Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Manchester City Council Report for Resolution

Report to: Communities and Neighbourhoods Overview and Scrutiny Committee – 22 July 2011

Executive – 27 July 2011

Subject: Manchester’s Libraries – Shaping our Future

Report of: Vicky Rosin, Strategic Director, Neighbourhood Services

Summary

To report on the outcome of the consultation on the Library Review and make recommendations for future service provision.

Recommendations

Members are recommended to agree:

 The closure of Clayton and Rack House Libraries with effect from September 2011, and to work closely with local community groups to look at opportunities for them to provide and fund a community book exchange service within these communities.

 The retention of the temporary Barlow Moor Library, with its existing opening hours until the expiry of the lease in July 2012. Officers continue to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision in the area.

 A reduction in opening hours across the city with immediate effect, ensuring geographic provision in line with usage trends and the findings of the consultation. This will result in a rationalisation of opening hours and the ability to continue to provide a citywide comprehensive and efficient library offer, with 96.7% of residents within a one-mile radius of a library. All libraries will be open on Saturdays and no library will be open less than five days per week. Current opening hours at City Library and City Library at One First Street will be maintained.

 Withdrawal of street stop mobile library service from October 2011

 The establishment of a new A Books to Go service to replace the Home Delivery Service provided by dedicated staff, transport and collections with an increased use of volunteers.

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 Progressing the proposed relocation of Hulme Library to the Moss Side leisure centre in Hulme High Street to create a new community and cultural services facility.

 The retention of the existing Miles Platting Library until new provision can be identified.

 A review of library charges and potential income generation opportunities. A report will be submitted to Committee in January 2012.

 Increased use of volunteers to support local and community activities.

 Continued exploration of Greater Manchester Libraries shared service opportunities.

 To delegate the City Treasurer, in consultation with Executive Member for Finance and Human Resources and Executive Member for Culture and Leisure, use of the Fire Insurance Monies Reserve to support the additional revenue cost and any future development of library provision. To authorise the City Treasurer to make the necessary adjustments to capital and revenue funding to support these proposals

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Wards Affected: ALL

Community Strategy Summary of the contribution to the strategy Spine Performance of the The report notes the major capital investment in the refurbished Central economy of the region Library and the delivery of a new archives centre of excellence which will and sub region contribute to the performance and economy of the sub region. The report recognises the existing partnerships and shared library services including the sub regional Ask about Business service. Reaching full potential The report notes the development of new generic roles within Community in education and and Cultural Services, which will support residents in reaching full employment potential in education and employment. This is supported and recognised, as libraries have a key role in local communities, enabling local residents and customers to have access to a broad and trusted range of information and resources to support their quest for employment, education and learning. Individual and collective The report recognises that libraries have a universal audience and are self esteem – mutual accessed by the city’s diverse population. They are continuing to promote respect their role as community hubs. Libraries are recognised as neutral, non threatening community spaces where residents and members of varying communities of interest can meet, learn, share and co-create ensuring stronger community cohesion, community resilience and building social capital. Neighbourhoods of The library renewal programme over the past eight years has seen two- Choice thirds of the library estate rebuilt, remodelled and refurbished, ensuring a quality library offer is available throughout the city. The provision of high quality, modern, vibrant and comfortable, co-located and integrated community spaces in local neighbourhoods and localities will be enhanced by new ways of working in local communities.

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Full details are in the body of the report, along with any implications for:

Equal Opportunities Policy - Equality issues are addressed within the report and an Equality Impact Assessment (EIA) has been completed and is included as an appendix.

Risk Management - a risk management approach will be taken for all the proposals outlined in this report.

Legal Considerations - are included within the report

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Financial Consequences – Revenue

The budget savings, which were identified from the Library and Information Service’s revenue budget for 2011/13, as approved by Executive Committee on 16 February 2011 and Council on 9 March 2011, are as follows:

Detail of proposal Amount of saving to be achieved Rationalisation of library service points including closures £394,000 Review of opening hours £463,000 Review of mobile library service, including the home library £500,000 service Withdrawal of homework support provision £429,000 Efficiencies within facilities management £254,000 Reduction of library book fund £200,000 Remodelling of stock management function £272,000 Rationalisation of ICT facilitators £218,000 Development of generic roles £151,000 Reduced ICT budget £50,000

The consequences of the establishment of a Books to Go scheme to provide a revised home delivery service (paragraph 9.4.7) will reduce savings by £100,000, which will be addressed through the business planning process.

The revenue costs of continuing to operate Barlow Moor Library until July 2012 will exceed the current budget provision by £26k. A proportion of these costs will be incurred during this time regardless of the decision due to the current lease agreement.

It is proposed that this, and any future proposals for community provision, are funded from the insurance money held in the capital fire insurance reserve relating to Barlow Moor Library. The balance on this reserve is £145k.

Financial Consequences – Capital

Proposals in respect of potential capital investment in Moss Side Leisure Centre to accommodate a library service are currently being developed and will be subject to a further report.

Contact Officers:

Name: Neil MacInnes Position: Head of Libraries, Information and Archives Telephone: 0161 234 1902 Email [email protected]

Name Eamonn O’Rourke Position Head of Community and Cultural Services Telephone 0161 953 2451 Email e.o’[email protected]

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Name Vicky Rosin Position Strategic Director, Neighbourhood Services Telephone 0161 234 4051 Email [email protected]

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Background documents (available for public inspection):

The following documents disclose important facts on which the report is based and have been relied upon in preparing the report. Copies of the background documents are available up to four years after the date of the meeting. Please contact one of the officers above for copies.

Report to Executive on 22 December 2010 re Provisional Local Government Settlement. Manchester City Council Item 5d Executive 16 February 2011 Report to Executive on 19 January 2011 on Financial Settlement 2011/12 + 2012/13, workforce issues. Final Local Government Financial Settlement from CLG 31 January 2011 Budget Proposals for the Neighbourhood Services Directorate Report to: Executive – 16 February 2011 Communities and Neighbourhoods Overview and Scrutiny Committee – 17 February 2011 Resources and Governance Overview and Scrutiny Committee – 28 February 2011 Council – 9 March 2011 Shaping our Future – Options for Manchester’s Libraries Over to You – Consultation questionnaire Library Strategy Equality Impact Assessment Free text comments made by consultation respondents

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1.0 Introduction

1.1 Manchester Library and Information Service (MLIS) delivers leisure, cultural, learning and information services through a network of 25 community libraries, as well as Central Library (currently closed for refurbishment), a temporary city centre library, four mobile libraries and the Home Visit Service. It also manages the Greater Manchester County Record Office on behalf of AGMA (the Association of Greater Manchester Authorities).

1.2 The closure of Central Library has impacted greatly on performance, but in the year to March 2011, Manchester’s libraries still received more than 2.8 million visits, issued over 1.96 million items and delivered over 705,000 sessions of public computer use.

1.3 Taking city centre libraries out of the equation, visits to Manchester’s community libraries in 2010-11 increased by 10% compared to the previous year: the refurbished Longsight Library recorded just over 281,000 visits in its first year.

1.4 The temporary City Library on Deansgate is performing well, with over 350,000 visits, 490,000 loans, 160,000 information enquiries, 100,000 PC bookings and 6,800 brand new members in its first eleven months.

1.5 A consultation on the future of Manchester’s libraries was carried out during a 12-week period between 14 March and 5 June 2011. The consultation was initiated by the need to make savings of approximately 25% (£3m) of the library service budget as a contribution to the overall City Council savings of £170m in the years 2011/13. The consultation report outlined the options for savings agreed at the Executive Committee on 16 February 2011 and approved by Council on 9 March 2011. It also explained the service improvement journey that the service had been undertaking since 2003, and encouraged residents, customers and non-customers to complete a questionnaire to share their views.

2.0 The Consultation Process

2.1 The consultation set out to:  Engage the public in understanding and discussing the challenge facing the City Council, in providing a ‘comprehensive and efficient’ library service against a backdrop of unprecedented funding cuts.  Inform staff, the public and other stakeholders of the proposed options  Seek feedback and assess the likely effect and impact of any proposed changes on service users, so that these issues could be considered as part of the Council’s decision making process. Analysis would feed into the Equality Impact Assessments being undertaken in relation to the proposed changes.  Allow reasonable and sufficient time for those being consulted to put their views forward.

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2.2 The public consultation took the form of an eight-page briefing document, Shaping Our Future, and a four-page questionnaire. Both documents were available both on paper and online – the online version having the friendly url www.manchester.gov.uk/libraryconsultation The questionnaire took the form of a Snap Survey housed on the City Council’s website: it asked about current library use and preferences for future service delivery. For fulfilment and data processing reasons, online submission was mainly encouraged, but paper copies were held in all libraries across the city (including for mobile, home visit and sheltered accommodation customers), with an option for returning via libraries or a Freepost mailing address.

2.3 To support the written information, a series of public meetings took place in key district libraries, and in those proposed for closure, during March. Neil MacInnes, Head of Libraries, Information and Archives, gave a presentation at each meeting providing an overview of library services and setting out the context and rationale for the proposed savings, then taking questions from the floor. A list of all public meetings can be found at Appendix 2.

2.4 A press release, inviting residents to take part in the consultation and to attend the meetings, was featured in the Manchester Evening News, South Manchester Reporter, North & East Manchester Advertiser and online outlets, including Inside the M60. The consultation also featured in Wythenshawe World as the libraries’ part of the collective Wythenshawe Forum advertising campaign.

2.5 Internally, the consultation was promoted via posters in libraries; a feature in April’s Full Volume (the libraries’ monthly what’s-on guide), plus subsequent reminders in May and June editions. Briefing notes urged staff to make customers aware of the consultation and encourage participation.

2.6 Full use of available in-house electronic media was made, with headline features on the City Council’s home page, library home page, intranet, internal broadcast email and e-bulletins such as Valuing Older People. The library’s Facebook page (2,000+ fans) and Twitter account (3,000+ followers) also carried regular reminders to encourage completion of survey forms. The regular monthly what’s-on email, sent to 70,000 library customers, also carried prominent links to online consultation content in its April, May and June editions.

3.0 The Renewal Programme

3.1 Manchester’s libraries have seen a transformation in the last seven years. The City has delivered significant capital investment in library buildings through an ambitious programme of construction, modernisation, replacement and refurbishment, resulting in 65% of the community library network now significantly improved. Brand new libraries have opened in Harpurhey (North City, 2006), Beswick and Brooklands (both 2010), as well as the new city centre libraries on Deansgate and in the Customer Service Centre at Number One First Street (2010). Wythenshawe’s Forum Library (2004), Moss Side Powerhouse Library (2009) and Longsight Library and Learning Centre (2010)

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have all undergone extensive refurbishment and remodelling. A further eight libraries have seen major improvements to the fabric and décor of their buildings. Several libraries now operate in shared premises, where they are a key partner - bringing children of all ages onto academy and college sites, non-learners into learning centres and acting as shop windows for other services, informing residents who might not otherwise be aware of them.

3.2 A new and extended Central Library will re-open in late 2013, after a programme of renovation and refurbishment. Restoring the Grade II* listed building offers the opportunity to reshape the way library, information and archive services are delivered in Manchester. The new library will provide the Archives+ service, a partnership between key archive providers in the city, with more space accessible to customers and visitors than ever before. The extended Central Library, in the neighbouring Town Hall Extension, will incorporate 2,200sq m of community library space and an underground walkway will connect the two buildings for the first time.

3.3 The Avenue, a new, purpose-built library and adult learning centre for Higher Blackley and Charlestown is due to open in early 2012.

3.4 This transformation is supported by better systems, new technologies and a range of customer-focused service improvements. This form of channel shift is cost-effective, convenient and empowering for customers who want easier, faster access to information and to remotely manage their library accounts.

3.5 The library website – www.manchester.gov.uk/libraries - has become an increasingly important part of the service, with a range of free online reference for members, including Who’s Who, Encyclopaedia Britannica, Oxford Reference and news archives. The online catalogue was upgraded in 2009 to offer better search options and free online reservations. The library website now also hosts the Download> service, with free, Ebooks and audiobooks for computers, smartphones, eReaders and MP3 players. The service offers free email pre-overdue reminders, reservation-waiting notices and library news and information to all customers who opt in with an email address.

3.6 RFID (radio frequency identification) tagging in all new stock means that customers can issue and return their own books by scanning them at self- service terminals. These transactions account for 76% of business at One First Street and 70% at City Library Deansgate and the figures are steadily increasing. The self-issue service is currently available in ten libraries, but this will rise to 22 libraries by early 2012.

3.7 Wifi has recently been introduced at City Library for customers who wish to use their own laptops or mobile devices to access Internet in the library. Nearly 1,500 sessions have been accessed, equating to 1,074 hours (64,448 minutes) of use in the first two months.

4.0 Neighbourhood Services Transformation Programme - Community and Cultural Services

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4.1 The library, information and archives service is now a key part of the Community and Cultural Services division of Neighbourhood Services, which also incorporates Indoor and Outdoor Leisure, Sports Development, Major Sports Events, Cultural Strategy and City Galleries. Leadership for Libraries, Information & Archives; Culture and Sports will be provided at a strategic level, with operational focus being devolved to community area managers.

4.2 The new Senior Management has been appointed which comprises Head of Community and Cultural Services and Strategic Leads for Sports; Libraries, Information & Archives; and Culture, supported by five Area Managers who will be responsible for the provision and delivery of community and cultural services in their specific geographic areas. The formation of this new function within Neighbourhood Services will support the delivery of the Community Strategy through the Neighbourhood Focus Strategy within neighbourhoods and localities.

4.3 The service will build on successful integrated and co-location models, ensuring that services are easily accessible and inclusive, providing enrichment opportunities and access to wider council services.

4.4 The service redesign will create new generic neighbourhood roles, which will support community and cultural provision, lifelong learning (including ICT skills and help with homework) and events and activities for young people. A range of cultural events and activities will continue to be offered at local libraries and other community venues. The service will also look at new ways of delivering some of these activities, including the potential use of volunteers.

5.0 Greater Manchester

5.1 The ten Greater Manchester library services were chosen as one of the ten MLA/LGA Future Libraries Programme projects for a feasibility study into a collaborative approach to library services focused on the City Region. The project aimed to assess the potential benefits of shared services in terms of financial savings and as a way to secure sustainable, high quality services for library users in the future.

5.2 The ten Greater Manchester authorities have a strong and proven track record of shared services, having worked on a collaborative basis on a number of projects and services over the last decade in areas such as:

 Stock procurement (33 authorities stock consortium)  Reader Development – Regional development co-ordinator post  Inter Library Loans  Ask about Business (delivered by MCC for 13 authorities)  Stock Management – consortium software deals  E-resources and online information

5.3 The project makes a strong case for the enhanced benefits that could be achieved through greater collaboration, including the contribution of libraries to

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reading and literacy, digital access, employment and skills, business and economic development, and health and wellbeing. A Greater Manchester library service could have many benefits for residents, including access to four million books and other media and services with one library card.

