Statement of Gambling Licensing Principles
Statement of Licensing Principles
Version History
| Version Number |
Period to which policy applies |
Review date |
|---|---|---|
| 1 | 2007-2009 | 2009 |
| 2 | 2010-2012 | 2012 |
| 3 | 2013-2016 | 2015 |
| 4 | 2016-2017 | 2017 |
| 5 | 2017-2019 | 2018 |
| 6 | 2019-2021 | 2021 |
| 7 | 2022-2025 | 2024 |
Statement of Gambling Policy - Gambling Act 2005
Preface
Under the Gambling Act 2005, a new regime for regulating gambling and betting was introduced throughout the United Kingdom from 1 September 2007. Apart from the National Lottery and spread betting, gambling and betting will be regulated by the Gambling Commission, whose duties include licensing the operators and individuals involved in providing gambling and betting facilities.
Rushcliffe Borough Council, along with other local licensing authorities, has a duty under the Act to license premises where gambling is to take place, and to license other activities (such as registering small society lotteries). This document sets out how we intend to approach this task.
The Council has consulted various bodies and organisations upon this statement (see Appendix One). The consultation period ran from 16 August 2021 to 20 September 2021.
Contents
Relationship with other legislation
Rights of applicants and third parties
Data sharing and data security
Who can make a representation?
Form and content of representation
Preventing gambling from being a source of crime and disorder
Ensuring gambling is conducted in a fair and open way
Protection of children and other vulnerable persons
Club gaming permits and club machine permits
9. Appendix One - list of bodies and organisations consulted
1. Introduction and scope
Introduction
1.1 Section 349(1) of the Gambling Act 2005 [“the Act”] imposes a statutory requirement upon Rushcliffe Borough Council as the statutory Licensing Authority [“the Authority”] to prepare a Statement of Principles [“the Statement”], and to review it every three years. However, should the need arise, the Authority may review and alter the policy within that period.
Licensing objectives
1.2 In exercising their functions under the Gambling Act 2005, licensing authorities must have regard to the licensing objectives as set out in section 1 of the Act. The three objectives are as follows:
- Preventing gambling from being a source of crime or disorder, being associated with crime or disorder or being used to support crime;
- Ensuring that gambling is conducted in a fair and open way; and
- Protecting children and other vulnerable persons from being harmed or exploited by gambling.
1.3 The aim of the Authority in this Statement is to address the impact of licensed premises in terms of crime and disorder arising from gambling and to ensure that their location and internal layout are appropriate with a view to protecting children and vulnerable persons. The Authority is committed to partnership with all stakeholders with a view to the promotion of this aim. The Authority recognises the impact that unregulated gambling may have on its community and sustainability as a viable local economy and in delivering the gambling regime will, with regard to the principles set out in this Statement, seek to support its local economy and protect vulnerable people. In doing so it will consider each application on its own merits within the context of this Statement, the legislation and guidance and codes of practice issued by the Gambling Commission.
1.4 The Authority will in the statutory discharge of its functions have regard to the principles to be applied in exercising its powers:
- under Section 157 of the Act to designate in writing a body competent to advise the Authority about the protection of children from harm.
- under Section 158 of the Act to determine whether a person is an interested party in relation to a premises licence or in relation to an application for or in respect of a premises licence.
1.5 Subject to statutory provision, a review of this Statement will take place periodically and in any event every three years. Any revisions to the Statement will be made taking into account information collated over a period of time; the outcomes of related initiatives at central and local government level and following appropriate consultation.
This Policy takes effect on 3 January 2022 and replaces the policy previously in force.
1.6 Nothing in this Statement should be regarded or interpreted as any indication that any statutory requirement of gambling or other law is to be overridden.
Declaration
1.7 The Authority in preparation of this Statement have had due regard to:
- The Gambling Act 2005.
- The Gambling Act 2005 (Licensing Authority Policy Statement) (England and Wales) Regulations 2006.
