Victorian Public Library Building Audit Report Summary

BUILDING AUDIT OF
VICTORIAN PUBLIC LIBRARIES

An independent report for the
State Library of Victoria and Victorian public library network

By
BBC Consulting Planners

May 2008

55 MOUNTAIN STREET BROADWAY NSW ~ PO BOX 438 BROADWAY NSW 2007
TELEPHONE [02] 9211 4099 ~ FAX [02] 9211 2740
EMAIL bbc@bbcplanners.com.au ~ WEBSITE www.bbcplanners.com.au
ABN 061 868 942

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Table of contents
EXECUTIVE SUMMARY....................................................................... 12
Project aim ............................................................................................... 12
The contribution of public libraries ........................................................... 12
The challenges facing public library buildings ........................................... 13
Are Victorian libraries equipped to face these challenges? ......................... 13
Fit for purpose: Physical condition of public library buildings in Victoria 13
Fit for purpose: Social role of library buildings in their communities ...... 16
Fit for purpose: Is the floorspace of public library buildings adequate? ... 16
Where are libraries located?...................................................................... 18
How are library assets managed?.............................................................. 18
Are there ‘enough’ public libraries in Victoria? .......................................... 19
Recommended strategies .......................................................................... 20
1. Building Area Factor.......................................................................... 20
2. Capacity building .............................................................................. 21
3. Community hubs and learning centres .............................................. 21
4. Annual and bi-annual building audits ............................................... 21
1. INTRODUCTION .............................................................................. 22
1.1 Background........................................................................................ 22
1.2 Aims and research objectives .............................................................. 22
1.3 Study context and policy framework ................................................... 25
1.3.1 The changing role and nature of the public library building........... 25
1.3.2 Framework for Collaborative Action .............................................. 27
1.3.3 Libraries Building Communities.................................................... 27
1.3.4 People places ................................................................................ 28
1.3.5 Snapshot of the Victorian public library network........................... 30
1.4 Previous audits of public library buildings........................................... 30
1.4.1 Audit of Public Library Buildings in New South Wales ................... 30
1.4.2 Previous audits in Victoria ............................................................ 33
1.5 Structure of the report ........................................................................ 34
2. STUDY APPROACH ......................................................................... 36
2.1 Methodology ....................................................................................... 36
2.2 Response rate ..................................................................................... 37
2.3 Study limitations ................................................................................ 38

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3. THE ROLE OF PUBLIC LIBRARY BUILDINGS IN VICTORIA .............. 39
3.1 Administration arrangements ............................................................. 39
3.2 The value of public library buildings ................................................... 39
3.2.1 Value of buildings......................................................................... 40
3.2.2 Capital expenditure ...................................................................... 42
3.2.3 Library expenditure as a proportion of total Local Government
Authority budget ................................................................................... 45
3.2.4 Summary of future planned expenditure ....................................... 46
3.3 Utilisation of public library buildings .................................................. 47
3.3.1 Size of buildings ........................................................................... 47
3.3.2 Number of visitors ........................................................................ 53
3.3.3 Total operating hours ................................................................... 54
3.3.4 Overview of functional areas ......................................................... 55
3.3.5 Specialist uses of space ................................................................ 59
3.4 The social role of library buildings in their communities ...................... 62
3.4.1 Collocation ................................................................................... 66
3.4.2 Joint-use ...................................................................................... 68
4. PHYSICAL ASSESSMENT OF BUILDINGS......................................... 71
4.1 Context .............................................................................................. 71
4.2 Respondent views on quality ............................................................... 72
4.2.1 Survey respondents’ perception of library quality .......................... 72
4.2.2 Finest and worst features ............................................................. 77
4.3 Physical condition of public library buildings in Victoria...................... 79
4.3.1 Age of library buildings ................................................................. 79
4.3.2 Design for purpose ....................................................................... 79
4.3.3 Refurbishment.............................................................................. 81
4.4 Flexible and multifunctional buildings ................................................ 84
4.5 Internal accessibility and mobility ....................................................... 85
4.5.1 Wheelchair-accessible car parking ................................................ 86
4.5.2 Wheelchair-accessible main entrances .......................................... 87
4.5.3 Wheelchair-accessible levels ......................................................... 87
4.5.4 Wheelchair-accessible aisles ......................................................... 87
4.5.5 Wheelchair-accessible toilets......................................................... 87
4.5.6 Building characteristics connected to compliance.......................... 88
4.6 Lighting .............................................................................................. 89
4.7 Signage .............................................................................................. 90
4.7.1 External signage ........................................................................... 91
4.7.2 Internal signage ............................................................................ 91
4.8 Patron comfort.................................................................................... 93
4.9 Compliance with codes and regulations............................................... 93
4.9.1 Building Code of Australia ............................................................ 95
4.9.2 Fire rating .................................................................................... 96
4.9.3 Disability access ........................................................................... 98
4.9.4 Occupational health and safety..................................................... 98
4.10 Community safety........................................................................... 100

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4.11 Tenure............................................................................................ 102
4.12 Future proofing............................................................................... 105
4.12.1 Technology ............................................................................... 105
4.12.2 Environmental sustainability .................................................... 105
5. LOCATIONAL CHARACTERISTICS................................................. 108
5.1 Proximity to other community facilities ............................................. 108
5.2 Way finding/street presence ............................................................. 109
5.3 External accessibility ........................................................................ 109
5.3.1 Car parking ................................................................................ 110
5.3.2 Public transport.......................................................................... 111
6. ASSET MANAGEMENT .................................................................. 114
6.1 Planning ........................................................................................... 114
6.2 Assessment ...................................................................................... 118
6.3 Maintenance..................................................................................... 118
6.4 Utilities spend .................................................................................. 121
7. PLANNING AND DEVELOPMENT.................................................... 125
7.1 Perceived need for redevelopment...................................................... 125
7.2 Overview of planned library development .......................................... 125
7.3 Timeframe ........................................................................................ 134
7.4 Budget ............................................................................................. 134
7.5 Planned scope of alterations.............................................................. 136
7.5.1 Floorspace .................................................................................. 136
7.5.2 Internal reconfiguration .............................................................. 138
7.6 Delivery ............................................................................................ 140
7.7 Locational characteristics ................................................................. 141
8. LIBRARY SERVICE AUDITS........................................................... 143
8.1 Introduction ..................................................................................... 143
8.2 Observations .................................................................................... 144
9. BENCHMARKING LIBRARY SERVICE PROVISION ......................... 146
9.1 Overview........................................................................................... 146
9.2 People places benchmarks ................................................................ 146
9.3 Testing People places functional area size guide ................................ 146
9.4 Testing People places space standards .............................................. 149
10. CONCLUSION.............................................................................. 152
10.1 A planning benchmark for Victoria.................................................. 152
10.2 Recommended strategies................................................................. 152
REFERENCES ................................................................................... 154

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APPENDICES .................................................................................... 157
Appendix 1: Survey tool
Appendix 2: List of survey respondents
Appendix 3: Tabulated data – LGA survey
Appendix 4: Tabulated data – Branch survey

List of tables
Table 3.1: Total insurance value of building (Q.37) .................................... 40
Table 3.2: Value of buildings in an LGA by LGA population (Q.37)............. 41
Table 3.3: Year of valuation (Q.37) ............................................................ 41
Table 3.4: Capital expenditure on branch libraries (Q.40) .......................... 42
Table 3.5: Overall LGA capital expenditure: 2006/07 to 2009/10 (Q.8)...... 45
Table 3.6: Future planned expenditure over next five years (Q.44d) ........... 46
Table 3.7: Gross Floor Area of branch libraries (Q.11) ............................... 48
Table 3.8: LGAs with central operations floorspace (Q.6a) ......................... 48
Table 3.9: Size of LGA central operations floorspace (Q.6b)........................ 49
Table 3.10: Number of levels utilised by library branches (Q.13a) .............. 49
Table 3.11: Publicly accessible levels of library branches (Q.13b)............... 50
Table 3.12: Lift access from street (Q.13d)................................................. 50
Table 3.13: Lift access – within building (Q.13b)*(Q.13d) ........................... 50
Table 3.14: Visitors per week (Q.10) .......................................................... 53
Table 3.15: Number of visitors by library size (Q.10)*(Q.11) ....................... 54
Table 3.16: Operating hours per week (Q.9) .............................................. 54
Table 3.17: Number of visitors by hours of operation (Q.9)*(Q.10).............. 55
Table 3.18: Functional area – Collections (Q.12a) ...................................... 56
Table 3.19: Functional area – Reading and study (Q.12b) .......................... 56
Table 3.20: Functional area – Resource (Q.12c) ......................................... 57
Table 3.21: Functional area – Staff (Q.12d) ............................................... 58
Table 3.22: Functional area – Amenities (Q.12e) ........................................ 58
Table 3.23: Functional area – Other (Q.12f)............................................... 59
Table 3.24: Provision of specialist floorspace (Q.14)................................... 60
Table 3.25: Collocated or joint-use libraries (Q.16a) .................................. 63
Table 3.26: Forms of collocation (Q.16b) ................................................... 66
Table 3.27: Collocated area dedicated to library functions (Q.16c) ............. 67
Table 4.1: Survey respondents’ perceptions of quality (Q.33a–c) ................ 73
Table 4.2: Period of library building construction (Q.19) ............................ 79
Table 4.3: Previous uses of library buildings (Q.21c).................................. 80
Table 4.4: Requirement for major refurbishment/extension in next five
years (Q.43a) ............................................................................................ 82

