Decision:
Cabinet RESOLVED the following amended recommendations;
2.1 To consider the assessment of local needs undertaken as part of the Libraries Review, detailed in Appendix A to the 31st January Cabinet - Phase 1-2 Report and outlined in paragraph 6.47 below
2.2 To consider the detailed consultation activity undertaken on the proposed Library Service model as outlined in Section 6 of this report and Appendix A titled Library Service Review Phase 3 Report and Appendix B titled Library Service Review Phase 3 Consultation Findings Report.
2.3 To consider the consultation responses and findings on the proposed Library Service model including the areas of concern raised by residents as outlined in section 6 of this report and Appendix B titled Library Service Review Phase 3 Consultation Findings Report and Appendix C – Review of Closure Options Report.
2.4 To consider the equality impact assessments of the proposed Library Service model including the proposed library closures and the action to mitigate the impact on groups with protected characteristics as outlined in Section 6 (6.47 to 6.67) and Section 8 (8.3.1 to 8.3.9) and Appendix D titled Equality Impact Assessment set, and Appendix C titled Review of Closure Options.
2.5 To consider the recommendations arising from the Scrutiny and Overview Committee meeting on 17th September 2024 relating to the proposed Library Service model.
Please note the Executive Response to the Scrutiny recommendations was approved by Cabinet at Item 6. Scrutiny Stage Two.
2.6 To consider whether the proposed Library Service model as set out in Section 6 below would meet the assessed local needs and the duty to provide a comprehensive and efficient library service.
2.7 To agree to adopt the proposed Library Service model set out in Section 6 below and Chapter 5 of Appendix A Library Service Review Phase 3 Report and summary of which are as follows:
a) To keep open and increase the opening hours to a minimum of 5 days a week and Saturday opening, including a programme of activity aligned to the Library Universal Offers at the following nine libraries:
i)Central Library (Opening days to be increased from 5 to 6 days per week);
ii) Ashburton Library (Opening days to be increased from 4 to 5 days per week);
iii) New Addington (Opening days to be increased from 3 to 5 days per week*);
iv) Selsdon Library (Staffed opening days to increase to from 3 to 5 days per week with two days self service access retained*);
v) Coulsdon Library (Opening days to be increased from 3 to 5 days per week);
vi) Purley Library (Opening days to be increased from 2 to 5 days per week*); vii) Norbury Library (Staffed opening days to increase to from 3 to 5 days per week with two days self service access retained);
viii) South Norwood Library (Opening days to be increased from 2 to 5 days per week*) and
ix) Thornton Heath Library (Opening days to be increased from 3 to 5 days per week)
All libraries will be open five days a week. *including some self-service access. See 6.38 for proposed new timetable.
b) To open all nine listed libraries above with staff on Saturdays.
c) To extend self-service access to Coulsdon and Thornton Heath Libraries.
d) To redevelop South Norwood Library in conjunction with the neighbouring Samuel Coleridge Taylor Youth Centre, delivering a library service alongside the existing Youth Centre and a new Family Hub, introducing self-service access and extending the opening hours to include Saturdays.
e) To redesign the space at New Addington Library to improve the utilisation and alignment with existing Croydon Adult Learning & Training (CALAT) service and to extend the opening hours to include Saturdays.
f) To invest in Purley Library to create classroom/event space for utilisation by CALAT and other VCFS partners and to extend the opening hours to include Saturdays.
g) To develop an outreach service to enable the library service to engage more effectively with non-users, reach areas of need in the borough and mitigate the impact of library closures across the following three strands of provision, and as set out in paragraphs 6.41-6.45 and Chapter 5 of Appendix A – Phase 3 Report: - Home Library Service – a book delivery service for residents unable to visit a library building, care homes and school settings impacted by library closures. - Community events – library service information and promotion at community events and festivals and in schools and settings. - Library Links – a network of community book collections in local venues available alongside weekly drop in sessions of library events and activities.
h) To provide a digital offer including the 24-hour online service offering an extensive collection of stock and materials, learning and reference help and a programme of digital skills support sessions delivered in the libraries and community venues as outlined in paragraph 6.46 and Chapter 5 of Appendix A – Phase 3 Report.
i) To improve the promotion and marketing of the service to better inform and engage residents with the library offer.
