Welsh Public Library Standards Sixth Framework analysis report: summary

The Welsh Public Library Standards (WPLS) provide the national framework for assessing the performance of public library services in Wales. They set out a series of Core Entitlements, describing what the public can expect from their library service, alongside Quality Indicators used to monitor delivery and impact.

The Sixth Framework analysis, covering the period from 2017 to 2025, brings together annual data and qualitative evidence submitted by library services. This includes both performance data and narrative evidence describing how services are delivered and the difference they make to individuals and communities.

The findings presented in this summary draw on that evidence to identify key trends over the Framework period and to provide insight into how library services have adapted to changing circumstances, including the impact of the COVID-19 pandemic.

This aims of this research were to:

• identify the trends present in the Sixth Framework data supplied by library services in Wales
• provide insight into the changes in library services in Wales during the Sixth Framework Period

The 13 Core Entitlements of the WPLS enable the public to know what they can expect from their public library service. Most of these Core Entitlements were met in full or in part by the majority of Welsh library services throughout the Sixth Framework. However, 3 Core Entitlements were more challenging for some services. Whilst services performed well against Core Entitlement 5 (Safe, Accessible Spaces) for much of the Sixth Framework period, providing “suitable staffed opening hours” became increasingly challenging for some services in the face of staffing reductions. Other Core Entitlements which were challenging for some services during this Framework period were CE 11 (User Consultation) and CE 12 (Access to Library Strategy).

The COVID-19 pandemic was a major factor impacting on Welsh library services during the Sixth Framework. During COVID-19, libraries experienced significant disruption to normal service delivery but adapted rapidly by expanding digital services, introducing new service models and maintaining access to resources wherever possible. At the same time, libraries played an important role in supporting their communities. Through online activities, home delivery services and wider community support initiatives, libraries helped reduce isolation, maintain access to reading and information and provide practical assistance to residents. As services moved into the recovery phase, attention shifted towards rebuilding engagement and integrating the lessons learned during the pandemic into future service development. However, it is clear that some services rebounded more quickly than others.

There is evidence that Welsh library services had positive outcomes on individuals and communities across the Sixth Framework period. Amongst adults responding to customer surveys, a median of 97% described the library as an enjoyable, safe and inclusive place, while between 70% and 82% said that using the library had helped them develop new skills.

Libraries helped reduce barriers to participation and support those facing disadvantage. As free and accessible services, they supported people to maintain independence, access information and participate more fully in society. Examples included digital device loan schemes, warm spaces, support for autistic children and young people, and home delivery services for those with limited mobility.

Libraries also acted as trusted community spaces that strengthened social connection and wellbeing. Through activities such as reading groups, creative sessions and informal community gatherings, libraries supported people experiencing loneliness, anxiety, poor mental health and social isolation. Services also helped refugees and others new to local areas build friendships, confidence and a sense of belonging.

Access to books and other resources

An average of 3.06 library resources were issued annually per person living in Wales during the Sixth Framework. Taking all types of issues into account, in 2023 to 2024 issue figures were 6% higher than they had been at the start of the Sixth Framework and were trending upwards. However, this increase was largely driven by a small number of services with notably higher issues than the median. Authorities with higher spending, more staff and longer opening hours tended to have higher issue figures.

Although overall issues increased, adult book issues declined by 31% over the data collection period and all authorities reported lower adult issues in 2023 to 2024 than they had in 2017 to 2018. An average of 1.85 adult books were borrowed annually per adult living in Wales. Amongst adults responding to customer surveys, a median of 91% rated the choice of books in the library they use as good or very good, and a median of between 63% and 70% said that they had found helpful information for health and wellbeing at the library. Where library services did not have materials immediately available, the median percentage of requests available within 15 days was 81% or higher.

An average of 4.50 books were issued per child in Wales each year. Nationally, children’s book issues were 17% higher in 2023 to 2024 than they had been at the start of the Framework period. However, much of this increase was driven by a small number of authorities with particularly high children’s issue figures. Authorities with higher spending on children’s resources tended to report higher children’s issues.

E-issues followed a different pattern to other types of resource issues during the Sixth Framework. Nationally, e-issues per capita increased more than six-fold (542%) during the Framework and were on an upward trend at the end of the period. An average of 0.75 e-resources were issued per person living in Wales each year.

Whilst e-issues grew in importance, Audio-Visual (AV) issue figures declined during the Sixth Framework. There was a 59% decrease in the number of AV issues nationally as many library customers abandoned older AV formats in favour of digital media. There is evidence of a correlation between e-issues and spend on e-resources, although this is not as strong as for other resource types.