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Table 4.5: Most recent major refurbishment by age (year built) of library
(Q.19) ....................................................................................................... 82
Table 4.6: Cost of most recent major refurbishment (Q.22a) ...................... 83
Table 4.7: Year access audit undertaken (Q.25b)....................................... 85
Table 4.8: Accessible parking nearby (Q.25e)............................................. 86
Table 4.9: Survey respondents’ rating of level of lighting in library
buildings (Q.26) ........................................................................................ 89
Table 4.10: Survey respondents’ rating of public information signage
(Q.27a–b).................................................................................................. 90
Table 4.11: Compliance with relevant building codes and regulations
(Q.25) ....................................................................................................... 94
Table 4.12: Year Building Code of Australia compliance audit undertaken
(Q.23) ....................................................................................................... 95
Table 4.13: Year Occupational Health and Safety audit undertaken
(Q.32b) ..................................................................................................... 99
Table 4.14: Types of security measures within library branch buildings
(Q.30) ..................................................................................................... 100
Table 4.15: Survey respondents’ rating of safety and security measures
(Q.31) ..................................................................................................... 101
Table 4.16: Owner of library buildings (Q.18a) ........................................ 102
Table 4.17: Lessor of library building (Q.18b) .......................................... 103
Table 4.18: Cost of lease (Q.18c) ............................................................. 103
Table 4.19: Owner of centralised buildings (Q.6Ca) ................................. 104
Table 4.20: Lessor of centralised buildings (Q.6Ca) ................................. 104
Table 4.21: Energy audit undertaken (Q.28b) .......................................... 105
Table 4.22: Energy-saving measures (Q.28a) ........................................... 106
Table 5.1: Proximity to community facilities (Q.34) .................................. 109
Table 5.2: Car parking (Q.35a/c/e) ......................................................... 110
Table 5.3: Wheelchair-accessible parking (Q.25e) .................................... 111
Table 5.4: Proximity to transport (Q.34) .................................................. 111
Table 6.1: Duration of asset management plan (Q.36b) ........................... 114
Table 6.2: Scope of asset management plan (Q.36b) ................................ 115
Table 6.3: Timeframe of asset management plan actions (Q.36b) ............. 115
Table 6.4: Building condition surveys (Q.42) ........................................... 118
Table 6.5: Annual maintenance costs (Q.38) ........................................... 119
Table 6.6: Breakdown of maintenance expenses (Q.38)............................ 120
Table 6.7: Estimated backlog of planned maintenance (Q.39) .................. 121
Table 6.8: Summary of utilities expenditure (Q.29) .................................. 121
Table 6.9: Quarterly expenditure on electricity (Q.29) .............................. 122
Table 6.10: Quarterly expenditure on gas and water (Q.29) ..................... 122

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Table 7.1: Planned library development in Victoria (Q.7).......................... 126
Table 7.2: Location of planned library development (Q.7)......................... 127
Table 7.3: Timeframe of library development (Q.7) ................................... 134
Table 7.4: Capital budget (Q.7)................................................................ 135
Table 7.5: Internal fit-out budget (Q.7) .................................................... 136
Table 7.6: Proposed additional floorspace (Q.7) ....................................... 137
Table 7.7: Change in Gross Floor Area after redevelopment (Q.7)............. 138
Table 7.8: Type of alterations planned (Q.7) ............................................ 139
Table 7.9: Collocated or joint-use facilities planned (Q.7)......................... 140
Table 7.10: Locational characteristics of new buildings planned .............. 142
Table 9.1: Comparison of core functional areas ....................................... 147
Table 9.2: Victorian Target Collection Factor (TCF) .................................. 148
Table 9.3: Relationship between floorspace provision and benchmarks –
library services ....................................................................................... 149
Table 9.4: Testing the People places Building Area Factor........................ 151

List of figures
Figure 4.1: Survey respondents’ perceptions of quality (Q.33a–c) ............... 73
Figure 4.2: Survey respondents’ perceived finest attributes of library
buildings (Q.33d) ...................................................................................... 77
Figure 4.3: Survey respondents’ perceived worst attributes of library
buildings (Q.33e) ...................................................................................... 78
Figure 4.4: Type of work undertaken at last major refurbishment (Q.22b).. 84
Figure 4.5: Survey respondents’ satisfaction with lighting and signage
(Q.26, Q.27a–b) ........................................................................................ 90
Figure 4.6: Compliance with relevant building codes and regulations
(Q.25) ....................................................................................................... 94
Figure 4.7: Compliance with relevant codes and regulations by building age
(Q.25)*(Q.19) ............................................................................................ 95

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List of case studies
Case study 1: Caroline Springs Library, Melton Library and Information
Service ..................................................................................................... 23
Case study 2: Kerang Library, Gannawarra Library Service ....................... 31
Case study 3: Sydenham Library, Brimbank Libraries............................... 43
Case study 4: Drouin Library, West Gippsland Regional Library
Corporation .............................................................................................. 51
Case study 5: West Footscray Library, Maribyrnong Library Service .......... 64
Case study 6: Wheelers Hill Library, Monash Public Library Service .......... 69
Case study 7: Wangaratta Library, High Country Library Corporation ....... 75
Case study 8: Goroke Library, Wimmera Regional Library Corporation ...... 92
Case study 9: Nathalia Library, Goulburn Valley Regional Library
Corporation ............................................................................................ 107
Case study 10: The Age (Broadmeadows) Library, Hume Global Village
Library Service ....................................................................................... 112
Case study 11: East Melbourne Library, Melbourne Library Service......... 116
Case study 12: Carnegie Library, Glen Eira Library Service ..................... 123

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Abbreviations/definitions

ABS Australian Bureau of Statistics

Amenities areas foyer; lobby; corridors/circulation space; public, staff and
accessible toilets; restrooms; plant equipment; storage
(for maintenance equipment); and maintenance areas

BCA Building Code of Australia

Collection areas books on shelves; periodicals; non-print materials; toy
library; virtual and digital resources

Collocation multiple services sharing a building, with separate areas
for each service
These areas need not be physically separated by walls.
Collocated libraries typically bring together other
Council-related services such as Council
Chambers/offices, community centres, arts centres,
youth facilities, and/or one-stop-shop services. More
recently, collocated libraries have been developed with
other government services such as community health
centres, home and community care centres, employment
services or community technology centres.

ERP Estimated Resident Population

Functional six broad types of core functional areas are identified by
floorspace People places – collection areas, reading and study areas,
resource areas, staff areas, amenities and storage areas,
and additional service areas

GFA Gross Floor Area
The sum of the floor area of each storey of a building,
measured from the internal face of external walls, or from
the internal face of walls separating the building from
any other building, and includes (a) the area of a
mezzanine within the storey
but EXCLUDES: (b) any area for common vertical
circulation, such as lifts and stairs, and (c) vehicular
access, loading areas, garbage and services, and (d) plant
rooms, lift towers and other areas used exclusively for
mechanical services or ducting, and (e) car parking
(including access to that car parking), and (f) any space
used for the loading or unloading of goods (including
access to it), and (g) terraces and balconies, and (h) void
spaces.
It includes both public and staff spaces and, for this
survey, excludes Library Service Level administration
space (both on and off-site).

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Joint-use two or more distinct library service providers serve their
client group in the same building, the governance of
which is cooperatively arranged between the separate
authorities
For example, a joint-use library may be developed
between a Library Service and a School to operate a
library serving both high school students and the broader
community. The service is shared with pooled funding
provided by both agencies to cover the capital and
recurrent costs of the service.

