Item no 20 + GD IN BVRGH + THE CITY OF COUNCIL

Central Library Conservation Plan

Executive of the Council 30 November 2004

1. Purpose of report

To inform the Executive of the findings of the Central Library Conservation Plan

2. Summary

2.1 The report describes the background to the Conservation Plan, presents its key findings and indicates how it can be progressed.

3. Background

3.1 A Conservation Plan is an approach to exploring the sustainable use of a cultural, or ecological asset. Its purpose is to establish and describe the historic importance of the asset and its setting: to analyse the effects of changes that have been made in the past; and to put forward policies for conservation, repair, and restoration of its historic character and features.

3.2 The Central Library conservation Plan is intended to advise future proposals for the Library and represents a first step towards Heritage Lottery Fund and Historic Scotland grant applications. 3.3 In commissioning the Conservation Plan, the Culture and Leisure Department saw it as an important first step in taking forward the work which started during the late 1980s to modernise and remodel the Central Library.

3.4 Opened in 1890, Edinburgh’s Carnegie Central Library is a landmark building, located close to the heart of the world heritage site. It is one of the Council’s major cultural assets, Its importance within the city’s cultural infrastructure is set to increase with Edinburgh’s designation as the first UNESCO City of Literature.

3.5 The Library contains unique collections of national importance centred on those of the Edinburgh Room and Scottish Library, and houses Scotland’s busiest lending library. Attracting over 500,000 visitors a year, the Library is used by residents, tourists and researchers from all over the world for its

1 information, study and research facilities. The Library provides one of the Council’s most popular services and is a much loved Edinburgh institution.

3.6 Throughout the 20th century the Central Library has adapted, altered and expanded its collections and services in response to changing needs. Recent successes have included the implementation of the People’s Network, providing the public with free Internet access, a fully equipped ICT Learning Centre and a gateway to digital and networked resources.

3.7 However, while the Library strives to meet changing needs and aspirations, it long has been recognised that the building complex must be modernised and radically remodelled, in order to rovide the services expected of the principal library for a capital city in the 21‘ Pcentury.

4. Main Report

4.1 The key findings of the Conservation Plan relate to: . Architectural and historical significance of the Central Library building . Central Library of today . Future focus . Conservation policies 4.2 A brief summary of each of these themes is given below. More detailed extracts from the Plan are contained in Appendix I.

Architectural and historical significance of the Central Library Building

4.3 The current building complex comprises the original Library and the neighbouring buildings at Nos 1 to 3 and Nos 9 and 9a George IV Bridge, together with the vaults under George IV Bridge.

4.4 The Conservation Plan describes the original Edinburgh Central Library as the best example of a Carnegie library in Scotland. It is an outstanding work by Sir George Washington Browne, one of the leading architects working in Scotland in the late 1gth century, which combines specialised planning with architectural exce Ilence.

4.5 The Study finds that the “Francois I” exterior of the library is virtually unchanged today and almost all of Browne’s major interior spaces remain largely intact. The domed Reference Reading Room is the finest of its type in Scotland and is an elegant, inspiring place in which to work.

4.6 The Library is currently listed Category I3 as a building of architectural and historic importance. On the evidence of the Study, it is considered to be of national importance and deserves to be upgraded to Category A.

2 Central Library Today

4.7 In describing the current facilities, condition, and appearance of the Central Library complex, the Study comments on the problems and challenges facing users and staff today.

4.8 Unique collections of national importance are housed in cramped and poor environmental conditions with very limited public access. Staff areas are cramped and inefficient. Basic mechanical and electrical services have reached, or are reaching, the end of their useful lives while the provision of ICT is inadequate for the needs of the 21" century. The lack of accessibility to major parts of the building, including collections and toilets, is a major problem for those users with ambulant disabilities.

Future Focus

4.9 Before exploring how a Conservation Plan can make the Central Library, once again, a privilege to use, the Study considers what the role of a Library in the 21'' century should be. It describes new directions in library provision within the UK, including those at Norwich, Croydon, Ipswich, , Peckham and the re-development of the British Library Reading Room, which are widely regarded as setting standards of excellence that a landmark library must aspire to.

4.10 The Study then sets out a vision which senior management in the Library service have for Edinburgh Central Library. In the future, the Library should be a beacon of discovery and opportunity for everyone to access learning, information and cultural expression. Edinburgh's designation as the first UNESCO City of Literature has given a huge impetus to achieving this vision. A re-developed Central Library can become a centre for literature and a place for writers to meet at the heart of the City's literary quarter.

Conservation Policies

4.11 The final section of the Conservation Plan presents the conservation policies which should inform development strategies for Central Library. It considers the overall Conservation Policy in relation to primary objectives, key issues and options for addressing these.

