Revised Guidance Issued Under Section 182 Of The Licensing .
Revised Guidance issuedunder section 182 of theLicensing Act 2003April 2018
Revised Guidance issued under section 182of the Licensing Act 2003April 2018
Crown copyright 2018This publication is licensed under the terms of the Open Government Licence v3.0 except whereotherwise stated. To view this licence, visit /version/3 or write to the Information Policy Team, The National Archives, Kew, London TW94DU, or email: psi@nationalarchives.gsi.gov.uk.Where we have identified any third party copyright information you will need to obtain permission fromthe copyright holders concerned.This publication is available at www.gov.uk/government/publicationsAny enquiries regarding this publication should be sent to us at The Alcohol Team, The Home Office,5th Floor, Fry Building (North West), 2 Marsham Street, London, SW1P 4DF.Email: AlcoholStrategy@homeoffice.gsi.gov.ukWeb ISBN 978-1-78655-639-4
Contents1.Introduction12.The licensing objectives63.Licensable activities144.Personal licences215.Who needs a premises licence?346.Club premises certificates397.Temporary Event Notices (TENs)428.Applications for premises licences499.Determining applications6810.Conditions attached to premises licences and club premises certificates7711.Reviews8912.Summary reviews9513.Appeals10314.Statements of licensing policy10615.Licence fees12116.Regulated entertainment12317.Early morning alcohol restriction orders141
1. IntroductionThe Licensing Act 20031.1The Licensing Act 2003 (referred to in this Guidance as the 2003 Act), its explanatorynotes and any statutory instruments made under it may be viewed online atwww.legislation.gov.uk. The statutory instruments include regulations setting out thecontent and format of application forms and notices. The Home Office has responsibilityfor the 2003 Act. However, the Department for Culture, Media and Sport (DCMS) isresponsible for regulated entertainment, for which there is provision in Schedule 1 to the2003 Act (see Chapter 16).Licensing objectives and aims1.2The legislation provides a clear focus on the promotion of four statutory objectives whichmust be addressed when licensing functions are undertaken.1.3The licensing objectives are: The prevention of crime and disorder; Public safety; The prevention of public nuisance; and The protection of children from harm.1.4Each objective is of equal importance. There are no other statutory licensing objectives,so that the promotion of the four objectives is a paramount consideration at all times.1.5However, the legislation also supports a number of other key aims and purposes.These are vitally important and should be principal aims for everyone involved inlicensing work. They include: protecting the public and local residents from crime, anti-social behaviour and noisenuisance caused by irresponsible licensed premises; giving the police and licensing authorities the powers they need to effectively manageand police the night-time economy and take action against those premises that arecausing problems; recognising the important role which pubs and other licensed premises play in ourlocal communities by minimising the regulatory burden on business, encouraginginnovation and supporting responsible premises; providing a regulatory framework for alcohol which reflects the needs of localcommunities and empowers local authorities to make and enforce decisions aboutthe most appropriate licensing strategies for their local area; and encouraging greater community involvement in licensing decisions and giving localresidents the opportunity to have their say regarding licensing decisions that mayaffect them.Revised Guidance issued under section 182 of the Licensing Act 2003 I 1
The guidance1.6Section 182 of the 2003 Act provides that the Secretary of State must issue and, fromtime to time, may revise guidance to licensing authorities on the discharge of theirfunctions under the 2003 Act. This revised guidance takes effect as soon as it ispublished. Where a licence application was made prior to the publication of the revisedguidance, it should be processed in accordance with the guidance in effect at the time atwhich the application was made; the revised guidance does not apply retrospectively.However, all applications received by the licensing authority on or after the date therevised guidance was published should be processed in accordance with the revisedguidance.Purpose1.7This Guidance is provided to licensing authorities in relation to the carrying out of theirfunctions under the 2003 Act. It also provides information to magistrates’ courts hearingappeals against licensing decisions and has been made widely available for the benefitof those who run licensed premises, their legal advisers and the general public. It is akey medium for promoting best practice, ensuring consistent application of licensingpowers across England and Wales and for promoting fairness, equal treatment andproportionality.1.8The police remain key enforcers of licensing