Libraries Topic Group

Agenda Item no: LIBRARIES TOPIC GROUP FRIDAY 14 DECEMBER 2012 AT 10:00AM 4(B)

Background Report

1. Introduction This Scrutiny is intended to provide Members with an understanding of the changes made to library opening hours and mobile services as part of the Libraries Transformation in 2011, and the effects of these changes on library service users. In particular, the Scrutiny will address the following questions:  What has been the impact of the reduction in library opening hours?  What has been the impact of the reduction in mobile library services?

2. Libraries Transformation 2.1 Transformation proposals for Libraries and Heritage Services were agreed by Cabinet on 31 January 2010 as part of the 'Council for the Future' Programme. (See http://www.hertsdirect.org/mm/15520666/15744560/item3cabinet310111.doc for the full Cabinet Paper).

2.2 Cabinet took the decision not to close any of Hertfordshire’s 46 community libraries, or to reduce the range and quality of services offered. Instead, it was agreed to reduce library opening hours and mobile library services, achieving the required budget savings through reductions in staffing.

2.3 The final proposals included:  Reduction of library opening hours by 30%, saving £1.4 million.  Reduction of mobile library vehicles from 13 to 7, saving £275,000.

2.4 Reduced library opening hours were implemented on 1 July 2011. Changes to mobile library services were phased in between April and September 2011.

3. Implementation of reduced opening hours 3.1 The criteria used in developing the proposals for revised opening hours included:  Feedback from previous opening hours consultations.  Library usage, based on annual statistics for year 2009/10.  Local factors, such as market days, public transport links and complementary hours in adjacent libraries.

3.2 Libraries were ranked into five categories, also taking account of their physical size and geographical location, and a standard pattern of opening hours was devised for each category of library which achieved the required savings. (See Appendix 2 for a list of opening hours changes for all libraries)

3.3 The result of applying these criteria across the County was that although the average reduction of opening hours was 30%, the reduction in individual libraries ranged from 17% to 46% (see Appendix 1a).

3.4 The result of prioritising afternoon and early evening opening during the week, and maintaining weekend opening hours was:  Earlier evening closing on weekdays (18:00 or 19:00 rather than 20:00).  Morning closures on some weekdays in all libraries (opening at 14:00).

- 1 - 4. Library usage since Transformation 4.1 Visits 4.1.1 Nationally visits to public libraries have fallen by 6.7% since 2007. In Hertfordshire, visits increased between 2007 and 2010, when opening hours were increased.

4.1.2 A direct comparison between the first year of reduced library opening hours (July 2011–June 2012) and the previous year (July 2010–June 2011) shows that library visits in the 46 community libraries have fallen by 20.93% since Transformation.

4.1.3 The number of library visits per open hour has increased by 13.57% over the same period, as library users have adjusted their visits around the new opening hours. (See Appendix 1b and 1c for a summary of library visits by individual library).

4.1.4 Given the variance in the reduction of opening hours, some libraries appear to have performed better than others (see Appendix 1f). In some cases, there is a clear explanation – Hertford Library lost 31% of opening hours, but visits fell by only 5.44%, probably due to the relocation of the library to a new building in January.

4.2 Issues (loans of books, talking books, DVDs and other library materials) 4.2.1 Nationally, public library issues have fallen by 6.4% since 2007. In Hertfordshire issues increased between 2007 and 2009, when opening hours were increased.

4.2.2 A direct comparison between the first year of reduced library opening hours (July 2011–June 2012) and the previous year (July 2010–June 2011) shows that issues in the 46 community libraries have fallen by 18.91% since Transformation.

4.2.3 The number of issues per open hour has increased by 16.5% over the same period, as library users have adjusted their visits around the new opening hours. (See Appendix 1d and 1e for a summary of issues by individual library).

4.3 Active Borrowers (individuals who have borrowed at least 1 item during the year) Nationally, the number of active borrowers has declined by around 7% since 2007. A direct comparison of the number of active borrowers in Hertfordshire in the years before and after the implementation of reduced opening hours shows a decline in the number of active borrowers by 11.7% since Transformation.

4.4 Virtual Library Visits The use of online library services has risen year on year since their launch in 2003, and rose by a further 9% in 2011/12. Online access was unaffected by the reduction in opening hours, which may indicate that some library customers, who are unable to visit the library so frequently are making more use of virtual services instead.

4.5 Wider Library Services 4.5.1 Hertfordshire libraries have continued to provide a wide range of services to customers. Regular activities, such as story times, were rescheduled as necessary around the new opening hours to ensure that there was no reduction in service.

4.5.2 The children’s Summer Reading Challenge illustrates how the immediate impact of Transformation might be mitigated through improved promotion and community engagement. In 2011 the Challenge took place immediately after the implementation of reduced library opening hours and participation rates fell by 13% from 14,354 to 12,441. In 2012, however, with an additional effort by library staff to promote the Challenge, the participation rate increased by 25.8% to 15,641, outstripping the figure achieved before opening hours were cut.

