Report to: THE EXECUTIVE

Date: 12 October 2011

Report of: DIRECTOR OF ADULT AND Report No: COMMUNITY SERVICES

Contact Officer: Stephanie Crossley Tele No: 7204 Assistant Director, Culture and Community Services

Report Title: A new model for Bolton Library Service: consultation results and implementation of a new service model

Non Confidential: This report does not contain information which warrants its consideration in the absence of the press or members of the public

Recommendations: 1 The Executive is asked to confirm the methodology used by the Council, notwithstanding the point raised at 9.3.2., because it has used a range of factors, including:

This review is about ‘comprehensive and efficient’ for the whole of Bolton; Deprivation is recognised in the viability ranking within the existing methodology; Available evidence in relation to the 1964 Act highlights accessibility as being critical to a duty of ‘comprehensive and efficient’ (the Wirral judgement).

As a result of the above, the proposed reconfigured network, including the proposed mitigation, is, the Council believes, the ‘best fit’ for the Council’s statutory duties.

2 The Executive is asked to agree the adoption of Option 1 as the model for the new library network.

3 The Executive is asked to agree to the start of work to decommission the libraries to be closed and the development of neighbourhood collections and other mitigating services.

Decision:

Signed: Leader / Executive Member Monitoring Officer

Date: SUMMARY OF REPORT: Under the 1964 Public Libraries and Museums Act the Council is obliged to provide a ‘comprehensive and efficient service’ for all individuals who live, work or study within the borough and who are ‘desirous’ of using the service. Bolton Council currently delivers this through 15 public library service points across the borough. The Library Review began in February 2011 with two periods of public and stakeholder consultation over a 19 week period in all: the first on three propositions, the second on the Council’s preferred option (1) for the future network as detailed in the Executive Report of 28th July 2011.

The second consultation was a repeat of the open consultation methodology used from February to May with a random sample survey of residents within the borough of Bolton. This quantitative approach was used so that the results could be generalised to the population using confidence intervals, so that we could say that we are certain (within defined and proven parameters) that the results are representative of the whole borough of Bolton. This report gives a detailed analysis of the results of all consultation, and the Council’s response and proposed mitigation to minimise impact. The Council acknowledges there will be some adverse impact arising from the adoption of the recommendations.

The decision to review the library service in Bolton has generated strong opposition in some quarters. Although this is understandable and is not the course of action the Council would choose to take if controllable resources were not reducing by 25%, the proposal is nevertheless reasonable in this context. This is on the basis that the proposal is compatible with the 1964 Public Libraries and Museums Act and in the context of the Council’s own philosophy for delivering savings, especially prioritising services for the most vulnerable children and adults. Although, understandably, those who oppose library closures have garnered considerable publicity and support, especially from those most affected, it is clearly the case from the statistically reliable random sample that around two-thirds of the Borough’s population would support the Council’s proposal. Whilst recognising the considerable vocal opposition and admirable democratic protest, the Council should feel confident that the majority of the Borough’s residents acknowledge the appropriateness of the proposals.

In assessing the overall position, the feedback from consultation and the concerns expressed, it is fair to identify the following as the crucial issues:

There are concerns about the ‘community impact’ of the loss of the library building There is a detriment of distance travelled for some people if a library is closed There are concerns that this will impact on education and learning, especially for children The needs of elderly and disabled people are key and they may find the extra distance or cost problematic.

The Council understands these concerns but believes through a range of measures that the impact can be mitigated. Obviously the loss of five libraries in their current form is not ideal, but in the context of the financial position the Council believes that the mitigation measures make this tolerable.

In conclusion, the Council feels that Option 1 is a proposal that, on balance, meets both the spirit and letter of the 1964 Public Libraries Act. It is a proposal that does result in some detriment, especially in respect of increased distance travelled for some users. The Council is confident, therefore, that the extensive mitigation measures and quality of the remaining service still represents a very good service for the Borough as a whole, given the overall financial constraints and the policy objective of protecting the most vulnerable children and adults and achieving a greater proportion of savings from universal services. The adoption of Option 1 gives us, we believe, a basis for continuing to deliver quality services as well as leaving the service ready to grow again when the economic conditions improve. This review must also deliver a platform for digital content, to continue and grow to meet the government and local agendas for online services and the huge impact that the internet will continue to exert in information delivery.

The Council has responded to public concern and responses to the consultation, specifically about the library as the hub of a community, by retaining Heaton Library building to operate as a joint neighbourhood collection and Children’s Centre, and in Astley Bridge, in responding to Members’ concerns about deprivation, by recommending that Oldhams Children’s Centre hosts the neighbourhood collection for that area.

Finally, the Council has tried to incorporate as much as it can from the learning in the Future Libraries Programme Phase 1 report, published in August. The report’s emphasis on strategic, political and managerial leadership around the change process has been demonstrated in Bolton by the commitment of both the Leader of the Council and the Chief Executive to ensuring the process of arriving at options has been led and managed at the highest level.

BACKGROUND DOCUMENTS:

Executive Members for Adult Services and HR, OD and Diversity report 23 February 2011: Review of Bolton Library Network and Executive Report 28 July 2011 A review of public library provision in Bolton Future Libraries: change, options and how to get there: learning from the Future Libraries Programme Phase 1; MLA, August 2011

CONTENTS

Page No.

1 Background and Context 1

2 Background to the service 3

3 Developing Service Options: Summary of the first consultation 4

4 The 3 options presented in the July Report 4

5 Stage 2 consultation findings and summary 5

6 Responses to the ‘open’ survey 15

7 Summary of consultation response (from questionnaires) 23

8 Consultation responses in addition to the questionnaire 24

9 Issues raised regarding the consultation process 25

10 Distance 26

11 Alternatives to option 1 emerging from the consultation 28

12 Mitigation 28

13 Overall analysis and conclusions 30

14 Financial Implications 33

15 HR Implications 33

16 Equality Impact Assessment 33

17 Recommendations 34

1 BACKGROUND AND CONTEXT

1.1 In a report to the Executive of 24 January 2011 on Budget 2011/12 and 2012/13 – Revenue Support Grant Settlement, the Director of Corporate Resources highlighted the current budget gap for the Council over the next 2 years of over £63M in savings. In addition a further £36m of savings has been identified across 13/14 and 14/15. This is significantly higher than any savings target that the Council has faced previously and will need to be delivered within a short space of time. However, the Council has formally agreed an approach to savings and spending priorities which is based upon the Council’s overall priorities and objectives alongside the legal requirement to set a balanced budget and meet statutory duties. This is laid out in more detail in the Director of Corporate Resources’ report of the 22nd November 2010, at Appendix A. This report acknowledges the importance of mitigation with respect to the impact of the savings required on local people and services. Within this budgetary process the Library Service cannot be exempt from the need to find savings. A summary of the cross Council savings for 11/12 and 12/13 sets the context and can be seen at Appendix B.

1.2 As a result of this budget pressure, work planned for a comprehensive review of the library network and its sustainability was brought forward, with a view, depending on the outcome of consultation, of delivering savings within 11/12 by redesigning the library network, potentially rationalising service points. The aim of the review has been to look at how the reduced budget can be used to deliver a service which is still viable, and sustainable, continuing the scope and quality of delivery outlined below and the service’s ability to deliver the council’s key aims of narrowing the gap and promoting economic prosperity within Bolton.

1.3 Under the 1964 Public Libraries and Museums Act the Council is obliged to provide a ‘comprehensive and efficient service’ for all individuals who live, work or study within the borough and who are ‘desirous’ of using the service. Bolton Council currently delivers this through 15 public library service points across the borough. The service offers a comprehensive range of services over and above the provision of free books and information specified in the ‘64 Act. Emphasis has been placed on services to disabled, vulnerable and older residents and, at the other end of the spectrum, support to families, the under 5s and improving literacy and attainment. The proposed options seek to maintain and in some areas, enhance this offer and this was explored in the July 28th Executive Report Appendix C.

1.4 The Libraries, Museums and Archives Service has already delivered £530k of savings for 2011/12 by merging and cutting duplication in staff roles. That reorganisation focused on management and professional roles in order to minimise the impact on frontline service delivery. Staff reductions in management and specialist areas have been mitigated by a range of measures including: staff working across libraries, museums and archives; a redesign of reference and enquiry services (now Ask Bolton Libraries); introducing an automated stock management system; and a redesign of the library and museum offer to schools. Again, this reorganisation has been managed in such a way as to minimise any effect on front line service delivery. In addition, £200k has been taken from the Library Service Materials Fund over 11/12 and 12/13. Prior to 11/12 the service has consistently reviewed its processes; this has resulted in significant savings and improvements in delivery. Many of these savings have come about through a sharing and partnership approach to review and delivery. More details of these initiatives can be found in

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Appendix D, ‘Shared Services: the Bolton perspective’ but in its report on the Future Libraries Programme (FLP) the Museums, Libraries and Archives Council (MLA) acknowledges that shared services “should be undertaken as the last stage of an efficiencies programme because of the complications in aligning all parties to the same position to benefit from the consequential savings”.

