United Nations Public Service Awards Case Studies

In a democracy, accessibility to library services is essential since literacy and access to information are basic conditions for participation in the democratic process.

The Umeå Region is a functional region, which is to say that it is one labour market where we work, live and spend our time. Around 5 000 people commute each day to and from jobs and homes. It takes a maximum of 45 minutes by car from Umeå to the other municipal centres. The region have a population of 140 000 inhabitants with an average age of 37 years, 29 000 students at two universities and 5 000 college students.

Problems to tackle were an increasing strain on the economic situation for the municipalities, new forms of communication were/are on the horizon; and the library's system was incomprehensible for most people who did not work there. The strained budget of the municipalities and the call for keeping the municipal budget balanced resulted in the closing-down of the bookmobile in three of the municipalities in 1997.

Trends and conditions:
The libraries in the Umea region are very popular. The public library in Umeå has more visitors than the national Vasa Museum in Stockholm. We use to compare ourselves with the local ice hockey team and say that we have home match each day (2 500 – 3 000 visitors each day) and it is never “sold out”.

Not only borrowing – not only books: The role of the library as a meeting place becomes increasingly important. Printed books are only part of the library’s selection. New technology stimulates the demand for new services that in turn require adaptation and varied selections.

More who study – more visitors who are unaccustomed to libraries: This leads to more questions that require more guidance. At the same time, we are forced to ascertain that accessibility can be improved.

Difficult to manage / finance increased in volume and development with unchanged or reduced resources

Which social groups were affected?
Library borrowers in general and the disabled in particular.

What is the initiative about? (the solution)
We have a greater wealth of books than before. Today, the inhabitants of the Umeå region can borrow from a total stock of 1 million books. Thanks to the single library card, a visitor can borrow and return items at any of the libraries in the region. Thus, cooperation in the Umeå region has given the participating municipalities a considerable increase in book stock without having to purchase a single book. We can offer a higher level of service. The total book stock makes it easy to make reservations, borrow and return books. A total of 94% of the inhabitants of the region are positive to this. A higher level of service has been achieved at very little cost. Accessibility has been increased. The web site has been designed so that the disabled have increased accessibility to the libraries. All citizens have been given the opportunity to reserve and borrow books, as well as to download e-books, music and films from the Web. Borrowers can manage a great deal without even leaving their home. We have promoted technological development. In cooperation with the Umeå Institute of Design, Umeå University, we have developed prototypes for navigation with a handheld computer, as well as sign design, tactile maps. AudioIndex, the talking library has become a commercial product, launched 2007. We have supported the interchange of technical experience. Three of the municipalities previously used the library system LIBRA II. The supplier decided to discontinue the system in 2002. A new system and new servers were to have been purchased. The cost alone for the servers would have been about EUR 15 000 per municipality, not including the labour and conversion costs. Cooperation in the Umeå region has lower costs as a result of a joint start-up, the procurement of servers, licences, conversion costs, etc. The other three municipalities already used LIBRA III, but cooperation in the Umeå region has still led to lower costs for these municipalities thanks to the sharing of servers and a higher level of service. The alternative had been to make their existing servers bigger, which would have cost around EUR 7 900. We have practiced streamlining and large scale benefits. In order to administer and operate a system with great demands for reliability and accessibility many measures are required such as shell protection, fire-protection, and protection against unauthorized access to computer systems, such as physical data security, as well as security breaches to the website. Results of cooperation in the Umeå region: costs are divided among more parties, the possibility of an improved bargaining position increases thereby providing leverage for better terms, and information about new books only needs to be entered into the catalogue one time instead of six. We have improved the level of protection. To achieve an adequate level of protection for classified information three municipalities would have had to improve their alarm, fire-protection, code locks, for an estimated cost of EUR 10 500 each if there had not been a joint action.

