Agenda item

Report from the Strategic Director of Regeneration and Environment.

Recommendations:

That Cabinet:

1. Note the review of performance against the 2021–2026 Library Strategy, including key achievements and challenges identified during the Strategy period.

2. Approve the undertaking of a period of consultation with the public, partners, stakeholders and interested parties on the development of a new Library Strategy for the period 2027–2032 and a future service delivery model for the Libraries and Neighbourhood Hubs Service.

3. Agree that a further report be brought to Cabinet following the consultation to present a draft Library Strategy 2027–2032, which will identify potential service improvements and efficiencies.

4. Authorise the Assistant Director of Culture, Sport and Tourism to notify the Department for Digital, Culture, Media and Sport (DCMS) of the intention to consult on the Library Strategy and any potential changes to service provision.

At the Chairman’s invitation Councillor Marshall, the Cabinet Member for Street Scene and Green Spaces introduced the report noting it reviewed progress against the 2021-2026 Library Strategy and outlined proposals for next steps.

Over the past five years, libraries had evolved into neighbourhood hubs offering books, digital services, cultural activities, and health and wellbeing support. They also hosted job clubs, health sessions, and community events.

The report highlighted the achievements, areas for improvement, and sought approval to consult on a new 2027-2032 strategy to keep libraries inclusive, modern, and sustainable. Most objectives from the 2021-2026 strategy were delivered, including cultural hubs, digital inclusion, and health initiatives.

It was noted that reading for pleasure among young people had increased by 156%. Investments included a £1.5m refurbishment, £540k IT upgrade, and a new town centre library scheduled for autumn 2026. Customer satisfaction remained above 95%.

Borrowing was below target, along with declining volunteer hours post-pandemic, and limited engagement with underrepresented groups (men, young people, lower-income residents).

The Cabinet Member for Street Scene and Green Spaces noted the next steps: public consultation (Feb-July 2026), analysis and draft development (Aug-Oct 2026), draft strategy to Cabinet (Nov 2026), final strategy to Cabinet (Mar 2027), then Full Council adoption. The committee were asked to note performance, approve consultation, and agree to receive the draft strategy post-consultation.

Polly Hamilton, Assistant Director, Culture, Sport & Tourism noted the key focus of the strategy was on addressing identified performance issues, some of which were expected to improve immediately due to the new central library development in Rotherham town centre and the redevelopment of Wath library in the north of the borough.

The Chair invited members of the Overview and Scrutiny Management Board (OSMB) to raise questions and queries on the points raised.

Councillor Keenan noted her strong support for libraries and their importance to communities. She highlighted their personal significance and acknowledged learning new information from the report. Councillor Keenan sought clarification on the booklink service, how it operated, whether it was bookable, and how it could be promoted to reach vulnerable and harder-to-access communities. Councillor Keenan was also interested in understanding whether there were plans to expand community group use of libraries, similar to the Ukrainian group mentioned in the report. The response confirmed that Booklink was a targeted service supporting vulnerable groups and was highly valued. Further information was offered for members. It was noted that work with the Ukrainian community formed part of wider engagement with communities, particularly those for whom English was a second language. Opportunities were identified to expand this work through the new central library, celebrating cultural links and encouraging greater use of library resources and the wider town centre offer.

Councillor Brent asked whether borrowing figures included online borrowing. It was confirmed that they did, while visitor numbers only counted physical visits.
Councillor Brent then noted his extensive use of online libraries and highlighted the benefits of services such as PressReader for accessing newspapers and magazines. He suggested greater promotion of online borrowing and proposed that libraries provide support or training to help residents access these services. In response the Assistant Director, Culture, Sport & Tourism thanked Councillor Brent for his testimony and noted that it would inform the upcoming marketing campaign linked to the library strategy renewal and consultation programme. A growth plan was being developed to reverse declining visitor numbers and address lack of awareness about modern library services. It was suggested that local voices feature in the campaign, and Councillor Brent was invited, along with other members, to act as ambassadors for the library service.

A question was raised by Councillor Blackham, on how the consultation would reach non-regular library users and those outside community groups, representing the majority of the population. They asked how the process would capture views from these groups on what they want - or do not want - from the service. The Assistant Director, Culture, Sport & Tourism emphasised the importance of engaging non-users, noting that a one-size-fits-all approach would not work. Plans included working with partners and directly with communities, attending high-footfall locations and local events, and using digital engagement and social media to reach younger audiences. Targeted marketing would focus on underrepresented groups such as young people (11-25), men, and global majority communities, addressing barriers such as language and literacy. Cultural events and partnerships with schools, health services, faith groups, and voluntary organisations were highlighted as key methods to encourage participation.

