Challenges of public libraries in Hong Kong Research February 2016 Brief Usage of local public libraries has faced visible downward pressure, crowded out in Issue No. 2 part by Internet usage for information search and online reading. At present, per capita library materials in Hong Kong is about 1.9 items, just two-thirds of the 2015 – 2016 average of the developed places. While small procurement spending for library materials may have restrained the development of library collection, the allocation of acquisition spending seems to be not keeping up with the changing needs of library goers, dampening library usage. Distribution of library materials is quite uneven in Hong Kong, and those districts with lower median monthly household income tend to have smaller library collections, including Kwun Tong, Sham Shui Po, Kwai Tsing, Tuen Mun and Yuen Long. Paradoxically, residents in some lower-income districts are amongst top library goers in the territory. This prompts concern about equal access to information and knowledge across districts. Research Office Legislative Council Secretariat E-books can address the challenge of a shift towards online reading of the younger generation. Yet progress of e-books is rather lackluster in Hong Kong, accounting for only 1.7% of its total collection and 0.3% in total circulation of local public libraries. Public libraries across the globe are experimenting with new initiatives to meet the changing needs of people, including digitization of library collection, reaching out to those in need in the community and rolling out innovative projects. The subject of public library falls within the policy area of the Panel on Home Affairs. 1. Introduction 1.1 Public libraries play a vital role in building a knowledge-based society.1 They act as a vehicle for access to knowledge, ideas and information and are open and available to everyone in society. In Hong Kong, the provision of public library services is the responsibility of the Leisure and Cultural Services Department ("LCSD")2. The aims of the services are to meet the community's need for knowledge, information and research, to support lifelong learning, continuous education and profitable use of leisure time, and to promote local literary arts. Since the official opening of the City Hall Public Library in 1962, local public libraries have grown to a network of 68 static libraries and 12 mobile libraries possessing a collection of 14.2 million library items. 1 According to the Public Library Manifesto of the United Nations Educational, Scientific and Cultural Organization, public library serves as "the local gateway to knowledge" and "provides a basic condition for lifelong learning". 2 Public libraries in Hong Kong have undergone two major institutional developments over the past two decades. The first one was the establishment of LCSD in 2000, which aimed to take over the responsibility for providing public library services from the ex-Municipal Councils. The second one was the implementation of the District Council Co-management Scheme in 2008, which aimed to involve all the 18 District Councils in the management of their district libraries, subject to the limits of the statutory powers and resources of LCSD. 1.2 Nevertheless, the conventional functions of public libraries as an almost exclusive channel for the public to have free access to information and knowledge have been increasingly challenged by the ever-expanding Internet since the late 1990s. Based on an opinion survey commissioned by LCSD in 2009, as many as 3.1 million or 48% of persons aged 12 and above had not used public library services and facilities in the past year, visibly up from the corresponding figures of 2.3 million or 38% in the earlier round of opinion survey conducted in 2004 (Figure 1).3 This prompts grave concerns whether public library services need to be re-orientated to meet the changing needs of the public. As the Government has indicated in the Policy Agenda for 2016 that it will continue to enhance "library facilities and services to meet community needs"4, this Research Brief aims to review the public library services in Hong Kong. Figure 1 ― Proportion of persons aged 12 and above who have not used public library services over the past year 2004 2009 not used public not used public 38% library services 48% library services Data source: Leisure and Cultural Services Department. 2. Recent trends in library usage and Internet penetration in Hong Kong 2.1 Since 2005, the number of registered users of local public libraries has surged by 32% to 4.4 million in 2015, indicating strong potential demand for library services. However, actual usage of library services suggested the otherwise, as manifested in the following lacklustre indicators. First, the number of books on 3 A survey company was commissioned by LCSD to conduct an "Opinion Survey on Hong Kong Public Libraries" in 2009. Users are defined as those respondents aged 12 and above who have used the services or facilities of public libraries in the 12 months before enumeration from a telephone survey. LCSD has commissioned another opinion survey on public libraries in 2014-2015, but the survey results are not available. See Consumer Search (2011) and Committee on Libraries (2007). 