- Current guidance issued by the Gambling Commission and by the Secretary of State under Section 25 of the Act.
- Responses from those consulted on the Statement, and the reviews thereof.
Consultation
The Gambling Act requires the licensing authority to consult the following on the Licensing Authority Statement of Policy or any subsequent revision:
- In England and Wales, the chief officer of police for the Authority’s area.
- One or more persons who appear to the Authority to represent the interests of persons carrying on gambling businesses in the Authority’s area.
- One or more persons who appear to the Authority to represent the interests of persons who are likely to be affected by the exercise of the Authority’s functions under this Act.
A full list of consultees is shown in appendix 1.
2. Approval of policy
2.1 This Policy was approved at a meeting of the full Council on 2 December 2021. Copies are available on request.
It should be noted that this Policy does not override the right of any person to make an application, to make representations about an application, or to apply for a review of a licence, as each case will be considered on its own merit and according to the requirements of the Act.
Local area profile
2.2 Rushcliffe lies immediately south of the City of Nottingham and the River Trent and extends towards Newark in the north east and Loughborough in the south west.
The Borough is a pleasant, prosperous district, characterised by attractive villages, tree-lined suburbs, rich farmland and rolling countryside. The prosperity of Rushcliffe is closely linked to the wider economy of the Greater Nottingham area. This is recognised through good working relationships with all Nottinghamshire Councils, the County, City and Districts, partnerships with the Greater Nottingham Partnership, and at regional level, through representation on the Regional Local Government Association and Regional Assembly.
Although parts of Rushcliffe lie close to Nottingham, the Borough has a strong identity of its own. The main centre of population is West Bridgford, where 45,509 (2011 Census) of the Borough's population live. The rest of the district is largely rural, with the centres of population split between small towns and villages. Rushcliffe is a popular residential area, and its location adds to its attraction as a place to live. The Borough population is 111,129 it has an area of 40,924 hectares and a population density of 2.7 people per hectare. 76.7% of homes are owner occupied. 9.7% of residents are from diverse ethnic backgrounds. Rushcliffe is relatively affluent and ranks 331 out of 354 on the national index of deprivation scale, however there are small pockets of deprivation. Unemployment levels at 2.2% are lower than both the county and national averages and there are significantly more people who are self-employed than the national and county averages. The area is designated as having ‘Moderate to Low’ crime (UK crime statistics 2015).
A local area profile will be prepared based on local knowledge and taking into account a wide range of factors, data and information held by the licensing authority and its partners. It is anticipated that the local area profile will give operators and a better awareness of the local area and the risks, which includes both potential and actual risks. This will be available on the Council's Website.
2.3 A map showing the administrative boundaries of the borough.
Authorised activities
2.4 The Act gives licensing authorities a number of important regulatory functions in relation to gambling. Their main functions are to:
- license premises for gambling activities;
- issue provisional statements for premises;
- consider notices given for the temporary use of premises for gambling;
- grant permits for gaming and gaming machines in clubs and miners’ welfare institutes;
- regulate gaming and gaming machines in alcohol licensed premises;
- grant permits to Family Entertainment Centre’s for the use of certain lower stake gaming machines;
- grant permits for prize gaming;
- consider occasional use notices for betting at tracks; and
- register small societies’ lotteries.
Note
Operator licences, Personal Licences and Remote Gambling are all dealt with by the Gambling Commission.
The National Lottery is now regulated by the Gambling Commission. Spread betting is regulated by the Financial Services Authority.
In carrying out its licensing functions within the framework established by this Statement, the Authority will have particular regard to:
- Maintaining a close working relationship with the responsible authorities;
- Taking necessary and appropriate steps for the protection of children and other vulnerable persons; and
- The need to treat each application on its own merits taking into account the individual circumstances at each premise.
Relationship with other legislation
2.5 In complying with the provisions of the Gambling Act 2005, whilst the Authority recognises the requirements of legislation, this Statement is not intended to duplicate the existing legislation and regulatory orders which incur statutory obligations.
