Future Libraries: Change, Options and How to Get There

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Future libraries Change, options and how to get there Learning from the Future Libraries Programme Phase 1

Contents

Preface 2

Executive summary 4

Introduction 5

The reform and change model 6

Part One: Four models of reform 9

Service location and distribution 9 New provider models 10 Shared services across council boundaries 12 Empowering communities to do things their way 13

Part Two: The ingredients for generating change 16

Political and managerial leadership 16 Governance arrangements 17 Positioning library service to priority outcomes 19 Internal capacity to support change 20 Digital opportunities 22 External support and challenge 23 Analysis of need 24 Understanding current and cost performance 25 User and community engagement 26 Partner and stakeholder engagement 27

Future libraries 31

Further information 32

Appendix: The pilot change projects 33 Preface

When we launched the Future Libraries We have been hugely encouraged by the Programme in August last year, it was progress so far and with the partnerships that in recognition of our shared belief that have developed. The ten phase one projects innovation, led by the energy and experience have commissioned practical support and of local authorities themselves, was going advice to develop a wide range of options to provide the best recipe for modernising and ideas to save money while minimising libraries. the need for cuts to front line services and meeting communities’ needs. These include There was an exceptional level of interest new collaborations across council and in the programme – 51 projects submitted organisational boundaries, the use of digital expressions of interest with the participation opportunities and closer engagement with of over 100 local authorities. Ten were communities. taken forward involving 36 councils. This publication brings the learning so far to the We have widely shared the learning so attention of a wider audience. far with councillors and senior managers responsible for library services through The Future Libraries Programme is a events, online case studies and regular partnership between the Local Government communications. But the vivid examples Group (LG Group) and Museums, Libraries given in this document resonate far beyond and Archives Council (MLA), and is driven library services. The best libraries are by local authorities themselves. It is about at the heart of the council’s approach to sharing good practice. It is about library everything from lifelong learning to wellbeing, sector professionals increasingly looking to job seeking, volunteering, education and each other, and beyond their own service, to encouraging more people to get online. share and capture knowledge and to develop imaginative solutions that can save money We hope that the early ideas presented and improve outcomes for communities. And, here will add to those you are exploring crucially, it is about harnessing local political locally with your communities, partners and leadership and professional expertise in the neighbouring authorities. We are extremely same direction. grateful to the participating local authorities for their commitment to this project.

2 Future libraries – Change, options and how to get there We would be very interested in receiving Please email feedback to your comments on this document. [email protected] and we look forward to keeping you updated on progress.

Ed Vaizey Councillor Chris White Minister for Culture, Communications Chair, LG Group Culture, Tourism and and Creative Industries Sport Programme Board

Future libraries – Change, options and how to get there 3 Executive summary

Big challenges demand big solutions. In order to identify and secure sustainable Innovative approaches are opening up efficiencies and serve communities, the through the need to address the complex journey requires: challenges faced by communities and their councils. Library services can • time to deliver the change before savings become more effective and sustainable in begin to kick in (12 to 18 months), with the future by working with key partners, more time needed as partnerships get more for example communities, neighbouring complex (Tendering services out also takes councils and creative partnerships. time and needs to be planned into timelines) • commitment and appropriate engagement The Future Libraries Programme has on key issues from council leadership distilled some of the headline approaches (political and officer) that councils are pursuing and the essential success factors in developing, planning and • good quality management capacity implementing change. • strategic needs analysis that drives changes in provision The emerging delivery models are frequently hybrid – a combination of approaches to • effective engagement and communications meet local political priorities, community with communities and the media needs and aspirations and the ambitions of • open encouragement of external challenge other partners. The models in summary are: and support

• delivering the service network in different • ability to clearly and fairly apportion costs

ways through co-location or new, non- and benefits from new arrangements traditional outlets and service points between participants. • using external providers such as Trusts Investment in a good process will achieve and charitable companies, other councils the best outcomes both in terms of efficiency or through the private sector and effectiveness for local residents and • sharing services with other councils to communities. The publication sets out the varying degrees of integration main ingredients of the process, which aims to open up the possibilities and harness the

• empowering communities to do things in ideas of communities and partners. their own way. Change will only happen if political leadership and professional expertise are harnessed in the same direction. Hence this publication is aimed at those leaders who will drive the change.

4 Future libraries – Change, options and how to get there Introduction

This publication is for leading members It also includes learning from other councils and chief officers and charts a route developing innovative approaches. along a change process for public libraries towards a choice of destinations. The Future Libraries Programme is still ‘work in progress’ and does not purport to have all All public services face continual challenges the answers. However it has invested time of improved efficiency and effectiveness. and effort and generated enough learning More than ever, the current financial to be worthy of sharing at this stage, so environment is testing and challenging the that councils considering the future shape ability of political and managerial leadership of their library services can benefit from to deliver change, meet community needs the knowledge, experiences and emerging and save money. solutions.

