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Performance Changes Caused by Increases in Camden Libraries’ Opening Hours

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Performance Changes Caused by Increases in Camden Libraries’ Opening Hours PERFORMANCE CHANGES CAUSED BY INCREASES IN CAMDEN LIBRARIES’ OPENING HOURS In January 2009, Camden Council increased the opening hours of its public libraries. However, it did not increase the opening hours by a constant number or a constant proportion, but by a method which favoured bigger libraries. CPLUG had argued strenuously against this, but to no avail. CPLUG’s Concerns The suggested reason for increasing Camden’s library opening hours was that it would enable more people to visit the libraries. CPLUG did not disagree with this assumption and attempted to ensure that the available resources were allocated where they would do the most good, rather than where was most bureaucratically convenient. This “value for money” argument went unheeded. One of CPLUG’s major concerns was the effect that a large allocation of resources to the Swiss Cottage Library (library no. 3 in map below) would have on the surrounding smaller libraries. In the recent past, this library has benefited when other libraries have not. Thus, the public increasingly has tended to use Swiss Cottage in place of the local libraries. It is to be expected that this cannibalisation of the user pool will lead to a continually reinforced downward spiral for the small libraries and is a recipe for eventual library closures - very bad news for those who have difficulty travelling. It is also bad for community cohesion and for the environment. It is tempting to assume that the cost of implementing the opening hours changes is simply proportional to the change in those hours. However, the size of the library has a marked affect on the cost. Thus, the 14.5% (8 hours) increase in opening hours at Swiss Cottage almost certainly cost more than the 26.8% (11 hours) at Kilburn. There is little doubt that all other Camden libraries were not considered to be worthy of a similar investment and some appear to have been written off, as beyond help. To some extent, this appearance is (possibly) misleading and is the result of the simplistic method of resource allocation. There seems to have been an attempt to take into account past increases in opening hours (introduction of Sunday opening) for some small libraries by giving them a below average allocation i.e. Heath (+1 hour, 2.1%) and West Hampstead (+1 hour, 2.1%). However, this even handed approach did not extend to Swiss Cottage. It is obvious that, from the outset, it was intended that this library would get the lion’s share of the money available. The other favoured library in the allocation of additional opening hours was Kilburn. This library’s catchment area covers a generally deprived area. So a generous increase in resources could probably be justified on community needs grounds. However, this argument applies to several other areas in Camden where little was allocated. The conclusion has to be drawn that community need was not considered relevant or was of only small importance compared to the smooth operation of the Library Service itself. Map legend Mobile library stops Libraries Belsize Library Camden Town Library Chalk Farm library Heath Library Highgate Library Holborn Library Kentish Town Library Kilburn Library Local Studies and Archives Ctre. Queens Crescent Library Regents Park Library St Pancras Library Swiss Cottage Central Library West Hampstead Library Improvements in Library Performance Resulting from Increases in Opening Hours CPLUG has made one previous attempt to isolate from the Camden Libraries performance figures the affect of increases in opening hours. This was based on quarterly comparisons. It was found that random, short-term volatility (possibly due to small, local population changes) made this impossible to carry out with any acceptable degree of precision. Claims by the Council based on this method should therefore be discounted. The averaging effect of yearly comparisons make this a more reliable method and is the basis for this analysis. Camden Council claims that: “In 2009, both Library Visits and Issues were 6% higher than in 2008; Computer Use (Hours) were up by 16% and Computer Use (Sessions) were up by 15%”. This appears to be the case for Visits and Computer Use, but understates the improvement for Issues by almost a factor of two (see table below). One reason for this discrepancy is that the Camden figures include data for the Home Library Service and the Mobile Library. Whilst both services are of great value to the borough, they have not been subject to the changes in opening hours that are the concern of this analysis. The Library Service’s preferred measure for judging performance