HERTFORDSHIRE COUNTY COUNCIL
POLICY & RESOURCES CABINET PANEL
THURSDAY 18 SEPTEMBER 2008 AT 2.00pm
LIBRARIES FOR THE 21ST CENTURY
Report of the Director of Children, Schools & Families
Author: / Glenda Wood, Head of Libraries, Culture & LearningDerek Knight, Head of Operations, Planning & Performance
Tel: / 01707 281538
Executive Member: / Keith Emsall
1. / Purpose of report
1.1 / To review whether the additional investment and actions in the ‘Libraries for the 21st Century’ (L421C) implementation plan have led to an improvement in performance.
2. / Summary
2.1 / Results demonstrate that the increase in opening hours has enabled the specific targets identified as success measures in L421C to be met:
Public Library ServiceStandard (PLSSS) 2 for aggregate opening hours achieved.
The decline in library use has been reversed.
The service continues to be delivered within budget.
CPA Culture Block score assessed as a 4 star service for the first time in 2007.
2.2 / The review of the library network and the longer term investment in a programme of library refurbishments or replacements has improved overall opportunities for service delivery and customer expectations. Although Public Library Service Standard (PLSS) 4 on number of electronic workstations per 1,000 population has not been met, the refurbishment programme has enabled a significant improvement against this indicator.
3. / Recommendation
The Panel is asked to agree whether the additional investment and actions in the implementation plan have led to an improvement in performance.
4. / Background
4.1 / The‘Libraries for the 21st Century’ (L421C) vision was approved by cabinet in February 2006. Its aim was to take the library service from being a ‘good service with unlikely prospects for improvement’ (CPA Inspection 2002) to an excellent service. Development proposals focused on:
Increasing opening hours
Refurbishing or replacing buildings identified as not fit for purpose
Reviewing the library network
4.2 / Public consultation onthe L421C proposals was held in June 2006. The programme was devised and overseen by Ipsos MORI and was designed to be widely inclusive of all residents and stakeholders in Hertfordshire as well as seeking views from specific target groups. The key messages from the survey were:
That, regardless of geographical location, people were seeking a consistent, logical and memorable pattern of opening hours.
Improvements to ‘core’ opening hours during the day were supported rather than extensions such as early morning or late evening.
Marketing and awareness of the service required improvement.
The image of libraries, particularly external appearance, needed to be more appealing.
4.3 / These key messages were incorporated into an implementation plan which identified extended opening hours, the programme of refurbishments or replacements of libraries and the closure of four small libraries. This implementation plan was approved by Cabinet in July 2006 and implemented from September 2006 onwards. The main features are summarised below
5. / L421C - increased opening hours
5.1 / All static libraries, except Waltham Cross, increased their opening hours to a standard pattern on 5 March 2007. The table below shows how the increased hours were introduced, categorised by size and use of the library. Appendix 1 shows the increases at individual library, grouped in these categories:
Category / How opening hours were increased
Largest libraries open the longest hours / Sunday and more evening opening
Larger, busiest libraries / Open on closed days and five evenings a week
Large libraries / Open to 5.00pm on closed days
Standardised hours at smaller libraries, less busy libraries / Open 9.00-1.00; 2.00-6.00 four days a week
Smallest libraries (single staffed) / Open each weekday 2.00-6.00pm
CRL / Open at 8.00am Tuesday-Friday
Waltham Cross / No change
Overall, the extended opening hours resulted in a net increase of 272.5 opening hours per week across the county.
5.2 / An extensive publicity campaign during February-April 2007 raised awareness of the increased hours prior to their implementation in March 2007.
6. / Refurbishments
6.1 / Since April 2006, six libraries have been refurbished through L421C capital funding with improvements to a further two libraries from other funding sources (see Appendix 2).
7. / Review of library network
7.1 / Three tests were applied to the network to ensure that resources would be invested in library buildings that would deliver increased use of resources. These tests were usage (as measured by issues and visits); location and a ‘fit for purpose’ building test.