2.6 In particular, in making a determination in respect of any application, the Authority will not take into account irrelevant matters, such as the likelihood of the application receiving planning permission or building regulation approval. It will though, listen to, and consider carefully, any concerns about conditions which are not able to be met by licensees due to planning restrictions, should such a situation arise.
'Demand' for gaming premises
2.7 The Authority will not consider the demand for gaming premises when making decisions about applications for a premises licence under the Act.
Rights of applicants and third parties
2.8 This Statement does not override the right of any person to make an application under the Act and have that application considered on its individual merits.
2.9 Similarly, this Statement does not undermine the right of any third party to make representations on an application or to seek a review of a licence where provision has been made for them to do so.
Data sharing and data security
2.10 The Authority will act in accordance with the provisions of the Gambling Act 2005 in its exchange of information which includes the provision that the Data Protection Act 1998 will not be contravened. The Authority will also have regard to any Guidance issued by the Gambling Commission on this matter, as well as any relevant regulations issued by the Secretary of State under the powers provided in the Gambling Act 2005.The Council processes all of the personal information you provide in accordance with this regulation. For further details please see our Privacy Policy.
Equality
2.11 Rushcliffe Borough Council is committed to promoting equality and diversity. The Equality Act 2010 imposes statutory duties on the Council and our Corporate Equality Scheme demonstrates how we are meeting them and our commitment to ensuring that diversity issues are at the heart of our policy making and our service delivery.
3. Local risk assessments
3.1 The Gambling Commission’s Licence Conditions and Codes of Practice (LCCP) which are effective from 31 October 2020 (available at Online Licence Conditions and Codes of Practice), formalise the need for operators to consider local risks. Local risk assessment apply to all non-remote casino, adult gaming centre, bingo, family entertainment centre, betting and remote betting intermediary (trading room only) licences, except non-remote general betting (limited) and betting intermediary licences. This provision comes into force on 6 April 2016.
3.2 Licensees must assess the local risks to the licensing objectives posed by the provision of gambling facilities at each of their premises, and have policies, procedures and control measures to mitigate those risks. In making their risk assessments, licenses must take into account relevant matters identified in the licensing authority statement of licensing principles.
3.3 Licensees must review (and update as necessary) their local risk assessments:
- to take account of significant changes in local circumstances, including those identified in a licensing authority’s statement of licensing policy;
- when there are significant changes at a licensee’s premises that may affect their mitigation of local risks;
- when applying for a variation of a premises licence; and
- in any case, undertake a local risk assessment when applying for a new premises licence.
3.4 Licensees are required to undertake a local risk assessment when applying for a new premises licence. Risk assessment must also be reviewed:
- when applying for a variation of a premises licence;
- to take account of significant changes in local circumstances, including those identified in a licensing authority’s policy statement; and
- when there are significant changes at a licensee’s premises that may affect their mitigation of local risks.
3.5 The new social responsibility provision is supplemented by an ordinary code provision recommending good practice that licensees to share their risk assessment with licensing authorities when applying for a premises licence or applying for a variation to existing licensed premises, or otherwise at the request of the licensing authority. Both provisions take effect from 6 April 2016.
3.6 Where concerns do exist, perhaps prompted by new or existing risks, a licensing authority may request that the licensee share a copy of its own risk assessment which will set out the measures the licensee has in place to address specific concerns. This practice should reduce the occasions on which a premises review and the imposition of license conditions is required.
3.7 The licensing authority has an expectation that all local risk assessments will take into account the local area profile of the area.
Where an area has a high proportion of people who do not have English as their first language, the Licensing Authority will expect this to be reflected in the local area risk assessment. The provision of gamble awareness literature in languages other than English should be considered.