LGA Local Government Authority

RAF Relative Area Factor
The People places guidance identifying the relative
allocation of floorspace between the core functional areas

Reading areas meeting areas; study areas; browsing, display and
information areas/exhibition space; young adult area;
multi-purpose rooms (training, AV); children’s storytelling
area; specialist genre collection area; specialist rooms
(e.g. local and family history)

Resource areas returns and enquiries desk; service desk; internet
terminals; catalogues; printers; photocopiers; vending
machines; telephones

SLV State Library of Victoria

Staff areas back of house (e.g. back workrooms, lunch rooms,
offices), including staff work areas, office space and
storage (for archival materials)

TCF Target Collection Factor
The People places guidance identifying space required to
house a library’s materials collection

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Acknowledgements
The project was undertaken for the State Library of Victoria, in partnership
with the Victorian public library network, and under the auspices of the
Library Board of Victoria.
The project was undertaken by James Lette with the assistance of Kathryn
Henry. The project was reviewed by Sharyn Briggs of Briggs and Mortar. The
team thanks Sharyn wholeheartedly for her valuable contribution.
The authors would like to extend their thanks to the following:
State Library of Victoria
Viclink – Victorian Public Library and Information Network
Municipal Association of Victoria
Local Government Victoria, Department of Planning and Community
Development
Libraries which participated in the pilot supported by their Councils:
− Eastern Regional Libraries: Ferntree Gully Library and Knox City
Council
− Hobsons Bay Libraries: Altona Meadows Library and Hobson Bay City
Council
− Goldfields Library Corporation: Kangaroo Flat Library and Greater
Bendigo City Council
− Gannawarra Library Service: Kerang Library and Gannawarra Shire
Council
− West Gippsland Regional Library Corporation: Warragul Library and
Baw Baw Shire Council
Local government staff from Banyule City Council: Arun Chopra and Paul
Bruhn who reviewed the survey questions
And an especial thanks to all of the public library staff who contributed their
valuable time and effort into completing the extensive surveys. A complete
list of all libraries which participated in the survey is included in Appendix 2.

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EXECUTIVE SUMMARY
Project aim
This report documents the findings of the 2007 Building Audit of Victorian
public libraries undertaken for the Advisory Committee on Public Libraries, a
committee of the Library Board of Victoria; the Victorian public library
network; and the State Library of Victoria. It is one of a suite of statewide
projects conducted under the auspices of the Library Board of Victoria to
assist in the development of the Victorian public library network. The Audit
of Victorian public library buildings was undertaken to identify the current
state of Victorian public library buildings and provide a tool for library
service managers to assess their suitability to meet community needs.
The project utilises People places: A guide for public library buildings in New
South Wales (Library Council of New South Wales 2005), a best practice,
comprehensive guide to designing and building suitable structures for
libraries to enable maximum usage by residents and the general public. This
report covers the five key areas of floorspace and functions; building design;
locational factors; building management and maintenance; and information
on planning and development procedures.
The Audit was undertaken via an online survey. A response rate of 94.9% of
Local Government Authorities (LGAs) and 96.5% of branch libraries was
achieved. In total, 75 LGAs and 244 branch libraries responded.

The contribution of public libraries
Libraries make a fundamental contribution to our communities. The Audit
information identifies1 that:
The total value of library buildings in Victoria is $522 million –
approximately $104 per person. The median value of library buildings is
$1.5 million, with values spanning a wide range – two-thirds are worth
over $1 million and 10% are valued at less than $250,000.
The 45 Victorian library services receive funding of $144,932,834 per
annum, or $29 per capita (NSLA 2007:11). We understand that this
makes Victoria the lowest funded State in Australia.
There was a total capital expenditure of $14,437,881 on 89 branch
libraries in 2006/07. The median value per branch was $10,500, and the
average was $162,223. If it was assumed that the balance of branches
made similar levels of capital expenditure, up to $40 million per annum
could be spent on library buildings in Victoria. Limited confidence is held
with the accuracy of this estimate given the variations in the data
underlying such an assumption, and fluctuations year on year.
In the year ending 30 June 2004, there were approximately 24,407,000
visits to public libraries in Victoria, with 2,538,812 registered borrowers
(51.5% of the 4,932,422 persons usually resident in Victoria)
(ABS 2005:14).
Victorian libraries lend 48,743,783 items per annum (or approximately
19 per member), and deal with 2,580,862 enquiries (NSLA 2007:8).

1 with some limitations as noted in the body of the report

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On average, every day every Victorian public library will lend about 500
items, receive nearly 270 visits and respond to nearly 30 reference
enquiries (Library Board of Victoria, Executive Summary, 2005:5).

The challenges facing public library buildings
However, libraries are facing new challenges, as the demographic character
of the community changes and social trends alter, including:
‘population and demographic mix changing more rapidly than ever
before;
Information and Communications Technology (ICT) reconfiguring the
nature of physical space, communications and movement;
education moving out of the institutions to affect the whole of society;
and
leisure, recreation and personal development increasingly fuse in a more
individualistic culture’ (CABE & Resource 2003:4).
User needs have changed dramatically over the past decade, whereby local
and larger public libraries are no longer a facility to solely borrow books or
study.
In response, libraries need to change physically, as well as changing the
manner in which they operate.
The changing needs of the community have meant many library buildings no
longer meet contemporary needs or current standards. A modern ‘public
library needs accessible, generous and attractive buildings containing
different but connected spaces’ (Bundy 2006:1).

Are Victorian libraries equipped to face these challenges?
The relevance of libraries to today’s community is unquestionable, evident in
their high levels of usage and attraction to a broad range of users from all
ages and backgrounds.
A key question to be answered by the Audit was whether existing library
buildings are ‘fit for purpose’ and able to meet these challenges.

Fit for purpose: Physical condition of public library buildings in Victoria
Many commentators have identified a ‘renaissance’ in which public libraries
have reinvented themselves in the past decade, revising their role as beacons
for civic pride, social and economic regeneration (Worpole 2005:5). At the
same time, this has resulted in a resurgence of building activity in the
recognition that ‘old, tired, outdated buildings are the worst advertisement
for our profession; well maintained, vibrant, relevant buildings the best’
(Mackenzie cited in Bundy 2004:16). Consistent with international trends, in
2006 Bundy identified that local government across Australia was
endeavouring to replace and rebuild libraries, with about 200 new library
buildings and rebuilds having been constructed between 2000 and 2006 –
many of them excellent and of world standard (Bundy 2006:2).
Victoria reflects this global trend, with a number of buildings built recently,
and a number more planned for construction over the next five years.

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The Audit identified that:
19 new branch libraries are planned;
25 existing libraries are to be completely replaced (either at the same site
or a new site); and
27 branch libraries are to be refurbished.
However, the scope of the task is large. The majority of Victorian building
stock is old, with just 12.7% constructed after the year 2000. The largest
proportion was built in the period 1960–1979 (33.3%).
The Audit confirms that the local government landscape in which public
libraries operate is constrained by infrastructure backlogs, and competition
between public libraries and a plethora of other local services which require
funding. The ongoing development of public libraries in Victoria is
constrained by available funding.
The Audit further identifies that:
More than one-third of Victorian library branches have not been
refurbished since being built; 58.6% of all branches have undergone
major refurbishment. Approximately two-thirds (63.9%) of these
refurbishments took place in the past seven years.
The majority of public libraries in Victoria were purpose built (60.5%).
However, this does not appear to be the trend with new buildings, as
many of the more recently established libraries in Victoria have not been
purpose built. Approximately one-quarter (25.1%) of all non-purpose
built libraries were established in the past seven years. It is probable that
this is due to the limited availability of capital funding for new buildings.
Many newer library buildings have been converted from Council
Chambers/Council offices or from existing commercial and retail spaces.
This has an affect on floorspace, as library buildings which are purpose
built tend to have a larger gross floor area (GFA) than those that were not
originally built to contain a library.
Disabled accessibility in all respects is generally the exception rather
than the rule. Disabled accessibility (particularly wheelchair accessible
toilets and adequate aisle widths between shelving) is less compliant in
older libraries. In an LGA there is often not one library branch that is
wheelchair accessible in all respects. This has important ramifications for
both patrons and the employment of people with a physical disability in
Victorian libraries.
There are quite a large number of libraries where compliance with fire
rating, disability and OH&S is not known or not achieved. The purpose of
the Building Code of Australia (BCA) audit does not always appear to be
understood.
Older libraries, particularly those built pre-1940, are least likely to
comply with codes and regulations; the newest libraries are most likely to
comply with codes and regulations. Compliance with codes and
regulations is generally higher among those LGAs with relatively high
maintenance expenditure.