7.2 / Four libraries were identified for closure as they did not meet these criteria.These were: Jackmans and Cranborne libraries, which closed in September 2006 and, following a further consultation within each local community,Fleetville and Cunningham, which closed in March 2007.A fortnightly Mobile Library service was introduced to these communities following the closure of the libraries. Adjacent libraries at Marshalswick, London Colney, Oakmere and Letchworth have also shown a significant increase in use during 2007/08.
8. / Financial summary of investment
8.1 / The additional annual net revenue cost for the increased hours in 2007/08 was £733,000. Additional staffing was recruited in 2006/07 to ensure effective training and these costs are reflected in the yearly unit cost per visit figure in the table below.
Year / Unadjusted figure / Adjusted figure reported in CPA
2005/06 / £3.07 / £2.91
2006/07 / £3.42 / £2.80
2007/08 / £3.39 / Not yet available
8.2 / Capital costs for building refurbishment/replacements are subject to individual capital bids.
9. / Impact on use - Quantitative measurement
9.1 / Year-on-year comparisons between 2006/07 and 2007/08 are presented by the category of library in Appendices 3a-c and summarised below. The percentage increase is lowest for the larger libraries as they has a proportionally smaller increase in opening hours
9.1.1 / Largest libraries open the longest hours
Six libraries extended their hours to open on Sundays and more evenings.
Overall impact / Percentage increase in use
Visits / 7.3%
Issues / 2.6%
Active Borrowers / 1.5%
9.1.2 / Watford library was closed for refurbishment in January and February 2007 therefore the annual comparison for the number of visits showed an unrepresentative increase in usage.
9.1.3 / Figures for Stevenage, St Albans and Bishop's Stortford libraries showed an increase in usage, the figures for these three libraries are a better indication of the trend for this group with an average increase of 6% in visits, 3% in issues and 3% in active borrowers. The visit figure for StevenageLibrary showed the highest increase for the group at 7.9%.
9.1.4 / Usage figures at Hemel and Welwyn Garden City libraries show a decrease, Hemel Hempstead library was closed intermittently during winter 2007 due to heating problems. Welwyn Garden City library was closed for two weeks in October 2007 for the installation of a new ICT suite and study area on the first floor.
9.2 / Larger, busiest libraries
Ten libraries extended their hours to open on closed days and five evenings a week.
Overall impact / Percentage increase in use
Visits / 5.6%
Issues / 1.6%
Active Borrowers / 2.7%
9.2.1 / Borehamwood library showed the highest increase in visits (17.8%), followed by Berkhamsted (12.4%), Oakmere (11.5%) and Letchworth libraries (8.2%). These libraries also showed an increase in issues and active borrowers.
9.2.2 / Hatfield library re-opened in July 2007 following a substantial refurbishment, and showed an increase of 6.8% in visits, 3.3% in issues and 32.3% in active borrowers.
9.2.3 / Visit figures for Hoddesdon library showed a decrease of -1.5%, issue figures decreased by -7.8% and active borrowers decreased by -3.6%, this decrease in usage was due to intermittent closures due to problems with the building and vandalism. It may also reflect the comparative increase in use experienced in 2006/07 after the library was refurbished in late 2005.
9.3 / Large libraries
Thirteen libraries opened to 5pm on closed days.
Overall impact / Percentage increase in use
Visits / 12.6%
Issues / 4.1%
Active Borrowers / 3.1%
9.3.1 / Several libraries in this group had unrepresentative usage figures. Tring library had substantial increases in visits, issues and active borrowers, due to the library being closed for several months during 2006 for refurbishment.
9.3.2 / Woodhall library reported a low visit figure for 2007/08 due to problems with the visit count machine at the library, issues and active borrower figures at Woodhall library showed a substantial increase.
9.3.3 / North Watford and Chorleywood libraries both had problems with the visit count machine during 2006 which has resulted in an inflated percentage increase in their visit figure and does not reflect the small variances in issue and active borrowers.
