APPENDIX 17
Memorandum submitted by the Society of
Chief Librarians
ABOUT THE
SOCIETY OF
CHIEF LIBRARIANS
1. The Society of Chief Librarians is a
professional association made up of the Chief Librarians of each
public library authority in England and Wales. The association
is generally know by the acronym SCL.
2. The Society was formed in April 1996
and replaced the Federation of Local Authority Chief Librarians
(FOLACL). It aims to take a leading role in the national development
of public libraries by influencing statutory, financial and other
decisions which relate to the effectiveness of public library
services. The association represents the view of its members to
the Department for Culture, Media and Sport (DCMS), the National
Assembly of Wales, Members of Parliament, the Museums, Libraries
and Archives Council (MLAC), the Advisory Council on Libraries
(ACL), the Library Association, the Local Government Association,
the Audit Commission and other government departments and bodies
involved with or interested in public library service provision
in England and Wales.
GENERAL INTRODUCTION
3. Public libraries are being reinvented.
We welcome the work that the DCMS has been doing for nearly three
years to encourage the renewal of the public library service.
The Society of Chief Librarians is pleased to report that the
Secretary of State has put in place an unprecedented level of
tangible support for the work of public libraries in England.
4. In Wales the situation is less clear,
in that many of the DCMS initiatives, including incentive schemes
such as the DCMS Wolfson Incentive Funding Scheme, are not available
to public library authorities in the Principality. It is a matter
of concern to SCL that the level of public library service provision
in Wales appears to have declined following Local Government Reorganisation
in 1996. While one of the main arguments in favour of devolution
was to enable decision making at an appropriate level of government,
the Society is concerned that this should not lead to an inequality
of the public library service in the UK as a whole. We hope, for
instance, that the work being done by the DCMS on developing public
library standards will benefit not only England.
5. Against that background, our evidence
points to areas other than DCMS in which the Government could
do more to develop the full contribution which public libraries
have to make to modern society. We hope that the Select Committee
might be able to unblock some of these blockages.
ACCESS TO
LIBRARIES
6. We welcome the publication of "Libraries
for All" the recent DCMS consultation paper on social
inclusion in public libraries. We look forward to the further
work currently being done on this subject. We can confirm that
the issue of access is of paramount importance. The starting point
for a healthy library service is to ensure that local authorities
are able to afford to maintain an adequate number of physically
accessible and attractive local branch libraries, well equipped,
properly staffed and stocked, and open for enough hours to be
a valuable community resource. The key criterion in assessing
this has to be the perception of the local community served. Best
Value will be the method of testing this in practice. Our view
is that many services lack the resources to meet the needs of
their communities at present.
7. SCL is deeply concerned about the erosion
of opening hours. We agree with the Audit Commission's view that
was set out in their 1997 report on public libraries Due for
Renewal, stating that the three problems of "declining
usage, reduced access and increasing costs, are likely to be related".
The same report notes that between 1985-86 and 1995-96 there was
a reduction of almost 6 per cent in the opening hours of public
libraries:
"This reduction is particularly marked in
libraries with the longest opening hours, predominantly the main
libraries and large branches, where one-third of libraries that
were previously open for 45 hours or more a week have reduced
their hours to below this level."
8. SCL is concerned that this reduction
in opening hours has effectively switched one third of all full-time
libraries into part-time libraries. It is little wonder therefore
that book borrowing is in decline if our public has difficulty
getting to the library when it is open. It is irrefutable that
opening hours of libraries have been cut back over the last twenty
years due to financial pressures of local government generally.
We recommend that the Select Committee encourage local authorities
to recognise the renewed value of longer opening hours to reflect
the investment in ICT that the Government is making. Similarly
we would recommend that the Select Committee encourage the DETR
to provide adequate funding so that longer opening hours at weekends
do not come at the expense of weekdays. If the Government wants
us to deliver the full community value of libraries, then it should
ensure that every library authority can afford a network of full-time
service points. In addition we welcome the move towards making
some library services available from other locations such as schools,
shopping malls and community venues. These should complement the
full-time library network rather than replace full-time libraries.
9. The impact of the reduction in opening
hours is compounded by the well-documented decline in public library
bookfunds. A vicious downward spiral in book borrowing has resulted
from so called efficiency savings forced upon libraries by the
overall financial pressure from government on local authorities.
Unless this Government directs targeted support we can predict
that opening hours and bookfunds will continue to be eroded because
of continuing financial pressure.