5.4 The AGMA Chief Executives are supportive in-principle of considering greater collaboration and more joined-up working across the library services of Greater Manchester and believe the work that has been done already is important and useful. The feasibility study is currently being reviewed and a working group has been set up to offer detailed challenge to the concepts and conclusions that have emerged in the work so far.

5.5 Agreeing to continue to consider the options, update the financial data and explore possible new ways of working in the future does not commit any council to a final outcome or decision. Continuing the work started by the Future Libraries Programme through AGMA keeps all options open and has the potential to offer councils new and better ways to provide library services in these challenging times.

5.6 The project board is now investigating a range of further collaborative projects including:  Information  Social Media  Worklessness  Schools Offer  Performance and Peer Review  Inter Library Loans  One Library Card  Archives and Local Studies

6. Consultation Response

6.1 Key Findings 3,758 people responded to the consultation, three-quarters of whom stated that they were library customers. Full analysis of results can be found at Appendix 3. 65% of respondents visit City, Chorlton or Didsbury libraries: 37% name one of these three libraries as the one they use most often. These are three of our busiest libraries.  Monday is the most popular day for visiting the library, and the 2-6pm period is by far the most popular time for people visiting on any day.  42% of respondents say they are prepared to pay an increase in fines and charges, while 31% of respondents say they would be prepared to pay charges for a postal delivery service. Other suggestions have been made in

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terms of what new or existing services could potentially become paid-for services, and these will be reviewed in the detailed report.  Respondents were asked to rank a series of eight proposals, which included library closures, book fund reductions, payment introductions and changes to opening hours. The most preferred option was the return of East City Library to the Manchester College, and the least preferred was closure of any additional libraries. Full results, which show clear patterns of preference, can be seen at Appendix 3.  Respondents were asked about what options they would consider if libraries were to close (this was a mandatory question on the online form). 81% said they would use another library and 23% said they would use deposit collections. 22% said they would use a pick up and drop off service and 11% said they would use a postal delivery service.

 826 respondents (22%) would consider volunteering in some capacity.

 59% of respondents were female, and 35% of respondents were in the 25- 44 age category, 35% said they had a disability and 75% were White British.

6.2 Correspondence and public responses

6.2.1 The initial budget consultation, undertaken in February 2011, generated 38 responses in relation to libraries. These focused on the mobile/home library service, services to young people and the helpfulness of library staff.

6.2.2 An outline response from the Valuing Older People Board and Valuing Older People’s Forum was received in response to the consultation, which also contained a letter from a Home Delivery Service customer raising concerns about proposals to review the service.

6.2.3 A total of four petitions have been received: two in relation to the proposed closure of Rack House Library (340 signatures and 40 signatures) , and one in relation to Barlow Moor Library (86 signatures), which was received after the consultation deadline. Petitions in relation to changes to services for blind and partially sighted customers (168 signatures) has also been received.

6.2.4 A small number of letters, emails and social network comments have been received or posted with a particular emphasis on home library service, homework support, individual library closures and also recognising the quality of the library offer in Manchester and praising staff.

6.2.5 The series of public meetings ranged from three attendees in North City, to more than 50 at Rack House. At the meetings held in libraries proposed for closure the focus was on the loss of service to that community. In all three meetings, suggestions came from the floor for community groups to deliver services in order to retain a library presence in the area. At other meetings, the general feeling was that opening hour reductions were more palatable than further permanent closures and there was recognition of how the service

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had grown and improved over recent years, particularly in relation to the quality of the service and the refurbished and remodelled library buildings.

Homework Support Service

6.2.6 The service has been providing dedicated staff to assist children with their homework at most libraries after school and at the weekend. As part of the transformation of Neighbourhood Services, a restructure of library staff will result in generic staff roles and the withdrawal of dedicated staff to assist children with homework. This will impact upon many children and young people across the city – almost 6,000 children and young people used homework clubs in libraries in 2010-11. However libraries will still offer services to assist children and young people with their homework needs.

6.2.7 There will continue to be collections of books and other resources related to the curriculum for children and young people to use in libraries and to borrow for home study. Children and young people will also have free use of computers in the library to access the internet for study, and staff working in the library will be able to help with finding information and resources.

6.2.8 Staff will also be working with schools and other partners to look at ways of providing improved services to children and young people, especially around helping to support them with their study needs.

Services for Blind and Partially Sighted People

6.2.9 The service currently provides services for blind and partially sighted people through a unit in City Library and one day a week at North City Library. Originally designed to enable access to library collections and services through technology and staff support, the service has become increasingly bespoke, with staff spending time, for example, on individual reading for university students and brailling of council documents. Numbers of regular users total 25, with 15 of these Manchester residents, making the service, run with three staff, extremely expensive.

6.2.10 Two of these members of staff have taken early retirement, and although another member of staff has been transferred to the unit, we are closing the city-based unit for one day per week in order to maintain our outreach service at North City Library. We have chosen the quietest day to close the unit, giving training to our mainstream staff, and providing access software on PCs throughout City Library to mitigate the effect.

6.2.11 The joint Share the Vision and Society of Chief Librarians national pledge, Six Steps to Library Services for Blind and Partially Sighted People, to which we have signed up, aims to guarantee a national public library offer for blind and partially sighted people. In line with this commitment, we are ensuring that access software is available on additional PCs in City Library and other libraries across the city, thus improving equality of opportunity. Refresher

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training will be given to front line staff to enable them to support customers with sight loss in using the software. We are also considering alternative models to support customers in the delivery of a range of services, including the use of volunteers and considering whether other agencies could provide additional support. We intend to widen service provision across the city rather than in just two specific locations and will identify an access champion who will ensure that every member of staff is aware that they have a responsibility to support all customers, embedding access into service provision ensuring a more equality driven approach

6.2.12 In the longer term, the aim is to ensure that facilities for blind and partially sighted people will be incorporated into the design of the new Customer Service Centre, the main contact centre for a range of public sector organisations to support Manchester residents. We aim to mainstream services for blind and partially sighted people to improve wider access. We are also in discussion with a number of third sector organisations with a view to service provision from the new centre. We are committed to consultation with existing blind and partially sighted customers to ensure that we understand their service needs and consider how we meet their needs in the context of a reduced workforce. Work with Design Teams and Transformation teams over the coming months will consider use of space. This will include consideration of suitable rooms that will meet requirements for privacy, allowing customers to access information in a range of formats.

6.2.13 Some users of the unit’s services have written to us, and to local and national news media, to complain that services will be withdrawn. We recognise that the service has been well received and has a small but dedicated group of customers. The current economic climate, however, means that it is no longer viable to continue this extremely expensive provision in relation to cost per visitor. This will inevitably mean that some of the highly bespoke services may no longer be a possibility in their current delivery method. However, we are confident that we should arrive at a position where we have staff across the council who are better trained and sensitive to the special access needs of all our disabled residents.

6.3 Consultation Response Conclusion

6.3.1 There was a high response rate to the Library Review Consultation, particularly through the questionnaire, with a diverse mix of library users, non- users and other individuals/organisations. We will be able to use much of this information to learn more about people using libraries and also about those who don’t. Analysis of the equalities information demonstrates that generally, there was a diverse cross section of people who responded via the questionnaire. More detailed analysis of this information has been incorporated into an Equality Impact Assessment.

6.3.2 The return of East City Library to the Manchester College was clearly the most preferred proposal of all those listed. Introducing payments for some services

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was the second most preferred proposal, followed by the closure of three libraries (Barlow Moor, Clayton and Rack House).

6.3.3 When asked about what services respondents would be prepared to pay for, 42% selected an increase in fines and charges. Nearly one third of respondents said they would be prepared to pay for a postal delivery service and 27% said they would pay a charge for reservations. One quarter of respondents wouldn’t be prepared to pay for any of the options listed, which shows that the majority would find it acceptable for users to pay for some elements of the Library Service as a means of generating income.

6.3.4 It is very clear that respondents do not favour closure of any other libraries in addition to the aforementioned three libraries, nor do they wish for the book fund to be reduced. The third least preferred proposal was the withdrawal of the Mobile Library Service, and many of the comments received bore relation to this aspect of the consultation.

6.3.5 A high number of respondents (22%) expressed interest in becoming volunteers in some capacity. More research and analysis is required in order to determine how best to proceed with this aspect of the Review.

7 Legal and resource implications

7.1 The proposals contained within the report have been considered against section 7 of the Public Libraries and Museums Act 1964 which requires the local authority to provide “comprehensive and efficient public Library Services for all persons desirous to make use thereof” having regard to “the general requirements and any special requirements of both adults and children”. Proposals have been considered against the Equality Act 2010 ensuing equality of opportunity for service users. 7.2 The public library service is a statutory service covered by the 1964 Public Libraries and Museums Act with a duty to provide “a comprehensive and efficient” library service for those who live, study or work within the City of Manchester. The Act sets out, in fulfilling its duties: “a library authority should have regard to keeping adequate stocks of books, other printed matter, pictures, records, films and other materials in sufficient number, range and quality to meet the public’s requirements and the special needs of adults and children.” “of encouraging both adults and children to make full use of the library service, and of providing advice as to its use and of making available such bibliographical and other information as may be required by persons using it.” “of securing, in relation to any matter concerning the functions both of the library authority as such and any other authority whose functions are exercisable within the library area, that there is full cooperation between the persons engaged in carrying out those functions.”

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7.3 The requirements of Section 149 of the Equality Act state that Public Bodies must have due regard to the need to: • eliminate unlawful discrimination, harassment, victimisation and any other conduct prohibited by the Act; • advance equality of opportunity between people who share a protected characteristic and people who do not share it; and • foster good relations between people who share a protected characteristic and people who do not share it.

7.4 The protected characteristics are age, disability, gender re assignment, pregnancy, maternity, race, religion or belief, sex and sexual orientation. The Equality Act explains that having due regard for advancing equality involves:  Removing or minimising disadvantages suffered by people due to their protected characteristics  Taking steps to meet the needs of people from protected groups where these are different from the needs of other people. Particular attention needs to be paid to the needs of disabled people in taking account of this requirement.  Encouraging people from protected groups to participate in public life or in other activities where their participation is disproportionately low

7.5 Compliance with the duties may involve treating some persons more favourably than others; but that is not to be taken as permitting conduct that would otherwise be prohibited by or under the Act.

7.6 Advancing equality of opportunity involves considering the need to: • remove or minimise disadvantages suffered by people due to their protected characteristics; • meet the needs of people with protected characteristics; and • encourage people with protected characteristics to participate in public life or in other activities where their participation is low.

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8 Equality Impact Assessment

8.1 An Equality Impact Assessment was carried out on the proposals. The assessment considered in detail what impact the proposals could have on the protected characteristics: age, disability, gender re assignment, pregnancy, maternity, race, religion or belief, sex and sexual orientation.

8.2 Libraries Senior Management Team scrutinised the data gathered by two library staff: the Service Improvement Officer: Performance and the Head of Children, Learning and Access. Advice was sought from Legal Services and from the Corporate Equalities Team and it was decided that the proposals could impact upon disability and age. 8.3 The analysis undertaken in the Equality Impact Assessment served to identify any service users who may potentially be differentially impacted upon if some services were reduced or withdrawn. A detailed action plan has been created to help overcome any barriers faced by customers in accessing library services. Some actions have already been undertaken, and clear timescales have been set for each action to be completed. The Equality Impact Assessment is an evolving document that will be reviewed on a regular basis throughout the entirety of the Library Service Review. 8.4 Having considered the findings from both the Equality impact Assessment and the consultation, some proposals (particularly with regards the Mobile Library Service) have been reviewed and modified, and these are outlined in Section 9, which Members are asked to endorse.

8.5 The Equality Impact Assessment and action plan are appended for reference.

9 Recommendations

9.1 Library Closures

9.1.1 Closing libraries is not something undertaken lightly, but by closing a limited number of small libraries, the impact of the savings will be reduced for libraries across the city as a whole. The clear message from people responding to the consultation was that they did not want the City Council to consider any further closures across the city, other than those already proposed. The libraries proposed for closure have either existing alternative local provision or there are options for future alternatives for service delivery.

9.1.2 Clayton Library shares a building with the Wells Centre and is less than a mile from the new larger, district library on Grey Mare Lane in Beswick.

9.1.3 Barlow Moor and Rack House Libraries - these two small libraries serve housing estates in Chorlton Park and Northenden. They are open for 15 and 26 hours a week respectively. Compared to the rest of the city, the customer numbers and usage levels at these two libraries are very small, and because they are open for only a short time, their stock is inaccessible for most of the week, when it could be available elsewhere. Rack House is housed in a former classroom at Rack House Primary and Barlow Moor was a temporary

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replacement in an empty shop after the original library was destroyed by fire. Rack House customers can now use the new library on Moor Road in nearby Brooklands, while Merseybank (Barlow Moor) residents may choose to use Chorlton or Didsbury Libraries or consider new ways of accessing services in their community.

9.1.4 Suggestions were made at the public consultation meetings, held in relation to particular library closures, that deposit collections, hosted by local communities could be an alternative means of service delivery. A proposal for community book exchange collections has been developed, cost-neutral to the City Council and the service will continue to work with local groups in Rack House and Clayton to develop this model. These would not be part of the library network, but would still allow those communities access to resources, funded by the local community.

9.1.5 Barlow Moor Library was destroyed by fire in 2000 and has since been operating from a temporary library, based in a small shop unit on the Merseybank Parade. A number of suggestions at the public meeting included the library offer being made available in another community venue or the possibility of using any insurance monies in the interim until an alternative venue could be found. It is therefore recommended that these funds are used to retain library provision until July 2012 and in the interim officers continue to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision in the area.

9.1.6 East City Library opened on The Manchester College’s Openshaw campus as a temporary public library to cover the period while the old Beswick Library was closed. The new and larger Beswick Library has opened and it was always the intention that this temporary library would return to the management of The Manchester College. Therefore the service has been in discussion with the college to progress this and ensure the smooth transition of services. Beswick Library will maintain close links with The Manchester College campus to encourage college students to continue to use services.

9.1.7 The consultation, along with an analysis of the information held within the library management system, highlights that a number of customers make use of more than one library and it is clear that some customers would make use of another library if a library were to close. Maps have been produced (see Appendix 5) to analyse library usage data and to identify high geographical concentrations of library users who currently use only one library/service. We have focused primarily on customers who solely use the Mobile Library service, Barlow Moor, Rack House and Clayton libraries, and we will use this intelligence to promote local libraries to those customers able to get to them, as well as investigating suitable locations to introduce a bulk loans service or deposit collections in these areas. Further needs analysis of localities will be undertaken when considering alternative provision in these areas.

