Cumberland Council, as a newly established unitary authority, has undertaken a Strategic Needs Assessment of its public library service to ensure it remains fit for the future. This review considers statutory obligations, the needs of residents, and the Council’s strategic priorities within a rapidly changing socio-cultural environment.
The assessment highlights significant demographic and socio-economic challenges, including an ageing population with higher health risks, pockets of severe deprivation affecting around 28,800 residents, below-average educational attainment, high levels of child poverty, and rurality impacting access to services. While the library service is well-regarded (the majority of survey respondents (84.7%) rated its services as either very good or excellent, covered in detail below), issues such as staffing pressures, building suitability, and low awareness of services among residents require attention. The Council’s Strategic priorities (2025 to 2030) positions libraries as key partners in promoting health, wellbeing, and early intervention.
Feedback from residents, staff, and stakeholders identifies a number of priority areas for development:
In conclusion, Cumberland Libraries must evolve to become dynamic, inclusive hubs that meet diverse community needs. This will require improved marketing, investment in welcoming spaces, expanded health and wellbeing support, targeted outreach to deprived areas, a stronger digital offer, and innovative service delivery models. Building partnerships and securing external funding will be critical to achieving these ambitions and ensuring libraries remain central to community life.
Cumberland Council’s library service operates a public library network comprising 3 main libraries and 12 branch libraries, all provided with staffing. It also works in partnership with community settings to operate 8 library links. There is also a digital library service, offering free access to e-books, audio books, newspapers and magazines to all library members, and a home delivery service delivering books to residents unable to leave their homes due to health conditions and who have no one who can collect reading material for them.
In addition to the public library service, Cumberland Council also operates a prison library and a school library service covering the county of Cumbria. A shared service agreement, with Westmorland and Furness Council, underpins the delivery of the public library service, providing shared access to the stock of library resources as well as staffing expertise for back-office functions and logistics. This document focuses solely on the public library service.
This library provision serves a population in Cumberland of 273,300 (Source: Office for National Statistics – Census 2021).
Cumberland Council is a relatively new unitary authority formed in April 2023, and its library service was created from part of that formerly operated by Cumbria County Council across a wider county footprint.
Cumberland Council takes a fresh approach to the delivery of inclusive services that are shaped by its residents and communities. Linking the design and delivery of the library service with identifiable local needs, and basing this on an evidence-based approach, is supported by Department for Digital, Culture, Media and Sport (DCMS).
The Cumberland Council Plan 2023 to 2027 sets out the ambitions for the Council in five strategic themes, all of which the library service has a role to support in terms of an offer to residents and local communities:
Cumberland Council has initiated a programme of work, ‘Libraries Fit for the Future’, to evaluate its current library services and identify ways it can support the overarching Council themes by looking to:
Cumberland Council has a statutory duty under the Public Libraries and Museums Act 1964 ‘to provide a comprehensive and efficient library service for all persons’ for all those who live, work or study in the area (section 7).
There is no definition in the Act of what constitutes a “comprehensive and efficient service”. The DCMS is responsible for superintendence and promoting the improvement of libraries across England but does not seek to prescribe how councils discharge their statutory duty nor to defend the status quo just by virtue of it being the current provision. Cumberland Council considers that its operation of the public library service discharges this duty as described by the Public Libraries and Museums Act 1964.
The detail of delivery of a comprehensive and efficient service varies among councils, depending on the unique needs of their areas. Local councillors and officials are responsible for deciding library budgets and how services are managed and delivered. The DCMS advises this must be carried out:
A strategic needs assessment (SNA) is a component of this, gathering and analysing information about the population, along with library usage, to provide a description of the current and future library needs of a local population.
This analysis includes:
The SNA will enable the council to identify where it may need to focus its resources to ensure it delivers its statutory duty under the Public Libraries and Museums Act 1964 and to provide services delivering both library outcomes and broader council priorities. This information will be used to inform proposals on how Cumberland develops its library service in the medium term.
An engagement exercise was undertaken to gather feedback to inform this SNA and supplement the data analysis.
A survey was designed to obtain views on the following aspects of library services:
A number of different versions of the survey were created including shorter versions, quick tick versions for use in different discussion forums and settings but consistency with questions was maintained in all so that data could be captured and collated.
Responses were gathered over the engagement period in various ways:
Joint Leadership Team survey
Pilot group - Online JLT survey from 13 March to 28 March
Libraries staff
Online libraries internal survey from 24 March to 11 April. Followed by facilitated focus groups to explore feedback in more detail during April and May.
