Friends
of the Turnbull Library:

Library Merger Plan

see also

Government Plans Library Merger

The government has announced plans to merge the National Library, of which the Turnbull Library is part, into the Department of Internal Affairs. Following are relevant statements and extracts from an official paper relating to the plan.

(Please note that a public meeting to discuss the proposed merger is to be held at 6pm on Wednesday 2 June at Turnbull House, Bowen Street. A panel chaired by former Government Statistician Len Cook will lead the discussion.)

Public meeting critical of Library merger plan
Statement of the Committee of the Friends of the Turnbull
Statement by the Minister of State Services, 25/3/2010
Statement by the Minister of Internal Affairs, 25/3/2010
Relevant extracts from cabinet paper relating to the plan

Public meeting critical of Library merger plan

"This is a very bad idea", former Turnbull Library chief librarian Margaret Calder told a public meeting held on Wednesday 2 June to discuss the government's decision to merge the National Library, of which the Turnbull Library is part, as well as Archives New Zealand, into the Department of Internal Affairs.

She said her concern for the Turnbull Library also extends to the treatment of the National Library.

"This is not a decision made in consultation with archivists and librarians who know what goes on behind the scenes, who know what makes good information services. The dollars reportedly to be saved in the move are pathetic. How many times will the Library be restructured. Let's stop it!"

Margaret Calder was one of a panel of speakers who addressed the meeting chaired by former Government Statistician Len Cook.

Professor Lydia Wevers, inaugural chairperson of the Kaitiaki (Guardians) of the Turnbull Library, spoke of her long history with changes at the National Library. As a former chairperson also of the Trustees of the National Library, she said her focus in the present changes is on the Turnbull Library.

"There has been too much change," she said. "The Turnbull has always had an unsatisfactory structure. The 2003 National Library Act attempted to fix this. The Minister has assured us the Turnbull is safe but the Chief Librarian of the Turnbull is not the same as other managers. The arrangement could be more complicated when the National Library does not stand alone."

Her first concern was the poor understanding of the Alexander Turnbull Library as a research library, making it necessary for it to be policed by the Guardians. The professional capabilities of the staff were vital and specialised arrangements essential. The intellectual needs of the community had to be recognised.

Secondly, there was concern about the reporting lines under the merger plan and where the Chief Librarian stood in this. S/he should not be in the third tier. What does it say about us if we allow this?

Historian Malcolm McKinnon described the rationale of synergy in digitisation as ludicrous - digitisation is about process, not content.

"The status of the Turnbull Library is important for reaching out to other institutions internationally. The Alexander Turnbull Library is a taonga." He urged the meeting to make their views known at all levels.

Laurinda Thomas, spokesperson for the Library and Information Association of New Zealand Aotearoa, said there was no prior consultation with her organisation. "The National Librarian's role and job should not be compromised. What are described as minimal changes could have a big impact on the operation of libraries throughout New Zealand. The predicted efficiencies just don't exist."

Politicians who responded to the invitation to address the meeting were Gareth Hughes, Green Party list MP and Grant Robertson, Labour MP for Wellington Central. The Minister for the National Library, Nathan Guy, was unavailable, as was Te Ururoa Flavell, Maori Party.

Gareth Hughes spoke of optimism given the Tauranga community's rejection of the proposal to charge for all library books, with 1000 submissions made. In two months when the State Services Management Bill is introduced the Select Committee should be advised there is not enough evidence to justify the changes, which he considers are ideologically based.

He said "The reporting structure will have a negative effect and the savings of $166,000 a year do not make the changes worth while." The arguments for it, he said, "just don't stack up."

"The March Cabinet paper spoke of the National Library and Archives NZ as 'successful institutions', and to me it seems like a solution in search of a problem. I cannot find bodies that support the changes.

"We can do something about this. It is important to demonstrate the values of the institutions and their benefits to society."

Grant Robertson said the lumping together of these institutions under the general idea of "civic information" ignores the separate values and the different roles they carry out.

"It will compromise independence, seriously compromising important parts of the constitutional framework. There could be some shared services but this proposal is total structural change. In the March Cabinet paper, the National Librarian is clearly under the authority of the CEO of the department of Internal Affairs - let alone the Chief Librarian of the Turnbull Library.

"Submissions on the bill are essential," he said,"and should state the principles involved. Independence of the Library is a key factor."

Comments from the floor included:

Joanna Newman of ARANZ, who was told that the continuation of the separate financial votes for the National Library and Archives NZ is only pledged for the first year.

The Minister has said that arrangements can "change from time to time".

The interests of the numerous and nationwide donors to the Turnbull Library were stressed.

