Mensch: Can I just ask a supplemental? Davey? Do you have any comments on it? Mrs Mauger, at the beginning you said you did not Alan Davey: We are in a time of austerity in local want to comment on individual local authority government grants and it is inevitable that there are practice but I would just be interested in the specific going to be job cuts. That is a fact of the time we are response to what Dr Coffey raised in her first question, living in. But when you reconfigure services you which is if Hampshire has tried a scheme where they should always think about where the professional have cut down on the number of professional expertise lies, that there is something there that might librarians and invested money in some other— be done differently from how it has been done in the Dr Coffey: Extra resources, Discovery Centres. past. It might involve fewer staff but you need to Mrs Mensch: Discovery Centres—although I am not make sure that the right expertise is available in the sure exactly what a Discovery Centre is. right way and there are many ways of doing this. For Dr Coffey: It is a fancy name for it. example, with the Society of Chief Librarians, we are Mrs Mensch: Fine. Perfect. They invested money in funding a project called Enquire, which has a 24-hour Discovery Centres and they cut down on librarians professional librarian—sometimes from the United but at the same time they massively increased footfall States—there if you need it. That is one very small traffic. That is a specific issue that I think advocates but imaginative way of making sure that professional for librarians ought to address. While nobody would expertise is available. But there are lots of other ways. wish to decry the role of the librarian and what they We need to look at the whole library service and how bring to it, perhaps if there is a situation where too it is configured to make sure the right thing is there. much of the budget is being spent on staff and then is spent in another way that can increase footfall traffic Q73 Steve Rotheram: Before I ask my first question I would like to hear your response. Did you look at would you like to explain to Members of the that situation? Did you say there had been fewer Committee how you pronounce your surname? librarians and more footfall? One does not want to Annie Mauger: I thought someone would remember reflexively fight one’s own corner, but looking at the actually. It is pronounced “major”. library service as a whole, if Hampshire has tried something that has increased footfall, while reducing Q74 Steve Rotheram: As you are probably aware, librarians, what is the response of your organisation there are certainly a few local authorities that have to that? already started to establish community-run libraries. Annie Mauger: The first thing to say is, it is a specific What role, if any, do you think that community-run situation and I would have to see exactly what was projects should play in public library service done, and that is some time ago. Without seeing all provision? the paperwork and also understanding what those Annie Mauger: I think we have been very clear in posts that are no longer there were and what they did, our evidence that we don’t believe that what you will I can’t comment on it specifically. It would not be fair. get if you offer a library to the community to take In the current round of things that are happening over, without professional support and being part of across libraries and the reductions that are happening the local authority service, will be a library service in cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
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21 February 2012 Alan Davey and Annie Mauger the way we understand it. I can give you an anecdotal regarded as part of the statutory provision under the example that I heard just this week of a librarian who Public Libraries Act? has been approached to help a community library that Annie Mauger: Libraries have always used volunteers is being run and set up. This person was asked for very successfully. If you look at specific services that guidance because what is happening is the local libraries have delivered, like housebound services to authority that have been responsible for that library people who can’t come to the library themselves, most are coming in and taking away everything that is used of the library services—and certainly all of the ones I to support that service. They are leaving a terminal have been working in, in my past career—have used for book issue, that is a self-service terminal, but they volunteers extensively to deliver services into people’s are removing all of the computers and all of the access homes through the WRVS or local volunteers. Other to the broader library service. projects that go on in libraries very often have What happens there is—because my colleague was volunteers involved, so that is not new. asking them questions and saying, “Well, how do you What is new is volunteers doing the job of library join the library? There is no computer”—you have to practitioners, and the jobs that people do in libraries go to one of the libraries that is run by the council to take a long time to learn, certainly librarians obviously do that. You can’t do it at that library. How do you go and study at university and do post-graduate look up a book and find out if that book is in the qualifications and they are professional posts. But all library system? How do you request a book? There is of the people who work in libraries understand those no connectivity to the network, to the distributed principles, which I outlined before, about the right network of library services. That may be a difficult information, that when you ask someone they know case scenario, but I believe that that is one we are the answer because they know where to find it and going to see replicated because the resource has been that it is true; that when you ask someone for advice removed. I believe that many communities are being about a book and what is the best book for your child put in a difficult situation because it is either, “You to read, they know because they have been trained and run this library or it is going to close”. But it does not they know the answers and they can recommend mean they are being given the tools, the skills and the things; that when you ask them to come and talk to support required to make that a successful library. children in your school about what is going on in the There are anecdotes about telephone boxes with piles library and how they can connect with those things, of books in. That is not a library. There are places that you know that that person understands what they are you can have libraries where people can borrow saying. There are skilled and articulate and very books, but that does not make it a library with all the enthusiastic volunteers, but they cannot replace other things that go with a professionally delivered trained library staff who will support people in all of service. their information needs. If you are going to disconnect libraries and devolve Alan Davey: I would just add that there are many them in that way, then I think you are not looking at good examples where volunteers are part of the library a library service. Immediately, those volunteers who service and they free up the trained staff to do those are taking over the running of that specific library are added value things to a greater extent. I think that is saying, “How do we do this because we are not a very good use of volunteers. connected or supported?” and that is a real live current Steve Rotheram: The point I was trying to get to example. Those things would need to be worked out is should community-run libraries and volunteers be in some great detail, but I don’t believe without the included as part of the comprehensive and efficient support of the local authority that any library can be aspect of the Act? successfully run and deliver a range of services that Annie Mauger: It is at this point that you would say you would expect from a library from a building that that, unless they have that professional support, it has been abandoned by its local authority. would be very difficult to say that they could be Alan Davey: It is early days in seeing how community because they won’t be able to deliver a comprehensive libraries pan out and that covers a wide range of library service, in terms of all of the information needs possible models, I have to say. There are some models and support to communities that libraries give. It that do have a connection with the library service, and would be very difficult without knowing—I am going a community aspect of a wider library service that has back to my previous point—that they were part of the access to the right tools, skills and support that Annie network of delivery of that local authority, that they talked about. That model seems to work well. weren’t disconnected from it but were supported by I would worry about a community-based model that it, and I think that would be the question. had no connection with the possibility of trained staff Alan Davey: You have to look at the library service and was completely set adrift. They could come to us as a whole and whether these community libraries are and apply for money for various projects, I suppose, part of the wider service. That is the focus that you and we may give them advice. But that does not sound should have: the service. to me like an ideal situation that describes a proper community connection to a library service. Q76 Mr Sutcliffe: We move then to this vexed question of what is the determination of a Q75 Steve Rotheram: You have both touched on comprehensive and efficient library service? The volunteers and the use of volunteers in libraries. To Local Government Association tell us that they don’t what extent is there a risk that volunteers in libraries see the need for a national definition. I understand the will undermine the role of the professional librarian, Arts Council wrote a lengthy description of what their and do you both believe that the volunteers should be vision would be but ultimately said that is a matter for cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 20 Culture, Media and Sport Committee: Evidence
21 February 2012 Alan Davey and Annie Mauger the Secretary of State. How do we get some But the reality is that we don’t have enough consistency, in terms of how local authorities provide intelligence about the broader impacts of libraries on these services, if we are not sure that there needs to the community. That is why I very much welcome be a definition, if we are not sure what the definition the research that Alan is now commissioning on that is, and what would you like to see happen? subject, and I think it is a very pertinent time to be Annie Mauger: I think there needs to be greater doing this. definition personally. There are parallels with other It is difficult until we also know about those broader services. The library service is not unique in being a impacts. So we have asked if the Secretary of State— national service that is delivered locally. If you look and we are recommending that here—could say, at public health, for example, there are certain things “Before we go ahead with decisions that we might not that every person in every local community would be able to reverse in the future, can we just be clear expect to find around health—a maternity ward and about what we might be losing” and have a strategy an A&E. Maybe those aren’t so certain these days, but for where libraries fit in the picture of local solutions you would hope that there are certain things that to local issues, and a national service that is delivered people would understand make up their health service. locally means the two can go together. Libraries are not dissimilar in that model but they are Alan Davey: Can I just follow up on that? What Annie less well defined. I think there is the opportunity for is referring to is we have announced today a flexibility about local provision and delivery, while consultation called Envisioning the Library of the understanding what the Open Public Services White Future, which we want to be quick, detailed, based on Paper was saying—and we responded to—about core research and a consultation into what the public value entitlements and floor standards, about what a service about libraries, looking at societal trends and all the should look like and what should be there. This is data that we can get our hands on as to the role of no different to many of those other services that the libraries in society going forwards. Really getting to Government wants to say, “This is how it should look, the bottom of what the public value of libraries is, now do that in the way that best suits your local down to a contingent value analysis. So that, by the community within your local resources”. end of the process—and there will be three stages up until the autumn—we will come out with a very clear Q77 Mr Sutcliffe: So you think the answer is there view as to why people value library services and some ought to be more Government guidance, and detailed of the tools to help those who are delivering library guidance? services argue their case within local government. It Annie Mauger: I think, and we recommend, that the is a pity we don’t have this research now but we don’t Secretary of State sets out a framework for what a and we need to go and get it. public library service should be delivering and how the needs of the local community should be assessed. Q79 Mrs Mensch: In our last session we had Sue Alan Davey: We have adapted the Future Libraries Charteris talk about the legal challenges that have Programme recommendations about how you do a been given to local authorities when they have closed needs analysis and the things you should be taking councils, and we have seen a lot of campaigners into account when you look at your service, to see if taking councils to court. We also heard in our last what you propose is still a comprehensive service. I session from librarians saying that, in some cases, do think it is important that library services are locally they don’t believe that the consultation process that delivered and continue to be locally delivered. A local authorities have instituted has been a genuine national library service would not provide the right consultation process, and they have challenged it on things for all parts of the country. that basis. Do you think at the moment there is a risk I think we do have to have a debate about what the that library policy is dictated in the courts because of elements of a comprehensive library service are. I a lack of clear standards, that local authorities will go would say it would need to be a kind of framework ahead, they will close it, have a review, campaigners of things to take into account rather than a detailed will inevitably campaign against it, and it will wind attempt to describe, because anything you try to do to up in the courts. To what extent at the moment do you describe would not be right for all cases and local think that library policy, in a vacuum of standards, is conditions, the mix of rural and urban and all that is being decided by judicial review? very important. This is part of working out how the Annie Mauger: I absolutely think that is a risk and I Secretary of State fulfils his responsibility in future. don’t think it is one that anyone wants. I really don’t believe that is where we want library policy to be Q78 Mr Sutcliffe: How has your recent document decided, through a court process. When you look at gone down? What reaction have you had to the the outcomes of those, the judges constantly refer document that the Arts Council produced? back to the Secretary of State, and I think that is the Alan Davey: It was the MLA that produced it, just reality. It would not be good for anyone in the country before we took it over. Annie, you might be better if library policy was being made and public money able to say about it because you know what people spent going through this process time and again, when think. in fact the courts and the judges are referring back to Annie Mauger: The MLA did some research the year the Secretary of State. before they stopped and passed the function across, Alan Davey: This is one of the things that we want to and it was very clear from that research that what get out of this exercise I have announced today, to people want from their libraries is more access and get some granularity as to why libraries matter and, more books; a lot of those things that are still there. therefore, what our policy on libraries should be as a cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
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21 February 2012 Alan Davey and Annie Mauger nation going forward. To be honest, the judicial cases job much more, providing the material for people to all focus on process and no one is talking about policy, weave those ambitions. about innovation, about where libraries could be Mrs Mensch: Is that the same for you, Mrs Mauger? going, about why libraries do matter to people, how Do people come to you and ask for advice? they could matter to people more. I think there are Annie Mauger: We get different kinds of approaches. these really granular arguments that we have to Many local authorities out of courtesy tell us what develop and use. their proposals are and share them with us, and it is very good of them to do that. But we represent the Q80 Mrs Mensch: That is a very important point, individuals who work in local authorities, so we have although it is not in my brief. We talked briefly at the a different role as an independent charity. More than last evidence session about super-libraries and how a year ago we produced a leaflet called What makes a they may attract people, and community libraries or good public library service? which we distributed to travelling libraries supplementing those and how to all local authorities and elected members. We have our get more footfall. Could you expand a little on that? views about what that is, but we want to collaborate Do you think there is a risk that library policy is and work with Alan and colleagues and the Secretary completely reactive, that campaigners react to cuts, of State about what that should be, and obviously we challenge on process and, as a result, local authorities are the champions of why that needs to be are fighting fires without a comprehensive vision professionally delivered. going forward of what libraries could be? It is always The most contacts we have are with individual people negative and it is always goalkeeping and there is who are losing their jobs, so obviously that is a very never any positive putting the ball in the back of the big area that we try to provide support for and they net. are our members. That is the role we play. Annie Mauger: Yes. I think you have just said it. I do agree with that, and I think that is the danger, yes. Q84 Damian Collins: Annie Mauger, the best way Alan Davey: The danger also is that there is no to guarantee the jobs for your members is to have breathing space for any of us to be able to articulate libraries that are popular. What lessons have you what the possibilities are. That is why we are doing drawn from some of the initiatives that the different this as quickly as we can because we know we need local authorities around the country have pursued to to. improve the popularity and performance of their libraries? Q81 Mrs Mensch: It goes back to the whole Annie Mauger: There is absolutely no doubt that comprehensive and efficient issue, and the need to there is an enormous amount of positive work going establish that on a nationwide basis. Respectively, are on. The recent survey that we have done of local your organisations involved in giving advice to local authorities, which for England had a 55% response authorities about navigating their way through the rate, so we have some good-quality data—and I am legislation and what they minimally have to do in going to send the full report to John as soon as order to meet the requirements of the legislation? Do possible after this inquiry—showed that there are local authorities come to your respective bodies and areas of investment and innovation. I am sure the ask for that kind of help, or are you providing it after Local Government Association was producing the fact in this febrile atmosphere where library information this week about some of those great decisions are so regularly challenged in the courts? initiatives as well, and where those are happening then Alan Davey: The simple answer is no. They don’t library usage is increasing. come to us for advice on the legality and nor would I talked earlier about the correlation between the we be qualified to give that advice, but what we do reduction in investment and the reduction in take up have conversations with people about is, what are the of services, but I don’t believe that is the end of the ideas for innovation, how can we do things better, how picture at all. There are routes that we can follow, and might we combine things with other services. They we said in our response to the inquiry about looking will come to us and say, “We have a museum and at innovative ways of saving money with shared theatre, how can we make the services work better services that can be reinvested in frontline activity and together and get more value out of them? Do you have things that support people and their usage of any ideas and thoughts?” It is that role for us rather community libraries. There is an enormous amount of than, as I said, that superintendent role. good practice, collaboration, new builds, all sorts of things that are going on that will develop for people a Q82 Mrs Mensch: These are local authorities better library service and there will be greater take-up. coming to you and asking for such advice? Our issue is about some proportionality issues, Alan Davey: Yes, and, as our relationship managers because where we see that development and growth in each region settle in, those conversations are the spectrum of the reduction in services is from 1% happening more and more. to 35%, and I just cannot see how, if you reduce library service investment by 35%, you can improve Q83 Mrs Mensch: Do you find yourself in the services and the range within that. However I think default position of providing the vision that we just there are enough examples—and Alan has talked talked about? Are you trying to give local authorities about the library development work that they are a vision of how they could do it better? doing and the £230,000 that is available to look at Alan Davey: We are encouraging people to have innovation this year—and I have to comment at this vision and ambition and, hopefully, as we get into our point that I think obviously we should all be aware cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 22 Culture, Media and Sport Committee: Evidence
21 February 2012 Alan Davey and Annie Mauger that museums have over £40 million, and those are elsewhere. We have evidence that shows that when locally run museums as well. So there is a bit of a you stop having that distributed network you can’t difference in the dowry from MLA in terms of deliver some of the national things that are delivered. investment in development of services. If you think about the Summer Reading Challenge— Library services are an enormous part of local the example I gave earlier—where a local authority delivery and with the right approach I do think there can no longer support that, and a lot of the core offers. are ways that we can better deliver, and I think some The recent one, the Society of Chief Librarians talking of those are about sharing and collaboration, saving about their digital promise about allowing people money on the national offer and the national access to the internet and online, now those are brokerage of services. through a distributed network, so you can understand that people want those services locally because that is Q85 Damian Collins: Do you think librarians should where they go to access those services. One of the be being proactively talking to local authorities about issues particularly that is not quite understood is that the way library services should be shaped and by measuring book issues, for example, you don’t get changed? parity of picture across the country, and some of the Annie Mauger: That librarians should? libraries that have been closed in the most Damian Collins: Yes. disadvantaged areas may not, in quantitative terms, Annie Mauger: I am hoping that they are the expert have the biggest book issues, but in fact may be advisors that are being worked with in local having a greater impact by the way they work as part authorities; they all have a senior member of staff who of the community and the way they are working with is working in each local authority to advise and people. support local councillors to make those decisions. Q88 Damian Collins: That is true, but then I suppose Q86 Damian Collins: Why collectively have we 20 or 30 years ago we did not have Sure Start centres failed as a country in this, because there are examples in some of the most deprived places in the country— of library services being transformed? We have seen Annie Mauger: Indeed. that in written evidence from different local Damian Collins:—and therefore there are probably authorities. But then the trend in terms of usage and services that don’t need to be uniquely delivered lending is down, and often when library services are within a library but can come from another format. under threat it is because the usage of that service had If I could just ask Alan Davey briefly, what is the dropped dramatically. If librarians are at the frontline methodology for the research you are conducting at assessing what local need is and designing the service the moment in terms of what people value from around the community, where have we failed in the libraries? past? Alan Davey: We are doing some desk research and Annie Mauger: Sometimes, and I think there is a lot some interviews now for the first phase, which is of focus on buildings at the moment as well, and about the next month. Then we are going to have library closures of buildings, and in actual fact our some seminars, workshops and interviews with the survey—and again I will refer to it because it is the professionals and also members of the public, and an most fresh data—shows that it is actually people and online consultation in the months following that. Then opening hours that are being reduced significantly at we will go into a more detailed qualitative research the moment in this current financial year, but we are with people, really investigating that public value in the eye of the storm with these things. Libraries are aspect of the question. So there will be three phases, not always in the best place and buildings do have to each with publications in, I think, March, May, and change, and usage of a building over time may decline the autumn, and that is what we are planning. because it is just not where the population is anymore. We have always recognised that, and when I was a Q89 Damian Collins: How many people do you chief librarian I closed a library. But there is a process think you will be interviewing as part of that first by which you do that and there is a way that you do qualitative phase? that, and it involves planning and it involves a great Alan Davey: In the first phase, I don’t have that deal of consultation with the local community, and it number off the top of my head, but quite a few. involves demonstrating what you are going to put in Damian Collins: A few? I mean, what, three? its place. Alan Davey: 200 or so. Yes.
Q87 Damian Collins: Do you think there has been Q90 Damian Collins: You put a lot of store on this too much focus on saving buildings in library and I am trying to work out how robust is this and campaigns, rather than thinking about what the best how reflective is this going to be of libraries across future of the local service is? the country. Annie Mauger: Buildings are what people care about Alan Davey: There will be the online access for very much and get passionate about. I am concerned people to express an opinion, but we will be carefully sometimes when I hear the discussion about one sort targeting and getting the right kind of sample of of über-library for a local authority. Libraries are a people, yes, and there will be 220 interviews in the distributed network and people very passionately care first phase. about their local service. We have evidence that when you close a library in a local community about 44% Q91 Damian Collins: Those interviews, will they be of the children don’t go and use another library among library professionals and local bodies? cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 23
21 February 2012 Alan Davey and Annie Mauger
Alan Davey: Professionals and others, and users. Annie Mauger: There are about 3,300 static libraries but 350 mobile libraries in the UK, so mobile libraries Q92 Damian Collins: In terms of the responses and are a significant, important and valued part of the consultation, will you weight those responses to services, particularly in rural communities. We are see where they are coming from? concerned that in many places those services are being Alan Davey: The whole exercise is carefully weighted removed and there are economic arguments that are and professionally done. being made about the cost per person of taking a mobile library to a rural community comparative to Q93 Damian Collins: We can probably all guess asking those people to drive to a static library. You what the response will be, in terms of what people can understand that those are difficult decisions, but it value about library services, and I am sure Annie is about access and it is about those people who just Mauger could tell you what that would be from her would not get a service unless it was brought to them. research. But I suppose the interesting thing is, in It is also about the things that people are able to do in terms of the strategy for libraries—which is their own small communities and what they can find presumably why you are doing the research, the there and what they can do with their children, or advice you can give—is what focus are you going to whatever it might be, or if they don’t have great put on successes in turnarounds as part of the mobility how far they can go and being able to do research? In our evidence we have received examples that locally. of successes where library services have been turned I have worked and spent time on mobile libraries, around, are you going to focus on those to draw which I have done a great deal over my career as I lessons that can be applied in other areas of the have looked after them, and the uniqueness and sense country or is this just going to be a general review of of ownership that people have about their mobile what people value? library service is completely different to any other Alan Davey: We will partly focus on successes and aspect of the service. People have tough decisions to innovations that have happened, but also try to get make and local politicians have tough decisions to from people the innovations that have not yet make, and I think that aspect that I discussed about a happened and get some sense of why they have not distributed service then being drawn into the centre yet happened and what is the blockage to more co- and making people have to go and access those location, for example, or more cross-authority work services in a car or on a bus, we know the evidence even, and better, more efficient purchasing; all these is less of that will happen. People will stop using things that might lead to a better service and certainly services if they can’t get to them easily. lead to money being used more efficiently. Alan Davey: We acknowledge that mobile libraries are part of the mix that makes a good service where Q94 Damian Collins: Do you think this piece of appropriate. Looking forward, I am sure this is work is taking place a year or two too late, because a something that will come out of our consultation, the lot of local authorities are already very advanced in importance and the use of mobile libraries and their their consultations on how they are going to change continuing importance in the mix. But also, as part of their library services? the Libraries Development Initiative—this is an urban Alan Davey: As I said earlier, it would have been example rather than a rural example—we are working useful to have had this research in place now, but we with Hackney, Camden and Islington on new ways of are where we are, and we took over six months ago, getting books to people who don’t easily have access so I want us to really motor and get going on this so to static libraries. This whole issue about how you get that we are in a good position to better tell the story. access to books nearer to people is going to be live If I can just briefly loop back to a question you asked and will continue to be so. Annie about librarians advocating their services and innovations, and all that. Just before Christmas I Q96 Dr Coffey: Community volunteer services talked to a librarian and said, “What do you want from already do that. It just so happens in Suffolk they are a body like the Arts Council?” and this senior librarian moving probably from fortnightly to monthly. I have said, “Don’t patronise us, we know about innovation. no problem with that, if I am honest, if you can have We are practising innovation every day all over the more books out at any one time. There are libraries country, tell the story of that innovation, spread the all around the country that perhaps don’t have CILIP good practice, tell the whole story of the library sector members in but they are school libraries. I think we in this country so that we can better make the are going on a visit to Pimlico and some other places. arguments within our authorities for what we need to Is there a reason why you think more authorities have do, going forwards”. I think that is a very powerful not taken the leap of integrating library services with expression of what the Arts Council’s role could and schools because, frankly, some of our schools have should be. fairly inadequate libraries and yet you are trying to push the whole children loan stuff, is that not the role Q95 Dr Coffey: Living in a mainly rural of the school? constituency, I am fortunate enough to have seven Annie Mauger: There are some very successful library buildings and a hugely valued part of the examples of mergers of school and community library service is the mobile library, which doesn’t libraries and I think that is going to happen more, and perhaps have the all-singing, all-dancing service. Can we welcome it where it works well. One of the issues you tell us what CILIP and the Arts Council has been that I had when I looked at that, when I ran library doing about the impact on rural areas? services myself, is the sense that libraries are very cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 24 Culture, Media and Sport Committee: Evidence
21 February 2012 Alan Davey and Annie Mauger welcoming to people who aren’t very good at Paul Farrelly: It takes a lot of organisation and sheer institutions, and a lot of people who feel less guts to organise applications for judicial reviews. comfortable about going into a school will come to a Annie Mauger: Indeed. library. So now I think it is very much about how you design that and what it looks like and obviously you Q98 Paul Farrelly: Would you recommend then that will see examples of that. any group of campaigners, objecting on good grounds We have to look at ways that buildings and services to wholesale closures, might bring the Secretary of are shared. I think that has to happen, and where there State into the fray in any judicial review application is a new build coming up—and certainly in the library for having failed to use his statutory powers? authority I was in charge of we did that, we built a Annie Mauger: There are two things; one is that the library with a school—it is absolutely vital that we Secretary of State is responsible for overview. I know look at those kind of things because it also gives that he regularly reviews and he said that he does, to this professional input. Most secondary schools— Committee I believe, with DCMS cases in different hopefully, many of them—have a librarian and many local authorities. He has all the tools that he needs in of them are CILIP members, so being able to work with the community, as well as with the school, is terms of information. As he said, Alan has a network something they are already doing. But I think bringing of people who work in each library region, in each those services closer together can only be a good local authority area, who can talk about what is going thing. on in the different regions of the country. There should Alan Davey: There is great potential in it, and not be enough information there. only schools. There is an example in Southend where The campaigners feel strong enough to take these a new library is being built that has the public library cases up, to fund them and to raise money to be able and the HE Institution Library in the same place, as to do that. That means that they feel that they are not well as an arts organisation. I think these co-locations, being heard. I know obviously there is that issue about an amount of mixes, are all worth looking at. what relationship the Secretary of State should have Annie Mauger: Can I just supplement that a little? with those campaigners, but I am not aware of any Just to say that there is strong evidence from research conversations with campaigners. There could be done by the National Literacy Trust that children who avoidance of a lot of unnecessary spending, of people are high achievers at school are three times more and public money, if the Secretary of State engaged likely to be library users, and that children who are in some of those conversations. low achievers are twice as likely not to be library users. We all know about our PISA statistics, and Q99 Paul Farrelly: But you did not answer the obviously attainment levels at GCSE clearly show that question. I am saying, to give the Secretary of State a children who read for pleasure and use libraries are kick up the legislation, do you think campaigners much higher attainers, and at the top of PISA are should be encouraged to give him an incentive to use South Korea, who are building 180 libraries, and I his powers by involving him directly in judicial believe we are 25th at the moment. reviews of his failure to use his powers? Annie Mauger: I think that is what the campaigners Q97 Paul Farrelly: I just wanted to come on briefly are trying to do. I think that is what they have been to the law and the Secretary of State. Annie, you said trying to do. The outcomes and the judges’ words that in your written submission that you were concerned I have been reading so far say, “Refer to the Secretary that the lack of intervention by the Secretary of State, of State”, and I think he needs to take action. and I will quote you, “may have made the position Paul Farrelly: Sharpen his Act, you think? worse”. What exactly did you mean by that? Annie Mauger: I think the Act could do with greater Annie Mauger: The best clarity I can give at the definition, yes. moment is we are obviously in a situation where there are judicial reviews happening, there are major campaigns going on. My concern is that, where the Q100 Paul Farrelly: Just regarding the Act, it was Secretary of State has not seen fit to intervene at the not designed to cater for a situation where a Secretary moment, local authorities continue to believe that they of State, who is very busy with everything from press can introduce a level of unacceptable reductions. I regulation to telecoms, to all the other activities, is think that is the issue. Obviously, we know years ago, actually in a situation where local government budget with the Wirral case, that the intervention in that cuts are effectively forcing wholesale closures up and particular area helped a great deal to set some down the country. Isn’t it the case that the law, if guidelines for needs assessment for what should be properly applied in this situation, would simply done when there is major restructure and change to overwhelm the Secretary of State and, therefore, you local authority library services now. I am concerned can understand why he is reluctant to intervene? that the longer the Secretary of State doesn’t Annie Mauger: The Secretary of State has two duties intervene, where there are cases that look as though under the Act. One is to superintend and the other is that might be in breach, that then gives licence to to promote improvement. Those are the duties he has other local authorities to say, “We are not going to to fulfil. As far as I can tell, there is a risk to those get any scrutiny or superintending on this issue and, things happening and to a comprehensive and efficient therefore, we can do exactly what we like”, and that service being delivered locally and he can’t avoid that is not the case, because the Act exists. that is the law. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 25
21 February 2012 Alan Davey and Annie Mauger
Q101 Paul Farrelly: Alan, can I just briefly explore see several Secretaries of State fighting for the right whether you have role in advising the Secretary of to this portfolio, because I believe libraries can work State about intervention in specific cases? across every Department in Whitehall, and do; Alan Davey: We don’t have a role in advising the Education, Business, there is a contribution in them Secretary of State as to whether or not to intervene. all, and I would like to see them fighting for it, We do have a role, in terms of providing the Secretary personally. of State with information that might form part of the basis on which he may or may not intervene. Then Q104 Dr Coffey: Sue Charteris’ report seems to with the second part of the Act on improvement, that increasingly be used as the default when assessing is clearly our role about developing libraries and closure programmes. Can each of you give me your spreading good practice. opinion on the report? Paul Farrelly: In how many instances have you given Annie Mauger: I have referred to the fact already that the Secretary of State advice over these actual it laid down some really good guidelines about a programmes of closures? proper needs analysis before wholesale changes to Alan Davey: We have been providing him with library services are put into place, and it turned around quarterly information. Sorry, we have just provided the situation in the Wirral. As an observer of what has our first quarter of information, which is a kind of happened since then, I believe there is a sort of snapshot of what is going on because we mentioned Charteris test that local authorities have tended to earlier that the data here was quite difficult, in terms apply to their library services, or library practitioners of knowing what is going on across England. But we have, in re-scoping services. As Paul has pointed out, haven’t been asked to provide information in any case we are in an enormously different time in terms of yet, in the first six months. the scale of reductions that have to be found, but the Paul Farrelly: So no firm instance of your— principle of needs analysis is still a good one. But I Alan Davey: We have not been asked to. think we still need to develop how that should be done. Q102 Paul Farrelly: Just finally. You are a very big organisation, a busy organisation and one facing your Q105 Dr Coffey: So you think it is a fair basis on own challenges in terms of cuts and reorganisation. which the Secretary of State should or should not How far up the list of your priorities are libraries? intervene? Alan Davey: They are central to everything we are Annie Mauger: It is one of the elements that about. Yes, we have bigger budgets to spend on the contribute to those kinds of judgments, yes. arts, smaller budgets to spend on regional museums Alan Davey: It is a good report that is full of common and tiny amounts of money to spend on libraries, but sense and it does form a good basis, yes. I think we have a big responsibility in terms of the role that libraries could play in the future. Every time Q106 Damian Collins: I wonder if you could just we have a conversation with local government about update on the Libraries Development Initiative. what might be going on locally, bringing all the Alan Davey: Yes. It is the £230,000 fund I referred to different interests together is very, very powerful. It is earlier, and we announced a number of projects last powerful in terms of getting a possible bigger impact week. These range from different ways of providing on the role of culture in those particular communities services—I mentioned the Hackney, Islington and areas. So I do regard it as important. It was not example—to work with the Publishers Association an easy add-on that we just took over in the course of about digital materials being made available and something else. It was something we thought about digital marketing for libraries, to different kinds of very carefully, and thought, “Libraries are places activities going on in the libraries, such as cinema in where things happen”. They are places that people like Kirklees for example. There is a whole range of stuff and that people trust. They are one of our most trusted there. public institutions, and if we are to encourage people to engage with culture more, libraries can be a very Q107 Damian Collins: Finally the role of your 12 powerful place for that to happen. I mentioned our regional representatives, do you want them to be Creative People and Places initiative, which is about proactively going out to local authorities and those areas of the country with low engagement where challenging them about the way they run their historically we haven’t invested very much but quite services, highlighting examples of good practice from often there are strong library networks there where that region or maybe elsewhere in the country that things can happen. So I think it really is important perhaps they should follow? to us. Alan Davey: I want them to be actively going out and having conversations with local authorities, as part of Q103 Paul Farrelly: Final question, Annie. A very our wider conversations with local authorities. Their simple question: would you prefer Jeremy Hunt to role is not superintending; the word “challenging” have the statutory responsibility or Eric Pickles? sounds like it is part of the superintending role, so I Annie Mauger: I was asked by a senior Minister think it is more about challenging towards a better where responsibility for a particular service—not this ambition. one—should go, and I said, “Give it to the person who Chair: Thank you both very much. will love it the most”. My answer is I would like to cobber Pack: U PL: CWE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02
Ev 26 Culture, Media and Sport Committee: Evidence
Examination of Witnesses
Witnesses: David Pugh, Leader, Isle of Wight Council, Nigel Thomas, Service Delivery Manager, Leicestershire Library Services, and Elizabeth Campbell, Local Government Association (LGA), gave evidence.