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It is apparent that some libraries are ‘working harder’ than others. The
number of people visiting libraries in Victoria ranged from 0.67 to 196.7
people per hour. The median was 1,636 visitors per week. The number of
visitors per week on average correlates strongly with the GFA of public
libraries.
The Audit informed the above quantitative data with a range of qualitative
questions assessing the opinions of branch librarians about the physical
building: its internal layout and design; the overall standard of their library
branches; and the finest and worst attributes of their building. These views
may or may not reflect the views of other stakeholders, such as the library
service manager who has responsibility for management of the building and
strategic decisions about its future. However, they add to the overall
understanding of the state of Victoria’s public library buildings. This is borne
out by the Audit’s finding that a respondent’s perception of the quality of the
library building is a key factor in their perception of the overall standard of
their library branch.
The results of these qualitative questions were largely positive:
Almost one-third (31.8%) of respondents perceived the overall standard of
their branch as being excellent, and more than half (57.9%) gave an
overall rating of satisfactory.
One-quarter (25.4%) of respondents perceived the quality of their
physical building to be excellent and more than half (54.9%) rated their
building as satisfactory.
One-quarter (24.2%) perceived their library’s internal layout and design
to be excellent, and approximately half (55.3%) rated as satisfactory.
In order of importance, the following are important features of a library
building: location, natural light, internal layout, adequate size/space,
and accessibility. In order of importance, the following design features
affect negative views of a library building: inadequate size/space, poor
internal layout, aged/poor building condition, and the quality of its
facilities.
Almost nine out of ten branches (88.1%) described the level of lighting
within the library as either satisfactory or excellent. A number noted that
lighting improvements were a key consideration of their recent
refurbishments.
Almost two-thirds (65.4%) of respondents rated their library’s external
signage as either Satisfactory or Excellent. More than three-quarters of
respondents (77.4%) described the internal signage within their library
branch as either satisfactory or excellent, a higher proportion than
ratings for external signage. The vast majority of libraries that gave a
rating of poor and provided additional comments indicated that new or
improved internal signage was either planned, or was currently being
undertaken.
The link between a library’s community value and its physical design and
layout is well established in the literature. If it’s not appropriately designed
for need, it won’t be as utilised.

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Fit for purpose: Social role of library buildings in their communities
A concept gaining increasing favour is a library being developed as a key
element in community hubs and learning centres. The Libraries Building
Communities project (Library Board of Victoria, Report 2, 2005:46) envisages
that communities could build hubs that house a range of services such as
library services, children’s services, medical centres, maternal support
groups, drop-in centres, and other learning and community activities.
There are significant advantages emerging in collocation: ‘a single large
building can be easier to construct, to keep secure and to maintain than
several smaller buildings. Sharing car parks, foyers and other common
spaces can make economic sense. Collocated facilities may be more
convenient for the community.’ Some local authorities are able to include
revenue generating components in a development, such as a cafe, bookshop
or gymnasium. ‘More and more libraries are being constructed in shopping
centres, often as a result of the deal between the local authority and the
developer’ (Jones 2004).
The Victorian experience revealed by the Audit does not generally reflect this
trend. Joint-use libraries are as uncommon in Victoria as they are in
Australia generally (just 9.8% of branches). Collocated libraries are much
more common, comprising a significant proportion of libraries (52.3%).
In reality, however, of those libraries that are collocated, about half are
collocated with other local government uses and could not be described as
hubs. Only 17.3% were collocated with a community centre, and just 4.7%
with a community health centre. Only two were collocated with some form of
learning centre/adult education service. While 93.9% provided a children’s
storytelling area or young adult area, none were associated with a broader
youth service. Collocated libraries do appear more likely to have access to
community meeting space.
This is not to say that libraries are not making the most of their existing
assets in this regard, providing a range of specialist services within their
remit as described in Section 3.3.5.
Collocation of newer libraries is very common, and this trend is appearing
with new library buildings. It is a trend which will only be met over time with
the redevelopment of existing building stock.

Fit for purpose: Is the floorspace of public library buildings adequate?
There is nearly 145,000 sq m of library floorspace in Victoria, in 247 branch
buildings. The average size of a library is 595 sq m (median size of
400 sq m). Libraries are generally sized between 250 and 1,000 sq m (44%).
84% of branches are located on a single level of a building, predominately
the ground floor.
There is vast variation in the proportional space allocation of functional
areas, even in newer libraries. Some of the older (and particularly smaller)
libraries have virtually all of their proportional functional floorspace
dedicated to collection areas. Many older libraries have low proportions of
floorspace for staff areas compared to the Victorian average, and some have
none.
There is a tendency in newer areas to much larger libraries, generally over
1,000 sq m, and up to 3,500 sq m. Currently, only five libraries (2.1%) are
over 2,000 sq m in size.

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Thirty-three branches (13.8%) are less than the 139 sq m GFA minimum size
recommended by People places for a public library building. All but one of
these branches is in rural or regional LGAs; this is related to the very high
numbers of smaller libraries still serving rural areas.
Despite perceptions that less space is needed in libraries, there is no
evidence that this is true. Library buildings need to provide different types of
spaces to meet the diverse needs of a variety of different users. The literature
suggests that the number of functions preformed by the modern library, and
consequently the number of spaces within it, is increasing.
This is further confirmed by the Audit, which identifies that libraries provide
floorspace regularly used for a large variety of specialist services (either
exclusively or on a shared basis). Just under half of branch libraries (45.2%)
contain specialist multi-purpose areas. Most frequently this included:
a children’s storytelling area (93.9% of branches);
computer labs/internet areas (78.6%);
an area for young adults (70.8%); and
office space (77.8%).
No other type of specialist space was provided by more than half of library
branches.
Despite community demands for a wide range of functions, few branch
libraries (15.2%) have the ability to subdivide multi-purpose areas within
their building, such as through the use of wall partitions.
People places identified six broad types of core functional areas in public
libraries. There is vast variation in the proportional space allocation of
floorspace for functional areas, even in newer libraries. Newer libraries are
better planned in terms of functional areas. The median values for each type
of functional area are identified in the following table:

Reading
Collection and study Resource Amenities
areas areas areas Staff areas areas

Median sq m 170 50 35 44 50

Distribution
42% 18.2% 9.9% 14.7% 15.2%
of GFA mean

The most significant observation arising from an analysis of the distribution
of functional areas within Victorian libraries is that some spaces are over-
represented relative to the area of collection areas (or conversely, it could be
said that collection areas are under-represented relative to other types of
functional areas). This over-representation occurs in all areas other than
staff areas, which sit at the recommended 35% of the collection areas space.
Reading and study areas have 43% of the recommended space compared to
30% in People places; resource areas have 23% compared to a recommended
15%; and amenities areas have 36% compared to a recommended 20%.
Accordingly, the report further considered whether collection areas are
under-represented in Victoria, or whether the other functional areas are
relatively over-represented. It was concluded that the size of collection areas
in Victoria is substantially smaller (72.3%) than what is provided for by the
space standard for collections in People places. This can be attributed to

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People places being developed for application to new libraries, which have
more open designs, and a vertically reduced number of shelving bays.

Where are libraries located?
People places identifies a number of key locational criteria to be considered
in determining the most appropriate site for a public library, which have
been examined in the Audit. In respect to these, the Audit reveals:
The connection between local government and public libraries clearly
translates into locational choice. As expected, a high proportion of
libraries were located with or near other Council-provided services (such
as administration) and spaces (such as other cultural, recreational or
sporting facilities).
Surprisingly, Audit responses do not clearly support the growing trend
identified in literature of public libraries in both Australia and overseas
locating in shopping centres. However, 13.9% of branches are located
adjacent to one, and a further 26.6% are within walking distance. About
half were located on a main street (shopping/business precinct).
Accessibility to schools is lower than expected, with just less than half
being located within walking distance (400 metres) of a school. A small
number (5.7%) were located within or adjacent to a school. Nine libraries
indicated that they were facilities jointly used by a school.
Libraries collocating with schools appear to be less accessible to
traditional foci such as main streets and shopping precincts.
Almost all libraries (95%) are located within walking distance of car
parking (86.5% being adjacent). This car parking was provided free of
charge at almost all libraries (96.3%).
Libraries in traditional main street foci often have inadequate parking,
and good accessibility to community foci and facilities could be
considered a trade-off against this. Approximately one-quarter (27.9%)
indicated that the current provision of car parking available near the
library was inadequate.
The proportion of libraries located within close proximity to public
transport (61.1% within 400 metres), while still significant, was notably
less than those libraries accessible by car. Libraries are significantly
more likely to be located near a bus stop than a train station.
Libraries are generally located on the ground floor with street frontage
(94.3%).
Newer libraries are better planned in terms of accessibility of location.

How are library assets managed?
In Victoria, public libraries are largely the responsibility of local government,
which must undertake the construction and maintenance of these buildings
from their annual budgets, with the assistance of statewide public library
grant funding.
Approximately half (55.7%) of libraries have some form of asset management
plan for their building. A number of Councils operated a generic asset
management plan for all buildings, in which the library was included.