Public library services are one of the This publication does not aim to be a most highly valued local authority elective technical ‘step by step guide’ to follow services. They attract a wide spectrum of sequentially or to a specific blueprint. There the community, from young to old and from are other documents produced by MLA all backgrounds. They are valued not just for and LG Group and available through their the range of services they provide but also websites which address specific aspects for the shared public spaces and focal points of library service provision in more detail. they provide in communities – from town Rather, it distils some of the potential and city centres to urban neighbourhoods delivery models for future libraries and the and rural villages. As a result, any proposed key ingredients in a change process to changes to library services can spark voluble determine the best options for your council campaigns and legal challenges, as has and communities. been the case over recent months. It invites political and managerial leaders This publication is for leaders of councils, to invest in a change process that will have elected members, chief executives, the greatest potential to deliver the statutory corporate directors and senior managers requirements for a ‘comprehensive and who are reviewing their approach to the efficient library service’ which not only saves public library service. It sets out the learning money but serves communities in a twenty from the ‘Future Libraries Programme’ which first century context in terms of demographic supported 10 change projects involving and social trends and digital opportunities. 36 councils, helping them to innovate and develop robust solutions to the challenges they face.

Future libraries – Change, options and how to get there 5 The reform and change model

The learning from the Future Libraries At the heart of the model is ‘improved efficiency Programme has enabled us to develop a and effectiveness’, in which, simply put: powerful model to support councils who want to reform and change their library • Efficiency = ‘doing things in the right way’ – services. being cost effective and providing value for money. The publication is organised around the • Effectiveness = ‘doing the right thing’ – setting ‘Library reform and change model’ which the right targets and outcomes to meet the has emerged through the Future Libraries needs and aspirations of communities. Programme.

Partner and Political and stakeholder managerial engagement leadership

User and Governance community arrangements engagement

Service Shared location and services across distribution council boundaries

Understanding Positioning current cost Improved library service to and performance efficiency and priority outcomes effectiveness New Empowering provider communities models

Analysis Internal capacity of need to support change

Digital External support opportunities and challenge

6 Future libraries – Change, options and how to get there Part One of the document describes the four inner circles which are delivery options for public libraries, some already existing and others emerging. These are not single models – they contain variables within them – nor are they mutually exclusive – they overlap and can be explored and developed together.

Part Two of the document sets out ten ingredients of change indicated in the outer circle. These can be pursued concurrently and built into a project plan. They were all identified as important success factors in developing, planning and implementing change.

Future libraries – Change, options and how to get there 7 8 Future libraries – Change, options and how to get there Part One: Four models of reform

Library services can be delivered in new ‘Rationalisation’ must be underpinned by and creative ways which engage and a thorough analysis of people’s needs serve communities. This change process and councils must be able to demonstrate should be led by the energy and expertise that those needs will continue to be met of councils themselves. The solutions will from the rationalised service. In terms of reflect local needs and aspiration and use defining need, it is both the needs of the aspects of several delivery models. population as a whole and the specific needs of particular groups such as children, The four models outlined in part one are: older people, and those experiencing social and economic deprivation that need to be • service location and distribution analysed and addressed. This approach • new provider models requires a strong commitment to collecting • shared services across council boundaries data and evidencing the required patterns of service provision that best meets these • empowering communities to do things their needs within the context of the overall way. envelope of resources available. Service location and A number of the pilot projects have developed comprehensive approaches distribution to needs analysis and assessment in the general and specific context, more By breaking down the barriers of sophisticated than perhaps in the past. There tradition, councils are bringing libraries is more about this in Part Two. into the 21st century and meeting the needs of a new generation of library Many councils have already used the users. Co-location provides opportunities ‘service location’ approach to co-locate a for increased access and reduced costs. range of other council and public services in one building. For many councils, the starting point for change has stemmed from the need to rationalise often Some councils are putting existing libraries outdated and inefficient building stock. In other at the heart of their communities by opening cases councils have looked at rationalisation up council customer service points and using options for libraries with lower usage, such them as a venue for police surgeries, health as reduced hours. Customer expectations centres and volunteer groups. are also changing in terms of the kinds of information and services people want and how they want to access them.

Future libraries – Change, options and how to get there 9 Others are co-locating libraries in shops, New provider models sports centres, village halls and children’s centres, enabling services to share costs, A new delivery partner as an alternative extend opening hours and provide a more to in-house provision requires a thorough accessible service. options appraisal prior to procurement.

The Bradford pilot is developing ‘Library A number of councils are investigating Link points’ in shops across the city. This will delivering library services with new partners require an initial investment in self-service or in different arrangements such as trusts, hardware and shelving, which will be offset private sector providers or other council by future savings. partners – as in the case of Essex County Council working with Slough Borough The key support required is needs and usage Council. Some are including their library data identification, service planning tools services within wider delivery arrangements and external consultant or peer support and by including sport, leisure and/or arts to challenge to the service planning process. serve wider community needs in one place.

“The focus for the service will be This approach, above all, requires a to extend access to the service thorough options appraisal ahead of taking involving partner organisations procurement decisions. and commercial outlets and use self-service, digital access and In some cases, where councils have existing leisure trusts, they are looking to them to outreach services to bring the deliver library services. Wigan, Rochdale and service to a wider community Salford and others amongst the pilots have than is currently served by the already implemented this. network of static libraries and mobile library provision.” A private sector provider now operates in Hounslow and other new providers (Bradford Council) are entering the market opening choices and comparators for financial and service When services are co-located it becomes performance. easier to create community hubs that offer a range of services from the library. For Following a competitive dialogue tendering example, Essex County Council’s library process, Slough Borough Council has staff provided customers of Braintree District entered into a strategic delivery partnership Council with a front office service that with Essex County Council who will deliver includes giving advice and recording details. Slough Borough Council’s library service This includes a range of services from waste under contract for the next five to eight years and recycling to parking and council tax to share expertise and reduce costs. advice.