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9.1.8 The recommendations will provide Manchester residents with a network of 23 libraries and will ensure that 96.7% of residents are within a one-mile radius of a library and 99.9% within a two-mile radius. Transport links in the city are good, and continue to improve with the extension of the Metrolink, thus ensuring that the city will provide a comprehensive and efficient library service.

9.2 Re-provision

9.2.1 Hulme Library is housed in a large and costly building on Stretford Road, opened in 1962. The library requires AMP investment in relation to the inadequate rainwater guttering to the whole building, the failing flat roof and water damaged back service corridor.

9.2.2 The consultation proposed relocating this library, to share premises with the neighbouring Zion Centre or Moss Side Leisure Centre. The library was initially considered for closure however the service was asked to consider the possibility of re-provision.

9.2.3 The service has carried out an options appraisal at both sites and the preferred option is to relocate library provision to a remodelled Moss Side Leisure Centre in Hulme High Street, which is 0.7 miles from the current Hulme Library, creating a new community and cultural hub for local residents. The service is having initial discussions with the leisure service provider to progress this re-provision and the service has also visited other successful co- located library and leisure centres in Glasgow and Sefton. It is recommended that Hulme Library would remain open until the leisure centre was able to open and this will have an impact on savings and will also require some capital monies for fit out, for which a further report will be submitted.

9.2.4 The new library at One First Street, which is 0.6 miles from Hulme Library, can also be accessed by local residents and has a large number of PCs offering Internet access as well as a small lending library. The service is also considering the potential for a locally funded community book exchange offer, similar to the proposal for Rack House and Clayton. Work is being done with local members to consider a suitable venue, which would be cost-neutral to the organisation, with resources funded by the local community.

9.2.5 There has been some local response to the future of the external millennium mural. This matter will be considered by Corporate Property, in relation to the city wide estate review.

9.2.6 Miles Platting Library is currently housed in a 1970s purpose-built library, which is in extremely poor condition. The service is engaged with a number of partners in relation to the creation of new provision for a new library. Until then, the existing library will continue to operate.

9.3 Opening Hours

9.3.1 The library strategy in the past has been to keep as many libraries open for as many hours as possible, but analysis of when residents tend to visit libraries

19 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

most has shown that this may not always be the right thing to do, and in particular in light of the significant savings required.

9.3.2 We have also made significant improvements to our online library offer, so the need to make a physical library visit is not as great as it once was. 48% of all book reservations are now made online, as are 14% of library item renewals. The 24/7 online library gives free access to a wide range of excellent information resources, including e-books and audio books. Customers are also able to join the library online, with their new membership number sent to them immediately, allowing instant access to the virtual library and these resources.

9.3.3 The recommendation to reduce opening hours is made on the basis that we can revisit those decisions when the availability of funding is not so restricted and also consider alternative ways of service delivery. The rationalisation of opening hours across the city will allow us to offer a core set of hours: previously, opening hours were disparate and varied tremendously across the city. The reduction of opening hours will also help to ensure the number of proposed closures is kept to a minimum and spreads impact more evenly across the city.

9.3.4 A review of library opening hours was carried out, incorporating the consultation results, performance and business uptake, with the aim of proposing a set of opening hours that would:

 Meet customer need and preference with regard to patterns of usage,  Address anomalies where existing opening provision exceeded or fell short of customer use and demand,  Create a tiered offer of standardised opening hours across the city, ensuring equal access to quality library services for all residents,  Meet the budget savings target required through a reduction of opening hours,  Offer customer-focused opening hours that, although reduced, could easily be reversed to allow for future growth,  Deliver a comprehensive offer of opening hours across each area,  Ensure opening hours that acknowledge that many library customers will use libraries across a wide area of the city, rather than just within locality boundaries,  Continue to support the provision of partner services at joint service centre locality libraries subject to local negotiations.

9.3.5 An hour-by-hour visitor count was carried out at all district and community libraries to better understand customer patterns of use. Local service managers were consulted with regard to busy and quieter times of the day and the week. The data was analysed and customer preferences as expressed through our public consultation exercise were also taken into account.

9.3.6 The proposal for revised library opening hours is as follows:

 No library will be open less than five days per week

20 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

 All libraries across the city will be open on Saturdays (with lunchtime closure)  There will be no reduction to opening hours at City Library or City Library @ One First Street  Withdrawal of Sunday opening at the six libraries currently open that day (the day with least visits).  Reduction in evening opening across the city with six larger libraries open two evenings per week and all remaining libraries open one evening  Weekday lunchtime closure at smaller libraries  Tiered opening hours, with eight larger libraries open at least 40 hours per week and the remaining 15 libraries open at least 30 hours per week  Increased promotion of 24/7 library resources and customer services

9.4 Mobile Library Services A dedicated team of staff currently delivers the following services:  Mobile Library stops – 42 in total across the city  Sheltered Accommodation stops – 74 sites across the city  Home Visit service  Postal Cassette service  Wireless for the Blind  Reading Voyager The total budget for the service is £501,065. Although highly valued by those customers who engage with it, the Mobile Library Service as a whole is the most expensive delivery element of the Library service with a cost per user of £13.20 compared with an average cost per user of £2.00 at static libraries. There are a number of recommendations which have been considered which have been informed by the completion of the equality impact assessment, information received from the public consultation and also a range of performance management and customer information available from the library management system. 9.4.2 It is clear from the consultation findings that the Mobile Library Service is a very valued service and that the proposal to withdraw some Mobile services was not well received by many respondents. For question B2 of the consultation questionnaire, this option ranked third in terms of ‘least preferred’ options, behind the options of closing other libraries and reducing the book fund. We also received a substantial number of comments about the Mobile Library Service (230 in total), with a high number of these relating specifically to the Home Visits Service. The outline response from the Valuing Older People Board and Forum expressed concern at the potential impact on some elderly residents if some Mobile Library Service were to be withdrawn. 9.4.3 However, Members will note the analysis undertaken in the Equality Impact Assessment to identify any groups with protected characteristics who may potentially be differentially impacted upon if some services were withdrawn. A detailed action plan has been created to help overcome any barriers faced by customers to access library services.

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9.4.4 Taking into account the findings from the consultation and the Equality impact Assessment, the original proposals to withdraw the Mobile Library Service have been modified, with the revised recommendations listed below:

9.4.5 Mobile Library stops – withdraw all street stops and disperse some of the stock amongst static libraries to increase their range. Launch a marketing campaign to advise customers of alternate static library provision in the locality. Statistics reveal that 42% of all customers who use the mobile library street stop service have in the last 12 months used an alternative static library. There are 1,548 customers who only used the Mobile Library street stop service, of which 1,034 are aged under 16 and 180 are aged 65 and over, some of these may apply for the Home Visits Books to Go service if they are unable to travel to a local library.

9.4.6 Sheltered Accommodation Stops - withdraw all stops and replace with deposit collections where practicable. Working with the Directorate of Adults, we recommend depositing collections in day care centres, extending this service to include, where possible, the ten centres spread across all SRF areas. There are also opportunities to work with RSLs and Health Centres to place deposit collections in a range of localities that are readily and easily accssible.

9.4.7 Home Visit service – we currently have 650 customers in receipt of a home visit every four weeks. They are spread across all SRF areas with the majority living in South (193) and North (176). Most are elderly and confined to their homes due to age-related ill health or disability. The service is not restricted to the elderly, however, and there are a number of younger customers confined to their homes who also receive regular visits. This group of customers will experience the most difficulty in accessing alternative library services. In order to continue to deliver to this client group, alternative volunteer options have been discussed with the well-established Community Guardians scheme and with the existing volunteer networks accessible via the Valuing Older People city-wide forum, including the newly emerging Retired and Senior Volunteer Programme. WRVS has a pool of volunteers ready to take on new volunteer work and there is potential for entering into a Service Level Agreement, however there is a cost attached to this option. All volunteer groups have expressed a willingness to work with the library service in this area, which is recognised as work that is both interesting and rewarding. The benefit to the customers of such a scheme is the added value that the volunteers bring, as they would have the ability to provide a ‘befriending’ service. This is something Home Visit customers would appreciate, but current limitations on library time and staffing resource prevent it.

22 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

9.4.8 Postal Cassette service – This service provides a free audio book delivery service to any Manchester resident registered blind or partially sighted. There are currently 30 customers who receive up to eight items, posted to their home / returned freepost, if they are registered blind. With investment, it would be possible to continue to deliver this service to customers who would not easily adapt to the new media available.

9.4.9 Wireless for the Blind – The Mobile service has been working in partnership with Sensory provision and The British Wireless for the Blind Fund (BWBF) for the last ten years. Library staff deliver and demonstrate free items of audiovisual equipment to blind and partially sighted residents across the city. This specially adapted Roberts equipment is donated by the BWBF and customers are referred by social services and sensory provision. There are approximately three customers each week in receipt of this service. It is recommended that the delivery of this service is transferred back to the BWBF and their associated agencies. We may be able to incorporate the continued delivery of this service with the potential to extend this to a volunteer supported operation (this would require the support of the BWBF).

9.4.10 Reading Voyager – The Reading Voyager is a dedicated children’s mobile library service providing services for children who fit a given criteria (lack of proximity to a static library, English as a second language, Key Stage 2 literacy performance, travellers’ sites, special needs schools, Children’s Centres, areas of high immigration, looked-after children etc). It is recommended that the vehicle is withdrawn, but school bulk loans are provided as an alternative for existing mainstream and special schools. This is a very cost-effective way of linking teachers with their local libraries, and has minimal staff involvement at library level. A deposit collection is also recommended for the venues with most need – the Children’s Hospice, two travellers’ sites and two looked-after children’s homes.

9.4.11 The recommendations outlined above, informed by the consultation and the completion of the equality impact assessment, will require some of the identified savings to be reinstated into the budget. It is calculated that the re- investment of £100,000 will enable all the recommendations outlined above to be delivered.

These range of services which are currently provided would require to be remodelled and changes would need to be implemented to the frequency of offer and also to expand the service through the use of volunteers. The new service will be branded as Books to Go given the changing nature of the offer.

The new Books to Go service will be centrally located (Gorton Library currently the preferred option) with a small team of dedicated staff and transport delivering the service with volunteers. The service will also develop a charged-for premium service for a wider population if the demand exists and the service is found to be financially viable.

9.5 Community Book Exchange Offer

23 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

9.5.1 Where it is agreed that libraries will close and the service provided will be at other nearby libraries, community groups may wish to set up their own book exchange service. The library service can provide a deposit collection of books in a venue provided by the community group. Members of the community group will arrange how people borrow and return books. Volunteers from the community group will be needed to return the deposit collection to the Library service, collecting a refreshed box at agreed regular intervals.

9.5.2 The book exchange may be run from a library building proposed for closure, however, the community group will be responsible for negotiating this arrangement with the owner and for any running costs incurred for the building. If the community group wishes to provide computers they must also pay their associated costs (e.g. broadband, maintenance, licenses) and the computers will not be linked to the Manchester City Council network.

9.5.3 Any arrangements made to assist community groups to set up book exchanges would not be seen as part of the local authority’s comprehensive and efficient library service and the City Council would not therefore be relying on these volunteer groups to fulfil its statutory duty.

9.5.4 Transitional phase from current provision  Deposit collection selected from existing stock incorporating fiction, non fiction, large print, children’s fiction and non fiction, story books, homework collection and teen collection  Shelving and some PCs provided on loan by MCC as contribution  Premises costs to be met and negotiated by community groups  No link to library management software or need for library card – local collection managed on trust basis  No Internet provision by MCC due to security and safety issues  Community group to run and support the provision and to seek appropriate funding for new stock, daily newspapers and journals and any internet connection  Potential for engagement activity with Community and Cultural Services, but NOT staffed by Community and Cultural Services  Moving forward the development of a traded services model with a menu of engagement activity purchased by local groups or sourced elsewhere, for example - storytelling session for 0-5s, ICT support and school visits. Residents will be encouraged to access the full range of library services at neighbouring libraries.

9.5.5 New groups keen to establish similar small book exchange services would be encouraged to apply for funding to establish small collections in community hubs. Funding would be required for premises, stock and shelving and any ICT provision required.

24 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

9.5.6 Any arrangements made to assist community groups to set up book exchanges would not be seen as part of the local authority’s comprehensive and efficient library service and the City Council would not therefore be relying on these volunteer groups to fulfil its statutory duty under the Museums and Public Libraries Act 1964.

9.6 Income generation and increased charges

9.6.1 The consultation has indicated that a number of respondents would be prepared to pay for services including reservations, postal delivery services, PC/Internet use and favoured an increase of fees and charges.

9.6.2 The service reviews its existing charges on an annual basis and introduced some increases in April 2011. The service has formed a task and finish group to look at other income generation opportunities and this group is due to report to the Senior Management Team with its recommendations. There has been further work with family history and genealogy online publishers who are interested in concluding licensing arrangements for much of our unique records, particularly in relation to family and local history.

9.6.3 The service will continue to review market trends and opportunities to attract additional income and potential for sponsorship and fundraising, particularly in relation to Central Library.

9.6.4 It is proposed that a further review and analysis of current income be carried out. A report will be prepared by January 2012.

10 Conclusion and recommendations

10.1 A consultation on the future of Manchester’s libraries was carried out during a 12-week period between 14 March and 5 June 2011. The consultation was initiated by the need to make savings of approximately 25% (£3m) of the library service budget as a contribution to the overall City Council savings of £170m in the years 2011/13. The consultation report outlined the options for savings agreed at the Executive Committee on 16 February 2011 and approved by Council on 9 March 2011. It also explained the service improvement journey that the service had been undertaking since 2003, and encouraged residents, customers and non-customers to complete a questionnaire to share their views.

10.2 The report and the consultation have provided an opportunity to reflect on the service’s successes and investment over the past seven years, and also to take a fresh look at libraries and consider new, more flexible ways to deliver what they offer and ensure their future in the longer term, ensuring that the library offer across the city thrives, not just survives. The consultation has been a valuable opportunity to engage with residents about what a library service today is like and how it has changed. We have been able to use this information, along with existing intelligence, customer feedback, performance and management information, to ensure we have a clear understanding of

25 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

residents’ and customers’ priorities, the use they make of our services and their views on library charges, volunteering and their preferred channels for accessing services.

10.3 The wide-ranging responses will allow us to help shape the library offer as the service becomes a key component of the new Community and Cultural Services. The clear message from customers was that they did not want the City Council to consider any further closures across the city, other than those already proposed, or any additional reduction from the library book fund. There was also considerable feedback on the review of mobile library services, with it being the third least preferred option. The recommendations contained within this report will allow us to continue to provide a wide range of services through alternative models including deposit collections and the new Books to Go service.

