APPENDIX 19
Memorandum submitted by UNISON
1. INTRODUCTION
1.1 UNISON represents the overwhelming majority
of the 27,000 library staff who work in local authority libraries
and we welcome the Committee's inquiry into libraries. UNISON
has always recognised the value of publicly funded libraries as
an essential contribution to the social, educational, cultural
and economic well-being of local communities throughout the UK.
UNISON wishes to see this reflected in the planning and financial
policies and practices adopted by both central and local government.
1.2 However, as various organisations, including
the Audit Commission, have pointed out, tighter resourcing for
the whole of local government places particular pressure on libraries
which are seen as a "minor activity" for local authorities,
which spend only one per cent of their budget on libraries.
1.3 Many local authorities have made large
cuts to library services, often resulting in branch closures or
reduced opening hours, and cuts in staff numbers or cuts in grading
and pay for library staff. The Government agenda in combating
social exclusion and promoting Lifelong Learning has been that
of local authority libraries for decades, however, to many libraries
it is a role that can only be partially fulfilled because of under
funding from some local authorities in turn dictated by the tighter
funding of local authorities by central government.
2. ACCESS TO
LIBRARIES2.1 Finance and
the impact on opening hours and library branch closures
The issue of local government finance is related
both to the reductions in funding by central government to local
government and the low funding which councils have traditionally
provided for their library services. The key issues considered
by the inquiry of access to libraries and the role of libraries
in the promotion of education and Lifelong Learning, must be considered
within this context in order to understand the problems faced
by library services. The crisis in local government finance, whereby
central government funding for local government has been drastically
reduced in the 18 years of Conservative government and the continuation
of the public sector spending freeze, has led to tighter resourcing
and cuts in local government services. This places particular
pressure on libraries.
2.2 UNISON has consulted with its members
to provide this submission to the Committee and the constant and
key issue faced by local authority libraries is the reductions
in funding. The Leisure and Community Services Committee of the
London Borough of Camden reported on 28 September 1999, that "Camden
has been making real reductions in library budgets for most of
the last 10 years. During the late 1980's and early 1990's staff
and building budgets were protected so the bulk of reductions
fell on opening hours and materials. As a result Camden libraries
still operate a high number of buildings but with low opening
hours. Staffing numbers continue to reduce in Camden but remain
higher than average".
2.3 When local authorities close libraries
it means that residents and in particular the most vulnerable,
the elderly, those with disabilities, children and their carers
are deprived of a vital local service. Torbay UNISON Local Government
Branch stated that "the members of staff were all concerned
about new developments being inadequately funded. We agree with
the initiatives, but feel public expectations of the service are
being raised without financial back up. Our traditional service
and (in which we would include social inclusion and Lifelong Learning)
has been badly affected by lack of investment over many years.
We must choose between emptying our shelves of non-fiction or
retaining dangerously out of date stock. The importance of fiction
reading in acquiring and practising literacy skills should not
be underestimated, yet our stock is shabby and insufficiently
renewed to retain our readers' interest"
2.4 Furthermore they acknowledged that "libraries
are inextricably linked with education in the minds of the public,
and because of this many people believe that financial protection
offered to the education sector by the Government recently has
also extended to libraries. Instead libraries have had to bear
a disproportionate amount of cuts to compensate for spending in
other areas. To quote one of the members `we come under the education
umbrella, and except when it's raining.' It is hoped that the
inquiry will recognise libraries contribution to education, so
that standards of local authority provision will be more clearly
defined".
2.5 UNISON Derby Branch report that "
during the late 1980s and early 1990s Derbyshire libraries were
the victims of drastic budget cuts due to severe under-funding
of the local authority by the then Conservative government. These
cuts resulted in the closure of some libraries in the Derby City
area. There were also continual cuts in opening hours, including
the closure of libraries, including the two central libraries
on Saturday afternoons. After the first year as the new unitary
authority we had to suffer further cuts in opening hours . . .
resulting in no library in the city opening before 10 am and all
branch libraries closing for at least one whole day during the
week (some already shut at lunchtimes). The cumulative effect
of nearly 20 years of cuts has not only reduced the accessibility
of the service to the public but has had an adverse affect on
staff morale."