10. Some pioneering library services have
been doing exemplary work in developing services for people with
disabilities. These add to the overall cost of providing the service
but CIPFA takes no account of this expenditure when presenting
league tables of expenditure by public library authorities. The
requirements of the Disability Discrimination Act mean that every
authority will now be required to make adequate provision. SCL
welcomes this improvement for disabled citizens, but we suspect
that DETR will make no additional allowance for public libraries
spending needs.
11. There is a particular concern about
the physical state of library buildings. There is a chronic shortage
of capital for major repairs or renovations, including adaptations
for improved disabled access, and the condition of many libraries
is far below the standard that we believe is acceptable. We recommend
that the Select Committee should ask the DETR to target funds
specifically to encourage the physical renewal of public library
buildings throughout the country. We are already witnessing a
mismatch between the notable investment in ICT, which we fully
support, and the lack of investment in the buildings that house
the library service. We do not find it acceptable to close some
libraries in order to pay for the upkeep of the remainder unless
the libraries to be closed are clearly unwanted by the community.
Similarly a shift from fixed premises to a mobile library service
will make it more difficult to provide proper access to the Internet.
Pilot trials of mobile Internet access show that bandwidth problems
are still too great for mobile libraries to offer state of the
art access to multimedia digital content.
12. All of these issues come back to the
need for adequate funding. We seriously doubt that the DETR currently
has a proper understanding of the new vision of public libraries
as set out in the government funded report "New Library:
the Peoples Network" which said:
"Tomorrow's new library will be a key agent
in enabling people of all ages to prosper in the information society—helping
them to acquire new skills for employment, use information creatively
and improve the quality of their lives".
13. There has been no encouragement from
DETR to use libraries as a cross-departmental community resource
for the whole local authority. In setting Standard Spending Assessments
for Local Authorities the DETR should recognise the importance
of a healthy public library service in the modernisation of local
government. We have no evidence that DETR makes any funding allowance
for the new role of public libraries. There is a danger that DETR
sees the responsibility for public libraries lying with the DCMS
and therefore takes little interest. For libraries to thrive within
local government DETR must take as much interest in libraries
as they do in any other local government service.
THE ROLE
OF LIBRARIES
IN THE
PROMOTION OF
EDUCATION AND
LIFELONG LEARNING
14. Libraries are perhaps the only "cradle
to grave" provider of Lifelong Learning. The following points
outline why there is such a strong rationale to put libraries
at the centre of Lifelong Learning provision.
In a 1998 MORI Poll organised by the Campaign
for Learning, adults defined their preferred learning environment
as:
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| Home | 57%
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| Work | 43%
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| Libraries | 36%
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| College/University | 29%
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| Museums | 13%
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Education is changing rapidly, with a developing emphasis
on the acquisition of competencies, rather than information and
a much greater role for self-directed learning facilitated by
advances in ICT. Libraries are built on this kind of learning.
63 per cent of adults in Britain spread evenly across age
groups and social groups, use public libraries. There is a slightly
higher representation of younger people and people from social
classes C1, C2 and D/E among library users.
The key role of libraries in supporting Lifelong Learning
is illustrated by the fact that 73 per cent of adult public library
users finished their education at 19 or younger.
The Learning Age Green Paper identified the key role
of libraries in supporting and delivering Lifelong Learning and
recognised them as national locations for the network of learning
centres to be created nationally:
"The public library service holds an enormous range of
educational material and has the potential to deliver information
and learning to people of all ages and backgrounds, right across
the country."
This ties in with the University for Industry's view:
"Our vision is of a national network of UFI learning
centres which will give people and businesses access to facilities
that might not be available in the home or within smaller companies.
Centres will be conveniently located and open at convenient times.
Many will be based on existing facilities in workplaces, colleges,
universities and libraries."
University for Industry: Engaging People in Learning for
Life. 1999.
15. The blockage here is that DfEE seems to ignore the
role of public libraries, being preoccupied with LEA education
services. By way of contrast, more and more local authorities
are making the appropriate connections having rediscovered the
truth that public libraries do support learners in both formal
and informal learning.
16. It may be helpful to illustrate with practical examples
how library services are working in partnership to support Lifelong
Learning in their communities. These represent just part of the
overall picture:
Bookstart (with health visitors) an early literacy scheme,
piloted in Birmingham, now national with sponsorship from Sainsburys
to bring an understanding of the importance of using books with
babies.
Schools Library Services (with schools) provide advice on
school libraries and stock selection, and project loans for teachers.
