Era of 1,300 Public Libraries Approaches... But Fewer Readers? [More Libraries, Fewer Readers]

1,296 Libraries Last Year, 59 More Planned This Year
Need for Cohesive Programs Like "Reading Clubs"

The number of public libraries nationwide is expected to surpass 1,300 for the first time this year. As annual visitor numbers continue to rise, the cumulative yearly total is gradually approaching 280 million, the level recorded before the COVID-19 pandemic. However, there are concerns that this quantitative expansion of libraries is not leading to an increase in the reading population, highlighting the need for more sophisticated policy approaches.

According to the Ministry of Culture, Sports and Tourism and the National Library Statistics System on April 22, the number of public libraries across the country stood at 1,296 as of last year. This year, 59 new libraries are scheduled to open?nearly double the average annual increase of about 30?bringing the total to an expected 1,355 by the end of the year. When statistics began to be compiled in 2007, there were only 600 libraries, meaning the number has more than doubled in 17 years.

The number of visitors has also been increasing. In 2007, there were 186 million visitors, which rose to 278 million in 2019. Although visitor numbers plummeted during the COVID-19 pandemic, they have been recovering since, gradually returning to pre-pandemic levels. In 2021, the number of visitors was 138 million, which increased to 175 million in 2022, 202 million in 2023, and reached 224 million last year. This represents an increase of about 21 million, or 11%, compared to the previous year.

However, the annual number of visitors per library has actually been declining. In 2007, the average annual number of visitors per library was 310,000, but this fell to 250,000 in 2019 and dropped further to the 150,000 range in 2023. This indicates that the pace of library expansion is outstripping the growth in visitor numbers. In fact, the visitor growth rate has slowed from 55% in 2021 to 26% in 2022, 15% in 2023, and just 11% this year.

The reality that the increase in the number of libraries is not translating into a rise in the number of readers is also reflected in the national reading rate. The national reading rate, which was 70% in 2007, fell to 43% in 2023. This means that less than half of the population read at least one print book, e-book, or audiobook in the past year. While it is difficult to directly compare library usage rates and reading rates, experts point out that the criteria for counting library visits often involve duplication, and actual usage rates may be lower than the statistics suggest.

Compared to major countries overseas, South Korea's library accessibility remains relatively low. As of 2023, the number of libraries stood at 9,238 in the United States, 6,780 in Germany, and 3,310 in Japan, while South Korea had 1,271, putting it at a disadvantage in terms of libraries per capita. The number of users per library in South Korea is about 40,000, which is higher than in the United States (36,000), Japan (38,000), and Germany (12,000). This is why there is a growing call for libraries to shift from simple numerical expansion to becoming 'complex cultural spaces' that reflect regional characteristics and community needs.

Experts emphasize the need to move beyond simply expanding space and to reconfigure libraries as regionally tailored cultural platforms. Jang Eunsoo, a publishing culture critic, stated, "The polarization of reading is deepening, with those who read books reading even more and those who do not read avoiding books altogether," adding, "There needs to be a policy framework that helps 'occasional readers,' who visit libraries out of curiosity, become consistent book lovers when new libraries open."

Rather than relying on traditional reading campaign-based policies, experts propose cohesive programs such as the operation of reading clubs as an alternative. Jang argued, "Simply displaying books and telling people to 'read' is ineffective," and suggested, "Each librarian should run a reading club, and this should be reflected in their performance evaluations."

An Chansu, executive director of the Book Reading Society Cultural Foundation, also commented, "Some may say there are enough public libraries, but compared to the government's budget of 700 trillion won, cultural policy still takes a back seat," adding, "Practical projects such as running reading clubs require sufficient budget and personnel support."

However, even the budget for library construction is on the decline, making it difficult to strengthen internal programs such as reading clubs. This year, the budget under the fourth Comprehensive Library Development Plan is 846.1 billion won, down 79.4 billion won (8%) from the previous year, and is expected to decrease further to 766.4 billion won by 2028.

An official from the Ministry of Culture, Sports and Tourism stated, "It is true that the overall budget is decreasing," explaining, "Since 2023, the subsidy for (cultural facility) construction has been transferred to local governments, breaking the previous 50-50 cost-sharing structure. As local governments now have more options such as art museums in addition to libraries, the budget allocated to libraries appears to be relatively declining."