Councillor Blackham noted that his ward had no local library and asked how consultation would reach older residents in outlying areas (e.g., Anston). Working with parish councils, was suggested, citing Anston Parish Council’s refurbishment of the former library, and exploring outreach options to remote communities, including mobile library-style provision. The Assistant Director, Culture, Sport & Tourism welcomed the suggestion and confirmed that strong links with neighbourhood services and coordinators had already increased library usage. It was agreed that continuing to use these council connections was critical, and parish councils were recognised as an excellent partner for future engagement.

The Cabinet Member for Street Scene and Green Spaces reminded Members of their role in supporting consultation. They were encouraged to identify areas in their wards for outreach and invite officers to attend neighbourhood coordinator meetings, as members knew their communities best.

Councillor Monk’s question was regarding volunteers, and it was quite disappointing to see that those numbers falling, noting she worked for a charity, starting as a volunteer there, and she really valued not only what volunteers could give, but what the organisations that took on volunteers could offer to people. Councillor Monk asked how opportunities for children to volunteer, such as those linked to the Children’s Promise and Duke of Edinburgh Award, were communicated. The previous difficulties in finding placements for under-16s due to insurance and safeguarding concerns and suggested libraries could provide suitable opportunities were noted.

The Assistant Director, Culture, Sport & Tourism noted that most volunteering opportunities for schemes such as the Duke of Edinburgh Award were arranged through schools, which helped advocate and signpost on behalf of the library service. It was acknowledged that this was an issue and would be reviewed.

Councillor Harper asked what data determined library opening days and hours, noting variations between sites (e.g., Maltby open seven days, others only four) and queried practices such as lunchtime closures and unstaffed but technically open libraries (e.g., Mowbray Gardens on Wednesdays). The Assistant Director, Culture, Sport & Tourism explained that opening hours were determined by historical arrangements, previous public consultation, staffing capacity, and budget. Public input from users and non-users informed priorities. Technology such as OpenPlus was piloted at Mowbray Gardens to allow safe, unstaffed access, reducing staffing costs. Decisions also considered footfall data and demand, aiming to ensure alternative libraries were available nearby when one was closed. Larger libraries like Wath and Riverside typically had longer hours due to scale and demand.

In a supplementary question Councillor Harper asked whether an increase in volunteers during the next five-year strategy could lead to changes in library opening hours mid-cycle rather than waiting until 2027. It was confirmed that this would be possible and that reporting progress at the strategy’s midpoint would be beneficial.

Councillor Baggaley asked whether the consultation would include pop-up libraries and engagement with the school library service. It was also queried whether residents could provide feedback specific to their local library and highlighted the need for greater consistency in activities and offerings across libraries, particularly during school holidays and cultural programmes. The Assistant Director, Culture, Sport & Tourism noted that 98% of libraries were within 40 minutes of the population, providing good coverage overall. However, it was acknowledged that areas without a library within walking distance could feel disadvantaged. Work was ongoing with communities such as Waverley to create pop-up libraries and strengthen partnerships with parish councils and local groups. Consultation with these communities would form part of the process.

Councillor A Carter raised concerns about using Brinsworth Library as a model for volunteer-led services. It was noted that while volunteers had contributed to its success, the library was supported by a paid staff member funded by the parish council, and opening hours had not significantly increased. Councillor A Carter cautioned against relying on volunteers, which could reduce library provision and professional staffing, and highlighted the unique situation in Brinsworth where RMBC did not fund paid staff. Assurances were sought that paid staff would remain in all libraries and a review of Brinsworth’s position to avoid residents paying both parish and borough council tax for statutory library services.

The Assistant Director, Culture, Sport & Tourism acknowledged Brinsworth was a pilot to test a different delivery model, noting that many councils nationally adopted community-led provision with mixed results. It was stated that Brinsworth remained part of RMBC’s library offer, benefiting from the library management system, staff training, and close collaboration. The member’s concerns would be considered during consultation, including gathering local feedback on Brinsworth’s experience and reviewing whether improvements or changes were needed. It was highlighted that significant investment had been made in libraries during the 2021–2026 strategy, with customer satisfaction consistently above 95%, indicating strong overall performance.