10 Future libraries – Change, options and how to get there Perhaps because library service managers “A review of the library service have not had the experience of compulsory was completed in September competitive tendering and externalisation, 2009. At the time the council’s some library professionals are now only going through for the first time the cabinet decided to seek another professional challenges that sport and partner, from the private or leisure and parks mangers went through in public sector, to help improve the 1980s and as a result it is taking time to libraries and help reduce the develop the skills and experience required to cost of administration. Since manage options appraisal and procurement January 2011 Essex County processes. Council has been running our Such approaches require careful libraries. Slough Borough Council consideration to separate the commissioning is pleased to have made major and provider functions and the location of improvements to libraries over the professional service advice required to the past two years, including ensure statutory requirements are met. increasing opening hours over 25 Conducting an options appraisal is a per cent, self service and three thorough process which takes time and often new self service satellite libraries, leads to implementing changes which do not and these are being sustained deliver savings for a few years. However, and embedded most effectively it is often possible to start making smaller with support from Essex County scale savings within the first year or two of a Council. The new management change programme. arrangement has secured 15 per The key support required includes front end cent efficiency savings through advice on the process of option appraisal economies of scale and delivered and on the different delivery models currently real improvement to customers available, access to examples of where through importing expertise and these models are now working and legal good practice from our partner.” support through the process where this is not available in house, or even in some (Slough Borough Council) instances where it is. The experience of the Future Libraries Programme projects highlights the importance of independent support and challenge to the process of managing complex change.

Library managers should seek advice and support corporately, especially from those services in the council or in neighbouring councils with a track record of delivery through different models.

Future libraries – Change, options and how to get there 11 Shared services across This process must be underpinned from the outset by a consistent and transparent way council boundaries of measuring and comparing service costs in the different councils, particularly where A growing number of councils some library services may have already are exploring joining forces with identified and made substantial interim neighbouring authorities to make savings. Long term partner relationships stretched resources go further. will depend on achieving fairness in the Eight out of the ten pilots in the Future identification of savings generated through Libraries Programme involved two or more new opportunities for shared services. There councils, with ten councils involved in are further implications of employment one case. Their experience shows that a legislation and human resource policies, for ‘convenor’ needs to be identified to lead the example, in relation to TUPE. process. In addition, this approach needs to recognise Levels of sharing can range from: and manage the implications of merging sometimes very different organisational • mergers of specific functions such as cultures. Managing the data, the political bibliographic services negotiations and cultural change suggests • remodelling and sharing specific services this is a long term option for achieving such as mobile or home library change. There is thinking that suggests that shared services should be undertaken as • back office mergers, including shared the last stage of an efficiencies programme library management systems because of the complications in aligning all • shared specialist and professional services parties to the same position to benefit from • joint strategic management structures the consequential savings. • fully merged services. The key support required includes financial expertise to develop transparent costing Emerging evidence suggests that back office models, officer and member peer brokerage mergers alone may save 5 to 10 per cent skills and support for organisational culture whilst full service merger across a number of change. councils could achieve savings in the order 10 to 25 per cent depending on the number of councils involved, locality (rural or urban) and current practice.

This approach requires strong political engagement from the outset to negotiate and agree the optimum relationship between the level of achievable savings and maintaining acceptable levels of local accountability for the service.

12 Future libraries – Change, options and how to get there “The aim of the south west Empowering communities to consortium was to design a do things their way single entity to be able to deliver the ‘library technical’ elements In some areas local people want to play of library provision – particularly a more active role in running libraries, systems and processes relating and councils are working through the to stock procurement and implications of this for their statutory duty under the Public Libraries & Museum Act management. Through this 1964 to provide a comprehensive and collaborative approach it was efficient service. estimated that savings between 4 per cent and 15 per cent could be There are a range of approaches already achieved.” underway or being explored. These include: (South West Peninsula) • transfer of the library asset to an existing established community development trust, “Our pilot involved the preparation voluntary body or social enterprise of a feasibility business case • transfer of the library asset to a newly for a combined library service. formed community organisation or social We believe that the proposal to enterprise operate as a combined service • transfer of library management to an is a significant step change in existing or new community organisation service delivery; one that has • new arrangements with town or parish potential to enable existing councils vulnerable specialist services • increased use of volunteers to run libraries thrive whilst offering users access or to work alongside professionals to to a much larger and deeper support opening hours and services. collection across a significantly larger geographical area.” These approaches could vary from library to library with bespoke arrangements (Kensington and Chelsea, Hammersmith appropriate to local capacity and and Fulham and Westminster councils) circumstances. In some communities there may be a well established community trust or voluntary body which has the necessary skills and experience and is readily able to take on new services. Other areas may require a programme to build capacity and skills which may take time.