3. ACCESS TO
LIBRARIES AND
STAFFING
3.1 Staffing
UNISON believes that the role of staff and staffing
levels have a direct effect on the level and the quality of the
library service and therefore deserves the attention of the Committee.
Many UNISON branches have reported reductions in staffing levels.
The LISU reported an overall decline of the library workforce
by eight per cent between 1984 and 1994, from 29,547 to 27,320.
The numbers have decreased even further since that report.
3.2 Derby City UNISON Branch reports that
the city library service carried out a major workload review during
1998 and 1999. This resulted in the acknowledgement by management
that nearly every library in the city is operating at the bare
minimum staffing levels and in three libraries, including the
two central libraries; some increase in staffing was essential
to maintain the quality of service. Wolverhampton Local Government
UNISON Branch reported that staffing levels have decreased due
to the reduction of hours of full time staff, natural wastage,
vacancies not being filled and some early retirements. Redcar
and Cleveland Borough Council UNISON Branch report that libraries
are an essential community service "and yet in the last three
years we have had our book fund slashed and one library closure.
We are facing very severe cuts in the next financial year. Furthermore,
this area has high unemployment, low car ownership, low telephone
ownership and considerable social deprivation".
3.3 Harrow UNISON Branch report that the
biggest problem faced by libraries in the London Borough of Harrow
is that there are very low staffing levels, there are frozen vacant
posts. The lack of resources will also mean that libraries will
have to close because there are not enough staff to operate them.
Havering UNISON Branch also report that there have been staffing
reductions with vacancies taking some months to fill and the remaining
staff acting up in the meantime. Havering Branch also comments
"by continuing to squeeze local government and by extension
libraries, the Government makes the library profession less and
less attractive to enter."
3.4 Brighton and Hove Branch report that
there have been reduced staff numbers due to budget cuts and reorganisation
with a heavy reliance on relief staff in branch libraries. In
other areas, such as Nottingham City vacancies have been frozen.
This is just a flavour of the extent of inadequate staffing levels
in local authority libraries up and down the country.
3.5 The role of library staff and the value
of library workers
UNISON believes that central and local government
should recognise the value of library workers. The majority of
library workers are on very poor pay, which has led in some areas
to a problem with recruitment. Library workers welcome the opportunity
for libraries to extend their existing valuable role in the area
of education and Lifelong Learning into the new literacy. Libraries
are often people's first port of call in terms of formal and informal
education. And finding access to ICT in libraries is clearly something
they expect and desire. Therefore an adequately educated and skilled
workforce is necessary with enough time available to assist the
public with their enquiries and also they must be paid a fair
wage. Havering Local Government UNISON Branch commented that library
workers are low paid relative to other council workers and library
staff across London. There has been no recognition of ITC skills
developed in recent years, which some other boroughs have rewarded
with upgrading. Derby City UNISON Branch have commented that "there
has been no increase in funding for staffing, either to repair
some of the damage done by the last 20 years of cuts or to enable
the already hard pressed staff in libraries to respond to the
challenges of the new developments. The result is an unprecedented
increase of pressure on library staff, leading to increased stress
levels and low morale".
3.6 Management of information will continue
to be a key role of library workers—whether it be locally
produced information, identification of resources, construction
of databases, cuttings files etc. Whilst it is the ongoing aim
of all library workers to ensure that users are able to make full
use of the library themselves—with the use of appropriate
indexes, guiding etc—there will always be a need for the
one to one dialogue with the user which will involve the user
expressing their needs and the library worker identifying the
most appropriate resource. This will never be done by computer
and must continue to be a key aspect of the service both in the
reference and community library setting. Use of the Internet can
be facilitated in terms of the information it provides.