Q108 Chair: For the second session this morning, what do you think you can do as local authorities to can I welcome Councillor David Pugh, the Leader of help sort that out and get the community to understand the Isle of Wight Council; Nigel Thomas, the Service the need for remodelling of services, which does not Delivery Manager for Leicestershire Libraries; and necessarily mean a cut in service but the service has Elizabeth Campbell who is speaking for the LGA. to change. How do you go about that? Mr Sutcliffe: Given all the cuts that local authorities David Pugh: We have done a huge amount of have to face and all the problems, whether it is consultation with the public, which did actually shape education or social services, to what extent do you our final proposals. It is fair to say the vast majority think that libraries are an easy target for local of the public do accept that it is very much the authorities to make savings, perhaps easier than some national picture that local authorities, along with the of the others? Perhaps the LGA might kick that off. rest of the public sector, have to face some significant Elizabeth Campbell: Anyone who thinks closing reductions in funding and have to look at decisions libraries or libraries are an easy target has another such as this. If a local authority, such as mine, can think coming, as we have seen from all the develop final proposals that are clearly seen to have campaigners. Redesigning services isn’t a decision taken into account some of the points expressed by that anyone can take easily. It is extremely difficult, the public, I think some of that anxiety will go. Some but at the same time as local councils we are suffering of the campaigners, rightly, feel very strongly and cuts of 28% over the next four years and libraries have they have taken action that we have seen referred to to take their share of that, but redesigning services earlier. Other people who feel passionate about the doesn’t necessarily mean closing libraries. I would libraries have decided to get involved as volunteers just like to speak from my point of view, as a and make a contribution that way. Clearly people will councillor in Kensington and Chelsea where we are approach it in a different manner. But I don’t think we merging services with Westminster and can dismiss the strength of feeling among many of Hammersmith & Fulham, where we will be taking £1 these campaigners, and we can do all we can to try to million of savings out but we won’t actually be explain the scale of what we are trying to do but there closing any libraries. will be a starting point for some of them that nothing Nigel Thomas: Yes. I agree with that. Very much must ever change. What we are trying to demonstrate again, in terms of my experience in Leicestershire, is that even if local authority-run libraries close, it there is tremendous support for the library service doesn’t necessarily lead to the reduction in the quality politically and locally and—as Elizabeth has pointed of the service being provided. out—decisions are not taken lightly. Every aspect of Nigel Thomas: Certainly consultation in the Charteris local authority services are having to make really, Report is full of good sense. I think it is really really difficult decisions, and in terms of trying to important, as well, to ensure that library services are mitigate some of that, similarly Leicestershire is strategically positioned correctly to enable them to looking at that shared service in a slightly different demonstrate their value to other wider agendas. In aspect, where we are looking at sharing cultural Leicestershire, for example, we are aligning services services and aligning libraries in a shared management very much with health and wellbeing because there is structure with museums, heritage, arts and adult a real positive role that the combined libraries, learning. museums and arts offer can make, particularly on David Pugh: Thank you. I think it is fair to say no things like mental health and wellbeing. I think it is local authority would approach any library closure very important to ensure that you are telling the story lightly. The scale of the savings that have already been when we are going out to communities and engaging referred to—the scale we have had to make, some £20 in that conversation with them about the future of the million in one year—leads us to a situation where, library service, to make sure that we can tell a story once we have taken out back-office efficiencies and a about the value the library service has. whole range of things that could be seen as excessive, we are left in a situation where some frontline services Q110 Mr Sutcliffe: How do the LGA help in terms cannot be left unaffected. The savings we made in our of advising authorities that have problems and what library service, which have led to some closures of is the— Isle of Wight Council-run libraries that are now run Elizabeth Campbell: The LGA has taken quite a by the community, were less than 2% of the overall strong role with peer-to-peer mentoring, with savings we agreed. It is fair to say that, with the scale seminars, with things on the internet, with talking to of what we had to do, there was no part of the local people, because we believe that each authority will authority, including the library service, which could find its own solution to its own problems, but it can be immune from being considered as part of that. still learn from what other authorities are doing and, therefore, tailor it specifically to what they are doing. Q109 Mr Sutcliffe: I had to ask the question. The For example, what David is doing in the Isle of Wight remodelling of the service—and we have heard about is completely different from what we are doing in innovation in the evidence sessions that we have had, inner London. We will both be producing services that but we have also heard from campaigners who want are better for our own communities but they won’t to keep every library open, every building open— look exactly the same. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 27
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell
Q111 Steve Rotheram: In the earlier session Annie clear evidence for that he should continue to allow Mauger said she would welcome a clearer definition local determination on these matters. of what was meant by “comprehensive and efficient”, while the LGA have argued it would not be Q112 Steve Rotheram: Mr Pugh, you spoke about appropriate. Given that there are different approaches local accountability, which leads onto the second adopted by local authorities to library services and question I have, which is that we heard in the last library closures, would a more detailed definition help session that some library campaigners believe that local authorities when they are making difficult local authorities do not understand their library decisions to redesign services? service. What is your response to that? Elizabeth Campbell: No, absolutely not. At the David Pugh: Our decisions on the library service have moment, I think with library services what the LGA been very much informed by the professionals that run feel is that we have to be as innovative and as flexible our library service. They were not necessarily in full as possible, and having one definition across the agreement with the approach we have taken, as have whole country would not help us at all. As we said, many library users not been either. But as part of the again what David is doing with his libraries, what his council as a whole, they have recognised that difficult library service is doing is completely different from decisions have had to be made and they have offered ours. In a city centre, libraries are terribly important up proposals that have been based on an evidence for the young, for people to come and do homework base, looking at the Joint Strategic Needs Assessment, in, for the old who are isolated, you know the actual where the usage figures are, and what the general need buildings themselves as sort of indoor parks are is across our wider community as to how we take this terribly important, for example. They may not forward. We wouldn’t have developed any proposals, necessarily be in a rural area. That is one point. unless it was informed by that feedback from the The second point is things are changing so fast now. library professionals and those qualified librarians The 1964 Act talks about gramophone records. Five who head up our service. It has not been an easy years ago we were looking at redesigning Kensington process for them, and we have worked closely Library; we were looking at plugs to stick computers alongside them taking their feedback on board. But I in. That is all gone now. If we are really looking at think it is fair to say no elected member, certainly not the future and we are really looking at Kindles, and in our local authority, would take decisions like this everything else that brings, and how we are going to lightly, and certainly not without the professional redesign services to make them efficient, the last thing input of those librarians. that local government needs is a straitjacket of Nigel Thomas: Speaking as a professional heading up prescribed things from the top down. a library, part of my role is to make sure that members Nigel Thomas: The risk is that, once you begin to are fully apprised of all of the information so that they really define all of that, you almost immediately build can make the right decisions based on the evidence in obsolesce. I think there has to be flexibility, and they pick up. each local authority—certainly from our Elizabeth Campbell: I would say the LGA are asking perspective—needs to be able to say, “We are for the updating of the 1964 Act, precisely because approaching it in a slightly different way. We are we believe that our local communities do understand looking at a joint cultural offer, which very much their library service and they do understand the involves libraries as the greater part of that”. But if changing needs of their community better than anyone that then conflicts with a statement, that makes it very else. We were talking about consultation. Again, with difficult for the local authority to respond to local my tri-borough hat on, our findings on sharing three need. services across the three boroughs highlighted that we David Pugh: Ultimately, it is a matter of local had very positive feedback for residents. We had 67% determination. Councils such as mine will make of our residents feeling that sharing services was a decisions that will not be universally popular, but the good thing. With our stakeholders we had three- accountability for that sits at the ballot box come quarters of respondents feeling that our councils election time. We know that if we have taken should support shared services. So we had very, very decisions that the public object to, they will make strong feedback. That is exactly why the LGA are their opinion clear as part of that process. So that is saying it is up to councils to find out, through their where the local accountability comes in. I don’t think needs assessment, what their local communities want. having a national prescription on what that should be reflects the fact that communities, such as mine on the Q113 Steve Rotheram: Would you say that lack of Isle of Wight, are very different to Kensington and clarification in regard to the definition of Chelsea and many other parts of the country. So we “comprehensive and efficient” offers local authorities are happy to make those decisions locally to redefine an excuse when they are closing down library our service and to be accountable for that. I think that services? fits in with the spirit of localism this Government Elizabeth Campbell: I don’t think it is an excuse. places particular emphasis on. That may reflect why They have to prove that it fits into their overall the Secretary of State has operated generally a light strategy and that they are looking at it as a whole, and touch. If I could perhaps add, I think that the Secretary they have to do a proper needs analysis and if they of State should continue to operate a light touch, and are don’t then they will have a problem. only really look to intervene in the most extreme of David Pugh: The needs analysis is a vital point. No circumstances where it appears that a local authority decisions on potential closures should be taken unless will be in flagrant breach of that duty. Unless there is the local authorities have looked at the responses from cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 28 Culture, Media and Sport Committee: Evidence
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell the public and looked at the areas of deprivation, as Q116 Dr Coffey: In my view, Judge McKenna did we did. We made the decision that the libraries we make a controversial ruling about Gloucestershire and would continue on the Isle of Wight were in those Somerset in November last year. In oral evidence last areas of greatest need, and that reflected both usage week, Sue Charteris suggested the current situation and the characteristics of the population in those areas. whereby local authorities have been taken to judicial So the ultimate decision should be evidence-based. review is starting to become a legal minefield. So can That should be reflected in the necessary equality I ask Elizabeth Campbell, the LGA said in its written impact assessments, which authorities like mine have submission, “Understandably, councils are making had to do, and when our decision was judicially difficult decisions—I fully get that—to close libraries challenged that was recognised as being a sound based on robust consultation”, so why is it that process. That is a very thorough thing we have to judicial reviews are turning over some local undertake. authority decisions? Nigel Thomas: Yes, and again the Charteris Report Elizabeth Campbell: In the case of Gloucester County has laid out the framework in terms of representing Council and Somerset Council, you will find they good practice and what you need to do in order to were held unlawful because the councils failed to make those decisions. So I think the points have comply with the public sector equality impact, not been covered. because they hadn’t done the other assessments, so I think that is a slightly different point. Q114 Mr Sanders: Accepting that you cannot have a national definition of “comprehensive and efficient” Q117 Dr Coffey: The LGA thinks that those two because each local area is different and will approach councils failed? this in a different way, shouldn’t local authorities Elizabeth Campbell: I am not going to comment on publish their views of what a comprehensive and particular cases. What I am saying is that they were efficient library service means to their area so that the turned down not because they failed to consult public can judge whether you have fulfilled that? properly, or that their plans would fail to produce a comprehensive and official library service, but Nigel Thomas: Yes, very much so. That is about being because they did not do their equalities impact transparent to people that are using us in terms of the assessment. information that they have. In Leicestershire, for Dr Coffey: The stuff on the equality was not done, example, we are involved with the local account that yes okay. Adult Social Care are producing, because we are part Elizabeth Campbell: So that is slightly— of that directorate, and the library service is very Nigel Thomas: It goes back to that duty of making much moving towards spelling out what the library sure that you have done a full assessment of your local service would do, but also what our commitments are community, which includes things like equalities year on year and at the end of each year whether we impact assessments. have met them or not, so that they can make the Dr Coffey: Okay and we have just heard from decisions and then become engaged in a conversation Councillor Pugh on that particular thing. Thank you. about how that develops. David Pugh: Yes. Local authorities should be clear on Q118 Paul Farrelly: For Councillor Pugh, first of all. what they consider to be a comprehensive and Could we just be quite clear: you would not have done efficient service. We have done that. We have said six this without the 26% cut to local authority budgets core local authority-run libraries, supported by a from the Comprehensive Spending Review, is that mobile service, is a comprehensive and efficient the case? service. We have been very clear that our five David Pugh: It is fair to say that this came on to our community libraries now in place are not part of that radar because of the scale of the spending reductions service—that picks up on some of the points from we faced and the front loading nature of them now. I earlier—that is over and above what the local am not going to get into an argument today about the authority provides but it is still supported by the local merits of that approach, but I think we all know that authority. We have reached a view on meeting the the Government have taken the decision they have to requirement and that the public will be the judge, no significantly reduce funding to local authorities. Our doubt. decisions were made in that context.
Q115 Mr Sanders: Would you say that in some way Q119 Paul Farrelly: In your review in 2010, that may have contributed to you successfully according to your evidence you were looking to save resisting judicial review? £400,000 rising to £500,000 a year out of a £2 million David Pugh: It did. If you look at the judgment, it budget, so effectively the libraries were taking their was thrown out before it went to a full hearing but the similar percentage cut. Can I ask you, did you conduct judgment was clear that we had undertaken a a needs and impact assessment before producing those consultation, we had approached the decision with an target budget savings? open mind and we had taken into account the David Pugh: The initial level of potential budget feedback from the public, and particularly we had savings was built into some early draft proposals for done the equality impact assessment. So the judge was the budget following a public consultation. There was not minded to take the case forward because, having a more detailed equality impact and needs assessment done an initial review of those points, he did not feel that took place before the final decisions were made, there was an arguable case. which took into account the feedback from the public. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 29
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell
Part of the problem—and this has been a learning of Wight approached its library closures, particularly curve for all local authorities—is that when a needs in terms of steps that ensured that a judicial review assessment and the EIA is undertaken there are challenge to the decision was unsuccessful”. You are actually various stages of that. There were some initial going to the LGA to demonstrate to them how people aspects of that done prior to the development of the can learn from the way you have approached it, is proposals, but— that correct? Paul Farrelly: My question was more specific, was David Pugh: To be clear, we as a local authority any of that done in any proper form before producing approached some difficult decisions. We saw those target budget savings for the library service? decisions through. I am not saying it is a model that David Pugh: Yes it was. In fact, we did a very works everywhere, but clearly the whole process of comprehensive public consultation exercise undertaking equality impact assessments, and the throughout the summer of 2010. delicate nature of that, is something we are keen to Paul Farrelly:Before producing those target savings? share best practice with other local authorities. We are David Pugh: Yes. Once the coalition Government was not saying it is a model they may wish to undertake, elected and it became clear that they were looking to but I think anything that can help local authorities undertake significant funding reductions to local make sound, legally binding decisions is a good thing. authorities, we started an exercise in the summer of 2010 preparing for that. There were various stages of Q122 Paul Farrelly: This is a question from one of that before the final decision, but the initial budget your library volunteers who writes, “Why has savings target was based on an initial assessment and Councillor Pugh stated several times to the press that that feedback from the public. IWC won the case against the campaigners and that the High Court Judge said that they had done nothing Q120 Paul Farrelly: You then went on, from what wrong? In actual fact, the case was dismissed because evidence says, “Into an island-wide consultation, it was outside the time limit and the judge in his based on a set of draft proposals”, which you say was summing up specifically stated that ‘he was worried to stimulate debate. It certainly did because they by the obvious lack of any equality impact overwhelmingly rejected your plans to close nine out assessment’?” of 11 libraries, did they not? I have been inundated David Pugh: I am not quite sure where they are with library volunteers actually from the Isle of Wight, quoting that from but I have a full copy of the writing to me. Can I just quote one of them? They judgment and we have not seen a statement along say that IWC failed to carry out an effective impact those lines. We need to be clear, it was dismissed statement and tried without success to get volunteer because it was out of time; the judge then went on to groups to carry these out on their behalf. “Far from say that, even if he had granted an extension, he would being an innovative approach, as summarised by have refused the application for a judicial review David Pugh in his presentation, the survival of the anyway. He went on to say there were difficult libraries was achieved by various campaigns in spite circumstances affecting the defendant but that they of IWC’s original attempts to close nine of 11 libraries had listened to the consultation and altered their on the island. It is disingenuous and misleading for proposals accordingly. He went on to say that the David Pugh to claim otherwise”. That is what one decision made by the Cabinet on 1 March was made library volunteer has written to me. with an open mind, equality issues had given him David Pugh: The library campaigners and some of cause for reflection but in the end he decided they those volunteers feel particularly strongly. What I can were not valid. say, based on my own experience as a volunteer in Paul Farrelly: I think we should have a copy of that Shanklin—the library in my own ward has closed as judgment to see who is writing history accurately. a result of the decision, but it is now a community- Dr Coffey: Do you want it completely on the record? run library—is that the vast majority of volunteers David Pugh: I have a copy here. have rolled up their sleeves and got on with assisting Paul Farrelly: Absolutely, we will get the copy. those community libraries, and that success is very David Pugh: It is worth saying that, because it did much down to them. That isn’t something we as a not go to a full hearing, there wasn’t actually a full local authority can take credit for, and I don’t come written statement but we have a transcript of what he here today to seek to do that. It has been a difficult said at that initial hearing. process, and many of the people who got involved Paul Farrelly: If you could provide that to us that have disagreed with some of those decisions we have would be very useful. made. But the issues around the equality impact David Pugh: Yes. assessment and the process were firmly dismissed by the judge. That is ultimately where the decision had Q123 Paul Farrelly: In terms of needs assessment, to be made. this is a question that again has been posed to me. We will get on to professional librarians in a moment; this Q121 Paul Farrelly: I just want to move on briefly is my final question for the moment for you, Mr Pugh. to the issue of judicial review. You said clearly it was I understand you don’t have professional librarians in unsuccessful. In your press release from the council your community libraries and the question here is— before coming here, which seems to have ruffled a and I will read it verbatim—“Users can have learning few feathers, you also talk about an appearance at the difficulties, mental health problems and suffer from LGA in these terms, “The LGA has asked Councillor loneliness, professional librarians build up Pugh to share with other local authorities how the Isle relationships with the library users, especially in rural cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 30 Culture, Media and Sport Committee: Evidence
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell areas. To have that taken away could have a serious financial strategy, which were a mixture of redesign, effect on users”. Was this something that the council joined-up services, and also some service reductions. considered in its needs assessment? We did make a decision to reduce some library David Pugh: We did. We looked at particular user opening hours after a period of consultation. One of groups, and that is reflected in our full equality impact the immediate things that we did do was to assessment document. The first thing to be clear on is undertake—on the basis of that report that was that volunteers have not replaced professional approved by Cabinet last year—a restructuring of librarians. It is a different type of service in those libraries, heritage and arts services to consolidate a community libraries. That is why I emphasised that cultural offer, so that we could be strategically placed those community libraries are not part of our statutory to deliver on wider objectives. service because it is linked in with that point. The volunteers in our libraries are providing a service but Q125 Paul Farrelly: Could you tell us which one of a very different nature. We are continuing to political party leads Leicestershire? provide the confidence of an efficient service through Nigel Thomas: Conservative. our core libraries. Paul Farrelly: Conservative, so just like I would like to just touch on the issue of professional Staffordshire, which is not closing any libraries; just librarians. We have some very dedicated staff in our taking the politics out of this issue then. local authority-run libraries and they work very well With respect, your long answer did not answer my with the volunteers in support of their development question. My question is: how do you principally across the island. The professionally qualified account for your approach being so different from the librarians we have in our library service principally Isle of Wight, which originally proposed to close nine work in our library HQ. I think there has occasionally out of 11 of its libraries? been a myth that all people who work within libraries Nigel Thomas: I can’t comment on the Isle of Wight’s are professionally qualified at being a librarian. While approach but in terms of Leicestershire, in terms of there are some very highly qualified people in terms our financial forecasting, we knew that there was of library qualifications, certainly in the case of our going to be a particular issue in terms of the public library service, they principally work within the consultation on the medium-term financial strategy. management supporting the development of people Libraries, heritage and arts services were one of those who actually work in the library. So there are various areas where residents felt that less money could be levels and distinctions and we have some very spent, and accepting that the decision was made to dedicated people who work in our libraries. take a long-term strategic view of how that might be I must just give an example from my own community achieved. library in Shanklin, where a gentleman recently approached us wishing support with reading and some Q126 Paul Farrelly: You were very careful in your of the challenges to which you refer. Our library evidence to say that you are going to explore volunteer co-ordinator—which is a paid part-time post community involvement in the libraries over the next supported by the town council, of which I am a two years. member—is currently in discussions to make sure we Nigel Thomas: Yes. can identify someone to support that individual. We Paul Farrelly: Compared, for instance, with the Isle need to be clear, just because community libraries may of Wight, is your caution explicable, in terms of be supported and run principally by volunteers, the looking carefully at sustainability, the financing of any opportunity for them to draw on particular members different models of community involvement? You just of staff and skills to support members of the public want to proceed delicately so you can make sure, as who have particular needs has not gone away. part of your strategic review, that what might replace existing provision is sustainable? Q124 Paul Farrelly: I am sure we will want to come Nigel Thomas: Leicestershire’s approach is on to volunteers and professionals again later, but I Leicestershire’s, and I think what we wanted to do just wanted to give Mr Thomas a chance to make was to give us a period of a medium-term financial some comments. Mr Thomas, in Leicestershire your strategy, where there is a commitment not to close approach seems to be worlds apart from the Isle of any libraries or museums, to enable us to have that Wight. How do you explain that? conversation and to present some options for local Nigel Thomas: In Leicestershire a decision was made residents and to begin that conversation. to undertake a strategic review of the libraries, heritage and art services collectively, and shared Q127 Mrs Mensch: Mr Thomas, you were saying intelligence with Sue Charteris and BOP were that you started with your financial review or involved in producing that strategic review. What that consultation on the medium-term financial review for review did was to outline a broad framework for us to your authority and that arts, heritage and libraries are move forward in our redesign of the library service, one of the areas that your residents said or you thought accepting the fact that one of the key drivers was the you could fruitfully make some savings on. This need to look at the financial situation. What it question goes to everybody on the panel, would it be produced was clearly a decision that there was no fair to say that local authorities are starting from a simple quick way—it was very complicated, position of “We need to make these savings, how do obviously—to look at the savings that we were we make them?” and looking at it and saying, “How required to make. It outlined some options for us to many libraries would we need to cut out of the budget explore over the period of the next medium-term in order to achieve a target figure?” or do they start cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 31
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell instead from a position of, “What do we need in a have, how do we keep our 21 libraries across three library service and how can we deliver a boroughs open, maintain the number of hours, but at comprehensive and efficient service?” In other words, the end of the day produce a better library service for are you looking at what is required from a library our customers?” I suppose that is what has galvanised service as your first port of call when you make these all our thinking; how are we going to be more judgments, or are you looking at the amount of budget resourceful, more ready to modernise at the end of it, that you need to save in order to be able to run your at the same time as taking £1 million out of the local authority? Could I start with you, Mr Pugh, since service? We feel that we will have done that. We will you took a strong line? have taken £1 million out over the next couple of David Pugh: Yes. Our starting position was years, but we will have one library card serving all recognising it is in the context of the fact that we our customers. We will have a million books that they needed to deliver savings across the local authority can take out. We hope our footfall of 5 million over and what we also felt in this area was: how do we the three boroughs, coming forward, will mean that best, within a reduced budget envelope, provide the we are probably more open to sponsorship or other best comprehensive and efficient service we can? That deals. We may say that this is the first step. We will is why the consultation, which took place before we merge first, make our library service efficient and then identified the potential level of savings, did a think, “What now? What other things can we do?” comprehensive survey of our users of libraries and we identified this as the best model. So I think it would Q129 Mrs Mensch: When local authorities are be a bit crude to jump to the conclusion—although I making decisions, do they have robust enough data on appreciate some of the campaigners may do—that we which to make decisions? For example, do you have just felt that was the level of savings we needed and enough information about library usage and also local that was the reduction in libraries to match that, needs in order that your decisions are informed? I am because there would have been an even cruder or particularly interested in the difference between hard more simplistic way to do that if that was our and soft metrics. Usage is a hard fact. You can get approach. usage, footfall figures, they are not debatable. In some The needs assessment behind the final decision we of our evidence sessions we have heard from various made, and looking at those areas of deprivation, very librarians and librarian groups about metrics that are much informed the fact that we do want a harder to measure, what librarians bring to local comprehensive and efficient service, how do we best communities, social involvement, that kind of thing. achieve that and what budget envelope can that be Speaking for myself, it is not an argument I find achieved in as well, which ultimately led to an massively convincing because those things could be adjustment of the savings we were going to make. delivered elsewhere, whereas to my mind libraries Nigel Thomas: As I say, we have the length of the have a very specific focus on education, books and medium-term financial strategy but what we are doing delivery of related services. So you are you content at the moment is looking at what the criteria might be for the delivery of a library service, given the fact that there is enough hard data available to you when that we now have conjoined services with colleagues, you are making these difficult decisions, and do you museum, heritage and arts. What we are doing is attempt to measure these soft metrics and, if so, how? looking at the criteria for that, looking at what the Elizabeth Campbell: You start. options of delivery might be, and then going through Nigel Thomas: Yes. There is a wealth of information a period where we do a needs assessment. It might be, out there. We have heard of joint strategic needs for example, that we look at an area where there might assessments, there is information within be a library that in the present format we may wish to Leicestershire, which tells the story of some of the relocate or think of another way of operating it. In key demographic and social aspects that affect order to make that final decision, I think we have to Leicestershire, and from that data that informs our have a very clear idea of what the nature of that joint strategic needs assessment. There is a lot of other locality is, what its transport links are, what the levels information that goes down to very detailed aspects of literacy and employment are and so on, and then of how people use our library service. We have had a we are better informed to make a strategic and marketing approach to the way that we deliver our informed decision. service so that we can say things like, “If you join the library for the first time and you take four books out, Q128 Mrs Mensch: Again, you assert that you start the chances are that you are going to be a regular with the needs of library provision, and you work member. If you take one book out, the chances are back from there as to how you can make savings? that you are not and you are going to lapse”. So that Nigel Thomas: Yes. has raised issues about: what is the offer to those Mrs Mensch: Is that your experience across the different people? It is two different things, and where LGA? Is that what your members report? does the resource go? Elizabeth Campbell: Yes. That is what most To look at the point about hard and soft data, soft data authorities are doing, but you can’t take the libraries is a challenge and it is very difficult to get hold of. out of the whole budget cuts. They are both happening There is an interesting question there about, what is at the same time, and if I can just give you our performance for the library service? Is it volume and experience in London across the tri-borough. We had footfall or is much more focused work on vulnerable a look in the same way and saw cuts were coming, adults, which is much more resource intensive, and and thought, “How do we not only safeguard what we how do you capture that? cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 32 Culture, Media and Sport Committee: Evidence
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell
Mrs Mensch: Indeed—whether or not that needs to get together and the three Cabinet members in each be delivered via a library service or to do it through borough and we just said, “We really want to do this. other community organisations or buildings or We accept that sometimes the figures won’t quite add services. up or you will get a bit more or will get a bit less, but Nigel Thomas: Yes. as we go forward with staff harmonisation or other David Pugh: Just to add to that, there is some very services there will always be winners and losers at hard data on which we can make these decisions and different stages”. So that really helped. I think it that is partly evidence-based, which led to the would be difficult to do it without that atmosphere. approach we finally took. One of the reasons for doing David Pugh: It would be difficult— the comprehensive consultation was the written Elizabeth Campbell: Yes. It would be very difficult. feedback from library users, which set out some of Damian Collins: You could go with Hampshire, their concerns. My submissions to the Committee—in couldn’t you? paragraph 27—set out some of the main issues that David Pugh: We could, yes. As a local authority, we were raised that related to inaccessibility, transport, do some joint work with Southampton, but a library removal of access to ICT for job seekers. So there are is a bit difficult, even though we are part of the wider some other things that cannot be quantified in hard south-east grouping of libraries. stance, but we were able to take into account. Nigel Thomas: Leicestershire’s model is different. It Ultimately, local councillors representing those is about shared management. It is the same principle, particular areas were able to raise those type of points, but looking at it across cultural services, libraries, which the hard data alone could not offer, and that heritage, arts and adult learning, so that we were able informed the process. to deliver £1.3 million in savings principally through Elizabeth Campbell: That reinforces the point, which a staff reorganisation, but retaining librarians in the LGA always wants to make, that the people who localities along with other professionals, curators, really understand their local libraries, their local keepers, who now will work as a team in terms of communities and what they want, are local councils being consultants in terms of what services are and it can’t be done top-down. You know what your delivered through the work that they do with their local communities want, whether it is hard data or local communities. soft data. Q133 Damian Collins: Would there be the scope in Q130 Damian Collins: I want to ask Elizabeth Leicestershire to consider a cross-county initiative? Campbell first. You touched on the tri-borough Nigel Thomas: We are looking at that as part of the initiative, that is a collaboration of a number of review that we undertook. Part of that was a wider different services across those three London boroughs, look at shared services and we have taken a lead in was libraries always part of the plan or was it— bringing together heads across the East Midlands to Elizabeth Campbell: Yes. Libraries were always part have some discussions about that. For example, one of of the plan because in some ways it is the simplest the things that we are committed to doing is looking at place to start, because you have pretty much mirrored how we can explore bibliographical services with the organisations across the three. For example, with our City of Leicester, and that is a conversation that we library services where we would have four heads of will be having later on in the year. service, we will now have one. Down the next structure of the senior management team is going to Q134 Damian Collins: Ms Campbell, to what extent take quite a lot out, a lot of back office staff will come can the LGA advocate certain models of efficiency, out, so we can maintain the frontline services like the tri-borough initiative? absolutely as is and yet take a lot of money out. Elizabeth Campbell: What the LGA is doing, through its successor to the Future Libraries Programme, is Q131 Damian Collins: How many residents are exactly that. Highlighting various cases, telling people there across the three boroughs? What population does to come along to seminars, disseminating information, this united service serve? sending in like a friendly Ofsted with peer reviews Elizabeth Campbell: Half a million, I suppose. That going in, and then it is for each council to look at is quite small if you compare it to other areas like what is happening and the examples and see what Kent or somewhere3. suits them. Some councils might look at what David has done in the Isle of Wight and say, actually, that is Q132 Damian Collins: Yes. How easy do you think the way they need to go, community libraries, it would be to replicate that across other parts of the volunteers; some in metropolitan areas might look at country? what we have done in London and say, “Actually, that Elizabeth Campbell: If I am really honest I think it looks like the model that is closest to what we could really helps if you have a political alignment, because achieve”; or others might look at Leicestershire. That quite a lot has to be done on trust. Certainly, from our is exactly the point that the LGA is trying to make: it point of view when we started it helped that our three is for each area to figure out what will suit them best leaders of the council, the three chief execs, could so that they can produce the best service. 3 Note by witness: The resident population of the 3 boroughs Q135 Damian Collins: Could I ask a slightly is 592,300. However, the statutorily entitled population is higher—everyone who works and studies as well as those different question, to what extent does the LGA feel who live, so we are probably serving a population of about that the Arts Council’s involvement has been helpful? 800,000–1 million. You have a national body taking a national view and cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Culture, Media and Sport Committee: Evidence Ev 33
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell conducting national research, yet you are advocating Q137 Damian Collins: It begs the question, though, a very localised approach to delivering. if a community library is reshaping its service around Elizabeth Campbell: We are very happy to have the what the community wants and that is successful, why research for people to use. It is very helpful to have wouldn’t the core libraries learn from that? numbers and it is very helpful to have an overall body David Pugh: They can perhaps learn from us once we advising, as long as it is someone who is have developed it. One thing we are looking at as disseminating information, advising you, showing you well—and this is perhaps in line with what good practice—great. Leicestershire and other places may do—is the Damian Collins: As long as they do not get in the volunteers that are getting involved in our community way. libraries we may start to see replicated in some of our Elizabeth Campbell: As long as they are not telling core libraries alongside the staff, because they can see people what to do, they are merely showing them the benefits of what is happening in some of the other what are good examples and advising, I think that is libraries perhaps being brought across to them. So we all to the good. may get more of a mixed economy in time as it develops. Q136 Damian Collins: A final question I wanted to Nigel Thomas: There is an interesting point here ask—Elizabeth Campbell first, but I would be grateful about coffee shops in libraries, the commercial aspects for any comments. We have received written evidence of it. A feature of Leicestershire’s restructuring is to from London Borough of Hillingdon about their set up a small enterprise unit that will look at how initiative involving private organisations—particularly using the experience that our museums and art coffee shops in their case—into libraries, so that is services have, how we can learn from that because we has not only provided more money for the service but have this now shared managerial approach to really increased visitors. Do you think this is a model that capitalise on some of the more commercial aspects of more councils should look at? the service. A simple example within Leicestershire is just the use of the library as a place to hire as a venue Elizabeth Campbell: Again, it depends on the area. I by local community groups or any other group. By have been to Hillingdon to have a look at their cafes. just realigning some of that, it is a small amount, but Cafes will work in Hillingdon, they won’t work in we have actually doubled our income from being Kensington and Chelsea because you just pop out clever about how we market our venues. It is about around the corner. So it is horses for courses. I think £20,000, but nevertheless £20,000 is £20,000. they are doing a great job and their footfall is up. Fantastic, but it wouldn’t necessarily work for us. Q138 Mr Sanders: Just to Councillor Pugh, in terms To go back to what Mrs Mauger was saying about, for of volunteering, how do you recruit people, how do example, libraries in schools, we were looking at you get people to volunteer or is there no need as putting a library into a school. We were building a there is a willing pool of people who come forward? new school for £8 million and we thought, “Great— David Pugh: There is no magic bullet for how to do we’ll just pop a library in there, tick all the boxes, it and I think all the libraries have done it differently. community, volunteers, schools can pay for half, and Again, I will speak from the experience of mine we will share with Westminster”, but when it came because I did the initial lead initiative to recruit down to the needs analysis, and we looked at the volunteers for our community library. We held an footfall in the area we were serving it didn’t work. So open day. We publicised it in the press. We invited it works in Pimlico, it doesn’t work in North people along and we were overwhelmed with the Kensington. That is exactly what the LGA is always response, the initial response was some 25 people, saying. You have to go back to the local communities, which may sound small but that is a lot of people to local democracy and let them provide what works in volunteer to work in a small community library. The their local community. way it started off was that we had a waiting list to get David Pugh: If I could add, that type of approach those volunteers trained to be in the library, and there isn’t being planned in our local authority libraries, but is a steady team of them working in there. I have our community libraries are looking at other ways to another session coming up myself within the next generate income and support those libraries. Certainly fortnight. So it has not really been an issue. It goes from my one in Shanklin, we are looking at the rest back to the point Elizabeth was making earlier about of the footprint to the library site to see what else different communities and different needs. On the Isle could go along in that building to support the library. of Wight we have a very distinct community with a So one of the benefits for community libraries, which very vibrant community spirit. People are very I think hasn’t been highlighted yet, is the more flexible enthusiastic to get involved in things like this, and it nature they have in what they do. They are not a core has been reflected in what we have done. part of the statutory service, but we are now looking to shape that library in response to some of the points Q139 Mr Sanders: Do you have a written policy on the community are raising with us, whether they want volunteering? evening openings, whether they want other activities David Pugh: We are currently looking across the local to take place in the library space and in other parts of authority, where we are seeing volunteers coming in the building. So I think the type of suggestions you to support a range of different services, to make a are making we won’t necessarily see in core library more consistent approach to that. There are some services but in the community ones, and anything like basic principles we have applied, but we have that can help sustain them. generally left the community libraries to develop their cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 34 Culture, Media and Sport Committee: Evidence
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell own approach. There are things we ask all volunteers Q143 Paul Farrelly: It is very important to drill into to sign up to, such as data protection because they are the detail to make sure that the model you have is dealing with sensitive information and so forth. But sustainable. Just on professional librarians, you said generally, it has been each community developing it earlier on that volunteers have not replaced on a model that best seems fit. professional librarians. So could I ask you, just from your own experience, who ran Shanklin library before Q140 Mr Sanders: How accountable are it became a community library. community-run libraries to the local authorities in David Pugh: The Isle of Wight Council did. Just to terms of the quality of the service? be clear and to expand on that point, the reason I say David Pugh: They are not accountable to the local volunteers will not replace professional staff is we are authorities. That is the beauty. They are accountable to not trying to say that they are doing a similar type of job. It is a different type of service in terms of what their communities. They are accountable to the local is provided. These people are not in the paid authority in terms of having strong support from the employment of the local authority. In some ways there local authority. But I think that actually works more is some greater flexibility in terms of what they can the other way in terms of what the local authority can do and the support to people visiting the library, but offer them, rather than the library back to the council, it is a different service in the same location. because it is not part of our core service and we are not setting service standards on them. What we are Q144 Paul Farrelly: I don’t want to get into a debate doing is making books available to them, access to the on the definition of “replacement”; I just wondered whole infrastructure and the wider library database, who ran Shanklin library before the community but there is no formal accountability because they are volunteers took it over? not part of our service. David Pugh: The local authority. Paul Farrelly: No, who ran it; individuals? Q141 Mr Sanders: How do you ensure that these David Pugh: Those are individuals who are still in community libraries do not undermine professional the library service working in other libraries. We have librarianship? a pool of staff who work across different libraries in David Pugh: Going back to something I said earlier, the library service, so those staff are working we very much recognise the volunteers are not elsewhere but there were individuals, yes. replacing professional librarians, they provide a different type of service. I have to say the library staff Q145 Paul Farrelly: Do you have any professional who we have worked alongside have been very librarians in Shanklin library now? helpful. They have trained me and other volunteers in David Pugh: There weren’t professional librarians what we have been doing, and they have been very before. There were paid staff who had a huge amount supportive of that particular initiative. There hasn’t of experience and a lot to contribute to that service. really been any conflict there at all. But it is an But we do not have Isle of Wight Council-paid staff evolving model, and I am sure from time to time there in there. We have a part-time paid member of staff, will be issues, but it is a partnership more than paid by the town council, who is our library volunteer anything else. co-ordinator.