1.5 The library review commenced in late February and will conclude in mid-October with a final recommendation to the Executive. This has been a staged process: the first stage commenced on 23rd February 2011 when the Executive Members for Adult Services and HR, OD and Diversity agreed: To the start of consultation with staff, customers, stakeholders/interested groups and partners in service delivery, on the future configuration of the library service in Bolton in line with the council’s statutory responsibility under the Public Libraries and Museums Act 1964 (PLA 1964) and the available budget; To approve the consultation document, attached to that report. Three propositions formed the basis for the public consultation: - A review of the current library service network using the objective criteria detailed; - The retention of the central library as the hub of the network; - The retention of the library in the constituent towns of the borough, that is: Blackrod, Farnworth, Horwich, Little Lever and Westhoughton.

1.6 The second stage of the process was taken at the meeting of 28th July 2011 when the Executive considered a report designed to deliver a viable and sustainable library service which is still ‘comprehensive and efficient’ within the constraints of a smaller budget. The approach described was three fold: Analysis of over 3,000 consultation responses received from our users and stakeholders, Data mapping using existing data sources e.g. our Library Management System (Talis), Public Library User Survey (PLUS) and CIPFA comparative data; A detailed needs analysis, based on a Community Profile for each existing library, using Lower Super Output data and based on the objective criteria below: o Population and household characteristics; o Deprivation indicators; o Poor health and disability; o Economic activity and income; o Qualifications; o Accessibility by car/public transport including car ownership; o Proximity of other libraries; o Internet access at home; o Extent of use of other libraries; o Cost per transaction; o Condition of building. The FLP cited above recommends: “(a) strategic needs analysis that drives changes in provision”

1.7 The information from the individual library data sheets and the needs analysis Community Profiles were brought together in a viability ranking contained at Appendix 4 of the 28th July report. That report is attached at Appendix C.

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1.8 The Executive adopted Option 1 from the 28th July report as its preferred model to provide the most compliant and sustainable service for the borough within the available budget.

1.9 The Council believes this to be a robust process, compliant with the council’s responsibilities under the 1964 Public Libraries and Museums Act, and Equalities and Disabilities legislation.

1.10 As a result of the adoption of Option 1 the Executive agreed to a further period of consultation running from 29 July to 16 September 2011 allowing users, stakeholders, including trades’ unions, Members and other interested parties, the opportunity to respond to the Executive’s preferred option for a new model. It was agreed that a final report (this report) will be put before the Executive on the 12th of October 2011 seeking approval for final implementation. This is the third stage of the process.

2.0 BACKGROUND TO THE SERVICE

2.1 The library network currently comprises 15 libraries with a budget of £2.9m (after the efficiencies for 11/12). The development of the network has been historical and this has led to a geographical imbalance with a preponderance of service points in the north and centre of the Borough.

Key performance indicators: There are 52 FTE staff at library/museum assistant level and 15 FTE at library manager level Annual opening hours across the network are 29,975 Total book stock is 345,436 Annual visits are 1,383,681 Satisfaction levels are 93%, the 5th highest in our CIPFA family group 396,000 free ICT hours are delivered annually We have the 2nd highest level of public PCs in our CIPFA family group 327,220 information enquiries were answered between April 10 and March 11 The service supports 234 housebound and disabled users through its Library Link service 1,766 children were involved in last year’s Summer Reading scheme supported by 53 young volunteers 54,628 items are on loan to schools through the specialist Schools’ Library Service.

2.2 The challenge facing the service is to continue to deliver a quality service to the people of Bolton with a reduced budget and to create a network which is sustainable to 2014/15 and beyond.

2.3 The 1964 Public Libraries and Museums Act is still in force but the landscape within which it operates has been completely transformed by the rapid developments in electronic media. We read, find out information, contribute to, publish and share content in a way that could never have been envisaged in the early 1960s when the Act was drafted. The Library Service has to be able to react to this shift, not least in the way we offer a route into electronic content, especially to those who have limited or no access to the internet. It is essential that we can still offer state of the art electronic resources. Detailed

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in Appendix E is how Bolton Libraries contributes to closing this digital divide and how we exploit the new media.

2.4 Bolton’s Library Service has been judged as 4* in the last available inspection by the Audit Commission. The Council is striving to maintain as good a service as it can, given the need to operate with a reduced budget. The adoption of Option 1 gives us, we believe, a basis for continuing to deliver quality services as well as leaving the service ready to grow again when the economic conditions improve. This review must also deliver a platform for digital content, to continue and grow to meet the government and local agendas for online services and the huge impact that the internet will continue to exert in information delivery. As the FLP report says: “The digital revolution presents a huge opportunity for library services to broaden their appeal and improve doing what they do best.”

3.0 DEVELOPING SERVICE OPTIONS: SUMMARY OF THE FIRST CONSULTATION EXERCISE

3.1 A total of 3,284 responses were received via a questionnaire which sought to capture information from members of the public, staff and partner organisations as to current and future needs. It also asked for other suggestions as to how money could be saved to sustain the network given the necessity to make savings.

3.2 In addition to the consultation responses, other data was also analysed, including; library usage figures, population and household characteristics, accessibility by car or public transport and the condition of the building. Based on this data each library was ranked and the scores have been used, along with the consultation responses, to inform the options.

3.3 The results of the consultation and detailed proposals are in the report to the Executive of 28 July 2011 A review of public library provision in Bolton at Appendix C.

4.0 THE 3 OPTIONS PRESENTED IN THE JULY REPORT

4.1 Option 1: This option reduces staff costs by £300,000 or 12.85 full time equivalent posts, and reduces building costs by £107,000. The total saving would be £407,000. The proposed new network would include 10 libraries instead of the current 15. Central library would be retained as the hub of the network with increased opening hours to 65 hours per week including Sundays. Farnworth, Little Lever, Horwich, Harwood and Westhoughton would become the five key community libraries for the borough, offering 46 hours as standard opening per week and being the first point of contact for wider council services. Breightmet and High Street libraries are proposed to open 40 hours per week, with the potential to develop health and wellbeing and digital facilities. Blackrod and Bromley Cross libraries are proposed to open for 24 hours per week but will have full access to services via Central Library. Option 1 will give similar or potentially greater access to ICT when provision through partnership working is included. A new neighbourhood collections service is proposed in areas where libraries are closing. The service would be located in a partner facility, providing a book collection and a link through to the wider service. Overall reduction of 145 opening hours per week across the 5 closures and including where the Council has added hours e.g. Breightmet and Central. This

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results in a 26% reduction in opening hours across the network, but does not include any extra hours which will be provided by the neighbourhood collections.

4.2 Option 2: This option reduces staff costs by £405,140 or 18.76 full time equivalent posts. There would be no savings from buildings as all existing libraries remain. All library opening hours would be cut by up to 38% (average of 33%) The inclusion of Central Library in this option would impact on the ability to operate the museum, aquarium and the Family History Centre at the current levels. The reduction in hours will have an impact upon free computing services for job seeking and information as well as meeting and community spaces. Where buildings are shared, this will impact on other partner services. The council will still have the liability for 15 buildings and associated costs plus the repairs and maintenance of libraries which are potentially closed for half their hours. Overall reduction of 188.75 opening hours per week across the whole borough.

4.3 Option 3: This option reduces staff costs by £418,986 or 19.11 full time equivalent posts. There would be no savings from buildings as all libraries remain. This option proposes cutting all library opening hours except the Central Library by up to 52% (average 48%) To achieve comparable savings and to maintain current opening hours in the remaining network, the same issues as in Option 2 apply. A greater burden would fall on the community. Overall reduction of 253 opening hours per week across the whole borough.

The effect of Options 2 and 3 is seen at Table B in the July report at Appendix C.

4.4 The Council’s preferred option

Option 1 was selected as the council’s preferred option because it would enable the current quality of service to be maintained, enhancements to be made to the service and allow the savings to be made from the cost of buildings as well as a reduction in staff. Options 2 and 3 are not the Council’s preferred option because these will result in a greater loss of opening hours and staff, and would have a greater impact on the overall quality of service. The Council believes that options 2 and 3 are not as “comprehensive” or “efficient” in terms of the 1964 Act and do not achieve Best Value.