- 2 - 5. Equalities Impact Assessment 5.1 The Equalities Impact Assessment (EqIA) on reduced opening hours undertaken in August 2010 identified potentially negative effects on some client groups:  Older customers, and the parents and carers of pre-school children, who prefer to visit the library in the mornings.  School-age children, who are only able to visit the library in the afternoons.  People with learning disabilities or mental health problems, who may suffer disproportionately from changes in routine if opening hours are inconsistent.  People on low incomes, who may be disproportionately affected by reduced access to libraries – particularly those who rely on libraries for access to ICT. (See http://compass.hertscc.gov.uk/area/hcc/hcs/lclarea/publications/17700605/ for the full Equalities Impact Assessment).

5.2 Analysis of active borrower statistics by age category shows that the reduction in library use has been greatest among adults of working age (-15.1%). The decline in use by older people (-7.7%) and school age children (-7.1%), has been smaller, but there has been a slightly higher than average decline in use among pre-school children (-12.1%).

5.3 Analysis of active borrower statistics for people declaring disabilities shows that the reduction in library use since Transformation has been significantly less than that for the population as a whole (-4%), with the exception of people with learning disabilities, where the decline has been marginally higher than the average (-12%).

5.4 Analysis of library usage in the areas of greatest social deprivation indicates that the average fall in library visits has been 21%, whilst the average reduction in opening hours was 30.2%. This is exactly in line with the average across all libraries.

6. Customer Feedback 6.1 The Libraries Transformation proposals were informed by a public engagement exercise carried out in autumn 2010. Nearly 7,000 comments and four petitions were received. The proposed open/closed days at 15 libraries were adjusted as a result of local intelligence gathered during this exercise. However, no consistent message emerged from the feedback to change the overall pattern of the proposals. (See http://compass.hertscc.gov.uk/area/hcc/hcs/lclarea/publications/17700601/ for the full consultation report).

6.2 The Hertfordshire Libraries User Survey, carried out in May 2012 indicates a high level of satisfaction (over 90%) with library services in general, but a significantly lower level of satisfaction with opening hours (54%).

6.3 However, analysis of the 2,124 comments and complaints about opening hours received since July 2011 shows that there is no single consistent view on how they might be improved. The strongest message from the feedback is the desire for more morning and lunchtime opening hours, and some users would be prepared to accept more full day closures in order to achieve this.

- 3 - 7. Mobile Library Services 7.1 It was originally proposed that the Transformation savings for mobile library services should be achieved by discontinuing the ‘urban’ mobile service, and focussing the reduced service on customers in rural and isolated communities. The Equalities Impact Assessment (EqIA) on reductions to mobile services identified that the removal of the five urban mobiles would affect some of the most vulnerable and isolated customers in the County. (See http://compass.hertscc.gov.uk/area/hcc/hcs/lclarea/publications/17700603/ for the full Equalities Impact Assessment).

7.2 The public engagement exercise carried out in autumn 2010 attracted 608 responses from mobile library users (10.5% of active borrowers), and reflected strong demand for the retention of some ‘urban’ mobile stops.

7.3 The revised proposals agreed by Cabinet retained 27 of the ‘urban’ stops originally targeted for closure, but achieved the savings by reducing the frequency of stops from weekly to fortnightly or three weekly. All in all, 409 stops were retained, 50 were changed and 100 were discontinued.

7.4 An analysis of usage figures in the year since Transformation shows that the total number of visits to mobile libraries has fallen by 12,857 (37.4%), but visits per open hour have increased from 5 to 7 (45%). Similarly the number of issues has fallen by 31,910 (33.4%), but issues per open hour have risen from 13.4 to 20.7 (54.4%).

7.5 Customer feedback since Transformation indicates a high level of satisfaction with the services provided, and there have been very few complaints. However, there have been many specific requests for changes to stops and times, and a number of local adjustments have been made as a result. Routes are now reviewed quarterly to ensure that the service is flexible and responsive to customer needs.

8. Summary 8.1 The Libraries and Heritage Services Transformation has saved the County Council a total of £2.1 million in a full year.

8.2 Library usage has reduced significantly since Transformation. However, the percentage drop in usage is less than the reduction in opening hours, indicating that many library users have adjusted their patterns of use around the new hours.

8.3 Usage figures indicate some wide variations in the performance of comparable libraries. More detailed analysis is required here, as it may be that local adjustments in opening hours could improve the uptake of services in these communities.

8.4 The Health and Community Services Plan includes a target to increase the total number of library visits (physical and virtual) by 5% in 2012/13.

8.5 Reduced opening hours, particularly morning closures, remain unpopular with library users, but there is no consistent view on how they might be improved within the existing budget.

8.6 Mobile library routes and stops are now reviewed and monitored quarterly to ensure that the service is flexible and responsive to customer needs.