3.7 The new technologies—in terms
of management information, routine library tasks and the provision
of information—have had and will continue to have a major
impact on the way in which we provide our services. They should
be welcomed. However, we must not throw the baby out with the
bath water. Some have a vision of a bank of computer terminals
as a library as, in crude terms, these could carry out all the
basic library functions. However, in this way the traditional
values of a library service, which are upheld by so many, would
be lost. Libraries have always had and should continue to have
a key role in the provision and support of Lifelong Learning—to
encourage reading in early years, to provide study support to
young people, to assist adult learning (both formal and independent),
to provide and receive information to support communities and
individuals. The role of the library worker must be preserved
and enhanced, this must be recognised in the quality and level
of training—both in-house, and external—provided and
fair pay.
3.8 Opening Times
Across the UK opening hours for local authority
libraries have been reduced as noted. Additional examples of cuts
in opening hours include Barnsley where the central library is
closed all day on Thursday other branches have been, or will be,
closed. In Harrow there has been a reduction in opening hours
for example in April 1998 six of the libraries that were open
40 hours a week were reduced to 25½ hours a week in 1999.
In Wolverhampton several community libraries, which were branch
libraries, are now only open 15 hours a week (not including weekends)
stocking popular fiction and limited non-fiction material, they
do not hold activities and provide very few services previously
available. In Derby City there have been continual cuts in opening
hours including the closure of all libraries, including the two
central libraries on Saturday afternoons. In another local authority
they have shortened the hours. The central library now opens until
7 pm only on certain days and closes completely at 4 pm on Saturdays.
Some branches may be open only for afternoons for most days.
3.9 Mobile Libraries
Mobile libraries are a very useful supplement
to library services, particularly in providing access to those
unable to visit branch libraries. And are therefore essential
for social inclusion, especially of the elderly and disabled and
those with young children. Whilst they are also useful in conveying
books, information and other materials to remote areas they should
not be used as a substitute for branch libraries. Mobile libraries
cannot provide a wide range of services and materials available
in branch libraries. The latter can act as social centres, providing
reference materials, IT facilities, homework study facilities
and meeting places for local groups and activities. They can be
a safe, secure study environment for children. This is important
to emphasise as some closed branches have been replaced by mobile
libraries. Stockport UNISON Branch reports that several part-time
libraries were closed during the period 1997-99. These were replaced
by the provision of a new mobile library service, which also now
visits areas previously not provided for.
3.10 Stocks and Resources
In local authority libraries up and down the
country the book stocks have declined. This has been well documented.
LISU showed that the total number of books available in UK public
libraries in 1994 was 131,657,000 which represented a reduction
of almost seven per cent on the 141,400,000 volumes available
a decade earlier. UNISON branches have reflected on this: Havering
Branch has commented that the authority's book stocks have declined
from 413,945 (31 March 1997) to 403,882 (31 March 1999). The London
Borough of Havering has the lowest ratio of book stock to 1,000
people in London and is amongst the lowest spending boroughs on
its library service generally. However, the video stock is one
of the largest in London significantly this is an income generating
service. Barnsley Local Government UNISON Branch reports that
there is an almost non-existent book fund so that very few books
are bought and most branch libraries have not got copies of popular
novels. Nottingham City UNISON reported that their book fund has
been cut. Torbay UNISON also commented that in order to develop
traditional literacy, with which access to new technology is wasted,
and to allow access to the in depth authoritative information
seldom to be found on the web, public libraries need an injection
of printed material to bring materials up to standard for Lifelong
Learning, followed by sustained funding to keep the stock up to
date.
3.11 Newcastle UNISON Branch reports that
the local authority has implemented a huge cut in the book fund,
which seems to be diverted to information and communications technology.