Objectives

4.12 Given the importance of Central Library, the Study finds that the primary objective of the Conservation Policy must be:

to ensure the long-term future of the George Washington Browne building by developing competent uses that allow the quality of its design to be revealed again and the building to continue providing a valuable public service as originally intended.

Ideally, the building will continue as a library in some form and conservation work will allow users and staff, once again, to enjoy its facilities and

3 collections. This does not imply, automatically, that spaces within the building need to be restored to their original form or use. New uses and adaptations relevant to current and future needs, may be perfectly acceptable.

Issues

4.13 The Study identifies the excessive pressure on the use of space within the Browne building as the key conservation issue that needs to be addressed. Reducing the intensity of usage will allow the major spaces to be re-presented and the necessary support spaces to function in an efficient manner. Issues including accessibility, user facilities and environmental controls should be addressed sensibly and comprehensively. Options

4.14 The Plan presents four principal options for addressing the key conservation issue. These are: . Specialise and focus on core collections within the Browne building and relocate others elsewhere . Focus on providing general lending collections within the Browne building and relocate specialised collections elsewhere. . Expand the accommodation available to suit projected needs . Relocate all facilities and service elsewhere and use the Browne building for another purpose

4.15 The Study notes that a fifth option of maintaining the status quo is not really an option. As a minimum, additional space will be required to house growing collections, building services will require to be replaced and the requirements of the Disability Discrimination Act will require to be dealt with. 4.16 The Conservation Plan concludes by stating that the choice of which option is appropriate will depend on the vision of the City Council and the financial resources available. It asserts that the Browne building has the potential to accommodate a “most potent agency” well into the 21‘ century, in a manner which acknowledges its importance as an historic building of the first importance whilst providing a valuable service to the citizens of Edinburgh.

5. Evaluation of Findings

5.1 The Conservation Plan presents the Council with a range of possibilities to transform the Central Library into a state of the art facility, appropriate to the City’s pre-eminence as a major world capital.

5.2 In identifying the options available for future development, the Study sets out a persuasive argument for retaining the original George Washington Browne building as a Library and restoring it to its former glory.

5.3 In particular, the option of extending the Library on the site behind the original building offers exciting possibilities for re-inventing the Central Library so that it meets the needs and aspirations of citizens and visitors in the 21’‘ century.

4 5.4 It is recognised, however, that each of the development strategies which the Conservation Plan asks the Council to consider will have significant funding and planning implications.

5.5 It is proposed, therefore] that to inform future decisions] the Conservation Plan should be progressed to a further stage and a detailed appraisal carried out of the possible ways available to develop the Central Library complex. Such an option appraisal would include indicative costs and consider potential funding opportunities.

5.6 The results of the detailed option appraisal should enable the Executive to decide on the most viable way of re-modelling the Central Library complex so that it becomes, once again, a flagship library for Edinburgh and Scotland, worthy of the aspirations of Andrew Carnegie and the City's Victorian forbears.

6. Financial Implications

6.1 The cost of the proposed option appraisal will be contained within the Department's Revenue Budget.

7. Conclusions

7.1 The Conservation Plan has highlighted the significance of the George Washington Browne building and identified the key conservation issues which need to be addressed to safeguard its long-term future.

7.2 The Plan has also presented in outline a number of options for bringing the Central Library into the 21" century. 8. Recommendations

The Executive is recommended to:

a) endorse the findings of the Conservation Plan b) refer the Conservation Plan to the Leisure and Culture Scrutiny Panel for detailed consideration b) instruct the Director of Culture and Leisure to commission a detailed appraisal of the options available for re-modelling the Central Library and report the results to the Council Executive. Herbert Coutts Director of Culture and Leisure I?-: tr so4 Appendices Appendix I : Extracts from Edinburgh Central Library Privilege or Purgatory? A Conservation Plan by LDN Architects

Contactltel Bill Wallace 0131 529 7790

Wards affected Ward 32 - Tollcross Background Library Building Provision in the City of Edinburgh - Report to the Papers Recreation Committee in 1989 Feasibility Studies - 1992 Specialist Surveys and Reports From Building Design Services. All of the above are held within the Department of Culture and Leisure

Edinburgh Central Library Privilege or Purgatory? A Conservation Plan by LDN Architects [copies of the full Conservation Plan document have been lodged in Group Offices]

G APPENDIX I

ARCHITECTURAL AND HISTORICAL SIGNIFICANCE OF THE CENTRAL LIBRARY BUILDIN G

The Conservation Plan finds that

Edinburgh Central Library is the best example of a Carnegie hbrary in Scotland. It is an outstanding work by Sir George Washington Browne, one of the leading architects working in Scotland in the late lgthcentury, which combines specialised planning with architectural excellence.