j) With effect from the 8th November 2024, to close the following four libraries: Bradmore Green, Broad Green, Sanderstead and Shirley.
k) To approve the following general measures to mitigate the impact of the four libraries closures:
• Extended opening hours at the remaining nine libraries to a minimum of 5 days a week, including introducing Saturday opening at all nine libraries and evening opening at two libraries, increasing staffed opening hours overall to 344 per week;
• Provision of a scheduled weekly accessible bus shuttle service for residents with access needs to visit their nearest library;
• Delivery of an outreach service entailing community book collections and weekly events held in community venues with a particular focus on areas of higher deprivation raised during the consultation;
• Provision of book collections for schools most impacted by the closure of libraries;
• Schools local to a library proposed to close will be accommodated for class visits at the next nearest Croydon Libraries;
• Investment in the library service digital offer including training and skills sessions;
• Improved marketing and communication of the service offer to better reach local residents;
• Access for users who are unable to visit a library to use the home library service.
2.8 To agree that the proposed model for the Library Service meets the assessed local needs identified and the duty to provide a comprehensive and efficient library service and as set out in paragraph 6.46 below.
2.9 To consider and approve the implementation plan outlined from section 6.73 and Chapter 7 of Appendix A Library Service Review Phase 3 Report for delivering the new model and which comprise a transition plan and full community mitigation measures for the four proposed libraries closures.
2.10 To agree to commence a process to consider community operation for sites no longer required for delivery of the statutory library service
Minutes:
The Executive Mayor introduced the Libraries Review and made the following statement:
The proposals before us today are the result of extensive independent research and review of libraries provision in the borough. This includes needs assessment, public consultation, analysis of the finding, equality impact analysis and ultimately a commitment to create a better library service for all of our residents.
As the Executive Mayor, I understand the importance of making tough decisions to ensure we have a comprehensive, modern, efficient, and accessible library service for all of our residents across the borough. This means investing in a model that reaches more people, with extended hours, greater access to study spaces, Wi-Fi, books, PCs, and community events and programmes.
Our library service has been struggling since 2019 owing to budget cuts of over £800,000 and significant reductions in opening hours, making the present service unsustainable.
Despite the best efforts of our staff, the library service is essentially failing residents and not meeting our best value duty. Currently, fewer than 10% of our borough’s residents are using the libraries, and even our own staff have indicated that the limited hours do not meet residents' needs.
To do nothing was not an option.
Having considered the extensive officer report and supporting appendices, I am minded to proceed with the proposed new library service model for the borough. The proposed changes seek to revitalise the service, making it more accessible to all Croydon residents and meet their assessed needs. We are proposing that our library service transition from 13 libraries, some of which are only open two days a week, to nine libraries open at least five days a week, including staffed Saturdays.
Overall, this will include increased staffed and opening hours, more outreach services, and an enhanced digital offer at our libraries.
To achieve this, we must make some difficult decisions. We are proposing the closure of four library buildings—Bradmore Green, Broad Green, Sanderstead, and Shirley. However, this does not mean the end of library services in these areas.
We plan to introduce a new outreach model, bringing services to easily accessible community venues, suggested by residents, where people can borrow books, participate in events, and stay connected with the community.
It was also evident through public consultation that the physical library buildings hold significance for the community.
Let me be clear: I want these buildings to continue to be used by the community, complemented with outreach services in these areas. Some funding will be available for building improvements if a community group wants to take on a library building.
This is not about asset sale or developing sites. This is about reinvestment in the service. I am pleased to advise that Shirley Library has been accepted as an Asset of Community Value, and I welcome other groups to come forward to also apply for their library buildings to be Assets of Community Value.
We have included an extensive engagement plan, which sets out how we intend to both support and engage with the community to run these buildings as community bases.
This will include facilitating a series of workshops to support any local groups who would like to explore this option. In the interim we are working with groups to ensure activities like rhyme time, knitting clubs, and games clubs continue in alternative venues. We are committed to ensuring no community is left behind.
This is not about selling sites to developers. The service must evolve as our reading habits change, and we must deliver an improved universal offer across the borough, supporting those who need us most.
We understand that the decision to close any library is difficult, and many will be saddened by the closure of their local branch. I know that libraries are much cherished, and I certainly have fond memories of my Saturday morning trips to the library with my dad.