10.4 The Strategic Director Neighbourhood Services, Head of Community and Cultural Services and the Head of Libraries, Information and Archives are satisfied that the recommendations contained within this report will enable the City Council to continue to meet its statutory duties.

10.5 Recommendations

Members are recommended to agree:

 The closure of Clayton and Rack House Libraries with effect from September 2011, and to work closely with local community groups to look at opportunities for them to provide and fund a community book exchange service within these communities.

 The retention of the temporary Barlow Moor Library with its existing opening hours until July 2012, when the lease will terminate. Officers will continue to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision in the area.

 A reduction in opening hours across the city with immediate effect, ensuring geographic provision in line with usage trends and the findings of the consultation. This will result in a rationalisation of opening hours and the ability to continue to provide a citywide comprehensive and efficient library offer, with 96.7% of residents within a one-mile radius of a library. All libraries will be open on Saturdays and no library will be open less than five days per week. Current opening hours at City Library and City Library at One First Street will be maintained.

 Withdrawal of Sunday opening at the six libraries currently open that day, (which is the day with least visits).

 Reduction in evening opening across the city with six larger libraries open two evenings per week and all remaining libraries open one evening

26 Manchester City Council Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

 Weekday Lunchtime closure at smaller libraries

 Tiered opening hours, with eight larger libraries open at least 40 hours per week and the remaining fifteen libraries open at least 30 hours per week

 Increased promotion of 24/7 library resources and customer services

 Withdrawal of street stop mobile libraries from October 2011.

 A Books to Go (Home Delivery Service) - provided by dedicated staff, transport and collections with an increased use of volunteers.

 Progressing the proposed relocation of Hulme Library to Moss Side Leisure Centre in Hulme High Street.

 The retention of the existing Miles Platting Library until new provision can be identified.

 A review of library charges and potential income generation opportunities. A report will be submitted to Committee in January 2012.

 Increased use of volunteers to support local and community activities.

 Continued exploration of Greater Manchester Libraries shared service opportunities

 To delegate the City Treasurer, in consultation with Executive Member for Finance and Human Resources and Executive Member for Culture and Leisure, use of the Fire Insurance Monies Reserve to support the additional revenue cost and any future development of library provision. To authorise the City Treasurer to make the necessary adjustments to capital and revenue funding to support these proposals

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Appendix 1 – Copy of Consultation Questionnaire

28 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Appendix 2 – Public Meetings

6.30pm, Tuesday 15 March 2011 City Library, Elliot House, 151 Deansgate, Manchester M3 3WD

6pm Wednesday 16 March 2011 Rack House Primary School, Yarmouth Drive, Manchester M23 0BT

6pm Thursday 17 March 2011 Forum Library, Forum Square, Wythenshawe M22 5RX

6pm Friday 18 March 2011 Barlow Moor Community Centre, 23 Merseybank Avenue, Manchester M21 7NT

6pm, Monday 21 March 2011 Longsight Library, 519 Stockport Road, M12 4NE

1pm, Tuesday 22 March 2011 Clayton Library, The Wells Centre, M11 4NE

6pm, Tuesday 22 March 2011 Beswick Library, 60 Grey Mare Lane, Manchester M11 3DS

6pm Wednesday 23 March 2011 North City Library, Rochdale Road, at the corner of Moston Lane, Harpurhey M9 4AF

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Appendix 3

Consultation response Please note that throughout the text commentaries of this report, percentages have been rounded to the nearest whole number for ease of reading.

Equalities analysis of questionnaire respondents

Careful consideration should be given to the equalities information acquired through the consultation process, and more detailed analysis has been incorporated into the Equality Impact Assessment. The sections below provide an overview of the demographic make-up of the respondents and, where possible, how this correlates with the resident population of the city.

Sex The table below shows a higher proportion of female respondents than is reflected in the resident population data.

Questionnaire responses Manchester resident population (2009 ONS Mid Year Estimates) Number of responses 3,401 Male 35% 51% Female 65% 49%

Age The table below demonstrates that those aged 24 and under are under- represented as a percentage of total respondents. There is significant over- representation of people aged over 44 compared to the resident population.

Questionnaire Manchester resident responses population (2009 ONS Mid Year Estimates) Number of responses 3,597 Under 16 4% 18% 16-24 6% 21% 25-44 37% 34% 45-64 31% 17% 65+ 22% 10%

Economic Status The highest proportion of respondents said they were employed (42%), which is broadly in line with the City average (46%). Note that the resident population data refers to 2001 so may no longer reflect the economic status of people currently living in Manchester. Respondents in full-time education made up 6% of the respondent cohort, which is much lower than the resident population (17%), and this correlates with the below average representation of people aged 16-24 who are most likely to be students. Retired people are over- represented in the questionnaire responses (27%) compared with the resident population (10%), however the Library Service (in particular the Mobile Library Service) does attract a higher proportion of older people.

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Questionnaire Manchester resident responses population* Number of responses 3,632 In full-time education 9% 17% Employed 40% 46% Self-employed 7% 5% Looking after the home 4% 7% Retired 27% 10% Unemployed 6% 5% Permanently sick or disabled 5% 10% Other 3% 5%

* Source: Census (2001) Standard Tables (SO21)

Disability A higher proportion of respondents (26%) stated that they had at least one disability than the resident population of Manchester (16%) and England (15%). There is little data available at a City or national level, however the proportion of respondents who selected ‘Hearing’ is in line with the City average. There does appear to be over-representation of respondents who selected ‘Eyesight’ in relation to resident population, this may be due to take-up of the specialised services offered through the Library Service’s Visually Impaired Unit.

Questionnaire Manchester England responses resident resident population* population* Number of responses 3,581 No 67% 84% 85% Hearing 5% 5% 4% Learning (e.g. dyslexia) 1% n/a n/a Mobility (getting around) 12% n/a n/a Eyesight 5% 2% 2% Mental health (e.g. depression) 3% n/a n/a Using hands / fingers 3% n/a n/a Other 3% n/a n/a * Source data: LLTI and disability population projections for 2011 (Alan Marshall, University of Manchester, January 2009)

Ethnicity 3,610 people provided information relating to their ethnic background. A higher proportion of respondents said they are White British than is reflected in the resident population figures, so there may be some over-representation. Generally other ethnic backgrounds are in proportion to the resident population and the variation is no more than 2%, although there is significant under- representation of people of Asian/Asian British.

Questionnaire Manchester resident responses population (2007 ONS Mid Year Estimates) Number of responses 3,610 White British 78% 69% Other White 7% 7% Mixed/multiple ethnic origin 2% 3%

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Asian/Asian British 5% 11% Black/African/Caribbean/Black British 4% 5% Chinese 1% 3% Other Origin 2% 2%

Ward 2,524 respondents provided their postcode information. Of these, the highest proportion of respondents live in Greater Manchester (outside of the City of Manchester). The ward with the highest number of respondents living in the City of Manchester was Chorlton residents (6%), followed by Northenden and Whalley Range. Every ward within Manchester was represented by at least 1% of respondents.

Ward Response Response Ward Response Response Count Percent Count Percent Ancoats and 73 2.9% Harpurhey 51 2.0% Clayton Ardwick 33 1.3% Higher Blackley 71 2.8% Baguley 45 1.8% Hulme 73 2.9% Bradford 51 2.0% Levenshulme 83 3.3% Brooklands 56 2.2% Longsight 42 1.7% Burnage 90 3.6% Miles Platting and 43 1.7% Newton Heath Charlestown 59 2.3% Moss Side 51 2.0% Cheetham 29 1.1% Moston 63 2.5% Chorlton 143 5.7% Northenden 130 5.2% Chorlton Park 106 4.2% Old Moat 67 2.7% City Centre 78 3.1% Rusholme 55 2.2% Crumpsall 57 2.3% Sharston 27 1.1% Didsbury East 86 3.4% Whalley Range 128 5.1% Didsbury West 109 4.3% Withington 65 2.6% Fallowfield 48 1.9% Woodhouse Park 32 1.3% Gorton North 31 1.2% Greater Manchester 351 13.9% Gorton South 58 2.3% Outside Greater 40 1.6% Manchester Not 1,234 provided/incomplete

Analysis of Questionnaire

Question A1: Which of the following best describes you, or who you are representing?

A total of 3,758 people responded to this question. Three-quarters of respondents stated that they were library customers. Respondents who stated other included: teachers, care home manager, sports staff, Housing Association representatives, nursery nurse, landlord, school group, post-graduate student, former library staff and library staff from another authority (22 respondents in total).

Response Response

32 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Count Percent Library customer 2807 74.7% Library staff 79 2.1% Member of the public 751 20.0% Business 11 0.3% Partner organisation 11 0.3% City Council staff 56 1.5% Voluntary/community group 21 0.6% Other 22 0.6%

Question A2: Which libraries/library services do you use?

A total of 3,758 people responded to this question, which was multiple choice therefore respondents could select more than one option. The most commonly selected library was City Library, followed by Chorlton, Didsbury and Mobile Library Services.

Response Response Library/Service Count Library/Service Count Barlow Moor 70 Hulme 198 Beswick 85 Levenshulme 204 Brooklands 56 Longsight 304 Burnage 201 Miles Platting 73 Mobile Library – street Chorlton 771 stop 176 City Library (Deansgate) 1100 Mobile Library – Sheltered 127 Mobile Library – Home City Library – One First St 371 Visit 189 Clayton 87 Mobile Library – Children’s 29 Crumpsall 90 Moss Side Powerhouse 44 Didsbury 572 New Moston 115 East City 54 Newton Heath 128 Fallowfield 172 North City 239 Forum (Wythenshawe) 290 Northenden 155 Gorton 129 Rack House 98 Higher Blackley 145 Withington 467 I do not use library services 43

56% of library users said that they only used one library, which may indicate a strong sense of localism and support for the use of library buildings as community hubs.

43 respondents who said they did not use library services, cited the following reasons for non-use.

Response Reason cited count Live outside Manchester / Use other libraries 9 Buy or download books 8 Other 6 24 hour library only 7

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Used to use Central Library 4 Answered question 34 Skipped question 9

Question A3: Which library/service do you use most often?

Respondents who selected one or more library/services in question A2 were asked which they used most. 3,715 people responded to this question.

The table below compares the percentage of respondents using each library compared with the proportion of library members as a percentage of total membership. Any instances of over- or under-representation are highlighted in the end column (more than 3% difference). In summary, there is a higher proportion of respondents who use Chorlton and the Mobile Library Service than reflected in the membership cohorts, while there is an under- representation of Crumpsall, Forum and Longsight library members responding to the consultation. The proportion of respondents using all other libraries is broadly in line with the membership cohorts.

Library Response Response Membership Percentage Library/Service Count Percent Percent Difference Barlow Moor 38 0.9% 0.4% 1% Beswick 32 0.8% 1.1% 0% Brooklands 26 0.6% 0.7% 0% Burnage 131 3.1% 2.4% 1% Chorlton 537 12.9% 8.1% 5% City Library (Deansgate) 616 14.8% 17.0% -2% City Library (One First St) 105 2.5% 1.0% 2% Clayton 59 1.4% 1.1% 0% Crumpsall 34 0.8% 4.2% -3% Didsbury 260 6.3% 5.5% 1% East City 20 0.5% 2.1% -2% Fallowfield 71 1.7% 2.3% -1% Forum (Wythenshawe) 154 3.7% 9.0% -5% Gorton 68 1.6% 3.7% -2% Higher Blackley 94 2.3% 1.4% 1% Hulme 86 2.1% 2.5% 0% Levenshulme 108 2.6% 2.3% 0% Longsight 131 3.1% 12.3% -9% Miles Platting 33 0.8% 1.2% 0% Mobile Library Service 444 10.7% 3.0% 8% Moss Side Powerhouse 18 0.4% 0.8% 0% New Moston 59 1.4% 1.9% -1% Newton Heath 70 1.7% 1.9% 0% North City 144 3.5% 5.5% -2% Northenden 108 2.6% 0.9% 2% Rack House 77 1.9% 1.0% 1% Withington 192 4.6% 5.5% -1%

34 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Question A4: On average, how often do you use the library?

A total of 3,715 people responded to this question. The most common response from respondents was that they visited “once or twice a month” (39%). This was followed by “once a week” (24%) and “more than once a week” (20%).

Response Response Frequency of library visits Count Percent Every day 226 6.1% More than once a week 757 20.4% Once a week 882 23.7% Once or twice a month 1431 38.5% Less than once a month 419 11.3%

Question A5: How do you normally travel to the library?

3,715 people responded to this question, with the most common mode of travel to a library being on foot (57%).

Response Response Mode of travel Count Percent On foot 2121 57.1% By car 610 16.4% By bus 428 11.5% By bike 161 4.3% On the tram 83 2.2% Home visit 45 1.2% Mobile Library Visit (street stop, Reading Voyager or sheltered accommodation) 33 0.9% By train 31 0.8% Mobility aid (e.g. wheelchair or scooter) 9 0.2% Ring and Ride 2 0.1% Taxi 2 0.1% Other/not specified 190 5.1%

Question A6: What do you do when you visit the library?

Respondents were asked to tick as many options as were applicable, and 3,715 people responded to this question. The most common activity by far was borrowing and returning books (87%). This was followed by finding information (34%) and using computers (33%). Book borrowing was the most common activity across all libraries apart from Miles Platting, where the most common activity was using computers.

Response Response Activity Count Percent Borrow/return books 3247 87.4% Find information 1261 33.9% Use computers 1218 32.8% Read books 999 26.9%

35 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Read papers and magazines 947 25.5% Study / research 825 22.2% Borrow/return DVDs/BluRay 787 21.2% Borrow/return CDs 747 20.1% Attend library events for children 409 11.0% Find health information 385 10.4% Borrow/return audio books 368 9.9% Attend library events for adults 317 8.5% Local / family history 310 8.3% Socialise 300 8.1% Attend meetings 224 6.0% Do homework 217 5.8% Computer lessons 122 3.3% Other learning activity 122 3.3% Other 112 3.0%

Question A7: When do you prefer to visit the library?

3,361 people provided a response to this question. The most popular day for visiting the library was Monday, with 70% of customers preferring to visit on this day. This was followed by Tuesday and Thursday, both with 67% of people preferring to visit. The least popular day for visiting a library was Sunday (28%). Only six libraries currently offer Sunday opening, which may explain the low response rate.

The consistent message throughout the week is that the most popular time of day to visit is in the afternoon (2-6pm).

Note that further analysis has been incorporated into the Equality Impact Assessment specifically in relation to the review of opening hours.