Future libraries – Change, options and how to get there 13 The pilot with Suffolk County Council is “The main objective is to focused on community governance. Giving implement Suffolk County local people a bigger role in running library Council’s new strategic direction services is an opportunity to strengthen local civic society but it poses challenges in a library context. This too. In particular, how does a community includes investigating options governance model reflect the fact that the for community governance of statutory requirement to provide a library libraries, along with other council service rests with the council? What is a core services. Communities will be library service? How will the council guard given more say and choice over against, and respond to, service failure, or if services so that library services local people decide they no longer want to can be delivered through, run the library? for example, town or parish The early learning from the Future Libraries councils or other community Programme suggests that councils who organisations.” follow this path need to develop a strong (Suffolk County Council) commissioning model that provides a clear framework setting out how the council is “Staff and councillors have discharging its statutory functions and giving been meeting with people and clarity about what services the council organisations expressing an provides and what services the council has commissioned local people to deliver. interest in taking on their library and attending parish council Many councils will observe progress meetings. They have also in places like Suffolk County Council taken part in technical meetings before moving ahead in this direction in a organised by SALC (Suffolk ‘wholesale’ manner. However, many are exploring and implementing aspects of this Association of Local Councils) approach where there is local community with representatives from other readiness around individual libraries. council services preparing for divestment.” The key support required for this approach appears to be legal. The Suffolk County (Suffolk County Council) Council project is clear that having the external legal support has been extremely beneficial. Going forward, as councils try to judge what they wish to achieve against the statutory requirement, this sort of support will continue to be needed. Sophisticated community engagement skills are also essential to encourage creative solutions but also to connect with the most disadvantaged and disempowered communities.

14 Future libraries – Change, options and how to get there

Part Two: The ingredients for generating change

In distilling the learning from the ten Political and managerial pilots, 10 key ingredients for generating leadership significant change were identified. They are all important and can be Change will only happen if political pursued concurrently, through a project leadership and professional expertise are management approach. harnessed in the same direction. The ingredients of change described in this Public libraries have a strong brand and section are: are valued as a community service even for • political and managerial leadership people who don’t regularly use them. As we have seen already there is a high level of

• governance arrangements public interest in any process of change to • positioning library service to priority the service. outcomes We need to make our libraries work for the

• internal capacity to support change local priorities that local, democratically • digital opportunities elected politicians have identified in • external support and challenge consultation with residents. Political leaders need to be involved from the outset in the • analysis of need process to define need, understand what • understanding current and cost the community wants from its library service performance and to balance this with economic and legal constraints on the level of change required. It • user and community engagement is important to ensure members understand • partner and stakeholder engagement. the statutory and legal requirements and the risks of both action and inaction and that these are clear early in the process.

16 Future libraries – Change, options and how to get there The delivery models outlined in part one “The main objective is to have very clear political implications for the implement Suffolk County future delivery of services – whether they Council’s new strategic direction are retained in-house, delivered through a partner, trust or private contractor, co-located in a library context. This with other public or commercial services, includes investigating options shared with neighbouring authorities or for community governance of delivered by communities. These are libraries, along with other council important political choices with short and services. Communities will be long term implications. given more say and choice over Managerial leadership is equally important, services so that library services not only at a library head of service level can be delivered through, but also at corporately at chief executive for example, town or parish and director levels to secure corporate input councils or other community and maximise cross-service opportunities. organisations.” A ‘champion’ at executive director level is (Suffolk County Council) essential. “Through the member based Governance arrangements sessions, the programme has enabled the political process, There is a balance to be struck between which will lead to key decisions how radical the change should be, the being better informed around future governance and accountability arrangements for the council and the the needs, aspirations and level of savings that can be achieved. challenges facing the library service.” Whichever delivery model is adopted, the council retains statutory accountability for the (Herefordshire and Shropshire councils) library service within its boundaries.

“The local political desire to share Where working across boundaries or with more services across three areas communities, mechanisms need to be served to ensure that savings identified and put in place to ensure good should be identified as part of governance and clear accountability and this process. A specific, facilitated some councils are negotiating ‘sovereignty session was held with senior guarantees’. Potentially greater levels of officers and finance specialists savings can be achieved through greater from each borough and savings levels of merger. However this needs to be balanced with responsibilities and political identified, initially by proposing to will and direction. rationalise management costs.” (Kensington and Chelsea, Hammersmith and Fulham and Westminster councils)

Future libraries – Change, options and how to get there 17 In the models that move away from in-house “A broad commissioning direct provision a commissioning model framework can be used to is emerging. Here, the council defines the engage any supplier (commercial needs and priority outcomes, appraises the options and procures a provider. It is operation, community group, local important to retain professional expertise authority, third sector/volunteers) in house to specify, select, monitor and in the delivery of library services. review the contractual arrangements with the An outcomes-based specification, provider, be they a trust, private contractor or rather than a service-based a series of community organisations. ‘shopping list’ gives suppliers

The ‘Lincolnshire group’ of councils more scope and flexibility, whilst combined working across boundaries ensuring that libraries continue to and commissioning through developing a provide quality, vital services that ‘memorandum of understanding’ between the make a difference to local people councils, a commissioning framework, and and communities and meet their outcomes based specification and are in the needs.” process of options appraisal. (Beyond Boundaries – Lincolnshire, “Each borough has committed Rutland, Cambridgeshire, North East to a ‘sovereignty guarantee’ Lincolnshire and Peterborough councils) whereby the distinct nature of “We plan to establish a library each borough’s services should services partnership board across be protected whilst seeking to Hereford and Shropshire to share services between the provide strategic leadership and three. All three councils are oversee the implementation of the committed to continuing to future service framework.” represent the needs, priorities and ambitions of local people (Herefordshire and Shropshire councils) in their neighbourhoods via this guarantee. The project specifically avoided proposing changes to front-line delivery until a stable rationalised management structure is in place.” (Kensington and Chelsea, Hammersmith and Fulham and Westminster councils)