4 See GovHK (2016), p.169. 2 loan has fallen by a cumulative 11% over the past decade to 51.0 million in 2014. Secondly, the number of multimedia items5 on loan has even plunged by 52% to 1.9 million over the same period. Thirdly, the number of enquiries about the reference materials at the libraries has dropped by 14% to 3.5 million during 2005-2014. Fourthly, the total number of physical visits to the 18 district libraries has declined by 3% in two years to 34.6 million in 2014.6 Fifthly, reflecting the trend of increasing use of the Internet, the number of virtual visits to the website of the local public libraries increased by 8%, from 19.1 million in 2012 to 20.8 million in 2014. Yet, circulation of e-books was not up to par, recording a very low usage and slipping by 7% from 171 500 in 2011 to 159 000 in 2014 (Figure 2). Figure 2 ― Usage of public libraries in Hong Kong, 2005-2014 Multimedia items on loan Physical visits 52% 3% (2005-2014) (2012-2014) Number of enquiries Virtual visits 14% 8% (2005-2014) (2012-2014) Books on loan E-books circulation 7% 11% (2005-2014) (2011-2014) Data source: Leisure and Cultural Services Department. 5 Multimedia items include audio-visual materials in various formats like laser discs, VCDs, DVDs, CDs and cassettes. 6 Data on public library visits in each district are available from the websites of District Councils as from 2012 only. They do not include visits to Central Library and mobile libraries. See Footnote 19 as well. 3 2.2 To a certain extent, the growing popularity of computer devices and Internet has a major impact on how people access information and hence need for library services. According to the Census and Statistics Department ("C&SD"), as much as 79% of domestic households in Hong Kong owned at least one computer at home which were connected to the Internet in 2014, while the penetration rate of smartphones hit 77%. Moreover, Hong Kong people spend much more time in the cyber world, with average online duration nearly doubled within a decade to 30.5 hours per week (i.e. 4.4 hours per day) in 2014.7 More specifically, 87% of local netizens cited that online information search was their major purpose of getting connected to the Internet. This is followed by online reading of newspapers and magazines (71%), online video and music programmes (54%), and online reading of books, fictions and comics (18%). As most of these activities are traditional library functions, the substitution effect between library usage and Internet usage is quite visible. 3. Library collection and acquisition of library materials in Hong Kong 3.1 This apart, the decline in local library usage could also be attributable to unsatisfactory library collections in terms of both quantity and diversity, which were the top two areas requiring improvements as indicated by library goers in the aforementioned opinion survey.8 While total collection in local public libraries grew from 11.6 million items in 2005 to 14.2 million items in 2015, the increase was mediocre when translated into per capita basis, from 1.7 items per person to 1.9 items per person. In other words, the increase in library items per person was less than one over the past decade (Figure 3). This figure was about one-third behind the average of developed places of 2.7 items and short of the per capita collection guideline of two to three items as recommended by the International Federation of Library Associations and Institutions ("IFLA").9 7 For children aged 10-14 and overall students who are supposed to have a stronger need for public library services, their time spent on the Internet are comparable to the adults, at 3.2 hours and 4.3 hours per day respectively. See Census and Statistics Department (2015b). 8 See Consumer Search (2011). 9 IFLA is the leading global organization representing the interests of library and information services and their users. It compiled statistics on public libraries on a regular basis, covering a total of 62 public libraries across the globe primarily in developed places, including representative public libraries located in San Francisco, Toronto, Amsterdam, Helsinki, Singapore and Hong Kong. See International Federation of Library Associations and Institutions (2015). 4 Figure 3 ― Per capita collection of Hong Kong Public Libraries, 2005-2015 2005 2015 items items 1.7 per person 1.9 per person INCREASE in library items: 0.2 items per person Data source: Leisure and Cultural Services Department.