The public - Anyone and everyone
Online external survey promoted from 22 April to 4 July through:
Library and Council Consultation webpages
Press releases to media
All council newsletters
Promotion in all libraries
Cumberland Council Community Panel meetings
Social media
Attendance at events
Direct emails for cascade
Email inbox for feedback and questions
The public - Targeted
Face to face drop-in sessions in each library
Supported and facilitated discussions with groups representing people with protected characteristics
Targeted email promotion to groups representing people with protected characteristics
Key internal stakeholders
Focus groups with Management Teams for each council service
The engagement period included:
The response rate and contribution of respondents has brought value to understanding residents’ usage and perceptions of Cumberland Libraries. However, the number of responses is small compared to the total number of Cumberland Library members, which in turn is a small percentage of the resident population of the authority area.
A presentation about the engagement programme including links to the online survey, was made to Cumberland Council’s Senior Leadership Team / Executive Members (Joint Leadership Team (JLT)), and Directorate Management Teams from March 2025 onwards.
All 46 elected Councillors were invited to one of 3 online seminars, which engaged with the members of the 8 Community Panels and the Business and Resources Scrutiny Committee. All Councillors were invited to complete the public survey and share it amongst constituents.
Feedback from these meetings highlighted the contribution libraries already make to enabling the Councils’ priorities, given their direct accessibility and contact with residents and their local communities.
Cumberland Council takes a fresh approach to the delivery of inclusive services that are shaped by our residents and communities.
By enabling positive outcomes for health and wellbeing, prosperity and the environment we will fulfil the potential of our people and our area.
Our ambitions are to:
There was a strong appetite to build on existing library services and develop them to support the council’s Prevention Approach and a desire to see greater presence of other council services being accessible in libraries, including access to customer services.
Interest was expressed in extending the use of library buildings to contribute to the Council’s Community Hub model.
The council vision for Cumberland Community Hubs is as follows:
“Community Hubs in Cumberland offer welcoming and accessible spaces within the heart of our diverse communities, where residents can access key public and third sector services to meet their needs and positively impact their wellbeing.”
Given the Council’s libraries already provide a wide range of Information, advice and guidance and work closely with their communities, it was expressed that it would be desirable to continue to develop existing library buildings as key spaces for the public to get greater access to more supports that will enable them to live healthier, better and more sustainable lives.
Councillors expressed an interest in a more tailored, coproduced and collaborative approach to developing services within the council’s panel areas linked to locally identified priorities.
They recognised libraries provide a great opportunity for direct and personal engagement with local communities and residents and were keen to support the wider promotion of library service and asked for consideration to be given to improved access to library services for deprived and vulnerable residents, particularly those in rural communities.
Council officers recognised the importance of libraries and the opportunity to use their relationship with their local communities and residents to build stronger relationships and connections and also considered ways in which the library service could contribute to supporting their customers.
Key outcomes included:
Cumberland’s 120 library staff, from public and support/ specialised services, were provided with the opportunity to complete the staff survey. The full set of questions can be found at Appendix 1. In total, 70 responses were received, representing the views of three out of five of Cumberland’s library staff (58.3%), with the majority working within the public library service at Cumberland’s three main libraries (Carlisle, Whitehaven and Workington).
The majority of staff completing the survey are female (80%); this is a much larger proportion than the average gender split for Cumberland (females 51% / males 49% - Source: Office for National Statistics, 2023). The majority describe their ethnicity as White (97.1%); this is a slightly smaller proportion than the average for Cumberland (White 97.7% - Source: Office for National Statistics, Census 2021). One in five report having a disability or a long-term health condition (21.4%); this is a slightly larger proportion than the average who report being disabled under the Equality Act in Cumberland (19.8% - Source: Office for National Statistics, Census 2021).
Many staff feel their role is fulfilling and worthwhile and makes a positive contribution to the local community. Three quarters of staff rate library services overall as above average. It is clear from responses to this survey that library staff want to be able to deliver a good service, but there is frustration at being hindered in their effectiveness by a number of issues. Key ones relate to the condition of library buildings, staffing levels, and gaps in knowledge and training, and printing services with some concern regarding online digital resources for customers, an overly complicated public-facing online catalogue.