Who proposed the solution, who implemented it and who were the stakeholders?
One of the fundamental considerations for the Umeå region is that cooperation must be advantageous for each municipality. As early as 1993, politicians made the first declaration of intent about cooperation that would contribute to development that benefits everyone, renewal of municipal services and streamlining municipal departments. The climate of cooperation should be characterized by mutual trust and continuous exchanges of experience and knowledge between local government officers and politicians. 1999 the libraries were assigned a forward-looking political task; conduct a pilot study and include the following: • Describe and make a survey of the prerequisites for development through cooperation • Make use to technological developments • Cope with volume increases • Reduce costs and/or improve quality • Offer greater freedom of choice • Increase accessibility • Strengthen all the libraries (accessibility, quality, diversity) The heads of the public libraries in the Umeå region formed a steering group. A winning way of working was that all the municipalities, regardless of size, have had a vote in the steering group (like the Three Musketeers; one for all and all for one). A successful approach was the different working groups for joint work routines, where each group had representatives from each of the six municipalities. In our library cooperation we say that it is important to stand firmly on two feet. One foot for “daily routines” that moves to implement quick, concrete and problem solving results. Another foot of “dreams” that takes steps in a more long-term perspective with innovative development that arouses the interest of others, regionally, national and internationally. The innovative technological solutions are the result of leading-edge research at the Institute of Design at Umeå University. One example is AudioIndex where intended users have been involved throughout the entire development process, with everything from specifications to the design of the product and services.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
One objective for the Umeå Region is “renewal of municipal services”. The libraries have responded with new products and services that create renewal of public library services and increase the accessibility for the borrowers in general and the disabled in particular so that everyone can use the libraries on equal terms. One initiative is AudioIndex – the talking library. AudioIndex provides the visually impaired with opportunities to benefit from library services and the range of talking books. When a library user indicates a book using a pointing device, information about it is read out via the user’s headset. The system can also provide services such as help with orientation, information about events and book tips. AudioIndex is based on RFID technology which means that electronic “tags” equipped with chips is placed on the spines of the books. They are read using a pointing device from a distance of a few centimetres. Information about a particular book is retrieved from a database and converted to speech that is read out via the headset. The new joint library web site, www.minabibliotek.se, was launched in 2007 and is regarded by many as an answer to the Library 2.0 concept model. The objectives were: • The library is an accessible virtual meeting place that is in harmony with the library’s basic tasks of supplying culture and providing information. These tasks are predicated on the idea that everyone is equally entitled to cultural experiences and information. • The web site makes the facilities and services of the library visible and makes them more accessible. • The web site produces added value for the visitors. • The web site meets the needs of children and young people as regards library services. Minabibliotek.se is being developed with the following catchwords: • Innovative = innovation geared to people’s needs, desires, behaviour. • Intuitive = high accessibility and adapted to different target groups. • Informative = provide answers to questions and offer services that are requested. • Interactive = serves as a virtual meeting place, that is to say a place where people can log in and exchange views. As regards the objective ”more efficient administration” the libraries contribute with lower costs for example joint start-ups, purchasing of servers, licences, conversion costs, improved negotiating positions, joint procurement of books, library card, plastic bags (greater volume – lower costs) Approved level of protection is one example of how the libraries contribute to the objective improved quality. Three municipalities improved alarms, fire protection, code locks. Another example is the smallest municipality with only 2 500 inhabitants who increased the book stock from 50 000 to 1 million books. We have regular transports between all the libraries and can provide greater opportunities for in-service training even in smaller municipalities.

b. What were the key development and implementation steps and the chronology? No more than 500 words
We started by developing a common infrastructure that would be the prerequisite and foundation for long-term and sustainable future cooperation:  Joint regional server  Joint library data system  Conversion and matching of four different catalogues into one  Joint library catalogue  Single library card  Joint rules and routines  Training of staff  Joint agreements It has taken a great deal of time to make joint rules since the different municipalities have had different working cultures and customs. We believe that it is important for consensus, understanding and acceptance of the rules that we each have and that is why we have fostered broad participation in the process. We have formed working groups from all the municipalities and types of libraries. Some of the tasks have been to identify the rules and routines that should be common for all. The work has included making a survey and compiling the data; making suggestions and circulating them for comment; making evaluations and new suggestions; and making decisions in the steering group. The joint borrowers’ register caused some problems. In Sweden, the municipalities cannot link and match computer files. We asked ourselves: Can the staff in one municipality handle information regarding borrowing in another municipality without breaking the law? Currently there is no precedent and after consulting lawyers the decision was made that if the information on the library card, borrowing rules and regulations, etc. is sufficiently clear it means that the signer of the library card agrees with the condition that the information will be used in the joint borrowers’ register. It is important that the staff members are aware of the confidentiality of data. All staff members must sign a declaration that they are bound by professional secrecy. The joint library catalogue is the hub of the cooperation. With few exceptions there is a free flow of media among all the libraries in the Umea region. There are regular bi-weekly transports with the main library. During the year 2005, 1.5 % of the book collection was borrowed from another municipality than the owning one (in total 20,000 books). The smaller libraries had an even higher percentage, which was up to 10 %. The Umeå Public Library, which is the public library with the largest book stock, had 0.4 %. As a subproject in Library 2007 and in collaboration with the Institute of Design, Umeå University, we have developed a unique and revolutionary aid for the visually impaired. The idea was chosen by the Royal Swedish Academy of Engineering Sciences (IVA) to be presented to Her Majesty, the Queen of Sweden at a seminar in 2004. Now the idea has become a commercial product that every library can purchase. The library cooperation in the Umeåregion is unique, no where else have municipal libraries worked together in such a firmly established and stable network. Cooperation continues. 2007 we make use of the means of integrating functions in the joint library catalogue with new, web-based functions.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
Main obstacles 1. In the beginning there was a certain degree of scepticism (a fear that Umeå would take over and the smaller public municipal libraries would become some kind of branch libraries). 2. Financing the results within the operating budget. 3. A single library card also required a joint library register. Since a municipality has the same standing as a public authority, registers cannot be linked and matched without government approval. How they were overcome 1. A winning way of working is that all the municipalities, regardless of size, have a vote in the steering group (like the Three Musketeers; one for all and all for one). 2. We use the financing model for sharing costs in the Umeå region; 15% of the expenses are divided equally and the remaining 85% are divided according to size 3. The solution was to write the following text on the back of the library card: “I accept the Umeå region’s rules for loaning and that which I borrow is registered in the common library system. This means that information that is covered by the Official Secrets Act is at the disposal of the libraries in the Umeå region. Library personnel are subject to the rules of professional secrecy.“ In this way it was possible to cope with the Personal Information Law and the Official Secrets Act.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Financial resources: EUR 1.1 million (EU structural funds: EUR 550 000, participating municipalities EUR 400 000, The Swedish National Council for Cultural Affairs: EUR 105 000, County Labour Board: EUR 22 000, Umeå University, and two of Sweden's leading library service companies; Axiell AB and Bibliotekstjänst AB). Mobilization of resources. In 1999 the County Administrative Boards were offered the opportunity to draw up region growth agreements. The objective was to support cooperation with trade and industry, municipalities, county councils and universities. The analysis we made was that culture is important for how we experience our living environment. There is also an acknowledged connection between culture and growth. Our knowledge of the situation in the municipalities provided a picture that the libraries are the foundation of the cultural life of the municipalities. By means of the growth agreement the cooperation lead to an application for the EU’s Structural funds (Objective 1). In total, the budget has amounted to EUR 1.1 million during a 6-year period, funds that could be used for library development.