That is why I want our libraries to once again be at the heart of our communities. I believe these proposals will achieve that, whether through community outreach to the young and old, online services, or as a library or community base.
This proposal is not about taking services away—it’s about ensuring we have a library service that works for everyone. We are committed to ensuring that this new approach benefits as many residents as possible and helps us build a stronger, more resilient Croydon library service for the future.
This Administration will ensure nine libraries open at least five days per week including Saturdays along with four community bases, an enhanced digital and outreach offers along with more opening hours, more staff and a better service for Croydonians.
Cabinet Member for Communities and Culture, Councillor Stranack advised the report was the culmination of a 15 month research and consultation process and reiterated that the current library service was failing to meet the council's best value duty to provide a comprehensive and efficient service to residents.
During the consultation Officers and Members had held 46 meetings, reaching a live audience of 1680 residents and in total 3500 residents provided feedback.
The key areas of feedback gathered were:
The transformed library service would meet the Library review's initial objectives, including;
The library services at Bradmore Green, Broadgreen, Shirley and Sanderstead would be removed. However there were a number of mitigating services within the proposals to ensure every Croydon resident still had access to a local library service. As set out in Appendix E of the Library Review report, consultation would be undertaken with local communities, voluntary and faith sector partners to ensure the spaces remained as community centres providing a range of services. Thanks were extended to key officers and all library staff for their time and effort throughout the research, consultation and formulation of the proposals.
Deputy Mayor and Cabinet Member for Homes, Councillor Hale echoed the thanks given to library staff for their hard work and noted one of the proposed closures was in Sanderstead ward, which they represented. The Sanderstead library building and a tree within its grounds were listed and the building recognised as an asset of community value. The building was described as a treasure and the importance of it to the local community noted. The closure of the library provided an opportunity for the building's use a community base for residents. It was suggested the current three day opening of the building should be protected and Councillor Hayle expressed their commitment to seeing the building thrive.
In response to questions, Director of Culture & Community Safety Kristian Aspinall, confirmed there were no plans to sell or develop any of the four library buildings. It was the intention to keep the buildings open as community bases and no budget had been forecast for any sales or development. Services would include a new home library outreach service, community events and 'Library Links' a community book collection and mobile events service. The council was working closely with all existing community groups to find alternative venues. A shuttle bus service would be launched and the timetable published in mid-October 2024. The total number of library opening hours was increasing with nine libraries opening a minimum of five days per week.
Cabinet Member for Finance, Councillor Cummings noted their conflict in representing a ward within which a library closure was proposed (Shirley) and being a Cabinet member representing Croydon as a whole. They thanked the residents who had championed Shirley Library and noted their support for the intention for the buildings to remain in use as accessible community spaces. The application for Shirley Library to be recognised as an asset of community value had been successful.
It was confirmed that in October 1986 as part of the construction of sheltered accommodation at Marlowe Lodge an extension had been constructed and opened at Shirley Library in December 1988. All conditions and transactions had been completed.
Clarification was sought regarding the covenant arrangements in place for Shirley Library and on the approach to ensure access to library services for residents of the Shrublands Estate.
Monitoring Officer, Stephen Lawrence-Orumwense advised the covenant arrangements in place did not include any requirement for the council to retain the building's use as a library. Advice on this position had been shared with the Scrutiny and Overview Committee.
Director of Culture & Community Safety, Kristian Aspinall responded that data showed residents of Shrublands Estate were not currently using the library service and the proposed outreach services would better serve residents in the estate.
Further clarification was sought regarding why there was no specific requirement for library provision within the covenants. Monitoring Officer, Stephen Lawrence-Orumwense advised there were three specific covenants which related to the boundary fences and gates, the building not being used for private dwelling and its value. There was no provision requiring the council to retain the building's use as a library.
Cabinet Member for Health and Adult Social Care, Councillor Yvette Hopley described how loved the Sanderstead library was by community groups and local families. Assurance was sought around the continued access to community groups for grounds maintenance and on how the council would work with community groups to ensure the continuation of current service provision and activities.
Officers advised the council was working closely with all existing community groups to transition to alternative spaces or where appropriate continue to use the spaces in the short term.
Longer term, as set out in Appendix E of the Library Review report, a proactive approach was being undertaken to identify and engage with existing or new community groups to take over the buildings, including via social media marketing and in person and online outreach meetings. The aim was to support groups for long term viable takeover of the buildings, including physical improvements to the buildings and potential transition grants to support takeover and running for the next two years. There had already been engagement with potential groups during the consultation process.