Nottinghamshire Health Statement of Policy (Gambling)
3.8 The three statutory licensing objectives for gambling include protecting children and other vulnerable persons from harm and exploitation. Licensing policies are not currently required to address public health concerns and Public Health are not a responsible authority, as in the case of alcohol. However, the Gambling Commission has recognised the benefits of a public health whole population approach (February 2018). The Commission has identified specific groups of people who are particularly at risk:
- Ethnic groups
- Youth
- Low IQ
- Substance abuse/misuse
- Poor mental health
It is estimated that there are over 370,000 problem gamblers in England. There are no local level estimates available. Gambling harm includes poor physical and mental ill-health and is associated with substance misuse problems especially alcohol and with smoking. It also contributes to debt problems, relationship breakdown and criminality.
3.9 There is less evidence available to support gambling Statement of Licensing Principles at a local level. Nationally there is a significant amount of gambling that takes place on the internet which reduces barriers to where people can gamble. Problem gambling is linked with areas of socio-economic deprivation, so identifying areas with potentially higher levels of gambling harm can therefore be informed by the alcohol licensing maps on Nottingham Insight.
4. Making representations
Who can make a representation?
4.1 The Gambling Act allows “responsible authorities” (identified in section 157 of the Act) and “interested parties” to make representations to applications relating to premises licences and provisional statements. In the case of reviews that right is also given to the licensee. With regard to other forms of notification and permit, the right to object is restricted to specified bodies. The following section therefore only relates to representations in respect of premises licences and provisional statements.
4.2 Premises licences are only necessary for the types of gambling listed below and interested parties may therefore only make representations in respect of:
- Casino premises
- Bingo premises
- Betting premises (including tracks)
- Adult gaming centres
- Licensed family entertainment centres
Interested parties
4.3 Interested parties are defined as persons who in the licensing Authority’s opinion:
- Live sufficiently close to the premises to be likely to be affected by the authorised activities;
- Have business interests that might be affected by the authorised activities; or
- Represent either of the above, this could include for example, democratically elected persons such as Councillors or members of parliament.
Policy One
In determining if someone lives sufficiently close to the premises to be likely to be affected by the authorised activities or have business interests that are likely to be affected, the Authority may take any or all of the following into account:
- The proximity of their home or business to the application premises.
- The nature of their residency (for example, private resident, resident in home for the vulnerable etc).
- The nature of the business making the representation.
- The nature of the authorised activities to be conducted on the application premises.
- The size and capacity of the application premises.
- The likely catchment area for the application premises.
- The routes likely to be taken to and from the application premises.
- The character of the area.
- The density of the built up area.
- The topography of the area.
- Local area profile.
- Mitigating measures contained within the applicant’s risk assessments.
Reason: To ensure that those who are likely to be directly affected by the proposed activities can exercise their right to be heard.
4.5 The Authority will interpret the phrase “business interest” widely and not merely confine the phrase to meaning those engaged in trade and commerce. It may therefore include charities, churches, medical practices, schools and other establishments and institutions.
4.6 Similarly, a wide interpretation will be given to those categories of persons and organisations that represent residents and businesses. These may include residents and tenants’ associations, trade unions and other associations, as well as individuals whose role is to represent the interests of one or more residents or businesses such as a councillor, MP, or legal representative.
4.7 If an existing gambling business makes a representation that it is going to be affected by another gambling business starting up in the area, then without further evidence relating to the licensing objectives supporting the representation, the Authority would not consider this to be a relevant representation because it relates to “demand” or competition.
4.8 It is for the Licensing Authority to determine on a case by case basis whether or not a person making a representation is an “interested party”. The Authority may ask for evidence to identify who is being represented and show that they have given Authority for representations to be made on their behalf. In cases which are not clear-cut the benefit of the doubt will usually be exercised in favour of the person making the representation.
Form and content of representation
4.9 The Act places a duty on the Authority to aim to permit the use of premises for gambling in so far as the Authority thinks the application is in accordance with:
- this Policy Statement;
- the Commission’s Guidance;
- the Codes of Practice, and;
- local area profile and applicants local risk assessments; and
- where the application is reasonably in accordance with the licensing objectives.