Q142 Mr Sanders: How hands-off is the local Q146 Paul Farrelly: Just to be clear, you did not consider the staff running Shanklin library beforehand authority, in the sense that the premises will have bills, to be professional librarians? it will have taxes to pay, heat and rent, security issues, David Pugh: They weren’t professionally qualified in and there has to be some accountability to the local the terms of the library qualifications. That is in no authority for some of those costs and activities? way meant to dilute their contribution because the David Pugh: Yes. There are different models for our experience and the professional approach they took to five community libraries. All the buildings that are in the library service was considerable, and is the ownership of the Isle of Wight Council have been considerable, but I think there is a distinction that made available on a peppercorn rent. Utility costs are should be made between professionally qualified generally met by those community libraries but we librarians and library staff. still have some transitional funding in place to support some of them, and our rural community council is Q147 Paul Farrelly: We are debating nuances here getting involved in two of those libraries. But now again. I just wanted to quote one of your library ultimately, the libraries operate under their own steam. volunteers locally—because they have taken the Some of them want to move into different places to trouble to write to me—who says about professional co-locate with other services, but we will support librarians, or however you wish to define the them to whatever extent they need within reason. The professional service that they give, “Getting rid of the main support they get is training, the access to the professionals, i.e. the librarians, has damaged the books and the infrastructure, and we have also service the library service offers on the island. All the installed new software and a broadband connection to volunteers are undoubtedly doing their best but we do ensure that they have the ICT connections they need. not have the professional knowledge that we have It is that type of thing from the centre that is enabling now lost”. How would you react to that? them to be as effective as the other libraries and not David Pugh: I don’t know which library that comes seen as a second class service. from. It is certainly not a comment I recognise from cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
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21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell the community library I am involved with. There is strongly and are not going to agree with the approach no doubt that the new community libraries are we have taken. As I said earlier, we had some very different, and the professional paid members of staff difficult decisions to be made, we have seen them that were previously in those libraries are no longer through and I am confident that those 11 libraries will there. What we do have for our community libraries remain in place on an ongoing basis. is access to—as I have previously said—the Paul Farrelly: Mr Pugh, you will be glad that this is infrastructure of the service, and continuing support my last question about Shanklin library. and visits from the management of the library service David Pugh: Shanklin library has never had so to assist us in developing those facilities. Let us be much exposure. clear, as I said earlier, the community libraries are not Chair: You are going to move on to another library. part of our statutory service, they are over and above that and, therefore, they are not part of what we are Q152 Paul Farrelly: There will be another library, defining as the local authority offer. absolutely right, Chair. I am a glutton for punishment, because people will no doubt write to me from Q148 Paul Farrelly: Okay. You mentioned IT and Shanklin en masse after this. infrastructure; do you in the Shanklin library have full But new stock, how does Shanklin library go about access to the council’s library IT infrastructure, full buying new books when it decides that it wants to access to, I think, your Spydus system. You have full have some new books in stock? access, not partial access? David Pugh: Actually, it is a very positive situation. David Pugh: Full access. What we have set up is a library management steering committee, of which I was very briefly the chair but, Q149 Paul Farrelly: Is that the case for all the thankfully, I have managed to pass that over. That libraries on the— committee oversees the feedback that we get from the David Pugh: In my understanding, the Spydus public on what books they wish to receive. We feed system, which is the type of library software we use, that into the Isle of Wight Council’s library service allows us access to the users of principally Shanklin and say, “Shanklin wants these books and can we library but other people can drop off books there. order them?” Like any request from the public, Also, most importantly, it allows access to the full clearly, if it is some obscure thirty-first volume of an database of books that can be reserved, taken out, encyclopaedia we may not be able to order it in, but returned and so forth, through our community library. if it is something that is seen to be of sufficient The actual customer experience in that respect is demand we will ask the Isle of Wight Council Library unchanged. Service to get that in for us, or we could top it up with funds of our own. But there is no barrier to getting Q150 Paul Farrelly: Your experience of Shanklin is new stock in at all. rather different from one volunteer who described only partial access to the Spydus IT system as “The Q153 Paul Farrelly: So you are dependent on new all-time bugbear”. books coming from the reduced number of six David Pugh: It may be partial access, in the sense libraries? that if someone from another library comes in we David Pugh: No. They are not coming from the six cannot look up all their details because of data libraries. They are coming from the Isle of Wight protection, but the partial access is minimal in terms Council’s library stock, which serves all 11 libraries. of the impact of that. The main thing for library Those books aren’t self-contained in those six users—if you take my community in Shanklin—is libraries. The books serve all 11 libraries together. being able to access the full range of books on the library system. That is unchanged. Q154 Paul Farrelly: The Shanklin library—sorry to mention it again—will be able to get new books as Q151 Paul Farrelly: How many times in Shanklin easily as it did before? has the stock been rotated in the last four months? David Pugh: Yes. David Pugh: There was some stock rotation before Christmas; we have some more coming up. But that Q155 Paul Farrelly: The final area is sustainability is principally the issue of our library co-ordinator. The of the model and, Chair, as you predicted, I want to stock rotation in the community libraries, as far as I move on to another library, Bembridge library. People am concerned, will be no less than what takes place who have been volunteering at Bembridge library in the main libraries, albeit the community libraries complained that when the council offered them a lease tend to be smaller. the council legal department asked who their solicitor Paul Farrelly: I am told by people who have written was. Are they expected to bear the costs of a solicitor to me that it used to be monthly but it has only to negotiate the lease? happened twice since October. David Pugh: It is fairly commonplace when any local David Pugh: You have various statements there, and authority is negotiating a lease with a third party I have seen many of them on blogs and other sites. I organisation or business that the process of can’t verify the finer detail of all of those, but conveyance takes place on both sides. What I can say certainly I can speak for my own experience in in the case of Bembridge is that the Rural Community Shanklin that we do not see a dilution in our service. Council, who are overseeing that, which is partly a It is different. It is not part of our core service, and I council-funded organisation, have ensured that the fully accept that some of those people feel very necessary resources are in place to enable that. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG02 Source: /MILES/PKU/INPUT/018663/018663_o002_th_Corrected transcript CMSC 21 Feb 12.xml
Ev 36 Culture, Media and Sport Committee: Evidence
21 February 2012 David Pugh, Nigel Thomas and Elizabeth Campbell
Paul Farrelly: They seem to be quite concerned in terms—that the success of the community libraries Bembridge that they don’t have a full budget yet, so— and the fact that no libraries have closed is down to David Pugh: I must invite you down to the Isle of them? What we have done is to work against the Wight, if you are this interested, because I can only council to prevent our local library closing and to really explain the detail of some of this if you can see support our local community. It was not to give the it firsthand. Isle of Wight Council a medal”. Paul Farrelly: I will definitely come, and perhaps pop David Pugh: Firstly, to be clear, I come here today a regatta in there at the same time. not to claim success, but to note what has been David Pugh: We have brilliant regattas. achieved on the Island, and I must pay tribute to the community groups who have largely achieved that of Q156 Paul Farrelly: The detail is important, though, their own initiative. That isn’t an Isle of Wight because the people who have written from Bembridge Council plan and nor am I suggesting it was. We have to me are a bit concerned that the utility costs, and the helped enable it by making resources available and— other costs that you talk about, are going to cost as I have said—by putting the infrastructure in place. £12,000 a year and how they are going to sustain that But this is not anything but acknowledging the huge raising it themselves over— and considerable input of the communities in making David Pugh: That is actually part of a discussion we this a success. are due to have with all community libraries in the Paul Farrelly: Thank you. I am sure I will have more coming weeks. None of these libraries have been left emails than I care to receive over your Spydus IT to wither. There is some ongoing financial support system. from the centre and we want to make them a success. We are not setting them up to fail. The types of Q159 Chair: Perhaps you could conduct it through discussions we will be having with them are on the correspondence. very issues you have raised, and if you want to come Just before we finish, contrary to the impression along then please do. given, this Committee doesn’t actually want to run every single library on the Isle of Wight or anywhere Q157 Paul Farrelly: Okay. I am going to be very else, but there is the general principle obviously of brief on the final questions on the details, Chair, localism. So this is a more general question, because they are important. There are five parish particularly, I think, to the LGA, does it not seem a councils that have had to increase their precepts bit strange that in this particular function of local because of your plans. Am I right in saying East authorities, the provision of library services, you have Cowes Town Council raised its precept for 2011–2012 this backstop power of intervention to set up an by 21%, and it was stated publicly that this was solely inquiry by the Secretary of State and ultimately to take to fund the local volunteer library service. So aren’t over the running of it? you just passing the cost on? Elizabeth Campbell: Yes. David Pugh: I have seen that particular point raised Chair: That doesn’t exist in other local authority and I know, from speaking to my colleagues on the areas. Do you think that this is an anachronism and it East Cowes Town Council, that that precept rise was would be better in the spirit of localism to do away not just to do with that. The issue here is parish with it? councils have taken decisions of their own volition to Elizabeth Campbell: Yes. raise their precepts for things that they consider to be Chair: That is a very easy answer. Would the other a priority for the town. There are other things they two of you take the same view? may or may not have chosen to do. They chose in Nigel Thomas: Leicestershire’s point would be that that particular case to raise the precept to support that local authorities need to devise their own local community library taking place. These community solutions. libraries are not part of our core service. Therefore, it David Pugh: I think it just builds on what I said is a matter of local discretion whether they choose— earlier, local determination. We welcome the which they did in this case—to raise their precept to Secretary of State’s interest in terms of him having support it, and I know they felt it was something that that power but it should be a light touch and one that their community wanted and needed and they chose he implements at his own discretion. to do it. Q160 Chair: He has made it pretty clear that he will Q158 Paul Farrelly: Can I quote the final of the five only use it as a last resort; he believes in localism, so people who have commented to me? As a general certainly the LGA view essentially would be that it verdict, reacting to your press release before your would be simpler and more transparent to say, “This appearance here, I must say, the general verdict is, is a matter for local authorities to determine”? “How can the Isle of Wight Council, who we had to Elizabeth Campbell: Exactly. That is exactly the case. fight every single step of the way to stop them closing Chair: Thank you very much. Bembridge library, claim—in such self-congratulatory cobber Pack: U PL: COE1 [SO] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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Tuesday 13 March 2012
Members present: Mr John Whittingdale (Chair)
Dr Thérèse Coffey Steve Rotheram Damian Collins Mr Adrian Sanders Paul Farrelly Jim Sheridan Mrs Mensch ______
Examination of Witness
Witness: Ed Vaizey MP, Parliamentary Under-Secretary of State (Minister for Culture, Communications and the Creative Industries), Department for Culture, Media and Sport, gave evidence.
Q161 Chair: Good morning. This is the third session Q163 Paul Farrelly: You talk about grasping nettles. of the Committee’s inquiry into library closures. I On the Isle of Wight, for instance, the council made would like to welcome this morning the Minister for it quite clear that the library service would not face Culture, Communications and Creative Industries, Ed cuts of 25% if it were not for the Comprehensive Vaizey. Spending Review. Yet in my county, Staffordshire, Ed Vaizey: Thank you, Chairman. there has been a decision not to close libraries and to protect the service. To what extent is Staffordshire, in Q162 Paul Farrelly: We have seen different taking that decision, not grasping a nettle? authorities taking different approaches to their library Ed Vaizey: Well, I think Staffordshire is entitled to services: some authorities deciding to prioritise or take the decisions that it wants to take as far as its protect the services, and some closing branches library service is concerned. I think that is absolutely wholesale, such as on the Isle of Wight. The reality, at the core of what, no doubt, we will debate over the though, is that none of these cuts would be happening next hour or so: how much freedom local authorities without the cuts in the Comprehensive Spending should have to configure their library services. There Review. To what extent are you concerned that library will be local authorities that decide that the best way services are being singled out as easy targets to take of providing the library service they want to provide is by keeping buildings open. Others will say that they the brunt of some of these cuts? need fewer buildings but they can provide a more Ed Vaizey: Well, Mr Farrelly, I do not agree that it effective service from those buildings. As I say, I would not necessarily be happening if there were not think there is a spectrum. The point I wanted to make cuts in the Comprehensive Spending Review, nor do in my first answer is that many councils have been I agree that libraries are being unfairly singled out. In discussing how to reconfigure their library service for a number of local authorities where tough decisions a number of years. There may be some councils that have been made in recent months, they could have have come to the issue because of the settlement they been mooted five or six years ago and perhaps the received in their Comprehensive Spending Review, nettle was not grasped. Perhaps the financial situation but they will be looking at all their services across the has forced some councils to grasp the nettle now; piece, not just libraries. perhaps the financial situation is a convenient way to grasp the nettle. There may be cases where resource Q164 Paul Farrelly: To what extent do you think, if implications have forced councils to look at a library at all, that libraries are an easier target because, if you service that they have not examined in the past. I think look at the headline usage, it has declined somewhat? there is a kind of mixed picture there, but it is striking But in those overall statistics, it amazes me in this that in quite a few examples that I can think of, library fast-changing world how resilient the use by younger closures—or reconfiguration of the service, if you people and families is. Do you think that we should like—have been discussed in the past. look more closely at the data in deciding whether I also do not agree that library services are being libraries should stay or close? singled out. I think councils are having to make very Ed Vaizey: I agree with you that libraries are very tough decisions across their entire budgets. As recent resilient and I do not think that the library service is court judgments have said, library services cannot be in crisis; some people would like to give the immune from such decisions, but I do not think that impression that the library service is in crisis. I think any council would regard closing a library or a that many local authorities are running fantastic number of libraries as an easy decision. You only have library services. It is true that adult visits to libraries to see the reaction of the communities when a library dropped off significantly, by about a fifth, from about closure is mooted to realise that that is the case. I do 2004–2005 through 2010. They have now stabilised. not think councils are falling over themselves to make As you indicated in your question, Mr Farrelly, the an easy cut in libraries. I think a lot of them are number of visits by children has remained at a very thinking through very carefully what provision there high level. I think we can give great credit to charities is, how they can afford that provision and how they like Book Trust and The Reading Agency that run can provide the most effective service for their fantastic book-reading schemes, particularly The communities. Reading Agency, focused around libraries. I think cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
Ev 38 Culture, Media and Sport Committee: Evidence
13 March 2012 Ed Vaizey MP every local authority now takes part in the Summer clear that he is ignoring his responsibilities as Reading Challenge, using libraries as a focus for Secretary of State, which in the process renders any children’s literature. There are some very good stories sense of libraries being a statutory requirement for out there. local authorities meaningless”. Do you think the As far as using statistics, I think you are absolutely current Secretary of State’s apparent refusal to use the right. I had a meeting with CIPFA—the Chartered powers available to him has now rendered the 1964 Institute of Public Finance and Accountancy—which Act meaningless? collates library statistics. I wanted to drill down into Ed Vaizey: No, I think the 1964 Act still has a huge how they collect those library statistics and I role to play in library provision. In terms of my suggested to them, and will take this forward, that we position as the Opposition spokesman on this issue, sit down with them and the Arts Council and look at first, I made it absolutely clear that I did not believe how we can use those statistics to flag up where there the library service was in crisis. I did not believe it might be room for improvement in particular library then and I do not believe it now, so I did not jump on authorities. If there is, as it were, a “red signal” that any bandwagons to say that libraries were going to one particular library authority might be spending too hell in a handcart when I was Opposition spokesman. much on administration or is missing an opportunity I also made it absolutely clear that I did not regard the to make savings that could ensure it could keep more closure of a library as being somehow unacceptable, of its library buildings open, I think we should take and that it was down to local circumstances. that opportunity. The statistics are important, but a When I was Opposition spokesman, there were two bald reading of statistics can often lead to misleading high-profile cases. One was the Wirral, another was a conclusions, which is why I want to have a proper small library in Swindon, which is a good textbook partnership between CIPFA and the Arts Council. example of how emotive library closures are. It became national news that this small library in Q165 Jim Sheridan: Minister, you may have seen Swindon, despite being a quarter of a mile from a reports in today’s press about local authority chief brand new central library in Swindon, was closing. I executives being awarded something like 17% took the trouble as Opposition spokesman to visit both increases. Now, I accept that you are not directly Swindon and the Wirral to see for myself what was responsible for these increases, but do you understand happening. I took the view that the closure in the the frustration that people feel when they see their Wirral would justify a public inquiry, and I called for community facilities closing down while at the same a public inquiry when I was Opposition spokesman. time these already highly paid—paid more than the Andy Burnham eventually agreed to that and a public Prime Minister at times—chief executives are inquiry—the libraries inquiry perhaps to put it more receiving these kinds of increases? accurately—was held and found against the Wirral. Ed Vaizey: Well, Mr Sheridan, you were a local But the reason it found against the Wirral and the councillor and I am sure you kept your chief executive reason I think the Wirral stands out as a case was on a fair retainer in a Scottish council. I will not say because it had not undertaken any kind of library any more than that. I think that people do look at the review. It had undertaken an asset review, and decided pay of senior officers in local authorities and wonder how many buildings across the piece it wanted to keep whether individuals are paid too much. Some local open, but it had not done any kind of engagement in council leaders robustly defend their chief executives. terms of library services and how they were used by If I look at my own county, the chief executive is the population in the Wirral. effectively responsible directly, really, for a £1 billion Out of that inquiry came the Charteris Review, which budget and a huge range of services. You can argue I am sure all Members of this Select Committee are about whether their salaries are justified. I think, familiar with. In a sense, if there was a silver lining again, it comes back to local accountability. If a local to the cloud of the Wirral, it was that we got from the authority is going to make decisions about its library Charteris Review very clear guidance on how a library service, it has to explain them to the community and authority should go about assessing what kind of the community will be entitled to ask questions. One library service it was providing. One of the first things of those questions might be, “Why are you closing the I did when I became Library Minister was to write library when you are paying your chief executive x to every local authority in England—and I am only thousand pounds a year or you have just given them responsible for library authorities in England, not in a 17% pay rise?” My view, and as you indicated in Scotland, Wales or Northern Ireland—and remind your question, Mr Sheridan, is that that is a matter them of the Charteris Review, urge them to look at it for local authorities. That is about local accountability. and let them know that we would be assessing any They should justify the salaries that they are paying. decisions they made in the light of the Charteris Jim Sheridan: Well, hopefully they will. Review. You ask whether the 1964 Act has any impact still Q166 Mr Sanders: Good morning. You were a despite being almost 50 years old. Well, first, it has an fervent advocate of Government intervention two impact because it makes libraries a statutory years ago. In February 2009, you criticised Andy responsibility. Although people might think that Burnham’s refusal to take action in the Wirral. You libraries are first in the queue for cuts, it nevertheless said to the Chartered Institute of Library and remains the case that local authorities still have to Information Professionals, “If Andy Burnham is not provide a comprehensive and efficient library service prepared to intervene when library provision is and they are very well aware of that statutory duty. slashed in a local authority such as the Wirral, it is Secondly, it allows us to assess each library cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
Culture, Media and Sport Committee: Evidence Ev 39
13 March 2012 Ed Vaizey MP authority’s decisions. Despite the fact that people like they want to protect the library service, or that to describe me as inactive and standing by, my primary school children do not fill in council surveys officials have sat down with, I think, seven local to explain why perhaps they pop into a library on their authorities that have been high profile in terms of their way to school or on their way back from school. There decisions about their library services, and discussed seems to have been a lack of direct communication the process that they have been through and the with the actual users of services in Brent. You have impact they think these changes will make. After they met representatives of Brent to discuss the library have done that, they will advise me on whether they closures, but have you met the campaigners who think there has been a prima facie case of a breach of opposed the actual plans, who are actually the users the 1964 Act. I think the 1964 Act still has import. As of the services, not the providers? I say, it provides a statutory duty. That was put up for Ed Vaizey: Mr Sanders, I have not met Brent. Brent’s consultation in the modernisation of libraries review council has been in to discuss their proposals with my at the end of the last Government. It was quite clear officials. I will have to double check whether Brent that nobody wanted that statutory duty to be removed campaigners have met my officials or not, but I took and I have made it absolutely clear that we will not advice very early on as a Minister about whether I remove it. Secondly, it allows my Department to should meet both councils and campaigners. I was engage with local authorities to review their plans. advised, and I agreed with that advice, that that would prejudice my decision. As the Minister, where I have Q167 Mr Sanders: When you were calling for to take a view on the advice given to me by officials, intervention in the Wirral it was because the council it is arguable, and I agreed with the argument, that if was proposing to close nearly half of its libraries. We I met campaigners, that could somehow prejudice my are aware of the situation in a London borough—the decision. If I met officials from councils, that could London Borough of Brent—where the council has prejudice my decision. I have taken a view that I closed half its libraries. What do you think are the key should keep at arm’s length from the organisations differences that mean intervention was appropriate in involved in the various campaigns, but that I should 2009 but not in 2011? take advice from officials about whether or not they Ed Vaizey: As I say, the key difference was that the believe, on the basis of their investigations, that there Wirral had not undertaken any kind of a review of its has been a prima facie breach of the comprehensive library service. It had not looked at how it would and efficient duty. That is the position I have taken. engage with different demographics in the Wirral, be You mentioned specific issues about whether Brent it older people, younger people, unemployed people, properly consulted. As I say, I do not want to dodge disabled people and so on and so forth. That was the question in any way, Mr Sanders, but we have not absolutely to the fore of what Sue Charteris concluded yet made a final decision on Brent. What I would say in her review. By contrast, and I think it has been is obviously there have been two extensive judgments made clear in the two court judgments, Brent has in the High Court and the Court of Appeal examining undertaken a very significant and extensive review of how Brent went about its decision-making process. its library service. I maintained in Opposition and I maintain now that closing a library is not a breach of Q169 Mr Sanders: This goes really to the heart of the comprehensive and efficient statutory duty. There the issue because what you seem to be saying is that is a library authority in London, Tower Hamlets, if the courts were okay with the decision, the which closed half its libraries and has now renamed Government is okay with the decision. The breach of them “ideas stores”. Whether it is appropriate to call the duty is a matter for the courts, yet Justice Ouseley, a library an “ideas store” causes some vigorous debate when he ruled on the judicial review of Brent in library circles. If you look at the figures for visits Council’s decision, said that it is for the Secretary of to libraries in London, you will see the Whitechapel State to decide what to do, and the duty was not dealt library is the third most visited library in London. If with by the court in the way that the Secretary of State you go and visit the ideas stores in Tower Hamlets, has to deal with it. Is there a glimmer of hope that you will see it is virtually standing room only. They you may yet intervene in Brent? are extremely popular libraries. Sometimes you have Ed Vaizey: I do not think I was saying that, with great to make tough decisions. I do not want to dwell on respect, Mr Sanders. What I was saying was that, in Brent because, as you know, we have issued a letter terms of how I would engage with the community, it in which we have said we are minded not to call an was particularly your reference to the Asian inquiry into Brent, but we have given people time to population that was addressed in the High Court put in submissions to us on the basis of that and we judgment. We have to analyse in the Department will have to evaluate those submissions and then take whether or not we believe there is still a a final decision. comprehensive and efficient service after the changes have been made, and we absolutely understand that Q168 Mr Sanders: I know it is awkward for you to the courts have made it clear that that is a decision for talk about Brent, but it does really go to the heart of us. The process of consultation can still be subject to this issue because needs assessments seems to be the judicial review, just as any consultation process difference and actually what is a needs assessment? If undertaken by any council on any part of its you think of a community such as Brent, it is hardly responsibilities can be subject to judicial review. surprising that, for example, older Asian people, who may not have English as their first language, will not Q170 Mr Sanders: When you were appointed as the be filling in council survey forms that explain why Minister, you described yourself as a champion of cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP libraries. How many library closures have you authority service, and I could not conceive of a local stopped? authority service being run without the support of Ed Vaizey: Well, I think that it is clear that I regard professional librarians. Does that mean that there has myself as a champion of libraries because I believe to be a professional librarian present in every library we have a very effective library service across the at every moment that the doors are unlocked and the country. The first speech I made as a Minister was public are coming in? No, I do not believe that. There about libraries. The second thing I did was set up the has always been a debate about the balance between Future Libraries programme, which was to get the professional librarians and volunteers. I was struck, Museums, Libraries and Archives Council to engage for example, by reading the Bourdillon Report, which with councils on ways that they could provide I know is probably bedside reading for most of the innovative library services. One of the things that Committee. It was published in 1962 in the run-up to came out of that, for example, was the tri-borough the 1964 Act, and even then, 50 years ago, they were merger of library services, which I know the Select talking about the opportunities to economise on Committee has heard about. I know that you had the professional time by using non-professional staff. It is councillor from Kensington and Chelsea in to give clearly an issue, when you have highly qualified, evidence. That was Westminster, Kensington and highly trained librarians, who quite rightly are an Chelsea, and Hammersmith. They claim they saved expensive resource because they deserve to be well £1 million by doing that. Does that mean that by doing remunerated, whether you can deploy them across that that they have kept libraries open? Perhaps it every library in a local authority area. Do I believe does. Would I want to claim credit? Well, you have that professional librarians lie at the core of the local three very go-ahead, dynamic, Tory-led councils, authority service? Of course I do. which, I think, should claim the credit for running a very dynamic library service. Do I think the Future Q172 Mrs Mensch: It does not worry you then that Libraries programme has made a difference? Yes, I the number of professional librarians has declined? do. Do I think that moving libraries to the Arts Ed Vaizey: Well, I know that Annie Mauger presented Council, where we bring together local cultural her evidence to this Select Committee, and I have the provision with local library provision, will make a highest regard for Annie Mauger, not least because difference to library offers? Yes, I do. Will the fact she is sitting behind me as I say this. She represents— that the Arts Council is now spending more on and there is a clue in the name—the Chartered projects like the Future Libraries programme—which Institute of Library and Information Professionals and it now calls the Libraries Development Initiative— I do not think she would be doing her job if she was help libraries? Yes, I think it will. Will the survey and not alerting people to what she perceives as concerns analysis that the Arts Council is now going to about a decline in the number of professional undertake about the configuration of library services librarians in local authorities. But we have to be in the future make a difference? Yes, I think it will. realistic and I think we have to use that resource as Will the fact that libraries will be encouraged to apply effectively as possible. for grants from the Arts Council, from Grants for the There are huge opportunities as well, on which I think Arts—which they have always been able to do but it is important to reflect. One of the depressing things had not perhaps realised—and that the Arts Council is about the discussion about libraries is that it is stuck now going to write to every local authority to make in this binary debate about closures and a crisis in the that available and provide a fund for libraries make a library service. I think we should be thinking difference to libraries? Yes, I think it will. Does the creatively. If professional librarians can train up fact that every council knows that when it makes volunteers, you could potentially open more libraries changes to its library provision, it will be called in by in local authority areas. If you said that not every my officials and asked to explain them and see them library is going to be an absolute bells and whistles through; that that I have written to local authorities library staffed by professional librarians, you could on, I think, three occasions to remind them of the have more libraries. If libraries are about books and Charteris Report, of their statutory duty, and of the promoting literacy and promoting a love of reading, I opportunities they have to provide a modern library think we should think creatively. I was monstered, of service, make a difference? Yes, I think it does. But course, when I gave a speech where I cited a library could I point to a single library that I can claim sole in a pub in North Yorkshire. People said, “What an credit for saving? No, I cannot. idiot, how can he possibly be talking about a library Chair: I think we will want to explore some of those in a pub?” Well, I was intrigued by a story the other points in more detail in due course. day—I think it was about Philadelphia, where they have a library in a phone box. People donate books, Q171 Mrs Mensch: We are going to come on to the there is a shelf of books by the bus stop, people elasticity of the term “comprehensive and efficient”— borrow the books, but inside the book it says, “This Ed Vaizey: We are indeed. is where your local library is”. It is a promotional tool. Mrs Mensch:—in some detail later. One of the many I think we should see books everywhere. I think we things that it does not specify is how integral to a could see libraries in village halls. In Cholsey in my comprehensive and efficient library service constituency, the council would not open a library and professionally trained library staff are. How integral there has never been a library in that big village, but to such a service do you think they are? a library has been opened. They have done it with Ed Vaizey: I have always maintained, Mrs Mensch, books that they have borrowed, and some books that that professional librarians are at the core of any local they have bought. I think that councils should be out cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP there offering the services of professional librarians to Q174 Steve Rotheram: Minister, excluding libraries support those libraries by giving advice and training, in phone boxes, some have argued that volunteer-run by potentially providing equipment, by providing libraries will diminish community access to a access to the book stock. I think there are huge professionally run library service. How concerned are opportunities out there if only people would grasp you about that contention? them. Ed Vaizey: I think I have covered a lot of that ground with the questions that Mrs Mensch asked me just Q173 Mrs Mensch: A very small proportion of now. I do not think that volunteers are a threat to library budgets, 9% I believe, is spent on books. One professional librarians and I think in a funny way, of the most significant expenses in the library service although library campaigners will probably take great is professionally trained staff. What long-term impact umbrage at this, volunteers provide a huge do you think on library services a reduction in opportunity for professional librarians. It gives them professional staff will have? This is not to imply that another string to their bow to say that we can be a it will necessarily be a negative impact, but just to ask support network for volunteers who want to run for your assessment of it. In the last evidence session, libraries. There are plenty of examples of community Dr Coffey gave the example of an authority where the libraries up and down the country that have been number of professional librarians had been reduced highly successful. There are examples where libraries but footfall had actually increased, presumably by that have been taken over by the community end up increasing the spending on stock to give a wider range opening longer and having a book stock that is more of books. Has the Department done any work in terms in tune with what people want in the local community of looking at the impact of the reduction in the number because it is run by people who are on the ground, by of librarians on the service as a whole in the long neighbours and friends. I have village shops in my term? As a corollary, is it the feeling of the constituency that are run by volunteers, but that does Department that, as you appear to indicate in your not prevent people from having access to professional answers, a little may go a long way and that perhaps retailers. I think a balance has to be struck. If there is resources are better spent on other things? a message I want to get across to the Select Ed Vaizey: As I say, Mrs Mensch, I think we have to Committee, it is that we should not see it as an either/ be realistic and we should not let the best be the or situation, that we should not see an increase in enemy of the good. I would be delighted to work with volunteering in libraries as somehow a failure of the Annie Mauger on the basis of the research that she library service. I think it is an opportunity for the has undertaken to look at how significant this issue is, library service. and to engage with the Arts Council to put it on their agenda to communicate to local authorities where Q175 Steve Rotheram: I think the reason that there there might be concerns about a reduction in is such interest in this particular aspect of it is to get professional staff. But I would also say that people into the Government’s mindset on this particular topic. should meet halfway. I do not think people should say To what extent is the introduction of community-run that having volunteers in libraries is a disaster. There have always been volunteers working in libraries. libraries a means of replacing a professionally run There was a quote from a prominent library library service with a free one? campaigner describing volunteers as sad people with Ed Vaizey: I think they are almost sequential empty lives. I think you all know as MPs and decisions. When a council examines its library service members of this Select Committee, that our and decides what it regards as a comprehensive and constituencies, our local communities would not efficient library service, taking into account all the function without the dedication and support of range of factors, including the resources available to volunteers, whether it is in the Citizens Advice Bureau it, it makes a decision about what is appropriate. If or, indeed, the Women’s Institute and other there is then an opportunity for a library that might community organisations that exist. I think we should shut its doors to remain open because the community not see this as an either/or—either you have a library is prepared to take it on, as has happened in many service completely supported by professional local authorities over the last couple of years, that librarians or you have a library service completely opportunity should be seized where it is possible and staffed by volunteers. where it is viable. I think that councils should see I also think we need to look beyond volunteers and themselves in a position of supporting that, whether professional librarians to think about people trained to or not it provides, for example, a peppercorn rent, or engage with their communities. I am sure you have training and advice from its professional staff, or been given the example of Hillingdon time and again. access to its services at a reasonable rate. I do not I think one of their focuses is on issues such as regard community libraries as replacing the customer service and engaging with library users, not comprehensive and efficient library service that a just in terms of books, but in terms of access to council is under a statutory duty to provide. We would community services, adult education, health and so not take a decision in the Department not to hold an on. There are many different kinds of professionals inquiry into a library service if they came to us with who could engage with libraries, but we should also an argument saying that it does not matter because a not be embarrassed to say that volunteers are an lot of our libraries are being run by communities. We important part of the mix for libraries. would still want to see a comprehensive and efficient Mrs Mensch: Absolutely. local authority-run service in the local authority. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP
Q176 Steve Rotheram: But it appears that you are through whether there are better ways of having legal arguing that you do not believe that local authorities entities that can do this. are getting rid of professional library staff because Ed Vaizey: Well, the Red House is closed for they can replace them with volunteers. refurbishment, but I am hoping to come up to Ed Vaizey: No, I am saying that local authorities Aldeburgh either for the festival or the Aldeburgh should be using their professional library staff as Proms, and I would certainly be delighted. effectively as possible. I said earlier that if there is a Dr Coffey: Lovely, thank you. significant problem in terms of reduction in professional library staff, I would be very happy to sit Q180 Chair: Can I explore a little further what my down with Annie Mauger and CILIP to discuss that colleague Mrs Mensch described as the elasticity of issue and to sit down with the Arts Council to see the definition of “comprehensive and efficient”? Do whether it was an issue that bore closer examination. you think it is satisfactory that the Act, while requiring a comprehensive and efficient service, Q177 Steve Rotheram: Are there any plans to do provides no real guidance about what that means? that because that is the argument— Ed Vaizey: That is a very important question, Mr Ed Vaizey: Yes, absolutely. Chairman, and it is something I will be very interested Steve Rotheram:—and it has been around for some to see the Select Committee’s conclusions on. If you time, so there should be some plans, something look at the history of the Act, and the technical concrete in place to enable you to do that. definition of “comprehensive and efficient”, based on Ed Vaizey: As I said, I am very happy to do that and the Roberts Report and then the Bourdillon Report that will now happen. that followed on from that, “comprehensive” was to do with the stock of books. I think you have to Q178 Dr Coffey: Minister, Suffolk County Council remember that even in the 1950s, books were an went through a process that could have seen a expensive resource and not every household could significant number of libraries closed if not taken on simply go out and say, “I will buy five or six by the community. But after consultation, quite a bestsellers this weekend”. “Comprehensive” was different model has come out—the Industrial and focused very much on the spend by local authorities Provident Society as a legal basis, where we now have on book stock and how many books they should stock. a volunteer chairman, who is chairman of the board It was not focused on buildings. “Efficient” was to do of this new limited company. Given that the county with library authorities, and really the Act emerged council is effectively contracting for its provision, do because of a need to reduce the number of library you think that is a successful way forward that other authorities. Because over the previous hundred years, the way that libraries came to be provided was by local authorities could embrace? Parliament allowing different local authorities to raise Ed Vaizey: We have never shied away from the fact rates to pay for libraries. You ended up having whole that local authorities could look at a range of different multiple tiers of local authorities, some local models, for example the tri-borough service that I authorities at the time with fewer than 30,000 mentioned, in terms of who actually runs their library residents, being technically a library authority. I think service. We would certainly encourage local at the time of the report there was something like 450 authorities to co-operate and possibly merge their library authorities. So that was that. library services, in effect virtually if you like, while Now, clearly, I think in 2012 that definition of retaining democratic control. In Hounslow you have a “comprehensive and efficient” leaves a lot to be private contractor, John Laing, running their library desired. The Charteris Report is an important service. Now we have the model that is coming contribution to library policy, and it provides very forward in Suffolk. Provided the local authority is good guidance on what we would consider to be providing a comprehensive and efficient library comprehensive and efficient in that it makes it service in keeping with its statutory duty, who it absolutely clear that councils should be thinking about decides should run that, whether it runs it in-house or their library service in the round, not just about contracts with either a not-for-profit, a mutual or a buildings, but that they should be reviewing their private company, should be a decision that the local library service and examining whether every part of authority is free to take. I think, although people might their community has reasonable access to library raise an eyebrow at this, in terms of the silver lining services. to the cloud that appears to have descended on the I think you are right, Mr Chairman, it is an elastic debate about libraries, if different models of provision definition. We have taken the view that we want local come forward, that is very exciting and interesting and authorities to have relatively wide discretion in how we should look at them and encourage their success they do that. It just happens to be a belief of mine that rather than immediately predict their demise. local authorities are the ones who provide the service. Of course, it is worth reminding ourselves that Central Q179 Dr Coffey: I think certainly in Suffolk it will Government has never paid for local libraries in terms not become fully operational until June 2012. of a ring-fenced grant or direct subvention. It has Currently, the structures are limited by what is already always been a case of allowing local authorities to in existence. Would you, perhaps if you were visiting raise the money to pay for libraries. It is also worth the Red House at some point, meet Clive Fox, the new remembering that libraries really took off when chairman, who is also in Aldeburgh, just to have a philanthropists like Andrew Carnegie came to the chat about structures? Perhaps the DCMS could think table with money. There was often a reluctance on the cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP part of local authorities to build public libraries until inquiry, that does not necessarily guarantee that it Carnegie effectively said, “Here is a cheque”. We would find against the local authority in question. I have given them a wide discretion. Of course, the last think there is a kind of assumption that the minute a Government had public library standards. They were public inquiry is called, it would find against the local changed quite frequently and they were eventually authority, and that is not necessarily the case. The dispensed with because it was felt again that there was onus on deciding whether there is a breach remains too much central control, too much box ticking, they firmly with the Department. I think that is absolutely were hard to enforce, they were observed perhaps appropriate based on advice from officials. The more in the breach than in the observance. opportunity and the role for the Arts Council is to With the Charteris Review and with, for example, spread best practice—to show local authorities what guidance that was published by the MLA before we successful library authorities look like. That is a role merged its functions with the Arts Council, as well as, that is developing. As I said earlier in answer to Mr of course, guidance from CILIP about what kind of Farrelly’s question, there will be elements of that, for services local authorities should be providing through example, where we sit down with CIPFA and the Arts their libraries, local authorities have a pretty good idea Council and look at how we can use statistics of what they should be providing. I would be reluctant potentially to provide a more objective guidance to to go down a route that effectively set out a tick-box local authorities to assist them. menu of what a library service would provide because That is a very longwinded answer and the short I think that could stifle innovation and constrict answer would be that I want to see the Arts Council flexibility. It is an important question to reflect on. supporting local authorities. Again, I think we should try and move away if we can from a view that the Q181 Chair: You said that you had written I think Department and the Arts Council are somehow pitted several times to local authorities to draw their against local authorities, looking for people to upend, attention to the Charteris Report, but you do not see as it were. It is just as important, I think, to celebrate any need for the Department itself to produce broad the success of good local authorities that are providing guidance as to what in your view “comprehensive and great library services and to disseminate that good efficient” means? practice and remind people that this is a service on Ed Vaizey: I think that is an open question, Mr which almost a billion pounds is spent every year, and Chairman. What I would say is that quite genuinely to which there are a quarter of a billion visits by one of the things that I want to do is see what the adults. Book lending is still very high and, as you said Select Committee concludes in its report. Since 2010, in your opening remarks, Mr Chairman—I think it we have engaged closely with local authorities and was you; it might have been Mr Farrelly—library provided guidance. We have moved, as I say, the services remain very resilient in the 21st century. functions of the Museums, Libraries and Archives Council to the Arts Council, and the Arts Council has Q183 Dr Coffey: I hear what you say, Minister, very ambitious plans as to how it wants to support the about how things are reviewed, but given the lack of local authorities and library services. I always said in intervention by the Secretary of State is there not a Opposition that what I would like to see is a libraries risk that these superintending powers in the Act are development agency and I hope that the Arts still needed? Are they not giving false hope to people Council—I expect the Arts Council—will fulfil that that the Secretary of State might come in and rescue function. It may be that after we have received your the day? report, we reflect on whether it would be appropriate Ed Vaizey: Well, Dr Coffey, I do not think library for the Department to undertake a fundamental review campaigners would necessarily take the view that we of library policy. That would also potentially coincide have given them false hope. As I say, the opportunity with the research that the Arts Council is doing on I have in the time before you this morning is to make what a library service will look like in the future. it very clear that we are not sitting idly by, that we engage with every local authority that is putting Q182 Chair: The Arts Council have told us very forward proposals to reorganise its library service. clearly that they do not have a role in overseeing Some people do not agree with us when we do not libraries, which did exist previously to some extent call them in for a public inquiry, but that is a matter with the MLA. Does that not also make it harder for of opinion. I have the utmost respect for the people local authorities who are now just expected to decide who are campaigning for their library service based for themselves what the Act requires and if they get on their perspective in their local authority area, but it wrong they will lose at judicial review? the Act is very important. I think the statutory duty Ed Vaizey: I think the Arts Council is right in the is very important. I think the engagement with our sense that that role is now very firmly with the Department is very important. I read the transcript of Department, that we look at each authority’s proposals the evidence you received from some of the local and we take a view based on the evidence and our councillors. There is an interesting debate going on, if engagement with those local authorities—and I stress you like, a perspective certainly from local authorities the officials engaging with the local authorities—on that would like the Act repealed. They do not want a whether there has been a breach and whether there superintending duty. They do not want it to be a should be a public inquiry. Of course, it is worth statutory duty. They want complete freedom, so they saying perhaps as an aside, as you all know there has regard it as frustrating that they have to account to us. only ever been one public inquiry. It is also probably I would say it is good that they are frustrated that they worth making the point that when you call a public have to account to us because it shows that we are cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP taking an active interest in what they are doing. I do Q187 Paul Farrelly: I just wanted to ask a question not think that superintendent function is redundant. I I asked previously. Why do you think that you and am not sure the exact question was asked in the Jeremy Hunt are better superintendents than Mr transcript, but I think it is in the mind of every local Pickles? authority when it looks at its library service: will we Ed Vaizey: Well, that is a very good question. I do not breach our duty? What will happen if we go too far? necessarily think we are better than Mr Pickles if you Will we be called in by the Department? are talking about individual personalities. I do not know how local authorities react when they get a letter Q184 Dr Coffey: I think in the evidence that from me, but I can imagine that a letter from Mr Gloucestershire submitted, that is probably the case in Pickles would be a lot worse, although I notice they terms of councils being better placed than the have not taken him up on his offer to collect his Secretary of State to take into account local factors in rubbish once a week. their areas and to identify solutions that take those needs into account. It has already been well stated that Q188 Paul Farrelly: Let’s talk about Departments, there is quite a minefield. You suddenly have some then. judges making decisions on particular matters and Ed Vaizey: It is a good question. I was intrigued that saying the other councils should take note, and yet at the last Select Committee inquiry in 2005 and the other judges are saying that the submissions are fine. inquiry in 2000, you had evidence from the Education Is there not some case for guidance to be issued on Minister and from what was then the Office of the what is acceptable as opposed to just one judge’s Deputy Prime Minister. I think it is important that we opinion at any one time? work across Departments. I encourage local Ed Vaizey: We have tried to remind local authorities authorities to work together. I think it is important of their statutory duty. We have told them that they that the Department for Education, the Department for should be looking at the Charteris Report when they Communities and Local Government and the undertake their reviews, but I am reluctant to say, Department for Culture, Media and Sport all work “This is how you will configure your library service together to have an input into library policy. The fact and here are 10 key things you must do” because that that libraries are now within the Arts Council totally contradicts the fact that it is a local authority strengthens the case for the Department for Culture to service. We have always made it quite clear that a maintain that function because, as I say, it is bringing library service, albeit that it is a statutory duty and together local cultural provision with local library that we have a superintending function, is first and provision in, I think, an exciting and new way. foremost a local authority service paid for by the local authority council tax payers. What the local authority Q189 Paul Farrelly: Would you agree that in this service looks like in Suffolk could be very different role then it is incumbent on you to monitor what is from what it looks like in other parts of the country. happening? Let’s pick a convenient date of two and a We have provided clear guidance. I have said in my half years, say by the end of 2014. Will you commit response to the Chairman that we will take very to producing a report monitoring what has happened seriously this Select Committee’s report and we will just to make sure that all these worthy initiatives, reflect, particularly on the basis of that report and on whereby volunteers are asked to raise money to the Arts Council’s report, on whether we need to go maintain and run libraries, do not wither on the vine? further. Will you make that commitment by the end of 2014 to produce a report in your role to see what the Q185 Dr Coffey: One final question on the Act, Mr cumulative impact has been on libraries, whether good Chairman. When all this consultation was going on in or bad? my county there were people saying one of the ways Ed Vaizey: As you have asked so nicely, Mr Farrelly, we could raise some money was to charge. I think the I will commit. A flurry of activity from my officials; model is that the county council spends 95% and each absolute horror—they will have me out the door library group will be asked to come up with 5%, either within a minute. through precept or generating revenue through cafés, rentals and things. The 1964 Act is very clear. It has Q190 Damian Collins: I just want to go back briefly to be free for books. Is there a reason why perhaps to the Arts Council, which, I am sure, will be that could not also be discretionary? Do you anticipate interested in your new announcement as well. The any update in the 1964 Act in that regard? funding they have in their role overseeing libraries Ed Vaizey: No, we do not anticipate introducing works out at about £70 per library in the country. Is charges for books within the comprehensive and there a danger that the Arts Council’s role will just efficient local authority service. In fact, we are not end up being neither one thing nor the other? going to, let me put it bluntly. Ed Vaizey: I think that was a helpful statistic provided by Alan Davey, the Chief Executive of the Arts Q186 Dr Coffey: No, I expect you would not, but Council, who is a great friend of mine so I hope he you are happy for charges to be made on other items will not mind my raising my eyebrows there. I think from the library? there has been a comparison of the grant in aid that Ed Vaizey: That is how things have emerged and there the MLA had and the grant in aid that has been is not a great groundswell of opinion as far as I am transferred to the Arts Council. To a certain extent it aware to make, for example, the borrowing of a DVD is apples and oranges there. The MLA already had free of charge. reduced in size by half when we came to power, but cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP they had a strategy whereby everyone covered all the have any concern about their skill base and the bases, as it were. You did not have a group of library breadth of their knowledge? staff and museum staff and archive staff. You had Ed Vaizey: I do not want to sound complacent. I do people who were covering all the bases but having not have huge concerns. Another strength of the Arts particular areas of expertise within that. Council is that it is very self-aware. I think it is aware I think the Arts Council has the resources. Unlike the of where it might have weaknesses and will look to MLA, which closed its regional offices, it still has cover those, either in-house or by partnering with regional offices up and down the country. It will have appropriate organisations that could cover that someone in those regional offices, as I understand it, expertise. who will have a focus on libraries but, even more importantly, I think, is able to engage with their peer Q193 Damian Collins: Just a couple more questions. group across a range of different cultural activities that What response have you had from the LGA and local they are engaged in supporting. I do think the Arts authorities about this change? Because some local Council has the resources. Also, the funding for the authorities might think they are perfectly capable of Arts Council remains pretty generous despite these doing this by themselves and do not really want the austere economic times. The amount of lottery Arts Council sticking their nose in. funding, as you know, Mr Collins, has increased Ed Vaizey: In terms of moving the resource to the substantially. For example, Grants for the Arts, which Arts Council, we have not had any pushback as far as is a very important programme to support arts I am aware. I will check my records but I am not programmes, is available to libraries and will be aware of any. In fact, I think most people regard it as extended quite clearly to libraries going forward. a positive move. I have the highest regard for Roy There will be a great deal of resources and I think it Clare, the Chief Executive of the MLA when we is already the case that the Arts Council is spending wound it up, and many of the staff who worked at the more in terms of the projects it is supporting for MLA, but I think people were not convinced it was a library authorities in the library development robust enough organisation. I think now people feel initiative, the analysis of the library of the future and that, with the Arts Council, which has a pretty good so on than the MLA was spending. The Arts Council reputation compared with what it was five or six years is a very serious organisation. It is in a very good ago—we should also not forget that local authorities place at the moment in terms of how it is run and how are used to working with the Arts Council on cultural it is dealing with quite complicated and tricky issues. provision—this is an opportunity. I have very strong confidence that they will bring a fresh pair of eyes to the whole issue of libraries and Q194 Damian Collins: Just finally, you touched configuring library services. I hope that local earlier today on the tri-borough plan in Central authorities will see them as a great ally and resource London, and that is something we have taken evidence going forward. on. Do you think either through the Arts Council or from your Department there should be greater Q191 Damian Collins: Given the resources, do you encouragement for local authorities to look at think their role is going to be as a spreader of best combining the library services to create efficiencies practice rather than a body that is going in to help turn that they can spend on the front line? around library services in an ailing authority? Ed Vaizey: The honest answer is yes. It is a very, very Ed Vaizey: Yes, I think that their main function should contentious point, in the circles that I move in, as it be to disseminate best practice. We should obviously were. It is not necessarily something they talk about tread carefully—I do not think we should go in, as it down the Dog and Duck, but you are treading on the were, à la Ofsted or whatever. I think we should use toes of local authorities by saying that they should the Arts Council to collect and disseminate best merge. However, I think that we should look at the practice but to be seen as a resource. As I say, if we statistics, look at the provision, and where we see can identify local authorities that are not performing obvious opportunities for merger, we should as well as we think they could perform, I hope that encourage them. We also have to be mindful of not the Arts Council would make the offer that they could treading on the sovereignty of local authorities. Each come in and provide support. I think there will be local authority is accountable to their local population resource behind that to, say, take local authority and ultimately I think it is a decision for them whether leaders who are running a very effective library they seek to merge services. We should not forget that service in terms of the professional librarians who are there is a great deal of co-operation that now goes doing that in a given local authority and encourage across local authority boundaries. Westminster, them to work with local authorities where we could Kensington and Chelsea and Hammersmith have make good headway. taken it to the next logical stage, but you have the London Libraries Consortium, you have SPINE in the Q192 Damian Collins: Do you have any concerns East of England, you have the Manchester regional that given the Arts Council’s main field of expertise councils working together. A lot of progress has been they may have strong points of view on collaboration made. There may be areas where we could encourage between local art collections and historical collections people to go further. and books but may have less of an insight on the role of services that are used to support staff at businesses, Q195 Damian Collins: Do you think that is similar to the facility provided by the British Library something that the Arts Council will recommend to and some of the regional libraries as well? Do you authorities using its new role? cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:28] Job: 018663 Unit: PG03 Source: /MILES/PKU/INPUT/018663/018663_o003_th_Corrected transcript CMSC 13 March 2012.xml
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13 March 2012 Ed Vaizey MP
Ed Vaizey: I think the Arts Council would be reluctant That goes back to the earlier point that I was making to do that. I think that should probably be something to Mr Farrelly: we need to look at the CIPFA statistics that we in the Department would look at taking and see when you drill down into them, working with forward if we thought there was an opportunity. CIPFA, what they actually flag up in terms of spending. I think Boris did mutter about two years Q196 Chair: Just on that, you talked about further ago—I think he said at an after-dinner speech that he progress can be made. I wonder if you saw the article wanted a London library service. I have not heard by Tim Coates, the former head of Waterstone’s, who anything since and I did not see it in his 10-point plan suggested that, if you brought together the library to be re-elected as mayor, but we will see if it gets services across all the 33 London boroughs, you could raised in the run-up to the election, and how the save £80 million on operating them as a single service London boroughs react when he raises it. under the control of the Mayor of London. Is that something you would look at? Q197 Damian Collins: I think it is a nine-point plan, Ed Vaizey: I saw the article, Mr Chairman, because I I do not think there is a number 10. got sent it by a man called Desmond Clark. I do not Ed Vaizey: Oh, is it? I have never heard of anyone know if you have come across Desmond Clark. going to the electorate with a nine-point plan. Only Chair: I think he sent it to me as well. Boris could go to the electorate with a nine-point plan. Ed Vaizey: I would urge you to get on his email circulation list because it is the best press cutting Q198 Chair: I do not think we have any more service for libraries that you can get and it is an questions, so I thank you very much. example of the big society in action. If we tried to get Ed Vaizey: Thank you very much, Mr Chairman. a similar press cutting service in the Department it would probably cost us about £4,000 a month. cobber Pack: U PL: COE1 [SO] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Written evidence
Written evidence submitted by The Reading Agency This submission comes from The Reading Agency, an independent charity with a mission to inspire more people to read more. We specialise in working with the public library network because we believe it is vital that everyone has an equal chance to become a reader. We work extensively with all 152 English library authorities, helping them improve the social impact of their reading work and save money through: — Major programmes shared across the network, like the children’s Summer Reading Challenge and adult literacy Six Book Challenge. — Brokering library partnerships with broadcasters, publishers and others to improve the public’s reading and learning experiences in local communities. — Training, research and advocacy. — Innovation and new thinking in key areas such as reading and public health. Knowing that the Committee will receive a large number of responses, we have focused our submission on the specialist areas where we can provide most evidence and experience. Our Director, Miranda McKearney OBE, gave oral evidence the last time the Culture, Media and Sport Select Committee tackled libraries, and would be delighted to do so again. Our main points are: — Closures are a major concern, but other less visible cuts, especially to staff, opening hours and the materials fund, will also erode the effectiveness and appeal of the service. — It is important to distinguish between different types of closures. Not all change is bad. — The issue of cuts should be addressed in the context of a strategic plan for the whole library service with the right mixture of local, regional and national planning. — There is a pressing need for a national vision for improvement working alongside and informing local authorities’ responsibilities. Libraries need the same kind of attention as museums had through the Renaissance programme, and interventions such as The People’s Network. — Evidence shows the profound social problems posed by low literacy levels. Local communities will suffer if libraries’ ability to support reading and literacy is damaged. — Damage to libraries’ reading service will withdraw vital support for communities in other important areas, including health and well being. — The 1964 Act unfortunately does not define comprehensive and efficient, so libraries’ support for reading and literacy has never been properly defined. We set out a definition of a 21c reading service. Digital provision will be vital to the future relevance and appeal of libraries.
1. Library Closures in the Context of Cuts In the current circumstances we believe it is unrealistic to argue against any cuts to library budgets or changes to the way library services are provided. Without cuts libraries would still need to change to meet changing social needs and lifestyles, including digital demands. The issue of cuts should be addressed in the context of a strategic plan for the whole library service which focuses on the needs of local communities. There needs to be the right mixture of local, regional and national planning. There is a pressing need for a national vision for improvement working alongside and informing local authorities’ responsibilities. Wales has an interesting model. Libraries need the same kind of attention as museums had through the Renaissance programme. The People’s Network was a national intervention which profoundly improved the local service.
1.1 Less visible cuts Library closures are the focus of most public campaigning. But the library service consists of more than buildings. We urge the committee to look at the impact on local communities of cuts overall. Many local authorities will avoid closing any libraries because of the resulting public outcry. But cuts to staffing, opening hours and material funds can result in library services becoming a shell which cannot begin to provide a comprehensive or efficient service. Staffing cuts can also erode the library service’s ability to tackle disadvantage, when outreach and community liaison posts are lost. In the short term the service may look viable, but in the medium to longer term its effectiveness and appeal will be eroded. It is often difficult for library supporters to know how best to engage with local politicians. We suggest a list of questions such as whether library cuts are proportionate to other cuts; whether the authority has a strategic plan for the service and what it consists of; whether local people have been fully consulted and a needs analysis done; if buildings are being shut, whether a service is being provided somehow for the affected cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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community; how communities running libraries might still benefit from the central, professional support of the council’s library service. We hope more councils will explore radically different ways to run the service in order to preserve as much of the front line service as possible, eg by removing the costs of running separate library authorities as in London where Kensington, Westminster and Hammersmith are merging services.
1.2 Staffing cuts Working with every library service, we are constantly made aware of many staff cuts, and are particularly concerned about the loss of children’s experts. In the area of reading support, many services are saving money by creating new posts merging adult and children’s reading support. Libraries’ support for children’s reading is critical, and a major recent success story. Working individually and as a network, in the last 10 years library authorities have together transformed their work to create a lively, socially engaging offer to the public with a proven impact. There has been a focused explosion of baby rhyme times, reading groups, author events, summer reading holiday activity, children’s book awards and festivals. 77.9% of 5–10 year olds now use libraries1 and children’s borrowing has risen for seven years running.2 Careful strategic planning is needed to keep up the momentum of this work.
1.3 Not all change is bad To create a library service for the 21c, change will be necessary and it is important to distinguish between different types of closures. Whilst some local authorities are cutting library services disproportionately and taking deeply damaging decisions, others may be closing under-used libraries in the context of a coherent plan for the future which involves reshaping provision in line with changing population patterns and public need.
1.4 Case study in what must not be lost: libraries’ Summer Reading Challenge “Before the Summer Reading Challenge my son was a very reluctant reader, but now he seems to have found a new enthusiasm for reading which has carried on into the school term. His teacher has noticed how much his reading has improved.” Parent, Cornwall The Reading Agency started The Summer Reading Challenge 11 years ago by combining all public libraries’ summer holiday reading activity into one big shared scheme with massive economies of scale. The Challenge costs £1 a child. By using a shared scheme, local authorities achieve key outcomes for children at a sixth of the price of running their own holiday activities. The Challenge now runs in 97% of UK local authorities and last year involved 780,000 children. 55,000 children joined the library to take part.3 Children are challenged to read six books of their choice over the holidays and are rewarded with incentives along the way. They are supported by expert staff and motivational teenage volunteers. Research shows the educational importance of the Summer Reading Challenge. The combination of fun, freedom, and creativity impacts significantly on children’s reading levels, range, motivation and confidence. Taking part helps prevent the “summer reading dip” in achievement when children who do not have book/ reading opportunities at home over the long summer break from school traditionally lose ground in their reading. Children return to school better motivated and ready to learn.4
2. Impact of Closures and Other Cuts 2.1 Literacy issues Libraries’ support for literacy and reading in local communities has never been more necessary. The withdrawal of this support—whether through closures or staff and materials cuts—will damage people’s life chances and contribute to social problems caused by lack of engagement with reading. Those who argue that libraries’ support for reading is no longer needed in an era of mass paperbacks and new digital platforms seem to be unaware of statistics such as: — 70% of pupils permanently excluded from school have difficulties in basic literacy skills. — 60% of the prison population has difficulties in basic literacy skills.5 — One in four children leaves primary school unable to read properly.6 1 DCMS, This Cultural and Sporting Life: The Taking Part 2010/11 Adult and Child Report. 2 CIPFA October 2011. 3 Summer Reading Challenge Report 2011. 4 Summer Reading Challenge 2009 UKLA research. 5 Literacy Changes Lives, The role of literacy in offending behavior National Literacy Trust. 6 Evening Standard 31 May 2011. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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2.1.1 Importance of libraries’ reading for pleasure role There is overwhelming evidence that literacy has a significant relationship to a person’s life chances. There are clear links between low literacy and economic and personal deprivation.7 A person with poor literacy is more likely to live in a non-working household, live in overcrowded housing and is less likely to vote. Literacy skills and a love of reading can break this vicious cycle of deprivation and disadvantage. Yet: — More of England’s working age population are at the lowest level of literacy than in 2003 (1.7 million compared to 1.1 million) and there are still 15% (5.1 million) at or below the level expected of an 11 year old.8 — England’s reading achievement score for children has dropped from 3rd to 19th place and England is now outperformed by Russia, Italy and Latvia. — Only 40% of England’s 10 year olds have a positive attitude to reading. The figure for Italy is 64% and 58% for Germany.9
2.1.2 Libraries’ role Libraries have an extraordinarily wide demographic reach, and play a vital, socially equalising role by giving everyone in a local community access to reading materials, and specialist support to encourage reading for pleasure. Their work with readers builds people’s literacy levels, educational attainment and employability. It builds confidence, self esteem and well being, and provides vital lifelong learning opportunities for an ageing population. In the last 10 years a body research has confirmed how vital it is for children, young people and adults to enjoy reading. Enjoyment and motivation are essential to the acquisition of literacy skills. Reading for pleasure is more important than either wealth or social class as an indicator of success at school10 and reading books is the only out-of-school activity for 16-year-olds that is demonstrably linked to securing managerial or professional jobs in later life.11
2.2 Impact on other social issues in communities The impact for local communities of the loss of libraries’ support for reading goes far beyond literacy. It has implications for other social issues including community cohesion, employability, and health. In the interests of brevity, we take just one of these.