Corporate Director of Sustainable Communities, Regeneration & Economic Recovery, Nick Hibberd reiterated that the proposals were the culmination of an extensive process of independent research, a review of needs, public consultation and analysis of the consultation outcomes and the equalities impact assessment.
Director of Culture & Community Safety, Kristian Aspinall noted the full range of documentation available to support Cabinet in its decision making process as available at Appendices A - G of the Libraries Review Report. They advised Cabinet of the service’s requirement to deliver duties as set out in the 1964 Libraries Act, under the council's overall duty of best value to residents and within its legal Equalities duties.The council had sought to develop the library service in consultation with its communities and through analysis of evidence around local needs. It had worked closely with the Department for Culture, Media and Sport (DCMS) throughout the process ensuring it followed their guidelines and the statutory guidance. Croydon's library services was one of the cheapest library services in England and Wales. The current budget was almost entirely for staffing costs and had very little or no resource for other activities. The updated budget included the outreach service, the transport costs for the shuttle service, security costs for open plus and other budget lines that were previously not line items in the budget.
Findings and responses from the extensive consultation were available at Paragraph 6.6 of the Libraries Review report.
Detailed Equalities Impact Assessments (EQIA) available at Appendices Di - Dv had been undertaken and the potential equalities impacts of changes were considered throughout the process. Residents with protected characteristics were not well served by the existing model. Should a decision be made, the equalities impacts would continue to be monitored and would form part of the 12 month review of the service.
Some typographical errors had been identified within the report and these would be amended before any future publication, any amendments would not impact the evidence or proposals.
Director of Culture & Community Safety, Kristian Aspinall concluded whilst the majority of respondents to the consultation did not support library closures, the recommendations were the best possible solution to deliver a better service for Croydon residents and to enable the council to best meet its legal duties for libraries, best value and equalities.
The Executive Mayor thanked officers for their work both on the consultation process and on producing the significant reports.
Leader of the Opposition, Councillor Stuart King stated the closure of the four libraries would be devastating for the communities they served, noting their wider usage for community activities. Hundreds of residents had signed petitions to save the four libraries and two thirds of residents had rejected the proposals. Resident campaigners for Broad Green Library were present. Councillor King asked why the Executive Mayor was ignoring Croydon's residents, who had expressed they did not want their libraries to close.
The Executive Mayor responded that the proposals were to keep the buildings open and in use as community spaces. It was the intention to meet the needs of Croydon's most vulnerable residents and provide a best value and holistic service. Libraries were an emotive issue and the decision was a difficult one, but changes were required in the interests of the whole borough.
Director of Culture & Community Safety, Kristian Aspinall confirmed that every existing community group active within the libraries would be supported to find an alternative venue in the community or continue to use the existing building under temporary arrangements.
Cabinet RESOLVED the following amended recommendations;
2.1 To consider the assessment of local needs undertaken as part of the Libraries Review, detailed in Appendix A to the 31st January Cabinet - Phase 1-2 Report and outlined in paragraph 6.47 below
2.2 To consider the detailed consultation activity undertaken on the proposed Library Service model as outlined in Section 6 of this report and Appendix A titled Library Service Review Phase 3 Report and Appendix B titled Library Service Review Phase 3 Consultation Findings Report.
2.3 To consider the consultation responses and findings on the proposed Library Service model including the areas of concern raised by residents as outlined in section 6 of this report and Appendix B titled Library Service Review Phase 3 Consultation Findings Report and Appendix C – Review of Closure Options Report.
2.4 To consider the equality impact assessments of the proposed Library Service model including the proposed library closures and the action to mitigate the impact on groups with protected characteristics as outlined in Section 6 (6.47 to 6.67) and Section 8 (8.3.1 to 8.3.9) and Appendix D titled Equality Impact Assessment set, and Appendix C titled Review of Closure Options.
2.5 To consider the recommendations arising from the Scrutiny and Overview Committee meeting on 17th September 2024 relating to the proposed Library Service model.
Please note the Executive Response to the Scrutiny recommendations was approved by Cabinet at Item 6. Scrutiny Stage Two.