law. This Guidance does not bind policeofficers who, within the parameters of their force orders and the law, remainoperationally independent. However, this Guidance is provided to support and assistpolice officers in interpreting and implementing the 2003 Act in the promotion of the fourlicensing objectives.Legal status1.9Section 4 of the 2003 Act provides that, in carrying out its functions, a licensing authoritymust ‘have regard to’ guidance issued by the Secretary of State under section 182. ThisGuidance is therefore binding on all licensing authorities to that extent. However, thisGuidance cannot anticipate every possible scenario or set of circumstances that mayarise and, as long as licensing authorities have properly understood this Guidance, theymay depart from it if they have good reason to do so and can provide full reasons.Departure from this Guidance could give rise to an appeal or judicial review, and thereasons given will then be a key consideration for the courts when considering thelawfulness and merits of any decision taken.1.10Nothing in this Guidance should be taken as indicating that any requirement of licensinglaw or any other law may be overridden (including the obligations placed on any publicauthorities under human rights legislation). This Guidance does not in any way replacethe statutory provisions of the 2003 Act or add to its scope and licensing authoritiesshould note that interpretation of the 2003 Act is a matter for the courts. Licensingauthorities and others using this Guidance must take their own professional and legaladvice about its implementation.2 Revised Guidance issued under section 182 of the Licensing Act 2003
Licensing policies1.11Section 5 of the 2003 Act requires a licensing authority to determine and publish astatement of its licensing policy at least once every five years. The policy must bepublished before it carries out any licensing functions under the 2003 Act.1.12However, determining and publishing a statement of its policy is a licensing function andas such the authority must have regard to this Guidance when taking this step. Alicensing authority may depart from its own policy if the individual circumstances of anycase merit such a decision in the interests of the promotion of the licensing objectives.But once again, it is important that it should be able to give full reasons for departingfrom its published statement of licensing policy. Where revisions to this Guidance areissued by the Secretary of State, there may be a period of time when the licensingpolicy statement is inconsistent with the Guidance (for example, during any consultationby the licensing authority). In these circumstances, the licensing authority should haveregard, and give appropriate weight, to this Guidance and its own existing licensingpolicy statement.Licensable activities1.13For the purposes of the 2003 Act, the following are licensable activities: The sale by retail of alcohol; The supply of alcohol by or on behalf of a club to, or to the order of, a member of theclub; The provision of regulated entertainment; and The provision of late night refreshment.Further explanation of these terms is provided in Chapter 3.Authorisations or permissions1.14The 2003 Act provides for four different types of authorisation or permission, as follows: Premises licence – to use premises for licensable activities. Club premises certificate – to allow a qualifying club to engage in qualifying clubactivities as set out in Section 1 of the Act. Temporary event notice – to carry out licensable activities at a temporary event. Personal licence – to sell or authorise the sale of alcohol from premises in respect ofwhich there is a premises licence.General principles1.15If an application for a premises licence or club premises certificate has been madelawfully and there have been no representations from responsible authorities or otherpersons, the licensing authority must grant the application, subject only to conditionsthat are consistent with the operating schedule and relevant mandatory conditions. It isrecommended that licence applicants contact responsible authorities when preparingtheir operating schedules.Revised Guidance issued under section 182 of the Licensing Act 2003 I 3
Licence conditions – general principles1.16Conditions on a premises licence or club premises certificate are important in setting theparameters within which premises can lawfully operate. The use of wording such as“must”, “shall” and “will” is encouraged. Licence conditions: must be appropriate for the promotion of the licensing objectives; must be precise and enforceable; must be unambiguous and clear in what they intend to achieve; should not duplicate other statutory requirements or other duties or responsibilitiesplaced on the employer by other legislation; must be tailored to the individual type, location and characteristics of the premisesand events concerned; should not be standardised and may be unlawful when it cannot be demonstratedthat they are appropriate