18 Future libraries – Change, options and how to get there Positioning library services The alignment can operate at a number of levels, from how libraries contribute to help achieve priority towards high level outcomes for individuals outcomes and communities to how the council and its partners aspire to deliver services and ‘do The best libraries are showing they can business’. Libraries can be positioned in the provide a wide range of services, from following ways: helping people to find a job, to applying to be a volunteer for the 2012 Games, and • helping to achieve outcome areas which being a meeting place for reading clubs are challenging for the council such as and homework groups. reading levels, access to job seeking support and information, promoting Libraries can contribute to a wide range independence for older people of better outcomes for communities – from children and young people to older • providing service access points in people, health and wellbeing and stronger neighbourhoods and rural communities communities to access to education, skills and • providing a focus for community employment. In the current economic climate engagement activity through meeting it is even more essential that library services space, volunteering, community activities, have a clear strategic vision and purpose that particularly in areas of deprivation or with powerfully demonstrates how access to public low car ownership, limited public transport information helps the council to achieve its and low computer ownership wider political and corporate objectives. • empowering communities, including asset For many decades, libraries have developed transfer and community management. good practice across a range of outcomes “The key alignment to council and demonstrated innovation in partnerships and programmes to meet the needs of priority outcomes is the outcomes new communities or changing customer based specification which now circumstances and choices. includes performance indicators that are linked to key outputs. However this has not always been reflected This is the building block for the in strong corporate buy-in at the level of the council executive and corporate future – whoever runs the service. management team. One of the key lessons A common set of outcomes and from the Future Libraries Programme pilots performance indicators across a is the need to position modernising libraries boundary region will deliver greater within and alongside wider transformation accountability, comparability and programmes taking place in the council. This transparency, and lead to more opens up other opportunities, including the efficient and effective performance opportunity to access other funding streams, management.” co-location and shared services within council boundaries, new ways of delivering Beyond Boundaries – see Appendix) services and making savings.

Future libraries – Change, options and how to get there 19 “The project linked into the Internal capacity to support ‘Changing our Council’ (CoC) change programme underway across Bradford Metropolitan Borough Project management capacity and Council. This seeks to improve financial, legal, HR and procurement the business processes of the support is essential. Pilots also council. The work streams for valued additional support in needs analysis, options appraisal, community the CoC programme include engagement and member and partner customer and citizen services, engagement. delivery, commissioning, procurement and contract The scale of the financial challenges means management, strategic support that this is not a simple budget efficiency exercise. Most of the pilots were looking at services and transactional how to achieve savings of up to 30 per cent, support services, leadership of something which required significant scrutiny place and community. There are of their existing service and the search for also a number of cross-cutting, new and different solutions to deliver the enabling workstreams including service in the future. They were seeking employer of choice, property, ICT transformation as opposed to incremental and sustainability. This project change. links through to the customer and So, in keeping with political and managerial citizen services work stream(s).” leadership, development of appropriate (Bradford Metropolitan Borough Council) governance and alignment with corporate priorities, there is a need to allocate resources to manage the process – both in terms of planning and implementing the change process.

Legal advice was key in all the pilots but particularly in those looking at divesting to communities and shared services across council boundaries. Commissioning and procurement support is essential for those looking to new providers and ICT and property support is also essential in all the models.

20 Future libraries – Change, options and how to get there Human resource support is also vital, “We had the support of a member especially to support regular engagement of of the council’s legal team to staff and trades unions and to keep everyone assist us in our meetings with informed of the personnel implications and regulations. This clearly increases as our external consultancy support, the models develop and move towards Bevan Brittan, to get the most consultation and decision making, prior to from our time with them and who implementation, but early involvement of staff also found their advice helpful. and trades union is essential to the success Similarly the ‘in-house’ finance of the process. team were able to analyse and represent budgetary information “Day to day management of the to provide ourselves and our project was through a joint project communities with indicative team convened with senior costings and comparative unit membership. This was key to the costs. Our key learning from the success of the project. The joint project is around understanding Northumberland and Durham our statutory responsibilities council project team met weekly under the Public Libraries and throughout the project in person Museums Act and how they or by conference call. It was co- could be discharged through a chaired by the heads of libraries delegated service model. We and culture in Northumberland have also worked up a core and Durham and also included service offer. This has resulted senior library service managers, in a devolved governance senior ICT officers, other services model with a light touch service as required and the MLA. description which we feel will Northumberland also assigned a work in Suffolk with its emphasis project co-ordinator to support the on communities, but could be project team”. used elsewhere. We have learned (Northumberland and Durham councils) that the model we are following is far more complex to achieve than we originally thought, and things we thought were straight forward such as TUPE and asset transfer are not that clear cut.” (Suffolk County Council)

