This case study forms part of "Guidance for libraries and archives on Local Government Reorganisation" which aims to support library and archive Head of Services to prepare for local government reorganisation and the impact this will have on their services. The guidance has been written for Libraries Connected, The National Archives, the Local Government Association and Arts Council England by Shared Intelligence.
LGR context
In July 2021 after a period of public consultation, the Secretary of State agreed the creation of two unitary councils in Cumbria. These were Cumberland, and Westmorland and Furness which were to replace the previous two-tier model of a single county council and six district councils. Once the split was agreed programme boards were created to work through disaggregation options. In May 2022 the shadow authority was formed with senior officers appointed. The two new authorities began operating on vesting day, 1 April 2023.
Model
The choice of model for the new libraries and archives service was guided by principles established through a SWOT analysis: to follow the population split of the two unitaries (55/45) and to maintain service quality for customers. As part of the planning Cumbria also shared information regularly with residents about LGR and possible options.
The chosen option was a hybrid split between Cumberland, and Westmorland and Furness, governed by a service level agreement (SLA). Under the hybrid model, library service buildings and frontline staff were split between the two authorities while back-office functions remained hosted by Cumberland and provided to Westmorland and Furness. For archives the situation is reversed with the service hosted in Westmorland and Furness and provided to Cumberland.
Opportunities and challenges
One of the main challenges of the shared service model has been to deal with diverging strategic priorities between the two authorities. Whereas Cumberland is positioning its libraries as community hubs with expanded services, Westmorland and Furness is focusing on a narrower library service offer. It is envisaged that future demand on libraries in each unitary will differ, leading to changes in how the SLA is managed and monitored. However, both authorities are clear that the core library offer will remain constant.
As the models for libraries across the two unitaries diverge further (Cumberland’s hubs on the one hand and Westmorland and Furness’s traditional model), this may create different demands on back-office functions, for example differences in what each authority needs from digital resources. Diverging priorities may require future discussions about the suitability of the shared back-office model.
Lessons for other authotities
Engage staff early
In the Cumbria split, staff were actively involved from the outset in shaping options for the library and archives service. This included regular staff engagement on the options from up to a year before vesting day, gathering their views and incorporating their comments into the final recommendations. This ensured staff buy-in and minimised resistance to change.
Ensure a strong service level agreement
Having a strong SLA covering hosted functions and agreed well in advance provided clarity on responsibilities and expectations. The strong SLA also facilitated a smooth handover to the new authority and set the foundations for the new relationship.