2.2.1 Health One in six people suffer from mental health problems12and there are huge associated costs.13 Libraries’ early intervention work with reading is important for local people’s health and well being. — Research suggests that regular reading is associated with a 35% reduction in the risk of dementia.14 It can reduce stress levels by 68%.15 — Taking part in social reading activity like reading groups can combat isolation, and develop mental concentration and mental agility.16 — Libraries help people develop the skills and confidence to manage their own health through health information, reading groups, mood boosting reading, and support for people who are housebound.17
3. 21C Library Services It is a matter of great regret that “comprehensive and efficient” has never been properly defined. The evidence from research into libraries’ reading programmes shows that a comprehensive and efficient 21c service in the area of reading and literacy must go far beyond the provision of reading materials. Libraries are in the process of creating a really exciting 21c reading service which needs proper strategic development, especially since some of the necessary digital work can only been done nationally (eg the provision of a national catalogue). 7 Literacy Changes Lives National Literacy Trust 2010. 8 2011 Skills for Life Survey: Headline findings Department for Business Innovation and Skills 2011. 9 Progress in International Reading Literacy Study, National Centre for Education Statistics, 2007. 10 Reading for Change, Organisation for Economic Co-Operation and Development, 2002. 11 Reading at 16 linked to better job prospects, Mark Taylor, University of Oxford 2011. 12 Psychiatric Morbidity Among Adults Living in Private Households in Great Britain, Office of National Statistics, 2000. 13 Paying the Price The cost of Mental Health Care in England, The Kings Fund, 2008. 14 Leisure activities and the Risk of Dementia in the Elderly, New England Journal of Medicine 2003, 348:2508–2516. 15 Research by University of Sussex, www.telegraph.co.uk/health/healthnews/507087/Reading-can-help-reduce-stress, March 2009. 16 Reading the Situation, Book Reading and Public Library Use, The Reading Agency/BML, 2000, Reading Groups and Public Library Research, The Reading Agency/BML, 2002, A National Library Development Programme for Reading Groups, The Reading Agency, 2004. 17 Public Library Activity in the Areas of Health and Well Being, Hicks, D, Creaser, C et al, MLA, 2010. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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The 21c library reading service should encompass: — Reading materials of all kinds and in all formats, and in relevant community languages. — Advice and support from expert staff including signposting to other relevant provision. — Social reading opportunities using the library as a shared community space—including reading groups and author events. — Imaginative promotions and activities to support wider reading. — The opportunity for the local community to get involved in shaping the reading activities on offer, and to play a volunteering support role. — Digital provision including e-books and digital reading experiences (author chats, online reading groups, book recommendations etc). — Special activities for specific audiences—eg baby rhyme times to support early language skills; special services for visually impaired readers. — Community outreach supporting reading and literacy. We are currently working with the Society of Chief Librarians on a shared definition of the 21c library reading service, as part of a bigger piece of work to safeguard and develop the reading service. The strategy is also designed to create economies of scale and maintain the value of partners’ investment.
In Conclusion Few other organisations from outside the public sector have the overview of libraries that The Reading Agency has. We have the capacity to give challenging but positive input to the work of the Select Committee and would be delighted to do all we can to help. January 2012
Written evidence submitted by the Chartered Institute of Library and Information Professionals (CILIP)
1. Summary 1.1 Comprehensive and efficient library services should — Be designed to meet the needs of local communities. — Be a professionally delivered service. — Be a key delivery mechanism for local solutions to the problems faced by disadvantaged communities in partnership with other local providers. — Do all this efficiently by ensuring that the best possible services are available at a cost that is acceptable and valued by local taxpayers. — Be led nationally and locally.
1.2 The Public Libraries & Museums Act 1964 and the Charteris Report — CILIP believes that the front loading of expenditure reductions creates greater risk of breaches of the Act. — CILIP is very concerned that library services should only be subject to proportionate cuts and that this is not the case. — CILIP believes that there should be clear evidence of a needs analysis before any proposals for library closures are made.
1.3 The impact library closures have on local communities — CILIP believes that the impact of closures and reductions in levels of service and staffing will be significant and damaging. — In 2011–12 those local authorities that responded to our survey have made or plan to make 909 staff reductions and reduce weekly opening hours by 2,438 hours. — The heaviest impact is on the young, the elderly and the unwaged. — Where buildings are not closed, cuts to services, resource funds (including book funds), opening hours, building maintenance and staffing are equally significant. — Many local communities rely on libraries as they do other community services such as schools or hospitals and see the cuts to libraries as equally serious. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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1.4 The effectiveness of the Secretary of State’s powers of intervention under the Public Libraries & Museums Act 1964 — The intervention powers of the Secretary of State under Section 10 of the Public Libraries & Museums Act 1964 are adequate for the leadership and planning required at national level. — The outcomes of the court cases and the judges’ view that their powers of judicial review are more limited given the Secretary of State’s duty of superintending the service, only highlight the ultimate responsibility of the Secretary of State to act. — It is now vital that the Secretary of State has a new framework within which the performance of public library authorities in meeting their obligations under the 1964 Act can be assessed. — The Government has a key role in ensuring public sector services are accessible and effective. We would welcome the opportunity to give further evidence to the Committee to support the recommendations that we make in this submission.
2. What constitutes a comprehensive and efficient library service for the 21st century? CILIP believes that a comprehensive and efficient library service in the 21st century will: 2.1 Be designed to meet the needs of local communities: by providing opportunities for learning and literacy development, access to information, knowledge and support for families and disadvantaged communities. Libraries must be at the forefront of digital innovation in the creation and delivery of services, mobile communications and e-content, becoming an integral part of a networked society, promoting the information literacy1 and digital skills necessary for participation. Libraries help to create literate and articulate individuals and communities that can better support themselves. 2.2 Be a professionally delivered service: by using the skills, experience and networks of professional library staff to shape services to the needs of local communities, engage them effectively in service development, and ensure safe and impartial access to services. Librarians are trained in these skills and work to a unique professional code of practice and ethical values. They bring expertise in reading and learning, acting as guides to the mass of data and online information that is increasingly used for decision making in daily life. Volunteers should not be a replacement for this knowledge and skill but can supplement and enrich a professionally led service. 2.3 Be a key delivery mechanism for local solutions to the real difficulties faced by disadvantaged communities in partnership with other local providers: by helping to bridge the “digital divide” libraries can support people to access and understand the wealth of resources available in the Information Age. In partnership with other agencies and services libraries can combat poverty and disadvantage, support social mobility and fairness, enable employability and economic self-sufficiency. Most library services have diverse established partnerships with providers of education and adult learning, health care, neighbourhood and policing services, youth intervention, community groups and business.2 2.4 Do all this efficiently by ensuring that the best possible services are available at a cost that is acceptable and valued by local taxpayers: by achieving economies of scale through consortium, collaboration and shared services. This is already happening as local authorities work in partnership to deliver further economies by sharing expertise and resources across library services.3 Much more of this should happen and could achieve real savings. 2.5 Be led nationally and locally: The library service is a national service delivered locally. It needs to have a national focus on the negotiation, development and delivery of electronic resources, membership promotion and the marketing of nationally-led services4 and country-wide lending of materials. Locally tailored services should be designed to support the community through work with children and families, reading and literacy initiatives and partnership development.
Recommendation 2.6 That the Secretary of State sets out a fresh vision for the 21st century public library service defining what comprehensive, efficient and accessible mean and forming a basis for local planning and delivery.
3. The extent to which planned library closures are compatible with the requirements of the Public Libraries & Museums Act 1964 and the Charteris Report 3.1 The high level of public interest and outcry from local communities clearly reflects a strong view that the closures of libraries and reduction of services are not compatible with user views of comprehensive and efficient services. 3.2 CILIP believes that the front loading of expenditure reductions creates greater risk of breaches of the Act: by not allowing sufficient time to reconfigure services effectively there are increased risks of the loss of comprehensive library provision. Decisions taken with limited information and options can have long term impacts. Reductions in staffing threaten many of the partnership programmes that allow libraries to make a significantly wider contribution, addressing social problems in disadvantaged communities. Closures, cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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reductions in opening hours and redundancies can only be justified within the context of a properly developed and endorsed local library strategy. Identifying efficiencies that do not impact on services is not a short term task.
3.3 CILIP is very concerned that library services should only be subject to proportionate cuts and that this is not the case: we acknowledge that in the current financial climate savings have to be made but we believe that there has been a disproportionate focus on library services. There are cases of political naivety about statutory duty and a lack of understanding of the role of the Secretary of State. There is a need for greater information and preparation among local authority councillors planning cuts to library services. Library services consume less than 2% of local authority budgets and draw more users than any other service of choice but are facing high levels of cuts. Our current research suggests that levels of cuts are significant across library services (see 4.1 below) and a 2011 survey of expected expenditure reductions by the Local Government Association suggests the same.5
3.4 CILIP believes that there should be clear evidence of a needs analysis before any proposals for library closures or service reductions are made. Recent Judicial Reviews6 support the findings of the Charteris Report7 that there should be a proper needs analysis informing the nature of the local library service. Any proposed changes to libraries should be articulated in a strategy. The Secretary of State has the power to act but the consistent application of the Act in terms of outcomes for communities requires articulation and a framework upon which the justification for intervention is based. England is now the only part of the United Kingdom without a national benchmark or assessment framework for its public library service8 and we recommend that this is introduced.
Recommendation
3.5 That the Secretary of State introduces a strategic framework for library services in England that can be used to assess the work that local authorities do in re-shaping services. This would enable the Secretary of State to ensure that any savings made in library services can demonstrate an assessment of need and impact and are part of a clear strategic plan in compliance with the 1964 Act.
4. The impact library closures have on local communities
CILIP believes that the impact of closures and reductions in levels of service and staffing will be significant and damaging.
4.1 In 2011–12 those local authorities that responded to our survey have made or plan to make 909 staff reductions and reduce weekly opening hours by 2,438 hours. CILIP is currently surveying all local authorities in confidence.9 The interim results show that nearly 80% of authorities have reduced staff, 30% have reduced opening hours and 65% of authorities are looking at alternative methods of service delivery and governance for their library services. Fourteen percent have or expect to close libraries and 13% have set up community managed libraries. The current response rate is 55% (that is, 83 out of 151 English authorities).
4.2 The heaviest impact is on the young, the elderly and the unwaged: Sheffield University’s Centre for Public Library Research undertook a series of research projects into the social impact of local libraries, including branch closures, in the late 1990s and early 2000s.10 This research is not recent because it is some time since there has been anything like the scale of library closures currently happening.
4.3 The research showed that 18% of those affected by library closures did not transfer their custom to another library facility; 44% of respondents said their children did not use alternative facilities; 35% said their children were using library facilities less; 36% of respondents felt their children were reading less. Teachers, parents and library staff expressed concern about the impact on literacy and general educational support and the social skills developed by children in using the local library to choose books and interact with other children in a non-school environment.
4.4 Where buildings are not closed, cuts to services, resource funds (including book funds), opening hours, building maintenance and staffing are equally significant. As the cuts to funds impact on staffing, services and partnerships, these are potentially every bit as damaging as the closure of a building. Local authorities need to be able to demonstrate that services can still be comprehensive and efficient with less staff, hours and support, not just from fewer buildings. Local authorities that retain library buildings whilst cutting staff and opening hours still need to demonstrate that they are able to provide a comprehensive and efficient service and how they are meeting user needs.
4.5 Many local communities rely on libraries as they do other community services such as schools or hospitals and see the cuts to libraries as equally serious. Many local communities have already demonstrated their strength of feeling but not all have the resources available to do this. The intense commitment and activity of library pressure groups illustrate this passion for the local presence of the library but those in disadvantaged communities may be even more affected by the proposed closures but less able to articulate the impact of this or to organise campaigns. The Secretary of State needs to act for them. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Recommendation 4.6 That the Secretary of State asks the Arts Council as a matter of urgency to review research on the social impact and value of public libraries, commissioning new research as appropriate, and urges caution in further cuts until the impact of these upon communities is clearer.
5. The effectiveness of the Secretary of State’s powers of entervention under the Public Libraries & Museums Act 1964 5.1 CILIP believes that intervention powers of the Secretary of State under Section 10 of the Public Libraries & Museums Act 1964 are adequate for the leadership and planning required at national level:we are surprised that these powers have not been used so far in the current situation and concerned that the lack of intervention may have made the position worse. Section 1 allows for the collection of information or inspection of a public library authority and Section 10 for an Inquiry where an authority may be in default of its obligations and an order specifying improvements required following an Inquiry.11 Ultimately the Secretary of State has powers to take over the running of a service. 5.2 The outcomes of the court cases and the judges’ view that their powers of judicial review are more limited given the Secretary of State’s duty of superintending the service, only highlight the ultimate responsibility of the Secretary of State to act: Judge McKenna noted “… I also accept that the thrust of the Defendants’ submission that it is only if the Claimants can show that something has gone seriously wrong in that information gathering process that this court shall intervene. This is not in my judgment an abdication of the responsibility of the Court but a recognition of the Court’s more limited role in the light of the Secretary of State’s default powers” (paragraph 29).12 5.3. CILIP believes that it is now vital that the Secretary of State has a new framework within which the performance of public library authorities in meeting their obligations under the 1964 Act can be assessed:It should be accompanied by a renewed vision for the public library service in England and leadership in helping the public library network address the many challenges ahead. At the moment the Charteris Report is guiding the requirement for a needs assessment and information gathering process but without a clear framework developed and articulated in government, as recommended in Section 3. This would give substance to the Secretary of State’s responsibility to “superintend” and “promote the improvement of” public library services provided by English local authorities. The Arts Council with its new public library responsibilities should be charged with developing this. 5.4. The Government has a key role in ensuring public sector services are accessible and effective:In CILIP’s response to the Open Public Services White Paper13 we noted the Government’s proposed role in the procurement of national public sector services. These include establishing and enforcing core entitlements, setting floor standards enforced by independent regulators or published data and ensuring fair access to services. Although provided by local government the public library is a national service provided locally and the Secretary of State already has the necessary powers—we strongly recommend that they are used.
Recommendation 5.5 That the Secretary of State uses the available powers of intervention where there has been clear evidence of a potential breach of the 1964 Act.
6. Summary of Recommendations CILIP urges the Select Committee to recommend the following: 6.1. That the Secretary of State sets out a fresh vision for the 21st century public library service defining what comprehensive, efficient and accessible means and forming a basis for local planning and delivery. 6.2. That the Secretary of State introduces a strategic framework for library services in England that can be used to assess the work that local authorities do in re-shaping services. This would enable the Secretary of State to ensure that any savings made in library services can demonstrate an assessment of need and impact and are part of a clear strategic plan in compliance with the 1964 Act. 6.3. That the Secretary of State asks the Arts Council as a matter of urgency to review research on the social impact and value of public libraries, commissioning new research as appropriate, and urges caution in further cuts until the impact of these upon communities is clearer. 6.4. That the Secretary of State uses the available powers of intervention where there has been clear evidence of a potential breach of the 1964 Act. We would welcome an opportunity to give further evidence to the Select Committee.
References 1 CILIP defines information literacy as “knowing when and why you need information, where to find it, and how to evaluate, use and communicate it in an ethical manner”. Public librarians should have an increasing cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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role in facilitating these skills. Research suggests that even the young, who are technically proficient, lack the necessary evaluative skills to discern good information from bad. See, for instance the UCL “Google Generation” research at: www.ucl.ac.uk/infostudies/research/ciber/cuttings/bl.pdf [accessed on 11.1.12]. 2 CILIP’s annual Libraries Change Lives Award provides numerous examples of effective partnership working, meeting the needs of disadvantaged groups e.g. Making the Difference: Opportunities for Adults With Learning Disabilities, Kent Libraries and Archives, http://tinyurl.com/6lvn3yf [accessed 10.1.12]; Macmillan Information & Support Service, Manchester Information and Library Service, information and support to people affected by cancer http://tinyurl.com/6sppa24 [accessed on 10.1.12]; Across the Board: Autism support for families, Leeds Library and Information Service http://tinyurl.com/6t6ly7u [accessed on 10.1.12]. 3 See London Borough of Hammersmith & Fulham, the Royal Borough of Kensington & Chelsea and Westminster City Council’s triborough libraries agreement http://tinyurl.com/7ejfsgy [accessed on 10.1.12]. 4 See, for example, Enquire http://tinyurl.com/5n2qwr [accessed on 10.1.12] and Summer Reading Challenge www.readingagency.org.uk/children/summer-reading-challenge/ [accessed on 10.1.12]. 5 Local Government Association Budget Survey 2011 www.lga.gov.uk/lga/core/page.do?pageId=17710284, news release: http://tinyurl.com/86tsr4u [accessed on 10.1.12]. 6 R (on the application of Bailey and others) v London Borough of Brent Council [2011] EWCA Civ 1586 http://tinyurl.com/6lwtaoa [accessed on 10.1.12]; R (on the application of Bailey and others) v London Borough of Brent Council [2011] EWHC 2572 (Admin) http://tinyurl.com/7sx5egu [accessed on 10.1.12]; R (on the application of Green and others) v Gloucestershire County Council and others [2011] EWHC 2687 (Admin) http://tinyurl.com/cs7js4u [accessed on 10.1.12]. 7 Charteris, S., 2009. A Local Inquiry into the Public Library Service Provided by Wirral Metropolitan Borough Council, DCMS http://tinyurl.com/7af5uej [accessed on 10.1.12]. 8 See Welsh Public Library Standards 2011–2014 http://tinyurl.com/6e735gs [accessed 10.1.12], Public library Quality Improvement Matrix (Scotland) 2006 www.slainte.org.uk/slic/plqim/plqimindex.htm [accessed 10.1.12] and Delivering Tomorrow’s Libraries (Northern Ireland) 2006 www.dcalni.gov.uk/index/museums-r08–2/ libraries/libraries_in_the_future.htm [accessed 10.1.12]. 9 CILIP Survey of Public Library Authorities November 2011, full results to be published in February 2012. 10 Proctor, R, Usherwood, B & Sobczyk, G (1996). What do people do when their public library closes down? An investigation into the impact of the Sheffield Libraries strike. British Library Research and Development Department. (British Library R&D Report 6224) http://tinyurl.com/7pbfyfq [accessed on 10.1.12]; Proctor, R, Lee, H, Reilly, R (1998). Access to public libraries: the impact of opening hours reductions and closures 1986–1997 www.shef.ac.uk/polopoly_fs/1.128096!/file/CPLIS—Access-to-Public-Libraries.pdf [accessed on 10.1.12]. 11 Public Libraries & Museums Act 1964 www.legislation.gov.uk/ukpga/1964/75 [accessed on 10.1.12]. 12 R (on the application of Green and others) v Gloucestershire County Council and others [2011] EWHC 2687 (Admin) http://tinyurl.com/cs7js4u [accessed on 10.1.12]. 13 CILIP response to Cabinet Office’s Open Public Services White Paper, October 2011 http://tinyurl.com/ 7dy2c5s [accessed on 10.1.12]. January 2012
Written evidence submitted by the Councillor David Pugh, Leader of the Isle of Wight Council Summary — The Isle of Wight Council (“the Council”) made a decision to reduce its number of libraries from 11 to six, and has supported and enabled the establishment of community-run libraries in place of the other five. — The Council considers that its provision of six libraries (supported by a mobile service) fully meets its statutory duty to provide a comprehensive and efficient library service. A Judicial Review challenge to this decision was unsuccessful. Over and above this statutory provision, an enhanced service is now available through the availability of five community libraries. — As the matter of what constitutes a comprehensive and efficient service is not explicitly defined, the Council believes that, in the spirit of localism, it should be a matter for individual local authorities to reach a considered view as to how this duty is met. In our own case, this involved a thorough assessment of local needs matched against availability of services. Ultimately of course, the public can be the judge of whether they believe the provision is sufficient, through their participation in the democratic process. — Furthermore, the Council believes that its approach is fully compatible with the requirements of the Libraries & Museums Act 1964 and the learnings from the Charteris Report. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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— I believe that the impact of the closures on local communities has been minimised, giving the communities in those towns and villages the opportunity to have a greater say in how their libraries are run and enabling the residents to contribute to the day-to-day running of the library, as volunteers. I have seen first hand the local enthusiasm for this approach, as a volunteer at my own community library in Shanklin. — With regard to the effectiveness of the Secretary of State’s powers, I believe that the current level of intervention is appropriate. We were pleased to discuss our plans with civil servants, following correspondence to Ministers from residents concerned about the authority’s proposals. We believe that it would only be necessary for the Secretary of State to intervene if a local authority took a draconian approach which appeared to run completely contrary to the statutory duty. 1. The Isle of Wight Council is the statutory Library Authority for the Island, and is committed to providing a comprehensive and efficient service, for the benefit of all Islanders and visitors who choose to make use of it. 2. The Isle of Wight covers an area of 146 square miles, 60% of which is designated as an Area of Outstanding Natural Beauty. The Island’s rural nature is important to bear in mind, because it makes public services, which are focused largely in the Island’s towns and larger villages, difficult and expensive to access by public transport. The Island’s economic status is improving, but from a base which was the lowest in the South East. Wage levels are comparable with industrial areas of the North East, with a history of low educational attainment, low skills levels and a high dependency on seasonal employment in the Island’s renowned tourism industry. The Island also features a significant number of second homes, occupied only for part of the year. This makes home ownership and social progression difficult, exacerbating the employment issues described here. The Island community also comprises higher than average numbers of people at or nearing retirement age, with lower-than-average numbers of young professionals and entrepreneurs staying on the Island to contribute to the economy. It is this complex and varied demographic that the Island’s library service seeks to serve. 3. The libraries review began in 2010, when the Council began a review of its library provision. There were 11 static libraries, plus mobile and housebound delivery services, serving a population of 140,500. This service cost over £2 million, out of a total net controllable budget of £135 million. The review was set against a backdrop of financial challenges facing the Council which required savings of over £33 million to be found over four years (2011–15). The review had initial target savings of £400,000 in the first year, with £500,000 full year savings thereafter. 4. A full consideration of the Charteris Report ensured that the service review would be determined on the basis of sound knowledge and evidence and was linked to need. We therefore embarked on a data gathering exercise and customer survey throughout the summer of 2010. 5. We collected extensive data including library usage, take-up by local population, satisfaction figures across the service as well as a wealth of information regarding costs, suitability of buildings and location linked to population density. The Joint Strategic Needs Assessment was the cornerstone for this evidence-based research. 6. Through face to face interviews and other data gathering techniques we obtained the opinions of 1,879 customers in relation to the reasons they visited the library, what mattered to them about the library service and the impact the service had on their lives. 7. These views, which were summarised in the data analysis, provided compelling evidence that smaller libraries were highly valued even when used by a relatively small percentage of the local population. 8. Still mindful of the Wirral (Charteris) report and the Council’s equalities duties, the Council also embarked on an Island-wide consultation, which ran throughout January 2011. The consultation was focused on a set of draft proposals, which were provided to stimulate debate and act as a catalyst for creative solutions. These proposals described a service which featured a large and enhanced library in both of the Island’s largest two towns and a gradual withdrawal of funding from all nine of the remaining libraries until either the community came forward to run a local library service in the area, or the site would close. The consultation sought to identify the potential impact of the proposals. A significant response resulted, with public meetings called across the Island, 1,506 formal responses submitted and five petitions handed in. The overwhelming public view was that withdrawal of funding, leading to the closure of all these nine libraries, would be unacceptable. 9. Throughout the consultation process, and continuing to today, the Council has worked closely with the Isle of Wight Rural Community Council (“the RCC”), which is the focal organisation for the voluntary and community sector across the Island—supported with Isle of Wight Council funding. The contribution of the RCC to the successful progress on the libraries journey was crucial and appreciated by the Council and local residents. 10. When the libraries review came for formal decision at the Council’s Cabinet on 1 March 2011, the Cabinet Members listened to the clear public response and amended their decision accordingly. The Council decided to continue to operate libraries in six towns across the Island (reflecting the sites with the highest levels of usage and the highest levels of identified need). In addition, it would offer an innovative package of support to communities to develop community-run libraries in the other five areas, where Council funding would cease for a library. Despite these sites receiving only 18% of the service’s usage between them, each cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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one was keenly supported by its local community, with expressions of interest in operating a community library submitted by each area. The support package was part-funded from the Council’s New Homes Bonus grant, demonstrating how this reward funding could be used to develop community capacity. This led to a revision of the service’s saving targets to £350,000 for the financial year 2011–12, and £450,000 for the full year effect thereafter. 11. From April 2011, the Council entered into detailed discussions with a variety of community groups and local (parish and town) councils, to identify solutions which met the needs of the local communities where funding would cease. These discussions related to the support package on offer to the developing community libraries, which included: — leasing the library buildings on preferential “peppercorn” terms; — free access to the Council’s full library stock with guaranteed stock refreshes; — free training, including on a bespoke library management system interface which the Council commissioned to protect customer data; — initial Criminal Records Bureau checks for volunteers; — business-ready broadband to support the continued provision of People’s Network computers; and — free reference support and training for the foreseeable future. 12. It was clear that the original funding withdrawal deadline of 30 June 2011 was not going to be feasible for the community library groups, and a series of councillor-level decisions authorised month-by-month extension periods, during which tenancies-at-will and ICT connections could be put in place to enable the community libraries to launch and operate successfully. Full 30 year leases are in negotiation; the RCC’s support for this process is evidenced by their own assumption of leases on behalf of two communities unable to form their own incorporated body to accept a tenancy. 13. In October 2011, having supported the communities to develop their own local library, the Council made a final decision to withdraw funding from the five sites indicated in the March decision, whilst committing to the providing ongoing infrastructure and resource (books) support to these community libraries. 14. It is our assessment that the Council’s offer of six static library sites, supplemented by a mobile service and a housebound delivery service fully meets our requirement to provide a comprehensive and efficient library service. The five community-run libraries further enhance our coverage to the Island, over and above this statutory provision. 15. The fact that we have achieved this outcome of five community libraries, operated and run by volunteers, is a testament to the passion of the Island’s communities for reading and access to information. 16. It is also worth mentioning that the Council has, at the same time, invested in self-service facilities in the two largest libraries, to test the benefits before a full service-wide roll-out. After only a month, self-service is running at 85%, freeing up staff time to provide a broader and more personal service to customers. 17. An unexpected benefit of the public response from the consultation period, was that “Friends” groups have been formed to support some of the Council-run libraries. Although not yet engaging in full budgetary devolution to communities, these Friends groups raise funds and represent community views in operational decisions about the libraries that they support. In addition, volunteers are welcomed into the Council’s six libraries, to provide support to the library staff in their daily tasks, or to provide additional skills such as job- seeking support, or genealogical advice. It is anticipated that the availability of volunteers in the Council’s libraries will complement library staff to the extent that longer opening hours will be enabled, responding to community demand where required. 18. Throughout this journey, the Council, town and parish councils, the RCC and communities have been sharing a learning process which has been challenging but is proving successful. The Council continues to learn, and offers some of that learning to the Select Committee, in the hope it can inform the national debate. 19. There are a number of specific questions which the Select Committee’s enquiry raises. Firstly, it is noted that the matter of what constitutes a comprehensive and efficient library service is not explicitly defined. It is clear that the 1964 Act is non-specific in its language. This is not necessarily a bad thing. In the spirit of localism, we believe that it should be a matter for each individual local authority to reach their own considered view as to how this duty is met. Whilst some campaigners may be anxious that such an approach would give local authorities carte blanche to radically reduce the level of provision, we are confident that individual councils would have particular regard for the needs of their communities when considering any changes. As we have acknowledged, it is clear that residents are passionate about their library service, and any local authority which ignored or dismissed such passion when making a decision to reduce provision would do so at their peril. The ultimate accountability for providing a comprehensive and efficient library service will take place through participation in the democratic process, and there is no doubt that residents will respond accordingly if they feel the level of service provided is not sufficient. 20. We therefore believe that the Secretary of State should operate a light touch approach, only intervening in circumstances where a local authority’s plans would appear to run completely contrary to the statutory duty. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Furthermore we believe that the Select Committee should not seek to define what level of intervention from the Secretary of State is appropriate. Ministers will undoubtedly exercise their discretion when choosing to intervene, and the level and frequency of any such intervention will depend on how critical they feel the issues are. Any such intervention will also take place within the context of democratic and parliamentary accountability of Ministers, and the importance which the government of the day places on taking a pro-active role on such matters. 21. The Isle of Wight Council has had first-hand experience of the Secretary of State’s interest in library reviews. The Council received correspondence from the Minister of State on behalf of the Secretary of State and, at the Minister’s request, was invited to discuss its proposals with civil servants at the Department for Culture, Media and Sport. It was clear throughout the process that Government interest in the Island’s library review was focused on whether the statutory library authority would retain an accessible service which was adequate to meet the needs of anyone wishing to use it on the Isle of Wight. The Secretary of State appeared prepared to use his powers, should that have been necessary, which of course, it was not. 22. The Council is aware that a small group of residents have chosen to challenge this partnership approach. However, the dissatisfaction of a small minority does not mean automatically that the Secretary of State has acted incorrectly. The Isle of Wight Library Authority continues to provide a service which it considers comprehensive, efficient and reflecting the needs of its residents and visitors so that anyone may make use of it, whether in a Council run library, from the mobile library, from a community library or online. 23. The Isle of Wight Council chose to define the comprehensiveness of its service by taking into account the needs of the population it serves. It did this by rooting every proposal and decision in evidence from the Joint Strategic Needs Assessment for the Island. This provided us with demographic and socio-economic data including car ownership, public transport accessibility, travel times, health indicators (including morbidity; to establish long-term take-up), educational attainment levels, and so on. The levels of need were identified as particularly high in several areas across the Island (based on the Index of Multiple Deprivation), with five areas with deprivation levels in the lowest quartile in the UK. It is no coincidence that the Council decided to retain a library presence in these areas, and those which feature similar levels of disadvantage, as evidenced by the data sets gathered during the review. The Council has also committed to these communities, by keeping free access to literacy support, leisure reading, ICT-based work searches, social networks such as reading and job clubs, and by retaining a respected local service in a well-known public building in these towns. 24. Another key element to be borne in mind, when considering whether a service is comprehensive, is whether it considers the impact of any service changes on its customer base, in terms of the nine protected characteristics under equalities legislation. Action plans to mitigate against adverse impacts on specific groups must be real, with genuine attempts to improve access for as many potential customers (residents and visitors) as possible. The key outcome should be that a library service is accessible to be enjoyed by all, rather than placing importance on who delivers the service. This was a key consideration in our approach, and was reflected in the decision making process. 25. The consideration of efficiency is one that will change over time with technological developments and changes in customer behaviour and expectations. On the Isle of Wight we examined the efficiency of our library provision, by assessing our operating costs, including premises maintenance, and exploring local partnership opportunities to offer additional local services such as tax and benefits advice. The service has offered a 365- day a year online service for some time, which enables customers to renew, reserve and order books using the internet. The service is currently commissioning a new community-led enterprise, building on the current housebound deliveries, but tying this into local voluntary groups’ good neighbour schemes to enable more housebound people of all ages to have access to a library service. The Council also reached a view that community needs would still be met by the six library sites and an enhanced mobile service to access the many rural areas across the Island. It is a positive reflection on the hard work of communities, the RCC and the Council that the Island now benefits from a good quality library service featuring community input and leadership. 26. The invitation to submit evidence to the Select Committee also suggests comment on the potential impact of closures. I would respectfully suggest that the provision of library services through a building is not really the issue and the question is more appropriately framed in terms of the community’s access to a core set of library services whether these are provided by a building based service or a mobile one or indeed a virtual one. The consideration is to define the core service, the frequency and timing of its availability and the accessibility of alternatives. As has been stated above, we were always confident that even if the five libraries that became community libraries had closed we would have still provided a comprehensive service to those communities albeit by compensating the loss of the static sites with an enhanced mobile service. Our ambition, which was successfully realised, was not to close them but transfer them to community groups. 27. Given the above, the Committee may be interested to note the main concerns voiced by residents as part of the consultation process should libraries close, were: — inaccessibility from rural areas to alternative sites due to expensive and infrequent public transport; — removal of access to ICT for job seekers; cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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— removal of literacy and learning support in a community with a history of low academic attainment; — concerns for the welfare of library staff; — concerns at the perceived lack of suitably trained and/or qualified staff (concerns about the reliability of volunteers); and — concern at the removal of important local meeting places which are safe, neutral and welcoming. 28. The retention of libraries, and the extensive training and support package offered to community libraries, has addressed these concerns in large measure. I would also like to offer my own local experience and perspective on how library provision can be effective when being delivered by the community. The Council made the decision to close the authority-run library in my own town of Shanklin, which I represent as a local councillor. This understandably generated significant concern locally, as the library—despite being small—is well used by many of our residents. 29. We have been able to transform this concern into enthusiasm, and now have a team of 40 local residents recruited and trained as volunteers. Over recent months, I have personally led and organised this initiative, including being trained as a volunteer myself. At the time of writing this submission I am in the process of handing over the day-to-day management of these volunteers to a part-time co-ordinator which Shanklin Town Council has recruited to support this community initiative. It is worth noting that the level of enthusiasm we have engendered has led to a waiting list of when we are able to accommodate our volunteers in the library, and we fully expect the opening hours to be extended to meet local demand and for a wider range of services to be provided over the coming months. This experience is being reflected in community libraries across the Island and is an indication that, if anything, the changes to our libraries will lead to an enhanced and more diverse level of service being in place as a result. These community libraries continue to be fully supported by the Isle of Wight Council and at a local level we certainly feel like an integral and full part of our wider provision on the Island. 30. In summary, we believe that the development of community libraries will not only complement the Council’s core offer of a comprehensive and efficient library service, but demonstrates that the emphasis should not be on who delivers the service—but what is provided. The concerns of local residents have been more than addressed through the community provision we have put in place, and other than a more local focus to the service in towns such as Shanklin, there is little noticeable difference to what is on offer. The Isle of Wight Council is delighted how our communities have risen to the challenge of supporting our library service. We have offered stability for the future of the service by reaffirming our long-term commitment to continuing the current partnership arrangements and working with the community libraries to further enhance the quality of service being provided. The future is very bright for Isle of Wight libraries. January 2012
Written evidence submitted by Voices for the Library Summary — Voices for the Library is a nation-wide campaign group promoting the value of public libraries and presenting the views of anyone who loves libraries. — A comprehensive and efficient library service should be accessible, should be adequately resourced, should have a wide range of services and content, should have sufficiently skilled staff, and should be available to users at their point of need. — The English public widely value libraries as a force for social good which should be provided free. — Many planned library cuts and closures are incompatible with the requirements of the Public Libraries & Museums Act 1964: removing qualified and trained library staff will result in a failure to provide adequate services under the terms of the Act and in many cases, councils are making decisions to close libraries based on misleading statistics, an inadequate definition of “comprehensive and efficient”, and the outdated Act itself. — There is strong evidence that communities value local public libraries and that closures would therefore have a negative impact in several ways: on children; on the physical, mental, and emotional health of communities; on lifelong learning; on community cohesion and inclusivity; and on local economies. — The powers of intervention given to the Secretary of State are not deficient. The failure lies with the Secretary of State’s lack of willingness to exercise these powers, coupled with lack of guidance from senior ministers and appropriate Government departments.