5.0 STAGE 2 CONSULTATION FINDINGS AND SUMMARY

5.1 Stage 2 of the consultation ran from 29 July to 16 September 2011 and was in two parts:

A postal survey was sent to a randomly selected sample of residents within the borough of Bolton. This quantitative approach was used so that the results could be generalised to the population using confidence intervals, so that we could say that we are certain (within defined and proven parameters) that the results are representative of the whole borough of Bolton.

This meant that only those addresses selected randomly had the opportunity to take part in the survey, so the survey form was also made available on-line (paper version on request) so that anyone with an interest could have their say on the proposals. The results of this ‘open’ consultation are detailed below.

5.2 The questionnaire gave a brief description of the three options and then explained why Option 1 was the council’s preferred option. The remaining questions asked for people’s

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views on the council’s preferred option, rather than the three options themselves. A copy of the questionnaire can be found at Appendix F.

5.3 Methodology

5.3.1 Random sample postal survey

With approximately 121,000 households in the borough, it was neither feasible nor necessary to survey every household. Sampling theory, providing certain rules are adhered to, allows for the collection of data from a defined sample of the population, and for the results to be generalised to that population, without the need to survey everybody in it. This must be undertaken using a form of probability sampling on a random sample of that population.

The Local Land and Property Gazetteer (LLPG) was used as the sampling frame. The LLPG had a number of advantages over other possible sampling frames including: It was up to date due to the 2011 census We had the ability to identify which properties were business / commercial and remove them. There were no costs attached to its use as the council are owners of it

5.3.2 To ensure an even distribution of addresses across the whole of the borough it was necessary to stratify the sample. The population to be surveyed (the borough of Bolton) was divided into wards (strata). Within these defined strata, random selection took place. The number of households selected in each stratum was proportionate to the number of households within each ward in the borough. For example: households in Astley Bridge represent 5.1% of all households within the borough – and therefore represented 5.1% of the survey sample. Just over 7,000 questionnaires were issued.

5.3.3 The representative survey is a household survey, so whichever member of the household completes it, does so on behalf of the whole household.

5.4 Response

A total of 763 completed questionnaires were received, an overall response rate of 11%. This response gives us a confidence interval (also known as a margin of error) of +/- 3.5% at borough level. This means that we can be 95% certain that the true results (had everyone in the borough completed a survey form) would be + or – 3.5% of the survey results. Therefore if 50% of respondents agree with Option 1, the true answer for the whole of the borough would be between 46.5% and 53.5%.

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5.5 Weighting

5.5.1 As we have used a random sampling method, returned data can be weighted by ward so that the results remain representative of the whole borough. This accounts for residents in some wards responding more than others. The table below shows the un-weighted and weighted percentages.

Ward % survey returns Weighted % (as (un-weighted) per 2001 census) Astley Bridge 6.9% 5.1% Bradshaw 8.1% 4.5% Breightmet 4.7% 5.3% Bromley Cross 7.2% 5.1% Crompton 3.7% 5.1% Farnworth 3.8% 5.9% Great Lever 3.3% 4.7% Halliwell 3.8% 5.2% Harper Green 2.9% 4.8% Heaton and Lostock 8.7% 4.8% Horwich and Blackrod 5.6% 4.6% Horwich North East 5.4% 5.0% Hulton 4.2% 5.1% Kearsley 3.3% 5.1% Little Lever and Darcy Lever 5.5% 4.6% Rumworth 2.6% 5.2% Smithills 6.6% 5.4% Tonge with the Haulgh 4.1% 5.0% Westhoughton North and Chew Moor 4.5% 4.7% Westhoughton South 5.2% 4.7% Total 100% 100%

5.5.2 Returned data can also be weighted to reflect the demographics of residents in Bolton should any groups be over or under represented e.g. age, gender, ethnicity. The table below shows un-weighted and weighted percentages.

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5.5.3 Respondent type

Demographics % survey returns Weighted % (as per 2001 (un-weighted) census and 2009/2010 ONS Base: 763 mid-year estimates) Gender Male 36% 49% Female 64% 51%

Age 19-64 64% 79% 65+ 36% 21%

Ethnicity White British & other white 92% 89% Other 8% 11%

Disability Long term limiting illness 30% 16% No disability 70% 84%

Caring status No 75% 89% Yes 1-19 hours a week 15% 7% Yes 20-49 hours 4% 1% Yes 50 hours or more 6% 2%

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5.6 Analysing the responses

5.6.1 Library use

Respondents were asked to state if they had used any of the borough libraries within the last 12 months. The weighted results are given in the table below.

Library % of respondents who have used this library in last 12 months (Base: 763) Bolton Central Library 56% Astley Bridge 7% Blackrod 2% Breightmet 6% Bromley Cross 5% Castle Hill 3% Farnworth 12% Harwood 6% Heaton 6% Highfield library at the Orchards 2% High Street 4% Horwich 6% Little Lever 5% Oxford Grove 4% Westhoughton 10% Library Link (housebound services) 0% None / Not stated 10%

5.6.2 The Council’s preferred option

Respondents were given information on all three options and then told that the Executive had agreed to take forward Option 1 as the preferred option with the reasons for this decision explained. Respondents were then asked how strongly they agreed or disagreed with Option 1 as the preferred option.

How strongly do you agree or disagree with option 1 as the preferred option? (Base: 740) Strongly Agree 32% Agree 33% Disagree 8% Strongly Disagree 24% Don’t know 4% * 23 people chose not to answer this question

5.6.3 A total of 65% agreed with the council’s proposal to take forward Option 1 as the preferred option. With a confidence interval of +/-3.5% this means that we can by 95% certain that the true results (had everyone in the borough completed a survey form) would be between 61.5% and 68.5%. Just over a quarter (32%) disagreed with Option 1 as the preferred option and 4% said they didn’t know.

5.6.4 Demographics have not influenced respondents’ opinions e.g. there is no statistically significant differences between the way males and females answered this question, no difference between different ages, ethnic group, disability or caring status. There is however, a significant difference depending on whether the respondent had used one or

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more of the five libraries proposed for closure in the last 12 months. Of those respondents who hadn’t used any of the libraries proposed for closure 76% agreed with Option 1 as the preferred option. This compares to 17% of those who had used one of the five libraries. The table below shows the comparisons between demographics and use of the five affected libraries.

Demographic % agree with Option 1 as the preferred option Gender Male 63% Female 67%

Age 19-64 65% 65+ 64%

Ethnicity White British & other white 64% Other 69%

Disability Long term limiting illness 65% No disability 65%

Caring status No 66% Yes 1-19 hours a week 63% Yes 20-49 hours 69% Yes 50 hours or more 64%

Visited one of 5 libraries proposed for closure in the last 12 months Yes 17%* No 76%* * indicates a statistically significant difference

5.6.5 Those agreeing with the Council’s preferred option

Over two thirds of respondents (65%) agreed with Option 1 as the Council’s preferred option. Of these, 5% had used one or more of the libraries proposed for closure in the last twelve months and 95% had not.

The reasons given by those agreeing with Option 1 are listed in the table below: Reason Percent Fewer staff cuts with this option 23% No response / left blank 22% Retains / greater access to the libraries 17% Central library maintained / the focus / most important 15% Prefer this option / best option 13% Will have the least reduction in opening hours for my library 9% The extra opening hours are good / better 7% More cost effective 6% Better service overall 5%

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5.6.6 Those agreeing with Option 1 also made the following comments about Option 2:

Comments Percent No response / left blank 40% Service overall is affected (esp. hours) by this option 27% There will be more staff cuts with this option 18% Central library has to be maintained / the focus 9% Prefer option 1 7% Not as cost effective (building still there etc.) 5%

5.6.7 Those agreeing with Option 1 also made the following comments about Option 3:

Comments Percent No response / left blank 46% Service overall is affected (esp. hours) by this option 28% More staff cuts with this option 21% Prefer option 1 7% Not as cost effective (building still there etc.) 4% Other responses 2% Central library has to be maintained / the focus 1%

5.6.8 Those disagreeing with the Council’s preferred option

A total of 32% disagreed with the council’s proposal to take forward Option 1 as the preferred option. Of those disagreeing 48% had used one or more of the five libraries proposed for closure in the last twelve months. The reasons given for those disagreeing with Option 1 are given in the table below:

Reason Percent Restricts access to libraries (transport, cost & hours) 46% It will affect the young - learning / education / computers 23% Keep all libraries open / remain as is 22% It will affect the old – social, accessibility, cost 14% No response / left blank 10% It will affect the community 9% It will affect those who are disabled / ill health / carers 6% It will affect those on low income 6% Central library should also have to make cuts / savings 3% Prefer Option 2 3% Share cuts (in hours) across all branches 2% Prefer Option 3 1%

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5.6.9 Those disagreeing with Option 1 also made the following comments about Option 2:

Comments Percent More / all libraries will be kept open with this option 51% No response / left blank 27% Prefer option 2 17% Central library has to be maintained / the focus 4% Other response 4% Central library should also have to make cuts / savings 1% Prefer option 3 1% Remain as is 1% Alternative cost savings could be made 1%

5.6.10 Those disagreeing with Option 1 also made the following comments about Option 3:

Comments Percent No response / left blank 40% More / all libraries will be kept open with this option 18% Service overall affected (hours etc…) 18% Prefer option 2 12% More staff cuts with this option 2% Central library should also have cuts 2% It will affect the community 2% It will affect those on low income 2% Central library to be maintained / be the focus / most important 1% It will affect the young - learning / education / computers 1% Remain as is 1% Alternative cost savings could be made 1%

5.6.11 Alternative suggestions

The respondents were asked to suggest anything else to make the required savings. The responses are detailed in the table below.

