Appendix 2 - Options Appraisal
Perth and Kinross Council · 17 June 2026
Back to Perth and Kinross Council — 17 June 2026 and its agenda
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Reviewing Options for Future of Library Services - Options Appraisal Appendix 2 FUTURE OF LIBRARY SERVICES OPTION APPRAISAL The table below provides a description of all options including savings, staffing reduction, key risks and benefits. The following section provides the appraisal methodology and the option appraisal itself leading to the identification of the preferred option. Option Description Savings Staffing Reduction Key Risks Key Benefits 1 Do Nothing Retain current levels of service provision. NIL Would require recurring funding (approximately £375,000 and annual pay award/inflation increase). NIL • Requires commitment to ongoing funding and annual inflation increases beyond current funding period 1 April 2027. • Does not address Estate Strategy. • Maintains statutory provision within definition of adequate. • Maintains support for city, town and village centres through footfall, culture and heritage offer. • Maintains skills and lifelong learning opportunities. 2 Continue Investment in Library Services through a Community Services Hub Model This option proposes sustained investment in library services by reshaping libraries as multi-purpose Community Service Hubs. Under this model, library provision is integrated with wider NIL Would require recurring funding (approximately £375,000 and annual pay award/inflation increase). NIL • Requires commitment to ongoing funding and annual inflation increases beyond current funding period 1 April 2027. • Benefits realised over the medium term rather than immediately. • Requires strong governance and partnership coordination. • Maintains statutory adequacy of library provision. • Protects and strengthens town and rural libraries. • Aligns libraries with preventative spend, wellbeing and place- based priorities. • Supports town centres, tourism and community resilience. • Responds directly to community feedback
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits wellbeing, tourism, cultural and community services, with delivery adapted to reflect local scale, role and need across Perth city, towns and rural settlements. Key Elements of the Option 1. Locality-Based Community Services Hubs • Libraries operate as locally tailored hubs responding to community needs and opportunities. • Increased co- location and partnership working with wellbeing, advice, cultural, tourism and community partners. • More flexible use of space to support events, learning, creative activity, outreach and community-led initiatives. favouring enhancement over reduction of services. • Potential for additional income and external funding through expanded hub activity. • Supports long-term sustainability of the library network without closures. • Strong alignment with Council priorities on prevention, inclusive growth and place. • Offers a positive alternative to service reduction options. • Provides a scalable model capable of adapting over time as demand changes.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits 2. Differentiated Local Models • Perth City (AK Bell Library and North Inch): Retain their role as the principal city libraries and information resource • Town Libraries: Strengthen their role within town centres, supporting wellbeing, cultural activity, visitor information and local economic vitality. • Rural Libraries and Mobile Services: Prioritise access, outreach, digital support and partnership delivery to maintain services in smaller settlements. 3. Partnership and External Funding
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits • Expand partnership- based delivery with Health and Social Care Partnership, NHS, third sector organisations, cultural bodies and tourism partners. • Increase opportunities to secure grant funding, sponsorship and income linked to wellbeing, culture and place-based programmes. 3 Integrate Public and School Library Provision Relocating to schools or other buildings and reducing number of dedicated Library buildings (applies to Alyth, Comrie, Pitlochry, Blairgowrie, Scone, Auchterarder. No immediate savings – also requires capital and revenue investment to achieve moves. NIL Staffing resource still required to deliver services on another site. • Significant costs of change (capital spend to cover adaptation/build and revenue costs. Pitlochry Library is costing approximately £500,000). • Would require the same ongoing commitment to additional funding as maintaining existing service sites. • Combined services work best in Secondary environments due to mix of public and pupils – only Blairgowrie and • Maintains statutory provision within definition of adequate. • Potential to move to co- location over time, reducing Perth and Kinross Council Estate.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits Auchterarder offer this opportunity. • Achievement of moves depends on capital investment to adapt accommodation to make it suitable for public use. • No available accommodation within existing schools to host public library provision without significant capital investment. • Timescales will extend existing arrangements beyond current funding period. 