Public libraries in England: an examination of public perceptions, post 2009

Since the Charteris Inquiry of 2009, there has been much debate about the use, purpose, governance, and service priorities of public libraries. Moreover, public libraries continue to face many ongoing issues and changes: devolved funding and the Localism Act (2011), a change in central government, cutbacks and closures, an increase in alternative library models, and a lack of guidance regards what constitutes a “comprehensive and efficient service” (Public Libraries and Museums Act, 1964, section 7(1)). Despite contemporary challenges, public libraries in England are legislated for by an Act that was passed nearly 60 years ago.

This thesis aims to identify public perceptions of public libraries in England and the services they provide, by focusing on both library users and non-users. It also aims to consider whether the Public Libraries and Museums Act (1964) is adequate for a contemporary public library service.

This thesis adopts a mixed methods, interpretivist approach across multiple phases. Each phase of the research informed the next in terms of design and data. In Phase One, the existing literature was explored, combining publications from central and local government, the public library sector and academia to review the current public library landscape in England and to establish the research questions. Phase Two employed Q methodology to capture the perceptions of library users and non-users who live, work or study in West Sussex. Phase Three sought to establish how the public, central government, local government and public library sector define public libraries and how these definitions compare. Phase Four undertook a process of bi-directional framework analysis to map the four different definitions against the content and intention of the Public Libraries and Museums Act (1964), to consider its adequacy to legislate a contemporary service.

This thesis has established that the participants hold multiple perceptions about what public libraries should offer but when asked to define their core purpose, the participants offer a more unified view. Moreover, the priorities of the public differ from those of central government, local government and the sector. The research has also demonstrated the participants’ perceptions have much in common with the 1964 Act. By comparison, central government, local government and the sector present priorities for public libraries which exceed the statutory requirements of the Act.

This thesis recommends defining “comprehensive and efficient” (Public Libraries and Museums Act, 1964, Section 7(1)) within the Act to ensure that public libraries and their local authorities understand and meet their statutory duties. Moreover, a definition that is rooted in monitoring, reviewing and responding to public needs and behaviours, through evidence-based local needs assessments, will enable the service to stay true to its core values and at the same time “move with the times and provide a book lending service that matches current needs” (library non-user participant).