Future libraries – Change, options and how to get there 21 Digital opportunities • New technology and innovation – understanding how new technology The digital revolution presents a huge might transform services in the future. opportunity for library services to This includes eBooks, digital access, broaden their appeal and improve at fundraising on-line and APIs and Mash- doing what they do best. ups (ways of combining and presenting information in new ways). Research undertaken for the Future Libraries Programme considered how digital Some digital initiatives may require technologies could support the future of investment up front in order to realise public libraries in delivering more efficient savings. Others may generate savings or and effective services. This research be additional services which open up new considered the experience of the pilots, best opportunities for users without necessarily practice in the sector and innovative ideas reducing costs. from other sectors. “Library Lookup is a way of Broadly, there are digital opportunities in four checking whether books on spheres: Amazon are available in your local • Engaging users and communities – using library. Library Lookup is released digital technology and insight to connect under ‘creative commons’, so with users and communities in a new can be implemented for free. It way. These include the use of customer uses two accessible datasets (the insight, using SMS, email and social Amazon catalogue and the library media communications and exploration catalogue) and compares ISBN of a single library card and related numbers. This ‘mashup’ creates a marketing opportunities across a number new service that wasn’t available of authorities. before”. • Combining and consolidation – combining existing library services, in whole or in (Future Libraries Programme digital part, to achieve scale and reduce costs. research project) Initiatives include developing a single “Age UK and Sure Start centres service business case, shared service plans, commissioning frameworks and are involved in the e-Reader pilot single back offices, streamlined catalogues so that outcomes for older people and enquiries and other joint service and children and young people models. can be evaluated”. • Reconfiguring services – changing the way (Northumberland and Durham councils) that library services are delivered: new locations, new models of delivery, new services and new partnerships.

22 Future libraries – Change, options and how to get there External support and The programme nationally invited partners to offer expertise, knowledge and challenge challenge – partners included the Reading Agency, Audiences UK, Royal National Institute for Specialist advice can help unlock some the Blind (RNIB), and the Development difficult challenges, avoid pitfalls and Trusts Association. At a local level, a number open up new opportunities. Challenge of the pilots similarly involved external sessions can assist members and partners on their boards. senior teams to clarify their thinking and direction. This range of external support is a key ingredient to help councils learn from the Each of the pilots in the Future Libraries experiences of others and to provide a check Programme was allocated £10,000 to and challenge to their emerging approach. meet the cost of external support. Initially, each project had access to MLA support to “The support provided was enable them to put together a bespoke and appropriate support package to help them initially used to facilitate meetings meet their individual challenges. Councils and discussions between senior could commission support from specialist officers from the three boroughs advisers appointed by MLA or LG Group or to identify the preconditions they could commission their own support of success for this proposal from other providers. (eg identifying a common core The advisors provided a range of support libraries offer and identifying including specialist knowledge and expertise material considerations such as in library services, specific disciplines such buildings and technology). Views as legal advice, knowledge from around of local lead members were the country, facilitation of learning and also captured via this support development sessions with project teams, package. Further support was members, staff, partners and communities provided to undertake business and brokerage of cross-boundary analysis (user data, staffing rates relationships. They also added capacity by writing up reports and distilling the key issues. and structures) on behalf of the three boroughs. In the latter The pilots also had access to appropriately stages, the consultancy support qualified and experienced member pulled together the information and officer peers to help build capacity, gathered from the above activities confidence and sustainability by sharing into a draft report for officers knowledge and experience and providing challenge within the process. The Future in each of the boroughs to Libraries Programme found member peers consider.” to be of particular value and they are a (Kensington and Chelsea, Hammersmith resource that councils can potentially make and Fulham, Westminster councils) more use of in their change process.

Future libraries – Change, options and how to get there 23 “We had the input of a peer who “Audiences UK (through &Co) challenged and stimulated the were commissioned to carry out pilot.” geographical data assessment (South East group) (including mapping) of service usage, need and demand Analysis of need in the boundary zones. The partners asked for intelligence Planning future library services requires on the crossover of catchments a sophisticated understanding of local of libraries on the borders of needs. councils, the variations and An effective service can only be achieved by themes in levels of provision understanding community needs in general (including socio-demographic and specifically in relation to particular information, travel/drive times, sections of the community. multi-service point usage and over/under provision) and Joint strategic needs assessments are for Audiences UK to make already a rich data source in relation to demographic trends and social, economic, recommendations for a standard health and wellbeing measures. A number of approach to analysing library data the pilots supplemented this with data from across council boundaries.” regional observatories. (Beyond Boundaries) In terms of the needs of particular sections of the community, again, a number of pilots supplemented ward profiles and deprivation indices with commercial data sets relating to shopping patterns, travel maps and other demographic information mapping.

Needs assessment must take account of trends and future projections and particularly the needs of the most disadvantaged communities. Equality analyses (which have replaced equality impact assessments) should be applied through the process.

24 Future libraries – Change, options and how to get there “The main objective of our “The programme has allowed us project was to understand better to refine and target our community user and non-user needs and needs analysis work – harnessing behaviours. We are using the a range of datasets from the analytical tool that we have Bradford Observatory and also developed to progress this work from our library management further in a number of areas. system to identify community These include: Examining how needs in relation to access to stakeholders travel about the library services across the district”. county, showing how users (Bradford Metropolitan Borough Council) make use of multiple service points, assessing how catchment Understanding current and areas for libraries either overlap or are distinct, pinpointing cost performance clusters of need across our A solid baseline of actual costs and authorities, identifying precisely comparators with other councils is crucial the number of stakeholders in at the start of the change process. categories of need that may be For many of the pilots, a solid baseline affected by different models of wasn’t straightforward as they often library provision, targeting our lacked good cost data and were already consultation with stakeholders to implementing in-year budget reductions particular groups or communities. which affected their ‘bottom line’. So, new These insights have allowed us opportunities often needed to be realised in to progress to the next stage addition to savings already proposed. The of identifying proposals of projected savings listed in this section reflect how to satisfy that need. The work undertaken up until May 2011. intelligence we gained through For those exploring shared services across this tool is enabling us not only council boundaries it was necessary to develop to address the very local and an agreed financial analysis model so that specific needs of library users in true comparisons could be made and financial individual communities, but also benefits of sharing identified. In this model some the more general needs of all our of the participating authorities were already pursuing new models of service delivery but customers”. still engaging in the wider collaboration. For (Oxfordshire and Kent councils) example, the London borough of Lewisham is planning asset transfer of five buildings to local community groups, Herefordshire is exploring positioning libraries in a wider cultural trust and in Shropshire libraries will be strongly linked with customer service centres.