Introduction 1. Voices for the Library would like to submit the following evidence to the Department of Culture, Media and Sports Select Committee on public library closures in England. The evidence has been taken from our website (http://voicesforthelibrary.org.uk) and includes the testimony of library users from across the country. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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What constitutes a comprehensive and efficient library service for the 21st century? 2. A comprehensive library service should be accessible to a wide range of people. As the High Court ruled in the case of Gloucestershire and Somerset county councils, before library closures are undertaken councils must “consider or address the findings of … Equality Impact Assessments.” The MLA’s “comprehensive and efficient checklist” also places emphasis on considering the specific needs of adults and young people within the community particularly based on access and Equality Impact Assessments. Voices for the Library has published testimony from The All-Party Parliamentary Group for Education’s “Report of the Inquiry into Overcoming the Barriers to Literacy“, the Six Steps to Library Services for Blind and Partially Sighted People initiative, and from dozens of people with special accessibility issues. As part of the definition of “comprehensive” as “inclusive of; embracing” from the Oxford English Dictionary, comprehensive library services need to be accessible to anyone and everyone regardless of the user’s income, socio-economic background, level of education, gender, race, age or any other myriad factors. 3. A comprehensive library should cover a particular geographic area. From Alison Cullingford’s post on our website: “The reductions in library services are often deeper than the cuts to funding require, and hit areas that need services most, like remote rural areas and deprived areas in large cities.” Alison goes on to articulate the need for local heritage services in public libraries which are tailored to the community in their assigned geographic area. Comprehensive libraries should offer tailored services which meet the needs of their particular community and should have the resources to cover their geographic area efficiently regardless of the area’s size. The MLA checklist emphasises the need for proper consultation with users in the community before closures should be considered. 4. A comprehensive library should have a wide range of services and a large amount of content. A library needs to include every service that a user could reasonably request of a public library in the 21st Century. From a post on the “Report of the Inquiry into Overcoming the Barriers to Literacy”: “Both school and public libraries are important because they provide a broad range of reading materials, which improves literacy and this in turn improves educational achievement.” A modern comprehensive library also requires a range of technology and staff able to assist with IT or technical services. If appropriate, these services include enabling ebook access for users. From our statement in response to the Publishers’ Association: “The delivery of remote ebook access has been a highly successful initiative, with many services seeing increased demand, including the return of those who had ceased using the library service.” 5. An efficient library has the ability and the resources to provide all the services which are required of a comprehensive library effectively and without interruption. The MLA checklist stresses the need for buildings and facilities which are “fit for purpose in terms of access, condition etc.” 6. An efficient library requires a sufficient quality and quantity of library staff. Part of the Oxford English Dictionary’s definition of “efficient” is “Of persons: Adequately skilled.” Efficient library staff need a high degree of professional and technical competence. From author Philip Pullman: “The librarian is not simply a checkout clerk whose simple task could be done by anyone and need not be paid for…” We have received dozens of statements from library users testifying to the importance of professionalism and competence in library staff. Efficient staff need to have interpersonal skills, professional discretion, trustworthiness, technical training particularly with regard to IT equipment and services. Please see our essay on “What librarians do” for more information. 7. An efficient library needs sufficient staff to deal with the average volume of library users. These staff need to have the legal and practical abilities to work with the range of people expected to use a comprehensive service: staff who have been CRB-checked, who are trustworthy, who are responsible, and who are accountable. It is extremely difficult for volunteers to provide such a service: Mr. Shepherd of Doncaster campaigners has said “The issue of community libraries is an absolute misnomer. Some parts of the country are already trying this and it takes 50 to 60 volunteers plus management to run one.” 8. A comprehensive and efficient library needs to be available to people at their point of need. This means being accessible when its users require it, with opening hours that meet the needs of working people and children’s groups. In a response to the latest CIPFA statistics on library use, Ian Clark wrote “Opening hours are also responsible for a decline in book issues. Library opening hours have been slashed in a number of authorities in a bid to save money … A library is not going to be used more if it is open less.” 9. The reintroduction of appropriate library standards would assist in ensuring that public library services were comprehensive and efficient.
The extent to which planned library closures are compatible with the requirements of the Libraries and Museums Act 1964 and the Charteris Report 10. IPSOS MORI Research found that the English public widely value public libraries as a force for good and one that should be provided free. A significant proportion (74%) of current users surveyed described libraries as “essential” or “very important” in their lives. 59% of non users also think libraries play an “important” or “essential” role in the community. A significant number of groups have formed to challenge councils’ decisions to close libraries (see Appendix to this document). This demonstrates the continuing need cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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for statutory protection of library services, especially in the light of councils disregarding the views of constituents consulted on the issue of library cuts and closures. Many of the current cuts to UK library services, including closures, are not compatible with the requirements of the Act. Francis Bennion, the barrister responsible for drafting the Public Libraries & Museums Act 1964, submitted a post to our website in which he stated: “An Act of Parliament consists of express words and implications. Thus for example it is implied by the 1964 Act that library authorities will fulfil their duties properly, will provide suitable buildings that can accurately be called libraries, and will employ sufficient trained, experienced, paid staff, not relying unduly on volunteers. The official 2011 publication titled Future libraries—Change, options and how to get there does not appear to meet the requirements of the 1964 Act. It is primarily a charter, stuffed with jargon, for reducing costs. Yet any library authority which in 2012 and subsequently spends substantially less on its library service than it did in 2009 would be acting unlawfully. This is because all the 2009 expenditure would be assumed to have been necessary to comply with the 1964 Act.” It is evident from this statement that the spirit of the Act is not being upheld by local councils under pressure to implement cuts to services with little time to plan how to avoid breaching the Act. The standards and expectations outlined in the Charteris report do not appear to be adhered to by councils, the report stating “… the Inquiry has found the Council to be in breach of its statutory duties under the Public Libraries and Museums Act 1964, because it failed to make an assessment of local needs in respect of its Library Services. It therefore cannot have acted reasonably in meeting such needs in the context of its statutory duties and available resources, as, in the absence of such assessment or demonstrable knowledge of local needs, it was incapable of identifying a reasonable option for meeting such needs both comprehensively and efficiently.” It seems as though, as with the 1964 Act, local authorities have little understanding of the Charteris. The local authorities in Gloucestershire and Somerset have failed to assess local needs before announcing closures. Other counties have carried out the bare minimum assessments, with Suffolk stating that an assessment would only be needed if a library were to close. It is apparent that the needs of children have not been adequately taken into account by Doncaster Metropolitan Borough Council, who have conducted an Equalities Impact Assessment and found that certain groups will be at a disadvantage but solutions have not been put in place to mitigate this. 11. Planned library closures appear in many respects to be incompatible with the requirements of the Libraries & Museums Act 1964. The act of closing library branches is not the only aspect in which local authorities are contravening the Act: reducing resource budgets, the number of paid staff, reducing opening hours and failing to modernise when necessary are all detrimental to library services. Promotional activities in libraries are being cut, which conflicts with the Act’s requirement for councils to actively promote the use of the library service. 12. The UNESCO Public Library Manifesto states: “The librarian is an active intermediary between users and resources. Professional and continuing education of the librarian is indispensable to ensure adequate services.” Nationally, library authorities are making large numbers of paid library staff redundant and removing them from libraries which are to become volunteer run. To remove qualified and trained staff from communities through library closures is a failure to provide adequate services in both the eyes of the Manifesto and the 1964 Act. 13. Councils are making decisions to close library branches based on their popularity, measured by footfall statistics and the number of book issues. If councils wish to save library branches from closure by encouraging more visits and issues, they may therefore feel under pressure to provide more populist material, which is against the spirit of the universal public library service and may be in breach of the Act’s requirement for libraries to stock “comprehensive” resources. In a guest post for Voices For The Library, Professor Bob Usherwood writes: “The public library if it is to survive and remain true to its public purpose will need to protect and promote good writing, be it fact or fiction, and the provision of trusted and accurate information. In providing information and imagination services it will need to make available to all “the best that has been thought and said”. At a time when there is increasing concern about intergenerational fairness there is a danger that if public libraries only concentrate on the current and popular our children and grandchildren will be deprived of free access to their intellectual heritage.” 14. Local authorities are finding it difficult to define what “comprehensive and efficient” constitutes, even with the aid of the MLA’s “Comprehensive and Efficient Checklist”. There is an urgent need to update the 1964 Act, to make it easier for councils to interpret the Act and ensure that a modern and relevant service is provided. David McMenemy’s article on the topic is an excellent source of information about the key issues and needs. McMenemy states: “We need an Act that considers the totality of services provided by the modern public library if the vital role they play is to be protected from cuts. Public libraries should certainly not be immune to cuts other services receive, however they should also not be the easy touch they are due to their propinquity and their perceived nonessential status by some.” cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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He goes on to conclude: “It is clear that in the current climate the term ‘‘comprehensive and efficient’’ is so meaningless as to be almost redundant. While it is obvious that an Act of Parliament cannot set in stone how library services are managed, it can at least offer some security to the general public if it is well framed. Certainly no central government wishes to determine to local authorities how they should spend their money, but equally the public need to be sure that their right to a high quality library service is not damaged by short term financial concerns.”
15. In order to offer a comprehensive service fit for modern society, library services need to reflect users’ changing and varied information needs, including support for information literacy, access for all members of society including those with disabilities, access to online reference services, and local history and heritage resources. Trained and qualified library staff are needed to tackle the “poverty of trained librarians” as described by the All Party Parliamentary Group for Education.
The impact library closures have on local communities
16. The 1998 University of Sheffield report, “Access to Public Libraries: the impact of opening hours reductions and closures, 1986–1997”, highlighted the fact that “People valued the public library highly as an educational and community resource. The local library acts as an “information junction” helping to bind the community together and improving the general quality of life within it. The building-based local library was shown to have a value which is distinctive and irreplaceable by any alternative form of provision.” This research notes that people do not use their next nearest library when a local one closes unless they already have a reason to visit the area. The closure of their local library means they no longer have access to the service.
17. Closure of libraries would have a significant impact upon children. In 2011 the National Literacy Trust report, Public Libraries and Literacies, stated that 52% of young people use Public Libraries. In “Young People’s Reading & Writing” The Literacy Trust reported that children who do not have access to books or a desk at home are more likely to struggle with reading. 23% of children don’t have access to a desk at home, and this figure increases in children who receive Free School Meals. E-Learning Foundation recently reported that 1 million children in the UK live in homes without computers and 2 million children do not have access to the Internet at home. Libraries are places where children are able to overcome these barriers through free access to books, computers and the internet, and study areas providing desk space. Libraries also offer child specific services, such as assistance with homework. This highlights the benefits of keeping libraries open to avoid a negative impact upon the development of children. The University of Sheffield report “Access to Public Libraries: the impact of opening hours reductions and closures, 1986–1997” concludes that closure of libraries has a serious impact on children and their development. Parents, carers, teachers and library staff were concerned that library closures led to loss of support for children’s education and literacy; loss of pre-school support; loss of opportunity to “gain independence and self-confidence in choosing own books”; loss of opportunity to improve social skills; fewer children’s amenities; loss of a community focal point that assisted in interaction between children and adults; likelihood of future generations of adult non-users; and impeding access to a broader range of resources.
18. Library closures would have a negative impact on the physical, mental and emotional health of the local population. Recent research identified the “Value of therapeutic reading groups organized by public libraries”. These reading groups provide access to books and information as well as the social aspects of interacting with others. They have a positive impact on individual participants and the groups also have positive consequences for social inclusion and involvement in the local community and economic activity. Voices for the Library documented further evidence about the positive impact of the “Feel Better with a Book” project in Essex and Irene’s story highlights how a librarian helped her children deal with their father’s death by providing access to the right materials.
19. Library closures would have an impact on the lifelong learning agenda. An inquiry by the National Institute of Adult Continuing Education set out to highlight how museums, libraries and archives contributed to lifelong learning. It recognises the essential role that libraries played in supporting adults to continue to learn throughout their lives. “They provide opportunities for people to immerse themselves in deep learning experiences or to dip in and out of learning—both of these types of learning are equally valued and respected.” In its report, The Modernisation review of public libraries, informal learning opportunities, including the opportunity to learn basic skills were acknowledged to attract a wide range of users. In 2006, the BOOST scheme in London trained library staff to provide basic skills in library venues within hard-to-reach communities. The scheme supported 361 people before being expanded across London. We have received stories showing that library users have used informal learning to improve their quality of life, including learning English as a second language, computer skills and assisting users to learn a new language.
20. Library closures would impact on community cohesion and inclusivity. In the East Midlands Development Agency report Unlocking the potential of the creative and cultural sector: A Meta Review of the Evidence Base Final Report (March 2010) it considered the notion that “shared cultural spaces, such as museums, libraries, and heritage sites serve to develop cohesive communities. Studies have been published to cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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this end, with for example a recent report looking at the benefits to older people from learning in museums, libraries and archives as part of the wider Building a society for all Ages study. It recognised the benefits to older people of engaging with these facilities and set out four literacies for older people which museums libraries and archives can help to deliver—financial, technology, citizenship and health.” In “Libraries and the Social Capital,” Anne Goulding discusses the concept of social capital in relation to libraries. “By providing information resources, libraries were able to contribute to a community high in social capital, characterised by trust, shared values, community involvement, volunteering, social networks and civil participation, which lead to lower crime, better health, educational achievement, and better child welfare”.
21. Library closures would impact on the local economy. The “East of England Implementation Plan: Culture, Creativity and the Visitor Economy: Theme Advice (April 2009) states that “public libraries are significant providers of information, advice and guidance to SMEs and sole traders at the earliest stages of business development.” Further evidence to illustrate the positive impact and value that libraries have on the economy can be found in Economic Contributions of Museums, Libraries and Archives in the South West, Public Libraries in the Knowledge Economy, Londons Culture Equation ‘06. In May 2009, The South East England Development Association published its report “Management and Leadership in the Creative Cultural Sector in South East England” and noted that “Museums, Libraries and Archives … has been estimated to generate £224 million per year in tourist revenue in the region, and so contributes seriously to the employment and economics of the region.” Libraries are also continuing to increase employability, offering services such as writing CVs and online job search activities.
The effectiveness of the Secretary of State’s powers of intervention under the Public Libraries & Museums Act 1964
22. We are not persuaded that the Secretary of State’s powers under the Act are deficient. We believe that the problem is that successive Secretaries of State, in governments of all types, have been reluctant to use their powers, we suspect for party political reasons. Since the most recent General Election, and before, much of the debate in Parliament and local councils has been coloured by party interest. Thus, for Conservatives, cuts in provision in Conservative controlled councils are prudent management of resources, while those in Labour- controlled authorities are cultural vandalism, and vice versa.
23. Wherever ministerial responsibility for the public library service has sat, office holders have been distracted by the claims of other parts of their portfolios, which may be higher spenders or more glamorous. How can public libraries expect to have the attention they deserve when managed by departments that have to deal with, in the most recent administration, the Olympic Games and press regulation?
24. For us, therefore, the central issue is that the Secretary of State should be ready and prepared to use the powers the Act allows. This is a political question, and not one that can be resolved by tweaking the Act. It requires a new political perspective from office-holders in which they are prepared to take their responsibilities seriously, rather than as part of factional party interest.
25. Under the current Secretary of State, three letters (19 August 2010, 3 December 2010 and 24 February 2011) were sent to all local councils from the Minister for Culture, Communications and Creative Industries to remind them of their statutory duties and to highlight the existence of the Future Libraries Programme. It was felt by the DCMS that this action indicated that The Secretary of State was fulfilling his duties to superintend libraries under the 1964 Act. However, the extent to which library users throughout the country feel The Secretary of State has not fulfilled his duties with any subsequent escalated action can be highlighted by the fact that three local councils (Brent, Gloucestershire and Somerset) have recently had legal challenges regarding cuts to library services raised against them by library users—two of which, Gloucestershire and Somerset, ruled against the councils cuts and service reductions. Many more groups of library users find themselves in situations similar to those in the above three local authorities, but are unable to progress down the legal challenge route for a variety of reasons. None of these library users should have been put in a position where they are acting as superintendent to their own library services, whilst the Secretary of State continues to monitor the situation. It is The Secretary of State’s duty to take on this role, not library users.
26. Even though it is the duty of Secretary of State for Culture, Olympics, Media and Sport to intervene in relevant situations under the Public Libraries & Museums Act 1964, we feel that responsibility for encouraging action should also be placed with senior ministers (Minister for Culture, Communications and Creative Industries) and appropriate Government bodies (DCMS & ACE), whose remit involves public libraries.
27. The fact that high profile organisations such as the Women’s Institute and UNISON, who are not directly linked to public libraries, are championing public libraries under their own nationwide campaigns (Women’s Institute campaign; UNISON campaign), emphasises the concern that Central Government and its Minister in charge of superintending libraries are not fulfilling their responsibilities. The Woman’s Institute petition aimed at the DCMS calls for “the Government to honour both its commitment to act as a champion of the library service, and its duty of oversight to ensure that a comprehensive and efficient library service is provided.” cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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APPENDIX LIST OF LIBRARY CAMPAIGN GROUPS IN ENGLAND With regard to the effect that threatened closures have had on local communities, the following list of local campaign groups, which were formed from mid 2010 onwards, in response to library service cuts and closures in their local area, illustrates the depth of feeling local communities have about proposed plans for reductions in service. Many of these communities have fought hard for properly funded library services provided by their local authority. Further details of the action these campaigns have taken can be seen in the links attached. This is by no means a comprehensive list of library campaigns. Even though some of these campaigns may no longer be active, we feel it is still important to note that they were set up to campaign against closures. — Barking & Dagenham—Save Robert Jeyes Library (Facebook group, Twitter account). — Barnet—Save Friern Barnet Library (Website , Twitter account, Facebook group). — Bolton—Save bolton Libraries (Facebook group). — Brent—Brent Save Our Six Libraries (Website). — Brent—Save Kensal Rise Library (Website , Facebook group, Twitter account). — Brent—Preston Library Campaign (Website). — Bury—Save Unsworth Library (Facebook group, Twitter account). — Cambridgeshire—Friends of Arbury Library (Website). — Croydon—Save Sanderstead Library (Website). — Croydon—Save Croydon Libraries (Website, Twitter account). — Croydon—Save Norbury Library (Website). — Croydon—Save Upper Norwood Library (Twitter account). — Doncaster—Save Doncaster Libraries (Website, Twitter account). — Ealing—Save Ealing’s Libraries (Facebook group, Website). — Gloucestershire—Friends of Gloucestershire Libraries (Website, Facebook group, Twitter account). — Hertfordshire—I love my Herts Library (Facebook group). — Isle of Wight—Save Our Libraries on the Isle of Wight (Website). — Kent—Save Kent Libraries (Facebook group, Twitter account). — Lewisham—Save Sydenham Library (Twitter account). — Milton Keynes—Save Stony Stratford Library (Facebook group, Twitter account). — Milton Keynes—Woburn Sands Library (Twitter account). — Northamptonshire—Save St. James Library (Facebook group). — North Yorkshire—Save North Yorkshire Libraries (Website). — North Yorkshire—Friends of Easingwold Library (Facebook group). — North Yorkshire—Save Eastfield Library (Facebook group). — North Yorkshire—Save Bentham Library (Website). — North Yorkshire—Save Great Ayton Library (Website). — Oxfordshire—Save Oxfordshire’s Libraries (Facebook group). — Oxfordshire—Save Benson Library (Facebook group , Twitter account). — Oxfordshire—Headington Library (Website, Facebook). — Oxfordshire—Save Sonning Common Library (Twitter account, Website). — Somerset—Save Somerset Libraries (Facebook group). — Somerset—Friends of Glastonbury Library (Facebook group). — Suffolk—Save Leiston Library (Twitter account). — Suffolk—Save Debenham Library (Facebook group , Twitter account). — Suffolk—Save Rosehill Library (Twitter account, Facebook group, Website). — Suffolk—Save Stradbroke Library (Facebook group, Twitter account). — Surrey—Byfleet Library Action Group (Website). — Surrey—Surrey Library Action Movement (Website, Twitter account). — Wandsworth—Save York Gardens Library (Facebook group, Twitter account, Website). The depth of library campaigners concerns for the future of their libraries can also be seen in the signatures and comments against this open letter (December 2011) to Culture Minister, Ed Vaizey. January 2012 cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Supplementary written evidence submitted by Voices for the Library I mentioned during my evidence to the Committee that my local campaign group, Rosehill Readers, had submitted an alternative consultation with methodology to Suffolk County Council. This was incorrect, after further communication with my fellow campaigners the alternative consultation was never formally completed and we do not have a written copy. What I have included here are our ideas, which I am happy for the Committee to circulate and publish. In the opinion of Rosehill Readers, the consultation should have included questions based on: — Opening times—e.g. when do you currently use the library. This can be backed up by footfall counters and circulation data will be available from Library Management Systems. — Services—e.g. which services do patrons currently use? Data should also be extracted from branch libraries, how many people are attending sessions, how many internet hours are booked each week? — Transport—e.g. questions to include what access people have to transport, how far they are able to travel to a library. — Equality Impact Assessment questions to be asked to ensure that no members of the community are disadvantaged by library closures. Suffolk County Council has an EIA that should be adhered to as part of the main consultation, before any decisions have been made. — Staff should be involved in decision making as much as possible, their day to day encounters with the people that they serve put them in the best place to know how the service can be changed and costs cut if needed. — Questions should not be leading and should always allow an option for people to say that they do not agree with the question. — Appropriate methodology both qualitative and quantitative should then be applied to the data gathered. Suffolk County Council already has it’s own suggested methodology which should then be used, this should be applied and used properly. Our understanding of the phrase “comprehensive and efficient” would be a library service that offers a consistent service to all it’s residents. Residents should not have to travel a great distance to use the service (static or mobile provision). IT should offer a full stock service to all branches, offer internet access and social groups. No residents should be disadvantaged by services offered, with parity of service aimed for. The library service should employ appropriately experienced and qualified library staff. A comprehensive and efficient library service should monitor it’s use and respond to the needs of the community. Further information on an alternative consultation “Eight keys to a real public library consultation” can also be found on the Public Library News website: www.publiclibrariesnews.com/2011/07/eight-keys-to-real- public-library.html March 2012
Written evidence submitted by The Library Campaign 1. The Library Campaign is the only membership based national organisation with a mandate to represent users of libraries. The Campaign was founded in 1984 and became a charity in 2004. We welcome the opportunity to make a submission to the Select Committee Inquiry and will be pleased to give oral evidence. 2. A summary of the detailed submission below is as follows: — “Comprehensive” means both the services offered by a library and access to library facilities. One without the other is not sufficient. — “Efficient” covers a number of issues, but the main lesson is that many authorities have not yet explored or implemented all the options open to them before announcing cuts. — In announcing cuts/closures authorities have ignored the conclusions of the Charteris report on consultation. This omission has been made more glaring given the results of the recent judicial reviews concerning equality assessments etc. — The Secretary of State needs to be more responsive and pro-active. The quality of research and advice Minsters get needs to be improved. 3. This submission takes each of the Committee’s issues in turn. We want to preface our detailed comments by re-affirming our belief, which we know is shared by user groups throughout the country, whether they are facing closures locally or not, that the public library service should remain a statutory duty devolved to local authorities. How that duty is interpreted locally is an issue related to the definition of “comprehensive and efficient” but removing the obligation would allow an authority to run a very limited and inaccessible service with no possible comeback—or even not to have a public library service at all. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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What constitutes a comprehensive and efficient library service for the 21st century? 4. We believe that comprehensiveness means both the services offered by a library and access to library facilities. One without the other is not sufficient. 5. In terms of services the availability of a good bookstock is clearly an essential. This means up to date titles but also a balanced range of backlist both in terms of fiction (including but not limited to the classics) and non-fiction (where there are many subjects where good literature does not date). Conversely we would expect to see tatty, out of date books (such as superceded medical titles or old travel guides) removed and replaced. 6. However, books are not the only type of lending stock. There should be sufficient material in other formats such as spoken word cassettes or CDs, DVDs and recorded music. We are not opposed to e-books being offered, though we believe that this service must be free of charge. 7. A second strand of service is Reference and Information. This used to be in book form but we know that online alternatives are now as affordable and require less replacement—even if the paper version is available, which increasingly is not the case. However, in large libraries we would also expect to see reference material on paper. Even the smallest is likely to need at least some titles—e.g. Whitaker’s Almanac and a good English dictionary. 8. Reference and Information provision is not confined to the traditional types mentioned in the paragraph above. We would expect library authorities to be making their own material available to their own users and those of other public services. Once again much of this material is available electronically, but we know that not everyone has access to (or the skills to make use of) the Internet. In addition, reading a detailed planning development scheme online is often something only for the brave professional—let alone a lay person. 9. We see a huge role for education in and by the library service. Many are participating in UKOnline. But libraries also need to be open for children to do their homework, and should work with schools to ensure that there is suitable stock to help with this. Adult Literacy is another area where libraries have been doing, and must be able to carry on, invaluable work using such tools as the Six Book Challenge, Quick Reads and work with families. 10. Much continuing education is done by adults in their own time and at their own speed. There needs to be suitable provision for them to obtain and use material that will, for instance, help them learn a foreign language, work out how to repair the car or find out what more formal avenues they can pursue to improve themselves. 11. This should not be regarded as excluding other possibilities. We want to stress in particular that this is what an authority-wide service should offer—not necessarily an individual branch. This may mean that smaller branches cannot do everything, but they should be in a position to enable users to access any of the services listed. 12. “Comprehensive” means access across the authority, not just resources inside one building. This is underlined in the more detailed guidance in the Act covering various needs. In this sense it is as fundamental as the “efficient” bit. Physical access is in no way outdated in the 21st century—with the disappearance of other community spaces, from pubs to post offices, plus the increasing importance of online access even to the poorest (80% of benefits to be claimed online) it is more important than ever. 13. In addition a comprehensive service is one that is fully interlinked, so that a user at any branch can expect the same answer to her question as would be given at the central library; be able to request a book (etc) from any library in the system; use the same online tools in all libraries etc. This makes closure of small service points even more undesirable. 14. “Efficient” can have a variety of implications. A good deal has been spoken and written about streamlining support and “back office” functions. There is still a fair amount of work to be done in many services to achieve this. There are services such as Westminster, Hillingdon and others which have already made great efforts in this regard. We do not believe that running services outside the local authority (whether as outsourced services, mutuals, trusts or arms length companies) necessarily results in improvement. 15. Shared services may be one way of making more efficiencies but only if the authority—and its users— has/have the same amount of guarantee that services will be delivered on time, to budget and where required. There is no point in a shared service which simply means shipping books from one huge central depot to the branch if there is no other saving. 16. Self service had been used as a way of making better use of staff before (or at least as well as) becoming a money saving innovation. It has been used to enable staff to keep their libraries looking clean and welcoming and allow them time to talk to users about what they are trying to find, make recommendations about what to read next, and help them use online tools. We would much prefer it to be introduced for these purposes rather than to save staffing costs. In the same way as a closed branch is difficult to re-open, making staff redundant and/or deleting posts makes it much more difficult to reintroduce them to work on other services. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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17. We are not opposed to co-location of library services, as long as they are not being shoehorned into back rooms and hailed as a full replacement for a stand-alone building. Conversely we do not oppose other public services sharing premises with the library, as long as this does not diminish the library’s presence and ability to offer the same services and functionality as before. 18. Finally the use of partnerships, both locally and nationally, should be part of the library service routine. Locally this may be with SureStart or Children’s Centres, or local arms of national organisations such as Macmillan Cancer Care. Nationally such organisations as The Reading Agency and National Literacy Trust have strong connections with libraries and should be used where they can add value.