for the promotion of the licensing objectives in an individualcase; should not replicate offences set out in the 2003 Act or other legislation; should be proportionate, justifiable and be capable of being met; cannot seek to manage the behaviour of customers once they are beyond the directmanagement of the licence holder and their staff, but may impact on the behaviour ofcustomers in the immediate vicinity of the premises or as they enter or leave; and should be written in a prescriptive format.Each application on its own merits1.17Each application must be considered on its own merits and in accordance with thelicensing authority’s statement of licensing policy; for example, if the application fallswithin the scope of a cumulative impact policy. Conditions attached to licences andcertificates must be tailored to the individual type, location and characteristics of thepremises and events concerned. This is essential to avoid the imposition ofdisproportionate and overly burdensome conditions on premises where there is no needfor such conditions. Standardised conditions should be avoided and indeed may beunlawful where they cannot be shown to be appropriate for the promotion of thelicensing objectives in an individual case.Additional guidance1.18From time to time, the Home Office may issue additional supporting guidance tolicensing authorities and other persons on the Gov.uk website. This supporting guidanceis good practice guidance and should be viewed as indicative and subject to change.Such supporting guidance will broadly reflect but will not be part of the statutoryguidance issued by the Secretary of State under section 182 of the 2003 Act. Licensingauthorities may wish to refer to, but are under no statutory duty to have regard to suchsupporting guidance issued by the Home Office.4 Revised Guidance issued under section 182 of the Licensing Act 2003
Other relevant legislation1.19While licence conditions should not duplicate other statutory provisions, licensingauthorities and licensees should be mindful of requirements and responsibilities placedon them by other legislation. Legislation which may be relevant includes: The Gambling Act 2005 The Environmental Protection Act 1990 The Noise Act 1996 The Clean Neighbourhoods and Environmental Act 2005 The Regulatory Reform (Fire Safety) Order 2005 The Health and Safety at Work etc. Act 1974 The Equality Act 2010 The Immigration Act 2016 Regulators’ Code under the Legislative and Regulatory Reform Act 2006Revised Guidance issued under section 182 of the Licensing Act 2003 I 5
2. The licensing objectivesCrime and disorder2.1Licensing authorities should look to the police as the main source of advice on crimeand disorder. They should also seek to involve the local Community Safety Partnership(CSP).2.2In the exercise of their functions, licensing authorities should seek to co-operate with theSecurity Industry Authority (“SIA”) as far as possible and consider adding relevantconditions to licences where appropriate. The SIA also plays an important role inpreventing crime and disorder by ensuring that door supervisors are properly licensedand, in partnership with police and other agencies, that security companies are notbeing used as fronts for serious and organised criminal activity. This may includemaking specific enquiries or visiting premises through intelligence led operations inconjunction with the police, local authorities and other partner agencies. Similarly, theprovision of requirements for door supervision may be appropriate to ensure that peoplewho are drunk, drug dealers or people carrying firearms do not enter the premises andensuring that the police are kept informed.2.3Conditions should be targeted on deterrence and preventing crime and disorderincluding the prevention of illegal working in licensed premises (see paragraph 10.10).For example, where there is good reason to suppose that disorder may take place, thepresence of closed-circuit television (CCTV) cameras both inside and immediatelyoutside the premises can actively deter disorder, nuisance, anti-social behaviour andcrime generally. Some licence holders may wish to have cameras on their premises forthe prevention of crime directed against the business itself, its staff, or its customers.But any condition may require a broader approach, and it may be appropriate to ensurethat the precise location of cameras is set out on plans to ensure that certain areas areproperly covered and there is no subsequent dispute over the terms of the condition.2.4The inclusion of radio links and ring-round phone systems should be considered anappropriate condition for public houses, bars and nightclubs operating in city and towncentre leisure areas with a high density of licensed premises. These systems allowmanagers of licensed premises to communicate instantly with the police and facilitate arapid response to any disorder which may be endangering the customers and staff onthe premises.2.5Conditions relating to the management competency of designated