Comment Percent No response / left blank 84% Other * 5% Use volunteers 3% Use building for other use / share premises 3% Cut other council costs 3% Review current opening hours & usage to propose new opening hours 3% Have more automated services 1% Charge for reserving / borrowing books or equipment 1% * Other comments include: charging for membership, merging with other services e.g. children’s or schools, mobile libraries and comments about options 2 and 3 being viable

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5.7 Neighbourhood collections

5.7.1 In order to lessen the impact of proposed closures under Option 1, small neighbourhood collections are proposed. Respondents were asked to say whether they thought the following could be possible venues for neighbourhood collections:

Astley Bridge – Oldham Estate UCAN Astley Bridge – Local school Castle Hill – Tonge Moor UCAN Highfield – within the Orchards Centre Oxford Grove – Halliwell UCAN Heaton – to be decided

5.7.2 The chart below shows the response to each suggested venue. Yes No

Astley Bridge - Oldhams Estate 65% 35% UCAN

Astley Bridge - local school 70% 30%

Castle Hill - Tonge 75% 25% Moor UCAN

Highfield - within 74% 26% Orchards Centre

Oxford Grove - Halliwell UCAN 75% 25%

5.7.3 The following were suggested as alternative locations for neighbourhood collections:

Schools (22 suggestions) Supermarkets (12 suggestions) Community centres (8 suggestions) Churches / Church halls (8 suggestions) Health centres / GPs (8 suggestions) Mobile Site / House-bound visits (6 suggestions) Existing library (5 suggestions) Other council premises (3 suggestions) Other local shops / post offices (3 suggestions)

5.8 Impact of Option 1

5.8.1 Respondents were asked if Option 1 proposals to close the five libraries were approved, how they would access library services in the future. Of those respondents who in the last 12 months had used one or more of the five libraries proposed to close: 49% said they would use another library instead 12% said they would make use of a neighbourhood collection 38% chose not to answer the question

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5.8.2 The 12% who said they would make use of a neighbourhood collection said they would use the following aspects: 46% would use the computers 32% would borrow books from the on-site neighbourhood collections 16% would request books from neighbourhood collections to collect from other Bolton libraries 10% would access other services via “Ask Bolton Libraries” the central library enquiry service

5.8.3 Concerns raised by people who had used one or more of the five libraries proposed for closure in the last 12 months included the following: Travel costs and inconvenience to remaining libraries Will affect the education / literacy levels of children Libraries chosen for closure are on one side of the town Local libraries have a vital part to play in the community Not everyone can / or wants to come into the town centre Loss of activities / meeting venues It will particularly affect the elderly, disabled and those with young children Closing libraries in areas that are deprived Once lost can never be re-opened Used by schools Increase number of people travelling by car – bad for environment Lovely building (Astley Bridge) - architecture etc… shame for it to go.

The comments above have not been categorised and displayed as percentages because the numbers are relatively small.

5.8.4 The table below highlights the number of people who solely use one of the five libraries (i.e. they use this library and no other library), and what they would do if this library closed.

Library Number of Of these, how How many Didn’t respondents many would would use a respond to who just use use another neighbourhood the this library library? collection? question Astley Bridge 11 4 1 7 Castle Hill 8 3 2 3 Heaton 17 5 4 9 Highfield at the Orchards 5 3 1 2 Oxford Grove 7 1 0 6

5.8.5 The concerns of these people who just used one of the libraries that were closing included the following:

Communities are being deprived of long established facilities. Centralising facilities makes it very inconvenient for elderly, disabled and children (many walk) The library is the hub of the community: “emotional tug” Making a deprived area more deprived Education will suffer Not everyone likes going into the town centre Accessibility issues – parking, transport, cost Local libraries have a unique, friendly feel / central library big and impersonal

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Libraries chosen for closure are on one side of town

6.0 RESPONSES TO THE ‘OPEN’ SURVEY

6.1 So that everyone with an interest could have their say the questionnaire was made available via a range of channels:

Online via the council’s website By email to all library users for whom an email address was held By email to stakeholders; including community and voluntary groups, local businesses and partners such as the health and higher education sectors By email to representatives of young people including schools, children’s centres and colleges. Online on computers at every library or as a hard copy to be completed and returned freepost.

6.2 Residents were invited to take part in the consultation through an article in the Bolton News and via the council’s website, where it was featured as a campaign on the home page to ensure maximum prominence. Editorial (front page and middle page spread) was also included in the autumn edition of Bolton Scene, which is distributed to every household in Bolton, and additional promotion was made via Bolton Council’s twitter- feed. The consultation received further publicity via national and local interest groups e.g. Save Bolton Libraries and regional media.

6.3 There was no age restriction to the survey so anyone with an interest could take part.

6.4 Survey responses have been received in three different ways:

on-line surveys = 938 completed returns paper surveys (mainly given out at libraries) = 601 completed returns (The above two surveys have been combined to make 1539 returns) Save Bolton Library surveys (council questionnaire) distributed by the Save Bolton Libraries campaigners = an estimated 344 completed returns

6.5 The results from the Save Bolton Library surveys are reported separately below as it is proven in research that respondents will give socially desirable answers to questions when in a face to face situation:

“A salient issue in online survey research is the removal of an interviewer. This is particularly relevant when dealing with sensitive topics - when the lack of interviewer presence can remove response bias. Much research has demonstrated that surveys administered online [or self-completion on paper], without an interviewer being present, are characterised by higher levels of self-disclosure (Weisband and Kiesler 1996), an increased willingness to answer sensitive questions (Tourangeau 2004) and reductions in socially desirable responding (Frick et al.2001; Joinson 1999). Furthermore, survey methodologies that reduce the level of question administration by human interviewers [e.g. self-completion either on-line or postal] also increase responses to sensitive personal questions and yield more honest, candid answers” Ipsos MORI 2007.

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6.6 Results of open surveys

6.6.1 The chart below shows demographics of respondents

Demographics of respondents Save Bolton Open survey Libraries survey Base: 1539 Base: 344 Gender % % Male 37% 41% Female 63% 59%

Age 18 and under 4% 12% 19-64 69% 74% 65+ 27% 14%

Ethnicity White British and other white 93% 91% Other 7% 9%

Disability Long term limiting illness 22% 21% No disability 78% 80%

Caring status No 76% 80% Yes 1-19 hours a week 16% 13% Yes 20-49 hours 4% 2% Yes 50 hours or more 5% 5%

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6.6.2 Library use

Respondents were asked to state if they had used any of the borough libraries within the last 12 months. The results are given below.

Library % of respondents who have used this library in last 12 months Save Bolton Responses to Libraries representative Open survey survey survey (Base: 1539) (Base: 344) (Base:763) Bolton Central Library 53% 65% 56% Astley Bridge 16% 12% 7% Blackrod 6% 1% 2% Breightmet 7% 6% 6% Bromley Cross 9% 6% 5% Castle Hill 11% 6% 3% Farnworth 3% 16% 12% Harwood 19% 9% 6% Heaton 17% 10% 6% Highfield library at the Orchards 4% 3% 2% High Street 5% 6% 4% Horwich 11% 8% 6% Little Lever 4% 5% 5% Oxford Grove 12% 6% 4% Westhoughton 7% 4% 10% Library Link (housebound services) 0% 1% 0% None / Not stated 4% 8% 10%

6.6.3 It can be seen from a comparison with the representative survey results that respondents who have visited one or more of the five libraries proposed for closure in the last 12 months, are over-represented in both the open and Save Bolton Libraries survey results.

6.6.4 The Council’s preferred option

Respondents were given information on all three options and then told that the Executive had agreed to take forward Option 1 as the preferred option; the reasons for this decision were explained. Respondents were then asked how strongly they agreed or disagreed with Option 1 as the preferred option.