Future libraries – Change, options and how to get there 25 At this point in the Future Libraries “The aim was to drive out costs Programme most of the pilots have identified in the library back office functions the level of potential savings but as these are and to encourage channel not yet implemented actual savings will need to be measured at a later juncture. migration and e-enabled usage of the service, and to increase Northumberland and Durham councils access and usage. Through this used a simple but effective measure in their collaborative approach it was engagement and development process – the estimated that savings between 4 ‘£2 for £3’ test. They developed ‘prototypes’ per cent and 15 per cent could be for different parts of the service and these were required to provide an alternative achieved through the four library means of delivering some element of the authorities working together”. library service, and achieve for £2, what (South West Peninsula) currently costs £3 to achieve.

The South East Libraries Performance User and community Improvement Group of seven councils engagement identified short term savings from some remodelling and sharing of specific services It is never too early to engage the in the first year, medium term savings from community in the process. shared professional services and strategic management over two years and longer- Some suggest that engagement too early term projections of up to £7 million for one can generate fears and that engagement too service across all seven councils. The late results in people feeling decisions are Kensington and Chelsea ‘group’ identified already made. But for a meaningful process, potential savings of between £1.5 million and generally the earlier the better is the maxim. £1.8 million per annum by 2014/15 from a There is a huge difference between engaging combined service. with communities on the future delivery of Obviously, factoring the additional costs of services and consulting with them on a set change is essential, including changes to of proposals. The dynamics of the processes IT systems, refitting of new service outlets are entirely different and produce significantly in different premises and the resources different outcomes. necessary to support the change process The process adopted in Northumberland especially legal, financial, human resource, and Durham councils gave communities and procurement, property, consultation and other stakeholders as much information as communications costs. In the financial possible about the challenges and left the modelling, it is important to consider debate on solutions completely open. investing to save over a five, ten or even fifteen year period.

26 Future libraries – Change, options and how to get there They were open about the ‘£2 for £3’ “The engagement and challenge. This enabled solutions to be consultation has had a significant developed together and enabled innovation impact on the recommendation and bespoke arrangements to emerge. This engagement will be continuous as the of the report. This will inform the change process is implemented. future community engagement activity, including service level So, a good communications plan is essential agreements with voluntary and information about the change process organisations and development of must be managed well. There needs to be community libraries in community confidence from the community that the process is an open and transparent one, that shops and post offices to enable options can be explored before a preferred access to stock. However, the option is identified and that there will be no engagement also highlighted decisions until after effective consultation. New the need to have ‘professional’ ideas should be piloted transparently to test support and backing through the if they can work, focusing on identifying the local authority”. “bottom up benefits” to users and communities (Herefordshire and Shropshire councils) before top down benefits in terms of savings, so generating greater “buy in”. Partner and stakeholder “The solution is likely to be different engagement in each community. Through the continued support of and Collaboration opens more doors more communication with community widely. groups, the ‘prototypes’ that have Library staff are key stakeholders. They emerged through the pilot could have the knowledge, skills and experience of achieve real ‘bottom up’ benefits working with communities and the technical to both councils. Delivering and operational know-how which needs prototypes is actually a form of to be harnessed and their input ensured. action research where communities These are difficult times for staff, but, as with are fully engaged in the trial and communities, the earlier the engagement and its evaluation, to help identify the the better the communication, the better the benefits and disadvantages of outcomes overall. the scheme. This will enable any The benefits of partnership are well subsequent roll out to be based documented and those pilots that invested on sound and robust information time with stakeholders found real benefits and experience. It will increase the and value to the process and the long term chance of obtaining widespread sustainability of the service. community support”. (Northumberland and Durham councils)

Future libraries – Change, options and how to get there 27 “We have had three workshops The Suffolk Association of with staff. The first two were Local Councils has been intended to get staff thinking on very supportive, circulating the library offer and to look at the information, giving feedback proposed governance model in and facilitating events for town a way that would challenge our and parish councils to discuss initial ideas. The third was for the issues with Suffolk County mainly frontline staff who had Council representatives.” been less involved in the project, (Suffolk County Council) to review the final documentation and how it would work in practice. “What has been striking about the project is the extent that We found the sessions other partners and stakeholders challenging and interesting. They have been willing to help us have definitely helped to engage as library managers confront staff in the process. the challenges we face, solve We had a representative from problems, and seek innovative SAVO (Suffolk Association of new service models. The project Voluntary Organisations) on the has received direct support from project board who was looking individuals in over 50 partner at the process from the potential organisations who attended provider standpoint which was the 2 cross authority prototype helpful when we came to produce development workshops. Those the service description. This in who contributed to the process turn helped them gain an insight have come from other teams in into the potential help community the two local authorities (eg Sure groups might need to undertake Start and Connexions); other running a library. public agencies including colleges Stradbroke Parish Council and universities; local community reviewed the documentation organisations, village halls, and gave us feed back on its charities and development trusts; helpfulness. and businesses including the Post Office. The workshops were then followed up with individual meetings to develop viable prototypes for trial.