4.10 As these are the criteria against which an application is to be assessed representations which address these issues are more likely to be accepted and given weight.
4.11 All representations must be made in writing and must be received by the Licensing Authority within the time limits set by the relevant regulations. For a representation to be relevant it should:
- be positively tied or linked by a causal connection to particular premises; and
- relate to the licensing objectives; or
- raise issues under this policy, the Commission’s Guidance or Codes of Practice.
4.12 Representations received outside the statutory period for making such representations or which otherwise does not comply with the Regulations will be invalid and will not be taken into consideration when the application is determined. In addition the Authority expects representations to be made in accordance with Policy Two.
Policy Two
- The name, address and a contact number for the person making the representation.
- The capacity in which the representation is made (for example, interested party, responsible Authority, licensee) and if made as a representative should indicate who is being represented.
- The name and address of the premises in respect of which the representation is being made.
- The licensing objective(s) relevant to the representation.
- Why it is felt that the application:
- is not reasonably consistent with the licensing objectives or;
- is not in accordance with this Policy, the Commission’s Guidance or the relevant Codes of Practice or;
- otherwise should not be granted or;
- should only be granted subject to certain specified conditions
- the local risk assessments are not considered suitable and sufficient; or
- Details of the evidence supporting the opinion in (5).
Reason: To ensure the representation is made by a responsible Authority or interested party and that it is relevant and directly related to the application premises.
4.14 A preferred form of representation is available. A copy of the form can be downloaded from the Rushcliffe Borough Council website or requested directly from the Licensing service. Whilst representations which are not in the preferred form or which do not fully comply with Policy Two will not automatically be rejected, they may be less likely to comply with the law relating to representations resulting in them ultimately being rejected or given little or no weight.
4.15 Ordinarily where representations are received, the Authority will hold a hearing, however, a hearing does not have to be held where the Authority thinks that a representation is frivolous, vexatious, or will certainly not influence the Authority’s determination of the matter. It is for the licensing Authority to determine whether a representation falls within these categories, however, representations which comply with Policy Two are unlikely to do so.
4.16 It is in the interest of those making representations that they include as much detail and evidence as possible at the time the representation is made. The Authority will determine whether a representation should be excluded as frivolous or vexatious based on the normal interpretation of the words. A representation may therefore be excluded if it obviously lacks seriousness or merit or is designed to be antagonistic. An example may be a representation received form a rival operator which is based solely on the fact that the new premises would compete with their own.
Irrelevant considerations
4.17 Whilst not intended to provide an exhaustive list the following matters cannot be taken into account and representations relating to them are likely to be discounted:
- Need and demand for the relevant premises
- Issues relating to nuisance
- Traffic congestion and parking
- Likelihood of the premises receiving planning permission, or building regulation approval
- Moral objections
4.18 Any person seeking to operate gambling premises must first have applied for or obtained an operating licence form the Gambling Commission. The Commission will therefore have made a judgement as to the applicant’s suitability to operate the proposed form of gambling and therefore this issue is not relevant to the subsequent assessment of the premises licence application. The only exception is in relation to track premises licences. In this case an operator’s licence is not required and the suitability of the applicant may, in appropriate cases, be taken into consideration.
Reviews
4.19 A premises licence may be reviewed by the licensing Authority of its own volition or following the receipt of an application for a review from a responsible Authority or interested party. Reviews cannot be delegated to an officer of the licensing Authority – the lowest level of delegation permitted is to a licensing subcommittee (licensing panel).
4.20 The provides that licensing Authorities may initiate a review in relation to a particular class of premises licence or in relation to particular premises. Officers of the Council or of a responsible authority may be involved in the initial investigations of complaints leading to a review, or may try informal mediation or dispute resolution techniques prior to a full scale review being conducted.