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Building condition surveys are undertaken by library services or local
authorities for almost four-fifths (79.1%) of Victorian library branches.
In terms of planning and maintenance, the Audit identified:
With rare exception, there is substantial ongoing effort and expenditure
being put into the maintenance and upgrading of the standard and
provision of libraries to communities.
At least $5.7 million is spent each year on maintaining public library
buildings in Victoria. This figure is expected to be notably higher, as 34
libraries did not provide their annual maintenance expenditure.
On average, approximately $27,232 is spent on the maintenance of each
public library branch. On average, $43.50 is spent on maintenance per
sq m of library floorspace.
Some older libraries (even those built in the 1980s) are incurring high
maintenance costs.
Existing and planned investment in library infrastructure, and in many
cases maintenance, is often lower than average in rural areas.
There is vast variation in the cost of utilities to libraries. Many libraries
have not undertaken energy audits. On average, libraries spend about
$4,600 on electricity, $1,100 on gas, and $500 on water (approximately
$5,500 per quarter in total). Utilities expenditure is correlated with
floorspace, and, on average, $8 per sq m on utilities.
Victorian libraries were planning to undertake expenditure on capital
building of nearly $46 million over the next five years and expenditure on
internal assets (excluding book stock and other resources) of
approximately $5.7 million. The anticipated average capital building
budget (where provided) for those libraries planning to undertake work
was approximately $1.53 million and the internal works $249,000;
however, these ranged from $7.5 million to $100 in the case of capital
building works and $1.75 million to $200 in the case of internal assets.
The average cost of library refurbishment was approximately $520,000;
however, this average is skewed by a number of large refurbishments.
More than half (55.5%) of library branches whose buildings had been
refurbished indicated that the total cost of refurbishments was less than
$500,000.

Are there ‘enough’ public libraries in Victoria?
A range of planning benchmarks, such as those in People places, have been
discussed and applied in this report. While notable variation within the State
makes it difficult to generalise, in comparison to these planning benchmarks
it is clear that the current level of floorspace provision in Victoria is less than
adequate. Nearly half of library services do not meet the People places
suggested minimum standard of provision. Overall, the current provision of
floorspace in Victoria is 28 sq m per 1,000 people, which is less than the
minimum required, which has been estimated to currently be 30 sq m per
1,000 people.
The Audit has broadly confirmed the accuracy of the planning benchmarks
utilised by People places and has not revealed any information which
suggests that they should be altered. A number of discrepancies do exist,
and have been noted in the analysis.

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We have, however, paid less attention to service-based and population-based
benchmarks outlined in People places in recommending a State benchmark,
as the testing undertaken suggests that they are more appropriate for
assessing and designing new buildings, rather than retrospectively assessing
existing buildings. For example, a number of the design standards upon
which the service-based benchmark is predicated are not appropriate when
applied to a building designed 20 years previously.

Recommended strategies

1. Building Area Factor
We recommend that planning standards based upon the Building Area
Factor in People places be relied upon. It is recommended that these be
adopted for use in Victoria, namely:
Less than 20,000 – provide 42 sq m per 1,000 population
Between 20,001–35,000 – provide 39 sq m per 1,000 population
More than 100,000 – provide 28 sq m per 1,000 population
These rates have been analysed in the Victorian context, and it is concluded
that:
Provision in small LGAs (i.e. those with less than 10,000 population) and
LGAs with between 65,001–100,000 population exceeds the benchmark.
Provision in LGAs between 20,001–35,000 population matches the
benchmark.
All other LGA sizes fall short of the benchmark.
We also recommend that a State benchmark of 30 sq m per 1,000 population
be adopted as a target.
It may also prove appropriate to develop a rural and a metropolitan
benchmark, and it is further suggested that consideration be given to this at
a later date.
These standards should form the starting point for determining what need
might be present in a community. They must be informed by other factors
about local need.
Strategies for improving provision in Victoria should initially aim for parity
with the current State average of 28 sq m per 1,000 population in those
LGAs which fall short of this target. We regard this as an equitable
approach. This will involve the provision of an additional 19,039 sq m of
gross floorspace.
In the longer term, strategies should seek to achieve a target of 30 sq m per
1,000 population, and meeting the People places BAF as relevant to an LGA’s
population size. This will involve the provision of an additional 24,184 sq m
of gross floorspace (or 5,145 sq m more than the initial target). These figures
do not include an allowance for projected population growth.

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2. Capacity building
The Audit results also point to a need for a range of capacity building
activities to be undertaken. Topics identified by the Audit include education
on:
Internal library planning, e.g. internal layout and design, and functional
space allocation. We suggest that this involve activities which propagate
the concepts established within People places.
The purpose of the Building Code of Australia and other applicable
building codes and regulations. Priority attention should be given to
improving disability access compliance, especially given the critical role of
libraries in community building and fostering social inclusion. An early
target is for each LGA to have one branch which is fully accessible in all
respects. This is not currently the case in a number of LGAs.
The value of energy audits, their process, and the savings which can be
achieved in utility costs.
Further detailed guidance could be provided to library services either
through documentation or seminars. Documentation developed need not be
a formal report, but could be in the form of a circular or an article in a
magazine.

3. Community hubs and learning centres
The move towards the concept of libraries as community hubs and learning
centres should be further promoted and facilitated. A useful starting point
would be to undertake a more detailed review of existing collocated libraries
which act as hubs, to identify their advantages and disadvantages, any
barriers to their development, implementation and management, and seek
successful ways to promote their implementation. This would examine not
just how hubs can be achieved in new libraries, but more importantly given
the sector funding constraints, how existing infrastructure can be adapted to
the task. Initial guidance may be found in some of the case studies
contained in this report.

4. Annual and bi-annual building audits
It is further recommended that, at a State level, this Audit be undertaken
every two years in order to monitor progress and change in Victoria’s library
building stock. Internal updates of the individual LGA audit reports should
be prepared by each library service annually.

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1. INTRODUCTION
1.1 Background
This report documents the findings of the 2007 Building Audit of Victorian
public libraries undertaken for the Advisory Committee on Public Libraries, a
committee of the Library Board of Victoria; the Victorian public library
network; and the State Library of Victoria. It is one of a suite of statewide
projects conducted under the auspices of the Library Board of Victoria to
assist in the development of the Victorian public library network.
The project utilises People places: A guide for public library buildings in New
South Wales (Library Council of New South Wales 2005), a best practice,
comprehensive guide to designing and building suitable structures for
libraries to enable maximum usage by residents and the general public. This
report covers the five key areas of floorspace and functions; building design;
locational factors; building management and maintenance; and information
on planning and development procedures.

1.2 Aims and research objectives
The aim of the project was to conduct a comprehensive Audit of Victorian
public library buildings to identify the current state of Victorian public
library buildings and provide a tool for library service managers to assess
their suitability to meet community needs.
The outcomes of the Audit are:
A statewide report to provide:
− an overview and trend analysis of Victorian public library service
buildings with conclusions about the current state of Victorian public
library service buildings;
− a current ‘snapshot’ of library floorspace functions and building
structure by library service branch against the informally accepted
industry standards outlined in the key document People places: A
guide for public library buildings in New South Wales;
− current planning and development, and the estimated value of
Victorian public library buildings; and
− case studies of Victorian public library buildings, as selected by a
representative selection panel.
Individual Local Government Authority (LGA) audit reports to provide
library service and branch level data as well as benchmarking against the
informally accepted industry standards outlined in People places. These
audit reports enable public libraries in Victoria to compare their library
buildings with published standards.
It is intended that this report will provide a basis for improvements to
Victorian public library buildings in terms of floorspace, capacity, safety
regulations, and services provisions of the future.

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Case study 1: Caroline Springs Library, Melton Library and Information Service

(Photographer: Emma Cross)

Gross floor area: 2,500 sq m

User catchment: Melton East Corridor
At present approaching 40,000 people with growth
expected to 60,000 within the next 10 years

Cost: Approx $12 million including fit-out and establishment
collection of 35,000 items

Architect: Suters Prior Cheney Architects
26 Liddiard Street
Hawthorn VIC 3122
Principal design architect: Mark van den Enden

Date completed: January 2008

Usage: 500–600 visitors per day

Caroline Springs Library is an outstanding example of the modern trend for
public libraries to be community hubs, collocated with other community
services and offering users excellent facilities and resources in a pleasant
and relaxing environment.
The library is an iconic structure inspired by local geographic features and
presenting a unique frontage to the street, set in an integrated landscape
and incorporating excellent access from two entry points. The building uses
natural light extensively and its interior form and fittings reinforce and
complement the external design features to create a space that is light-filled,
bright, airy; comfortable and visually interesting.

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Caroline Springs Library continued
The building also serves as the school library for the adjacent senior campus
of the Caroline Springs Secondary College; houses the Caroline Springs
College Director; Council’s customer service centre, which is open at all
times when the library is open; seven community meeting spaces with
capacity from 5–70 people; a computer training facility for up to 50 people;
an audiovisual studio and a cafe.

It also incorporates the latest in ICT equipment into its spaces and
functions, including the latest in self-serve RFID technology; a teen lounge
that has three Playstation3 consoles; audiovisual suites for use by the public
to enable production of audio and video works; built-in projection and sound
capacity into the community spaces; public wireless internet connectivity;
and an integrated booking and print management system for all public PC
facilities. In addition, all shelving within the library is moveable and modular
to enable maximum flexibility for use of the library spaces.