And although the Internet can replace some hard copy resources
there appears to be a temptation to see it as an alternative to
traditional resources rather than an enhancement. It is important
to realise "a shelf full of books can be used by as many
people—can be taken home, can be shared with others—and
yet despite the vast information contained in it, access to the
Internet is limited by availability of personal computers, which
never equal the number of books, magazines etc. All libraries
must make full use of information communications technology and
ICT based resources must form an integral part of any library
service. However, they must not be seen as a replacement for traditional
resources such as books, newspapers, magazines etc."
3.12 We note that extra funding is available
from the National Lottery and the New Opportunities Fund for the
purchase of books and materials and the development of Information
and Communications Technology. We are however, concerned that
in order for the books stock and other library material stock
to be maintained and kept up to date that there is a need for
more than a single injection of funding.
3.13 Facilities for the Disabled
This appears to vary very considerably. Facilities
for the disabled should include access to all areas of the library
without having to ask for special assistance. Height of shelving
and stands should be suitable for those using wheelchairs and
those who have difficulty in reaching down or stretching. In terms
of stock there should be more investment in large print and the
spoken word.
3.14 Mobile libraries are another facility
for enabling the disabled access to libraries. Although access
varies it appears that most local authorities are planning to
address access for people with disabilities.
4. THE ROLE
OF LIBRARIES
IN THE
PROMOTION OF
EDUCATION AND
LIFELONG LEARNING4.1 The
role of libraries in the promotion of access to and awareness
of new technology
Local authority libraries have a continuing
role in the promotion of education and Lifelong Learning as noted
above. Libraries also have a key role in opening up accessibility
to the Internet—both in terms of provision and assisting
in its use. Training for all 27,000 library staff will be funded
by the New Opportunities Fund. However, there is no extra support
for the provision of the technology itself.
4.2 Whilst we welcome the Government's commitment
to provide Information and Communications Technology (ICT) training
for all 27,000 staff, it is essential that ICT is used to provide
an enhanced service for library users and not to replace staff
or the traditional services they provide. Libraries must be properly
resourced and funded, both to carry on their traditional activities
and to take up their new responsibilities. Adequate funding for
the services and staff, as well as the maintenance and improvement
of premises, is needed.
4.3 We are concerned about how local authorities
will be able to achieve the levels of funding required for this
initiative. The Library and Information Commission identified
in their report that £700 million would be needed for the
People's Network. However, with the funding problems faced by
local authorities, UNISON has serious concerns about the ability
of local authorities to contribute towards the funding for the
development of nationwide public library information communications
technology network. Some UNISON branches have reported that library
workers have received training on ICT, but their local authority
does not have the money to provide equipment.
4.4 Whilst library workers are very keen
to be part of the public libraries network, we are concerned that
this should not be at the expense of library employees and their
traditional services provided by libraries, for example funding
and loaning of books. The total number of books available in UK
public libraries has decreased caused by reduced expenditure on
book stocks as a result of local government budget cuts. The provision
and service delivery of any new electronic based service must
be properly financed, resourced and staffed before it is taken
on board. Libraries should not be closed nor staff numbers cut
in order to pay for the local authority contribution to the costs
of establishing the network.
4.5 Substantial capital funding will be
required for the infrastructure for the national public library
network; this includes the capital costs of the ICT equipment,
software for online and offline uses, constructing a website.
There are also the revenue costs of keeping ICT equipment and
software up to date. In addition to this there are the costs of
training which local authorities will have to meet identified
in the Department for Culture, Media and Sport (DCMS) discussion
paper on ICT training for public library staff.
4.6 The Government has made a commitment
to make £20 million available from the National Lottery's
New Opportunities Fund to provide for the training of all 27,000
library staff in the UK. The LIC report and the DCMS discussion
paper on Information and Communications Technology training for
public library staff make it clear that local authorities will
be required to provide a matching fund of 45 per cent (the LIC
report suggested 50 per cent) of staff release costs for training.
The LIC report noted this would be in addition to the current
library authorities spending on training and although the LIC
report suggests that it is a modest and cost effective investment
in comparison with other national training initiatives, it does
not take into account the historical and present funding crisis
faced by local authorities.
