Editor’s Note:
Libraries have long been essential parts of our communities, offering free access to knowledge, resources, and shared spaces. However, recent decades have seen a concerning decline in library engagement across England. With two-thirds of adults (66%) not having used a library in the past year, understanding why people aren't engaging with libraries and how to attract them back is crucial.
In November 2024, Ipsos blogged for us on an initial qualitative piece of research work which started to look at the barriers to library use and how to encourage engagement. Last week DCMS published the next phase of this work, a comprehensive quantitative report exploring the barriers to library use and potential strategies for re-engagement. The report offers valuable insights for policymakers, library staff, and the general public alike.
Barriers to library use
The research, conducted by Ipsos UK, surveyed 4,243 library non-users aged 17 and over, across England in January 2025 using our online random probability Knowledge Panel. It reveals several key barriers that prevent people from using libraries. They can be grouped into three main categories using the COM-B framework (a framework from behavioural science that helps us understand why people do or do not engage in certain behaviours). They are Capability (awareness and skills), Opportunity (external factors enabling or hindering use), and Motivation (personal reasons for or against using libraries).
We used a technique called Maximum Difference Scaling (MaxDiff) to understand the relative importance of different barriers to library use. In this analysis, respondents were asked to compare different reasons for not using libraries and choose which were the biggest and smallest barriers for them personally. The resulting scores range from 0 to 100, with higher scores indicating a higher likelihood of that barrier being chosen as important.
- Capability: Many non-users simply aren't aware of the full range of services their local libraries offer beyond book lending. This lack of awareness is particularly pronounced among younger age groups, graduates, and those from higher socioeconomic backgrounds. In fact, 58% of library non-users indicated they are unfamiliar with library services beyond borrowing physical books. The MaxDiff analysis revealed that "not knowing what services/activities are offered beyond loaning physical books" was the third most significant barrier overall, scoring 53.1 out of 100. This suggests a significant opportunity for libraries to better communicate their diverse offerings, from digital resources to community programmes, to bring more people through their doors.
- Opportunity: Inconvenient opening hours emerged as a significant barrier, especially for parents and full-time workers. The MaxDiff analysis revealed this as the most important opportunity-related obstacle, with a score of 41.6 out of 100. Other accessibility issues, such as parking difficulties and transportation challenges, also play a role in keeping people away. For instance, finding parking difficult or expensive scored 26.6 out of 100 in the MaxDiff analysis. These findings highlight the need for libraries to consider how they can make their services more accessible to those with busy schedules or limited transportation options.
- Motivation: The ability to access similar resources elsewhere (e.g., online or in bookshops) was identified as the most significant barrier overall, with a MaxDiff score of 70.7 out of 100. This was particularly true for those with higher incomes, graduates, and individuals from more affluent areas. Additionally, many non-users struggle to see how libraries fit into their modern lives, perceiving them as irrelevant in the digital age. This perception of irrelevance scored 29.7 out of 100 in the MaxDiff analysis and was more prevalent among men and those confident in using the internet. These findings underscore the challenge libraries face in demonstrating their unique value proposition in an increasingly digital world.
Services with potential to re-engage non-users
Despite the barriers mentioned above, the research uncovered several services that could potentially draw non-users back to libraries:
- Comfortable and inviting spaces (cited by 38% of non-users)
- Extended opening hours, such as evenings and weekends (35%)
- A wide selection of up-to-date books and publications (34%)
- Access to free Wi-Fi and digital equipment like public computers and printers (33%)
- Comfortable and dedicated spaces for working or studying (26%)
Different services appeal more strongly to specific demographics. For example, just over half (53%) of 17-24 year olds selected dedicated work and study spaces as a factor that would encourage them to use their local library. This suggests that libraries could potentially attract younger users by positioning themselves as alternative workspaces.
Meanwhile, good parking facilities were particularly important for those aged 65 and above (29% compared to 23% overall), highlighting the need to consider accessibility for older users. For parents, especially those with children aged 0-4, an engaging programme of activities and events for children was a significant draw (43% compared to 31% of parents overall).
These findings demonstrate the importance of tailoring library services to meet the diverse needs of different community segments.
Segmentation of library non-users
The research identified five distinct segments of library non-users, each with unique characteristics and potential for re-engagement:
Armchair Supporters (24% of non-users): Hold positive views of libraries but don't personally engage or use them. They tend to be older, from higher socioeconomic backgrounds, and living in less deprived areas. While they value libraries in theory, they may not see the personal relevance.
Digital & Community Seekers (25%): Value libraries as community hubs but seek greater digital integration and convenience. They are more likely to be female, younger, from ethnic minority backgrounds, and working full-time. This group sees potential in libraries but needs services that align with their digital-first lifestyles.
The Disengaged (23%): Show low awareness of library offerings and feel a lack of personal relevance. They are more likely to be male, older, non-graduates, and from lower socioeconomic backgrounds. Engaging this group may require fundamental shifts in how libraries communicate their value.
Dismissive Non-Users (9%): Hold deeply negative perceptions of libraries and strongly resist engagement. They are more likely to be men, younger, from lower socioeconomic backgrounds, and lack confidence in using the internet. This group presents the biggest challenge for engagement.
Enthusiastic Adopters (19%): Hold overwhelmingly positive attitudes towards libraries and show the greatest potential for engagement. They are more likely to be women, not working full-time, graduates, and from higher socioeconomic backgrounds. This segment represents a prime opportunity for libraries to convert positive sentiment into active usage.
Understanding these segments can help libraries tailor their outreach and services to effectively address the needs and preferences of different groups.
Interventions to consider
Based on these findings, and workshops conducted by Ipsos with frontline library staff the report suggests three interventions for libraries to consider:
- Widening library reach through strategic social media engagement: This involves going beyond simply promoting existing library-specific social media channels and actively engaging with non-users on platforms they already frequent. This could include partnering with relevant organisations, participating in online communities, and creating content tailored to specific audience segments. The goal is to increase awareness of the library's diverse offerings and challenge outdated perceptions.
- Transforming libraries into vibrant community hubs by hosting partner services: By hosting services beyond typical library offerings, such as health clinics, early years programmes, or job fairs, this intervention seeks to increase library visibility and attract new audiences. This strategy also aims to help address the perception that library use is inconvenient by providing the opportunity for individuals to engage in multiple activities during a single visit.
- Reframing the library's value proposition to build resonance with non-users: This requires developing targeted messaging that emphasises the library's relevance in the digital age, highlighting benefits such as sustainability, cost savings, and community connection. By tailoring messaging to the values and priorities of different segments, libraries can demonstrate their personal relevance and encourage re-engagement.
These interventions would need to be tailored to specific audiences, local demographics, or segments where possible to facilitate implementation in practice. An implementation approach involving monitoring and adaptation would also be required.
The findings from this report commissioned by DCMS offer a wealth of insights for libraries seeking to re-engage non-users. By understanding the barriers that prevent people from using libraries, the services that could attract them back, and the distinct segments of non-users, libraries can develop targeted strategies for increasing engagement. As libraries continue to evolve in the digital age, these insights will be crucial in ensuring they remain vital community resources for years to come.
We would like to thank respondents and library staff for taking the time to share their experiences and views with us, helping us understand how to build future library engagement.
The full report can be found here and was published alongside a Written Ministerial Statement in the Houses of Parliament.
We will be hosting an online presentation of the results to Libraries Connected on Wednesday 20th August at 3:00pm. This presentation will provide an opportunity for library professionals to delve deeper into the research and explore how these insights can be applied to their own services and communities.
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