An average of 0.73 Welsh language resources were loaned annually per Welsh speaker in the population. The total number of Welsh language issues increased by 45% over the course of the Framework. There was evidence of a correlation between Welsh language issues and spend on Welsh language materials, but this was less strong than for other resource types.

Events and activities

During the Sixth Framework period, annual attendance at library events and activities equated to an average of 1 in 4 of the population. Furthermore, an average 1 in 20 of the population of Wales attended formal training sessions organised or hosted by a library service annually.

Looking at the delivery outputs and outcomes of library services, the picture is a largely positive one as libraries continue to serve customers and adapt to change and community needs. Although recovery from the COVID-19 pandemic has varied across Wales, public libraries continue to be well-supported and have a positive impact on the lives of many people. However, this analysis shows that libraries are being expected to deliver services with fewer staff, branches and opening hours, and smaller budgets. As library authorities increasingly struggle to deliver the Core Entitlements of statutory provision, the quality of library services available to the public is likely to suffer.

Staff

Authorities with higher total staffing levels tend to have higher issue figures and higher event attendance. Total library staff numbers declined year-on-year throughout the Sixth Framework. Nationally, there were 116.2 fewer posts at end of the Framework compared to 2017 to 2018, a 12.9% reduction. Around 1 in 6 staff in Welsh libraries are professionally qualified librarians. Qualified staff numbers across Wales also decreased during the Sixth Framework. Nationally, there were 35.7 fewer qualified posts at end of Framework than at the start, a 22.5% reduction. Volunteer hours accounted for around 3% of hours worked nationally pre-pandemic. By the end of the Sixth Framework, volunteer hours accounted for 5.3% of hours worked in libraries nationally.

Service points and opening hours

Welsh libraries were open for an average of 394,974 hours per annum over the course of the Framework. Authorities with longer opening hours tended to have higher issue figures. However, services saw opening hours reduced by around 10% during the Sixth Framework. Furthermore, opening hours per member of library staff were 7% higher nationally in 2024 to 2025 than they had been in 2017 to 2018, meaning that libraries were operating with fewer members of staff per opening hour by the end of the Framework. Whilst unstaffed hours increased during the Framework period, they still accounted for a relatively small proportion of total opening hours.

Across Wales, there were 8 fewer static service points and 20 fewer mobiles in 2024 to 2025 compared to 2018 to 2019. This represents a loss of more than two-thirds of mobiles and around 3.7% of static service points.

Financial resourcing

Although total revenue expenditure increased slightly across the framework period, this increase did not keep pace with inflation. When adjusted for inflation, overall spending on library services is around 13.5% lower in real terms. Only a small number of authorities experienced real-term increases in revenue expenditure. The average revenue expenditure per person living in Wales across the Sixth Framework was £13.08.

Authorities with higher spending tend to have higher issue figures. Across the country, spending on information resources reduced from £1.61 per person living in Wales in 2017 to 2018 to £1.28 per person in 2024 to 2025. At the end of the Framework, stock expenditure nationally was around 80% of the 2017 to 2018 figure, and less when inflation is taken into account. No services saw stock expenditure keep pace with inflation. Percentage spend on children’s resources remained fairly stable at between 17% and 19% of the total materials budget. However, expenditure per capita reduced from approximately £1.69 per child in 2017 to 2018 to around £1.43 per child in 2023 to 2024. In contrast to overall stock expenditure, spending on Welsh language resources was slightly higher at the end of the Sixth Framework compared to 2017 to 2018. It rose by 4%, and 12% when the number of Welsh speakers is taken into account. However, in the majority of services, expenditure on Welsh language materials did not keep pace with inflation.

Conclusion

Overall, the evidence suggests that Welsh public libraries remained resilient throughout the Sixth Framework period and continued to deliver a wide range of services supporting learning, wellbeing, inclusion and cultural participation across Wales. Libraries adapted to significant challenges, including the impact of the COVID-19 pandemic, while continuing to contribute to wider Welsh Government policy priorities and community wellbeing. However, the analysis also demonstrates that services are operating within increasingly constrained resources. Declines in staffing levels, reductions in opening hours and service points, and ongoing financial pressures are placing increasing strain on library provision across Wales. As library authorities increasingly struggle to deliver the Core Entitlements of statutory provision, the quality of library services available to the public is likely to suffer. The findings therefore suggest a sector that remains highly valued and impactful, but which faces growing challenges in sustaining the breadth and quality of provision expected within the Welsh Public Library Standards framework.

Report author: Pete Dalton and Sarah McNicol

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:

Culture Division
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: culture@gov.wales 

Social research number: 89/2026
Digital ISBN: 978-1-80853-100-2