Resources and staffing:
Library services development:
Promotion and communication:
Technology:
Buildings and infrastructure:
Meeting and study spaces:
As part of Cumberland Council’s assessment of the current library offer and services, a public engagement survey “Libraries Fit for the Future” was launched on 22 April 2025 which ran for just over 10 weeks, closing on 4 July 2025. Widely publicised, accessible online and in paper format, the survey invited residents to have their say on the library services offered by Cumberland Council and aimed to understand the views of members of the public and other stakeholders around what is wanted from Cumberland’s libraries, what is needed and what can be delivered. The survey sought the views from current library users and non-users alike to ensure the service meets the needs of the community.
In addition to the survey 26 drop-in sessions were held at all libraries providing opportunities for face-to-face conversations and feedback. Focus groups were also held with various groups including school children to gather input from specific segments of the community. In total about 30 focus group meetings were held, with views captured from children under 11 years of age, children / young people aged between 11 and 16 years, adults, parents with babies, older people, people with disabilities, non-English speakers and a number of mixed groups.
Comments were also invited via social media.
The Libraries Fit for the Future public consultation survey captured the views of 1,582 respondents.
Residence locality:
Family make-up:
Library users:
Non-library users:
Demographics:
Disability:
Cumberland Council’s vision is to deliver inclusive services shaped by residents and communities. Its aim is to improve health and wellbeing, prosperity, and environmental outcomes for all.
Key strategic priorities:
Core values:
The Council defines its delivery model through the ‘Cumberland Approach’, which includes:
The Council’s Prevention Approach (2025 to 2030) aims to embed prevention across all council services and partnerships. It defines prevention as a proactive and collaborative approach to enhance health and wellbeing, prevent problems before they arise, and stop existing issues from worsening.
To empower residents, and those acting on their behalf, at any stage of their life to build the independence and resilience necessary to achieve positive outcomes in a financially sustainable way.
Three Strategic Aspirations:
Libraries are integral to Cumberland’s community hub model and prevention strategy. They serve as accessible, trusted spaces where residents can receive early help, digital access, and community support.
Libraries contribute by:
Cumberland Council’s strategic direction is rooted in inclusive, preventative, and place-based principles. Libraries are key enablers of this vision, helping deliver early help, community engagement, and improved wellbeing across the region.
As part of this process the Library Service has undertaken an assessment of service delivery within the context set out in this strategic needs assessment.
As part of this review, feedback was also captured about challenges the library service face internally in delivering services and concerns about developing services.
Staff were proud of the service they provide, they get feedback from their customers and believe they deliver much of what their stakeholders want so have a good basis on which to build.
Their primary concerns relating to capacity and resources.
Capacity in the service is already a challenge with resources often spread too thin resulting in unstable and unsustainable service provision. Libraries are frequently having unplanned closures due to lack of staff to maintain the service offer, negatively affecting customers’ experience.
Despite aspirations to develop and enhance services within libraries there is concern that budget restrinctions and reductions (facing all council services) will be a constraint and parameter within which the service will need to operate and this may impede their ability to develop services as they would like to.
A more recent concern arising is an increase in incidents occurring in libraries putting staff in unsafe and challenging situations resulting from members of the public being either abusive or presenting challenging mental health issues. The need to ensure staff are safe is putting futher pressure on capacity as sites previously manned by one member of staff may require additional resource for safety reasons.
This Strategic Needs Assessment provides an evidence base for the Council to utilise when determining how public library services will be delivered for the residents of Cumberland going forward.
Cumberland covers a large geographical area and despite being deemed a “Largely Rural” local authority has a mix of built-up areas with a number of larger towns. The delivery of services, including a library service, in such a location presents complexities and the library usage data and resident feedback highlights the need to target provision effectively to meet local needs including in areas of rurality and deprivation.
The engagement results provide a snapshot of resident experience and aspiration. However, despite extensive attempts to encourage participation through multiple and channels over a period through outreach activities and communications, take up was limited. The number of respondents is a very small proportion of overall Cumberland Library members, which in itself, is a small percentage of the entire resident population of the area.
Cumberland Council is also aware of some limitations in the survey exercise. The questionnaire was long, in terms of questions, which is reflected by a falloff in detailed responses; respondents reflected back that one question was flawed; and in some areas respondents were invited to give feedback on set ideas, which lead them to consider set views, albeit they also had chance to return additional comments via free text.
Taking that into consideration, the themes arising from the survey have been relatively consistent so whilst acknowledging these limitations, the feedback is useful and considered valid.