The extent to which planned library closures are compatible with the requirements of the Libraries & Museums Act 1964 and the Charteris Report 19. Our understanding of the Act and the report is that they deal with different issues. The Act is primarily about “comprehensive and efficient”. The Charteris report is about process—specifically that used in arriving at a decision, including such things as proper consultation and planning. In addition, the recent judicial reviews have again pointed up issues around consultation, and also about impact assessment and equality. 20. Most authorities that are proposing to close libraries, or have carried out closures, have tried to get local groups to carry them on using some volunteer labour—or at least staff not paid by the statutory library authority. There are some we know which have offered some staffing, but principally as support to community volunteers etc. 21. We do not believe that this can be regarded as being compatible with the Act. We do not believe that a library run by volunteers, even if well trained, committed and available, can guarantee to maintain the same level of service. 22. Moreover we are aware from user groups in some areas that, because volunteers cannot be given full clearance for data protection, CRB and other reasons, the libraries they run are not fully connected to the local authority systems and cannot fulfil a role as part of the statutory service—since they cannot offer the full range of services that the “parent” does. 23. Apart from this, in some areas the authority has claimed that there are enough libraries in close proximity to allow residents to use them with very little difficulty. This ignores concerns about accessibility such as the availability of public transport and suitable opening hours. 24. Taking one bus to a library with two children, one in a pram, may be manageable, but two—with a longer journey time even if the connection is guaranteed—is a challenge for many parents. Yet that is what some closures appear to demand. 25. For a child wanting to use the library to do homework—or just as a quiet study space if they don’t need the stock—travelling to a library in the wrong direction to their school, in the evening, is again not something most parents would be keen on. 26. Elderly people may have just as may difficulties with travel. 27. Some authorities are also ceasing mobile library services, which were once, and in some places still are, offered as some replacement for the closure of a static library. This seems also to reduce the comprehensive nature of the service for those in rural areas and even some urban environments where, for whatever reason, there is no library building. 28. We remain to be convinced that many of the authorities which are closing libraries have tackled the efficiency issue first. Apart from the issues mentioned above, they should also be looking at the overheads and re-charge costs that the library service incurs. We know that these cannot be separated out for the library service alone (ie without looking at the effect on housing or adult social care) but they certainly bear examination before the front line is attacked. 29. So far as the Charteris report is concerned, we believe the principles it laid down were good ones and widely accepted. They were indeed endorsed by the Minister in his letters to Local Authorities. If there are to be any changes to law governing public libraries, the Charteris principles should perhaps be given some kind of legal status. 30. We believe that much of the planning and many of the alleged consultations before closure decisions have been announced are flawed, to say the least. Too often the choices are “close or run with volunteers (there is no option C)”. No other options are listed and most individual users—indeed many user groups—struggle to find enough information to allow them to make informed alternative suggestions, even if they might be considered. 31. Authorities need to be much more transparent in explaining what is on the table, and more prepared to enter realistic dialogue with users and their representatives about other solutions. The shape of the central government budget settlement for the next couple of years is reasonably clear and councils should be planning ahead anyhow—why not lay open the details for libraries as part of this, especially if they are actively being considered for closures or cuts? cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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32. Such disclosure must include equality and other impact assessments, so that those responding to consultation can make appropriate comments and perhaps suggest alternative solutions.
The impact library closures have on local communities
33. As we hope we have indicated above, this can be considerable. Libraries are the only community space in some places—especially as post offices, pubs and other facilities close down.
34. Beyond that, we understand that a number of local groups and users will be submitting evidence. We believe that their testimony will be more informed on this point than we, as a national umbrella organisation, could offer.
The effectiveness of the Secretary of State’s powers of intervention under the Public Libraries & Museums Act 1964
35. There is nothing wrong in theory with the Secretary of State’s powers to intervene, but new light has been thrown on this by the unprecedented passivity of the present incumbents.
36. The Minister has met representatives of a number of local user groups and the relevant local authorities in the last year. A duty on the Minister to seek and listen to such representations is surely implied in the Act. However, we understand that none of the user representatives have had any feedback after discussion with the authority. It is true that the user groups would have been unlikely to accept their authorities’ reasoning. But a failure to communicate at all does not speak well to the desire of Ministers to resolve the difficulties. A number of local campaigns have tried hard to have a dialogue with their library authority. Most have used all the council’s democratic processes and have produced alternative suggestions or even whole budgets, and have been completely ignored. This is not the Big Society model to which the government claims to be wedded. Altogether the various official bodies that deal with libraries have no provision for including library users and little interest in hearing what they think. This has led to unproductive fights all over the country.
37. The key might well lie in the quality and source of the advice—if any—that Ministers get. It demonstrates the need for proper, independent professional input and some formal machinery for consulting users. The MLA, when it existed, was sometimes put in a difficult position of being expected to offer advice to authorities on behalf of the DCMS but with no overt support and, it seemed, no backing in private either. We have not yet had an opportunity to talk to Arts Council (England) but, given the staffing resources it has at its disposal, it seems unlikely that they will be able to do much more than has happened previously.
38. The Advisory Council on Libraries would have been another source of such advice. However as it is a victim of the “bonfire of the quangos” the Minister cannot look to it for advice.
Other Matters
39. There are some other issues which informed or interested users of libraries have raised with us which we think the Committee might want to consider in formulating recommendations. These principally relate to the way that closures and cuts which have already been proposed or taken place, may be analysed.
40. For instance, it may be worth looking at the possibility that they have happened where a local authority has had heavier than average cuts to its main grant. The (perhaps poorly managed) library services then had to make drastic, in-year cuts or closures. The evidence for this should be available in part from the CIPFA data.
41. Part of this exercise would be an examination of how library budgets and expenditure are reported. CIPFA is a blunt instrument. However it is revised, some differences will be hidden in the way that authorities respond. Looking at annual reports or the library sections of annual accounts may be as useful.
42. One of the things that may be highlighted by this work is whether there is a relationship between budgets, management of services and falls in issues and other figures about library service use.
Despite the existence of MLA/ACE, LGA, SCL, CILIP nobody (or no body) seems to be pulling together evidence on this in a systematic way—perhaps this is a job for DCMS or ACE if they are to take their advisory and guidance roles seriously. January 2012 cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Written evidence submitted by the Department for Culture, Media and Sport 1. Introduction There are 151 library authorities in England, running nearly 3,500 libraries18 and spending a total of more than £900 million every year on library services in England.19 Although the DCMS Taking Part Survey shows adult visits to libraries declined steeply between 2005–06 and 2010–11 from 48.2% to 39.7%, there has been no statistically significant decrease over the last few years, and children’s visits remain at a very high level (75.6%).20 The number of volunteers assisting in libraries nearly doubled between 2006–07 (11,802) and 2010–11 (20,473).21 Libraries continue to thrive and play a vital role in communities across the country. For example, 97% of UK library authorities participated in the 2011 Summer Reading Challenge which encourages children aged four to 11 to read six books over the long summer holiday. In 2011 the Scheme attracted 53,000 new library members and 44% of participants were boys (significant because boys’ literacy has been shown to lag behind that of girls). The Department for Education (DfE) is funding a book gifting programme delivered by Booktrust in 2011–13 with funding of £13.5 million over two years. This scheme ensures every child can enjoy the gift of books at crucial moments in their life. For the first time, every library service in England is part of the scheme. As well as providing access to books and reading, libraries provide important community spaces, access to the internet, local services and education. For example, libraries are a key partner in the Race Online initiative, pledging at the outset to get 500,000 people online for the first time by the end of 2012. This target has already been doubled and libraries will almost certainly get one million people online for the first time by the end of 2012.22 Libraries are as relevant today as they always have been. Most local authorities continue not only to support a vibrant library service, but also to innovate and expand them.
2. The Public Libraries & Museums Act 1964 Libraries are a local authority service, funded by local authorities as part of their statutory duty within the context of local resources. The Secretary of State has general duties in relation to the high level oversight of the public library service and library authorities. Section 1(1) of the Act imposes on the Secretary of State a duty to “superintend, and promote the improvement of, the public library service provided by local authorities” in England. It also requires him “to secure the proper discharge by local authorities of their functions in relation to libraries conferred on them as library authorities by or under this Act”.
3. Statutory Duty The 1964 Act applies to England and Wales but the Secretary of State only exercises his powers in relation to England. The powers of the Secretary of State with respect to Wales are transferred to Welsh Government Ministers. Scotland and Northern Ireland have always had their own arrangements. Section 7 of the Act sets out the general duties of local authorities acting as library authorities to “provide a comprehensive and efficient library service for all persons desiring to make use thereof”. This is the cornerstone of the Act and the principal statutory duty. The Government is clear that the statutory duty is non-negotiable and the statutory protection for public libraries will not be removed.
4. “Intervention” by the Secretary of State The Act enables the Secretary of State to intervene by setting up a local inquiry if he believes a library authority is not providing a “comprehensive and efficient” library service (section 10). He may also hold an inquiry into any matter relating to the functions of a library authority under this Act (section 16). If a local authority is unable to demonstrate to DCMS that they have discharged, and will continue to discharge their statutory duties under the 1964 Act, the Secretary of State may decide to intervene by setting up an inquiry. This kind of action will be a measure of last resort. If, having conducted a local inquiry, failings on the part of the library authority are identified, the Secretary of State can give directions to that authority by order to put right any breach. And if the local authority fails to comply with such an order the Secretary of State may take over the functions of that library authority or local authority relating to its public library service. 18 Chartered Institute of Public Finance & Accountancy (CIPFA) Public Library Statistics 2011–12 Estimates and 2010–11 Actuals. 19 Department for Communities & Local Government. Local authority revenue expenditure and financing England 2010–11 final outturn. 20 Taking Part: The National Survey of Culture, Leisure and Sport Adult and Child Report 2010–11. 21 CIPFA Public Library Statistics 2011–12 Estimates and 2010–11 Actuals. 22 Society of Chief Librarians. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Though a formal inquiry was threatened in 1991 with Derbyshire it has been exercised only once in the nearly 48 year history of the 1964 Act, when the then Secretary of State asked Sue Charteris to conduct an investigation into the public library service provided by Wirral Metropolitan Borough Council in 2009 (see section 6 below). The findings of the inquiry, that Wirral MBC had failed to take account of local needs in designing their library services, was sufficient for the local authority to look again at the plans for their library service, and no further intervention was necessary from the Secretary of State. Since the inception of the 1964 Act, no intervention (directing a library authority by order) has ever been made. Further, no inquiry has ever been set up under section 16 of the 1964 Act. It is premature to consider formal intervention in areas where proposals are still to be finalised and remain subject to consultation with local communities and finalisation by local authority officers, or where proposals are being challenged by Judicial Review proceedings, on particular legal grounds relating to both the conduct and procedure of the local authority. DCMS has made clear to local authorities that, based on the recommendations of the Charteris Review, the following matters may be relevant to any consideration of intervention by the Secretary of State: — The analysis of existing and projected local need for the public library service in the local area; this may include matters such as deprivation indices, rural/urban context, and consideration of vulnerable groups such as the unemployed, elderly, disabled, children and young people, young families. — Any consultation process undertaken in the lead up to proposed library changes and the Authority’s response to that consultation. — The strategic plan for the library service—including innovative and creative ways of delivering the service. — Any Equality Impact Assessment and how any adverse impacts may be mitigated eg, outreach services. The closure of a library does not of itself signal an automatic breach of the 1964 Act. Sometimes a library authority will close or consider closing a library to ensure a more efficient service is provided across its geographical area overall and this will be based on an assessment of local library needs at the material time and in the context of available resources. It is the role of elected members and local officials, in consultation with their communities, to make any necessary decisions about how money is invested, in the interests of the whole community and having regard to the local context and all their legal duties. It is clear that local authorities are entitled to have regard to their available resources when determining how to deliver their public library service. They will have competing priorities across a wide portfolio of local service provision and local authority officers and councillors must reconcile these matters against the background of their legal requirements. In reality, the DCMS engages with a local authority that may be perceived to be at risk of being in breach and takes a variety of steps to monitor them before considering formal intervention, including holding meetings with the authority and the exchange of correspondence. To this end, officials at DCMS have held discussions with 7 local authorities in the past 18 months. Details of this and other engagement with local authorities is provided in section 7 of this submission.
5. Comprehensive and Efficient In the run up to the passing of the Act in 1964, two key reports touched on the definition of “comprehensive and efficient”. The Roberts Report (The Structure of the Public Library Service in England and Wales, 1959 Cmnd 660) was driven mainly by the desire to reduce the number of library authorities (then standing at over 400) in order to create efficiencies, and to ensure adequate book stocks so that the service was comprehensive. The report recommended that every public library should have a statutory duty to provide an efficient service and that parish councils should cease to be library authorities, in order to create a more efficient service. The recommendations of the Roberts report on what constituted a comprehensive and efficient service— which were based mainly on expenditure on books—were studied in 1962 by a working party appointed by the Minister and chaired by H T Bourdillon. The resulting “Bourdillon report” (Standards of Public Library Service in England and Wales) concluded that the “the assessment of the efficiency of a library is a complicated task involving consideration of many factors in the light of varied local circumstances.” (paragraph 5) The Committee “decided that it would be wrong to define standards in terms of expenditure, per capita or otherwise.” (paragraph 9) Its recommendations consequently covered the minimum amount of material which should be purchased annually; staffing; and premises and became a yardstick against which performance was measured for many years. Local authorities therefore have a wide area of discretion under the Act. They must decide having made a reasonable assessment of local need and having regard to their resources, how to fulfil the statutory duty to cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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provide a “comprehensive and efficient” public library service. Whilst it is clear that a “comprehensive and efficient” library service is one which best meets local need in the context of available resources, there is no absolute or uniform standard. Thus there is a range of judgements open to local authorities in this area and the standard upon which they may be judged in this context is whether they have acted reasonably and rationally in arriving at any decision. However there will be a limit which will be fact dependent beyond which a service could arguably cease to be comprehensive.
6. DCMS Local Enquiry into the Public Library Service Provided by Wirral Metropolitan Borough Council Led by Sue Charteris Sue Charteris’s inquiry into library service provision in the Wirral (the Charteris review) made a number of general observations about the statutory duties under the 1964 Act and reached particular conclusions about the library proposals in Wirral. The inquiry “accepted the implicit and explicit interpretation of the 1964 Act that a comprehensive and efficient service is one that is based on local needs (hence why there can be no single definition which is true to all library authorities in England)”. The Charteris Review concluded that “if those needs are not fully assessed and taken into account, it becomes a rational impossibility for a library authority to design a service which comprehensively and efficiently meets those needs in a demonstrable way” (para. 9.4); but in designing its library service a local authority is required to strike a reasonable balance between meeting local need within available resources. The Charteris review is now considered to be important guidance on the approach to be taken to fulfil the statutory duty under the 1964 Act. DCMS encourages library authorities to consider the findings of the review when developing their library policy and particularly when considering significant changes to library provision.
7. DCMS Role in Supporting Library Services Public libraries are places where anyone can go in order to learn, read, access information, get online, and find entertainment. In his role as the Minister responsible for libraries, the Minister for Culture, Communications & Creative Industries has undertaken a number of particular steps to help library authorities with the development and modernisation of library services. In particular, key actions taken include: — Key speeches setting out Government’s approach were delivered by the Minister on 1 July 2010 Modelling Library Services and on 21 June 2011 The Future of Library Services in the Big Society conferences, and highlighted as part of wider events, most recently at the All Party Parliamentary Group re-launch on 15 December 2011. — Letters were sent to library authorities on — 19 August 2010 on the announcement of Future Libraries Programme. — 3 December 2010 noting the financial constraints which library authorities were under but also highlighting to them the importance of the duties which are imposed upon them under the Act. He also reminded them of the one inquiry into a library authority which has been carried out (into Wirral Metropolitan Borough council’s compliance with its duties) and the useful and constructive conclusions drawn by the inquiry. — 24 February 2011 presenting ideas from the Future Libraries Programme that local authorities might consider before closing frontline public library services. — 16 June 2011 referring to their duties and setting out some of the lessons learned from Phase I of the Future Libraries Programme so as to facilitate the sharing of good practice in the delivery of library services. — September 2011 drawing attention to the second phase support on the Future Libraries Programme. — The Future Libraries Programme, announced in August 2010. The purpose of the programme was to assist library authorities in developing ways to achieve cost savings, to take advantage of digital opportunities and consider different ways of operating their services to the benefits of people in their areas. It was an ambitious programme intended to help library authorities to look at how best they can provide their services. The Museums Libraries and Archive Council (MLA) and the Local Government Group (LGG) worked with ten areas to develop their services. The aim has been to gain practical experience in the ten areas to be shared with other library authorities to help them in delivering their services. This was the first time MLA and LGG had worked closely together. The Programme saw many beneficial outcomes. For example, the Royal Borough of Kensington and Chelsea, Hammersmith and Fulham and Westminster councils prepare a feasibility business case for a combined library service. Senior library management, book processing teams and procurement will now be merged into a single library service in a move designed to save £1 million. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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— In addition, officials at DCMS consider issues arising in relation to library services. In 2011–12 DCMS has met with officers from the Metropolitan Borough of Bolton, London Borough of Brent, the Metropolitan Borough of Doncaster, Gloucestershire County Council, London Borough of Lewisham, Isle of Wight, and Somerset County Council. — Officials also meet with the many others interested and involved in the success of libraries including: the Chief Executive and staff of the Arts Council England, the President of the Society of Chief Librarians (SCL); members of the SCL ie the Heads of Services from the library authorities; the Chief Executive of The Reading Agency; the Chief Executive of the Chartered Institute of Library & Information Professionals (CILIP); the Chair of the Local Government Association Culture Board (which deals with library matters); and other interested parties. — The DCMS libraries team deals with all correspondence received by the Department about any library or general library matters (including complaints) and also monitors media coverage of library services (in order to identify where concerns might be arising).
8. Transfer of Library Responsibilities to Arts Council England (ACE) ACE took over responsibility for public library development work from October 2011. The decision gives libraries the opportunity to be part of the wider cultural framework as part of the portfolio of ACE (with its responsibilities for arts and museums). ACE’s cultural reach means that there are now greater opportunities to work across the cultural sector and ensure libraries have access to the wider funding opportunities provided by ACE to develop new ways of working. ACE has announced the Libraries Development Initiative, which will support up to 10 projects from March 2012 until March 2013 with a maximum award of £20,000 per project. Successful projects will explore how embedding arts and culture in libraries can bring benefits to library users and library services and increase cultural provision in local areas. Projects will also look at new ways of working that will enhance libraries’ sustainability and relevance as vibrant hubs in their local communities. In December 2011 the Local Government Association, in partnership with ACE, invited elected members from LGA member councils to a seminar where learning from the Future Libraries Programme was shared. At the seminar Councillors responsible for library services were assisted to develop responses relevant to their own local situation. A similar seminar will be held in Leeds at the end of February 2012.
9. Development of Community Libraries and Volunteers Where locally appropriate, community supported libraries can be a way of growing the library service. However, such an option must be carefully balanced and fully analysed. The key priority under the legislation is fulfilment of an authority’s statutory duty to provide a comprehensive and efficient library service for library users. A community supported library can be used in addition to the public library service or, in a measured way, as part of it but only in appropriate circumstances and after careful analysis. The June 2011 MLA guidance, Community Managed Libraries, addressed the issues of transfer to the community, and their relationship and role with the statutory provision of library services provided by a local authority. Over the last 10 years the numbers of people volunteering in libraries has increased. Volunteers regularly help to deliver homework clubs, digitisation projects and “buddy support” for people new to computers. A broad range of generic skills and attributes underpins a successful library service and these skills may be derived from different careers and training routes. Authorities should use staff—those with library qualifications (the “professional staff”) and those without, staff who are paid and those who volunteer—that have the right mix of skills and attributes to fulfil the needs of the community they serve—how they choose to do so is up to them but we believe that professional expertise is required at some minimum level to provide service delivery.
10. Numbers of Libraries The assertion that some 600 libraries have closed or are threatened with closure is often quoted. It is difficult to get an accurate picture, as many local authorities are still developing and consulting on proposals and consequently the overall picture is always changing. Whilst a definitive number is open to interpretation, we understand, from information we have gathered to date, that fewer than 50 static libraries ceased to be funded by their local authority between April and September 2011. Of these, responsibility for around a dozen libraries has been transferred away from the local authority and they remain open. Initial assessments also suggest around 40 libraries are being refurbished or are being opened—for example, large scale library building and improvement is happening in Manchester, Liverpool, Birmingham and Blackpool and significant new builds have opened, for example in Southwark, and will open in Hertford in January 2012. It is important to emphasise that there is, and always has been, a wide variety of provision between local authorities in terms of the number of service points open more than 10 hours per week per head of population. The national average is 15,394, but there is huge variation in provision from Darlington and Slough, with more cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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than twice that number of residents per service point (33,600 sand 32,775 respectively) and small authorities like Rutland and the City of London having just 7,720 and 2,340 respectively.23 Perhaps not surprisingly, some of the larger, sparsely populated county authorities have small populations per service point, eg, Cumbria (10,090) and North Yorkshire (11,533).
11. Conclusion Libraries remain a vibrant and active part of local communities throughout England. The library service is underpinned by a statutory duty and in addition helpful and pragmatic guidance is provided by the Charteris Review. Also all the letters issued from the Secretary of State and the guidance available on the DCMS website provide a sensible yet flexible framework within which local authorities must now act. DCMS is closely engaged with library issues, and with ACE in its new libraries role, has regional presence. With ACE there is now real opportunity for a joined up approach with cultural delivery. Funding levels remain sound (£916.7 million in 2010–11),24 as does attendance (264 million visits in 2010–11).25 Libraries are changing, but books are still in abundance. According to the Publishers Association, 150,000 titles were published in 2010 and 8.73 million books were acquired by public libraries in 2010–11.26 But the role of libraries needs to continue to develop—proper consideration needs to be given to co-location of services, of access to library services and content in a digital age, and delivery of library services by a range of professional and interested groups, and library authorities need continue to fulfil their statutory duty to provide a comprehensive and efficient public library service. January 2012
Written evidence submitted by Leicestershire County Council LEICESTERSHIRE LIBRARY SERVICES Summary The following submission: — Outlines Leicestershire County Council”s strategic approach to libraries. — Defines its constitution of a Comprehensive and Efficient Library Service. — Outlines its position on the impact that library closures may have on local communities.
Submission Details 1. In Leicestershire, library provision is being protected by taking a strategic approach to service provision, within the context of wider cultural services, and linking this to the development of innovative approaches to service delivery whilst continuing to look for opportunities to modernise the service. 2. In 2011, Leicestershire County Council”s Cabinet approved the recommendations of an independent review of its Library Heritage and Arts services which was undertaken by BOP/Shared intelligence and led by Sue Charteris. A link to the document is attached to this note below: http://website/index/leisure_tourism/museums/museums_about/heritage_policies/RenderForm/ library_heritage_arts_review.htm?F.Name=qubrdobswab 3. The review was underpinned by extensive consultation with users, stakeholders and representative groups. The review recognised the financial challenges facing local authorities and recommended a mixture of strategic options for efficiencies, savings and reductions in service. 4. A subsequent Transformation programme has identified a number of work areas, and these define Leicestershire”s approach to libraries. These are outlined below.
Organisational Design 5. Library organisation will be redesigned as part of an overall re-structuring of museums heritage and arts that will deliver £1.2 million in savings without closing any library or museum. 6. We have taken a decision to reduce some opening hours, and consultation with residents and stakeholders enabled us to identify hours that were least used by customers. 23 CIPFA Public Library Statistics 2011–12 Estimates and 2010–11 Actuals. 24 Department for Communities & Local Government. Local authority revenue expenditure and financing England 2010–11 final outturn. 25 CIPFA Public Library Statistics 2011–12 Estimates and 2010–11 Actuals. 26 Ibid. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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Using Buildings Better 7. The County Council is leading a strategic review of property assets across Leicestershire in order to operate efficiently whilst improving access to services. An example of this is at Loughborough library where a part of its building has been redesigned to accommodate day care services. This innovative solution enables day care clients to be situated in the centre of the community, the library at Loughborough to be refurbished, and at the same time save £190,000 through the disposal of the old day care location. 8. Part of the Transformation Review will seek to identify other examples where other services can make use of library premises, or libraries be relocated to other community based buildings. 9. Part of this programme will also explore how local communities can access and use the library building outside of traditional opening hours. This will maximise the use of the building and put in place a protocol for enabling community access. For example, the Parish Council at Desford in Leicestershire will be shortly using the local library from which to operate its office facilities. In this way local libraries can be used to add value to communities by building on their strength as a trusted and neutral community space.
Shared Services 10. Our libraries have a strong record of pooling resources. An example of this is that the service is part of the Mid-Anglian stock purchase consortium. This pools the buying power of five Library Authorities to drive greater discounts with library stock suppliers. Other areas of shared services are being explored with neighbouring authorities to explore how other aspects of service can be shared.
Community Partnerships 11. The relationship that the local community has with its library is valued. Part of our programme over the next two years will be to explore how they can be more involved in the running of services, and this area of work will be explored more fully. 12. For example, the County Council is working with the local Parish Council, and a group of trustees who have purchased an old school building in Quorn from which it proposes to deliver a number of services including the library. The County Council has offered the running costs of the existing Quorn library to enable the leverage of additional funds to progress the building site. The board of Trustees and the Parish Council are currently tendering for a feasibility study of the project. If successful, the library will be operated by the local community on behalf of the County Council, with a negotiated Service Level Agreement.
Commercial Opportunities/External Funding 13. The innovative integration of libraries with heritage and arts services will enable the programme to explore how libraries can become more commercially minded without relinquishing the statutory duty to deliver a free book lending service. This programme will be exploring philanthropic giving that may be linked to some of our heritage sites. The formation of a Friends of the Library Service is being explored that may be constituted to support complementary income streams for the service.
Modernising the Service 14. The County Council ensures that the Library service is continually improving its service offer. In November, we will be launching an e-books service. This enables people to use IT at home to download books to a PC, phone, or e-reader. Together with an online reference information offer, this takes the service into the homes of people who perhaps do not have the time to access the service in the traditional way. 15. Our busiest libraries use self-service loans kiosks and 80% of all loan transactions are dealt with through this method of enabling readers to check out and return their own books without staff intervention. There is the potential to extend the technology to enable the kiosks to process other financial transactions, perhaps through partnerships with local districts so that payments for parking penalties or rents can be processed in this way and this is at the early stages of exploration.
Comprehensive and Efficient Library Services 16. In Leicestershire we define a comprehensive and efficient service as being able to provide: — Free access to books either through the local library, or online through our e-books service. — Support for literacy. — Free access to information through collections in local libraries, or through online sources. — Support for learning through our collections and venues. — An inter library loans service. — Access to the internet, on a charged for basis following a period of free time. Free Wi-Fi access through targeted libraries. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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— Faxing and photocopying. — A mobile library service serving rural areas. — A library service at home, targeting people who are confined to the home. — A library service for education that supports schools. (an independent trading unit). — Community and exhibition space through our network of libraries. (Aspects of this are charged for). — Supporting Prisons and Young Offenders Institutes. — Support for health and social care through designated health collections. — Signposting to other agencies and organisations, including other council departments.
Impact of Library Closures 17. In Leicestershire there are no current plans to close libraries. 18. Any plans to close libraries would need to include a rigorous assessment of the impact of such an action on the community that it serves, and enter full engagement with the community to ensure that access to the service could be continued in the absence of a building. This may be, for example, through sharing a venue with another organisation, or through the development of a fully online service. Appropriate Equality Impact Assessments would also have to be undertaken. 19. Libraries help shape the community and make it strong. They provide one of the few free community spaces for people to meet, share ideas, be creative, learn and be digitally active. Removal of such a facility would have a significant impact on those most vulnerable in society. January 2012
Written evidence submitted by Arts Council England Summary 1. Arts Council England assumed many of the responsibilities for museums and libraries formerly held by the Museums, Libraries and Archives Council on 1 October 2011, and is now the development agency for the library sector. On 9 November 2011 we launched the Libraries Development Initiative. The overarching aim of this initiative is to create vibrant, sustainable 21st century library services within the context of our ten year framework Achieving great art for everyone. We have developed our core functions—advocacy, development and investment, to support libraries to deliver efficient, fit for purpose 21st century services. Culture, knowledge and understanding: great museums and libraries for everyone sets out how we will ensure our framework is relevant to museums and libraries. 2. We begin our submission with Arts Council vision for public libraries and then consider the four questions posed by the Committee. We address what constitutes “comprehensive and efficient library service for the 21st century” at paragraphs 14 to 25. We do not address directly the impact of library closures in specific communities, but at paragraphs 23–28, we discuss how libraries are changing to meet societal change and new demands from communities. We do not intend to offer a view on the third and fourth questions, the extent to which library closures are compatible with the 1964 Act and the effectiveness of the Secretary of State’s powers of intervention. Arts Council England is the development agency for libraries and does not have a monitoring or inspectorate role under the act. This is properly a matter for the Secretary of State. It is clear that it is for the Department for Culture, Media and Sport to define what constitutes a “comprehensive and efficient service”. Decisions about library provision and how local government provides this are best made by local authorities according to local need. We end our submission with a framework for our work with libraries 2012–13. 3. Public libraries are a statutory service, provided and funded by local authorities. Arts Council England is not responsible for their core funding and so to help public libraries develop in the 21st century, the partnership between local government and Arts Council England is key. Our extended cultural remit will enable us to work with local authorities and a unified arts and cultural sector to deliver an integrated cultural strategy which supports local communities. 4. Libraries are more than a book lending service. Our vision for public libraries in the 21st century sees them providing access to information, learning and cultural content in shared and trusted spaces, inspiring and empowering people to lead active lives, enriched through cultural experience. 5. There are places where library buildings are important as local hubs, including some rural communities. The effective access to library services for local communities is of paramount importance, and not all of these services must be delivered in buildings. Where it is not possible to maintain high quality library services in existing facilities, closure is not the only option, alternative means of delivery such as co-location should be considered. It is important to recognise that the national picture is not solely one of library closures. In 2012 there are 39 new library builds or major refurbishments planned to open. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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6. It is for DCMS to define what constitutes an efficient and comprehensive library service. Libraries are local services and how local authorities meet their responsibilities under the 1964 Act is their decision. However Arts Council England will support local authorities through its investment and development roles, to understand a range of approaches which meet the needs of their local communities. 7. We will use our role in library development to encourage approaches which explore and develop the core role of library services: access to books and reading, support for learning, information, rich cultural content, support of expert staff and provision of civic space. 8. How these roles are fulfilled by libraries will continue to change in response to the needs of communities and economic, political, societal and technological change. The public sector landscape has changed radically driven by the financial climate and the Localism agenda. New approaches to service delivery are becoming more common and include outsourcing, transfer of ownership to community groups, commissioning and digital services. The sustainability of some of these models has yet to be established. Our investment in the Library Development Initiative is central to our work in understanding the composition of a comprehensive and efficient library service in the future. 9. In 2012–13 we will conduct a debate to inspire and challenge the vision of what such a service could look like. Current debate about the role and function of public libraries often focuses on short term issues of funding and management. We intend to use our new role to stimulate discussion on the contribution public libraries make to a society much changed since the 1964 Public Libraries and Museums Act.
Arts Council England’s Vision for Libraries 10. Libraries are not simply about providing access to books and reading. The Arts Council’s vision for public libraries is that they provide access to information, learning and cultural content in shared and trusted spaces. Moreover that they inspire and empower people to lead active lives, enriched through cultural experience. Our Library Development Initiative will both develop this vision and draw attention to best practice from around the country. This builds on the Future Libraries Programme developed by the Local Government Association and the Museums, Libraries and Archives Council. 11.The integration of some of the MLA’s responsibilities with the Arts Council has created new opportunities to explore the impact of the arts and culture working together within local authorities. We see our libraries role as part of a single cultural offer and an opportunity for a single conversation with local authorities about key issues including commissioning, asset sharing, reaching marginalised communities and more efficient use of resources providing better outcomes for individuals and communities. Issues of management, funding and the use of facilities, while important, should not distract from a concentration on the ease of access to excellent library services however.