is the number of visits to libraries. The concentration on this figure has enabled the Service to downgrade the collapse in borrowing, which has occurred in the past two decades, to a minor mishap. This judgement is not shared by library users. Camden’s own survey has shown that 82% of library users use its libraries to borrow items, usually books. So, by the Camden preferred measure, the increases in opening hours have generated a worthwhile, approximately pro-rata borough improvement. This outcome was just what was expected. What was not predicted were the large improvements in Issues and Computer Usage figures. The implication of this novel situation is that people are spending more time in the libraries. They are not as rushed as they previously were. This may well be partly due to the additional opening hours, but may also be caused by them simply being unemployed and having nowhere else to go. It is accepted that unemployment is a lagging indicator in a recession. Therefore, for a recession starting towards the latter half of 2008, unemployment would be expected to rise significantly in 2009. This fits fairly well with actual unemployment data and can be expected to have generated a significant change in overall library user behaviour throughout 2009. Unemployment is a far more potent driver of attitude change than a few extra opening hours at the local library. When the 2009 CIPFA Actuals data is published, this theory can be tested as, if it is correct, most Library Services should show increases in book issues (CDs & DVDs cost money to borrow and are less likely to be on the “must get list” of the unemployed). For whatever reason(s), the comparison of the 2008 figures with those for 2009 shows a good improvement at the borough level. CPLUG never doubted that there would be such an improvement. It is an elementary retailing strategy to stay open longer, if you want to sell more. CPLUG was much more concerned by what may result at a community level – were there going to be losers as well as winners at this level. The table below breaks down the borough total to individual library performances. This is the data which is of importance to the various communities within Camden. Library Jan – Dec 2008 Jan – Dec 2009 % Op. Hours 2008 / 2009 Change % Issues Visitors Computer Issues Visitors Computer Change Issues Visitors Computer Hours Hours (actual hours) Hours Highgate 26639 74930 9967 27827 74144 11012 6.25 (+2hrs) 4.46 -1.05 10.48 Queens Crs 444.7 179813 24642 47185 175476 31057 6.1 (+3hrs) 6.18 -2.41 26.03 Regents Pk. 19037 66726 8976 21248 69065 9880 6.25 (+2hrs) 11.62 3.46 10.07 Swiss Cott. 272534 460420 71165 278387 512735 81812 14.5 (+8hrs) 2.15 11.36 14.96 Belsize 21072 45113 3424 22343 45284 3750 4.1 (+1hr) 6.03 0.34 9.52 Heath 60969 101779 6495 64071 100828 6716 2.1 (+1hrs) 5.09 -0.93 3.40 Kilburn 50909 203049 38458 59740 236950 45868 26.8 (+11hrs) 17.35 16.70 19.27 Chalk Farm 25282 59057 2661 27953 62188 2777 4.1 (+1hr) 10.56 5.30 4.36 Kentish Tn. 104123 227042 20276 107138 233494 22061 6.1 (+3hrs) 2.90 2.84 6.20 Holborn 93439 216310 28856 97479 224377 31341 6.1 (+3hrs) 4.32 3.73 8.80 Camden Tn 56505 161824 20216 60454 169116 24589 6.1 (+3hrs) 6.99 4.51 21.63 St Pancras 101442 211367 21376 108770 224828 25401 6.1 (+3hrs) 7.22 6.37 18.83 W.Hampstd 68170 89971 11785 73674 88569 12124 2.1 (+1hrs) 8.07 -1.56 2.88 Total 900565.7 2097401 268297 996269 2222421 310550 10.63 5.96 15.75 One immediately obvious local deviation from the overall borough picture is the fall in the number of visits to Highgate (map number 6), Heath (map number 5), Queens Crescent (map number 7) and West Hampstead (map number 1) Libraries. In addition, Belsize Library (map number 4) only just avoided a reduction in the number of visits. This is exactly the situation that CPLUG had warned was likely to be generated by the opening hours allocations. A puzzling aspect of the loser list is the inclusion of Highgate Library on it. This was considered by CPLUG to be a little too far from Swiss Cottage to be very affected by that library’s overly generous treatment. However, there is a bus service which passes both libraries, providing very easy travel between them. This was discounted by CPLUG because of its low frequency. A second interesting aspect of the loser list is the exclusion of the Chalk Farm Library (map number 9) from it. Far from being crushed by the nearby Swiss Cottage juggernaut, it is one of the two libraries (the other library is St Pancras) which have delivered a greater percentage increase in visitor numbers than the percentage increase in opening hours. Proportionally, the investment in these libraries has produced greater returns than the other libraries and they would probably have benefited from a greater share of the total resources.
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