4.7 We therefore agree with the LIC's recommendation
that the Government should be providing core funding for the development
of the network and capital investment for infrastructure.
4.8 The LIC report also acknowledged that
different library authorities will start with different sunk investments
in ICT. Therefore in the current climate of a freeze in public
expenditure, it is unlikely that local authorities will be able
to contribute considerable resources to the development of the
network without it being at the expense of the provision of traditional
services to the public. Some UNISON branches have reported a very
low level of investment by their local authority in ICT other
local authorities have embraced ICT and are providing high levels
of investment.
4.9 We agree with the Government that public
libraries will play an important part in providing assisted access
for those who do not have a computer terminal at home, do not
have use of a computer terminal at work and those who do not work
and need to develop their IT capabilities. It is therefore essential
that library services should be free at the point of use to enable
full access to the cultural, economic and political life of the
country. The principle of free access for all should be extended
to ICT services in public libraries. We agree with the LIC's statement
that there is the key principle of equality of access and that
the public library network must ensure that no one is marginalised
or excluded. As the LIC report states, "the emerging information
and communication technologies are the new literacy, and successful
communities of tomorrow will be those who, given access, are informed
and educated in the use of these technologies. Without such access,
groups of people will be cut off from this developing knowledge-rich
world, and their ability to survive and succeed in the information
economy will be greatly reduced. This will have knock-on effects
in terms of social inclusion/exclusion, impact on local communities
and local economies and a widening gap between the information-rich
and the information-poor". Therefore establishing at a very
minimum a threshold of free access within a UK public library
network will ensure equality of access throughout the whole country.
4.10 Libraries have always had and should
continue to have a key role in the provision and support of Lifelong
Learning to encourage reading and early years, to provide study
support to young people, to assist adult learning both formal
and independent and to provide and receive information to support
communities and individuals. Furthermore a bid based form of making
finance available for ICT systems means that some authorities
will lose out in not being able to have equipment available once
staff are trained. And the reductions in staffing in many areas
means that whilst existing staff will be trained there is not
enough staff available to provide the service to the local communities
on Information and Communications Technology.
5. SUMMARY
UNISON welcomes the Committee's inquiry into
libraries. UNISON has always recognised the value of publicly
funded libraries as an essential contribution to the social, educational,
cultural and economic well-being of local communities throughout
the UK.
UNISON wishes to see this reflected in the planning
and financial policies and practices adopted by both central and
local government.
Many local authorities have made large cuts
to library services, often resulting in branch closures or reduced
opening hours, and cuts in staff numbers or cuts in grading and
pay for library staff.
The government agenda in combating social exclusion
and promoting Lifelong Learning has been that of local authority
libraries for decades, this is in great danger however, due to
funding problems faced by local authorities.
The role of staff and staffing levels has a
direct effect on the level and the quality of the library service
and therefore deserves the attention of the Committee. Yet there
was an overall decline of the library workforce by 8 per cent
between 1984 and 1994, and numbers have further declined.
There will always be a need for the one to one
dialogue with the user which will involve the user expressing
their needs and the library worker identifying the most appropriate
resource. This will never be done adequately by computer and must
continue to be a key aspect of the service both in the reference
and community library setting.
All libraries must make full use of Information
Communications Technology and ICT based resources must form an
integral part of any library service. However they must not be
seen as a replacement for traditional resources such as books,
newspapers, magazines etc.
Libraries must be properly resourced and funded,
both to carry on their traditional activities and to take up their
new responsibilities. Adequate funding from central government
for the services and staff, as well as the maintenance and improvement
of premises, is greatly needed.
It is therefore essential that library services
should be free at the point of use to enable full access to the
cultural, economic and political life of the country. The principle
of free access for all should be extended to ICT services in public
libraries.
We agree with the LIC's recommendation that
the Government should provide core funding for the development
of the network and capital investment for infrastructure.
January 2000
| 