...... sited in close proximity to the other great libraries in Scotland including the National Library of Scotland, the Advocates, Signet and Old College Libraries, it forms an important element of Edinburgh’s townscape and for the past century has been recognised as a much used and much loved Edinburgh institution.

The original building has been altered, adapted and extended throughout its history in response to changing needs and the growth and expansion of its collections. Today, the library spreads throughout its neighbouring buildings on both sides. These buildings are of some architectural merit in their own right but were never designed to be library buildings, a use which has been shoe-horned into them.

The complex is now labyrinthine, inefficient, inaccessible to many and confusing to use but the underlying simplicity of Browne’s original vision is still extant: the Francoise 1 exterior of the library is virtually unchanged and almost all of Browne’s major interior spaces remain intact. The domed Reference Reading Room is the finest of its type in Scotland and is an elegant, inspiring place in which to work.

The circumstances surrounding the original commissioning of the Library, including the Libraries Act, the munificence of Andrew Carnegie, the architectural competition and the career of George Washington Browne and the context in which he was working, all provide notable insights into the social history and cultural values of the period.

The Central Library is currently listed Category B as a building of architectural and historic importance by Historic Scotland but, on the evidence of this study, is of national importance and deserves to be upgraded to Category A.

1 2. CENTRAL LIBRARY TODAY

The study highlights the difficulties and challenges facing Central Library today:

All of the change and expansion of services that has taken place over the last century has been carried out with the best of intentions in response to changing needs. Taken individually, each change has helped keep the library responsive to current needs but the overall effect of this incremental change on the operation and use of the library has been almost entirely negative. Designed to house a reference collection, lending collection and newsroom, the Edinburgh Central Library now strives to accommodate all the services required of a modern Central Library.

The conditions in which unique coilections of national importance are housed are not appropriate to their significance. The related spaces are cramped - at any time much of the collections are in storage, and access is difficult.

Staff costs are high due to the layout of the building and duplication of security points and entrances, and collections are not always stored adjacent to points of access but may be in remote parts of the building. Possible synergies between the collections are not developed and the existing buildings have long since reached their capacity for change.

Whilst collections continue to grow, the lack of necessary and flexibility results in clutter and the inefficient use of space. Event space and exhibition space are necessarily limited.

Environmental controls are inadequate for a building of its type and the lack of access to major parts of the building, including collections and toilets, is a major problem for those with ambulant difficulties......

there is no more opportunity for expansion within the Browne building.

The buildings on either side have served their purpose but only in utilitarian fashion. The Children’s library is segregated from the main building by the Cowgate and, whilst its lower levels provide useful storage and some office space, it is difficult to envisage other uses due to the lack of natural light and limited cross ventilation.

The vaults under George IV Bridge suffer from damp, water penetration and lack of ventilation. They present many technical obstacles to development and, even if the environmental problems can be overcome economically, are unsuitable for anything other than storage.

2 3. FUTURE FOCUS

The Conservation Plan sets out the vision for Central Library in the 2Ist century :

Central Library will be a beacon of discovery and opportunity for everyone to access learning, information and cultural expression through existing and emerging 27'' century technologies.

Citizens and visitors will be energised by: . A community library for the city centre . A heritage and history centre . A centre for learning and information resources to support economic and educational aspiration A resource which inspires, enables and showcases cultural activity

Introducing new public space and facilities the Central library will provide a focal point for local civic life, attracting visitors and encouraging cultural investment. The building will inspire citizens and visitors to explore their past, present, and future using all types ofmedia and technologies.

Resonating with Edinburgh's core values, the Library will have positive impacts for the lives ofall through: . supporting social and economic regeneration through learning . integrating new technologies with existing collections . partnership working with cultural agencies . being attractive, accessible and sustainable in appearance, content, and service delivery . encouraging city centre living . promoting understanding and confidence in Edinburgh's cultural diversity engaging with all ages and abilities

Edinburgh Central Library will be a technology driven, adaptable, culturally relevant and accessible standard bearer for the City because it will be for and about the interests, aspirations and lives of all Edinburgh citizens.

Achieving this vision will require a radical re-modelling of Central Library. The Study notes that

the Central Library currently has some 2368m2 of public space spread across its three buildings. The George Washington Browne building itself is approximately 4000m2 in size and has 1700m2 of public space. Studies of comparators such as Croydon and Norwich have demonstrated that in order to match the aspirations of the

3 Library Services’s vision some 6000m2 of additional public space will be required as well as approximately 1500-2000m2of storage.

4. CONSERVATION POLICIES

The Study finds that the principal Conservation Policy must be:

. . .. to ensure the long-term future of the George Washington Browne building by developing competent uses that allow the quality of its design to be revealed again and the building to continue providing a valuable public service as originally intended.