Our Role 12. The Arts Council is to advocate, develop, and invest in the arts. We believe these roles are also relevant to our new role for libraries in the following ways: — We will advocate for and champion libraries’ roles and the public value they provide. This will include the contribution they make to positive outcomes in learning, the development of employment and skills, improving health and well being, and forging stronger community ties. Throughout 2012–13 we will conduct a libraries debate across government, the library sector and wide range of stakeholders, creating the space and conditions to think radically and long term on the purpose, value and potential of future public library services. — While we will not provide or core fund library services, we will play a significant role developing the libraries sector in order to sustain the long term public value of libraries. In discussion with the libraries sector, we will draw an accurate picture of the challenges and opportunities and use this information to inform our support for new ways of collaborating and improving efficiency to help library services thrive, not just survive. We will capture and disseminate examples of good practice. Our new responsibilities enable us to hold single conversations with local authorities about all their arts and culture provision which should lead to greater impact and value for their communities. — Where appropriate, libraries will be eligible for Arts Council strategic investment funding. Partnering with arts organisations, libraries will be able to apply to project and strategic funding programmes including Grants for the arts, digital, touring and Arts Councils general strategic fund. 13. Arts Council England is not responsible for providing core funding for libraries, this statutory responsibility remains with local authorities. However, we will provide the Secretary of State with a national overview of the public library sector, including current and future challenges and opportunities. This information will support the Secretary of State in exercising his statutory duty under the 1964 Libraries Act. Monitoring of the 1964 Act is the responsibility of DCMS. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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What Constitutes an Efficient and Comprehensive Library Service? 14. As the development agency for libraries we will build a shared sense of the value of libraries. We will show how library services can contribute to outcomes across local and national government as part the cultural landscape and fund some projects which develop new ways of working towards those outcomes. 15. There are a multiplicity of ways in which a modern library service can contribute to public value including information provision, support for informal and formal lifelong learning, access to books supporting literacy and provision of rich cultural content. 16. Libraries provide free access to knowledge and information necessary for individuals to participate in and contribute effectively to society. Library staff support people in navigating varied information sources and developing their skills in handling information. As an example, Arts Council England is currently working with the Society for Chief Librarians, Directgov and other national partners on a series of eight pilot projects to develop tools to help people effectively navigate the range of national online information sources, specifically in the areas of health, finance, careers, employment and business information. 17. Libraries support learning for all, offering community based learning environments not necessarily linked to formal learning. They offer choice about what, where and when people choose to learn including online. Their staff help people re-engage with learning and skills development, and many offer support in job searching and CV writing. For example, Rutland library authority’s Access to Work programme is a lifeline for rural communities some distance from Job Centres. Support to develop digital skills is offered by 91% of libraries. 18. Obviously, books are a major part of the core cultural offer from libraries. Most endeavour to ensure their reading offer remains engaging, exciting and relevant to their local communities. Activities include reader groups, author talks and co-production opportunities which extend the reach and engagement with books. The Reading Agency programme “Headspace” encourages young people to volunteer in their libraries, choose books, and develop library space for young people. Library staff are skilled at supporting people to make their reading choices and nurturing the habit of reading. London City Read is library-led collaboration with, among others, museums, publishers visual artists, and spoken word performers promoting reading and literature locally and pan-London, and supported by Grants for the Arts. During April 2012 Londoners will be encouraged to read and share their thoughts and feelings on a single title—Charles Dickens’ Oliver Twist through events ranging from talks and readings to hip hop Dickens workshops, many of which will be taking place at their local library. 19. Many libraries combine books with other cultural content to improve public experience and opportunities to engage with arts and culture locally. Art exhibitions, literature events, poetry slams, craft and music workshops in libraries are now commonplace. The “Get it Loud in Libraries” initiative holds quality rock and pop music gigs in libraries. In recognition of this work, Stewart Parsons, the founder, was recognised as one of the 18 innovators from across the world as part of the International Network of Emerging Library Innovators supported by the Gates Foundation. 20. The public value of libraries lies within the services that they offer and therefore how and where those services are delivered will be an important consideration in maximising their impact. Although libraries are hubs for information and services that are important for communities, not all such services must be building based. However for some communities the library building may be the only public space available and therefore has value as a hub for other services. Such co-location can provide opportunities to reach disadvantaged communities. For example Lower Kersal Library in Salford is combined with leisure facilities in one of the most deprived areas of the city. Co-location and introduction of self issue has meant extended opening hours for the library and a rise in visitor figures. Similarily The Hub in South Normanton Derbyshire is the centre for community life in the town offering library, adult education, social care and police services to a deprived community in Derbyshire. 21. Plans for library closures should be considered locally dependent on need and provision in the surrounding community. The picture of the library sector in England should not be characterised purely as one of closure however. Through our overview of libraries in England, we are aware of 39 new libraries which will be opened or refurbished in the coming year including Hertford Library and Egremont Library in Cumbria. 22. The Arts Council is interested in opportunities for libraries to forge links with artists, potentially using their spaces for display or performance. Increasingly, new library builds such as Canada Water and the Library of Birmingham have dedicated space for theatre, music and dance. 23. In a digital age, public libraries will become physical and virtual public spaces for gathering and retrieving knowledge around the clock. “The People’s Network” in 2000 which established public access to IT in the majority of public libraries, revolutionised the pattern and demographics of public library use. In the future, it is likely that libraries will focus less on the pure provision of public access to IT and more on digital services and resources. Some library users might access library services remotely at any time, while other library users will bring their own laptops or smartphones into their local library to access online resources. Libraries will become a place for connectivity—a creative hub. Manchester City Libraries City Living Room will provide spaces in the central library building for social interaction, study and work that will encourage users to interact, share and create knowledge. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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24. All of the above is underpinned by trained library staff and their proven ability to adapt to challenges set by their local agendas. They have to be flexible and creative in their approach to the wide variety of services libraries provide which will include services to housebound people, children and young people, support for informal learning, activities for older people. The role of professional library staff as mediators and active facilitators supporting literacy and digital fluency is key to supporting people to actively engage and participate in their communities. Trained librarians are skilled handlers of information and a key role for library staff is to guide people to make critical, intelligent judgements on information in from a variety of sources in a range of media. Digital technologies have changed how we communicate and access information, but that is why public libraries and library staff remain relevant. They do not just provide access to the internet and bridge the digital divide, they help people to find and to identify and interpret reliable online information sources. 25. What constitutes a comprehensive and efficient library service is best defined locally, but there are occasions when national co-ordination of library services and a national public library network, secures economies of scale through partnership working across local authority boundaries. Examples include the Reference Online initiative which to date has secured £7 million efficiency savings through a joint procurement process for online reference resources. The Arts Council is currently working with the Society for Chief Librarians to join library catalogues into a single catalogue so members of the public can access the huge range of library resources throughout England from one website.
Local Communities and How Libraries are Changing 26. Libraries must continually respond to the changing needs of local communities brought about by societal, economic, technological and demographic shifts. Increasingly, library services are delivered in partnership. This might comprise libraries working with other services across a local authority such as health, learning, skills development and employment, working with third sector partners such as Age Concern or literacy charities. Some libraries authorities are working with commercial partners. The Society for Chief Librarians and The Reading Agency are working with 40 UK publishers to promote reading and library membership as part of a drive to stimulate a healthy reading nation. 27. In response to the financial climate and changes to public service delivery, libraries are developing a more entrepreneurial approach to delivering services. This includes building their capacity to secure contracts and commissions as an alternative to grant funding. The “whole place” approach to commissioning currently being piloted by the Department for Communities and Local Government will be watched keenly by library authorities, as will entrepreneurial approaches to income generation. Northamptonshire Library Service is actively encouraging financial donations from the public to contribute to the running of library services. 28. As well as library services, the library workforce is also changing with many local authorities recruiting volunteers. We believe volunteers can play a valuable role in complementing professional librarians but they cannot and should not be a substitute. Volunteers can lead to local community empowerment and a local voice in library service delivery. Professional expertise in customer service, commercial partnerships and tendering procedures is likely to be more necessary in the 21st century rather than less.
What We Will Do 29. The Library Development Initiative (LDI) is central to understanding Arts Council role as a library development agency. Successful libraries development projects will explore how embedding arts and culture in libraries can improve people’s experiences; bring benefits to the library service; and develop cultural provision in local areas. We will draw on existing strengths such as approaches to health and well being; learning opportunities for adults and children; and developing reading offers for local communities. We also want this initiative to encourage innovation and creative thinking in new approaches to delivering library services. 30. Successful LDI projects will be announced in February 2012. Applicants must demonstrate their ideas around one of the themes we consider essential to efficient future library services. These are: — New ways libraries can work with arts and cultural organisations, with the aim of improving a community’s experience and opportunities for engaging with arts and culture locally. — Wider community outcomes. How libraries can expand their role in the local delivery of areas such as learning, skills and employability, and health. Particularly through multi-disciplinary partnerships with, for example, other local authority departments, community groups, job centres and arts and cultural organisations. — The challenge for libraries to ensure their books and reading offer remains relevant and exciting. This is especially important in the changing context of more active library user involvement, and the different ways people are beginning to access reading material. — Commercial partnerships and how libraries can respond to increasing economic challenges in an innovative way, exploring diverse funding streams and the benefits of a resilient mixed economy. — Findings will be disseminated to the sector and used to help stimulate wider take-up of good practice and thinking about library services. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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31. The Arts Council is considering how libraries can respond to changing community needs and wider changes in society. Our libraries debate over the course of 2012–13 will draw on lessons from our arts debate in 2006–07. We will develop an inspiring and challenging vision for the purpose, value and potential of modern public library services, through a programme of research and debate on what libraries ought and need to be in the light of future trends and a deep understanding of the public value of libraries. The aim is not to define a “comprehensive and efficient service”, nor to analyse the strengths and weaknesses of existing library services. Rather we aim to build a shared sense of the purpose, value and potential of libraries to support the Arts Council and the library sector in developing and advocating for a 21st century library service. 32. We believe this public debate will demonstrate our commitment to our new responsibility, our role as a development agency for libraries and our vision for its future. It will help move the debate beyond short term funding cuts to think radically and long term, creating the space and conditions which can encourage fresh thinking and promote positive change in the libraries sector. We would like to see it open up cross government dialogue on the contribution of libraries to cultural, social and economic outcomes. We hope discussion will also encourage active engagement of the sector and a wide range of stakeholders to reflect the breadth of professional and public interest.
Conclusion 33. Libraries have a reach into communities that few other services possess. They support information as well as language literacy and address the digital divide. We believe the effective access to these services for local communities is of paramount importance, however or whenever this access occurs. For the Arts Council, our advocacy role for libraries is an unprecedented opportunity to support our mission to achieve great art for everyone. January 2012
Written evidence submitted by the Local Government Association (LGA) Introduction The Local Government Association is here to support, promote and improve local government. Local government is facing the most radical changes, as well as the most significant opportunities, in a decade. We will fight local government’s corner and support local authorities through challenging times by focusing on our top two priorities: — representing and advocating for local government and making the case for greater devolution; and — helping local authorities tackle their challenges and take advantage of new opportunities to deliver better value for money services.
Key Messages — Local authorities are facing unprecedented budget challenges. Despite this councils are demonstrating great innovation and resilience to provide improved library services which meet their communities’ changing needs, whilst achieving value for money. — Libraries are a local service and there is no single definition of a comprehensive and efficient service. Modernisation and diversification are essential for them to thrive. Libraries play important roles as meeting places; in developing learning; giving access to the internet; supporting literacy,27 and providing information to local residents on issues such as public health and finding jobs. — Local authorities do not take decisions to close libraries lightly as they understand that library closures have a significant impact on communities. Planned library closures which take into account the best solution to meet local needs are compatible with the requirements of the Libraries & Museums Act 1964 and the Charteris Report. — However, the 1964 Act is outdated and stifles modernisation. We are calling for the updating of this Act as sector led improvement and local accountability through the ballot box are sufficient to ensure better local libraries.
Background 1. In the current Spending Review period councils have had their funding cut by 28%. They have borne the brunt of the funding cuts in a disciplined manner balancing the needs of the economy against a maintenance of vital local services. No council or council service is immune from these cuts and councils face the prospect of further reductions in future. 2. The public library service in England is a local service. It is mainly owned, resourced and delivered by local councils who spend over a billion pounds a year doing so. It provides an essential part of democracy. 27 A recent study by National Literacy Trust showed almost four million children do not own a book. cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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With a cross generational footfall that other local authority services can only dream of, libraries play a fundamental role in being a gateway to information across the board, from public health to adult learning, to employment and the police to other cultural services. 3. The current financial climate gives a new urgency to the drive to get better value from public services. Some councils have responded by giving communities a bigger role in running libraries, which brings challenges around capacity and provision, as well as opportunities. 4. Councils have shown that the best way to modernise services in tough financial times is by being innovative in developing and modernising their library services. The Future Libraries Programme (FLP) was launched in 2010 by LGA alongside the now dis-banded Museums, Libraries and Archives Council. We worked with 36 councils helping them develop their library services. Followed by the Libraries Development Initiative (LDI) launched this year in partnership with Arts Council England (ACE) with the aim of stimulating creativity and sharing learning in the development of library services. The LDI received over 100 expressions of interest from councils and other organisations keen to improve their library services. In addition, LGA will continue to support all local councils through a sector led approach by sharing emerging tools and good practice.
Comprehensive and Efficient Library Service 5. It is impossible to identify a single nationwide definition about what constitutes a comprehensive and efficient library service. The library service is a local service and will therefore vary depending on the changing characteristics and requirements of local communities. What may be a comprehensive and efficient library service for a rural area will not be the same as an inner city area; what may be comprehensive and efficient for an area with an ageing population will not be the same as an area with a large population of young people. Strong local political leadership ensures local library services address the needs of local communities. 6. Learning from the Future Libraries Programme (FLP) and beyond has established an extensive pool of good practice in needs assessment and different delivery models. This work cannot provide off the shelf solutions but can support local decision makers to robustly identify local needs and delivery options which will best meet those needs. 7. Emerging from the FLP were four models of reform: service location and distribution, new provider models, shared services across council boundaries, and empowering communities to do things their way.28
Library Closures 8. Local authorities understand that library closures and service reduction have a significant impact on local communities and they do not take these decisions lightly. However, as a result of significant budget cuts, some councils have no option but to close some of their libraries. This is underpinned by robust consultation where local people’s needs are identified and all relevant factors such as efficiency and usage of buildings are considered. Councils understand that in order to maintain a successful future for libraries it is important that they listen to and reflect the changing needs of the various parts of the local community they serve. 9. However, closure of a library does not automatically mean a decrease in access to library services; with the exploration of on line and community delivery models, it can mean accessing services in a different way. Other councils have decided to re-design their library services; and some have added to their portfolio of libraries. 10. The diverse range of responses across the country to budget pressures further highlights the diversity of local needs and why it is impossible to create a one size fits all definition of a comprehensive and efficient library service. 11. Arts Council England’s wider responsibilities offer a significant opportunity for a single over-arching conversation between ACE and local government to explore the strategic opportunities across all cultural assets in a local area.
Libraries and Museums Act 1964 12. Planned library closures which take into account the best solution to meet local needs are compatible with the requirements of the Libraries & Museums Act 1964 and the Charteris Report. Judgements in the cases of Gloucestershire County Council, Somerset County Council and London Borough of Brent, as well as the Charteris Report, did not say that there was anything inherently wrong with library closures. They stressed that in order for re-design to be lawful, councils must carry out a full and proper consultation and comply with their public sector equality duties. In the Brent case, Lord Justice Pill said “Given the scale of the spending reductions the council was required to make, and the information available following earlier studies, a decision that the library service should bear a share of the reduction was not, in my judgment, unlawful”. 28 LGA and MLA’s 2011 publication “Future libraries—Change, options and how to get there” explains these models in more detail. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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13. If local people disagree with changes to libraries provision, after having been engaged in the decision making process, then we believe recourse should be through the ballot box in local elections instead of the courts. 14. We believe that in order to increase councils’ ability to respond to local needs the Libraries Act of 1964 must be updated. Section 7 of the Act describes a service the principal function of which is the borrowing of books, instead of the provision of powerful information and providing an environment for learning. We live in an increasingly digital age with changed expectations, for example the Act refers to “gramophone records” in place of the internet. 15. The Government has removed much burdensome top down performance management and powers over local authorities. However, the Libraries and Museums Act 1964 still stands, in stark contrast to the principles of this Government’s localist agenda. 16. The present Act is a barrier to library reform. The stagnant superintendent role of the Secretary of State is ineffective in allowing library services to change in line with the changing needs and expectations of local people. The library service is fundamentally a local service and should be led by local leadership, being locally accountable. Putting central government in a position to “superintend” and intervene over the service can only confuse accountability for outcomes and increase bureaucracy. 17. Councils’ focus should be on meeting local needs not working to an archaic piece of legislation. Central government should be a strategic leader not superintendent, allowing a sector-led approach to deliver better services whilst achieving value for money. 18. We agree that there should be a statutory duty on councils to provide an excellent library service, but this must be flexible. As such we would like to see the Libraries Act amended to allow councils to be creative in responding to the needs of their local areas. A modern Libraries Act without the superintendent role of central government would give councillors the scope to re-design their library services to meet local people’s needs. January 2012
APPENDIX 1 GOOD PRACTICE AND INNOVATIVE CASE STUDIES Bradford Metropolitan District Council—local service points in retail stores to extend access Bradford Council is working with communities to help remodel its library service to provide major libraries in key centres across the district supported by a network of sustainable local service points called “Library Links”. Potentially many of these library link points will be located in shared outlets with extended opening times in partnership with a retail partner. A joint approach with a retail partner has the potential to relocate libraries into stores with excess space, redevelop existing library sites to incorporate new library facilities attached to retail stores and new developments of joint library/retail facilities. The council have worked with the local community to determine local needs from these alternative service points. This programme will enable Bradford to develop a remodelled and sustainable library service delivered though innovative partnership working and using a joint approach which is effective and efficient for both parties.
London Borough of Lewisham—community libraries: a social enterprise model Eco Computer Systems (ECS) run a multi-use community library service in three buildings in Lewisham. Lewisham council are responsible for stock and have recently installed self issue facilities. ECS leases the buildings from the council and staffs the libraries with a part time community hub manager and volunteers. This has seen the council make an annual saving of around £800,000 on staff costs. The multi-purpose centres provide book loans, free internet access, free training courses and a wide range of other local services. ECS raise income to help run the library through operating a social enterprise model; raising funds through recycling IT equipment, running training courses and hiring out training rooms, running a café and selling donated books online through Amazon. These innovative income generating streams have so far been very successful and they have future ideas to install a café in each library and to expand activities, for example by running a pop- up cinema and taster poetry sessions.
City of Westminster, London Borough of Hammersmith & Fulham and the Royal Borough of Kensington and Chelsea—Tri-borough partnership working Westminster, Hammersmith & Fulham and the Royal Borough of Kensington and Chelsea Councils in April 2012 will be launching an integrated libraries and archives service managed as a single service across the three boroughs, with local branding and delivery in line with local community needs. This will ensure savings of more than £1 million a year from reducing management and support costs by having an integrated structure and from introducing best practice in operational staff deployment. It will also ensure all of their 21 public libraries stay safe from closure. Once fully implemented, it will mean residents will gain access to around 1 million books, hundreds of entertainment and cultural events and scores of weekly skills and education classes. Each council has also agreed a new political mandate for its library service setting out its aspirations cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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and priorities. These signal a very positive future for the service, alongside delivery of efficiency savings not achievable individually.
London Borough of Hillingdon—increased footfall through innovative re-design London Borough of Hillingdon are just over half way through a four-million pound programme to rebuild or refurbish all 17 of its libraries within six years. Innovative ideas, such as locating libraries alongside leisure centres and installing Starbucks coffee facilities where all profits go back into funding new books for residents and other initiatives, have helped encourage more visitors through the doors. The latest books, new Apple Mac computers, free online access and WiFi as well as regular events and literary festivals are encouraging more visitors through the doors. Overall there has been a 50% rise in visitor numbers across all the revamped libraries.
Staffordshire County Council—digitisation and e-books Staffordshire County Council is making e-books available to all library members. More than 1,000 titles can be borrowed, free of charge, for three weeks for use on book reading devices like iPhones, book readers or iPads. The download “expires” after the loan period ends and, like traditional books, they can only be borrowed by one library user at a time. They have also recently rolled out Wifi access at all its main libraries. They hope ensuring their libraries are at the forefront of new technology will give people a new way to read and bring in people who may have not used the library service before.
Herefordshire and Shropshire Councils—modernising library services in rural areas Herefordshire and Shropshire councils face many similar challenges not least delivering services to sparse population in highly rural areas, but also a number of opportunities to create modern and effective library services. Therefore, Herefordshire and Shropshire are looking together at new partnership models for service delivery at individual library level. The programme will look at a range of delivery and management options that will shape sustainable services, including the options of charitable trust status and community run libraries. This project will ensure the needs of predominately rural counties are met by building on the innovation and best practice already found in both authorities. In Herefordshire a number of community libraries are being set up, largely staffed by volunteers and the number of people receiving books in Herefordshire through the home delivery service has almost doubled. Shropshire Council are working with partners on the management and delivery options for two libraries which are located in shared buildings. Other libraries are included in the council’s programme for service hubs which will co-locate a number of council services and external organisations. Discussions are also taking place between the authorities around best practice in a number of areas of work, sharing back office and specialist functions and the introduction of new digital front-line and support services.
Written evidence submitted by Sue Charteris 1. Thank you for the invitation to appear before the Committee. I am submitting this evidence in my personal capacity. 2. Since my report of the DCMS Local Inquiry was published in 2009 I have worked with several councils, the Local Government Group (LGG) and the Museums Libraries and Archives Council (MLA) on the improvement of public libraries. I was the lead non-executive on the Big Lottery Fund’s Community Libraries Programme, have served on the Lambeth Libraries Commission and I am currently Chair of Trustees of the Reader Organisation; a charitable social enterprise promoting shared reading for social inclusion.
Summary 3. In this submission I set out my views on: — How the current complex financial context and the digital revolution are both drivers for change, but there is still the opportunity to transform and improve public libraries services in this challenging environment. — How “comprehensive and efficient” is a test that has to be locally applied, underpinned by a local needs analysis. I build on the general advice to councils contained in both my 2009 report and the “The Modernisation Review of Public Libraries” policy statement published by DCMS in 2010. — Issues for both councils and community groups to consider in contemplating the community management of local “community libraries”. — Factors to be considered in reviewing and updating the Public Libraries and Museums Act 1964 (the ’64 Act) and the need for further guidance. — The need to establish and agree a shared vision of what the public libraries service exists to do in the 21st Century and how this might be achieved. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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A Challenging Context 4. The public library service is certainly in the eye of the storm of debates about public finances. The financial challenges facing local authorities are immense. But this is only part of the challenge facing the public library service as the digital revolution gathers pace, changing patterns of reading, seeking and gathering information. In my view, the library service therefore has to change, to meet users’ changing needs and expectations—and in order to take advantage of innovative and technological ways of providing a better service. 5. In this contested climate it is hard to find agreement on what constitutes a 21st Century library service and how it can be provided in an affordable way. I welcome the timely intervention of this Select Committee as a means to move this debate forward. 6. Good news is emerging from those councils opening new public libraries and redesigning their services; the efficiencies emerging from cross-borough partnerships do show that transformation “for less cost” is both possible and necessary in the current financial climate. The recent Future Libraries Programme run by the LGG with the MLA has developed replicable models for change and fresh creative approaches will indeed develop out of the new partnership between the LGG and Arts Council England (ACE). 7. For many local councils, though, the debate has become exhausting. The legal and policy framework for public libraries is increasingly complex and councils who have been trying to redesign their services have a hard challenge in navigating their way through the legislative intricacies necessary to ensure sound decision- making. It is asking a lot to expect councils having to make reductions in every service area—at pace, to fully absorb the implications of the 1964 Act, the Equality Act 2010, the Localism Act 2011 plus the recent findings of judicial review judgments before, pursuing a safe course of action. 8. The inherent risk is that some councils will decide that the service is now in the “too difficult” box and make savings that leave the service infrastructure essentially intact, with costs remaining obstinately high, usage continuing to drop, yet constraining existing staff capacity to introduce further change and innovation. 9. Emotions get high in this debate, which frequently is driven by campaigns to save buildings held in high regard. Whilst this is understandable it is also necessary to redirect the debate back to one of access, content and the creation of an inspirational service.
What is a “Comprehensive and Efficient” Public Library Service? 10. I think we have to accept once and for all that “comprehensive and efficient” has to be judged locally, given the huge diversity of requirements across the UK. It follows that councils need to make that local assessment of local needs (or evidence knowledge of local needs) in respect of their duty to provide public library services comprehensively and efficiently. 11. Councils should undertake a strategic review of their library service before embarking on significant changes and conduct a needs analysis as an integral part of this review so that they can map the existing and proposed service against the evidence of local need. 12. Councils should draw up a new vision and mission for the service and propose means of implementing and delivering that model. They should seek to do so in dialogue with local communities. 13. The considerations contained in Paragraphs 6.26 to 6.28 of my 2009 report proposed what this analysis of local needs and assessment of efficiency would cover and how local authorities making changes to their libraries service might reasonably undertake it. The relevant extract of my report is appended for ease of reference. I would make the following additional points drawn from practical experience: — Whilst comprehensiveness is a local test it does not mean “a library on every corner” or “blanket coverage”—it depends on needs assessment matched against the resources available for the service. — The needs assessment will enable the council to show it has acted reasonably in drawing up new plans for its services. This does not mean, in the light of evidence available, that it will not still have to make difficult and or unpopular decisions. — The analysis of need is best undertaken with close reference to the requirements of the Equality Act 2010 and the requirement to do a thorough equalities impact analysis of any proposed changes to that model of delivery and seek to mitigate any adverse impact identified on protected groups. — It helps decision making if the assessment of local need covers the existing service configuration and any changes that are proposed. It is highly unlikely that the existing pattern of delivery fully meets local needs and the analysis is therefore helpful in drawing up potentially different models of delivery. 14. This analytical work can generate a constructive discussion locally about who the service needs and wants to attract. It helps to tease out that the service and the buildings are not one and the same; that there are balances to be struck between different user’s demands for private study space, reading materials for pleasure, reading for study, access to the internet, usage times, preferences for digital solutions and so on—bearing in cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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mind this is a service in transition, where some users are far from ready to move to digital access and yet it is second nature for others to access services in this way. 15. Councils can invariably draw on existing data to do this analysis; it should be a helpful and not burdensome tool for reviewing and updating a service. 16. There has been considerable learning and evidence on the potential for efficiencies in the public library service coming out of the Future Libraries Programme. 17. Councils will find it helpful to fully inform those it is consulting on the costs of the service, including the shared understanding of “overheads”; and seek to gain recognition that other services are also making cost reductions. However valuable the role of public libraries to the council it is not realistic to protect library budgets at the expense of other services; who are also making cost reductions. 18. I would contend that partnerships at every level can play a key part in building a more efficient and sustainable service, including: — A nationally led initiative to resolve the issues on access to e–lending rights for libraries. — Further service integration across and beyond council boundaries whilst retaining local sovereignty; notable examples being the Tri-Borough initiative and the Essex/Slough partnership. — With other services, for example, to develop support for Ageing Well. — Building shared centres of excellence, for example, on procurement, specialist staffing, skills development and reader support. — With people in local communities and neighbourhoods, voluntary and social enterprises, development trusts, parish and town councils. — And/or private partners.
The Implications Of Designating Some Libraries as “Community Libraries” 19. I am excited about the possibility of sharing responsibility for running parts of the service with community providers and would like to see more piloting of new approaches. I think the potential exists for transformational results in some places, particularly those where the service has been under-used or where particular needs are evident. It is sometimes easier for local community providers to bring new energy to the service, seek funding for specific developments to attract new users and reach out to the isolated. The recent “Community Libraries Programme” run by the Big Lottery Fund demonstrated that sometimes it is these very local community libraries, with increased community governance, that can achieve the most transformational results. 20. In my view community-led libraries can be part of a sustainable solution if there is a shared understanding about the nature of their relationship with the service and where they sit within the strategy. I will try to spell out what I mean by this and why I think it matters. 21. As part of the mapping of local need against current usage data it will inevitably become clear that some library facilities are so optimally located that they act as centres of gravity or because of the quality of its offer or both (for example, Newcastle and Norwich Central libraries and the forthcoming new/refurbished libraries in Birmingham and Liverpool would qualify on both counts). Others may serve the community in a medium sized town and others still serve a specific community, for example, a village, suburb or inner city housing estate. It is this last group of libraries (often known as community libraries) that are most under threat; yet they often meet highly localised need. 22. It can help some councils to reconfigure their service on what I call a “hub and spoke” model where designated community libraries are spokes in the wheel. 23. But this is where confusion can lie. Councils need to be clear whether all or some of these are still part of the libraries service (ie an integral part of their statutory offer) or not. If the councils’ own analysis of local need and EOI (Expression of Interest) does determine that YES a need does exist in that locality then the question is how can that need best be applied in a way that also is affordable but is still part of the service even if it is run in a significantly different way. 24. Then it seems to me that the council is retaining the accountability for the service but delegating the management if suitable partners can be found to support that delivery. If this were the case a new “community” provider would reasonably expect that it becomes a partner in the production of the service and that it is doing this under some form of operating license. Under this model one would expect that: — The buildings are relatively fit for purpose. — There is access to expert support, web enablement, catalogue and stock—even if the building are not staffed all the time. — There is some contribution to running costs, even if this is significantly less than the current cost of running the service. cobber Pack: U PL: COE1 [E] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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— That the provider guaranteed equality of access to the service as part of an explicit agreement of how the service will be managed. 25. If the answer is NO the need for that facility can be met elsewhere (in a library nearby, by co-locating functions or whatever) then it may still, after full consultation, decide to close that facility or first offer the facility to the community (for example as an asset transfer or for sale) but not because the community must run a library from that site. 26. I am not seeking to imply that one approach is right and one is wrong, as there are pros and cons for both. In either case it is not a quick fix solution and invariably needs discussing on a site-by-site basis, with “open book” discussion on cost and conditions. It is worth doing this work if it helps councils continue to sustain a service to those most in need. It is early days for these models and although as yet there is little hard evidence about how they are working I would like to see more active encouragement for experimentation with different forms of governance and management—ideally with a further modest injection of capital to give them a kick-start.
The Legislation and the Role of the Secretary of State 27. I do think the time has come to redraft Statutory Guidance, although that will not be an easy task. It is vital that a new or updated Act thinks about the intentions behind the original legislation, which was to ensure a national public library service, locally applied. 28. In refreshing the legislation and statutory guidance it will be first be necessary to try to establish the core purpose of the public library service in the 21st Century. In setting the aspirations for a 21st Century service it will be necessary to explicitly include the promotion and encouragement of reading and creative endeavor through all the means currently available. It will have to offer access to digital media in the same way that the originators of the 1964 Act referred to gramophone records. 29. As well as a duty placed on local authorities to provide a comprehensive and efficient service, I think it is in the spirit of the original act for this to be done in partnership—encouraging a more permeable service that operates across borders. I would support an explicit reference to working with local communities to design and deliver a locally responsive service. 30. The “superintending duty” placed on the Secretary of State can be more positively drafted with the emphasis on a positive on shaping and securing a strategic direction and directly attends to those matters that need a nationally led resolution (such as securing an agreed way forward on e-lending rights). 31. Explicit reference should be made both to the Equality Act 2010 and the need to satisfy its requirements in meeting the council’s obligations to provide a comprehensive and efficient public library service. Albeit fraught with debate I suspect that substituting the phrase “comprehensive and efficient” with any other language will be perceived by many as an unacceptable watering down of the Act. 32. The Act will need to make it clear that the public library service has a fundamental role in achieving the objectives of promoting reading, increasing co- operation across art forms including access to literature, stronger links with museums and archives, and the wider socio economic objectives of increasing digital access and inclusion, encouraging creativity and enterprise. The role of the public libraries service as having an explicit role in positively helping to deliver those objectives. 33. In that context I believe it is reasonable for the Secretary of State to retain intervention powers. However, I do think that peer-led approaches to solution building being developed with the LGG and ACE are the optimum way forward. If further intervention is ever needed then I caution against using the Public Libraries (Inquiries Procedure) rules 1992 that are currently required by the legislation. They are cumbersome, bureaucratic and need updating. If the Act is amended then formal guidance should be provided on how to approach change to local public library provision and consult communities in so doing.
Going Forward 34. Looking ahead to the outcomes of this Select Committee, I would recommend that if there is a shared appetite to rewrite the Public Libraries and Museums Act 1964 then this will require a very deep look at the role and purposes of the public library service in this digital age, so that the legislation is future-proofed for at least another 20 years. 35. One way forward would be to establish a time-limited Commission to undertake this task (possibly reality testing this in the context of different types of council), drawing on the deliberations and recommendations of this Committee, to seek an agreed way forward. My second recommendation is to simultaneously see further active experimentation with community governed libraries, building on the learning of the Big Lottery Fund’s Community Libraries Programme, but with more explicit attention paid to asset transfer and the piloting of transformational service delivery. 36. Finally, I thank the Committee again for giving me the opportunity to submit evidence. I am confident that it is possible to ensure a public library service for the country to be proud of in the 21st Century, but it cobber Pack: U PL: COE1 [O] Processed: [02-11-2012 15:29] Job: 018663 Unit: PG04 Source: /MILES/PKU/INPUT/018663/018663_w011_018663_w131_kathy_LIB 131 - Sue Charteris.xml
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will mean harnessing the strategic capability that exists in a very positive way to address the fundamental challenges to the service. January 2012
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