Archived decisions
Item 6
Written Statement: Desmond Clarke
The Purpose of Public Libraries
The UK has a remarkable network of static and mobile libraries which reach deep into every community. The 1964 Act provides a statutory duty on every authority to provide an improving, comprehensive and efficient public library service. About 50% of the UK population has a library card and some 330 million visits are made to libraries every year.
Public libraries exist to promote and support literacy, reading, learning and the acquisition of information and knowledge.
The Public Library should be at the heart of its community, matching services to the diverse needs of people who should be actively encouraged to take full advantage of all the services provided.
The public library should provide a safe, free access route to :
* The skill and the joy of reading
* The written word and knowledge in all its forms, including print and online
* Learning and knowledge at all stages of life
* Essential information to manage and live our lives
The national Reading Agency, which is supported by Government and the MLA, has initiated a number of important projects to encourage and support reading and has undertaken useful research. It also works closely with libraries throughout the country and initiated the Love Libraries campaign.
It is suggested that the Committee should invite Miranda McKearney, Director of the Reading agency to give evidence. Miranda is a Winchester resident.
Hampshire Library Service
The most recent CIPFA report for 2005-6 suggests that Hampshire Library Service is well funded with a revenue of £21.2 million, an increase of 29.7% over the previous five years. However, in the same five year period:
* Lending stocks have reduced by 18.3%
* Visits per 1,000 population have decreased by 8.2% when nationally, these increased by 7% (visits saw a marginal increase in 2005-6).
* Issues per 1,000 population decreased by 36.4% with Hampshire experiencing the largest decline of any English county in 2005-6
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* Expenditure on books per resident decreased from £1.51 to £1.08
* Staff costs as a % of revenue increased from 59.4% to 62.3%
* Book spend as a % of revenue decreased from 10.6% to 5.9%
More significantly, the CIPFA report shows that Hampshire failed FIVE of the ten Public Library Service Standards.
It is always possible to argue about the meaning and importance of individual statistics but the overall picture is of an authority which is probably well funded but is seriously under performing in its duty to provide an improving, comprehensive and efficient public library service.
Having said that, it must be recognised that the Council has been anxious to improve its library buildings and has probably undertaken the most comprehensive capital programme of almost any English county. This includes re-branding some libraries as Discovery Centres.
While, it may be argued that some of the potential benefits of this programme have yet to emerge, there must be concerns about the early results at Gosport. It is usual after a new library is built to see a marked increase in the use of the library as reflected in lending. It may therefore be helpful for the committee to seek an independent assessment by national MLA officials to help identify any issues and recommend improvements.
Local Winchester groups, notably the City of Winchester Trust and the Residents Association have expressed concerns about plans for the Winchester Discovery Centre. In particular these concerns are about the marked decline in book stocks, the lack of sufficient study space and the cramming of many functions within a reduced area compared to that previously available in the lending and reference libraries. Many are also concerned about the move of the Local Studies Centre away from the library.
People's needs
Much research has been undertaken about the needs and expectations of the public and this research seems to suggest that the public's priorities are for comprehensive resources, notably children's books, reference material and other books; convenient opening hours and attractive, safe buildings.
I understand that research by the Winchester citizens panel confirmed the wish for proper book stocks in the new library.
The Branding of Libraries as Discovery Centres
Both the Parliamentary Select Committee and the Shadow Minister have expressed concern about re-naming libraries as discovery centres and it is noted that this practice has not been followed by other councils. I think there is a concern about denigrating libraries as an essential public service and replacing them with the vague marketing concept of "a discovery centre".
It is appreciated that officers have been concerned to widen the appeal of libraries within Hampshire communities but that has been done successfully elsewhere without introducing the confusing description of a discovery centre. The public understand what a library is but a "discovery centre" is imprecise and can be confusing to potential users. And such terms can take on a different meaning over time.
I welcome a move to co-locate a community library with other services such as a coffee shop and further education classes to create a "destination environment" as this helps to draw in more visitors and puts the library at the heart of local communities. However, such developments must not impede the ability to provide a comprehensive library service. They are additional services and not a substitute.
I suggest the Committee should invite one or two Chief Librarians who have had considerable success in increasing visitors and book lending to give evidence. An example is Diana Edmunds, Chief Librarian of Haringey Council and a library consultant, who has increased book lending by 56% over the past five years. Another, is Martin Molloy, a Director of Derbyshire Council, acting Chair of the Advisory Council on Libraries and President of the professional association.
WHO's IN CHARGE - the report
The officers of Hampshire Library Service volunteered to participate in a study by Tim Coates, a library consultant. It is regretted that Members were not involved in this study at an early stage and most became aware of it after the report was published. Hampshire provided actual performance, organisational and financial data for analysis to support this study. The report was published by Libri with the support of Laser and the Gavron Foundation.
It is clear that the final report was discomforting to HCC though the then Executive Member put his name to the report's foreword which states:
" He finds weaknesses in the service, but also offers solutions to the problems he has identified. He says himself that this is a working paper which he hopes will lead to further consideration and action. In the pursuit of renewal of the public library service we are pleased to endorse this view and encourage his work and hope that it will lead to change and improvement".