Mon Tues Weds Thurs Fri Sat Sun Morning – (9am – 12pm) 906 806 781 753 842 1212 385 Lunchtime – (12 – 2pm) 664 630 639 645 685 974 519 Afternoon – (2pm – 6pm) 1198 1190 1179 1191 1227 1298 662 Evening (after 6pm) 901 883 869 907 708 303 198 Daily total 2376 2293 2243 2282 2214 2133 965 Percentage of customers who prefer 70% 67% 66% 67% 65% 63% 28% to visit on this day

Question A8: Do you use the telephone/online services?

Just over a third of respondents said they did not use any telephone or online services. The most popular choice was online renewals (43%), followed by online catalogue (34%), online reservations (33%) and the online reference library (25%). Nearly one in ten respondents said they used the Download> (free eBooks and audio books) service, which was introduced in July 2010.

36 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Response Response Service Count Percent Online renewals 1613 43% Online catalogue 1287 34% Online reservations 1239 33% Online reference library 925 25% Telephone renewals 567 15% Local images collection 344 9% Download> free eBooks and audio books 339 9% Ask About business website 64 2% I do not use any telephone or online services 1377 37%

Question B1: If we were to increase charges, or introduce charges for some services which are currently free, what would you be most prepared to pay for?

3,758 people responded to this question, of which one quarter said they would not be prepared to pay for any of the services listed.

Respondents were able to select more than one option. 42% of respondents said they would be prepared to pay for an increase in fines and charges, while just over a third said they would pay for a postal delivery service. The introduction of a charge for reservations was third most preferred (27%).

Response Response Service Count Percent An increase in fines and charges 1592 42.4% Postal delivery 1187 31.6% Reservations 1022 27.2% All computer use 750 20.0% Other 105 2.8% None of these 964 25.7%

Respondents were invited to make suggestions for other services that they would be prepared to pay for; the most common of which have been included in the table below. Other suggestions included: charging for translations, Download> service, popular titles, patent searches, inter-library loans, recovering outstanding fines, introducing fines for children/over 60s, charges to stay on computers longer, reducing opening hours and having donation boxes.

Response Other suggestions Count All should be free 4 Charge for home delivery/mobile service 21 Charge for courses/events/meetings 17 Charge more for A/V (e.g. DVDs/CDs) 9 Charge a joining fee / annual/monthly subscription or small fee per visit 6

37 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Increase charges for printing, photocopying and faxing 3 Charge for talking books 3 Other 27

Question B2: Given that we need to look at meeting significant savings on the city’s library services, please consider the eight options below.

Respondents were asked to rank 8 proposals, with 1 being most preferred and 8 being least preferred. 3,369 provided a response to this question.

Most preferred: 1,870 respondents ranked the option of returning East City to the Manchester College in their top three most preferred options (i.e. ranked 1, 2 or 3). This is followed by the option of introducing payments for some services (1,488 respondents), and then by the option of closing Barlow Moor, Clayton and Rack House libraries (1,360 respondents).

Least preferred: 1,895 respondents ranked the option of closing other libraries in their three least preferred options (i.e. ranked 6, 7 or 8). This is followed by the option of reducing the book fund (1,580 respondents), then by the option of withdrawing mobile services (1,385 respondents).

Proposal 1 2 3 4 5 6 7 8 Total Total ranked ranked 1 / 2 / 3 6 / 7 / 8 a. Complete closure of three small libraries (Rack House, 655 389 316 280 267 255 323 367 1,360 945 Clayton and Barlow Moor) b. Return the operation of East City Library (opened temporarily 708 745 417 354 240 153 130 60 1,870 343 to cover Beswick Library’s closure) over to The Manchester College for its own use. c. Reduction in opening hours at all libraries across the city 464 406 420 354 364 299 342 268 1,290 909 d. Withdrawal of mobile library services 274 223 360 376 385 441 365 579 857 1,385 e. Introduction of payments for some services 573 466 449 379 340 304 216 190 1,488 710 f. Relocation of library provision to alternative community facilities 221 394 468 526 455 376 244 119 1,083 739 g. Book fund reduction 139 167 247 294 373 490 502 588 553 1,580 h. Closure of other libraries 93 100 155 204 331 431 650 814 348 1,895

Question B3: If libraries were to close, what options would you consider in order to access library services in the future?

Respondents were asked about what options they would consider using if libraries were to close (this was a mandatory question on the online form).

38 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

81% said they would use another library and 23% said they would use deposit collections. 22% said they would use a pick up and drop off service and 12% said they would use a postal delivery service.

Option Response Response Count Percent Make use of other local libraries 3059 81.4% Deposit collections in community locations: A collection of books 864 23.0% and other items, issued to an organisation or individual as a bulk loan, left for a set period before being collected and its contents refreshed. Postal deliveries: Home postal deliveries of books and other 432 11.5% items. This is likely to be a premium, charged-for service. Pick-up and drop-off service: A bulk loan issued as above, but 834 22.2% collected and dropped off by a nominated borrower when due for return.

Question B4: Would you be interested in volunteering to help deliver library services in the future?

826 respondents (22%) would consider volunteering in some capacity, many of whom provided their contact details.

Question B5: Do you have any other comments or suggestions?

This was an open, free-text area of the form, where respondents could share their thoughts about the proposals, or about libraries in general. A total of 1,774 comments were made, covering a range of subjects and issues. A large number of the comments cut across multiple themes, but they have been sorted and counted according to their primary subject as listed below. A full list of all the comments is available as a background document to this report.

The themes and numbers of messages were:

Theme Number Percentage Agreement with the proposals 10 1% Disagreement with the proposals 166 9% Requests not to close libraries 418 24% Review of opening hours 82 5% Comments relating to mobile library services 230 13% Comments relating to children and young people 95 5% Comments relating to elderly people 92 5% Comments relating to disabled people 162 9% Comments relating to deprivation 11 1% General comments and suggestions about library services 508 29%

A small number of respondents agreed with the proposals, but on the basis that they seemed reasonable given that cuts were inevitable and that services for vulnerable adults and children should be given priority in the face of limited resources.

Respondents disagreeing with the proposals were much greater in number, and in their range of subject matter. Some asked why there was no council-

39 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

wide fight back against the cuts, which were deemed to be unfair; others made general comments about the social, political and educational importance of public libraries and the need to protect them. People were unhappy to see reductions in a service that has seen such improvement in recent years.

Requests not to close libraries came mainly in the form of pleas for specific libraries, whether directly threatened with closure or not. Many talked about the difficulties they would face travelling greater distances to find libraries, including children who were allowed to go to local libraries on their own, but not further afield. Locality was vitally important and people placed a very high value on a library that was in easy reach of where they live. Concerns that libraries were part of a civilised society and that closure would mean permanent disappearance were also common.

With regard to opening hours, people talked about their circumstances and when it best suited them to visit libraries. They also suggested looking at opening hours in the city as a whole, which is what has been done. Respondents said they realised that revising opening hours was preferable to full closures and urged that the Council looks to reverse these changes if opportunity should arise in the future.

Many respondents were very much against changes to the Mobile Library Service, most notably the Home Visit Service. Respondents, mainly older people, talked about their sense of isolation and how much they welcomed the library services available to them. Others talked about their difficulty in getting out to a static library, or the pleasure a mobile library visit brought to their school/sheltered housing complex etc.

People felt strongly about the negative impact the loss/reduction of library services would have on children and young people. The comment was repeatedly made that a library offer was key to a child’s future, especially in areas of high deprivation. This point was also made more specifically with reference to the loss of Sure Start Family Link Workers and the Homework Support Service. A number of comments were made by children themselves, who did not want any reductions in their library services.

The Valuing Older People network and mobile library visits were used to publicise the consultation, and the voice of older people was very much heard in this process. They emphasised the social connection that libraries offered, as well as the entertainment value that books and other library items had for people of limited mobility. Grandparents identified libraries as a place they enjoyed visiting with their grandchildren. Some felt they would feel the effects of library budget savings disproportionately. Similar feelings were expressed by disabled people: the value of the Home Visit Service, the mobility difficulties which made it difficult for them to visit static libraries and their appreciation of library services for blind and partially sighted people, including accessible format such as audio books and large print. Both these groups said they felt like libraries were something of a lifeline to them.

40 Manchester City Council Appendix 3 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

People across the city picked up on the inclusiveness of libraries, with those in deprived areas feeling their libraries were particularly important to them, and those in less deprived areas making a plea for equal access for all. Respondents on this theme also made a point of saying how much they valued Internet access. Other comments were often carefully considered and sincere suggestions about a range of subjects, including staff, stock, income generation and delivering library services from shared buildings. People said they would be prepared to pay more for library services if it meant safeguarding them and suggested Friends groups, annual subscriptions, introducing fines for overdue children’s books and payment for library event attendance. 46 comments came from respondents disagreeing with the option of using volunteers, with many citing concerns about a consequent reduction in qualified librarians. Other respondents welcomed the opportunity to volunteer and help protect local services. People see libraries very much as part of their communities and many comments emphasised this, with community-based fundraising ideas or suggestions for extended services, which would benefit communities, such as cafes, children’s parties or meeting rooms.

41 Manchester City Council Appendix 4 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Appendix 4 – Maps of library locations and catchment areas

96.7% of residential properties are within a one-mile radius of a library

99.9% are within a two-mile radius

42 Manchester City Council Appendix 6 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Appendix 5 – Library usage of three libraries proposed to close and Mobile Street Stops

43 Manchester City Council Appendix 6 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

44 Manchester City Council Appendix 6 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

45 Manchester City Council Appendix 6 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

46 Manchester City Council Appendix 6 - Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Appendix 6 - Transport Links

47 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 RELEVANCE TEMPLATE

For more information on ‘relevance’ please see ‘Step 2’ of the guidance document

Is a Full EIA required? Yes  No

Please explain how you have reached your ‘relevance’ conclusion

Summary of Relevance Assessment High Libraries provide access to books, information and many other services, ensuring equality of access by actively taking account of the cultural, linguistic and social diversity of the surrounding area. Libraries support social cohesion through working with local groups to identify and satisfy the requirements of all sections of the local community for information, individual learning and development, cultural, heritage and leisure activities.

Manchester City Council is committed to ensuring equality of access and is “committed to treating everyone fairly, and strive to achieve equality for the diverse mix of communities that make up the City of Manchester”.

As part of the efficiencies and savings currently required of Manchester City Council, the entire library and information service is being reviewed within a transformational service re-design, and there are a number of areas where we will be changing our operating models. This will impact on the opening hours of every library building in the city and the range, frequency and type of services we provide. We will be ceasing to deliver a number of services and reducing others to ensure that we are making best use of the resources available in order to deliver services to our residents and customers. This could potentially have an impact on customers with certain protected characteristics who use these services.

The relevance assessment has identified the policy as having relevance to the following protected characteristic/s (please tick below): Age  Disability Race Gender (inc. Gender Reassignment, Pregnancy and Maternity) Sexual Orientation

48 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 Religion or Belief (or lack of religion or belief) Marriage or Civil Partnership

Date of assessment : 28/06/11

Equality Impact Assessment Template

Your relevance assessment has identified an EIA should be undertaken – Please read the guidance before completing this section

Section 1- About your service / policy / function 1 Briefly Manchester Library and Information Service (MLIS) is part of the City Council's Neighbourhood Services directorate. It delivers describe the leisure, cultural, learning and information services through a network of 25 community libraries, as well as a Central Library key delivery (currently closed for refurbishment), a temporary city centre library, four mobile libraries and the Home Visit Service. It also objectives of manages the Greater Manchester County Record Office on behalf of AGMA (the Association of Greater Manchester Authorities). the policy/servic e/function The public library service is a statutory service covered by the 1964 Public Libraries and Museums Act with a duty to provide “a being comprehensive and efficient” library service for those who live, study or work within the City of Manchester. The Act sets out, in assessed fulfilling its duties: “a library authority should have regard to keeping adequate stocks of books, other printed matter, pictures, records, films and other materials in sufficient number, range and quality to meet the public’s requirements and the special needs of adults and children.” “of encouraging both adults and children to make full use of the library service, and of providing advice as to its use and of making available such bibliographical and other information as may be required by persons using it.” “of securing, in relation to any matter concerning the functions both of the library authority as such and any other authority whose functions are exercisable within the library area, that there is full cooperation between the persons engaged in carrying out those functions.” The requirements of Section 149 of the Equality Act state that Public Bodies must have due regard to the need to: • eliminate unlawful discrimination, harassment, victimisation and any other conduct prohibited by the Act;

49 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 • advance equality of opportunity between people who share a protected characteristic and people who do not share it; and • foster good relations between people who share a protected characteristic and people who do not share it.

The protected characteristics are age, disability, gender re assignment, pregnancy, maternity, race, religion or belief, sex and sexual orientation. The Equality Act explains that having due regard for advancing equality involves:

. Removing or minimising disadvantages suffered by people due to their protected characteristics . Taking steps to meet the needs of people from protected groups where these are different from the needs of other people. Particular attention needs to be paid to the needs of disabled people in taking account of this requirement. . Encouraging people from protected groups to participate in public life or in other activities where their participation is disproportionately low

Compliance with the duties may involve treating some persons more favourably than others; but that is not to be taken as permitting conduct that would otherwise be prohibited by or under the Act.

Advance equality of opportunity involves considering the need to: • remove or minimise disadvantages suffered by people due to their protected characteristics; • meet the needs of people with protected characteristics; and • encourage people with protected characteristics to participate in public life or in other activities where their participation is low.

Libraries are a universal service, open to the entire community. They represent a non-political, nondenominational public facility and play host to a number of different events, activities and groups. Manchester Library Service actively promotes equal access and equal opportunities and undertakes specific activity so that some of the most vulnerable in society are able to benefit from the service.

A comparison of the city profile and the library users profile shows how the Library Service is accessed and used by Manchester’s communities. In general the demographic of users broadly matches the city profile, although generally there is a higher proportion of women use the service than men and a higher percentage of children and young people compared to the resident population. In terms of ethnicity, the service has a higher proportion of BME users than the city profile. This may indicate the effective action taken by the Library Service to ensure that its stock and range of facilities and activities is relevant and accessible. There is little information about customers and residents in relation to sexual orientation, faith and disability. However, results from the 2009 Adult Public Library User Survey show that satisfaction levels for these specific groups are generally in line with the citywide averages,

50 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 and this indicates an equality of access for all our customers.

In addition to delivering its core functions effectively, the Library Service works to foster community cohesion. For example, the service promotes the Manchester Day Parade, holds dual language storytime sessions, supports reminiscence workshops and holds many cultural events across libraries. The service actively celebrates diversity by hosting events to mark key events including Black History Month, Holocaust Memorial Day, and Lesbian, Gay, Bisexual and Transgender History month. There has been a strong focus on co-operation with other partners to promote positive images for social cohesion, working with the community to plan more effective service provision. Previous Equality Impact Assessments have highlighted the ways in which the Library Service has developed ways to involve Manchester’s different groups and communities.