4.21 If at any time the Authority considers it necessary in their scheme of delegation they will establish a system that determines who initiates reviews, and that may include a ‘filter’ system to prevent unwarranted reviews from being conducted.
4.22 In relation to a class of premises, the Authority may review the use made of premises and, in particular, the arrangements that premises licence holders have made to comply with licence conditions. In relation to these general reviews, the Authority would most likely be acting as a result of specific concerns or complaints about particular types of premises, which would cause it to want, for example, to look at the default conditions that apply to that category of licence. In relation to particular premises, the Authority may review any matter connected to the use made of the premises if it has reason to suspect that licence conditions are not being observed, or for any other reason (such as a complaint from a third party) which gives it cause to believe that a review may be appropriate.
4.23 Representations and review applications will be considered by the Authority in accordance with the relevant legislation, guidance issued by the Commission, this Statement and Codes of Practice local area profile and the premises licence holders local risk assessments.
5. Licensing objectives
Preventing gambling from being a source of crime and disorder
5.1 The Gambling Commission will play a leading role in preventing gambling from becoming a source of crime and will maintain rigorous licensing procedures that aim to prevent inappropriate people from providing facilities for gambling.
5.2 The Authority places considerable importance on the prevention of crime and disorder, and will fulfil its duty under section 17 of the Crime and Disorder Act 1998 to do all it reasonably can to prevent crime and disorder in its area. A high standard of control is therefore expected to be exercised over licensed premises. The Authority will not generally be concerned with the suitability of an applicant and where concerns about a person’s suitability arise the Authority will bring those concerns to the attention of the Commission.
5.3 The Authority will, when determining applications, consider whether the grant of a premises licence will result in an increase in crime and disorder. In considering licence applications, the Authority will particularly take into account the following:
- The design and layout of the premises;
- The training given to staff in crime prevention measures appropriate to those premises;
- Physical security features installed in the premises. This may include matters such as the position of cash registers or the standard of CCTV that is installed;
- Where premises are subject to age restrictions, the procedures in place to conduct age verification checks; and
- The likelihood of any violence, public order or policing problem if the licence is granted.
5.4 Where an application is received in relation to premises in an area noted for particular problems with crime, part of this determination will include consultation with the police and other relevant authorities. The Authority may then consider whether specific controls, such as a requirement for the provision of door supervisors, need to be applied in order to prevent those premises being a source of crime. In respect of betting offices the Authority will make door supervision requirement only if there is clear evidence from the history of trading at the premises that the premises cannot be adequately supervised from the counter and that door supervision is both necessary and proportionate.
5.5 As far as disorder is concerned, there are already powers in existing anti-social behaviour and other legislation to deal with measures designed to prevent nuisance, whether it arises as a result of noise from a building or from general disturbance once people have left a building. The Authority does not therefore intend to use the Act to deal with general nuisance issues, for example, parking problems, which can easily be 17 dealt with using alternative powers. The Authority has no jurisdiction under the Act to deal with general nuisance issues.
5.6 In accordance with the Guidance, the Authority will only seek to address issues of disorder under the Act if the disorder amounts to activity which is more serious and disruptive than mere nuisance. A disturbance could be serious enough to constitute disorder if police assistance were required to deal with it. Another factor the Authority is likely to take into account is how threatening the behaviour was to those who could see or hear it, whether those people live sufficiently close to be affected or have business interests that might be affected.
5.7 The Authority will consult with the police and other relevant authorities when making decisions in this regard and will give due weight to any comments made by the police or other relevant authorities.
Policy Three
5.8 The Authority will have particular regard to the likely impact of licensing on related crime and disorder in the district particularly when considering the location, impact, operation and management of all proposed licence applications.
Reason: Under the Crime and Disorder Act 1998 local authorities must have regard to the likely effect of the exercise of their functions on, and do all they can to prevent, crime and disorder in their area.