4 All Library Services Transfer to Direct Control of Perth and Kinross Council NIL – Significant additional costs to Perth and Kinross Council through loss of Non-Domestic Rates (NDR) savings. NIL • Loss of NDR Savings £400k per annum (£221k for 4 Campus Libraries alone). Currently being reviewed by Tayside Assessor. • Increases Perth and Kinross Council headcount and staff costs liability. • Limited expertise in the strategic development of services. • Doesn’t recognise the positive relationship between Perth and Kinross Council and Culture Perth and Kinross – including performance against KPI’s. Gives Perth and Kinross Council direct control of service provision.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits • Leaves Culture Perth and Kinross with only Museum and Gallery Services triggering a possible review. 5 Reduce Opening Hours Reduce opening Hours at Scone, Auchterarder and Hub Libraries by the equivalent of 1 day per week. This may not mean a full day closure but a reduction over the week equivalent to 1 day. Culture Perth and Kinross Savings £195,295 One off Costs of Change (Est.) Redundancy: £97,500.00. Strain on Pension: £159,000. 5.35 FTE • There is a risk that further funding cuts to Culture Perth and Kinross mean that this is revisited quickly. • Does not reduce Council estate. • There will be one-off costs of change including potential redundancy and strain on pension fund costs. • Reduction in school library service to Kinross HS, Crieff HS, Breadalbane Academy and St Johns RC HS. 3 days service rather than 4. • Reduced support for city, town and village centres through footfall, culture and heritage offer. • Protects rural community services whilst achieving savings. • Maintains statutory provision within definition of adequate. • Enables consultation on pattern of reduced opening hours to reflect local community needs. • Does not leave vacant buildings for Perth and Kinross Council to dispose of. • Options for staff to reduce working hours rather than face redundancy. 6 Reduce Opening Hours and Consolidate Perth City Library services. As above but additionally closing North Inch Public service, retaining school services Tuesday-Friday only. Culture Perth and Kinross Savings: £218,599 One off Costs of Change (Est.) Redundancy: £109,000. Strain on Pension: 7.04FTE • There is a risk that further funding cut to Culture Perth and Kinross mean that this is revisited quickly. • Does not reduce Council estate. • There will be one-off costs of change including potential redundancy and strain on pension fund costs. • Protects rural community services whilst achieving savings. • Maintains Statutory provision within definition of adequate. • Enables consultation on pattern of reduced opening hours to reflect local community needs.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits £ 177,753.85. • Reduction in school library service to Kinross HS, Crieff HS, Breadalbane Academy and St Johns RC HS. 3 days service rather than 4. • The housing around the North Inch Campus is a key locality area. Closing this community facility reduced services on offer. • Reduced support for town and village centres through footfall, culture and heritage offer. • Reduces skills and lifelong learning opportunities, particularly in geographical area around North Inch Campus. • Does not leave vacant buildings for Perth and Kinross Council to dispose of. • Options for staff to reduce working hours rather than face redundancy. 7 Retain 5 Hub Libraries and Close all Remaining Libraries Closure of Scone, Auchterarder, Comrie, Birnam, Pitlochry, Alyth, North Inch Libraries (retaining North Inch School Library). Culture Perth and Kinross savings: £280,503 Perth and Kinross Council savings: £36,701.15 One off costs of change (Est.) Redundancy: £140,000. 6.7FTE • Will incur NDR costs until properties can be disposed of. • Likely to face national challenge/judicial review. • Poses further financial risk to Birnam Arts. • Already rejected by Council and likely to face further significant community challenge. • There will be one-off costs of change including potential redundancy and strain on pension fund costs. • Reduces Council estate although leaves vacant properties for disposal or reuse. However, does potentially transfer the NDR costs on vacant buildings to the Council. • Achieves significant savings.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits Strain on Pension: £ 228,307.69. • Impacts on Primary School access to library resources. (e.g. RDM has no school library so relies on Scone). • Reduces support for city, town and village centres through footfall, culture and heritage offer in areas affected by closures. • Reduces skills and lifelong learning opportunities in areas affected by closures. 8 Retain 5 Hub Libraries on Reduced Opening Hours and Close all Remaining Libraries. As above closing all Libraries other than the Hub Libraries and additionally reducing the opening hours of those Hub Libraries. CPK Savings: £430,200 PKC Savings: £36,701.15 One off Costs of Change (Est.) Redundancy: £215,000. Strain on Pension: £350,615.38. 10.7 FTE • Unlikely to meet definition of ‘adequate provision for the population’ so risk of national challenge/Judicial review. • Will incur NDR costs until properties can be disposed of. • Poses further financial risk to Birnam Arts. • Already rejected by Council and likely to face further significant community challenge. • There will be one-off costs of change including potential redundancy and strain on pension fund costs. • Impacts on Primary School access to library resources. (e.g. RDM has no school library so relies on Scone) • Reduces Council estate although leaves vacant properties for disposal or reuse. However, does potentially transfer the NDR costs on vacant buildings to the Council. • Achieves significant savings.