Significant savings have already been achieved through reducing staff numbers and merging support functions such as finance and personnel across the Council's Neighbourhood Services directorate. We have also been investigating additional opportunities offered by working with other Greater Manchester authorities. Wherever possible, efficiencies have been made without affecting frontline services, however further savings now need to be made. The proposals for service reductions are as follows:

A review of mobile library services The mobile library service operates four vehicles throughout the city. It makes 42 street-stops per week, visiting areas less close to building-based libraries. The mobile library service also offers targeted services: it visits 74 sheltered accommodation sites and offers a home visit service to adults with mobility difficulties. It also provides a postal cassette service to those who are registered blind or partially sighted. This service has been in decline, however, due to the improved availability of other audiobook formats, including free downloads from the library website. The Reading Voyager, which is a mobile library for children, visits schools, children's residential units and travellers' sites. We are undertaking a review of all these services with a view to withdrawing them. Although we do not want to leave anyone without a library service, we need to think creatively about how we could meet people's needs in the future in the context of reduced funding available. At £13.26 per visit, the mobile library is the most expensive of all our services, compared with a cost of £2.27 per visit in our other libraries. There is also evidence to demonstrate that a number of mobile library customers are also using our library buildings. Mobile library street-stop membership accounts for 1% of our membership overall. We do recognise, however, the need to ensure

51 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 that those residents who are unable to use a library building continue to receive support to access services. We need to examine the viability of a mobile library service in an urban environment, particularly following our substantial investment in library buildings, our online offer, the excellent transport links in Manchester and the flexibility of library services, where customers can use their ticket and return their books in any library in the city.

Proposed Library Closures Clayton Library shares a building with the Wells Centre and is less than a mile from the new larger, district library on Grey Mare Lane in Beswick. We do realise that this means further to travel for some residents, but usage levels in Clayton are low. Clayton Library is very small which restricts the number of computers offered and stock available. There is no room for study tables and staff have struggled for space when classes come to the library. The number and range of activities held was always limited due to space – Sure Start rooms have been used in the past for activities and meeting space. Beswick library offers much longer opening hours and customers can take advantage of a much broader range of services, including more computers, more and better range stock, dedicated children’s library situated on the first floor, Wi-Fi access, self service, photocopier, meeting rooms for hire, areas to study/read and displays/exhibitions.

Rack House Library - this small library serves a housing estate in Northenden ward and is open for 26 hours a week. Compared to the rest of the city, the customer numbers and usage levels are very small, and because it is open for only a short time, its stock is out of reach for most of the week, when it could be borrowed from libraries elsewhere. Rack House is housed in a former classroom at Rack House Primary and is one of the smallest spaces with one of the lowest stock holdings in the city. Rack House customers can now use the new library on Moor Road in nearby Brooklands which provides a much better library offer for customers. Barlow Moor Library this small library serves a housing estates in Chorlton Park ward is open for 15 hours a week. Compared to the rest of the city, the customer numbers and usage levels are very small, and because it is open for only a short time, its stock is out of reach for most of the week, when it could be borrowed from libraries elsewhere. Barlow Moor Library has been a ‘temporary’ provision since 2000 after the original library was destroyed by fire, and has been a less than satisfactory offer during this time. Stock of 5,000 items, 2 PCs, no meeting room, extremely limited space, only open 15 hours per week, limited range of services – all mean that any of the alternative sites, including Chorlton and Didsbury libraries, provide a far superior service offer for Merseybank residents. Opening hours Previously our approach has been to keep as many libraries as possible open for as many hours as possible, but by closing a limited number of small libraries and spreading reductions in opening hours across the city, the impact of the savings can be

52 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 reduced for users across the city as a whole. Analysis of when residents tend to visit libraries most has shown us when the best times are to remain open, given the savings that need to be made. We have already made significant improvements to our online library offer, making content, renewals and account management available 24 hours a day, so the need for a physical library visit is not as great as it once was. If opening hours are reduced, these decisions can be revisited when the availability of funding is not so restricted: libraries can always open for longer again in the future. Reducing opening hours across all libraries will help keep the number of permanent closures to a minimum and spread the impact of the cuts more evenly around the city. The consultation questionnaire asks respondents to tell us how and when they use the library, so we can reduce opening hours with least impact.

Alternative provision East City Library opened on The Manchester College's Openshaw campus as a temporary public library to cover the period while the old Beswick Library was closed. Now that a new and larger Beswick Library has opened, we propose returning East City Library to the management of the college for the use of its staff and its students.

Reprovision Hulme Library is housed in a large and costly building on Stretford Road, opened in 1962. The library requires AMP investment in relation to the inadequate rainwater guttering to the whole building, the failing flat roof and water damaged back service corridor.

The consultation proposed relocating this library, to share premises with the neighbouring Zion Centre or Moss Side Leisure Centre. The library was initially considered for closure however the service was asked to consider the possibility of reprovision.

The service has carried out an options appraisal at both sites and the preferred option is to relocate library provision to a remodelled Moss Side Leisure Centre, which is 0.7 miles from the current Hulme Library, creating a new community and cultural hub for local residents. The service is having initial discussions with the leisure service provider to progress this reprovision and the service has also visited other successful co-located library and leisure centres in Glasgow and Sefton. It is recommended that Hulme Library would remain open until the leisure centre was able to open and this will have an impact on savings and will also require some capital monies for fit out.

The new library at One First Street, which is 0.6 miles from Hulme Library, can also be accessed by local residents and has a large number of PCs offering Internet access as well as a small lending library. The service is also considering the potential for a community book exchange offer, locally funded similar to the proposal for Rack House and Clayton, and is working with local members to consider a suitable venue which would be cost neutral to the organisation and resources funded by the local

53 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 community.

Miles Platting Library is currently housed in a 1970s purpose built library, which is in extremely poor condition. The service is engaged with a number of partners in relation to the creation of a new joint service centre which will also house a new library.

Possible alternatives Alternative provision is being considered and respondents who fill in the consultation questionnaire are asked about the following, which may mean that positive outcomes arise from the Library Review process:

Deposit collections We already use deposit collections in some settings, such as nurseries, children's homes and refuges. Up to 50 books are issued to an organisation or individual (we call it a block loan) for a set period. User groups can enjoy the books as they please before the box is collected and replaced with fresh content.

Pick-up and drop-off service This would be a block loan issued as above, but collected and dropped off by a nominated borrower when the items are due for return.

Postal deliveries Despite the costs, this may be an effective solution in some very specific circumstances. Alternatively, it could become a charged- for premium service for a wider population if the demand exists and the service is found to be viable.

Volunteers Volunteers may be able to work with the library service in enhancing the home visits service to housebound readers. This service is part of the review of mobile services and it is proposed to move to a Home Delivery Service supported by volunteers, with an increased use of deposit collections, supported by dedicated staff and transport. If libraries do close, community groups may wish to set up and run book exchanges themselves which would not be part of the library service. Volunteers would need to negotiate a venue for this which could be the former library. Rackhouse Library, for example, is currently delivered from Rackhouse Primary School and the head has indicated a willingness to allow a community group to run a book exchange there outside school hours. Volunteers could borrow deposit collections from the library service to use in these book exchanges.

54 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Alternative locations This means moving library services into alternative community venues or facilities, instead of having dedicated, standalone library buildings.

2 What are The main driver for the proposed change is financial: a 25% reduction in the Library Service Budget. By closing a limited number of the desired small libraries and reviewing opening hours and the mobile library service, it is anticipated that this will reduce the impact of the outcomes savings we need to make across the library service on the city as a whole. Additionally, it means that resources – particularly staff – from this can be used more effectively. The proposals aim to ensure that we comply with our statutory duties and make maximum use of the policy/servic reduced budget so that the library service offers good value for money while retaining a high quality of service. If the four identified e/function? libraries were to close, the remaining building-based libraries are located within 1 mile of 95% of residential properties in Manchester and 99% are within 2 miles. We have identified libraries with existing alternative local provision or where there are options for future alternatives for service delivery. Other proposals in terms of changes to the way services are run may help to mitigate the impact of the budget cuts on the library service, for example reducing opening hours across libraries, focusing on times highlighted as lower usage in the consultation and based on local usage as a way to avoid completely closing a large number of libraries, increasing income by introducing more paid- for services and increases to fines and charges. In carrying out a review of library opening hours we considered the need to provide a set of opening hours that would:  Meet our statutory obligations  Meet our customer needs and preferences with regard to patterns of usage  Address anomalies where existing opening hour provision exceeded or fell short of customer use and demand  Create a tiered offer of standardised opening hours across the city ensuring equal access to all residents to quality library services  Meet the budget savings target required through a reduction of opening hours  Offer customer focussed opening hours that although reduced could easily be reversed to allow for future growth and expansion of the service  Deliver a comprehensive offer of opening hours across each area  Provide opening hours in keeping with other local retail offers where appropriate  Ensure opening hours that acknowledge that many library customers will use libraries across a wide area of the city rather than just within locality boundaries.  Continue to support the provision of partner services at our joint service centre locality libraries

55 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

We have produced a proposal of opening hours that will make sense to our customers that continue to place the customer at the centre of our service that will result in:  Saturday opening at all libraries  No reduction to Opening at City Library  Withdrawal of Sunday opening at 6 libraries  Reduction in evening opening across the city on those evenings least favoured by customers  Lunchtime closures at smaller community libraries  Tiered opening hours with district centre libraries open at least 40 hours per week and community libraries open at least 30 hours per week  5 day opening at all libraries across the city as standard  An overall reduction of 21% of our current library opening hours.

Section 2 – Understanding your customer

3. Do you currently Protected Characteristics Y/N If no, please explain why this is the case and / or note monitor the action to prioritise the gathering of this equality data in service/policy/functi your action plan on by the adjacent protected Race Y characteristics? Gender (inc. gender reassignment, Y pregnancy and maternity) Disability Y

Sexuality Y

Age Y

56 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 Religion or belief (or lack of religion Y or belief) Marriage or civil partnership N It would be very difficult to monitor this characteristic as information is not collected through the membership process or via PLUS surveys 4. What information has been analysed The public consultation ran for twelve weeks from the 14th March until 5th June, and the results from the questionnaire have to inform the now been analysed. This document has now been updated with the relevant equality information derived from the results of content of this EIA? the consultation, and takes account of comments made by the respondents. Any actions taken as a result of the Library What were the Review will be subject to ongoing impact assessments for each equality strand. findings? The consultation questionnaire was open to all sections of the community, as well as library/City Council staff, businesses, Please include partner organisations and voluntary/community groups. The questionnaire was available online or in hard copy format at any details of any data library in the city, and a freepost address was provided for customers who preferred to post their questionnaires back. compiled by the Alternative formats of the questionnaire were available on request, and larger print copies were made available. service, any research that has Copies of the questionnaire were circulated to community groups, such as the Valuing Older People network, and we been undertaken, contacted key equality groups to promote awareness of the consultation. any engagement that was carried out A series of public consultation meetings led by the Head of Libraries, members of the senior management team and Lead etc. Members were arranged throughout March, and these were held at various library and community locations across the city, with particular emphasis on library locations which are being considered for closure/review. The meetings were publicised Please specify through the Council website, social media, posters and through the Library Service’s monthly bulletin, Full Volume, and by whether this was emails to members to ensure that as many people as possible were made aware of the meetings. existing information or was specifically Reference will also be made in this Impact Assessment to the following existing data sources: Census 2001, ONS Mid Year in relation to this Estimates, Public Library User Survey for Adults (2009), State of the City/Communities of Interest Report, Library statistics. equality analysis Much of this information was readily available at the time of the assessment. Any library membership data cited in this report and EIA process is derived directly from the Galaxy Library Management System.

In reviewing opening hours, the main focus was to ensure that we understood customer patterns of use. In order to do this we carried out a one week hour-by-hour visitor count at all district and community libraries. We spoke to local service managers regarding busy and quieter times of the day and week to draw on their knowledge. We analysed all of this

57 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 information and reviewed customer preferences as expressed through the public consultation exercise.

Section 3 – Delivery of a customer focussed service / policy / function

5. Could the Y N What evidence or data exists to support your analysis?

58 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 policy/service have a X According to the latest active libraries membership data (based on those customers who have borrowed an item differential impact relating of stock or used a PC in the last 12 months), 47% of customers who provided ethnicity information are from a to race equality? BME background (41,953) while 53% are White British (47,386). More than 35,000 customers have not provided ethnicity information, so we do not know if this percentage breakdown is entirely reflective of our customer cohort. The data requires extensive cleansing, so we cannot provide a further breakdown by each ethnicity strand, but it is clear from looking at the data that the library service attracts people from a wide range of backgrounds.

If we assume the membership data to be broadly representative, this indicates we are attracting a higher proportion of BME customers than is reflected in the 2008 Mid Year Estimates from the ONS, which estimates that BME communities constitute around 31% of the population.

Manchester Library Service prides itself on offering a safe and neutral environment for all people to come and use services or find out information, and this is particularly important for people who may be new to the country, such as refugees, or who may prefer to use a local library rather than other Council/Education locations which may be viewed by some as formal institutions.

The figures below are based on Library membership data and Census 2001 data. The Census 2001 data demonstrates at Ward level (below) the percentage representation of all respondents who identified themselves as of other ethnicity than White British. The Census 2001 data has been used for this Ward analysis because it remains the most statistically valid data source, as it is recognised by the Office for National Statistics.

Library Ward Library Ward Residents Members % recorded as % BME other than White British Barlow Moor Chorlton Park 32 26 Rack House Northenden 18 11 East City Bradford 40 16 Clayton Ancoats and Clayton 43 13 Mobiles All 37 -

The average percentage of library customers who are BME is 47%, therefore all four libraries and mobile libraries have a lower percentage of59 BME customers than the citywide customer average. In terms of the resident population, none of the affected wards had a higher proportion of BME residents than the citywide average at the time of the Census 2001 (26%) Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 If the impact is negative what solutions will be introduced? If the impact is positive Staff work with hard to reach groups and communities, for example refugees and people who are new to the country. We how will this be use various means by which to contact these people, predominantly through outreach work in the community, partnership safeguarded? working, targeted events and library activities, all of which are promoted via effective marketing, online services, social media outputs and networking. Any BME customer whose local library is closing will be welcomed in other libraries, and all customers have access to an extensive catalogue of stock with many items of BME interest. Customers can reserve stock free of charge via the online catalogue, then arrange to collect it from a convenient library, including the two city centre libraries if a customer frequents the city centre.

Any community language stock which is located at the libraries proposed to close will be circulated to other libraries in the city, which could be a positive outcome for customers using other libraries as more stock will be available on the shelves. In 2010-11 less than 1% of community language stock was issued to customers of the three libraries and mobile service, which reflects a comparatively low uptake.

