CABINET 09/12/2014 FOR INFORMATION AGENDA ITEM 15
BOROUGH OF POOLE
COMMUNITIES OVERVIEW & SCRUTINY COMMITTEE
25th NOVEMBER 2014
MEDIUM TERM FINANCIAL PLAN 2014-18
POOLE PUBLIC LIBRARY SERVICE REPORT: REPORT OF THE HEAD OF CULTURE & COMMUNITY LEARNING
1. PURPOSE OF THE REPORT
1.1 The main purpose of the report is to present the package of measures that will
deliver the £200,000 of savings from the library service budget in the financial year 2015/16, including making the changes to the Mobile Library Service.
2. RECOMMENDATIONS
2.1That Members recommend to Cabinet:
(i)To note the contents of the report.
(ii)To accept the package of measures to deliver the £200,000 of annual revenue savings required from Poole Public Library Service to achieve a balanced budget in 2015/16.
3. BACKGROUND INFORMATION
3.1At the 8 July 2014 Communities Overview and Scrutiny Committee Members considered a report from Poole Public Library Service and accepted the need to carry out consultation with the service users of the Mobile Library about the new services that could replace the current Mobile Library provision.
The committee was advised that:
3.1.1Last year the Mobile Library contributed 1.6% of the total issues for the service or 12,878. That number is evenly split between visits to public stops and visits to homes. The total issues for the library service as a whole amounted to 804,000 last year.
3.1.2Mobile Library: Public Stops: The Mobile Service has 184 customers that have used the Mobile Library at the stops for the public at least once in the last 12 months. During that period the visitor count for the service shows 7 out of the 11 stops averaged 6 visitors or less. Appendix A shows the schedule of the stops.
3.1.3In a recent CIPFA survey 68 (50%) of customers visiting the Mobile Library stops for the public arrived on foot, 5 (4%) customers used a bicycle and 63 (46%) of customers used private transport.
3.1.4The Mobile Library is in addition to the excellent network of 10 static libraries in Poole that are available to everyone and free to use, with a total of 32,542 active borrowers.
3.1.5Mobile Library: Residential/Sheltered housing stops: The Mobile Library has 146 customers that live in 34 sheltered housing schemes and residential homes and who used the service at least once in the last 12 months. Appendix A shows the schedule of the stops.
3.1.6The Home Library Service also run by Poole Libraries delivers to an additional 21 residential homes and sheltered housing via a bulk loan scheme using the Poole Courier Service to deliver the stock. This service will continue.
3.1.7Expenditure on the mobile library service has been managed effectively but visits and issues show an overall downward trend.
3.1.8Changes to the customer profiles in sheltered housing require commensurate changes to the current delivery model. More people are living for longer with increasingly complex health conditions and the service needs to change to reflect this. Increasingly the service is required to provide resources to support customers with age related illness e.g. dementia and personalised services to combat feelings of loneliness and isolation.
3.1.9A Home Library Service delivered by the Royal Voluntary Service, currently supports 300 customers who cannot get to a static library in Poole. This bespoke service, delivers library services to the most vulnerable in our community in their own home, delivers books and other resources to customers. This will continue and expand as the needs of users change, and can include those that currently use the Mobile Library.
3.1.10 A downloadable audio book service and an E-book service are now both available and are free to use and do not require a visit to a library.
3.1.11 Poole Libraries wishes to offer a new Small Community Library service to customers and communities from April 2015.
4. COMMUNITY ENGAGEMENT AND CONSULTATION
4.1The 6 week consultation about the current use and proposals for the Mobile Library Service was undertaken during September and October 2014 as follows:
4.1.1A questionnaire was directly posted to the homes of all current mobile library users.
4.1.2A questionnaire was available on the Council’s website and hard copies in all Poole Libraries for any service user/non user to complete.
4.1.3Three ‘drop in’ sessions for users and non users to talk to officers about the mobile library service proposals.
4.1.4Presentation of these proposals at the Broadstone, Merley and Bearwood Area Committee meeting on the 22nd September 2014
4.1.5Ad hoc community meeting attendance and time spent on the Mobile Library by officers.
4.1.6Press releases issued and communications to the people of Poole.
4.1.7This evidence has been used to support the Equality Impact Assessment on the proposed change in service and throughout this report.
5. A SUMMARY OF THE RESULTS IS AS FOLLOWS:
5.1 For information: percentages given in each case below are of the total number of respondents answering the question. The corresponding count is given in parenthesis. The bases for each question can be found in the consultation report in Appendix B
5.2 There were 221 responses to the consultation during the 6 week period that closed on the 24th October; 70 were customers of the Mobile Library at the Sheltered Housing / Residential stops/Seaview Day Centre (48% response rate) and 104 were users of the Mobile Library at the public stops (57% response rate). The overall response rate was 53%. Forty-seven responses were received from other persons who were not on the list of current users.
5.3For brevity, we refer to the two types of respondent as Home Stop respondents and Public Stop respondents.
5.4 59% (41) Home Stop respondents and 56% (57) of Public Stop respondents thought withdrawing the service would have a major affect on them.
5.524% (17) of all Home Stop respondents said that they currently also use a static library.