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Reviewing Options for Future of Library Services - Options Appraisal Option Description Savings Staffing Reduction Key Risks Key Benefits • Reduces support for city, town and village centres through footfall, culture and heritage offer in areas affected by closures. • Reduces skills and lifelong learning opportunities in areas affected by closures.
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Reviewing Options for Future of Library Services - Options Appraisal Appraisal Methodology Options have been assessed against five core criteria aligned to statutory duties and Council priorities: Criterion Description Weighting Statutory Compliance Ability to meet the requirement to provide an “adequate” library service 25% Financial Sustainability Affordability over the medium–long term, including recurring costs and savings 25% Community Impact & Equality of Access Impact on access, inequalities, and community outcomes 20% Deliverability & Risk Practicality of implementation, including cost of change and operational risk 15% Strategic Alignment & Long-Term Value Alignment with Council priorities (prevention, place, inclusive growth) 15% Scoring Scale Each option is scored on a scale of 1 to 5: • 5 = Very Strong • 4 = Strong • 3 = Moderate • 2 = Weak • 1 = Very Weak
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Reviewing Options for Future of Library Services - Options Appraisal Detailed Appraisal Matrix Option Statutory (25%) Financial (25%) Community (20%) Deliverability (15%) Strategic (15%) Weighted Score / 5 1. Do Nothing 5 2 4 5 2 3.40 2. Community Services Hub Model 5 3 5 4 5 4.35 3. Integrate with Schools 4 2 3 2 3 2.85 4. Transfer to PKC 4 1 3 3 2 2.45 5. Reduce Opening Hours 4 3 2 4 2 3.00 6. Reduce Hours + Consolidate Perth 3 3 2 3 2 2.55 7. Retain 5 Hubs, Close Rest 2 4 1 2 2 2.35 8. Retain 5 Hubs + Reduced Hours 1 5 1 2 2 2.10 The scoring reflects a consistent and evidence-based assessment of each option.