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1.3 Study context and policy framework

1.3.1 The changing role and nature of the public library building
Reports of the death of the library have been greatly exaggerated… The
technological revolution of the 1980s and 1990s was widely seen as sounding
the death knell for the public library as we knew it… These predictions have
proved unfounded… Imaginatively designed and responsive public library
services can play a pivotal role in promoting greater social cohesion and a
stronger sense of civic pride and local identity (Worpole 2005:5).
Libraries are facing new challenges; as the demographic character of the
community changes and social trends alter, so do the requirements for
public library buildings. The United Kingdom’s Council for Museums,
Archives and Libraries noted in 2003 that population and demographic mix
was changing more rapidly than ever before; information and
communications technology was reconfiguring the nature of physical space,
communications and movement; education was moving out of the
institutions to alter the whole of society; and leisure, recreation and personal
development were increasingly fusing in a more individualistic culture
(CABE & Resource 2003:4).
Regardless of these changes, there is no consideration that the physical
library building is a thing of the past. Indeed the modern public library has
been fairly described as the anchor of the community, and by Australian
social commentator Hugh McKay, as the ‘new village green’ (Bundy 2006:1).
There have been many recent attempts to identify the value of the public
library. Cox (2000) undertook a landmark study in 2000 which showed that
libraries contribute to social capital in many ways. The United Kingdom’s
Department for Culture, Media and Sport, among many others, noted in
2003 that libraries are acknowledged as safe, welcoming, neutral spaces
open to all in the community. Various studies are also finding ways to
measure the economic contribution of libraries, including McCallum and
Quinn (2001) and dmA Planning, Research and Management
Services (2007).
In 2005, the State Library of Victoria undertook the Libraries Building
Communities (LBC) project, the first comprehensive Australian study of the
value the public libraries add to their communities (Library Board of
Victoria 2005). This project noted that ‘public libraries hold an important
place in people’s hearts’ and make a fundamental contribution to our
communities (Audit Commission UK cited in Library Board of Victoria,
Report 1, 2005:5). In line with community building as one of the key
strategic directions of the Victorian Government, libraries provide space
where citizens can gather and work on personal and community problems.
They also ‘provide a wide range of innovative, creative programs that bring
citizens together and break down the barriers of age, ethnicity, culture,
socio-economic status, language and geography’ (Kranich cited in Library
Board of Victoria, Report 1, 2005:16).
In the words of People places (Library Council of New South Wales 2005:7),
‘public libraries are one of the most well used educational, cultural and
social facilities available within our community. The relevance of libraries to
today’s community is considered to be evident in their high levels of usage
and attraction to a broad range of users from all ages and backgrounds’, as

- 25 -

evidenced in Victoria by the LBC project which identified that ‘on average,
every day every Victorian public library will lend about 500 items; … receive
nearly 270 visits from a total of 2.5 million registered users (over half the
Victorian population) and respond to nearly 30 reference enquiries’ (Library
Board of Victoria, Executive Summary, 2005:5).
Consequently, it is not surprising that many commentators have identified a
‘renaissance’ in which public libraries have reinvented themselves in the
past decade, revising their role as beacons for civic pride, social and
economic regeneration (Worpole 2005:5). At the same time, this has resulted
in a resurgence of building activity in the recognition that ‘old, tired,
outdated buildings are the worst advertisement for our profession; well
maintained, vibrant, relevant buildings the best’ (Mackenzie cited in
Bundy 2004:16). Consistent with international trends, in 2006 Bundy
identified that local government across Australia was endeavouring to
replace and rebuild libraries; with about 200 new library buildings and
rebuilds having been constructed between 2000 and 2006 – many of them
excellent and of world standard (Bundy 2006:2). However, he also identified
at least 400 libraries waiting to be replaced or rebuilt.
In Victoria, public libraries are largely the responsibility of local government,
which must undertake the construction and maintenance of these buildings
from their annual budgets, with the assistance of statewide public library
grant funding. The changing needs of the community have meant many
library buildings no longer meet contemporary needs or current standards. A
modern ‘public library needs accessible, generous and attractive buildings
containing different but connected spaces’ (Bundy 2006:1).
Recurring themes throughout the literature regarding the necessities of
modern public library buildings include user needs, space and costs
(Jones 2004). The local government landscape in which public libraries
operate is constrained by infrastructure backlogs, and competition between
public libraries and a plethora of other local services which require funding.
‘With changing demographic and social trends, ever-increasing financial
constraints for government and rapidly changing information technology, the
design and function of libraries must change to meet these and new other
challenges’ (Library Council of New South Wales 2005:7).
User needs have changed dramatically over the past decade, whereby local
and larger public libraries are no longer a facility to solely borrow books or
study. Libraries are now more people focused, with extra services and
facilities for the local community. They are, in a way, becoming a hub for
community life. Jones (2004) identifies the differences between ‘user needs’
and ‘user wants’ within local libraries, and asserts it is a mistake to compare
local libraries without assessing the real needs of the people who utilise the
library. There is no longer a one-size-fits-all approach to library planning,
and this had been recognised over the past few years.
Space requirements are usually limited by the location of the current or
proposed library and perhaps the city it is in. Space for development in
metropolitan areas is no longer available at reasonable prices as it was in the
past. However, with library services changing, there are now greater
demands for space within local libraries. Scarcity of land has encouraged
local authorities to collocate more than one facility on the same site, often
with other State or municipal services or community activities (Jones 2004).
There are significant advantages emerging in collocation: ‘a single large
building can be easier to construct, to keep secure and to maintain than

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several smaller buildings. Sharing car parks, foyers and other common
spaces can make economic sense. Collocated facilities may be more
convenient for the community.’ Some local authorities are able to include
revenue generating components in a development, such as a cafe, bookshop
or gymnasium. ‘More and more libraries are being constructed in shopping
centres, often as a result of the deal between the local authority and the
developer’ (Jones 2004).
The United Kingdom’s Department for Culture, Media and Sport (2003:6)
claims that the best libraries are showing the way forward. ‘Eye-catching
new library buildings have opened in a number of cities and other places
which are seeking to radically redefine the ways in which library services are
delivered.’ Whichever way this is, it seems clear that ‘buildings will always
play an important role, whether as adaptations or refurbishments of existing
building stock, joint ventures with other public or commercial services in
shared or collocated premises, or in dedicated new library buildings which
speak to the changing needs of the 21st century’ (Worpole 2005:6).

1.3.2 Framework for Collaborative Action
The Framework for Collaborative Action (Library Board of Victoria and
Victorian Public Library Network 2006:3) defines the way in which the
Library Board of Victoria, through the State Library of Victoria, works with
the public library network to deliver improved library services to Victoria’s
communities.
The undertaking of the Building Audit of Victorian public libraries responds
to the top three goals and priorities of the Framework for Collaborative
Action (2006:6), namely: enhanced collections; improved access options; and
seamless service to users.

1.3.3 Libraries Building Communities
A collaborative research project of the Library Board of Victoria and the
Victorian public library network, the Libraries Building Communities (LBC)
project is aimed at meeting the challenges facing libraries today. The LBC
project was the first comprehensive Australian study that examined the
value that public libraries add to their communities. Through extensive
surveys with Victorian public library services and the Victorian public, the
study found that libraries and librarians make a fundamental contribution
to communities in four key areas. They:
provide free public access to computer and information technology
resources;
create better informed communities by helping people locate information;
promote life long learning and literacy in the community through the
programs they run; and
build connections between individuals, groups and government (Library
Board of Victoria, Executive Summary, 2005:5).
There are four main reports and an Executive Summary in the initial LBC
(Library Board of Victoria 2005) series:
Report 1: Setting the Scene covers the concept of community building, the
Victorian Government’s policy agenda, the Victorian public library
network, project methodology, and relevant research.

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Report 2: Logging the Benefits outlines the community views on the role
and benefits of public libraries.
Report 3: Bridging the Gaps provides socio-economic demographic profiles
of library users and non-users, as well as strategies for bridging the
perceived gaps in public library service delivery.
Report 4: Showcasing the Best gives over 30 examples of innovation and
excellence in Victorian public libraries.
In 2006, further research was undertaken resulting in the Libraries Building
Communities Library User Census and Survey Project, which produced two
additional reports:
Report 1: Statewide Analysis and Comparisons.
Report 2: Library Services Data and Reports.
Together, these reports provide a systematic evidence base at both the
statewide and library service level concerning the users, uses and benefits of
library services (Library Board of Victoria 2006:4), and are integral to the
development of benchmarks of library provision in Section 9 of this report.