Ensuring gambling is conducted in a fair and open way
5.9 The Gambling Commission does not expect local authorities to become concerned with ensuring that gambling is conducted in a fair and open way as this will either be a matter for the management of the gambling business (and therefore relevant to the Operating Licence), or will be in relation to the suitability and actions of an individual (and therefore relevant to the Personal Licence).
5.10 Both issues will be addressed by the Commission through the operating and personal licensing regime. This is achieved by:
- operating and personal licences are issued only to those who are suitable to offer gambling facilities or work in the industry;
- easily understandable information is made available by operators to players about, for example: the rules of the game, the probability of losing or winning, and the terms and conditions on which business is conducted;
- the rules are fair;
- advertising is not misleading;
- the results of events and competitions on which commercial gambling takes place are made public; and
- machines, equipment and software used to produce the outcome of games meet standards set by the Commission and operate as advertised.
5.11 Because betting track operators do not need an operating licence from the Commission, the Authority may, in certain circumstances attach conditions to a licence to ensure that the betting is conducted in a fair and open way. The authority may in these circumstances also consider the suitability of the applicant to hold a track premises licence. Such factors which the authority may take into consideration are set out below:
- References to adduce good character
- Criminal record of the applicant
- Previous experience of operating a track betting licence
- Any other relevant information
Protection of children and other vulnerable persons
Access to licensed premises
5.12 The access of children and young persons to those gambling premises which are adult only environments will not be permitted.
The Authority will consult with the Nottinghamshire Safeguarding Children Partnership and the Nottinghamshire Safeguarding Adults Board on any application that indicates there may be concerns over access for children or vulnerable persons. Please see link About (nottinghamshire.gov.uk)
5.13 The Authority will judge the merits of each separate application before deciding whether to impose conditions to protect children or vulnerable persons on particular categories of premises. This may include such requirements as:
- Supervision of entrances;
- Segregation of gambling areas from areas frequented by children;
- Supervision of gaming machines in non-adult gambling specific premises;
- Measures/training covering how staff would deal with unsupervised young children being on the premises; and
- Appropriate measures/training for staff as regards suspected truant school children on the premises.
5.14 The Act provides for a Code of Practice on access to casino premises by children and young persons and the Authority will work closely with the Police to ensure the appropriate enforcement of the law in these types of premises.
Vulnerable persons
5.15 The Authority does not seek to prohibit particular groups of adults from gambling in the same way that it seeks to prohibit children, but it will assume for regulatory purposes, that “vulnerable persons” include:
- People who gamble more than they want to;
- People who gamble beyond their means; and
- People who may not be able to make an informed or balanced decision about gambling due to a mental impairment, alcohol or drugs.
5.16 The Authority will follow this guidance when considering whether, in relation to particular premises, any special considerations apply in relation to the protection of vulnerable persons.
The Authority encourages Applicants to offer controls that limit access by customers to gambling or further access to alcohol where the customer shows signs of inebriation.
5.17 Where the legislation allows, the Authority will look particularly closely at applications that are made for premises close to sensitive areas or developments, for example:
- Residential areas
- Schools and other educational establishments
- Residential hostels for vulnerable adults
- Premises licensed for alcohol or gambling
6. Premises licences
General principles
6.1 In the Act, “premises” is defined as including “any place”. Section 152 therefore prevents more than one premises licence applying to any place. But a single building could be subject to more than one premises licence, provided they are for different parts of the building and different parts of the building can be reasonably regarded as being different premises. This approach has been taken to allow large, multiple unit premises such as a pleasure park, pier, track or shopping mall to obtain discrete premises licence, where safeguards are in place. However, licensing authorities should pay particular attention if there are issues about sub-divisions of a single building or plot and ensure that mandatory conditions relating to access between premises are observed.
In relation to an application to split existing licensed premises thereby creating multiple premises, the Authority will expect the primary use of each premise to be the main business in accordance with the type of licence held. Any activities other than the primary use will be considered ancillary to the main business.