5.638% (39) of Public Stop respondents said they currently also use a static library.
5.7 55% (46) of Public Stop respondents said that they have their own private transport.
5.8 54% (56)of Public Stop respondents did not have a limiting illness or disability.
5.9 40% (35) of Public Stop respondents said that they use the Wallisdown Crossroads site.
5.10Most respondents were elderly: the average age of a Home Stop respondent was 78 and the average age of Public Stop respondent was 69.
5.11 Most respondents were female: 86% (56) of Home Stop respondents were female and 77% (77) of Public Stop respondents were female.
5.12 The full consultation report is set out in Appendix B.
6. MOBILE LIBRARY
6.1The current condition of the Mobile Library is such that the reliability of the vehicle cannot be guaranteed. This means that on occasions the Mobile Library vehicle is under repair and as a consequence is unable to go out and deliver the service. In the last 12 months that has amounted to a loss of 43.5 public service hours.
7. WALLISDOWN SITE
7.1During the consultation there have been various comments and enquiries from the public and Members about the Wallisdown Crossroads site where the Mobile Library currently has a public stop. These comments and enquiries were concerning the previous funding arrangements for the Mobile Library between Bournemouth Borough Council and Borough of Poole and about the land at the Wallisdown Crossroads site. Detailed information about these matters is set out in Appendix E.
8. MOBILE LIBRARY: CONCLUSIONS
8.1The primary objective of the consultation was to inform the changes being considered about the way library services are currently delivered through the Mobile Library.
8.2 Changes to the customer profiles in sheltered housing schemes and residential homes and the overall downward trend of issues and visits require commensurate changes to the current delivery model.
8.3The review of services provided by the Mobile Library, undertaken by the professional librarians in Poole Libraries, was informed by the work commissioned by the Arts Council England and the Local Government Association. Both organisations have developed guiding principles to assist local authorities who are considering reviewing the delivery of library services to work with their communities. Also our newly revitalised but long established partnership with the Royal Voluntary Service (RVS) meant we could develop the Home Library Service and offer a bespoke service tailored more closely to meet the needs of the individual customers.
8.4From the responses received through the consultation, it is clear that the Mobile Library Service is valued by the 184 customers currently who use it at the public stops and the 146 customers who use it at the residential/sheltered housing stops. The 32,542 customers in the wider community use the static library service which is being preserved at present. It is therefore reasonable to conclude that this proportion of use supports considering this part of the service for savings.
8.5 We want to continue to support individuals and local communities to achieve their aspirations by creating a vibrant, welcoming library service that provides access to books, information and learning opportunities in a variety of ways and settings, and in partnership with others. So following any changes to the Mobile Library Servicethe 146 service users living in sheltered housing would continue to benefit from the improved Home Library Service. That service, provided by Poole Libraries in partnership with the Royal Voluntary Service, will increase capacity to provide delivery of books to older people’s homes and help older people develop digital skills as demonstrated through the libraries current innovative project using tablets to engage home library service customers.
8.6That means that all older library service users who are not able to travel independently to a library or to a new small community library will receive support to sustain their library use.
8.7The library needs of the 184 customers using the service at the public stops have also been carefully considered and any perceived detriment to them from losing the Mobile Library will be addressed by the mitigation measures detailed in the Equalities Impact Assessment in Appendix C. This includes the development of several new small community libraries, 24/7 Library offer and an expanded Home Library Service.
8.8 Two local organisations are very enthusiastic about each hosting a small community library. They are currently working with Poole Libraries to put in place two small community libraries in locations visited by the Mobile Library by the 31st March 2015. They are the Management Committee of the Bearwood Community Centre and the Head teacher of Bearwood Primary and Nursery School. Both small community libraries will set their own opening hours. It is anticipated these will significantly increase access to library services than that current offered in the area by the Mobile Library.
8.9There are two further local organisations that have expressed an interest in hosting a community library. Poole Libraries are currently talking to a sheltered housing facility in Selkirk Close run by Poole Housing Partnership and the Sea View Day Centre. These are not yet confirmed.
9. FURTHER EFFICIENCIES AND INCREASE IN INCOME
9.1 A savings target in the region of £150,000 through further efficiencies should be achievable. They include:
9.1.1Fees and charges: changes include the introduction of a flat fee overdue charge of twenty pence per day, reservations which are currently free will be charged at a £1and a small charge made for replacement library tickets. These changes will bring us into line with neighbouring library authorities, including Bournemouth and Dorset. Please see Appendix D for more information.
9.1.2The existing concessions for customers who are disabled, blind or customers of the Home Library Service remain unchanged. That means there are no charges.
9.1.3Lettings: changes include the introduction of a 12.5% increase to community groups where charges apply and a 20% increase for commercial concerns. Please see Appendix D for more information.
9.1.4Poole is working with Libraries West to procure a new Library Management System. The main benefits for Poole as a member of the Libraries West Consortium include a reduction in annual operating costs for the Library Management System, improved library offer to Poole residents with access to the stock, reference resources and reader development events of all partner authorities, improved training and development opportunities for Poole library staff and a single library card for all members across the consortium.