Homework Clubs (with schools/Education Department) available
in many libraries. Provision of specially selected books, PCs
and CD-ROMs, staff support.
Family Literacy (with Education and Adult Education) children
and parents tackle their literacy problems together. Proven to
produce better impact and outcomes.
Family Learning (with Education and Adult Education) opportunities
for intergenerational learning, eg grandparents and grandchildren
learn ICT skills together.
Other Partnerships with Summer Literacy Schools, Educational
Action Zones and Excellence in Cities.
Open Learning, Open Learning Centres are available in many
libraries, often with tutor support from colleges and adult education
services.
University for Industry (Learn Direct) Some libraries have
been selected as UfI Fast-track Learning Centres and will certainly
feature as important access and learning centres as it develops.
In the Sunderland pilot for UfI, the vast majority of clients
came via the public library service.
Networking (with Education) By 2002, all libraries will have
networked access to the Internet, CD-ROM's and the National Grid
for Learning.
Information, Advice and Guidance Libraries are a vital source
of information and referral to learning and training opportunities
in their local area.
THE ROLE
OF LIBRARIES
IN THE
PROMOTION OF
ACCESS TO
AND AWARENESS
OF NEW
TECHNOLOGY
17. We welcome the Government's commitment to ICT in
libraries. In Our Information Age (1998) the Government
spelt out plans for investing in ICT development in public libraries.
The Secretary of State has also endorsed a new vision for the
public library of the future set out in New Library: the People's
Network which recognises that new technology allows local
libraries within communities to play an even more important role
than they have previously. Along with the important work of encouraging
reading and literacy, libraries are well placed to tackle issues
of social exclusion relating to the Information Society that is
rapidly developing. The gap between information "haves and
have-nots" is growing as the Internet becomes familiar domestic
technology in most households; those without are increasingly
excluded from information sources which society will take for
granted just as television and radio have long since been taken
for granted. This is why SCL believes that local access to free
library facilities is vital.
18. The Government is investing through the New Opportunities
Fund:
— £20 million on training all library staff
in ICT skills;
— £50 million in content creation for the People's
Network and National Grid for Learning;
— £200 million for Community Access to Lifelong
Learning, which specifically mentions the creation of networked
Learning Centres in Libraries; and
— £400 million from the Capital Modernisation
Fund to create the infrastructure for the University for Industry.
19. The allocation of Lottery funding has greatly helped
public libraries to make the move into the digital age, but there
are still very large funding questions which need to be answered
before we can confidently say that the public library service
is properly equipped to promote access for all to the new information
and communication technologies.
20. In particular we are still concerned that further
resources need to be made available to ensure adequate connectivity
to the People's Network. Conflicting demands upon the New Opportunities
Fund Lottery resources, which might be used for this purpose,
leave us wondering how big a gap will be left at a local level.
21. We know from experience that the revenue costs of
new library networks can be problematic, and are currently preventing
some authorities from making capital investments in ICT. The recent
announcement by OFTEL of special telecom rates for libraries and
other public bodies was a step in the right direction, but it
failed to address the issue of telecom charges for fixed-link
broadband networks which we believe is the required level of provision.
22. The Prime Minister has said that the new opportunities
of the new information age must be open to all—the many,
not just the few. SCL firmly supports this view but we believe
there is a growing need for clarity about the issue of charging
for access to the Internet. DCMS recognises the issue:
"Libraries should be a major vehicle for providing affordable
(or preferably free) access to ICT at a local level". Libraries
for all: Social inclusion in public libraries.
23. It is currently the case that some library authorities
charge for access to the Internet. Possibly this is the only way
that some authorities might have felt able to invest in the technology
and the associated running costs. We recognise those financial
difficulties and we recommend that these costs are taken into
account when the DETR calculates SSAs for public library authorities.
We know from the experience of pioneering authorities that the
costs are a significant proportion of the library budget overall.
Ideally all public libraries should provide Internet access free
of charge and we would be happy for the Select Committee to be
unequivocal in recommending that this should be required of all
public library authorities, but only if the DETR genuinely makes
adequate financial provision for those authorities.
THE ROLES
AND PROPOSED
ROLES OF:
THE DCMS, MLAC, LOCAL
AUTHORITIES AND
OTHERS IN
LIBRARY PROVISION
24. The DCMS is currently engaged in preparing Standards
for the Public Library Service. We acknowledge that this is part
of the long-term effort by the DCMS to raise standards of service.
At the time of giving evidence the proposed Standards had not
been published therefore we must reserve judgement. We hope that
they will properly reflect the changing nature of the public library
service, and encourage local authorities to aspire to excellence
rather than average performance.