9.3.4 / Hertford, Ware and Oxhey libraries showed a more representative picture of the trend for this group, as illustrated in the following table:
Hertford / Ware / Oxhey
Visits / 10.3% / 6.5% / 11.8%
Issues / 6.0% / 1.6% / 0.3%
Active Borrowers / 5.4% / 2.2% / 0.5%
9.3.5 / Marshalswick library showed a substantial increase in all usage and it is likely that this is a result of the closure of Cunningham and Fleetville libraries in March 2007. Visits at Marshalswick increased by 60.6%, issues by 20.1% and active borrowers by 5.7%.
9.4 / Smaller, less busy libraries
Seven smaller libraries extended their opening hours to standard pattern, opening from 9am to 1pm and 2pm to 6pm on four days a week.
Overall impact / Percentage increase in use
Visits / 11.4%
Issues / 3.2%
Active Borrowers / 1.7%
9.4.1 / There was a significant increase in visits for five of the seven libraries in this group and for Bovingdon, Buntingford and Kings Langley libraries there was also a significant increase in issues.
9.4.2 / The only library with figures which show a decrease in all usage was Abbots Langley.This was due to its closure during November 2007 to enable work to be carried out on the roof.
9.4.3 / Whilst the 41.1% increase in the visit figure for Goffs Oak library is unrepresentative due to closure for refurbishment and problems with the visit count machine, issue figures showed an increase of 9.5% and active borrowers increased by 3.3%.
9.5 / Smallest libraries
Nine, smallest libraries extended their opening hours to standard pattern, opening each weekday from 2pm to 6pm and retaining the morning opening on Saturdays.
9.5.1 / This group of libraries showed the highest percentage increase in usage, although the actual numbers were obviously much smaller than at larger libraries.
Overall impact / Percentage increase in use
Visits / 15.4%
Issues / 13.2%
Active Borrowers / 17.1%
9.5.2 / All of the libraries in this group showed an increase in active borrowers;all except Stevenage Old Townshowed an increase in issues; all except Stevenage Old Townand London Colney showed an increase in visits, in the latter case due to a broken visit count machine which was unrepresentative of the increase in usage for the library after the closure of Cunningham, which is reflected in its 55% increase in issues.
9.5.3 / Leverstock Green library opened extra hours when Hemel Hempstead library was closed due to heating problems during 2007 and showed a34.3% increase in visits, 10.2% in issues and 13.7% in active borrowers.
9.6 / Central Resources Library (CRL)
CRL opened at 8am during weekdays, primarily to facilitate escalated enquiries from the Customer Service Centre rather than to increase issues and visits.
9.6.1 / Waltham Cross Library
Opening hours at Waltham Cross were not extended as this library was already opened significant hours due to its partnership arrangement with Broxbourne one-stop shop.
9.6.2 / As a comparative measure, visits at Waltham Cross decreased by -0.5%, issues decreased by -2.6% and there was no change in the number of active borrowers.
9.7 / Impact on specific libraries
A number of variables affect the use of individual libraries and influence the comparison of use caused by any one effect. For example, in addition to the increased opening hours, the impact of marketing and promotion of the service and the planned closure of libraries for refurbishment or repair. However, libraries that were refurbished or replaced generally had a greater increase in use than those that only benefited from extended opening hours – see Appendices 3 a-c.
9.7.1 / It is also possible to detect a trend that libraries adjacent to those closed during the service review have experienced a larger than average comparative increase in use. For example:
9.7.2 / Increased issues at Marshalswick(20.1%) and London Colney (55.8%) may be due to closure of Fleetville and Cunningham. London Colney was also closed for refurbishment during 2006 so the 55.8% increase in issues and 25.6% increase in active borrowers there may be attributable to both factors.
9.7.3 / Issues increased by 5% on the Harpenden Mobile Library as it provided two new stops in the area served by Cunningham and Fleetville.
9.8 / Sunday opening
Six libraries are now open from 1-5pm on Sundays and the overall trend has been that visits have increased throughout the year. Appendix 4 illustrates the monthly seasonal usage at each library. The decline in March 2007 is due to Easter Sunday closing which fell during this month.
10. / Impact on use – what people have said about the changes
10.1 / HCC Tracking survey results
The 2007 Residents Survey included two questions on the impact of the new opening hours. Overall, 41% of respondents said that the new hours were more convenient and 28% said that they would be likely to use the library more than before. A summary of District responses shows that:
10.1.1 / Over 50% of respondents in Dacorum, East Herts and Stevenage districts said that the new library open hours were more convenient. Broxbourne and Hertsmere districts had the least percentage of respondents who said that they found the new hours more convenient.
10.1.2 / Only3.8% of respondents in Dacorum and 1.2% in East Herts said that they found the new open hours less convenient. No respondents in any of the other districts said that the hours were less convenient.
10.1.3 / The questions in the survey which asked respondents about the likely frequency of their visits following the new open hours returned a varied result between districts for the percentage of respondents who were likely to use the library more frequently, ranging from 40.6% in Dacorum to 9.9% in Broxbourne.
10.1.4 / 6.2% of respondents in Broxbourne district and 2.35% of respondents in North Herts said that the new open hours meant that they were likely to use the library less often, none of the respondents in the other districts said they would use the library less often.
10.1.5 / The full response by District is:
Are the new opening hours at your library …?
District / More convenient / Less convenient / No difference / Don’t know
Dacorum / 52.7% / 3.8% / 32.6% / 10.9%
East Herts / 52.5% / 1.2% / 43.5% / 2.7%
Stevenage / 51.7% / 0.0% / 48.3% / 0.0%
Welwyn & Hatfield / 49.3% / 0.0% / 47.9% / 2.9%
North Herts / 45.8% / 0.0% / 43.7% / 10.5%
Watford / 38.3% / 0.0% / 61.7% / 0.0%
Three Rivers / 34.3% / 0.0% / 65.7% / 0.0%
St Albans / 29.2% / 0.0% / 65.3% / 5.5%
Broxbourne / 20.1% / 0.0% / 62.2% / 17.7%
Hertsmere / 14.7% / 0.0% / 85.3% / 0.0%
Do the new hours of opening mean that you are likely to use the library….?
District / More often / Less often / About as often / Don’t know
Dacorum / 40.6% / 0.0% / 57.6% / 1.9%
Welwyn & Hatfield / 39.5% / 0.0% / 55.7% / 4.9%
North Herts / 30.8% / 2.3% / 55.9% / 11.0%
East Herts / 30.2% / 0.0% / 68.6% / 1.2%
St Albans / 26.8% / 0.0% / 67.7% / 5.5%
Three Rivers / 22.6% / 0.0% / 77.4% / 0.0%
Stevenage / 20.8% / 0.0% / 79.2% / 0.0%
Watford / 18.5% / 0.0% / 81.5% / 0.0%
Hertsmere / 15.8% / 0.0% / 84.4% / 0.0%
Broxbourne / 9.9% / 6.2% / 67.0% / 16.9%
11. / Complaints
11.1.1 / Of the 519 complaints received in the period April 2007 to March 2008, 30 referred specifically to library open hours. Of these, 18 were about hours at the smallest libraries open from 2pm to 6pm and were complaints about the lack of morning open hours, eg:
‘I don't think opening every afternoon is a good idea. Some people can only get here in the mornings’ (Adeyfield)
Customer would like the library to open in the morning so that she can combine a trip to the library with her shopping (Knebworth)
'It is very, very inconvenient that both Adeyfield and Leverstock Green libraries have the same opening hours. Much better if one opens in the morning and the other in the afternoon'.
11.1.2 / Six complaints concerned lunchtime closing of some libraries. Most of which were asking for at least one evening open after 6pm. Three of the complaints were received from Buntingford library, eg:
‘Really missing the 6-7pm opening but on the positive side, the staff at Buntingford are so friendly and helpful - even when I rush in just as they are closing’
'My husband preferred the 7pm closing time as he now can't get here after work. I regularly visit the library (Buntingford) and have always found the staff helpful’
‘I really need the library (Sawbridgeworth) to be open later in the evenings. Up to 8pm would be great, but at least 7pm. If you work in London it is very hard to get to the library before 6 o'clock’
‘The new opening hours are not bad, it would be useful to have one evening when it is open later’ (Kings Langley)
11.1.3 / At the largest libraries there were two comments atBishop's Stortford asking for the library to be open between 11am and 3pm and one complaint that there is no way of contacting this library by telephone on a Sunday. Another complainant wanted St Albans to be open longer than its current 65 hours a week.
'I’d like the library to be open for longer on Saturdays, as I need somewhere to revise for exams. Saturday is the busiest day and most important’ (St Albans)
11.2 / Compliments
Of the 390 compliments received during 2007/08, 24 of referred specifically to open hours.
11.2.1 / Positive feedback was received at largest librariesregarding Sunday opening, eg:
‘Sunday opening is great for working people. Please could the hours be extended on Sundays’ (St Albans)
‘I would like to say how really pleased I am that the Hemel Hempstead Library is open on Sunday’
‘Opening times are perfect for me’ (Stevenage)
11.2.2 / 50% of the compliments received about open hours were from busier libraries open on previously closed days and on all weekday evenings. Nine of the comments were received at Berkhamsted library, eg:
'Thank you for Wednesday opening - it's the only day I can bring the children after school, and much less busy than Saturdays' (Berkhamsted)
‘We are thrilled that the library (Berkhamsted) is open for longer hours. This is really useful as a working mother for homework topics for my children. Also good to see it open on Wednesday’
‘We love our library! (Hitchin) It's very handy that it's open in the evenings too’
‘Really pleased that the library (Letchworth) is open until 8pm and on Wednesdays’
11.3 / Comments on refurbished libraries
Comments received included:
‘What a wonderful, bright new look to the library entrance, I really like the new colours’ (Tring)
‘Great improvement in all aspects, staff are great too’ (Tring)
‘I noticed the improvement that has slowly taken place. Well done, I appreciate the facilities you are now providing’ (Watford)
The new library is beautiful and the staff very polite and helpful’ (Hatfield)
‘Congratulations on your makeover! – but where is the noticeboard?’ (Hatfield)
‘The library and its staff provide excellent value for money. It is by far the best value for money I receive from my Council Tax payments ‘ (Hatfield)
‘Am amazed at the splendid job of refurbishing Hatfield library, a wonderful piece of workmanship. Thank you’ (Hatfield)
11.4 / National monitoring and benchmarking
11.4.1 / The lag between investment costs and performance measured against use and satisfaction indicators means that whilst HCC direction of travel can be measured, there is little up to date benchmarking information available on the performance of statistical neighbours. Performance information that is available includes:-
PLSS 2 (aggregate opening hours) met: This was an improvement from 116 to 128 hours per 1000 head of population.
PLSS 4 (PCs per 10,000 head of population): improved from 4.5 to 4.9 (the national standard is 6). Reported number of PCs rose from 479 to 514.
CPA Culture Block assessed as a 4 star service for the first time in 2007. While HCC improved its score from 3 to 4, the total number of 4 county authorities fell from 19 to 18.
11.4.2 / The Children’s Public Library User Survey (PLUS) included a question which is used to inform PLSS 8 (satisfaction with library services by children aged 0-15). The 2007 assessment of 86.2% rating the service as ‘good’ improved from 75% in 2007 but fell marginally short of the national top quartile standard of 87%. When the last children’s PLUS was carried out in Hertfordshire libraries in 2003 children were asked what they thought of the library opening hours. Only 61.6% responded that they thought the opening hours were good. The question in the survey regarding opening hours had changed by the time of the 2007 survey, the percentage of children in the 2007 survey answering that the library was open when they wanted to visit was 91.8%.
Background papers