9.1.5Dorset Library Service is also a partner in this joint procurement process for a new Library Management System with Libraries West and Borough of Poole. In September 2014, Dorset County Council's Cabinet agreed in principle that Dorset Library Service becomes a member of the Libraries West consortium. Subject to the necessary due diligence process, this will mean that Dorset will share the same Library Management System as other Libraries West authorities and benefit from a shared catalogue, access to a wide range of stock and a single library card. With Dorset and Poole being neighbouring authorities, there will clearly be benefits for local residents.
9.1.6The Libraries West consortium, established in 1996 consists of 5 public library authorities in the South West; they are Bath & North East Somerset, Bristol, South Gloucestershire, North Somerset and Somerset. Dorset and Poole joining will bring that up to 7 public library authorities and create a coast to coast offer.
9.2 Commercial Initiative
9.2.1Poole Libraries is one of only six Public Library Authorities nationally that has been chosen by ‘Locality’, an organisation working for the Arts Council, to pilot innovative income generation initiatives in Public Libraries that can be shared with other Authorities as best practice.
9.2.2One strand of this work will focus on increasing the hiring out of libraries and library rooms as community venues and developing a new celebration event offer that makes best use of our in-house catering facilities. Our first offer will be children’s celebration parties with a literacy theme.
10.FINANCIAL IMPLICATIONS
10.1The table in 10.2 below shows outline budget savings to deliver the £200,000 of annual revenue savings required from Poole Public Library Service to achieve a balanced budget in 2015/16 in support of the Council’s Medium Term Financial Plan (MTFP).
10.2
Lettings, Fees & Charges / £47,000 additional incomeStaff, systems, back office / £103,000 saving
Mobile Library / £50,000 saving
Total / £200,000 saving
10.3The cost of a replacement Mobile Library vehicleis notincluded in the table because it is funded through capital expenditure and is not part of the £200,000 of required annual revenue savings.
10.4The cost of a replacement Mobile Library is anticipated to be in the region of £100,000. In a recent competitive tendering exercise one local authority has purchased a Mobile Library for £111,000 and another authority has set aside £120,000 to purchase a Mobile Library. For information, Poole Libraries paid £83,655 for the current vehicle in 2007.
10.5Replacement of the vehicle has been budgeted for within the Council’s fleet replacement programme which is funded from Prudential borrowing. It is part of the Council’s Capital Programme and noted in the annual budget book as agreed by full Council on the 25th February 2014.
10.6The Prudential borrowing set aside for this is ring fenced solely for the purpose of purchasing vehicles in support of the Council’s Vehicle Usage Policy. Any vehicle listed for replacement that is subsequently not actioned enables the fund to be used only for other vehicles listed in the Fleet replacement programme.
10.7The 2014/2015 budget for libraries is £2,389,000 (excluding depreciation). Between 2009/10 and 2014/15 staffing has reduced by 10.97FTE posts (17%). In 2012/13 savings were made through a staff re-organisation that streamlined the management team structure. From 2009/10 to 2014/15 net expenditure has reduced by £378,000.
11. LEGAL IMPLICATIONS
11.1Legal advice has been taken in the preparation of this report.
11.2Local Authorities statutory obligation with regard to Libraries is contained in the Public Libraries and Museums Act (1967) and this obligation is not adversely affected by the recommendations in this report.
11.3In relation to the Equality Act 2010 an Equality Impact Assessment forms part of this report.
12. STAFFING IMPLICATIONS
The Mobile Library has one full time member of staff and:
12.1In addition relief staff provide holiday and sickness cover.
12.2Impacts on existing staff and options for change will be considered within the Council’s change management policies if the recommendations go forward to Cabinet.
13. RISK MANAGEMENT IMPLICATIONS
13.1 There is a risk that continuing to run the Mobile Library vehicle in its current condition will result in interruptions to service or costly breakdowns. There is uncertainty as to how long the vehicle will be able to continue.
13.2 In the light of the relatively low number of users the potential cost of replacement for the Mobile Library, anticipated to be in the region of £100,000 may leave the Council open to criticism for not making the best use of limited financial resources at a time of economic difficulty.
13.3Poole is working with Libraries West to procure a new Library Management System that offers potential savings from being part of that larger network. Dorset County Council also plans to join Libraries West. There is a risk to the plan to save £200,000 if the procurement of that new system does not progress as anticipated.
13.4The risks associated with running small community libraries with volunteers include the possibility of being unable to recruit sufficient volunteers and possible lapses in service quality.
13.5There is a risk that if the Mobile Library continues the work to set up the small community library programme would cease because the service does not have the capacity to deliver both services.
13.6There is a risk that if the package of measures to deliver the £200,000 of annual revenue savings required in 2015/16 are not accepted there will be significant financial pressure on the static library service.
13.7There is a risk that this level of savings or increased income required in one financial year will not be met in full.New income streams have been introduced in line with best practice in other Authorities but will take time to establish in Poole. We will monitor the situation closely during the first year of implementation.
14 EQUALITIES IMPLICATIONS
14.1An Equalities Impact Assessment accompanies this report for proposed changes to the Mobile Library Service.