Going forward, all Manchester residents will be able to benefit from our substantial investment in library buildings, our online offer, the excellent transport links in Manchester and the flexibility of library services, where customers can use their ticket and return their books in any library in the city. The network of 23 libraries across the city will mean that 95% of Manchester households will be within 1 mile of a library, 99% within 2 miles of a library. Which business / equality All actions will be transferred to the department’s Equality Delivery Plan action plans have these been transferred to

6. Could the Y N What evidence or data exists to support your analysis?

60 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 policy/service have a X differential impact on Manchester Library Service currently delivers a variety of services through the Mobile Library Service: disability equality?  Mobile street stops and home visits service for customers who are unable to use their local library due to accessibility issues  Postal cassette service for customers who are blind or partially sighted  Sheltered accommodation visits, which incorporates both mobile stops and stock being taken to customers who are unable to visit the van due to accessibility issues.  The Reading Voyager children’s mobile library visits a range of venues, mostly schools, including two special schools and the Children’s Hospice.

The number of people (borrowed stock or used PCs) registered as mobile library customers are as follows:

Mobile Home visits Postal Sheltered Reading Total Total library street Cassette accomm- Voyager Mobile users stops service odation Service Number 1,187 699 52 340 858 3,136 130,587 % of total 0.9% 0.5% 0.04% 0.3% 0.7% 2.4% library users

It is unclear as to how many of these customers are disabled, however the majority of customers served by the home visits and sheltered accommodation visits are physically unable to travel to their local library. We do not know how many of the customers of mobile street stops are disabled. The PLUS survey carried out in 2009 highlighted that 50% of the 150 respondents said they had a disability, with one quarter having mobility difficulties. As this service is geared towards areas that are a distance from building-based services and not served as well by public transport, and have a high number of elderly customers, it is likely that a significant number of these customers will have disabilities and/or mobility difficulties, and these customers may potentially be differentially impacted upon if the Mobile Service were to be withdrawn.

Barlow Moor Library is in the centre of the MerseyBank estate, which is served by one community transport bus, once an hour during the daytime only. This does provide a service to Chorlton but is not the most frequent of service. If customers can easily walk to Princess Road or Barlow Moor Road (which border the estate) then there are regular buses to Fallowfield, Chorlton or Didsbury. These alternative libraries are therefore approx 30 min total journey time away. However, it is anticipated that this will still be seen as a major barrier to disabled customers. This is due to the cost of short bus journeys and issues of convenience and practicality. 61 No membership data is collected around disability. PLUS 2009 survey results showed that 19% of library customers across the city considered themselves to have a disability or condition. Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 If the impact is negative what solutions will be Home Visits Service - 699 registered customers in receipt of a home visit every 4 weeks. introduced? The customers in receipt of a home visit will experience the most difficulty in accessing alternative library services. In order to continue to deliver to this client group, (composed of mostly elderly, with some young people) alternative volunteer options have been discussed with the well-established Community Guardians scheme and the existing volunteer networks accessible via the Valuing Older People city-wide forum, including the newly emerging Retired and Senior Volunteer Programme. All volunteer groups have expressed a willingness to work with the library service in this area, which is recognised as work that is both interesting and rewarding. The benefit to the customers of such a scheme is the added value that the volunteers bring, as they would have the ability to provide a ‘befriending’ service. This is something Home Visit customers would appreciate, but current limitations on library time and staffing resource prevent it. The proposal is to move to a Home Delivery Service, “Books to Go”, with an increased use of deposit collections. The service will be centrally located within a library base with a small team of dedicated staff and transport delivering the service with support from volunteers. This will require continued investment to be achievable and is proposed in the recommendations to the Executive Committee. Postal deliveries may also be considered in the future - despite the charges to the customer, this may be an effective ‘paid for’ solution in some very specific circumstances. Alternatively, it could become a charged-for premium service for a wider population if the demand exists and the service is found to be financially viable.

Mobile Street Stop Customers Customers with mobility difficulties who are unable to get to a static library will be eligible to apply to join the Books to Go service. The wide range of stock available via the Mobile Library will be dispersed amongst static libraries to increase the range. A marketing campaign will be launched to advise customers of alternative static library provision in the locality. Statistics show that 42% of active street stop customers (i.e. those who have engaged with the Library Service in the past 12 months) have used a static library in addition to using a mobile library. This equates to 1,101 street stop customers who potentially are able to access alternative local libraries.

Sheltered Accommodation Customers - 74 sites across the city (340 registered customers) The proposal is to replace with deposit collections where practicable. Up to 50 books could be issued to an organisation or individual for a set period. User groups can enjoy the books as they please before the box is collected and replaced with

62 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 fresh content. Working with the Directorate of Adults, we recommend depositing collections in Day Care Centres, extending this service to include where possible the10 Centres spread across all SRF areas. There are also opportunities to work with registered social landlords and Health Centres to place deposit collections in a range of localities that are readily and easily accessible to local communities. This option would require some continued investment as feedback from Adult Services suggests that financial support with the necessary transport costs is not viable for them. Similarly it is not practical / feasible for volunteers to take on the necessary transportation of heavy and bulky loads such as these collections represent (expenses would also need to be paid to those able to take on this commitment).

Customers who are blind or partially sighted

The Postal Cassette service provides a free audio book delivery service to any Manchester resident registered blind or partially sighted. There are currently 52 customers who receive up to eight items, posted to their home / returned freepost, if they are registered blind. Most people who are blind or partially sighted would have access to downloadable, online, audio books however, with the proposed investment in Books to Go it would be possible to continue to deliver the postal cassette service to customers who would not easily adapt to this new medium. Alternatively it is an option to withdraw the service and support customers in the initial stages to access the new medium available.

The Mobile service has been working in partnership with Sensory provision and The British Wireless for the Blind Fund for the last 10 years. Library staff deliver and demonstrate free items of audiovisual equipment to blind and partially sighted residents across the city. This specially adapted Roberts equipment is donated by the BWBF and customers are referred by social services and sensory provision. There are approximately three customers each week in receipt of this service. It is proposed to move the delivery of this service back to the BWBF and their associated agencies. Alternatively, the investment referred to previously may be able to incorporate the continued delivery of this service with the potential to extend this to a volunteer supported operation (this would require the support of the BWBF)

Two of the 3 members of staff working with blind and partially sighted people have already opted to take early retirement, and although we have moved another member of our community access team to the unit, we are closing the city-based unit for one day per week in order to maintain our outreach service at North City Library as well. We have chosen the quietest day to close the unit, and we are giving training to our mainstream staff, and providing access software on PCs throughout City Library to mitigate the effect of this.

63 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 Although it is not envisaged that services to blind and partially sighted people can be delivered in the same highly bespoke way in the future, the Unit will continue to function in City Library, though with reduced opening hours and an offer more focussed on accessing library services. When the new Central Library and Town Hall Customer Service Centre open in 2013 the service will be mainstreamed and offered across the complex. We have signed up to the joint Share the Vision and Society of Chief Librarians national pledge "Six Steps to library services for blind and partially sighted people", which aims to guarantee a national public library offer for blind and partially sighted people. In line with this commitment we are ensuring that access software is available on additional PCs in City Library and other libraries across the city thus improving equality of opportunity and are arranging for refresher training to be given to front line staff to enable them to support customers with sight loss in using this software. We are also considering alternative models to support customers in the delivery of a range of services including the use of volunteers and considering whether other agencies could provide additional support. We intend to widen service provision across the city rather than in just two specific locations and will identify an access champion who will ensure that every member of staff is aware that they have a responsibility to support all customers, embedding access into service provision ensuring a more equality driven approach.

In the longer term we are aiming to ensure that facilities for blind and partially sighted people will be incorporated into the design of the new Customer Service Centre which will be the main contact centre for a range of public sector organisations to support Manchester residents and we aim to mainstream services for blind and partially sighted people to improve wider access. We are also in the process of discussions with a number of third sector organisations with a view to service provision from the new centre. We are committed to consultation with existing blind and partially sighted customers to ensure that we understand their service needs and consider how we meet their needs in the context of a reduced workforce. Over the next few months we will be working with our Design Teams and Transformation teams to consider use of space and adjacencies for a range of customer services and also considering suitable rooms which will embrace the requirement for privacy to allow customers to access information in a range of formats.

We want to arrive at a position where we have staff across the council who are better trained and sensitive to the special access needs of all our disabled residents.

Reading Voyager Children’s Mobile Library Customers – 858 registered customers

The Reading Voyager children’s mobile library visits a range of venues, mostly schools, including two special schools and the Children’s Hospice. It is recommended that the vehicle is withdrawn, but school block loans are provided as an alternative for special schools. A deposit collection is also recommended for the venues with most need such as the

64 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 Children’s Hospice. The delivery of deposit collections would require some continued investment as proposed.

Barlow Moor, Rack House and Clayton Library Customers

At Barlow Moor, it is proposed to retain existing opening hours and venue until July 2012. We will continue to work with Regeneration and local community groups to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision. Any disabled customers will be able to continue using this library.

If Clayton and Rack House libraries are closed, disabled customers who are able to travel to alternative libraries will be able to do so: the new Beswick Library which offers a much wider range of services is located 0.7 miles away from Clayton Library. The new Brooklands Library, also offering a much wider range of services is located 1.3 miles away from Rack House Library and Northenden Library is 1 mile away.

Any customers who cannot make this journey because of disability would be considered as part of the alternative plans for the Books to Go service, working with volunteers, if funding is made available. Customers would also be given information about the Ring and Ride service. It is also proposed that we progress the opportunity for local community groups to provide and fund a book exchange service within their local area. Volunteers will be able to borrow from the library a block loan of a number of books which they can keep for their book exchange for several weeks.

Going forward, Manchester residents will be able to benefit from our substantial investment in library buildings, our online offer, the excellent transport links in Manchester and the flexibility of library services, where customers can use their ticket and return their books in any library in the city. The network of 23 libraries across the city will mean that 97% of Manchester households will be within 1 mile of a library, 99.9% within 2 miles of a library.

Opening Hours

Customer choice is key to our service delivery. Although library services will be delivered across specific areas the library customer does not access our services strictly within these boundaries. Many of our customers use several libraries not just one. In recognition of this we have considered the geographical locality of libraries when considering the impact of proposed changes to library opening hours. By considering proximity of service points we have the choices customers will make about alternative access to library services when their own local library is closed. We have endeavoured to provide

65 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 our customers with tiered opening hours across the library estate that can be as accessible as possible to as many customers as possible. Through analysis of patterns of use data we have tailored opening hours largely to customer preference.

If the impact is positive Customers can reserve stock free of charge via the online catalogue, then arrange to collect it from a convenient library, how will this be including the two city centre libraries if a customer frequents the city centre. safeguarded? Which business / equality All actions will be transferred to the department’s Equality Delivery Plan action plans have these been transferred to?

Y N What evidence or data exists to support your analysis?

66 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 7. Could the Y N What evidence or data exists to support your analysis? policy/service have a differential impact relating to equality for Gender? IMPORTANT: note that analysis here includes analysis of impacts relating to gender reassignment and pregnancy and maternity

67 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 If the impact is negative what solutions will be introduced? If the impact is positive Customers can reserve stock free of charge via the online catalogue, then arrange to collect it from a convenient library, how will this be including the two city centre libraries if a customer frequents the city centre. safeguarded? Which business / equality Any actions will be transferred to the department’s Equality Delivery Plan action plans have these been transferred to

8. Could the Y N What evidence or data exists to support your analysis?

68 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 policy/service have a X differential impact Date of birth is collected when a customer joins the library. Manchester libraries has 10,161 users who are relating to age equality? registered as pensioners, and 41,131 children and young people.

A percentage breakdown of children and young people and older people can be seen below (percentages based on those customers who provided their DOB).

Membership Ward* % under 16 % 60+ Ward % under 16 % 60+ Barlow Moor 45% 13% Chorlton Park n/a 13% Rack House 54% 11% Northenden n/a 17% East City 26% 7% Bradford n/a 15% Clayton 44% 7% Ancoats and Clayton n/a 13% Mobiles 46% 31% - - 14% Manchester 28% 9% Manchester 18% 14% average

* Based on 2009 ONS experimental mid year estimates, percentage under 16 unavailable

Children and Young People

Children and young people make extensive use of libraries, particularly after school and at the weekends. Libraries offer a safe, impartial and quiet environment where children and young people can use a wide range of resources and access computers free of charge, to help them with their school work and literacy skills and to enjoy their recreational time. All libraries operate outside of core hours with late evening and Saturday opening and the proposed reduction in opening hours will have an impact on children and young people. There are also many events and activities held during term time and in the holidays which provide diversionary activities that are open to all local children.

Given the small space and limited facilities available at Barlow Moor, Rack House and Clayton libraries, the children’s services offer falls very short of those offered by nearby larger libraries, particularly in terms of opening hours outside of school time and support/space for study, therefore the impact on children and young people in this respect would be fairly low.

However, it is acknowledged that children69 and young people would find it more difficult than other groups to use alternative libraries which may be further from their home or school, and the proposals in the Library Review may therefore have an adverse impact on this cohort. Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 If the impact is negative what solutions will be Children and Young People introduced? Although there will be a reduction in opening hours across the city (approximately 21%) there will be geographic provision in line with usage trends and local needs. Children need to be able to use libraries at weekends and after school and there will continue to be Saturday opening at all libraries across the city although it is proposed to withdraw the current Sunday opening at six libraries. Reductions in evening opening across the city will be on those evenings least favoured by customers and all libraries will have some evening opening. Other reductions will be lunchtime closure at smaller community libraries and tiered opening hours, with district libraries open at least 40 hours per week and community libraries open at least 30 hours per week. There will be five-day opening at all libraries across the city.

At Barlow Moor, it is proposed to retain existing opening hours and venue until July 2012. We will continue to work with Regeneration and local community groups to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision. Any children and young people who currently use this library will be able to continue doing so.

Where libraries are proposed for closure it is anticipated that the majority of children and young people will travel to nearby, larger libraries with better facilities and some children and young people may have to travel with parents, carers or older siblings rather than visit independently.

If Clayton and Rack House libraries are closed, children and young people will be able to use libraries nearby. The new Beswick Library which offers a much wider range of services is located 0.7 miles away from Clayton Library. The new Brooklands Library, also offering a much wider range of services is located 1.3 miles away from Rack House Library and Northenden Library is 1 mile away. Any customers who cannot make this journey because of disability would be considered as part of the alternative plans for the home delivery service, working with volunteers, if funding is made available. Customers would also be given information about the Ring and Ride service.

At Clayton and Rack House it is proposed to close the libraries but progress the opportunity for local community groups to provide and fund a book exchange service within their local area. Volunteers will be able to borrow from the library a block loan of a number of books which they can keep for their book exchange for several weeks.