2.6 To consider whether the proposed Library Service model as set out in Section 6 below would meet the assessed local needs and the duty to provide a comprehensive and efficient library service.
2.7 To agree to adopt the proposed Library Service model set out in Section 6 below and Chapter 5 of Appendix A Library Service Review Phase 3 Report and summary of which are as follows:
a) To keep open and increase the opening hours to a minimum of 5 days a week and Saturday opening, including a programme of activity aligned to the Library Universal Offers at the following nine libraries:
i)Central Library (Opening days to be increased from 5 to 6 days per week);
ii) Ashburton Library (Opening days to be increased from 4 to 5 days per week);
iii) New Addington (Opening days to be increased from 3 to 5 days per week*);
iv) Selsdon Library (Staffed opening days to increase to from 3 to 5 days per week with two days self service access retained*);
v) Coulsdon Library (Opening days to be increased from 3 to 5 days per week);
vi) Purley Library (Opening days to be increased from 2 to 5 days per week*); vii) Norbury Library (Staffed opening days to increase to from 3 to 5 days per week with two days self service access retained);
viii) South Norwood Library (Opening days to be increased from 2 to 5 days per week*) and
ix) Thornton Heath Library (Opening days to be increased from 3 to 5 days per week)
All libraries will be open five days a week. *including some self-service access. See 6.38 for proposed new timetable.
b) To open all nine listed libraries above with staff on Saturdays.
c) To extend self-service access to Coulsdon and Thornton Heath Libraries.
d) To redevelop South Norwood Library in conjunction with the neighbouring Samuel Coleridge Taylor Youth Centre, delivering a library service alongside the existing Youth Centre and a new Family Hub, introducing self-service access and extending the opening hours to include Saturdays.
e) To redesign the space at New Addington Library to improve the utilisation and alignment with existing Croydon Adult Learning & Training (CALAT) service and to extend the opening hours to include Saturdays.
f) To invest in Purley Library to create classroom/event space for utilisation by CALAT and other VCFS partners and to extend the opening hours to include Saturdays.
g) To develop an outreach service to enable the library service to engage more effectively with non-users, reach areas of need in the borough and mitigate the impact of library closures across the following three strands of provision, and as set out in paragraphs 6.41-6.45 and Chapter 5 of Appendix A – Phase 3 Report: - Home Library Service – a book delivery service for residents unable to visit a library building, care homes and school settings impacted by library closures. - Community events – library service information and promotion at community events and festivals and in schools and settings. - Library Links – a network of community book collections in local venues available alongside weekly drop in sessions of library events and activities.
h) To provide a digital offer including the 24-hour online service offering an extensive collection of stock and materials, learning and reference help and a programme of digital skills support sessions delivered in the libraries and community venues as outlined in paragraph 6.46 and Chapter 5 of Appendix A – Phase 3 Report.
i) To improve the promotion and marketing of the service to better inform and engage residents with the library offer.
j) With effect from the 8th November 2024, to close the following four libraries: Bradmore Green, Broad Green, Sanderstead and Shirley.
k) To approve the following general measures to mitigate the impact of the four libraries closures:
• Extended opening hours at the remaining nine libraries to a minimum of 5 days a week, including introducing Saturday opening at all nine libraries and evening opening at two libraries, increasing staffed opening hours overall to 344 per week;
• Provision of a scheduled weekly accessible bus shuttle service for residents with access needs to visit their nearest library;
• Delivery of an outreach service entailing community book collections and weekly events held in community venues with a particular focus on areas of higher deprivation raised during the consultation;
• Provision of book collections for schools most impacted by the closure of libraries;
• Schools local to a library proposed to close will be accommodated for class visits at the next nearest Croydon Libraries;
• Investment in the library service digital offer including training and skills sessions;
• Improved marketing and communication of the service offer to better reach local residents;
• Access for users who are unable to visit a library to use the home library service.
2.8 To agree that the proposed model for the Library Service meets the assessed local needs identified and the duty to provide a comprehensive and efficient library service and as set out in paragraph 6.46 below.
2.9 To consider and approve the implementation plan outlined from section 6.73 and Chapter 7 of Appendix A Library Service Review Phase 3 Report for delivering the new model and which comprise a transition plan and full community mitigation measures for the four proposed libraries closures.
2.10 To agree to commence a process to consider community operation for sites no longer required for delivery of the statutory library service
Supporting documents: