Public Libraries: Usage in England

Chris Bryant Excerpts

Thursday 10th July 2025 Written Statements

[The Minister for Creative Industries, Arts and Tourism (Chris Bryant)]

I am repeating the following written ministerial statement made today in the other place by my noble Friend, the Minister for Gambling and Heritage and DCMS Lords Minister, Baroness Twycross:

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; 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 that 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 do not use libraries, noting five distinct groupings whose experiences and views of public libraries vary and who may require different interventions.

Barriers that 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Lack of awareness of the full range of library offerings and outdated perceptions;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 do not currently use libraries through social media channels;

Bringing those who do not 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 do not 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.

I will place a copy of the “What works to engage library non-users” report in the Libraries of both Houses.

[HCWS806]