Going forward, all Manchester residents will be able to benefit from our substantial investment in library buildings, our

70 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 online offer, the excellent transport links in Manchester and the flexibility of library services, where customers can use their ticket and return their books in any library in the city. The network of 23 libraries across the city will mean that 95% of Manchester households will be within 1 mile of a library, 99% within 2 miles of a library.

Schools currently visiting libraries proposed for closure may not be able to take children to the nearest alternative library and may instead use an existing facility where teachers from these schools visit the nearest library and take out block loans – collections of 30 books which can be borrowed for several weeks and which can be used by pupils in the school.

Although there will no longer be dedicated staff in libraries to assist with children’s homework needs, collections of books and other resources related to the curriculum will be set up in libraries for children and young people to use and to borrow for home study. Children and young people will also have free use of computers in the library to access the internet for study and staff working in the library will be able to help with finding information and resources. Staff will also be working with schools and other partners to look at ways of providing improved services to children and young people, especially around helping to support them with their study needs.

The Reading Voyager is a dedicated children’s mobile library service providing services for children who fit a given criteria (lack of proximity to a static library, English as a second language, Key Stage 2 literacy performance, travellers sites, special needs schools, Children’s Centres, areas of high immigration, Looked After Children etc). It is recommended that the vehicle is withdrawn, but school block loans are provided as an alternative for existing mainstream and special schools. A deposit collection is also recommended for the venues with most need – the Children’s Hospice, two Travellers’ sites and two Looked After Children’s Homes. The delivery of deposit collections would require some continued investment.

Older People

Elderly customers in receipt of a home visit will experience the most difficulty in accessing alternative library services. In order to continue to deliver to this client group, alternative volunteer options have been investigated and the possibilities are encouraging: these include working with the well-established Community Guardians scheme, working with the existing volunteer networks accessible via the Valuing Older People city-wide forum, including the newly emerging Retired and Senior Volunteer Programme. WRVS has a pool of volunteers ready to take on new volunteer work and there is potential for entering into a Service Level Agreement. All volunteer groups have expressed a willingness to work with the library service in this area, which is recognised as work that is both interesting and rewarding. The benefit to the customers of such a scheme is the added value that the volunteers bring, as they would have the ability to provide a ‘befriending’ service. This is something Home Visit customers would appreciate, but current limitations on library time and staffing

71 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 resource prevent it. This option would require some continued investment which is being proposed.

The Postal Cassette service provides a free audio book delivery service to any Manchester resident registered blind or partially sighted. There are currently 30 customers who receive up to eight items, posted to their home / returned freepost, if they are registered blind. With the proposed investment it would be possible to continue to deliver this service to customers who would not easily adapt to the new medium available. Alternatively it is an option to withdraw the service and support customers in the initial stages to access the new medium available.

The Mobile service has been working in partnership with Sensory provision and The British Wireless for the Blind Fund for the last 10 years. Library staff deliver and demonstrate free items of audiovisual equipment to blind and partially sighted residents across the city. This specially adapted Roberts equipment is donated by the BWBF and customers are referred by social services and sensory provision. There are approximately three customers each week in receipt of this service. It is proposed to move the delivery of this service back to the BWBF and their associated agencies. Alternatively, the investment referred to previously may be able to incorporate the continued delivery of this service with the potential to extend this to a volunteer supported operation (this would require the support of the BWBF)

Where libraries are proposed for closure it is anticipated that the majority of elderly people will travel to nearby, larger libraries with better facilities and some elderly people may have to travel with others rather than visit independently. The new Beswick Library which offers a much wider range of services is located 0.7 miles away from Clayton Library. The new Brooklands Library, also offering a much wider range of services is located 1.3 miles away from Rack House Library.

At Barlow Moor, it is proposed to retain existing opening hours and venue until July 2012. We will continue to work with Regeneration and local community groups to explore any development opportunities for alternative library provision and to work with the local community to consider community-led provision. Any elderly people who currently use this library will be able to continue doing so.

At Clayton and Rack House it is proposed to close the libraries but progress the opportunity for local community groups to provide and fund a book exchange service within their local area. Volunteers will be able to borrow from the library a block loan of a number of books which they can keep for their book exchange for several weeks.

Any customers who cannot make this journey because of disability would be considered as part of the alternative plans for the home delivery service, working with volunteers, if funding is made available. Customers would also be given information about the Ring and Ride service.

72 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Going forward, all Manchester residents will be able to benefit from our substantial investment in library buildings, our online offer, the excellent transport links in Manchester and the flexibility of library services, where customers can use their ticket and return their books in any library in the city. The network of 23 libraries across the city will mean that 95% of Manchester households will be within 1 mile of a library, 99% within 2 miles of a library.

Opening Hours

Crumpsall, North City, Beswick and Brooklands libraries are all co-located with educational establishments. Despite a reduction in overall opening hours, we are still maintaining student access where we provide a designated service to Manchester College A level students at North City Library. We will still maintain access to customers of MAES partner service provider at Longsight Library. Customers of Learndirect at the Forum Library will still have access to the learning space on the proposed closed day.

At Moss Side Powerhouse, the only change to the level of provision is a proposed closed day one day a week. We are maintaining provision of late evening opening hours which are the most popular times to visit currently.

Customers of working age who work full time/shift work, as well as students, need longer opening hours to access library services outside of work/study, and we are maintaining as many later opening hours as we can. We have given consideration to customer patterns of use and preferences and endeavoured to provide a suite of opening hours across large areas of the city that will ensure access to services are as comprehensive as possible. We have considered, for example, that if Longsight Library is closed on a particular evening another library in closest proximity will be open on that evening. In this way we aim to provide customers with alternative provision as near by as possible.

Where we have had to look at introducing closed days we have opted for those days where less use is made of services generally by all of our customers, including children and young people and older people. In this way we have aimed to limit the adverse impact of changes to our opening hours, and this was reflected in the results of the consultation.

If the impact is positive Stock is available at all libraries across the city which is geared towards all age groups, young and old, and a much wider how will this be range of stock can be borrowed via the library catalogue. All of our libraries have designated areas for children and young safeguarded? people. Events and activities geared towards children and towards older people run on a regular basis. The Archives and

73 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 Local Studies service is very popular with our older customers. New services are designed with the assistance of young people, for example at Moss Side and Longsight libraries.

Customers can reserve stock free of charge via the online catalogue, then arrange to collect it from a convenient library, including the two city centre libraries if a customer frequents the city centre.

RFID technology (self issue machines) which is being rolled out across the city means that it is easier for customers to access stock relating to personal or sensitive issues, i.e. they no longer need to go to a counter to have an item of stock issued, which may be seen as a barrier to some customers, both young and old. Which business or All actions will be transferred to the department’s Equality Delivery Plan equality action plans have these been transferred to?

9. Could the Y N What evidence or data exists to support your analysis?

74 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 policy/service have a X differential impact The Communities of Interest report notes that there is limited data available in terms of LGBT residents living in relating to sexual Manchester, although the report does state that: orientation equality? Current statistics estimate the UK’s LGBT population as 5-7%. The higher figure is used for the North West: 7%; the figure is lower in rural areas. However, there has been evidence to show that same-sex couples move to more rural areas when they are older.

‘Greater Manchester’s population by mid-2007 was estimated by the Office of National Statistics (ONS) to be 2,562,000. Presuming a population percentage growth of +0.03% per annum for Greater Manchester, the population of this subregion by mid-2009 can be estimated to be 2,577,400.Assuming that the LGB population is 7% (the higher end of the Government’s actuarial estimate), the number of LGB people living in the subregion is likely to be approximately 180,500.’ NWRD ‘Improving the Region’s Knowledge Base in LGB and T population in the North West’ 2009.

No data around sexuality is collected when new members join the library. For the PLUS survey 2009, 4,898 Central Library respondents provided a response when asked about their sexuality. 92% stated they were heterosexual/straight. 8% said they were gay, lesbian, bisexual or other. If estimates are correct that 7% of the resident population are LGBT then this data indicates that uptake of library services is in line with the residential cohort.

The Library Service prides itself on the services, events and resources it provides to LGBT communities in a welcoming and safe environment. LGBT stock is available to all customers via the extensive library catalogue. A range of events are held each year during LGBT History Month and we will aim to continue these activities across the city. There is an LGBT reading group which meets at City Library each month. The Library Service has a lead co-ordinator for LGBT work, and is responsible for planning events, activities and stock displays to tie in with National and Manchester initiatives, such as the annual Pride festival.

RFID technology (self issue machines) means that it is easier for customers to access stock relating to personal or sensitive issues, i.e. they no longer need to go to a counter to have an item of stock issued, which may be seen as a barrier to some customers.

There is no reason to believe that the proposals outlined in the Library Review would have any greater or lesser effect on people on account of their sexuality. 75 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 If the impact is negative what solutions will be introduced? If the impact is positive If any libraries were to close, any LGBT stock would be dispersed to other libraries across the city which would potentially how will this be give better access to this stock. However compared to other larger libraries there would be relatively little LGBT stock safeguarded? available on the shelves of these libraries.

Customers can reserve stock free of charge via the online catalogue, then arrange to collect it from a convenient library, including the two city centre libraries if a customer frequents the city centre. Which business/action Any actions will be transferred to the department’s Equality Delivery Plan plans have these been transferred to

10. Could the Y N What evidence or data exists to support your analysis? policy/service have a X No information around religion is collected when a member joins the library. The latest PLUS results had 5,101 differential impact responses when customers were asked about their religion. 34% of respondents said they had no religion, while relating to equality in 48% cited their religion as Christian. Muslim was the second highest religion cited, making up 11% of respondents. religion and belief (or Satisfaction levels amongst each religious category were broadly in line with the Manchester average. lack of religion or belief)? There is no reason to believe that the proposals in the Library Review would have any greater or lesser effect on people on account of their religion and belief. If the impact is negative what solutions will be introduced? If the impact is positive There is a wide range of stock available around religion and belief across the city, and customers will be able to reserve how will this be items from the extensive library catalogue. safeguarded? Which business/equality Any actions will be transferred to the department’s Equality Delivery Plan action plans have these been transferred to

76 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011 11. Could the Y N What evidence or data exists to support your analysis? policy/service cause There is currently no data collected around marital status of library users. discrimination in relation X to marriage and civil There is no reason to believe that the proposals in the Library Review would have any greater or lesser effect on partnership? people on account of their marital status. If the impact is negative what solutions will be introduced? If the impact is positive how will this be safeguarded? Which business/equality Any actions will be transferred to the department’s Equality Delivery Plan action plans have these been transferred to?

77 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

EIA Action Plan Service / Directorate Equalities lead: Jill Sharp / Jill Hunt Strategic Director: Vicky Rosin Corporate Service Inclusion Team lead: James Hand

Is this action identified in your business plan Target date and / or Equality for Responsible Delivery Plan Actions Identified from EIA completion Officer (Yes / No / n/a) Comments

Citywide Services All actions will be October Books to Go: if funding agreed, set up dedicated staff team Manager / Area transferred to the 2011 Managers Equality Delivery Plan

Books to Go: establish links with Community Guardians and Action complete Head of Valuing Older People Citywide Forum and investigate June 2011 Operations volunteering options

Books to Go: if funding agreed, work with Community January Citywide Services Guardians and Valuing Older People Citywide Forum to 2012 Manager establish service

Develop and launch marketing campaign to advise mobile library street stop customers of alternative static library August 2011 Area Managers provision in their locality

January Citywide Services Replace mobile library visits to sheltered accommodation with deposit collections where practicable, working with the 2012 Manager

78 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Is this action identified in your business plan Target date and / or Equality for Responsible Delivery Plan Actions Identified from EIA completion Officer (Yes / No / n/a) Comments Directorate of Adults

Agree and establish a support mechanism for blind and partially October Citywide Services sighted postal cassette users unable to move to e books 2011 Manager

Negotiate with the British Wireless for the Blind Fund to return October Citywide Services delivery of Roberts equipment service to them or incorporate 2011 Manager into Books to Go if funding agreed

Develop Community Book Exchange Model May 2011 Neil MacInnes

Barlow Moor: retain existing opening hours and venue until July 2012. Continue to work with Regeneration and local community September groups to explore any development opportunities for alternative Neil MacInnes 2011 library provision and to work with the local community to consider community-led provision.

This will require Investigate local needs and identify potential locations of September support from the deposit collections and block loans, with in depth needs Area Managers 2011 Corporate PPRI analysis being undertaken for each locality Centre

Work in partnership with the VOP Forum and Board to address Citywide Services specific concerns raised in their outline response, and to September Manager / Area investigate suggestions made to improve services to older 2011 Managers people

79 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Is this action identified in your business plan Target date and / or Equality for Responsible Delivery Plan Actions Identified from EIA completion Officer (Yes / No / n/a) Comments

Meet local councillors and potential community September groups/volunteers wanting to deliver a book exchange to assist Area Managers 2011 set up

Reading Voyager Children’s Mobile Library: arrange deposit collections at the Children’s Hospice, Looked After Children’s September Citywide Services

Homes and Traveller’s Sites and block loans for the two special 2011 Manager schools and other schools served by this mobile library

Set up training for library staff in disability awareness, especially October Citywide Services of blind and partially sighted users 2011 Manager

Ensure that access software is available on additional PCs in July 2011 Andrew Jackson City Library and other libraries across the city

Set up training for some library staff in using specialist software October Citywide Services and equipment used by people with disabilities, especially blind 2011 Manager and partially sighted users

Sign up to the joint Share the Vision and Society of Chief Action complete Librarians national pledge Six Steps to Library Services for May 2011 Wendy Broadbent Blind and Partially Sighted People

Investigate future models for delivery of service to blind and January Citywide Services partially sighted customers 2012 Manager

80 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Is this action identified in your business plan Target date and / or Equality for Responsible Delivery Plan Actions Identified from EIA completion Officer (Yes / No / n/a) Comments

Work with schools near libraries proposed for closure to September Area Managers promote block loan service and possibility of deposit collections 2011

Establish homework support reference collections in all libraries Homework and prepare information pack for staff to assist in helping July 2011 Support Manager children with homework enquiries

September Citywide Services Investigate alternative funding sources for homework support 2011 Manager

Citywide Services Promote new opening hours and service provided by the virtual August 2011 Manager / Area 24/7 library Managers

81 Manchester City Council Appendix 7 – Item 5 Communities and Neighbourhoods Overview and Scrutiny Committee 22 July 2011

Section 4 – Head of Service and Director level sign off

Name: Neil MacInnes Date: 08/07/2011

Directorate: Neighbourhood Services Signature:

Name: Vicky Rosin Date: 08/07/2011

Directorate: Neighbourhood Services Signature:

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