28 Future libraries – Change, options and how to get there The key point is that willingness to help has not been confined to contributing to discussions – but has extended to taking practical action. As a result, prototypes being taken forward in 2011, Community Book Points and the e-Book Reader trial will be delivered in partnership with community organisations and other statutory agencies. Partners (including community and village halls, Age UK and Sure Start) have agreed to take on practical roles in the day-to-day delivery of the prototypes.” (Northumberland and Durham councils)

Future libraries – Change, options and how to get there 29

Future libraries

The best solutions come from the best The ten key ingredients for planning for processes. change are not sequential but broadly fall into four groups. First is the strategic This is the learning so far from the Future framework – leadership, governance and Libraries Programme. corporate priorities. Secondly are the capacity issues – internal capacity to support It must be recognised that the pilot projects change, external support and challenge and now have to be implemented. Many of the opportunities to exploit digital solutions. the councils are only just embarking on Thirdly is the technical information basis – consultation ahead of taking final decisions specifically community needs analysis and on the future shape of services. It may be understanding current cost and performance. that as a result of consultation proposals Fourthly, are the essential relationships with change. It will also be important to track communities, staff and stakeholders. implementation in these projects if we are to confirm that the proposals work and actually There is other documentation coming from improve efficiency and effectiveness and it this project, other sources of information and could be a number of years before a final a community of practice to share learning judgement can be made on this. and experiences as authorities take their plans forward. Some of these are listed on Nevertheless, there is sufficient emerging the ‘Further information’ page at the end of thinking and learning from the process so far this publication. Phase two of the Future for this to be shared, particularly as time is Libraries Programme is also being scoped, pressing in many authorities to address this. to ensure that innovation is encouraged, In summary, the four delivery models are lessons learned and achievements not single simple arrangements – there are celebrated. alternative options within them and evidence What is already clear, as ever, is that of ‘mix and match’ arrangements being investment in a good process will achieve adopted across councils. the best outcomes both in terms of efficiency and effectiveness for local residents and communities.

Future libraries – Change, options and how to get there 31 Further information

• Future Libraries Programme: Final Reports • Advice and guidance on engaging and from Pilots, March 2011 consulting with communities during change http://www.mla.gov.uk/what/programmes/ http://www.mla.gov.uk/what/policy_ the_future_libraries_programme/~/media/ development/communities Files/pdf/2011/libraries/Appendix_2_ • The Shared Services Architect’s Toolbox, Future_Libraries_Programme_Final_ Shared Services Architects Ltd 2009 Reports_from_Pilots_March_2011.ashx www.sharedservicearchitects. • Future Libraries Programme: Final Report co.uk/images/SSAToolbox- to Governance Board SeeInsideExampleChaptersandTools.pdf http://www.mla.gov.uk/what/programmes/ • Community of Practice. the_future_libraries_programme/~/ http://www.communities.idea.gov.uk/comm/ media/Files/pdf/2011/libraries/Future_ landing-home.do?id=8069545 Libraries_Programme_Final_Report_to_ Governance_Board.ashx • Future Libraries Programme: Thinking about Digital initiatives http://www.mla.gov.uk/what/programmes/~/ media/Files/pdf/2011/libraries/FLP_ Thinking_about_Digital_Initiatives • Community Managed Libraries http://www.mla.gov.uk/what/policy_ development/communities/~/media/0FA94 424234F4EEBA40866BCB5C6F840.ashx • What do the public want from libraries: A practitioner guide http://www.mla.gov.uk/what/programmes/~/ media/Files/pdf/2010/libraries/What_do_ the_public_want_from_libraries • A Local Inquiry into the public library service provided by Wirral Metropolitan Borough Council, September 2009 http://www.culture.gov.uk/images/ publications/SoS_report_on_library_ functions_in_2009_10.rtf

32 Future libraries – Change, options and how to get there Appendix: The pilot change projects

• Northumberland with Durham councils • Oxfordshire with Kent councils • Greater Manchester – Bolton, with Bury, • Herefordshire with Shropshire councils Manchester, Oldham, Rochdale, Salford, • Cornwall with Devon, Plymouth, Torbay Stockport, Tameside, Trafford, Wigan councils councils • South East London Libraries Performance

• Bradford Metropolitan Borough Council Improvement Group – Lewisham with • ‘Beyond Boundaries’ – Lincolnshire, with Bexley, Bromley, Croydon, Greenwich, Rutland, Cambridgeshire, North East Lambeth and Southwark councils Lincolnshire, Peterborough councils • Kensington and Chelsea with • Suffolk County Council Hammersmith and Fulham (subsequently joined by the City of Westminster) councils.

Future libraries – Change, options and how to get there 33 Local Government Group Local Government House Smith Square London SW1P 3HZ Telephone 020 7664 3000 Fax 020 7664 3030 Email [email protected] www.local.gov.uk

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