Minister for Gambling and Heritage (): This year will be the
175th anniversary of the very first Public Libraries Act - an Act
which established the principle of free public libraries for the
“instruction and recreation of the people”.
This principle has supported the creation and development of the
public library network across England. Over 2,500 library
branches make up the statutory library provision in this country,
one of the most extensive networks of local community assets we
have.
Libraries reach millions of people every year, providing
inspiration, education and entertainment in free to use, safe,
trusted and welcoming spaces. But use has declined over the last
decade and we want to better understand why that is the case and
what, together, we can do to tackle this.
Last October we published the first phase of our research to
consider this question. That work used in-depth focus groups to
question what prevents people from using public libraries and
what might support them to re-engage. We committed to
commissioning further research to test these findings at scale
and this work took place between December 2024 and March 2025.
Today's report provides a comprehensive picture of people who do
not use public libraries in England, exploring who they are, what
their perceptions of libraries are, the barriers which might be
preventing them from using the library and the services or
approaches that might entice them back. For the first time we
have a picture of the complex landscape of people who don't use
libraries, noting five distinct groupings whose experiences and
views of public libraries vary and who may require different
interventions.
Barriers which were consistently noted included:
-
Lack of personal relevance and availability of services
elsewhere;
-
Lack of awareness of the full range of library offerings and
outdated perceptions;
-
Accessibility challenges including opening hours and parking.
The work then drew on the involvement of library staff, at both
senior leadership and branch management levels, to identify
potential actions and interventions that could be explored to
reach different target groups and turn the tide on the use of
public libraries. Some of the potential interventions explored
were:
-
Widening the library reach by seeking to engage those who
don't currently use libraries through social media channels
-
Bringing those who don't use libraries to the library space
through hosting other services or working with partners to
use library space (e.g., health, breakfast clubs, early
years)
-
Encouraging people who don't use libraries to re-engage with
the library by increasing their understanding of why using
libraries is beneficial (e.g. sustainability, money saving)
and targeting these messages to specific groups.
We know that implementing these or other potential actions will
look different depending on place and that it will be important
to tailor interventions to specific audiences and local context.
Since I became Libraries Minister I have met with representatives
of the public library sector to discuss the challenges in the
sector, reflect on priority policy areas and consider how best we
can support the sector, drawing on this research. I know the
wider sector is already aware of this work and keen to see this
final report so that library services can actively consider how
they might use the results.
DCMS will continue to encourage and support local activity. We
will also consider what action the government might take to
reinvigorate library use. With their extensive network of trusted
spaces, used by all kinds of people, libraries are uniquely
placed to reach into communities and to support us to deliver on
our Plan for Change.
