Agendas, Minutes and Reports

13(4)

North Somerset Council

REPORT TO THE Executive

Date of Meeting: 22 September 2009

Subject of Report: Library SERVICE Review

Town or parish: All

Officer/Member presenting: Executive Member for Internal Organisation, Tourism and Leisure Services

Key Decision: Yes

RECOMMENDATIONS

That the Executive:-

i) endorses the continuation of improvements to Library Services in accordance with the policy outlined in paragraphs 2.3.1 to 2.3.3 of this report

ii) adopts the policy outlined in paragraph 2.3.5 as the basis for the future geographic provision of library services

iii) notes the progress on physical library investment outlined in paragraph 3.3.1

iv) approves the provision of a new mobile library to deliver the service in accordance with the general principles outlined in paragraph 3.3.2

v) notes the intention to provide alternative, more cost effective library service provision at Backwell, Banwell and Congresbury leading to the eventual closure of the existing buildings .

vi) That this report is referred to the Community Services Policy and Scrutiny Panel for comment

1. Summary of Report

This report examines and draws conclusions in relation to the library service review in relation to the geographic provision of public library services.

It outlines the current and planned investment in public libraries, the proposed policy basis for the future provision of static and mobile library services and the intention to provide alternative, more cost effective service provision at Backwell, Banwell & Congresbury leading to the eventual closure of the existing buildings in those communities. Further work in relation to opening hours, staffing costs and technology-led business improvement is planned. In particular, the Council will seek to plan for the introduction of RFID (Radio Frequency Identification) self service systems at libraries across the district, to realise further revenue savings and customer service improvements.

2. POLICY

Corporate Plan

2.1 The Council’s library services make an important contribution to lifelong learning by providing education resources and internet access to local residents. In addition, libraries provide gateways to all council services through “Council Connect”.

National Legislation

2.2 The Public Library and Museums Act 1964 places a duty on library authorities to provide a comprehensive and efficient library service. The terms “comprehensive and efficient” are not defined within the 1964 Act. However, broadly speaking, the Act requires library authorities to provide free of charge, access for people who live, work or study in their area to borrow or refer to books, printed material and pictures in line with their needs and requirements.

Local Policy

2.3.1 It is the Council’s policy to provide, wherever practicable, multi-purpose buildings, which co-locate services in line with community needs. Library provision will therefore continue to be planned as part of this community ‘hub’ offer including new provision in association with planned growth and development in the District. This could include a range of council services (as at The Campus) or bringing together a number of local services, as at the For All Healthy Living Centre. Every opportunity will be taken in the future to ensure value for money by locating / relocating services into single service buildings.

2.3.2 The Council has also embarked on a programme of improvements to ensure that libraries operate as “gateways” to council information and services through the council connect programme.

2.3.3 In addition, in order to promote community cohesion, the Council will actively support communities who wish to work in partnership to deliver their own services.

2.3.4 The Council has, in the past, measured its performance in relation to the (now withdrawn) Public Library Service Standards (PLSSs). The relevant standard in relation to proximity is shown below. [1]

2006/7 Performance
North Somerset	78	95
Unitary average	82	95
Average of unitary authorities with similar geography / population	69	90

2.3.5 As part of this review, it is recommended that due to the geography of North Somerset a local target is set that at least 90% of households are within 2 miles of a static library and that other key communities are served by a mobile library service of at least 30 minutes at least every three weeks.

3. Details

3.1 Background to the Review

3.1.1 The Council published its draft Medium Term Financial Plan on 9 June 2009. It identifies that the Council faces significant financial challenges in the period 2009 to 2012, with a shortfall of around £18m to be identified in the next two years. One of the key strategies to overcome these challenges is for efficiency gains to be secured across all services.

3.1.2 In this context, whilst this review had the objective of making financial savings, it has also focussed on doing so through a policy and evidence-based approach, which focuses on efficiency savings through maintaining the delivery of services, albeit at different levels and in different ways.

3.2 Background to the Service

3.2.1 The Council currently spends around £2.6m on library services. Spend per head of population is in the lowest quartile of all unitary authorities.

3.2.2 North Somerset Council currently provides 14 static libraries and 2 mobile libraries. Compared with other similar authorities, the Council’s provision is relatively high:-

· The provision of 16 service points open 10 hours or more per week is amongst the highest of all unitary authorities; the Council provides more service outlets than other authorities with similar population and geography.

· Currently 95% of households are within 2 miles of a static library and 78% are within 1 mile. The Council performs better than authorities with similar population in relation to these indicators.