The Study goes on to say:

Ideally the building will continue as a library in some form and conservation work will allow users and staF once again to enjoy its facilities and collections. This does not imply, automatically, that spaces within the building need to be restored to their original form or use.

Tinkering further with the existing building and attempting to maintain the status quo is not seen as a long-term option either in operational terms and cultural terms, or in terms of value for money: major strategic decisions about the long term future of the Library require to be implemented in order to safeguard its future.

The excessive pressure on the use of space within the Browne building is the key conservation issue. Reducing the intensity of space will allow the major spaces to be re-presented and the necessary support spaces to function in an efficient manner. lssues including accessibility, user facilities and environmental controls should be addressed sensibly and comprehensively. OPTIONAPPRAISAL

The four principal options for addressing the issue are:

Option 1

Specialise and focus on core collections within the Browne building and relocate others elsewhere

The core collections of the Edinburgh room and Scottish Collection are widely acknowledged to be of international importance but this importance is not recognised by their current location. Relocating the lending library and other non core collections, perhaps even the reference collections, would allow the core collections to be properly presented and made accessible. The library could be marketed properly as a unique specialised archive and links could be formed with other Edinburgh related archives, not currently accessible to the public. Excess space released by the re-location of non-core collections could be used to re-house additional collections related to the core collections but currently spread round the city and to improve facilities for users and staff within the building.

4 The drawback to this approach is that new accommodation would need to be found or developed within the non-core collections, particularly those identified with a Community Library, nearby in the city centre to serve the Old town community: given the scarcity of suitable city centre sites there is every likelihood that the citizens of central Edinburgh would lose a valuable and well-used service.

Option 2

Focus on providing general lending collections within the Browne building and relocate specialised collections elsewhere

... this option releases the pressure on useable space by removing the specialised collections. Spaces within the Browne building could then be developed to provide better conditions for the lending collection, including those in neigh bouring buildings. Further facilities to attract, educate and entertain the wider public, including a cafe, event spaces, internet access points, and a lecture hall could be developed.

The removal of the specialised collections would not however release vast amounts of space and it is likely that some form of extension would be required to accommodate the activities noted above.

. . .Alternative accommodation would have to be found for the specialised collections and there is a real danger that they could be split up, or made lass accessibje, which would be a great loss.

Option 3

Expand the accommodation available to suit projected needs

There is a vacant site immediately to the west of Central Library, owned by the City Council, The site, (the Library car park, in the Cowgate) was the subject of the Feasibility study into the future expansion of Central Library several years ago and whilst the detail of the proposals may be criticised, the concept of expansion on the site addresses virtually all problems relating to the building. Specialist collections could be re-housed, the Browne building properly conserved and user friendly and accessible facilities provided.

It would be a hugely wasted opportunity if the site was developed for other uses without seriously considering how it could, not just solve the existing problems of the central library but re-invent it in a form relevant to 21'' century aspirations. Option 4

Relocate all facilities and service elsewhere and use the Browne building for another purpose

This option must be considered if only to dismiss it. Obtaining another city centre site capable of handling all the collections is considered to be all but impossible and it is likely that such a relocation would have to be to a purpose built building on a green field site outside the city centre. The future of the Browne building would be extremely uncerfain and, whilst demolition is extremely unlikely, it is also unlikely fhaf it could be put to a new use of comparative public benefit, befitting its significance. Such an approach would not safeguard the long-term future of the Browne building, would not further the objectives of the Library service and could be seriously detrimental to the amenity of the World Heritage Site.

Option 5

Maintain the Status Quo

Doing nothing is not really an option. As a minimum, additional space will be required to house growing collections, building services which are nearing the end of their life will require to be replaced, and the requirements of the Disability Discrimination Act will need to be dealt with. Such an approach will continue to deal with the symptoms of the ailments afflicting the Central Library but will not cure the root cause of fhe problem. The ability of the Library service to provide a service of a suitable quafity to the citizens of Edinburgh will undoubtedly be compromised.

6 Agenda item:

Report title: Central Library Conservation Plan

In accordance with the Council’s Standing Orders, the contents of this report have been noted by the appropriate Executive Member.

Without prejudice to the integrity of the report, and the recommendations contained within it, the Executive Member expresses hidher own views as follows:

Signed: t+$PJ---

For information - Standing Order 57(1) states:

“Heads of Department will prepare reports, with professional advice and recommendations, on matters requiring decisions by the Executive:

> a report seeking decisions on matters of corporate strategy, corporate policy and corporate projects will be submitted direct to the Executive

> a report seeking decisions on matters relating to the special responsibilities allocated to an individual member of the Executive will be submitted, in the first instance, to that member. The member will add his or her own recommendation to it before submission to the Executive. Where the Executive member disagrees with the advice and the recommendation of the officers, the Executive member will also state his or her reasons.”

7