25. The Society of Chief Librarians has welcomed the
creation of MLAC and we look forward to improved co-operation
with colleagues in museums and archives. We would particularly
encourage MLAC to support the development of appropriate regional
bodies to derive the benefits of co-operation at a regional level.
There is an urgent challenge for MLAC to facilitate the creation
of the People's Network and we believe that librarians are well
placed to lead this work at a regional level, helping colleagues
in other sectors. A good example of pioneering developments in
this type of work can be found in the North East of England illustrated
by the cross-sectoral website http://www.thenortheast.com which
started as a public library development but is now being embraced
by the museums and archives sectors regionally. We recommend that
the Select Committee encourages MLAC to assist in funding the
regional development of library-led websites for the cultural
sector. It should be emphasised that significant revenue costs
are inevitable.
26. We are confident that the best service for the public
lies in the continuing role of local authorities as direct service
providers of public library services within the regime of Best
Value. Local libraries provide a whole Council presence in small
communities—our view of the future is that library services
will require even more flexibility to accommodate and offer a
wide range of services beyond book-lending. We do not believe
that the public library service of the future will lend itself
to whole service contracting out. We recommend that the Select
Committee should encourage local authorities to consider the wider
benefits to communities that result from having a local library
when conducting Best Value Reviews of the library service.
27. We cannot over-emphasise the importance of working
in partnership. The last Public Library Authorities Conference
had as its theme "Creative Liaisons". SCL has set up
a project, with support from the Arts Council of England, to explore
new ways of relating to readers. The project is called Branching
Out http://www.branching-out.net and is now in its second year.
28. A key aspect of Branching Out is the partnerships
which public libraries are making with publishers, booksellers,
Applied Psychology Research and the National Library for the Blind.
These relationships are bringing new concepts and challenges to
the library sector and help us to develop a bigger and stronger
vision for our work.
29. The support from the Arts Council and all the Regional
Arts Boards has enabled a strong network to be developed which
will sustain the work beyond the life of the Lottery project itself
and the University of Central England is working with us on evaluation
in order to develop training opportunities for the future.
30. Branching Out is a wonderful example of how public
libraries are changing what they do for themselves and developing
partnerships with others. It is also demonstrating, through this
web site, that placing the reader at the centre of our work is
not at odds with developing our role in the new information age.
Books and technology are being brought together rather than being
kept apart.
THE BRITISH
LIBRARY
31. In the last few years SCL has enjoyed a growing sense
of co-operation with the British Library. We have several meetings
each year with the senior management at the Library and a variety
of initiatives are discussed and acted upon. Probably the most
important is the joint project led by SCL known as "The Peoples
Heritage". It is best described as a framework for co-operation
between public libraries across the whole UK and the British Library:
— it is an expression of the vision of the public
library service throughout the whole of the United Kingdom to
create content which will form part of a digitised National Public
Library Resource;
— The People's Heritage is the public library service's
contribution to a wider sectoral partnership which involves libraries,
archives and museums working together;
— it will create and link access to material which
collectively has national significance and is held in local libraries;
— the aim of The People's Heritage is to strengthen
community identity and to create powerful learning pathways from
local resources to knowledge and understanding of the major social,
economic and political changes which shape our lives today;
— The People's Heritage is committed to creating
a sustainable and permanent process of digitising content. Access
is a key objective and will involve developing a continuing and
growing market for the created content;
— resources will be designed for learners of all
ages, for researchers and for specific communities of place and
interest; these learning packages will be mediated by teachers,
librarians, other educators and workers in community development;
— The People's Heritage also aims to be the structure
through which the public library service is involved in issues
concerning retrospective conversion and the development of shared
responsibility for Legal Deposit and the Distributed National
Bibliography; and
— the project demonstrates the partnership between
the British Library and the UK Public Library Service as a whole
and will achieve unity from the diversity of locally held and
nationally held material which forms part of the nation's heritage.
32. At the time of giving evidence SCL is preparing to
submit a major bid to the New Opportunities Fund for digitisation
of content from the local collections of public libraries across
the UK in support of The People's Heritage.
CONCLUSION
33. The Government has demonstrated through the work
of the DCMS that it wants to see a healthy future for the public
library service. Our view is that the DETR, in particular, needs
to be encouraged to appreciate fully the contribution which public
libraries can make to the modernisation of local government and
to the tackling of problems of social exclusion. We are grateful
for the opportunity to submit evidence.
January 2000
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