· The Council’s performance in relation to population per service point is in the top quartile, with a population of 12,794 per service point, compared with an average of 14,318 and a “best” quartile figure of 12,817.

Full details of accessibility performance information are included at Appendix 1. The current geographic provision of static and mobile services is illustrated in Appendix 2. The map illustrates three particularly notable points:-

· There are a number of libraries whose geographic position overlaps in relation to the 2 mile boundaries, e.g. In rural areas:- Nailsea and Backwell; Yatton and Congresbury, Winscombe and Banwell; in urban areas:- Worle and the Campus; Weston-super-Mare and the For All Healthy Living Centre

· There are a significant number of mobile library stops that serve communities where there is a static library within 2 miles.

· There are currently a number of multiple mobile library stops in single communities

3.2.3 Each of the static and mobile libraries varies in size, opening hours, staffing, costs, visits, etc. The details for each are shown at Appendix 3 and 4, but important points to note are:-

· Of the rural libraries Backwell, Banwell and Congresbury have low numbers of visits, and the cost per visit is highest at Backwell and Banwell

· In terms of the buildings, the rural libraries at Backwell and Banwell do not meet the needs of the service and are not able to be modified to achieve this (see Asset Management Plan at Appendix 5)

· The mobile service has a low number of visits per hour and a high cost per visit

· Both mobile library vehicles are due for renewal

3.3 Proposal

3.3.1 Asset Management and investment in services

Appendix 5 assesses the contribution that buildings assets make to the delivery of library services. The assessment indicates that a number of buildings do not meet the current and future needs of the service. The Council has plans in place to deliver changes in many locations, but, in the case of Backwell and Banwell libraries, the buildings cannot be modified to make them fit for purpose.

The table overleaf details recent previous and future planned investment in libraries.

Building Asset	Current Asset Score (0-30)	Investment
Weston-super-Mare Central Library	0	· 2009/10 - major premises works to increase the life of the building and improve energy efficiency (£215,000) · Longer term - potential relocation into a new multi-purpose facility in the proposed redevelopment of Dolphin Square or other suitable town centre development or premises (subject to funding)
Clevedon Library	15	· 2009/10 - significant refurbishment works (£220,000)
Nailsea Library	5	· Medium to long term - potential relocation (with other services) as part of town centre redevelopment (subject to funding)
Portishead Library	5	· 2009/10 - creation of meeting room to support multi-use. · 2011/12 - replacement library / gateway to services to be built in partnership with the developer
Worle Library	25	· 2007/8 - extensive refurbishment
Backwell Library	10	· Building cannot be modified to make it fit for purpose
Banwell Library	10	· Building cannot be modified to make it fit for purpose
Congresbury Library	20	· Fit for purpose
For All Healthy Living Centre	TBA	· A small library was opened in March 2005 and, more recently, with the help of the BIG Lottery, a new community library was opened in June 2009 in partnership with other local service providers
Long Ashton Library	20	· 2009/10 - creation of meeting room to support multi-use
Pill Library	20	· Medium term - creation of meeting room to support multi-use (subject to funding)
The Campus	25	· New community multi-purpose facility opened in 2005
Winscombe Library	5	· This library can be improved to make it more fit for purpose, but requires significant investment to meet DDA requirements and carry out maintenance works. Proposals are currently being considered.
Yatton Library	25	· New community library opened in 2006

Building Asset

Current Asset Score (0-30)

Investment

All libraries

· Investment in libraries as gateways to council information and services through “council connect”:-

- Staff in libraries are able to help with a number of queries in relation to council services;

- Customer telephones are being installed to enable customer to make a free call to any one of 10 of the council’s most popular services;

- Meeting rooms are being created so that it will be possible to hold surgeries for customers where they can meet council officers to discuss enquiries face to face

- Designated Council Connect computers are available

- 91% of customers say that they would use a council gateway again

- 80% of enquiries are dealt with at the first point of contact

3.3.2 Mobile library service proposals

· This report recommends that the Council procures a new library vehicle either by lease or purchase and restructures the mobile library routes to ensure that a more cost effective service is provided, which gives priority to households not within 2 miles of a static library and focuses on communities in greatest need. Whilst detailed work will need to be carried out to complete the route rationalisation, the general principles proposed to be adopted are follows:-

- Longer stops (minimum 30 minutes)

- Minimum frequency once every three weeks, but more often where appropriate / possible

- More central, safe and accessible stops and, where possible, associated with other community meeting places / services

- Free reservations

- Significant reduction in stops within 2 miles of a static library

- No multiple stops in one community

- Introduction of a range of new “gateway to council information and services” where practicable

It is estimated that a revenue budget saving of around £70,000 per annum can be made through these proposals.