Sadly, the report attracted considerable media coverage, reflecting wider national concern about our public libraries, and, I suggest the officers became remarkably defensive (One study even assessed the profession's initial response to the report!).
It is also fair to say that other reports, including those by the Audit Commission and the Library Information Statistics Unit, had raised many of the same issues but without attracting the same level of media interest. The WHO's IN CHARGE report was closer to home as it had used actual Hampshire data.
What did not happen was a constructive and balanced review to find ways that Hampshire could consider the recommendations to improve the quality and efficiency of its service. To some extent Hampshire missed an opportunity to lead. The report however was fully considered by the Parliamentary Select Committee and Mr Coates is widely quoted in their report to Parliament. Mr Coates has also been involved in the recent review of public libraries hosted by the think tank, the Smith Institute and contributed to the Conservative Party seminar on Public Libraries in 2006.
After the passage of time, it is to be hoped that Members will invite Mr Coates to discuss his report. You may not agree with everything he has to say but you may get a number of valuable ideas to explore.
Efficiency
The CIPFA data suggests that there may be considerable opportunities to improve efficiency as did the WHO's IN CHARGE report. Hampshire has a reputation in the library world for a comfortably staffed service though a number of staff reductions have been announced recently. CIPFA reports that Hampshire spends 62.3% of its revenue on staff, a remarkably high level of spend especially considering the overall increase in funding from all sources over the past five years. This % compares starkly with some other Councils whose staff costs are in the range 45-55% of revenue as reported by CIPFA.
The primary concern must be with the deployment of staff to optimise the service to the public, eradicating non value functions, sharing services with other councils and reducing back office costs to allow all available staff to serve the public, increase opening hours and match the rota to the needs and traffic flow of visitors.
Research by others have suggested that the actual discount achieved often falls far short of the headline discount claimed by officers and buying consortia. Unlike booksellers who have a need to always seek best available terms and make the best use of technology to minimise administrative and back office costs, library procurement often lacks the same pressures to optimise value for money. It is also true that terms available to libraries generally fall far short of those achieved by large independent booksellers and retail chains.
The issues of inefficiency, over management and poor procurement have been the subject of consultancy studies undertaken by PKF and PwC and commissioned by the DCMS and MLA. Sadly these reports have been dismissed by officers though the MLA intend to follow up the recommendations with pilot studies being undertaken by a group of authorities. National savings just in procurement have been estimated by PwC to be in excess of £20 million.
The Minister and the Chairman of the MLA urged authorities in July 2005 to seek the "quick wins". Again it is sad that Hampshire has not been among the first to take up the challenge.
It is suggested that the Committee should invite Andrew Stevens, MLA Framework for the Future, the PwC project manager (Damian Riley) and the CEO of wholesale/library supplier, Bertram's (Terry Reilly) to give evidence and help the committee to explore every opportunity to improve efficiency, streamline processes and increase value for money. Neighbouring councils may be very willing to co-operate and MLA South East to facilitate this. (Helen Jackson is the CEO of MLA South East located in Winchester).
A future Strategy for Libraries
The Committee should be aware that the MLA is about to publish a consultative paper for a strategy to improve public libraries. This will be an important document which addresses the issues faced by the public library service.
It is suggested that the Committee should invite John Dolan, Head of Library Policy and the paper's author, to meet with them.
The People's Network
The People's network has given millions of people access to the internet and the delivery of online information. To date the benefits are largely about access to information and the ability to use e-mail though the internet has many other uses. Research suggests that about 25% of library usage is related to the People's network, while the other 75% of usage relates to books and other resources.
The digitisation of content today is largely in the areas of reference (both primary and commentary) and information though there are developments to digitise many book titles. This will become more a factor in the longer term but there are many issues still to be resolved from copyright to the availability of electronic readers. There are also concerns about the risk that on line information can be interfered with and may not be subject to proper editorial review. For the foreseeable future, the book will remain the essential tool for reading, learning and the acquisition of knowledge.
I am sure that the MLA will keep the library world close to potential developments as these come on stream. It is also encouraging the development of a 24/7 virtual library to help anyone, anywhere to obtain information.
How can MEMBERS and the PUBLIC assess an improving service.
Any library service requires prompt, meaningful management information linked to key performance indicators which are regularly made available to Members and the public. A successful service will show a marked increase in visitors, usage and borrowing, supported by proper research to ensure that the service is fully meeting the diverse needs of communities. That research must include non users to understand why they are not using the service.
A successful service will also benchmark its performance with other authorities to seek opportunities for continuous improvement. Its officers must be innovative and totally customer focused in constantly seeking new highs in service delivery. Members must demand the best including best value.
Summary
The Hampshire Library Service is not on its knees and has been generously supported by the Council with a 30% increase in revenue over the past five years, well ahead of inflation. However, it is fair to say that it is under performing and failing to achieve half of the public library service standards. The CIPFA data and the WHO's IN CHARGE report (supported by national studies) suggest that there may be considerable opportunities to improve efficiency and procurement, share services and re-direct staff from the back office to the front, thus enabling opening hours to be increased and to better focus on serving the public.
