Select Committee on Culture, Media and Sport Appendices to the Minutes of Evidence


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:


Home
57%
Work
43%
Libraries
36%
College/University
29%
Museums
13%


  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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