3.3.3 Static library service proposals

If the current provision of services described in paragraph 3.2 is considered with the proposed provision standard in 2.3.5, the Libraries at Backwell, Banwell and Congresbury should close and be replaced with a mobile service. The reasoning for this conclusion is set out in the table below:

Backwell

· Building does not meet the needs of the service

· Geographic overlap with Nailsea

· 587 active users in 2008/9 (lowest of all rural libraries)

· Highest cost per visit of all rural libraries

· Replace with enhanced mobile service

· Freehold asset value to the Council

· Revenue saving = c. £20,000

· Meets Council’s proximity target

Banwell

· Building does not meet the needs of the service

· Geographic overlap with Winscombe

· 668 active users in 2008/9 (second lowest of all rural libraries)

· 2^nd highest cost per visit of all rural libraries

· Replace with enhanced mobile service

· Lease runs out in June 2010

· Revenue saving = c. £30,000

· Meets Council’s proximity target

Congresbury

· Geographic overlap with Yatton

· 871 active users in 2008/9 (fourth lowest of all rural libraries)

· Replace with enhanced mobile service

· Potential to work with CYPS on alternative provision as part of Children’s Centre

· Revenue saving = c. £20,000

· May need to relocate local ICT hub (£40k - £60k one-off cost)

· Meets Council’s proximity target

However, recognising the value of the static library service to these communities, it is proposed that alternative, more cost effective arrangements be investigated and put in place before the existing library buildings are closed. In line with the Council’s policy, this could mean better use of the mobile service or, where possible, the creation of multi-use buildings with children’s centres; schools; leisure centres or, indeed, any other suitable local building.

Whilst no alternative provision has yet been identified it is assumed that any such provision will be more efficient than the current arrangements and, therefore, allow savings to be made on current costs. An annual target saving of £30,000 has been identified for these three libraries.

4. Consultation

Consultation in relation to the implementation of these proposals will be carried out with relevant staff and trades unions

The Council would welcome proposals from interested parties in relation to community provision of alternative services in partnership with the Council.

5. Financial Implications

The proposals in relation to the mobile library service and static library provision included in this report are estimated to provide an annual saving to the Council of around £100,000. Some one off costs associated with the relocation of an ICT hub may be required. These costs and savings will need to be incorporated into the 2010/11 budget.

Investment proposals referred to in paragraph 3.3.1 are included in the Council’s capital programme where funding has been secured.

The estimated capital value to the Council of the Backwell site is around £35,000.

6. Equality Implications

A full equality impact assessment will be carried out once the detailed proposals have been formulated.

The library service currently offers an outreach service to people who are housebound as a way of enabling them to access the library materials that are available. This arm of the service currently meets the needs of approx 100 people and is delivered by library staff in partnership with a number of trained volunteers and voluntary agencies. In addition there are a many other people, in similar circumstances, who are able to access library services in an indirect way – primarily through the support of family and friends or through dovetailing the collection/return of library loan stock with their existing carer and/or support arrangements.

If the final proposals result in a negative impact the library service will seek to extend its outreach services. Where possible this will be done in partnership with others, including the voluntary sector and Adult Social Services and Housing.

7. Corporate Implications

The numbers of staff currently employed in these service areas are as follows:-

Library	Staff - headcount	Staff - Full Time Equivalents (FTEs)
Backwell, Banwell & Congresbury	5	1.9
Mobile libraries	4	4.0
Total	9	5.9

It is envisaged that a new mobile library service would operate with between 1.5 and 2.0 FTEs.

Until the final proposals are formulated, it is not possible to determine the likely impact on staffing levels or arrangements.

Property

The implications of early termination of lease will also need to be fully investigated, but it is not thought that these would be significant. The closure of the library at Backwell would result in the property within the Council’s ownership being surplus to the requirements of the library service.

8. Options considered

Given the proximity of Worle library to the Campus, the co-existence of these two libraries was reviewed. However, it was considered that the size and distinctiveness of the communities that each library served was large enough to merit both libraries remaining open.