In a supplementary question Councillor A Carter expressed concern that Brinsworth Library, as a community-run library, was often overlooked in terms of activities and events offered across the borough. He requested a commitment to ensure volunteer-run libraries, particularly Brinsworth, received the same benefits and opportunities as other libraries, so residents did not have to travel elsewhere for activities. The Assistant Director, Culture, Sport & Tourism thanked the Councillor A Carter for his feedback and confirmed that work was underway to define a core offer for all libraries over the next 12 months, setting clear expectations for services and activities. A commitment was made to follow up specifically regarding Brinsworth.

The Chair asked if all elected members would be included in the consultation. It was confirmed that they would and would have the opportunity to provide their views.

Councillor Brent highlighted the need to promote the flexibility of Rotherham Libraries, noting that users could borrow from any library and return items to another, which was a significant benefit. They stressed the importance of communicating this as part of the network offer. Councillor Brent also raised concerns about equality in service provision, noting that while coverage ensures most residents were within 40 minutes of a library, some might want closer access and consistent opening hours. They cautioned that consultation responses should reflect fairness and not be skewed by low participation or isolated preferences.

The Assistant Director, Culture, Sport & Tourism noted that Booklink was one example of targeted work delivered despite resource and staffing limitations. An active equalities impact assessment and action plan supported this approach. It was highlighted that the upcoming Year of Reading programme would focus on communities less likely to read, aiming to improve health, education, employment, and wellbeing outcomes. The importance of using rigorous data to meet equality targets was emphasised.

The Vice-Chair noted that the report showed the 10% visitor increase target had not been met and requested more context behind figures. They cited Thrybergh Library as an example, asking for details on the scale of footfall increase following its relocation, including baseline numbers and percentage growth. The Assistant Director, Culture, Sport & Tourism referred to Appendix 3, noting that the 10% visitor increase target had not been met due to reduced visits at Riverside Library. Contributing factors included limited parking during Forge Island development, lack of a café until recently, and slower recovery following a 17-month closure. In contrast, community libraries showed strong performance, with a 24% increase in footfall between 2022–23 and 2024–25, attributed to capital investment and partnership work driven by the Equality Impact Assessment. Plans were in place to improve visitor numbers at Riverside, which were expected to rise significantly with the new town centre library development.

In a supplementary question the Vice-Chair acknowledged the central library as an outlier in visitor data but requested more detailed context for community libraries. They asked for a breakdown of footfall increases, such as at Thrybergh, to understand the return on investment. They also commented positively on libraries evolving to offer additional services but reiterated the need for clearer figures.

Councillor Blackham emphasised the importance of footfall for physical libraries but noted that many communities lacked easy access. They highlighted the need to raise awareness of library services, including online options, and suggested outreach through local organisations such as parish councils and community halls. They gave the example of Woodsetts, where residents were unlikely to travel to Dinnington Library, and asked that alternative ways of reaching such communities be considered in the consultation. The Assistant Director, Culture, Sport & Tourism agreed that reaching underserved communities required working through other organisations and services. Opportunities for co-location were highlighted, with examples such as libraries sharing sites with youth services, early help, leisure centres, and customer services. Co-location was seen as a way to increase access, benefit partner services, and deliver savings through shared assets.

Resolved: That the Overview and Scrutiny Management Board supported the recommendations that Cabinet:

1.    Note the review of performance against the 2021–2026 Library Strategy, including key achievements and challenges identified during the Strategy period.

2.    Approve the undertaking of a period of consultation with the public, partners, stakeholders and interested parties on the development of a new Library Strategy for the period 2027–2032 and a future service delivery model for the Libraries and Neighbourhood Hubs Service.

3.    Agree that a further report be brought to Cabinet following the consultation to present a draft Library Strategy 2027–2032, which will identify potential service improvements and efficiencies.

4.    Authorise the Assistant Director of Culture, Sport and Tourism to notify the Department for Digital, Culture, Media and Sport (DCMS) of the intention to consult on the Library Strategy and any potential changes to service provision.

Further actions that arose from discussions were that:

·       OSMB will receive a mid-point progress update on the implementation of the Library Strategy 2027–2032.

·       OSMB will receive a detailed breakdown of footfall data for each community library covering the period 2022–23 to 2024–25.