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AGENDA ITEM No:
Cabinet Report
Date: 12th December 2011
Classification: For General Release
Title: The Libraries Tri-borough Mandate
Wards Affected: ALL
Financial Summary: There are no direct financial implications arising
from this report
Report of: Tri-borough Director of Libraries and Archives
1. Executive Summary
1.1 The Mandate for Westminster’s Library and Archive Service sets out the vision and
direction for Westminster as we move into an integrated Tri-borough service. It is
envisaged that this mandate will last for a period of three years from April 2012, but renewed
each year as part of the council’s business plan.
1.2 The Mandate is based around the themes of; reading, learning, digital, information,
access and community. Put simply that people realise their potential, by using the
library service to improve their lives, talking full advantage of its unique capacity to
stimulate learning, increase access to services, and support the community.
1.3 As set out in the Libraries Tri-borough business case an options appraisal on new or
alternative delivery and trading models has been carried out to determine the most
appropriate model going forwards. A Tri-borough option, which looked at developing
the in-house Tri-borough service to enter the market, either on its own or in
collaboration with a third party was also examined.
1.4 Following consideration by the Tri-borough Members Steering Group the option to
develop the in-house Tri-borough service is being recommended.
2. Recommendations
2.1 That Cabinet accepts the attached document as the mandate for Library and Archive
Services in Westminster for 2012 onwards. It will be the guiding principle for the Tri-
Borough Director of Libraries and Archives in relation to Westminster Council as we
enter the new arrangements.
2.2 That Cabinet accepts the recommendation from the Members Steering Group that the
in-house Tri-borough option should be implemented, maximising all possible
opportunities for cost – saving, income generation and trading and that outsourcing
options should not be pursued at this moment in time.
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3. Reasons for Decision
3.1 The Council are required through the Tri-Borough Agreement with Kensington and
Chelsea and Hammersmith and Fulham to lay out its policy and direction for Libraries
and Archives in Westminster. This document lays out the direction of travel as
Westminster enters into the agreement.
4. Background, including Policy Context
Westminster Libraries and Archives Mandate
4.1 In June 2011 Westminster City Council agreed to enter into an agreement with
Kensington and Chelsea and Hammersmith and Fulham Councils to create a single
integrated Library Service across the three boroughs.
4.2 Under this agreement each of the three Boroughs will retain sovereignty over its own
policy and direction for Libraries and Archives. The attached Mandate sets out the
vision, principles and goals of the Westminster Library Service and outlines how this
will be delivered through Tri-borough arrangements.
4.3 The Mandate for Westminster Libraries and Archives is built on the vision and
objectives outlined in the Integrated Tri-borough Library Service Business Case. It
also draws on existing plans and discussions with Policy and Scrutiny committee
earlier in 2011.
4.4 The Mandate is based around the themes of reading, learning, digital, information,
access and community. Put simply that people realise their potential, by using the
library service to improve their lives, talking full advantage of its unique capacity to
stimulate learning, increase access to services, and support the community.
4.5 A Libraries Tri-borough Steering Group was established in June 2011 consisting of
Member representation from all thee authorities. This informal group of Officers and
Members will supervise further refinement and implementation of an integrated tri-
borough library service. The group do not have formal decision making powers nor
have responsibility for overseeing service delivery, which at Member level remains
with each of the boroughs Cabinet Members and Overview and Scrutiny Committees.
4.6 All three authorities are developing individual Mandates that will be cleared by each
authorities’ Cabinet. The Libraries Tri-borough Steering Group have discussed all
three draft mandates.
Options appraisal on Alternative delivery models
4.7 As part of the Tri-borough Libraries Business Case agreed by Cabinet in June 2011, it
was agreed that an options appraisal on new or alternative delivery and trading
models would be carried out in 2011/12 in order to determine the most appropriate
model going forwards.
4.8 The appraisal has now been completed (see Background Papers) and considered by
the Libraries Tri-Borough Members Steering Group. The appraisal included the
following:
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A comparative assessment of the pros and cons of the full range of governance
and legal models available for alternative delivery, including charities, employee
led mutuals, and private sector. Six governance models and eleven legal
formats were considered.
A Tri-borough option, whereby we develop the in-house Tri-borough service to
enter the market, either on its own or in collaboration with a third party.
The current strengths and weaknesses of Tri-borough Library services, as well
as the future strategic direction and broader social & political context for library
services, as set out in the original Tri-borough Libraries business case and the
draft Mandates.
Analysis of the costs and savings/benefits of the different options
Informal market dialogue sessions with 6 potential provider organisations.
Learning from what other authorities have done in relation to outsourcing their
libraries.
4.9 Based on this appraisal, the Tri-Borough Members Steering Group concluded that:
the current external market is immature with only one private sector operator
actually delivering a service in one borough, and a handful of single-borough
trusts (all covering wider leisure and cultural services), and a number of other
companies expressing interest in entering the market, but with no core track
record in library provision;
there were significant risks in outsourcing at this time because of the immaturity
of the market and the transitional state of the Tri-borough service;
we are at a very early stage in implementing the integrated in-house Tri-
borough service, with more financial and service benefits to be realised at no
significant risk;
the in-house Tri-borough service could itself enter the market once it is more
established, trading services to other authorities from its established base;
there is the expectation of additional savings to library overhead and support
costs (such as IT, Finance and HR) being achieved through Project Athena.
4.10 The Members Steering Group therefore unanimously recommends that the in-house
Tri-borough option should be implemented, maximising all possible opportunities for
cost – saving, income generation and trading and that outsourcing options should not
be pursued at this moment in time. Meanwhile, Officers are asked to monitor the
situation and report back to members on any significant developments in the market.
5. Financial Implications
5.1 The Mandate will be delivered in the context of the financial savings set out in the Tri-
borough business case.
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6. Legal Implications
6.1 The mandate will be delivered within the context of the Libraries Tri-borough Joint
Working Agreement which sets out the working arrangements for the service.
7 Equality Impact Assessment
7.1 An Equality Impact Assessment is being carried out to assess the impact of the
mandate for Westminster Libraries and Archives. Any significant issues that arise from
this assessment will be reported to the Cabinet Member for Customer Services and
Transformation. An initial Equalities Impact Assessment has been carried out which has
identified no negative impacts for customer and community groups.
Background papers:
Integrated Tri-borough Library Service Business Case June 2011
Future business models for tri-borough library service – overview of pros and cons,
September 2011
Future business models for tri-borough library service – potential financial savings,
November 2011
Informal market research sessions with suppliers, November 2011
Notes of Steering group meetings, September 26th 2011; November 28th 2011
If you have any queries about this Report or wish to inspect any of the
Background Papers please contact:
David Ruse, Tri-borough Director of Libraries and Archives, Tel: 0207 641 2496,
Email: druse@westminster.gov.uk
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Westminster’s mandate for libraries, archives and
community learning
This document sets out the proposed mandate for the provision of community learning service and
support within the Library and Archive Services.
It is envisaged that it will last for a period of three years from April 2012, but renewed each year as
part of the council’s business plan.
“Our residents and visitors will be able to access the best the other boroughs have to offer. We will
keep libraries open and make over one million books available to people across the three boroughs.”
Cllr. Colin Barrow, Leader, Westminster City Council
“My kids love reading now, every week we go to St John’s Wood Library and get a new book and I
take 15 minutes every night to read with each one of them.”
Naimah Abdullah, Westminster resident
Our vision: stimulate, serve, support
Put simply that people realise their potential, by using our library service to improve their
lives, talking full advantage of its unique capacity to stimulate learning, increase access to
services, and support the community.
The first and modern London public library
Our libraries are the original source of self help and self improvement at the centre of the
community. In 1857 Westminster opened the first public lending library in London. In 2010,
when many others authorities were planning large closure programmes, Westminster
recognised their importance to local communities and opened two new libraries in Church
Street and Pimlico.
This mandate for our library services modernises our approach to libraries by placing them at
the forefront of the drive to expand civic society by involving users and welcoming community
groups and utilising our library sites as local sources of service and information.
Our principles: a free universal service meeting diverse needs
Libraries should be freely available to everyone in the community and meet their
present and future reading, learning and information needs.
We believe libraries are fundamental to inspiring and enabling learning and
reading. Libraries improve well-being and health, skills and learning, and support
active and sustainable communities.
Westminster Libraries will continue to provide and encourage access to reading,
information, lifelong learning, leisure and cultural activities for everyone who lives,
studies and works in Westminster.
They support children and young people enjoy, achieve, and make a positive
contribution to their communities.
The local library is the face of the council in the community. The library service
recognises that it must develop to meet the needs of rapidly changing communities
and neighborhoods.
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Our Work: Learning, Services, Community
Stimulating Learning
READING: help children and adults become proficient readers for life and promote the
love of reading for pleasure
LEARNING: support formal education at every stage and be a major provider of informal
and self-directed learning for all
Increasing Access to Services
CUSTOMER: Provide a home for the new One Stop Express services and encourage
citizens to seek advice, access services, become more self-sufficient and make the most
of what the council has to offer
DIGITAL: create and provide access to digital resources, and help people to bridge the
digital divide through support and training
Supporting the wider community and businesses
COMMUNITY: provide an accessible, safe place in the heart of local communities, a
meeting place for local people and organizations, a place where new and developing
business can work and a venue for cultural events and activities
INFORMATION: provide the gateway to the world’s knowledge (about anything and
everything) and to local community information, with intelligent interpretation from expert
staff and to keep the record of the history of local people and communities, helping to
create identity and cohesive communities.
Some facts about Westminster’s Library and Archives Service
Our summer reading challenge, ‘Circus Stars’, saw 90 volunteers help over 2,000 children
learn to read
We offer users nearly a million books, plus CDs, DVDs, language courses and talking
books, as well as newspapers, magazines, local information and access to
computers.Term-time homework clubs and holiday activities are provided
Our Health Information Service provides access to a wide range of information on health
care and services, general wellbeing and healthy lifestyles, finding a support group, as
well as the therapeutic value of shared reading
Business Information Points at Westminster Reference Library, Church Street, Pimlico
and Paddington Libraries assist businesses, entrepreneurs, and the local economy.
We host 40 adult learning courses every week, helping residents improve their English
language, literacy and IT skills
Our libraries are an entry point into a wide range of other council and agency services,
offering information and support to meet community needs, and allowing people to do
business with all parts of the Council in their local community.
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Fifteen goals for 2012/13
Sixty-five per cent of residents and 87% of our 86,000 users are already satisfied with our
libraries1, but we want even more visitors and residents to enjoy and make use of the
service. We will create local libraries where our customers can get ideas, inspiration, books
and facts, talk to staff and deal with the council.
Stimulating Learning
Increase participation by 5% by delivering a wide range of adult and children’s reading,
learning and cultural activities
Enhance our world-class Archives Service and maintain collections of national
importance, including the Music Library and specialist reference collections
Integrate the Home Library Service, creating a local service that understands and
responds better to community need.
From author talks to training opportunities and health information, there will be a range of
events and activities to suit everyone
Increasing Access to Services
Increase the range of other council services that customers can access through libraries,
with support from library staff, making libraries a central part of our customer strategy.
One Stop Express machines to offer free access to online services from the council,
including payments, information and applications.
Develop our online services and digital content, including e-books, e-learning courses, an
improved website and customer interface, promotion of online resources and expansion
of our use of social media, adding to the 2.5 million online visits a year that we receive
We will offer more than just access to Google, providing improved reference and
information services which will be available 24/7
Staff will be positive, well-motivated, listen and help.
Closer involvement of communities in the development of local Library and Archive
Services
Libraries will remain open and some services will be available 24/7
A single library card will give residents the ability to borrow or return items to any library
across Westminster, Hammersmith & Fulham and Kensington & Chelsea.
Supporting the wider community and businesses
Progress plans to replace Marylebone Library in a way that meets local community
needs and dovetails with planned developments.
Create a wider range and number of volunteering opportunities and develop our Civic
Community Charter – last year 217 volunteers gave over 10,000 hours.
Improve information, learning and skills support for residents and local businesses,
building on our four externally funded Business Information Points, our externally funded
Health Information programme, and providing support to young jobless residents.
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Based on 2,500 interviews, source: City Survey 2010
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Continue to provide a range of locally commissioned services for Westminster’s diverse
communities, including Chinese Services, Bengali Services and the Schools Library
Service
Delivery: Through the Tri Borough programme
With over one million books available to residents and visitors across the three boroughs, we
believe that a single managed Library and Archive Service provides a unique opportunity to
sustain and improve this excellent and highly valued frontline service.
We are combining our library services to tackle common problems around literacy and
learning, improve people’s lives through extended provision and make public money go
further by reducing management and overhead costs.
The Sovereignty Guarantee will safeguard service standards in Westminster, ensuring that
City Councillors determine how long our libraries are open and what services they offer.
The new Westminster library service will focus on stimulating and spreading learning through
reading and by teaching digital and language skills. It will offer a new way to transact with the
council and get advice about services and will focus on supporting new and growing
business through the successful Business Information Points.
Westminster’s libraries will become the gateway to a wider tri-borough service, enabling
users to access a wider range of books and other materials, including the specialist
collections held by each borough. Customers will also be able to access the differing
specialist expertise and experience of staff.
There will be consistent standards of service across the three boroughs, ensuring customers
receive a high quality experience regardless of where they are or whether they walk into a
library, speak on the phone or visit the website.
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Appendix: An integrated library structure
A single integrated Library Service across all three councils will be lead by a single
management structure:
In Westminster, a total of 127 staff will deliver the new integrated core service, with a
further 27 staff dedicated to supporting locally commissioned services.
Sharing existing structures across the three boroughs will reduce the budget for the
service from £8.6m to £7.5m, releasing £1.1m worth of savings (£450,000 of which will
be apportioned to Westminster)
From 2012 we will review options for alternative approaches to the delivery of the
service.
To achieve all this, we will deliver the new integrated Tri-Borough Library Service across
three phases:
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Westminster’s libraries and archives in numbers
11 libraries open 644 hours a week and visited 2.5 million times a year
230 computers and Wi-Fi provide free online access
A home library service used by over 500 residents
2.4 million items loaned every year
Over 60,000 prints, drawings & photographs
Local government records dating from 1460
And every year 86,000 people either join a library or renew their membership
Our core services:
Reading Learning
Resources to support adult reading Resources to support adult and children’s
learning
Special events to support children’s
literacy Learning activities to improve adult
literacy and IT skills
Activities to support reader development
Help with finding a job and advancing in
A programme of outreach to meet local
your career
need, such as our Home Libraries
Service
Digital Information
Creation of digital content, such as Access to information resources and
community databases knowledgeable staff
Access to on-line digital resources, such Access to local and council information
as health and business support
Improved access to special collections
information
Access to archives of national and local
Learning activities to improve digital
importance, including 60,000 prints,
literacy, such as how to get online and
drawings & photographs and electoral
navigate around
registers, census returns, parish
Free access to PCs registers, and business archives dating
from 1460
Free access to free Wi-Fi
Community Customer Access
Venues for community and partner Supported Online access to other public
organisations to meet services via Your One Stop Express
A venue for cultural events and activities ‘Surgery’ location for other services
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