How strongly do you agree or disagree with Option 1 as the preferred option? Save Bolton Libraries survey Open survey (1521) (340) Strongly Agree 21% 2% Agree 23% 2% Disagree 12% 6% Strongly Disagree 43% 89% Don’t know 2% 0% * In the open survey 18 people chose not to answer the question. In the Save Bolton Libraries survey 4 people chose not to answer the question

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6.6.5 In the open survey, 44% agreed with the council’s proposal to take forward Option 1 as the preferred option, 55% disagreed, and 2% said they didn’t know. In the Save Bolton Libraries survey 4% agreed with Option 1 as the preferred option and 95% disagreed.

6.6.6 Reasons given by those agreeing with Option 1 are listed in the table below:

Reason Percent No response / left blank 35% Fewer staff cuts with this option 15% Retains / greater access to the libraries 14% Prefer option 1 10% Central library has to be maintained / the focus 9% Extra hours are good / better 8% Better service overall 6% More cost effective 6% Will have the least reduction in opening hours 6% It will affect me / my circumstances 6%

6.6.7 Those agreeing with Option 1 also made the following comments about Option 2:

Comments Percent No response left blank 51% Service overall is affected 18% More staff cuts with this option 11% Central library has to be maintained 8% Prefer option 1 6% Not as cost effective (building still there) 3% This option would affect me / my circumstances 2% This option would affect children / young people / learning / education 1%

6.6.8 Those agreeing with Option 1 also made the following comments about Option 3:

Comments Percent No response left blank 54% Service overall is affected 22% More staff cuts with this option 11% Prefer option 1 6% Not as cost effective (building still there) 4% This option would affect me / my circumstances 2%

6.6.9 Those disagreeing with the Council’s preferred option

In the open survey, a total of 55% disagreed with the council’s decision to take forward Option 1. Of those disagreeing 71% had used one or more of the five libraries proposed for closure, in the last 12 months. In the Save Bolton Library survey, 95% disagreed with the council’s decision to take forward Option 1. Of those disagreeing 32% currently used one or more of the five libraries proposed for closure.

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6.6.10 The reasons given for those disagreeing with Option 1 are given in the table below:

Reason Percent Restricts access to libraries (transport, cost & hours) 33% Affects the young - learning / education / computers 22% No response / left blank 21% Keep all libraries open / remain as is 21% Will affect the community 12% It will affect the old – social, accessibility, cost 10% It will affect me / my circumstances 9% It will affect those who are disabled / ill health / carers 5% Central library should also have to make cuts / savings 4% Share cuts (in hours) across all branches 4% It will affect those on low incomes 3% Prefer Option 2 1% Prefer Option 3 1%

6.6.11 Those disagreeing with Option 1 also made the following comments about Option 2:

Comments Percent No response / left blank 34% More / all libraries will be kept open with this option 29% Want it to remain as is 15% Affects the young - learning / education / computers 7% Prefer option 2 6% Should share cuts (in hours) across all branches 4% Central library should also have to make cuts / savings 4% Retains access to libraries 3% Prefer option 3 1% Alternative cost savings could be made 1%

6.6.12 Those disagreeing with Option 1 also made the following comments about Option 3:

Comments Percent No response / left blank 39% More / all libraries will be kept open with this option 18% Want it to remain as is 13% Service overall affected (hours etc…) 12% Central library should also have to make cuts / savings 8% Prefer option 2 5% Prefer option 3 3% Alternative cost savings could be made 1% Share cuts (in hours) across all branches 3% More staff cuts with this option 3% Central library should be maintained 2%

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6.6.13 Alternative suggestions

The respondents were asked to suggest anything else to make the required savings. The responses are detailed in the table below.

Comment Percent No response / left blank 82% Use building for other use / share premises 4% Cut other council costs 4% Other * 4% Use volunteers 3% Review current opening hours and usage to promote new opening hours 3% Charge for reserving / borrowing books or equipment 1% Review Sunday and / or additional opening hours 1% Other comments include: link with schools, private sector sponsorship, a hybrid of options 1 and 2, mobile libraries and comments about options 2 and 3 being viable

6.7 Neighbourhood collections

6.7.1 In order to lessen the impact of proposed closures under option 1, small neighbourhood collections are proposed. Respondents were asked to say whether they thought the following could be possible venues for neighbourhood collections:

Astley Bridge – Oldham Estate UCAN Astley Bridge – Local school Castle Hill – Tonge Moor UCAN Highfield – within the Orchards Centre Oxford Grove – Halliwell UCAN Heaton – to be decided

6.7.2 The chart below shows the response to each suggested venue.

Yes No Astley Bridge - Oldhams Estate 44% 56% UCAN

Astley Bridge - local school 43% 57%

Castle Hill - Tonge 53% 47% Moor UCAN

Highfield - within Orchards Centre 49% 51%

Oxford Grove - Halliwell UCAN 52% 48%

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6.7.3 The following were suggested as alternative locations for neighbourhood collections:

Supermarkets (31 suggestions) Community centres / children’s centres (35 suggestions) Schools (29 suggestions) Churches / church halls (10 suggestions) Health centres / GPs (11 suggestions) Mobile Site / House-bound visits (17 suggestions) Existing library buildings (9 suggestions) Other council premises (2 suggestions) Other local shops / post offices (3 suggestions)

6.8 Impact of Option 1

6.8.1 Respondents were asked if Option 1 proposals to close the five libraries were approved, how they would access library services in the future.

6.8.2 Of those respondents who in the last 12 months had used one or more of the five libraries proposed to close: 44% said they would use another library instead 13% said they would make use of a neighbourhood collection 43% chose not to answer the question

6.8.3 Those who said they would make use of a neighbourhood collection said they would use the following aspects: 66% would borrow books from the on-site neighbourhood collections 35% would request books from neighbourhood collections to collect from other Bolton libraries 28% would use the computers 21% would access other services via “Ask Bolton Libraries” the central library enquiry service

6.8.4 Concerns raised by people who had used one or more of the five libraries proposed for closure in the last 12 months included the following:

A community centre – much used by local people Convenient – within walking distance Will affect education – literacy levels Impact on young, elderly, those with disabilities, those on low-income Lots of activity / meetings in these buildings Disagree with Sunday opening Can’t easily get to town centre (travel costs, parking, mobility issues especially with heavy books) IT use is essential – will affect those without personal computers All closures are on same side of town, unfair should share costs Buildings are part of Bolton’s heritage Once closed - can’t re-open when economic situation improves

The comments above have not been categorised and displayed as percentages because the numbers are relatively small.

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6.8.5 The table below highlights the number of people who solely use one of the five libraries (i.e. they use this library and no other library), and what they would do if this library closed.

Library Number of Of these, how How many Didn’t respondents many would would use a respond to who just use use another neighbourhood the this library library? collection? question Astley Bridge 89 30 10 48 Castle Hill 39 7 3 27 Heaton 80 20 15 49 Highfield at the Orchards 29 6 6 14 Oxford Grove 68 12 10 47

6.8.6 The concerns of these people who just used one of the libraries that were closing included the following:

Big impact on old / young / those with low incomes Buildings are brand-new (Castle Hill) / architecturally beautiful (Astley Bridge) Vital to community – people have been coming for years Local friendly feel to it, know the staff well Venue for meetings / activities Inconvenient, costly (parking and transport) and unsafe to travel to central library Residents in these areas – discriminated against Used by schools / school children / call in on way home from school Borrow large print books – heavy to carry a long distance Libraries being closed have disabled access Computer use (especially by people who can’t afford computers) The libraries are well used / busy The five libraries proposed to close are all grouped together – leaves the north of Bolton without a library

6.9 Impact of Option 1 on vulnerable groups

6.9.1 Children / young people

Children / young people raised the following concerns about taking Option 1 forward:

Costs money to go into town Need access to books and somewhere to read Somewhere to meet friends Do homework /research Use computers – can’t afford to buy own, always full in town I can come here on my own / walk Libraries are part of the community Libraries help children learn

Those agreeing with Option 1 (mainly 16-18 year olds) did so because the Central library, with the volume and quality of materials and facilities was a hub within the town. They also said that increased opening hours would make it even more accessible. For these reasons, some used central library even though it was easier to access more local

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libraries. The comments above have not been categorised and displayed as percentages because the numbers are relatively small.

6.9.2 Aged 65 and over

Those aged 65 and over raised the following concerns about taking Option 1 forward:

Difficult to access other libraries Own library is more convenient / accessible Limited parking at other libraries (including central library and for the disabled) Have used own local library all their life and do not want to lose this facility Attend local library for social aspects / groups / activities Have no / limited access to public transport

Those agreeing with Option 1 felt that Central library was accessible for everyone, and that Option 1 would result in less job losses.

6.9.3 Health problem / disability

Those with a health problem or disability raised the following concerns about taking Option 1 forward:

Difficult to access other libraries Limited parking at central library Limited disabled parking at other libraries (including central library) Have no / limited access to public transport Would not be able to carry books to and from libraries Costs money to go into town

Those agreeing with Option 1 felt that Central library, with the current hours or additional hours, was accessible for everyone.