Merging with the diverse responsibilities of the Department of Internal Affairs would mean cumbersome administration. The hub/spoke model of the Department is under pressure already and the Department is ill prepared for the change, lacking the capacity. The National Library won't be a priority.

Reporting lines to Parliament are important and could be lost in the merger.

The Department of Internal Affairs manages censorship, a role at odds with the information access of the National Library and research functions of the Turnbull.

The Ministry of Heritage and Cultural Affairs would be a more suitable partner.

Archives have to be a Government Department. It is quite illogical to make the CEO of the National Library under the authority of the Department. Other models could be adopted as with Te Papa.

The chairman of the meeting, Len Cook, said that in the United Kingdom, National Archives are a Crown Agency and the National Archivist has a distinct identity. This is also the case with the British Library.

Statement by the Committee of the Friends of the Turnbull Library

The recent Government announcement on placing the National Library and National Archives within the Department of Internal Affairs has caused an outcry of protest.

The new National Library Act of 2003 was the result of strong representations to the Government to ensure the Turnbull collections would be held in perpetuity, and recognised that the electronic age demanded provision for digitisation of material, and copyright laws needed upgrading.

The position of the Chief Librarian of the Turnbull, as separate from the National Librarian, was assured, the collections were protected and the Guardians of the Turnbull were established, able to report to the Minister for the National Library.

Over the ninety years since they were open to the public, there has been growing awareness of the significance of the Turnbull collections to New Zealand, as our history becomes something to discover, to learn from, and to celebrate. The library is an important resource for moving in new directions, responding to the new demands of different media.

The National Library is a central institution for New Zealand history, culture and education. Librarians have been early adopters of computers and information technology and leaders in developing programmes and providing access to research materials through the internet and digital presentation.

Now the Government has announced yet another change, placing the National Library once again in the Internal Affairs Department and necessitating, we are told, 'minor changes' to the National Library Act. A rationale of efficiency and cost-saving and the demands of the digital age is cited.

The Friends of the Turnbull Library are not convinced that this will facilitate the proper functioning of the National Library and especially the Alexander Turnbull Library. We see the move as a very backward step and we will monitor the proposed changes to the Act very closely to ensure that the provisions for the Alexander Turnbull Library are retained in full.

Joining the National Library and Turnbull to Internal Affairs, with its multiplicity of responsibilities gives no confidence at all that the purpose and function of the Library will have adequate consideration in identity, management, budgeting and reporting. We cannot see there is a match between the Library's purposes and the role of digitisation in identity services, or passport provision in Internal Affairs. Expertise in digitisation is well advanced in the National Library and the Turnbull and there is little, if anything, to gain from the Internal Affairs merger.

We consider these changes will not have widespread public support. Professor Lydia Wevers, former chair of the Guardians, has written to the Minister to convey her concern.

We have urged our nationwide members to be alert to the situation and express their views in letters or emails to their Member of Parliament, to the Minister of State Services, Mr Tony Ryall, and to the Minister for the National Library, Mr Nathan Guy, with copies to the Prime Minister.

Rachel Underwood
President
April 2010

Statement by Minister of State Services

The government's decision was announced in the following statement released by the Minister of State Services on 25 March 2010:

State Services Minister Tony Ryall today announced changes to improve the efficiency and effectiveness of government agencies.

"We are looking to future-proof agencies during a time of increased restraint and rising public expectations of service delivery" said Mr Ryall. "Some agencies are going to need to work differently within their existing baselines to meet those expectations."

The Government has agreed to:

amalgamate the New Zealand Food Safety Authority back into the Ministry of Agriculture and Forestry;
amalgamate Archives New Zealand and the National Library into the Department of Internal Affairs, and
amalgamate the Foundation for Research Science and Technology into the Ministry of Research Science and Technology.

The package also includes non-structural changes to lift the performance of State sector agencies and ensure agencies are working together to strengthen cross sector arrangements.

"These changes are part of the Government's ongoing programme to reduce duplication and operational costs, and ensure we have stronger government agencies delivering better public services in the future."

"We are expecting to save up to an estimated $20 million over the next three years including a reduction in staff numbers of up to 55 full time jobs."

The State Services Minister said the changes will be coordinated and implemented over time with costs met from within existing baselines.

Statement by Minister of Internal Affairs

Internal Affairs Minister Nathan Guy has welcomed the proposed integration of the National Library and Archives New Zealand into the Department of Internal Affairs.

"As the responsible Minister for all three agencies I believe they share natural synergies. These organisations have a common focus on using digital technology and making government information widely accessible to citizens through the internet.

"Pooling expertise and resources while sharing back office costs will continue to enhance front line services for the public.