Demographic data highlights the need to consider service models to meet some needs identified
Cumberland’s population is an ageing population with the number of older people (65+yrs) projected to increase by 21.6% by 2032. In considering a library service Fit for the Future it is also natural to give consideration to services to those who may use and benefit from it for years to come yet the number of children and young people (0-15 years, - 12.7%) and working-age people (16-64 years, -2.5%) is projected to decrease by 2032. However, it is evident that survey respondents want to see the development or services for children and young people.
As well as the ageing population, the number of years of people living in good health has fallen in Cumberland. With healthy life expectancy for both males and females in Cumberland below national averages there could be an increased need to consider the provision of services for the elderly, including those with health needs. This could have implications for the home library services or suggest a need to deliver outreach services in a different way.
The number of residents in Cumberland who have a disability is above the national average for England. Amongst survey respondents, there was an even larger proportion than the average who report being disabled under the Equality Act in Cumberland) and has implications for the accessibility, staff training and awareness, service design, and future planning.
An ageing population and associated increases in health risks, along with levels of disability which affect Cumberland more acutely than many parts of the country.
Areas of deprivation are located in some of Cumberland’s more urban areas and along parts of the west coast. High levels of child poverty and low educational attainment; low household incomes; higher unemployment rates; and poor overall health outcomes tend to be found in these areas. Libraries can make a positive impact on reading and literacy of the population.
Educational attainment levels amongst school populations are lower than the national average as is the proportion of the working age population with high level qualifications. There may be opportunities for libraries to build existing links with the Adult Learning team.
Rurality will impact on service provision and access to services, with infrastructure and transport networks impacting access and availability.
Cumberland’s population is not as ethnically diverse as the rest of England.
When compared the national average, Cumberland had a much smaller proportion of residents born in non-UK countries (Cumberland: 4.6%, England & Wales: 16.8%). However, the proportion of residents born in non-UK countries varied considerably across Cumberland’s wards and this may require local consideration of service user needs.
Similarly, student populations associated with the university campuses and higher education colleges may also create local need, particularly in Carlisle where the greatest number of full-time students aged 16 to 24 years reside.
The percentage of the population identifying as LGBTQ+ is slightly lower than the average for England, but their needs should be reflected in the provision of services and there was some feedback from the survey that library services need to be inclusive.
There is no evidence to suggest that the needs of library users vary according to their religion, belief or marital status.
Library statistical data also highlights several key issues.
Registered library members are likely to represent around 16.1% of Cumberland’s population, ranging from 13.6% of the population in the Copeland area to 17.8% in the Carlisle area.
Data indicates that females are more likely to be active library users than males at all life stages, and this increases with age.
All age groups use the library service although there is some disparity between them, including those that are active, and those that use Digital only services. Libraries need to deliver services to all age groups but whilst adapting this to differing requirements and preferences.
Analysis of Cumberland Council library data indicates that people living in the most deprived neighbourhoods are less likely to be active or digital library users than those living in the least deprived neighbourhoods. One in four of Cumberland’s population are estimated to live in the 20% most deprived neighbourhoods in England.
A large number of engagement events and activities are held in libraries and a smaller number in the community (in 2024, 3,213 events attracted 36,968 attendees).
The greatest proportion relating to culture and creativity (34.7%). Just over one in four events (26.3%) are aimed at children / younger age groups. Just under one in four (23.1%) related to health and wellbeing.
Use of books and items for loan remains strong, with the service offer including physical and digital stock items.
Many registered library members do not take advantage of the digital resources on offer, and only a small proportion of Digital only members are actively using Borrowbox services. There may be a variety of reasons for this, but greater understanding is needed of people who have taken out Digital Only membership in particular but then are not using it.
The average number of active users who were physical borrowers each month varies between individual libraries, with the smallest volumes generally seen in the library links where some levels of use are very small.
Stakeholder feedback demonstrates areas of strength and also opportunities for development.
Feedback from Councillors and key internal Officers emphasised the vital role libraries play in supporting council priorities through their accessibility and strong community connections.
The council’s vision focuses on improving health and wellbeing, tackling inequalities, fostering local economies, enhancing environmental resilience, and delivering excellent public services.
There was strong interest in expanding library services to align with the council’s Prevention Approach and integrating them into the Community Hub model. Libraries were seen as key spaces for providing information, advice, and guidance, and for hosting additional council services to help residents live healthier and more sustainable lives.