7.0 SUMMARY OF CONSULTATION RESPONSE (FROM QUESTIONNAIRES)

7.1 In summary, over two thirds (65%) of respondents to the representative survey agreed with the council’s proposal to take forward Option 1. From the open survey, 44% of respondents agreed with the council’s proposal to take Option 1 forward and 4% of the surveys received as part of the Save Bolton Libraries campaign agreed with Option 1. Concerns were raised around the following:

The impact of closures on the community Issues around accessibility / distance to other libraries Impact on vulnerable groups (children, elderly, those with disabilities) Issues relating to deprivation

7.2 Positive responses to the consultation.

From both rounds of consultation it is clear that there is a lot of public support for Bolton Library service and a lot of public interest and concern surrounding the review of the network. In the context of the service having to make savings, however, there is

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recognition that something needs to happen and a significant amount of support for taking Option 1 forward.

8.0 CONSULTATION RESPONSES IN ADDITION TO THE QUESTIONNAIRE

8.1 Communications received. There has been much publicity about the library review and the Council has received letters, emails, comments sent through via the library’s computer system (Talis) and contact from ward Members. In all some 39 communications were received, logged, and answered as necessary, during the second period of consultation. The majority were against any closure of library buildings. 10 offered alternative suggestions. Several had negative comments related to the process of consultation and the proposal outlined as option 1, and several cited their belief that the Council’s proposals would be in contravention of the 1964 Act.

8.2 Meetings with petitioners During the second period of consultation there have been 2 meetings with petitioners held on the 19th August and 27th September. These meetings were attended by representatives of groups who have presented petitions in the previous consultation period, appropriate senior and chief officers, including the Chief Executive and the Leader of the Council or his Deputy. The purpose of these meetings was to address the concerns of the petitioners and to explain the process going forward.

8.3 ‘Save Bolton Libraries’. The pressure group ‘Save Bolton Libraries’ has been active in campaigning against the Council’s proposal to close 5 libraries. Their consistent message is that there should be no closures, and that a ‘no closure’ option should have been included as part of the consultation. The group has organised two public meetings during the second period of consultation, in the central library building. These were held on the 8th and the 15th September. The meeting on the 15th was organised as a ‘Question Time’ debate chaired by the deputy editor of the Bolton News and the panel comprised Cllr Morris, Leader of the Council; Cllr Walsh, Leader of the Conservative Group; Cllr Wilkinson, Deputy Leader of the Liberal Democrat Group; Mr Sean Harriss, Chief Executive; Mr Alan Johnson representing the Green Party; Mrs Florence Hill, Chair of Unison Bolton Branch and Mr Ian McHugh from the ‘Save Bolton Libraries’ Group. Each panel member was allowed to speak and then written questions were taken followed by comments from the audience. 20 questions were submitted and these have been logged as part of the consultation.

In addition to these meetings ‘Save Bolton libraries’ has submitted a table of comments and queries based on the July report to the Executive. This has been answered and is included in this report at Appendix G(1). Bolton Civic Trust, working with Save Bolton Libraries, has also submitted two letters containing detailed comments on the Council’s proposals. These focus on sustainable neighbourhoods and communities and the Council’s role in promoting civic values as well as economic and environmental (Agenda 21) issues around the cost of additional travel for local people if these five libraries were to close. The Civic Trust contends that libraries are “crucial centres of community information…which serve to promote citizenship and engagement” and “District and neighbourhood amenities that can bring crucial viability to a mix of local facilities, helping to create safer, stronger, better engaged and more sustainable communities.” In addition, in its second submission, the Civic Trust contends that the Council’s plans to save money merely externalises costs i.e. transfers the burden to

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users in extra expenditure. In undertaking some modelling work around Heaton Library the Bolton Civic Trust has concluded: “The negative economic cost impact to library users, within the modelled library catchment, seems to be almost double that of the identified savings to the Council… if all 5 library closures were considered there would be a significant economic dis-benefit demonstrated for the Borough’s population as a whole, in sharp contrast to BMBC savings…”

The Council acknowledges there could be a potential increase in costs for users, but the provision of neighbourhood collections and the retention of Heaton Library building as a joint neighbourhood collection and children’s centre should go some way in mitigation.

The full Bolton Civic Trust submission can be seen at Appendix G(2)

8.4 Trades’ Unions. Throughout this second period of consultation there have been regular meetings with union representatives. In addition, Unison has attended two staff briefings held to explain the proposals. Unison has submitted a formal response to the consultation. This is included in this report at Appendix H along with the Council’s response to the issues raised. GMB has been kept informed throughout.

8.5 Ward Councillors and Group responses Meetings have been held between Councillors from wards where libraries are proposed to close and senior managers from the service. In addition, the motion tabled at the Council meeting of 31st August, in the name of Cllr John Walsh detailing other, longer term options which could be explored have been investigated. The Council’s response is contained in the table at Appendix I.

The Heaton and Lostock & Smithills Liberal Democrat branch also submitted a response broadly supporting option 1: “Whilst we are in broad agreement with the basis of Option 1 as the solution to the review, as it entails the least harmful effect to the library service across Bolton as a whole, we are however concerned that the closure of Heaton Library, Astley Bridge Library and Oxford Grove Library will mean a massive gap in coverage in this part of north Bolton. We therefore suggest that the detail of Option 1 should be reviewed with a view to retaining at least one of these Branch Libraries.” There was also support for keeping some of the buildings open by the use of volunteers.

8.6 National agencies and central government The Department for Culture Media and Sport (DCMS) and its Secretary of State have overall responsibility for superintending the Public Libraries and Museums Act. Its non-departmental public body in operational matters is currently the MLA. This will become Arts Council England in October 2011 but both the DCMA and MLA/ACE have been kept informed of the Council’s proposals. A copy of the Executive report of 28th July was submitted to the Minister with a letter from the Leader of the Council.

9.0 ISSUES RAISED REGARDING THE CONSULTATION PROCESS

9.1 The length of time allowed for the second consultation This phase of the consultation started on July 29 and ended on September 16, a total of 7 weeks. In addition to the 7,000 surveys sent directly to householders for the representative survey, it has also been made available via a range of other channels including the website, emailed to library users and other stakeholders and online / freepost return via every library. We have promoted the consultation through the Bolton

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News and via the council’s website. It was featured in the last edition of Bolton Scene, which was distributed to every household in Bolton between 24 to 30 August.

In all a total of 19 weeks has been allowed for consultation.

9.2 Cost of consultation Excluding in-house officer time, the only costs are for printing and postage of the representative surveys. The total cost of the consultation was £4500.

9.3 Questions relating to the methodology for library viability rankings

9.3.1 The criteria the Council selected were based on recent challenges to the statutory status of public libraries in the Wirral. An explanation of the weighting is given in Appendix 4 of 28th July report attached at Appendix C. Alternative criteria suggested during this second period of consultation have been reviewed, particularly ‘access to internet’. This formula has been applied but has not made any difference to the viability ranking.

9.3.2 If extra deprivation factors taken from the community profiles were to be included in the viability ranking the effect would be to move Bromley Cross and Blackrod library into the bottom 5 ranking. Oxford Grove and Castle Hill would move out of the bottom 5. However, given the recent challenge to statutory status in the Council’s view the importance of accessibility criteria takes precedent and this has been reflected in the weighting process. The viability ranking was only one element used to formulate Option 1, as fully detailed in the July Report.

10.0 DISTANCE

10.1 Throughout the consultation, the impact of access to the proposed network has arisen as an issue; we have therefore analysed the extra distance people will have to travel to get to another library. Analysis has considered current active borrowers, residents within library catchment areas and all households within the borough. Analysis is based on approximate ‘as the crow flies’ distances. These calculations have been derived from a software mapping tool called InSite which is an independent, recognised industry tool for geo-demographic classification.

10.2 Current borrowers

Analysis of the postcodes of current borrowers at Astley Bridge library has shown that 26% of current borrowers could travel to a closer library, 21% would have less than half a mile extra to get to another library and 53% would have to travel more than half a mile further, but no more than 1.3 miles.

Analysis of the postcodes of current borrowers at Castle Hill library has shown that 49% of current borrowers could travel to a closer library, 20% would have less than half a mile extra to get to another library and 31% would have to travel more than half a mile further, but no more than 1.3 miles.

Analysis of the postcodes of current borrowers at Heaton library has shown that 12% of current borrowers could travel to a closer library, 7% would have less than half a mile extra to get to another library and 81% would have to travel more than half a mile further, but no more than 1.5 miles.

Analysis of the postcodes of current borrowers at Highfield in the Orchards library has shown that 27% of current borrowers could travel to a closer library, 15% would have

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less than half a mile extra to get to another library and 58% would have to travel more than half a mile further, but no more than 1.5 miles.

Analysis of the postcodes of current borrowers at Oxford Grove library has shown that 14% of current borrowers could travel to a closer library, 16% would have less than half a mile extra to get to another library and 71% would have to travel more than half a mile further but no more than 1.2 miles.

10.3 Residents within library catchment areas

Analysis of the catchment area of Astley Bridge library has shown that 20% of residents have a closer library or as close a library, 23% will have less than half a mile extra to travel and 57% will have to travel more than half a mile further but less than 1.3 miles extra.

Analysis of the catchment area of Castle Hill library has shown that 30% of residents will have less than half a mile extra to travel and 70% will have to travel more than half a mile further but less than 1.3 miles extra.

Analysis of the catchment area of Heaton library has shown that 5% of residents will have less than half a mile extra to travel and 95% will have to travel more than half a mile further but less than 1.5 miles extra.

Analysis of the catchment area of Highfield library has shown that 100% of residents will have more than 0.75 miles but less than 1.5 miles extra to travel.

Analysis of the catchment area of Oxford Grove library has shown that 14% of residents will have less than half a mile extra to travel and 86% will have more than half a mile but less than 1.2 miles extra to travel. See Appendix J for Map to show Catchments for new Network: nearest alternative library and Map showing public transport accessibility to the existing and a revised public library network.

10.4 Households within the borough

Analysis has looked at distance from households to the proposed new library network and found 96% of households within the borough are within a 2 mile radius of one of the 10 remaining libraries.

10.5 Public transport

Almost all of the borough is within a 20 minute public transport journey of a library, as shown on the maps as cited above. In addition to this, Transport for Greater Manchester (TfGM) provides: Concessionary travel passes for residents aged over 60 or under 16 and residents with disabilities Local Link - door-to-door flexible transport in specific areas of the borough Ring and Ride for people who have difficulty using ordinary public transport Travel vouchers for people who are unable to use ordinary public transport and have serious walking difficulties or who are registered blind. These vouchers can be used for concessionary travel with taxis, Ring and Ride and community transport.

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11.0 ALTERNATIVES TO OPTION 1 EMERGING FROM THE CONSULTATION:

11.1 Use of volunteers, either as substitute or additional staff Cutting a few hours off all libraries, mainly evenings and weekends The “fourth option”: libraries should remain open and be exempt from Council savings Money can be found from elsewhere e.g. councillor numbers and allowances Income can be generated by small schemes e.g. rent a desk/space for business, coffee/refreshments provided by volunteers Transferring some or all of the libraries to a Trust with charitable status and the advantages this gives. Raising extra income through hiring meeting rooms etc.

11.2 The Council has looked at these suggestions and its detailed response is at Appendix I.

12.0 MITIGATION

12.1 Concerns were expressed about the Council’s recommendation. There was considerable comment about the impact on children and young people: The effect on attainment Loss of support to learning Exacerbating deprivation where families might not have access to books The Council failing to fulfil its duty under the Children Acts.

12.1.1 The Council has taken these concerns into account in its proposals to mitigate impact: For children and youing people: Support to schools, chldren’s settings, especially early years Continuation (and explanation) of Bookstart Continuation of Summer reading Scheme Strength and reach of the SLS Services to the most disadvantaged e.g. Looked After Children Relationship with further education e.g. Bolton Community College and University of Bolton Development of the virtual offer e.g. learning platforms for support to National Curriculum/topic work Proposal to open Sunday and Bank Holiday across the Library and the Museum.

A summary of the current sevices to children and young people is at Appendix K.

12.2 Concern was expressed about the impact on the elderly, disabled or isolated: Loss of a social venue and contact potentailly increasing isolation The library as a visible council presence Inability to travel

12.2.1 The Council’s proposed mitigation for these groups is:: Neighbourhood collections (see below) giving access to the whole service Ability to request specific formats e.g. large print and ‘talking books’ Expansion to Library Link (at home service), including recruiting more volunteers Partnership with Befriending services Collections in day centres on request.

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12.3 Concern was also expressed about the impact on communties and neighbourhoods. The Council’s proposed actions to limit the impact on communities are: Retaining Heaton as a community building containing a neighbourhood colllection and Children’s Centre but with the potential to deliver more services Stronger partnership working with Bolton at Home in UCANS and other council partners Opening up Children’s Centres to a wider community Developing tailored collections for those areas losing libraries

12.4 Neighbourhood collections.

As cited above there has been concern expressed throughout the consultation and in correspondence from users about the adequacy of neighbourhood collections. The Council has never suggested that Neighbourhood Collections are substitute libraries. They are part of the Council’s proposals to mitigate the impact of closing a current library by providing a small collection of library materials in the neighbourhood where a library closes and offering continuing access to free ICT. The Council is committed to redirecting resources from closed libraries, and by short term ‘pump priming’ to make sure Neighbourhood Collections work. They will have dedicated staffing resource through partners and managerial oversight to ensure the collections remain an intrinsic part of the wider network, and performance management and distinct parameters to ensure quality.

They will act as a way in to the wider range of services which will still be offered by the Library Service even after savings are made. Users will be able to go into a neighbourhood collection site and borrow items, request books and make enquiries, and these services will all continue to be free. There will be access to ICT in partner agencies e.g. UCANs to help users who, as well as going on line, may need guidance in compiling cvs etc.

12.4.1 Proposed locations are: Astley Bridge: Oldhams Children’s Centre Castle Hill : Tonge Moor UCAN centre Heaton: the current shared library/Children’s Centre Highfield (Orchards) in the Orchards centre Oxford Grove: in the Halliwell UCAN centre.

The Council has responded to public concern and responses to the consultation, specifically about the library as the hub of a community, by retaining Heaton Library building to operate as a joint neighbourhood collection and Children’s Centre, and in Astley Bridge, in responding to Members’ concerns about deprivation, by recommending that Oldham’s Children’s Centre hosts the neighbourhood collection for that area.

12.4.2 The intention is to link each Neighbourhood Collection with its closest local library. It will give support to the partner running the NC, so if the Council’s preferred Option 1 is finally implemented this will mean: Astley Bridge will be supported by Bromley Cross Castle Hill by Harwood Heaton by Horwich Highfield (Orchards) by Farnworth Oxford Grove by High Street.

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12.4.3 There isn’t one model: collections will be tailored to the community. What suits Heaton will not be the same as what meets the needs of Castle Hill. The library service’s computer system holds a lot of data on borrowing patterns and this will be used to compile collections. Collections will vary in size depending on the partner building and how much we can accommodate, but could range from 300 to 1000+ items but they will offer access to the whole library service collection of 341,000 items.

12.4.4 Collections will be renewed regularly: this is how we currently refresh stock in small libraries. It’s all done automatically, with minimal staff intervention. Appropriate shelving and furniture will be provided as needed as we will have surplus from closed libraries. In addition the Council will review the workings of the collections at 6,12 and 18 months and make improvements or adjustments as needed.

12.4.5 The Council is very open to alternative suggestions for suitable sites for NC but we have to ensure partners can provide high quality service, and have space for shelving and ICT connectivity for access to the Internet and the library system, which drives the issue and return of books. Library staff are working on the detailed specifications for a neighbourhood collection service but until the Council makes its final decision on the future size of the network this work cannot progress.

12.4.6 The Library Service is used to providing services in partnership, for example with the NHS and Children’s Services, and we will use all that experience to draft specifications, train partner staff and set performance standards.

12.4.7 The Council is responding to concerns about the quality of this service by proposing extra resource to manage the neighbourhood collections. See 13.7 below. This resource will be provided separately by the Council as ‘pump priming’ and will not be taken from or added to the savings target.

13.0 OVERALL ANALYSIS AND CONCLUSIONS

13.1 The decision to review the library service in Bolton has generated strong opposition in some quarters. The Council openly acknowledges that these views are sincerely held and understands that the proposal to close five libraries has been controversial.

13.2 Although this is understandable and is not the course of action the Council would choose to take if controllable resources were not reducing by 25%, the proposal is nevertheless reasonable in this context. This is on the basis that the proposal is compatible with the 1964 Public Libraries Act and in the context of the Council’s own philosophy for delivering savings, especially prioritising services for the most vulnerable children and adults.

13.3 Libraries are very valuable community resources and provide an important service for many local people. However, in an environment when savings have to be contemplated across children’s and adults’ social care it is not realistic to completely exempt a ‘universal service’ from savings. Given a loss of 25% of the Council’s controllable budget, a decision to reduce the number of libraries from 15 to 10 and retain the same quality of service at the remainder does retain a good quality of service across the Borough.