Authors

David Lawrence, Assistant Director, Development & Environment

01275 884280

david.lawrence@n-somerset.gov.uk

Katherine Copley, Head of Resources, Development & Environment

01934 634613

katherine.copley@n-somerset.gov.uk

Viv Thomson, Group Manager, Leisure & Libraries, Development & Environment

01934 427276

vivienne.thomson@n-somerset.gov.uk

Background Papers

CIPFA and DCMS performance information

Appendix 1 – Accessibility Performance Information

Proximity

North Somerset fails the former National Public Library Service Standards (PLSS) for the proportion of households within 1 and 2 miles respectively of a static public library, with performance at 78% and 95% respectively (with the standards set at 88% and 100%). Performance also falls below average when compared with other unitary authorities. However, there is some correlation between population density and performance. No authority with a population more sparse than North Somerset’s performs better than us in relation to either proximity indicator.

Authorities with similar population in terms of size and density perform less well than North Somerset, e.g. B&NES, South Gloucestershire, Isle of Wight, Milton Keynes, Peterborough.

Authority	Population	Size (hectares)	Population Density	% households within 1 mile	% households within 2 miles
B&NES	178,300	35,111	5.1	64.6%	86.1%
Isle of Wight	139,500	38,013	3.7	68.6%	89.3%
Milton Keynes	228,400	30,864	7.4	41.2%	90.5%
North Somerset	204,700	37,467	5.5	78.1%	95.0%
Peterborough	163,300	34,337	4.8	73.6%	94.8%
South Gloucestershire	256,500	49,692	5.2	75.1%	90.8%
All Unitary Councils average (median)				87.0%	98.5%

Number of libraries

North Somerset has 16 service points open 10 hours or more per week (including the 2 mobiles); this is amongst the highest of all unitary authorities (only 8 of the 46 authorities have more service points than North Somerset. Of those authorities with similar populations, all have fewer service outlets than North Somerset.

Authority	Population	Size (hectares)	Population Density	Number of service points open 10 hours or more
B&NES	178,300	35,111	5.1	10
Isle of Wight	139,500	38,013	3.7	12
Milton Keynes	228,400	30,864	7.4	10
North Somerset	204,700	37,467	5.5	16
Peterborough	163,300	34,337	4.8	11
South Gloucestershire	256,500	49,692	5.2	14
All Unitary Councils average (median)				12

In addition, North Somerset’s performance in relation to population per service point is in the best quartile. It has a population of 12,794 per service point, compared to an average of 14,318 and a “best” quartile figure of 12,817.

Opening hours

North Somerset’s scheduled opening hours are in excess of the unitary average and fall only marginally short of the PLSS. Opening hours are 125.7 per 1,000 population, compared with an average of 121.5 and the PLSS of 128

Net Floor Space

However, in relation to net floor space, the Council performs less well, having the lowest but one floor space per 1,000 population of all unitary authorities - 12.4 square metres compared to an average of 20.6 and a lowest quartile of 16.1

Visits

North Somerset has fewer visits per 1,000 population than the unitary average and falls well short of the PLSS (although this is set very high and only 9 of the 46 unitary councils meet the standard). North Somerset has 4,663 visits per 1,000 population compared to an average of 4,986.

Conclusion

Compared with other similar authorities, North Somerset’s provision (in terms of number, proximity and opening hours of libraries) is relatively good. However, the aggregate size of the libraries is small and some are in poor condition and not able to meet service needs.

Appendix 3 - Statistics by library

	Library	Total active registered users	Issues 2008/9	Visits 2008/9	Opening hours / week	Net floor space (sq m)	Total costs 2007/8	Cost per visit	Visits per hour	Adult satisfaction	Child Satisfaction	Asset management score
Town Libraries	Clevedon	6,411	146,941	115,024	41.5	245	£238,848	£2.08	55.4	91.0%	91.6%	Amber
	Nailsea	7,274	159,111	147,946	40.5	313	£212,214	£1.43	73.1	88.8%	84.8%	Red
	Portishead	4,514	106,435	93,821	36.5	167	£155,650	£1.66	51.4	68.9%	82.5%	Red
	Weston-super-Mare	10,551	238,315	212,799	55.5	507	£707,228	£3.32	76.7	90.2%	83.3%	Red
Village Libraries	Backwell	587	10,608	5,710	12.0	25	£18,662	£3.27	9.5	86.2%	75.0%	Red
	Banwell	668	12,216	8,500	21.0	61	£24,660	£2.90	8.1	97.3%	88.2%	Red
	Congresbury	871	17,539	15,510	15.0	55	£20,556	£1.33	20.7	86.1%	85.0%	Amber
	Long Ashton	1,515	36,424	23,646	23.5	104	£41,415	£1.75	20.1	90.2%	88.8%	Amber
	Pill	810	24,931	18,769	15.0	176	£22,736	£1.21	25.0	90.0%	80.0%	Amber
	Winscombe	1,525	34,066	29,692	24.5	48	£41,734	£1.41	24.2	80.0%	86.9%	Red
	Worle	5,712	116,074	79,664	40.0	285	£116,841	£1.47	39.8	94.8%	87.2%	Green
	Yatton	3,277	78,355	65,109	42.0	286	£120,092	£1.84	31.0	N/A	97.1%	Green
Multi-purpose facilities	Campus	4,237	62,304	80,850	41.0	212			39.4	93.5%	85.8%	Green
Multi-purpose facilities	HLC	449	4,782	19,701	39.5	30			10.0	97.3%	89.1%	Green
Mobile libraries	North Mobile	1,019	25,477	8,832	19.1	9	£59,190	£6.70	9.3	94.7%	88.5%	N/A
Mobile libraries	West Mobile	1,290	39,316	14,051	26.8	10	£57,161	£4.07	10.5	97.8%	77.2%	N/A