Councillors and officers highlighted opportunities for libraries to support tailored, collaborative services linked to local priorities, improve access for vulnerable and rural residents, and strengthen engagement. Specific ideas included using libraries for public consultations, promoting health initiatives, supporting family hubs, and increasing visibility of adult social care. Overall, libraries were recognized as strategic assets for community engagement and service delivery.
Suggested drivers included building an increased information and advice offer, in support of the Council’s Prevention Service, and strengthening links with Council services supporting Children and Young People.
They see a clear link between these Council aspirations and those espoused by the Libraries Universal Offers:
Reading - building a literate and confident society by developing, delivering and promoting creative reading activities in libraries.
Health and Wellbeing - supporting the health and wellbeing of communities through services that inform, engage and connect.
Information and Digital - ensuring communities can access quality information and digital services, learn new digital skills and feel safe online.
Culture and Creativity - enabling local communities to enjoy high-quality arts and cultural experiences through libraries.
In particular, reading and literacy are proven to make a positive contribution to life outcomes. Poor literacy is often linked with higher unemployment and low skilled, poorly paid jobs and can also impact on confidence and the ability to support children with school work. Access to library services and the resources they provide is a tool which can be used to address part of this need. Reading for pleasure, the development of reading habits and support from parents and carers have been shown to be key in the development of children’s literacy. The Library Service has an important role in this sort of activity.
Digital and information access, available in every staffed library, can play a role in closing the digital divide. Not having access to or being able to navigate online can negatively affect education, employment prospects, social connections, finances, and health and wellbeing.
Most staff feel their role is fulfilling and worthwhile and makes a positive contribution to the local community. Three quarters of staff rate library services overall as above average. It is clear from responses to this survey that library staff want to be able to deliver a good service and are open-minded about change and service development to meet emerging needs.
However, there is frustration at being hindered in their effectiveness by issues relating to the promotion and marketing of the library service, the condition of library buildings, staffing levels, gaps in knowledge and training, and printing services. There is also concern about managing customer expectation as services are expanded, including meeting the needs of core library users.
Library services and staff attracted much praise, with generally high ratings and strong support for maintaining and improving local library services.
Core services:
Promotion and communication:
Facilities and building condition:
Technology and digital services:
Accessibility and barriers:
Opening hours and location:
Community engagement and events:
Service development and strategic ideas:
A smaller proportion of survey respondents were not users of the library service (one in 11), and their feedback adds another dimension to the needs of non-users and the reasons they are not using services.
The main reasons for not using library services are being unaware of the services on offer, inconvenient opening times, or not having a library nearby.
A smaller proportion cited reasons such as a change of habit or routine, time constraints, atmosphere (noise and busyness) and health barriers.
Personal preferences have an impact, such as accessing books online, using Kindles, or purchasing second-hand books from charity shops.
Some felt libraries offered limited choice, especially in smaller branches.
Some were deterred by issues relating to joining procedures and lost membership cards.
The assessment highlights significant demographic and socio-economic challenges, including an ageing population with higher health risks, pockets of severe deprivation affecting around 28,800 residents, below-average educational attainment, high levels of child poverty, and rurality impacting access to services. While the Library Service is well-regarded, issues such as staffing pressures, building suitability, and low awareness of services among residents require attention. The Council’s strategic priorities position libraries as key partners in promoting health, wellbeing, and early intervention.
Feedback from residents, staff, and stakeholders identifies ten priority areas for development:
This Strategic Needs Assessment highlights several key opportunities for Cumberland Libraries to strengthen their role as vital community assets.
To remain relevant and impactful, libraries must enhance their visibility through improved marketing and promotion, ensuring that residents are fully aware of the services available to them.
Equally important is the need to create welcoming, accessible spaces that foster learning, connection, and community engagement.
Libraries can play a greater role in supporting health and well-being by offering more information, advice, and guidance, alongside events and activities that bring people together. Expanding outreach efforts to areas of deprivation and other priority communities will help address inequalities and provide essential support for employability, life skills, digital inclusion, and early years literacy.
The digital offer also requires significant development, both in terms of systems and user access, to ensure residents can benefit from online resources and IT services. For those unable to visit physical locations, creative and accessible alternatives will be crucial.
Finally, building strong partnerships and securing external funding will enable libraries to deliver these priorities effectively and sustainably.
By embracing these considerations, Cumberland Libraries can evolve into dynamic, inclusive hubs that meet the diverse needs of their communities now and into the future.