It is clear that resources, notably book stocks have been reduced significantly, and this has impacted severally on the ability to provide a comprehensive, quality service. 75% of the public who use libraries do so to borrow or refer to books and other reading material.
I applaud the council's decision to invest in its libraries and especially, to improve the buildings. However, it is clear that it has not yet found a successful model for library provision which delivers much improved usage and contributes to its role in promoting and supporting literacy, reading, learning and the acquisition of information and knowledge. Libraries fulfil a vital role in everyone's life, young and old, and are a powerful tool in combating social deprivation. I believe that Hampshire could deliver a much improved service to the benefit of its communities.
I would encourage the Committee to take evidence from the following experts as well as local groups:
a. Miranda McKearney, Director of the Reading Agency and the Love Libraries Campaign ( she is a Winchester resident).
b. John Dolan ( Head of Library Policy at the MLA and former Chief librarian of Birmingham)
c. Andrew Stevens (MLA Framework for the Future Manager)
d.Terry Reilly, CEO of the Bertram Group which includes Bertram Library Supply)
e. Tim Coates ( Consultant and former MD of Waterstone who wrote the WHO's IN CHARGE report).
f Martin Molloy (acting chair of the statutory Advisory Council on Libraries and a Director of Buckinghamshire Council)
g. Diana Edmunds (Chief Librarian Haringey Council)
There are many examples of excellent and innovative practice in library provision and I hope the Committee will be made aware of these initiatives. MLA officials and other experts can be in a position to help and advise though the most important input will come from the public, both users and non users.
Desmond Clarke
Old Dairy Cottage,
Andover Road
WINCHESTER
SO22 6AZ
Supplementary Evidence
I look forward to meeting Members of the Scrutiny Committee on 8th June.
May I respond to some of the questions raised in the Committee's Overview of Issues:
What Do People Want
Libraries are a public RESOURCE which supports literacy, reading, learning and the acquisition of knowledge. The most recent DCMS sponsored research (TAKING PART: THE NATIONAL SURVEY OF CULTURE, LEISURE AND SPORT, 2007) suggests that the main reasons for visiting libraries are:
To borrow/return/renew books 56.2%
Accompany children 10.2%
To browse/read 7.8%
Other reasons for attendance included visiting 'to use computers/internet (6%) and 'attempting to find out information about the local area and services' (5%).
The factors that would encourage more frequent attendance are 'having more free time' (53%) and a 'better selection of books' (13%).
The survey suggests that the data for recent attendance and attendance as a child shows that those who were taken as a child had significantly higher recent attendance rates than those who were not taken as a child (57% and 39% respectively) ( TAKING PART SURVEY).
The high level of impulse in selecting books in libraries suggests that imaginative display, wide range and effective promotion and recommendation can increase book lending. Librarians can learn from the skills and techniques used by successful retailers.
Reference sections are a vital resource of every library. Libraries can offer advice on reliable and trustworthy online sites/sources and provide a comprehensive range of reference books to consult.
It is rather patronising and untrue to suggest that libraries are 'geared to older users.' Tastes and needs change throughout life, and libraries should recognise this. The TAKING PART SURVEY suggests that the largest users of public libraries are in the 25-44 age group (51.3%) followed by the 16-24 age group (51.0%). The lowest level of attendance is in the 75+ age group (42.3%).
Value for Money
The Committee paper makes little reference to national efforts to improve efficiency and procurement in public libraries, thus releasing funding to improve resources and services. This is essential to allow library authorities to better manage their resources and improve services to local communities.
I understand that Hampshire has made some recent improvements, including adopting the streamline procurement option, but I suggest more could be achieved including:
a. The full use of EDI (Electronic Data Interchange) in its operations
b. The use of partial selection of stock by library suppliers (the DCMS/MLA consultancy studies suggest that about 70% of stock is common to all library authorities) to make full use of their sophisticated selection systems.
c. Active participation in the Better Stock, Better Libraries project initiated by the DCMS/MLA with PwC consultants to address the issues identified by the PKF and PwC reports. (Note: I am an independent member of the programme board). About 40 library authorities are currently partaking in the programme.
d. Initiate a challenging review led by the Executive Member, Head of the Council's procurement and finance staff, possibly with the help of external experts to bring an independent perspective, to optimise efficiency and realise real improvements in the management of resources and service delivery.
e. To work with neighbouring councils to share back office functions to avoid unnecessary duplication. Local authorities have similar goals in the provision of library services and it is relatively easy to knit together back office functions by introducing standardisation and better ways of working.
f. To benchmark every aspect of the service and its cost structure to help identify potential areas for improvement.
g. To put in place stretch targets and desired outcomes to measure performance improvement to challenge the library management to deliver an outstanding service to the benefit of Hampshire residents.
h. To introduce an independent perspective and skill-set to help officers to improve areas such as reader schemes, user services, procurement, stockholding, marketing, promotion, display and layout and to seek best practice. Much of this advice can be obtained at little or no cost. Hampshire library service is not operating in isolation but shares many of the issues faced by other library authorities and can learn from other's successes in building better libraries which meet the diverse needs of their residents.
Desmond Clarke