What works to engage library non-users
Source: gov.uk (2025-07-10)

Mixed mode research by IPSOS to examine the barriers and enablers of library engagement among non-users.

This report is a follow-up to Barriers to library use - qualitative research report (https://www.gov.uk/government/publications/barriers-to-library-use-qualitative-research-report), published in October 2024.

This report, commissioned by the Department for Culture, Media and Sport (DCMS), investigates why people in England aged 17 and over don’t use public libraries. It uses a mixed-methods approach, combining a large-scale online survey of 4,243 library non-users with workshops and surveys involving library staff and stakeholders.

Key findings

Prevalence of non-users

66% of the English population aged 17+ are library non-users (have not used a library in the past 12 months). A significant portion (44%) haven’t used a library in over three years.

Demographics of non-users
- Evenly split between male and female (50% each), unlike users who are predominantly female (58%).
- Slightly higher proportion of individuals aged 55+ (40%) compared to users (37%).
- More likely to be working full-time (49% vs. 40% of users).
- Less likely to hold a degree (28% vs. 39% of users).
- Less likely to be in the AB social grade (30% vs. 35% of users).
Awareness and perceptions
- 81% of non-users know their local library’s physical location and 85% find it easy to get there.
- However, 58% are unfamiliar with services beyond physical books, and only 16% are familiar with online services.
- Non-users generally hold positive views of libraries as community assets (83% agree), peaceful (77% agree), and welcoming (71% agree).
- Less certainty exists regarding practical aspects like opening hours and online services.
Barriers to engagement (COM-B Framework)
- Capability Barriers (Lack of Awareness): “Not knowing what services/activities are offered beyond loaning physical books” (MaxDiff score 53.1) is a significant barrier, especially for graduates and those in affluent areas.
- Opportunity Barriers (Accessibility): Inconvenient opening hours (MaxDiff score 41.6) is the most significant opportunity barrier, particularly for parents, full-time workers, and younger adults. Parking difficulties/cost, childcare responsibilities, and general transportation also play a role.
- “Being able to access similar resources and services elsewhere” (MaxDiff score 70.7) is the most significant barrier overall, especially for higher-income individuals and graduates.
- “Preferring to own physical books or other resources” (MaxDiff score 63.5) is also strong.
- Perceived irrelevance of libraries in the digital age (MaxDiff score 29.7) is a notable barrier, particularly for men and those confident with technology.
- The perception of libraries as “tired and worn” (MaxDiff score 18.6) affects engagement, especially among younger adults and ethnic minorities.
Enablers to engagement
- Comfortable and inviting spaces (38% of non-users), appealing particularly to younger people and women.
- Extended opening hours (35%), highly desired by those working full-time and graduates.
- Up-to-date book collections (34%), important to older adults, graduates, and higher-income individuals.
- Access to free Wi-Fi and digital kit (33%), particularly for young people and ethnic minorities.
- Dedicated work/study spaces (26%), with strong appeal among 17-24 year olds and graduates.
- Other services appealing to specific groups include social spaces (younger individuals), accessibility features and staff support (older adults), and family/children’s activities (parents).
Segmented view of non-users:

Five distinct segments were identified:
- The Armchair Supporters (24%): Positive sentiments, limited engagement due to practical barriers.
- Digital & Community Seekers (25%): Value libraries as community hubs, seek digital integration.
- The Disengaged (23%): Low awareness, lack of personal relevance.
- Dismissive Non-Users (9%): Deeply negative perceptions, strong resistance.
- The Enthusiastic Adopters (19%): Overwhelmingly positive attitudes, greatest potential for engagement.
Potential Interventions
- Widening reach through strategic social media engagement
- Transforming libraries into vibrant community hubs by hosting partner services
- Reframing the library’s value proposition with targeted messaging
The report concludes that a multi-faceted, tailored approach is needed to address the diverse needs of library non-users, with small-scale piloting recommended to assess intervention feasibility and impact.