"The major roles and functions of the National Library and Archives New Zealand will not change and these important cultural institutions will continue to be trusted and preserved for future generations.

"The independence and integrity of the Chief Archivist, National Librarian and Chief Librarian will be preserved. As the responsible Minister I will continue to receive independent advice from the Archives Council, the Guardians of the Alexander Turnbull Library and the Library Information and Advisory Commission.

"The day after integration occurs, services and functions for the public will be the same as they were the day before.

"I want to acknowledge the staff who have continued to be very professional while this review has progressed," said Mr Guy.

Implementation plans will now be worked on by the relevant Chief Executives.

Cabinet paper relating to merger plan

Following is an extract (paragraphs 41-49) from the cabinet paper outlining the rationale for the merger plan relating to various state agencies incuding the National Library and Archives New Zealand:

Department of Internal Affairs, National Library and Archives New Zealand

41. Technology will play an increasing role in ensuring government discharges its responsibilities to manage information effectively and efficiently, and meet New Zealanders' expectations that they can access information in ways that suit them. Central to this is the need to exploit digital capability to manage information and effective stewardship of and access to information held within the online domain.

42. Each of these three agencies stores and provides information which is of particular value because it is gathered, verified, classified or organised by government for the present and future benefit of our people and nation. Examples are archives, collections of national cultural importance, identity records, publicly accessible datasets and government statistics. All three agencies are investing to deliver their information online, 24/7, to New Zealanders. Both Archives and National Library have significant digitalisation plans and bringing these departments together with DIA will support this development with less risk and cost. It will produce opportunities for the use of common capability, economies of scale, and transfers to frontline services through shared backroom services and better access for the public.

43. We have considered whether there are any risks involved in this proposal which would justify leaving either National Library or Archives New Zealand on a stand-alone basis. In the case of Archives New Zealand, officials have carefully considered whether, given its constitutional importance, the need to maintain the independence of the Chief Archivist necessitates retaining a separate Archives department. It is quite clear that continuing with a stand-alone Archives department is not necessary. Advice from Crown Law confirms this both in terms of public management principles and previous judicial rulings on the matter.

44. Department of Internal Affairs (DIA) has a pivotal role in providing information services. Through its responsibilities in Identity Services in particular, it is experienced in being the trusted custodian of New Zealanders' records and information. Recently, in July 2009, DIA successfully absorbed the Government Technology Services (GTS) functions and staff from the SSC. Through its role with GTS, DIA has the capability to bring enhanced technology to collecting, storing and preserving records and information, and enabling its reuse to bring forward new thoughts, ideas and economic opportunities.

45. It can be anticipated that this amalgamation will result in:

future-proofing of all these key skills and functions by placing them on a much larger corporate platform with ongoing viability in times of fiscal constraint;
lower corporate overheads (fewer senior managers and shared corporate services);
reduced collaboration transaction costs (less duplication and fewer agreements to manage and simpler funding arrangements);
improvement of current systems though the sharing of each agency's technologies and staff capabilities.

46. DIA estimates that efficiencies in ICT functions and elimination of back-office duplication would over three years deliver financial efficiencies of $3-9 million. Oneoff transition costs are estimated at $2.5 million in the first year, to be managed within baselines. Initial estimates are that the change would reduce FTE staff numbers by at least 15.

47. Risks have been considered and can be mitigated. We are conscious that stakeholders are likely to express concerns that specialist services and skills in the separate departments would be lost. While Archives New Zealand and the National Library are currently well regarded and successful institutions, the prospective role of an enlarged DIA is not as well understood. Officials consider that good change management and communications can mitigate these risks. Stakeholder concerns could include a view that the Chief Archivist's independence or archival practice would be undermined, or that the separate status of the Alexander Turnbull Library would be threatened. This risk can be mitigated by retaining, with only necessary minor amendments, the legislative provisions which currently set out the role and powers of Chief Archivist and National Librarian, together with associated bodies such as the Archives Council. However, it is unlikely that mitigation of risk in these ways will allay a level of publicly expressed concern.

48. In terms of the Machinery of Government Objectives, outlined in paragraph 13, this proposal:

will help 'futureproof' the functions of the two smaller agencies through their location within a much bigger and therefore more sustainable organisational structure;
is positive in terms of financial efficiencies;
will improve effectiveness by bringing together key skills and consolidating resources in the information and ICT fields.

49. The chief executive of the National Library does not support this proposal and instead favours an amalgamation of National Library and Archives NZ as a prelude to consideration of more extensive amalgamation of agencies not centred on the Department of Internal Affairs.

Friends of the Turnbull Library:Library Merger Plansee also