Appendix 5 – Extract from Asset Management Plan

ASSESSMENT CRITERIA FOR ASSET CONTRIBUTION TO DELIVERY OF LIBRARY SERVICE:

The assessment of assets to establish with how they contribute to service delivery has been established on suitability, sufficiency and sustainability. The objective assessment of each of these criteria assists the assessment of the asset as to whether it contributes, reasonably contributes or inadequately contributes to service delivery. It is important to therefore establish criteria on which to base the assessment of the service’s assets. In some instances the assessment on one or more of the elements may need to look at the wider implications of the service’s property assets.

In general terms the three elements of the assessment are based on the following:

Suitability: function, location, image, accessibility and satisfaction

Sufficiency: space, environment and flexibility

Sustainability: outstanding condition, DDA and other works, extent of recurrent expenditure, long term costs of holding the asset.

The library assets of the service can be broken down into three types:

· The Weston Central Library

· Town libraries: Clevedon, Nailsea, Portishead and Worle

· Village and community libraries: Backwell, Banwell, The Campus, Congresbury, Healthy Living Centre, Long Ashton, Pill, Winscombe, Yatton

The fitness testing of each of the groups will vary due to the size of the individual libraries and the intended target customers

Suitability

Function: The asset from which the service is delivered clearly must be suitable for the purpose of delivering a library and information service.

Location: The library should be located in an accessible part of the town or village appropriate for the delivery of this service, with reasonable public transport connections and car parking in close proximity

Image: The image of the library must be appropriate for the delivery of the service. Libraries are a point of contact between the Council and its customers, and it is expected that the library should reflect the image that the Council wishes to portray

Accessibility: Must be accessible by all members of the public with or without disabilities, with sufficient circulation space within the library.

Satisfaction: As shown by the frequency of use by the public

Sufficiency

Space: An indictor as to whether the library is able to handle the volume of customers visiting it without discomfort.

Environment: Looks at the sufficiency of the general comfort of the users

Flexibility Looks at the ability of the asset to be adapted to meet changing demands.

Sustainability

Libraries are provided as a free public service under statute, there is limited potential for income generation. The sustainability of the individual assets must be measured in relation to the amount of the Council is prepared to spend to continue the provision of this service. This should be measured against required present and the likely continued costs of repair, maintenance and occupation costs

Tweed Road Depot

No specific criteria have been laid down for the test of fitness for the service’s purpose, as this unit has been recently developed and should be considered adequate for the service’s needs.

Asset contribution to service delivery

Asset	Suitability	Sufficiency	Sustainability	Overall

Weston Central Library	0	0	0	0

Clevedon Library	5	5	5	15
Nailsea Library	5	0	0	5
Portishead Library	0	0	5	5
Worle Library	10	10	5	25

Backwell Library	5	0	5	10
Banwell Library	5	0	5	10
Congresbury Library	10	5	5	20
Healthy Living Centre
Long Ashton Library	5	10	5	20
Pill Library	5	5	10	20
The Campus Library	10	5	10	25
Winscombe library	0	0	5	5
Yatton Library	10	10	5	25

Tweed Road depot

[1] Sparse authorities are defined as the 10% of authorities with highest sparsity of population indices. North Somerset does not fall within this 10% but is significantly more sparsely populated than most unitary authorities

Route	Stop duration (hh:mm)
North Mobile Week 1	17:30
North Mobile Week 2	20:40
North Total		38:10
West Mobile Week 1	26:10
West Mobile Week 2	27:20
West Total		53:30
TOTAL		91:40