13.4 Although, understandably, those who oppose library closures have garnered considerable publicity and support, especially from those most affected, it is clearly the

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case from the statistically reliable random sample that around two-thirds of the Borough’s population would support the Council’s proposal. Whilst recognising the considerable vocal opposition and admirable democratic protest, the Council should feel confident that the majority of the Borough’s residents acknowledge the appropriateness of the proposals.

13.5 In assessing the overall position, the feedback from consultation and the concerns expressed, it is fair to identify the following as the crucial issues:

There are concerns about the ‘community impact’ of the loss of the library building There is a detriment of distance travelled for some people if a library is closed There are concerns that this will impact on education and learning, especially for children The needs of elderly and disabled people are key and they may find the extra distance or cost problematic

13.6 The Council understands these concerns but believes through a range of measures that the impact can be mitigated. Obviously the loss of five libraries in their current form is not ideal, but in the context of the financial position believes that the mitigation measures make this tolerable.

13.7 In response to the issues highlighted above, the Council would highlight:

(a) Community Impact – In the revised final proposals, the Council believes that the community aspect of libraries have been retained through the proposed location of neighbourhood collections:

The Neighbourhood Collection for Heaton will remain in the existing library building. This will retain the community asset and access to library services in partnership with the Children’s Centre. The Neighbourhood Collections in Tonge (Castle Hill) and Halliwell (Oxford Grove) will be in the Tonge and Halliwell UCANS, both former library buildings – very close to the existing library. There is a real prospect of enhancing community development as a result of the co-location of the Neighbourhood Collection within the UCAN. The proposed venue for the Neighbourhood Collection in Astley Bridge is Oldham’s Children’s Centre. This will enhance a community facility in the most deprived part of the Ward. The Neighbourhood Collection at Highfield will remain in the existing Orchards Centre building.

In addition, the revised proposals include 1 FTE staff investment temporarily to establish the Neighbourhood Collections and some permanent resource, delivered through partners, to support them on an on-going basis.

(b) Distance Travelled – When taken as a whole, there is clearly a less dense geographic spread of libraries in the proposals than at present. However, the position is still very favourable:

Almost the entire Borough is within a 20 minute public transport journey of a library. The Central Library is to be open on Sundays, increasing the availability of the library service for many users. 96% of households are within two miles of a library building.

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Car ownership in Heaton and Astley Bridge is very high, giving residents easier access to alternatives. Neighbourhood Collections will offer a direct access in a similar location to the current library to library services. Clearly many of the Borough’s residents make journeys for work and pleasure that would enable them to access library services in different locations. 67% of the Borough’s working population works within Bolton. Significant proportions of borrowers already use more than one library and would, in the event of a closure, use a Neighbourhood Collection or another library. Figures in the report identify that in the Wards affected by the proposed closures some residents are already closer to an alternative library and many others are less than half a mile further away from another library.

(c) Impact on Education and Learning – The Council does not believe that the case around the impact on education and learning is made. This is because the extra investment in schools and colleges in the Borough over the last few years has been significant and there has been a continued increase in standards. Although a good library service can play a supporting role in this, the key determinants in raising standards are:

Quality of school leadership Quality of teaching and learning Discipline and behaviour Quality of school buildings

Importantly, there are no proposals to reduce the Schools’ Library Service and taken with the library collections available at Children’s Centres, it is reasonable to draw a conclusion that the impact on education and learning will not be significant given the alternatives and the mitigation put in place.

(d) Needs of Elderly and Disabled People – This is an issue the Council takes very seriously. The ability of people over 60 to travel free on public transport is a key factor as is that of the Library Link service. Notwithstanding this, the Council has developed the mitigation measure with this issue very much in mind. This is a key reason for Neighbourhood Collections as is the emphasis on the extension of both Library Link and work with voluntary organisations who support elderly and disabled people. The Council will meet with representatives of older people and disabled people to further mitigate the impact of any closures, as appropriate.

13.8 In conclusion, the Council feels that Option 1 is a proposal that, on balance, meets both the spirit and letter of the 1964 Public Libraries Act. It is a proposal that does result in some detriment, especially in respect of increased distance travelled for some users. The Council is confident, therefore, that the extensive mitigation measures and quality of the remaining service still represents a very good service for the Borough as a whole, given the overall financial constraints and the policy objective of protecting the most vulnerable children and adults and achieving a greater proportion of savings from universal services.

13.9 The Council is aware from consultation and meetings with Ward Members that various ideas have been put forward for alternative provision of a ‘library service’ through volunteers, including the potential establishment of a community Trust or similar charitable vehicle. This report by its nature is about the Council’s statutory Library Service and for the reasons set out in the report the Council does not believe that a

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reliance on volunteers would provide the necessary service within the context of the 1964 Public Libraries Act.

However, if individuals, communities or voluntary organisations wish to develop a business case for meeting the costs and running a service in an existing library building/neighbourhood collection, the Council would be happy to discuss these proposals.

14.0 FINANCIAL IMPLICATIONS

14.1 The financial implication of these proposals is a net reduction in spend as outlined below:

Staff costs £300,000 12.85fte Building costs £107,000 Total saving £407,000

14.2 Costs incurred to deliver the extra developments proposed under the preferred option, namely Sunday and Bank Holiday opening at the Central building and ongoing support to Neighbourhood Collections will be achieved through budget efficiencies derived from the closure of the 5 libraries. These elements have not been factored into the £407k above and come from, in the main, supplies and services.

14.3 This option will reduce the size of the network but retain a dynamic platform from which a comprehensive and efficient public library service can be delivered for the people of Bolton.

15.0 HR IMPLICATIONS

15.1 Implementation of the preferred option will mean an establishment reduction of 12.85 FTE

15.2 The service is currently carrying 8.16 FTE vacancies and has received 5.5 FTE applications for severance or VER. It is therefore probable that there will not be any redundancies.

15.3 Further work will be done to identify staffing impact and any change will be subject to consultation with staff, trades’ unions and other stakeholders.

16.0 EQUALITY IMPACT ASSESSMENT

16.1 As is made clear throughout this report, the proposal to reconfigure the council’s library network has sought to achieve a service which is fit for the future and the changed financial context, and which is compatible with the council’s duties under the 1964 Libraries Act. It also seeks to achieve a service which is compatible with the council’s philosophy towards achieving savings, which has a strong focus on protecting the most vulnerable in our communities.

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16.2 The council recognises that the proposal to close 5 libraries as part of the council’s preferred option is controversial, and there has been strong opposition to the proposals from some parts of the community. As set out earlier in the report, the main concerns which have been expressed through the consultation process can be summarised as follows: There are concerns about the ‘community impact’ of the loss of the library buildings There is a detriment of distance travelled for some people if a library is closed There are concerns that the proposals will impact on education and learning, especially for children The needs of elderly and disabled people are key and they may find the extra distance or cost problematic

16.3 The council takes its duties around access and equality impact seriously, and the proposals have been informed by an iterative equality impact assessment process as well as the extensive public consultation process and data analysis.

16.4 The council feels that Option 1 will allow us to meet our obligations, while achieving the necessary financial savings and allowing a good quality of service to continue across the borough. However, we do recognise that the proposals may result in some detriment to some parts of the community, particularly in relation to distance to travel to access the service.

16.5 However, as summarised in section 13, a wide range of mitigating actions have been identified to ensure that the impact of the library closures in the five affected areas, and on the network as a whole, is minimised as far as practicable in the current circumstances.

16.6 These mitigating actions have been designed to support the most vulnerable members of our communities – for example, older people; people with a disability or limited mobility; children and young people; and people who may be socio-economically disadvantaged, unemployed or on a low income. We believe that these steps, particularly the creation of neighbourhood collections, will help us to continue to support our most vulnerable to access the library service; as well as delivering an effective universal service for the borough as a whole.

16.7 A detailed consideration of equality impact and the associated mitigating actions is set out at Appendix L.

17.0 RECOMMENDATIONS

17.1 The Executive is asked to confirm the methodology used by the Council, not with- standing the point raised at 9.3.2., because it has used a range of factors, including:

This review is about ‘comprehensive and efficient’ for the whole of Bolton; Deprivation is recognised in the viability ranking within the existing methodology; Available evidence in relation to the 1964 Act highlights accessibility as being critical to a duty of ‘comprehensive and efficient’ (the Wirral judgement).

As a result of the above, the proposed reconfigured network, including the proposed mitigation, is, the Council believes, the ‘best fit’ for the Council’s statutory duties.

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17.2 The Executive is asked to agree the adoption of Option 1 as the model for the new library network.

17.3 The Executive is asked to agree to the start of work to decommission the libraries to be closed and the development of neighbourhood collections and other mitigating services.

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