1.3.4 People places
People places: A guide for public library buildings in New South Wales
(hereinafter referred to as People places), researched and prepared by
Heather Nesbitt Planning and Bligh Voller Nield, was commissioned by the
Library Council of New South Wales in 2000 to promote planning techniques
and practical guidelines for the development of library buildings. It sets out
information not only on the design of buildings but also the processes
required to develop successful library development projects.
In 2005, it was felt that an update to People places would be useful as it
would be possible to include an evaluation of libraries which had used the
original edition in the planning of their buildings. Its success as a planning
framework and benchmark has encouraged other States in Australia to
tackle the changing trends and needs of the community with respect to
public libraries (Library Council of New South Wales 2005).
People places identifies the key objectives for future public libraries as being
buildings which:
‘Provide a cultural hub and focal point for the community
Are functional and multipurpose accommodating a range of activities and
uses
Enable access to the latest in technology in a user-friendly manner
Attract a wide range of users providing areas for relaxation, research,
leisure and learning
Are effective and efficient in the delivery of services
Develop from a co-operative approach between all stakeholders to ensure
that the changing needs of the community are met’ (Library Council of
New South Wales 2005:7).

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The second edition identified emerging trends impacting on the design and
function of public libraries in New South Wales (and equally relevant in
Victoria) including:
Public libraries as places of social capital, where people from a range of
backgrounds can meet, network and potentially develop relationships
with other members of the community.
Ageing of the community, as the number of older residents with
significant leisure time increases and also the increase in the level of
disability in our community, specific consideration of physical design
issues and specific services for older residents and people with a
disability is required.
Development of a youth culture, with young people as major consumers
of information technology who hold social attitudes that are often
different from other groups in the community can mean different services
and spaces are required.
The expanding role of information technology in our society.
The increasing library needs of our multicultural society, particularly on
multilingual collections.
Recognition and celebration of our indigenous community, with a need to
ensure public libraries located in communities with large indigenous
populations are attractive, welcoming and relevant to all members of the
community.
Growing competition from other sources of information, education and
entertainment in a rapidly changing world.
Increasing cultural development in our communities.
A growing regionalisation of settlement patterns in coastal communities,
and declining populations and a changing economic base in rural areas.
The NSW policy of compact cities and the impacts of urban consolidation
(Library Council of New South Wales 2005:7–14).
A key element of People places has been the provision of a planning process
for the development of public libraries, and, in particular, a process of
identifying needs which can be translated into the design and functional
floor areas required in a new/expanded library facility. People places
provides a suite of four different tools for assessing need, including:
Identified need, expressed by stakeholders such as library staff,
community groups and Council officers.
Normative need, based on socio-demographic information and
recognised statistical indicators about library usage, provision per capita,
etc.
Comparative need, based on comparing service provision with other
communities with similar socio-demographic characteristics.
Benchmark-based need, using specific tools related to the services
provided by public libraries and the population served by a library, this
tool provides two different approaches to determining the actual floor
area of public library (Library Council of New South Wales 2005:17).
The first of the latter tools, a service-based benchmark, is related to
Victorian public library buildings in Section 9.4. The second, a population-

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based benchmark, is also discussed in Section 9.4. Both are integral in
developing a benchmark for library service provision in Victoria.

1.3.5 Snapshot of the Victorian public library network
Public library services in Victoria are provided by all 79 Local Government
Authorities, through 45 library services. Of these, 30 are structured as
standalone (single) municipal council services, 14 as public library
corporations through which services are provided to a number of member
councils; and the Vision Australia Information Library Service, which
delivers information and library services in alternate formats to people with a
print disability.
There are 247 public library branches operating in Victoria, with an
additional 27 mobile services and 20 deposit stations. In the year ending
30 June 2004, there were approximately 24,407,000 visits to public libraries
in Victoria, with 2,538,812 registered borrowers (51.5% of the 4,932,422
persons usually resident in Victoria) (ABS 2005:14).
Victorian libraries lend 48,743,783 items per annum (or approximately 19
per member), and deal with 2,580,862 enquiries. The 45 library services
receive funding of $144,932,834 per annum, or $29 per capita. Data
compiled by the National and State Libraries Australasia (NSLA 2007)
identifies that Victoria is the lowest funded State in Australia. The table
below provides comparative data for each State.

ACT NSW NT Qld SA Tas Vic WA Aust

2005/06 $45.22 $37.56 $31.14 $38.63 $39.06 $31.05 $28.43 $43.02 $36.07

1.4 Previous audits of public library buildings

1.4.1 Audit of Public Library Buildings in New South Wales
In 2006, BBC Consulting Planners was appointed by the State Library of
New South Wales to undertake an audit of public library buildings in New
South Wales, based on the standards and benchmarks established in People
places. In collaboration with the Steering Committee, comprising
representatives from the State Library of New South Wales, Public Libraries
New South Wales – Metropolitan, Public Libraries New South Wales –
Country (formerly known as the Country Public Libraries Association), and
the Local Government and Shires Associations, BBC developed an
appropriate methodology and online survey tool to encompass the needs of
the Committee’s audit requirements and to reflect the benchmarks reported
in People places.
The online survey was undertaken during November and December 2006
and the results analysed and presented as a draft report in August 2007 as
the first Audit of Public Library Buildings in New South Wales. The survey,
which involved 366 central and branch libraries, asked questions relating to
floorspace and functions, buildings, locational factors and planning and
development.
Reference was made to this document in undertaking the Victorian audit in
order to ensure some consistency and comparability of results.

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Case study 2: Kerang Library, Gannawarra Library Service

Gross floor area: 682.6 sq m

User catchment: Kerang and the shire of Gannawarra is a remote rural
community whose economy revolves around primary
industry.
Shire of Gannawarra pop. 12,500

Cost: $1.5 million

Architect: Greenway Hirst and Page

Date completed: August 2003

Usage: 85,700 annually (2005/06)

Early stages of planning identified community needs which, if met by the
library design, would deliver reciprocal benefits to the library as a vital and
dynamic presence in the community.
The architect’s brief was for a design which would complement the historic
water tower existing on the site and, in addition to library facilities, provide
areas which would benefit and support the wider community.
At no time did the library actively seek donations from the community but
there has been a great deal of community contribution to the building in the
creation and donation of a number of unique features. This library was
achieved through State Government funding, total commitment by the Shire
Council, time and dedication by library staff, and strong community support.

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Kerang Library continued

Large windows deliver natural light and those surrounding the recreational
reading area create the illusion of actually being outside. The deep jewel
colours of the interior provide a warm and welcoming environment.
Meeting room facilities, which include work space areas, are in regular use
and historical researchers are increasingly taking advantage of more efficient
access to historical and genealogical resources provided by a purpose built
area. Both the Library and the wider community benefit from the
opportunities the gallery offers for displays of art and craft.

- 32 -

1.4.2 Previous audits in Victoria
In 2001, the Victorian Department of Infrastructure undertook a survey of
public library buildings. This identified basic information and a summary of
key issues relating to age and condition, including:
the size of existing library branches;
their age;
whether they are heritage listed;
a summary of their problems; and
the approximate cost of repairs required to bring the property to
reasonable condition.
The survey identified significant problems with the age and condition of
many Victorian libraries. In response, the Victorian Government initiated a
Living Libraries Public Library Infrastructure Program which recognised that
many of the State’s current library buildings were inappropriate for
delivering library services that the community requires in the 21st century.
This funding program has contributed to the renewal of public library
infrastructure in many of Victoria’s public libraries. Grants under the Living
Libraries Program are ‘designed to assist Victorian councils and regional
libraries in the provision of high quality and accessible public library
facilities that support the role of public libraries in strengthening
communities’, and ‘aim to:
provide new or improved public library infrastructure; and
support the role of the public library in strengthening communities as a
meeting place, facilitator of life long learning and provider of free access
to information and reading resources’ (Department of Planning and
Community Development 2008:3).
‘Examples of the types of projects that will be considered for funding include:
The construction of a new library for a community that does not have a
public library building.
The construction of a library building to replace an existing library.
The conversion of an existing non library building for use as a library.
The renovation/refurbishment or extension of an existing library
building.
The incorporation of a public library space as an element of a broader
community facility.
A new mobile library.
Interior refurbishment of an existing mobile library.
Partial replacement of the mobile library (e.g. replacement of engine,
prime mover, trailer).
Projects that demonstrate flexibility and innovation in meeting the longer
term needs of the community are particularly sought, as are proposals for
libraries that are part of a larger community facility or retail complex’
(Department of Planning and Community Development 2008:4).