premises supervisorsshould not normally be attached to premises licences. It will normally be theresponsibility of the premises licence holder as an employer, and not the licensingauthority, to ensure that the managers appointed at the premises are competent andappropriately trained. The designated premises supervisor is the key person who willusually be responsible for the day to day management of the premises by the premiseslicence holder, including the prevention of disorder. A condition of this kind may only bejustified as appropriate in rare circumstances where it can be demonstrated that, in thecircumstances associated with particular premises, poor management competencycould give rise to issues of crime and disorder and public safety.6 Revised Guidance issued under section 182 of the Licensing Act 2003
2.6The prevention of crime includes the prevention of immigration crime including theprevention of illegal working in licensed premises. Licensing authorities should work withHome Office Immigration Enforcement, as well as the police, in respect of thesematters. Licence conditions that are considered appropriate for the prevention of illegalworking in licensed premises might include requiring a premises licence holder toundertake right to work checks on all staff employed at the licensed premises orrequiring that a copy of any document checked as part of a right to work check areretained at the licensed premises.Public safety2.7Licence holders have a responsibility to ensure the safety of those using their premises,as a part of their duties under the 2003 Act. This concerns the safety of people using therelevant premises rather than public health which is addressed in other legislation.Physical safety includes the prevention of accidents and injuries and other immediateharms that can result from alcohol consumption such as unconsciousness or alcoholpoisoning. Conditions relating to public safety may also promote the crime and disorderobjective as noted above. There will of course be occasions when a public safetycondition could incidentally benefit a person’s health more generally, but it should not bethe purpose of the condition as this would be outside the licensing authority’s powers(be ultra vires) under the 2003 Act. Conditions should not be imposed on a premiseslicence or club premises certificate which relate to cleanliness or hygiene.2.8A number of matters should be considered in relation to public safety. These mayinclude: Fire safety; Ensuring appropriate access for emergency services such as ambulances; Good communication with local authorities and emergency services, for examplecommunications networks with the police and signing up for local incident alerts (seeparagraph 2.4 above); Ensuring the presence of trained first aiders on the premises and appropriate first aidkits; Ensuring the safety of people when leaving the premises (for example, through theprovision of information on late-night transportation); Ensuring appropriate and frequent waste disposal, particularly of glass bottles; Ensuring appropriate limits on the maximum capacity of the premises (seeparagraphs 2.12-2.13, and Chapter 10; and Considering the use of CCTV in and around the premises (as noted in paragraph 2.3above, this may also assist with promoting the crime and disorder objective).2.9The measures that are appropriate to promote public safety will vary between premisesand the matters listed above may not apply in all cases. As set out in Chapter 8 (8.388.46), applicants should consider when making their application which steps it isappropriate to take to promote the public safety objective and demonstrate how theyachieve that.Revised Guidance issued under section 182 of the Licensing Act 2003 I 7
Ensuring safe departure of those using the premises2.10Licence holders should make provision to ensure that premises users safely leave theirpremises. Measures that may assist include: Providing information on the premises of local taxi companies who can provide safetransportation home; and Ensuring adequate lighting outside the premises, particularly on paths leading to andfrom the premises and in car parks.Maintenance and repair2.11Where there is a requirement in other legislation for premises open to the public or foremployers to possess certificates attesting to the safety or satisfactory nature of certainequipment or fixtures on the premises, it would be inappropriate for a licensing conditionto require possession of such a certificate. However, it would be permissible to requireas a condition of a licence or certificate, if appropriate, checks on this equipment to beconducted at specified intervals and for evidence of these checks to be retained by thepremises licence holder or club provided this does not dupl
Revised Guidance issued under section 182 of the Licensing Act 2003 I 1 1. Introduction The Licensing Act 2003 1.1 The Licensing Act 2003 (referred to in this Guidance as the 2003 Act), its explanatory
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