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Reviewing Options for Future of Library Services - Options Appraisal Headline Interpretation Option 2 – Community Services Hub Model (Score: 4.35 / 5) • Highest scoring option overall • Performs strongly across: o statutory compliance o community impact o strategic alignment • Moderate financial pressure, but balanced by: o long-term value o transformation potential This is the preferred option Score Rationale Criterion Score Justification Statutory 5 Maintains a full network and aligns strongly with SLIC principles (literacy, access, wellbeing, culture). No reduction in provision Financial 3 Requires ongoing £375k but avoids costs of closures, redundancy, and legal challenge. No immediate savings, but potential for longer-term sustainability. Community 5 Protects access across all geographies, responds to consultation feedback, and builds on strong community engagement. Deliverability 4 Achievable using existing estate and staff, but requires programme management and partnership coordination. Strategic 5 Direct alignment with prevention, place-based delivery, and inclusive growth priorities Option 1 – Do Nothing (Score: 3.40 / 5) • Strong on statutory compliance and deliverability • However:
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Reviewing Options for Future of Library Services - Options Appraisal o financially unsustainable o weak strategic fit Not viable long-term Score Rationale Criterion Score Justification Statutory 5 Fully compliant; maintains all services Financial 2 Requires ongoing funding with no transformation or efficiencies Community 4 Maintains access but does not improve outcomes Deliverability 5 No change required – very low risk Strategic 2 Does not support transformation or long-term sustainability Option 5 – Reduce Opening Hours (Score: 3.00 / 5) • Moderate financial benefit • Retains statutory compliance • But: o negative impact on access and outcomes o limited strategic value Short-term mitigation only Score Rationale Criterion Score Justification Statutory 4 Likely remains “adequate”, but reduced access creates risk
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Reviewing Options for Future of Library Services - Options Appraisal Criterion Score Justification Financial 3 Generates moderate savings (~£195k), but offset by one-off costs Community 2 Reduces access, particularly for schools and vulnerable users Deliverability 4 Relatively straightforward to implement Strategic 2 Does not support transformation or prevention agenda Options 3, 4, 6 (Scores: 2.45–2.85) • Mixed performance • Key issues: o high capital cost (Option 3) o loss of financial benefits (Option 4) o adverse community impacts (Option 6) Not preferred Score Rationale Option 3 – Integrate with Schools (Score: 2.85) Criterion Score Justification Statutory 4 Potentially compliant, but access constraints may emerge Financial 2 Requires capital investment and delivers no short- term savings Community 3 Mixed – potential co-location benefits but reduced accessibility Deliverability 2 Complex; dependent on school capacity and capital funding Strategic 3 Partial alignment but limited scalability
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Reviewing Options for Future of Library Services - Options Appraisal Score rationale Option 6 – Reduce Hours + Consolidate Perth (Score: 2.55) Criterion Score Justification Statutory 3 Increased risk due to closure of North Inch Financial 3 Additional savings vs Option 5 but still modest Community 2 Disproportionate impact on higher-need area Deliverability 3 More complex than Option 5 due to closure element Strategic 2 Reduces access; weak alignment with prevention agenda Score rationale Option 4 – Transfer to PKC (Score: 2.45) Criterion Score Justification Statutory 4 Likely compliant Financial 1 Loss of ~£400k NDR relief creates significant additional cost Community 3 Neutral impact on access Deliverability 3 Operationally feasible but requires organisational restructuring Strategic 2 Weak alignment with current partnership model Options 7 & 8 (Scores: 2.10–2.35) • Highest financial savings • However: o significant statutory risk o major negative community impact o high likelihood of challenge
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Reviewing Options for Future of Library Services - Options Appraisal Not acceptable options Score Rationale Option 7 – Retain 5 Hubs, Close Rest (Score: 2.35) Criterion Score Justification Statutory 2 High risk of failing “adequate” provision Financial 4 Generates significant savings Community 1 Major reduction in access; strong negative impact Deliverability 2 High risk of challenge and implementation complexity Strategic 2 Contradicts inclusion and place-based priorities Score Rationale Option 8 – 5 Hubs + Reduced Hours (Score: 2.10) Criterion Score Justification Statutory 1 Likely fails adequacy test Financial 5 Highest savings Community 1 Severe impact on access and outcomes Deliverability 2 High risk of legal/community challenge Strategic 2 Fundamentally misaligned with Council priorities Conclusion The weighted appraisal indicates that: Option 2 achieves the highest overall score because it balances statutory compliance, financial sustainability, community impact and long-term strategic value. While requiring continued investment, it: • avoids the legal and reputational risks of service reduction
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Reviewing Options for Future of Library Services - Options Appraisal • supports prevention and place-based delivery • provides the strongest platform for long-term transformation Lower-scoring options either fail to meet statutory expectations, have unacceptable community impacts, or do not provide a sustainable long-term solution.