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1.5 Structure of the report
This report is structured as follows:
Section 1: provides an introduction to the project, including its Terms of
Reference, context and background. It identifies the key policy framework
within which the project is being undertaken, and several key documents
which provide a point of reference and source of information.
Section 2: details the approach undertaken to the Audit, including its
methodology, response rate and limitations.
Section 3: discusses the role of public library buildings in Victoria,
including current value of buildings; past and ongoing capital expenditure;
the amount spent on libraries as a proportion of total LGA budget; and
planned future expenditure. It identifies how buildings are currently utilised,
including their size, and includes an overview of functional areas and
specialist uses of space. The report then tests the Functional Area Size
Guide contained in People places. Finally, it reviews the role of library
buildings in their communities, including comparison to trends evident in
the literature. The section also reviews administration arrangements for
public libraries, including on-site or off-site administration and storage.
Section 4: provides a physical assessment of buildings, including user views
on quality, condition and type of building; accessibility and mobility issues;
facilities such as lighting, signage and user comfort; compliance with Codes
and Regulations such as the Building Code of Australia, fire rating, disability
and Occupational health and safety requirements; and tenure. It reviews
whether buildings are future proof in terms of technology, the changing role
of libraries in the community, and environmental sustainability. Finally, it
concludes on the basis of the above whether buildings are in fact ‘fit for
purpose’.
Section 5: reviews locational characteristics of public libraries, including
proximity to other community facilities; street frontage; and accessibility
both by car, public transport and disability access. It draws conclusions
about whether buildings are in fact in the ‘right’ place in relation to generally
accepted location criteria.
Section 6: provides information on asset management, specifically asset
management planning and maintenance.
Section 7: reviews current planning and development processes, including
planned refurbishment; new buildings planned; and planned replacement
other on the same or a new site. Details provided include the types of works
planned; timeframe; Gross Floor Area; budget; and locational attributes of
new sites where relevant.
Section 8: provides an overview of the results of individual Local
Government Authority audit reports.
Section 9: develops a benchmark of library service provision for Victoria. It
overviews the limitations of the audit methodology in this regard; applies
both service-based and population-based benchmarks, overall and by library
service/LGA; and derives a suggested planning benchmark for Victoria.
Section 10: is the conclusion to the statewide report. It draws implications
from the above and identifies appropriate strategies.
Interspersed in the report are case studies of Victorian public library
buildings as selected by an independent selection panel.

- 34 -

Individual Local Government Authority audit reports were distributed
electronically to each relevant library service manager/CEO in May/June
2008.
The survey tool; a complete list of survey respondents; and tabulated data at
the Local Government Authority and branch library level, is appended.

- 35 -

2. STUDY APPROACH
2.1 Methodology
The Audit was undertaken via an online survey undertaken from 28 May to
1 August 2007. The Audit was conducted in consultation with the
Collections and Access – Standards Workgroup and State Library of Victoria
project staff.
The project was developed over a number of phases:
Initial consultation and literature review.
Development of survey themes.
Pilot survey.
Final online survey.
Data analysis and output report.
Initially, survey themes were drawn from a workshop with the Workgroup, a
literature review of building audit methodologies and the ideas in People
places (Library Council of New South Wales 2005), and experiences in New
South Wales with a similar audit. Following this, a draft survey was
developed and reviewed by the Workgroup.
A pilot survey was undertaken from 4 to 11 May 2007, comprising five
library services:
Eastern Regional Libraries: Ferntree Gully Library and Knox City
Council.
Hobsons Bay Libraries: Altona Meadows Library and Hobson Bay City
Council.
Goldfields Library Corporation: Kangaroo Flat Library and Greater
Bendigo City Council.
Gannawarra Library Service: Kerang Library and Gannawarra Shire
Council.
West Gippsland Regional Library Corporation: Warragul Library and Baw
Baw Shire Council.
Feedback about the content and ease-of-use of the survey was elicited from
the participating branches and a number of improvements made.
The final survey comprised two parts:
Information relating to each Local Government Authority (LGA) in
Victoria.
Information relating to each branch library within each library service in
Victoria.
A separate survey was completed for each LGA and for each library branch
premises. Some of the LGA level information was available from other
sources, and was, therefore, not sought again.

- 36 -

The LGA survey was divided into four parts:
Part A. Assessment of Population-based Benchmark of Library Provision.
Part B. Assessment of Service-based Benchmark of Library Provision.
Part C. Audit of Administration Buildings.
Part D. Planning and Development.
The branch survey was divided into five parts:
Part A. Floorspace and Function, intended to obtain information on the
floorspace of the library premises and the various functions provided at
the premises.
Part B. Design of the Building, intended to obtain information on the age
and condition of the building within which the library is located as well
as the extent to which the library premises complies with current
building design principles.
Part C. Location of the Building, intended to obtain information on the
location of the library premises.
Part D. Building Management and Maintenance, intended to obtain
information on the management and maintenance of the library
premises.
Part E. Planning and Development, intended to obtain information on
library development planning.
Explanatory notes were provided where necessary to explain questions and
assist information collection. Survey respondents’ were required to
collaborate with Council’s building or asset manager, or their library service
manager to source some information.

2.2 Response rate
The survey went online from 28 May 2007. The survey was initially to be
completed over four weeks, by Tuesday 26 June 2007. However, in order to
ensure as high a response rate as possible, this was extended to 1 August
2007.
The State Library of Victoria invested considerable time and effort in several
rounds of follow-up telephone calls and emails encouraging the completion
of outstanding responses from all libraries. A final response rate of 94.9%
of LGAs and 96.5% of branch libraries was achieved. In total, 75 Local
Government Authorities and 244 branch libraries responded.
Due to extenuating circumstances, Corangamite Regional Library
Corporation was unable to complete both the LGA and branch level surveys
in the timeframe allocated. As a result, four LGAs and ten branches are not
included.
Surveys were returned for ‘branches’ at Churchill (Latrobe City Council,
Latrobe City Library Service) and Goldfields Mobile (City of Greater Bendigo,
Goldfields Library Corporation). Following data analysis, it was determined
that these branches should not be defined as buildings in the terms of this
Audit; their inclusion within the dataset has a negligible effect on the
analysis.

- 37 -

2.3 Study limitations
The analysis of the survey responses has revealed a number of limitations to
the study which are important to note:
Responses were non-compulsory, allowing respondents to skip some
questions, accidentally or otherwise, which may have affected the
response rate for some questions.
Some questions, particularly those related to financial information, had
low response rates. Feedback from respondents identified that this was
either because the information was not available, or could not be
obtained from other Council departments within the survey timeframes.
Analysis suggests that a small number of questions are likely to exhibit a
degree of data entry error. For example, estimates of functional floorspace
areas (sq m) exceeding the total GFA of the branch, and the frequency of
non-resident membership at abnormally high levels.
The content of some questions, particularly with regards to areas such as
building design, were beyond the scope of knowledge of many library
managers.
Other limitations relate largely to possible misinterpretation of questions
which may have affected some responses. These have been noted, where
relevant, in the textual analysis in the following sections.

- 38 -

3. THE ROLE OF PUBLIC LIBRARY BUILDINGS IN
VICTORIA
This section discusses the role of public library buildings in Victoria,
including current value of buildings; past and ongoing capital expenditure;
the amount spent on libraries as a proportion of total LGA budget; and
planned future expenditure. It identifies how buildings are currently utilised,
including their size, and includes an overview of functional areas and
specialist uses of space. The report then tests the Functional Area Size
Guide contained in People places. Finally, it reviews the role of library
buildings in their communities including comparison to trends evident the
literature. This section also reviews administration arrangements for public
libraries, including on-site or off-site administration and storage.

3.1 Administration arrangements
Public library services in Victoria are provided by all 79 Local Government
Authorities, through 45 library services. Of these, 30 are structured as
standalone (single) municipal council services; 14 as public library
corporations through which services are provided to a number of member
councils; and the Vision Australia Information Library Service, which
delivers information and library services in alternate formats to people with a
print disability.
The Audit identified that 28% of LGAs operate some form of on- or off-site
floorspace distinct from branch operations (Table 3.8). This included
administration space (21.3%), storage space (17.3%) as well as other forms
of space (12%). Other forms of space included: mobile library parking; Rural
Transaction Centres; technical services; and outreach services. The
distribution of floorspaces for these centralised uses is identified in Table
3.9. These spaces have been described as appropriate within relevant
sections of the report.

3.2 The value of public library buildings
The current local and state investment in Australian public libraries is only
about $600 million per annum, representing approximately seven cents per
Australian per day or the cost of one book/CD/DVD per annum
(Bundy 2006b:4). Research has shown that the return on public investment
in public libraries is likely to be between $2.50 and $5.50 for every dollar
invested. ‘No public investment demonstrably returns a higher dividend’
(Bundy 2003:3).
It has been estimated that individual local government annual investment in
public libraries ranges from less than 1% per annum of rate revenue to over
7%. Generally, percentages of rate revenue allocated to libraries by country
authorities are smaller than in urban areas (Bundy 2003:3).
Libraries are more than a financial consideration. As discussed in Section 0,
libraries are increasingly being recognised as an essential place for building
social capital. Libraries are places which also provide intangible and indirect
benefits to the communities in which they are located. Libraries:
are public anchors for neighbourhoods and communities;

- 39 -

Victorian Public Library Building Audit Report Summary

Victorian Public Library Building Audit Report Summary

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