Is the initiative sustainable and transferable?
Financial sustainability. The results are implemented into normal operation and budget processes. The financing of the joint action has been done according to a financing model where 15% of the expenses are divided equally and the remaining 85% are divided according to size (for example, Bjurholm's population 2 600 - 2 % and Umeå's population 110 000 - 78 %). Cultural sustainability. The way of working, that focuses on mutual issues and opportunities, can be practised in almost all activities (not only libraries). The library cooperation model can be used in other public libraries. The web site minabibliotek.se has contributed to the fact that today we have the first standard product based on the Library 2.0 concept model which can be purchased by other libraries. Institutional sustainability. Cooperation and regularly scheduled meetings have become normal for the municipalities concerned. New ideas about joint efforts will continue to flourish. Those responsible for the libraries meet every sixth week to coordinate joint issues and activities. They exchange budget documentation prior to budget and activity planning. Other working groups that meet regularly are the catalogue group and the Web group. Umeå is the system owner and have a written agreement with the other municipalities. Joint ownership should be regulated in the agreement as well as responsibility for operation and support, budget, steering, liability according to the Personal Information Law, changes, termination notice, etc. ‘Infrastructure’ for continued development. A joint service and support organization with technical support during opening hours. Joint rules, routines and quality declarations. A single library card, or actually two: one for children and one for adults. This provides an opportunity to inform adults about the responsibility they have with library loans (late fee charges and lost book fees). Replicated nationally. The other municipalities in the county of Vasterbotten has been inspired to do almost the same. Many representatives from libraries all over Sweden come and visit us to study our working methods. Recoignized by several International Awards. European Public Sector Award 2007 / Innovative award in the category Collaborative Governance. The criteria for winning the prize were:  Innovation  Concept quality and strategy  Implementation and degree of maturity  Benefits and value-added  Transferabiblity  Value retention and value orientation  Sustainability The libraries were recognized especially for their new ways of integrating the visually impaired into the community. Innovative Cultural Activity of the Years 2006 and 2007 by the Union of Baltic Cities. The criteria for winning the prize were:  have influenced the cultural life of the city in a remarkable way  have influenced the image of the city in a positive way  have strengthened the identity of the city  have raised the awareness of cultural values of life The Baltic Challenge Award 2006. Selected finalist. A competition for innovative Information and Communication Technology solutions and applications in public administrations, facilitating daily life for citizens and customers. The award aims to strengthen user-driven development and implementation of ICT solutions, promoting sustainable.

What are the impact of your initiative and the lessons learned?
Lessons learned: If there is a willingness to cooperate, then most of the problems will be resolved. Look for cooperation and involve people with different skills in order to gain a broader perspective. Key elements that made our initiative a success. A clear and future-oriented political mandate, a strong connection to overall goals, a desire to cooperate that focused on opportunities, a balance between the workday and visions. We involved other skills and used innovations, a professional project management; unified, supporting and efficient work groups; Umeå’s respect for smaller municipalities and the other municipalities’ confidence in Umeå; and last but not least a gradual transfer of responsibility to normal operation.


Institution Name:		City of Umeå
Institution Type:		Public Organization
Contact Person:		Inger Edebro Sikström
Title:		Head of Public Libraries
Telephone/ Fax:		+46 90 16 33 77
Institution's / Project's Website:		+46 90 77 08 23
E-mail:		inger.edebro.sikstrom@umea.se
Address:		Umeå kommun, Stadsbiblioteket
Postal Code:		SE-901 78
City:		Umeå
State/Province:		Västerbotten
Country:		Sweden

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information