6.2 The procedure for obtaining Premises Licences is set by regulations. Should a licence be granted it will be made subject to mandatory and/or default conditions set by the Secretary of State. The Authority may choose to exclude default conditions if it thinks it appropriate and may also impose other specific conditions which are appropriate to the application. Additional conditions can only be imposed when there is evidence.
6.3 The Gambling Commission plays a leading role in preventing gambling from being a source of crime and will maintain rigorous licensing procedures that aim to prevent criminals from providing facilities for gambling. With the exception of applicants for track premises anyone applying to the Authority for a premises licence will have to hold an operating licence from the Commission before a licence can be issued. The Authority will not generally therefore be concerned with the suitability of an applicant. Where concerns arise about a person’s suitability, the Authority will bring those concerns to the attention of the Commission.
6.4 The Authority will however be concerned with issues such as the impact of the licensed premises in terms of crime and disorder and matters such as the location of the premises and their internal layout in terms of protecting children and vulnerable persons. Such issues are discussed in more detail in the paragraphs below relating to the specific types of gambling premises. See local risk assessments at section 2.
Betting premises and tracks
6.5 Betting premises relates to those premises operating off-course betting. That is other than at a track.
6.6 Tracks are sites where races or other sporting events take place. Betting operators may operate self-contained betting premises within track premises although they would normally only open on event days. There may be several licensed premises at any track.
6.7 Permitted activities include:
- off-course betting;
- on-course betting for tracks;
- betting by way of betting machines; and
- gaming machines as stipulated by regulations.
6.8 Factors for consideration when determining the application will be:
- location, particularly in relation to vulnerable persons;
- suitability of the premises;
- size of premises in relation to the number of betting machines;
- the ability of staff to monitor the use or abuse of such machines; and
- the provision for licence holders to ensure appropriate age limits are adhered to.
6.9 This is not an exhaustive list and each application will be judged on its merits. Any effective measures to support the licensing objectives will be taken into account.
6.10 In addition to the mandatory and default conditions attached by the Secretary of State by regulations from time to time, conditions may also be applied in support of the licensing objectives. Additional conditions can only be imposed when there is evidence.
6.11 The Authority shall require an appropriately defined plan of the premises to accompany each application.
B2 and B3 machines
6.12 In respect to nationally expressed concerns that exist in relation to the potential adverse impact of B2 (often called Fixed Odds Betting Terminals or FOBTs) and B3 machines may have on vulnerable groups of adults, The Licensing Authority will give due consideration to the need to apply conditions to betting shop premises licences including, but not limited to, setting out minimum staffing levels to ensure sufficient staff are on the premises to ensure the promotion of responsible gambling; to adequately protect players particularly those who are deemed to be vulnerable and to prevent under 18 year olds accessing gambling facilities.
The Licensing Authority expects B2 & B3 machines to be positioned in such a way that they can be appropriately monitored by staff particularly where those staff are positioned at a counter away from the machines. In general, the Authority is of the view that ‘privacy screens’ will hamper this and will expect the local area risk assessment to take this into account where applicants intend to construct such screens. Particular attention should be paid to the Gambling Commission’s Social 21 Responsibility Codes in this regard. (Licence Conditions and Codes of Practice 9.1.1) Where an existing licensee adds ‘privacy screens’ a variation application will be required. The maximum stakes on a FOBT has been reduced from £100 to £2, but there are no statistics available to support that the FOBT play has reduced.
6.14 In relation to the licensing of tracks the Authority may require certain conditions to be imposed in support of the licensing objections and in particular, to ensure that the environment in which the betting takes place is suitable, especially in circumstances where the track operator does not have an operating licence. Mandatory or default conditions may be attached by regulations issued by the Secretary of State.
Adult gaming centres (AGCs)
6.15 These premises must be operated by the holder of a gaming machine general operating licence from the Gambling Commission as well as a premises licence from the Authority.
6.16 Permitted activities include:
- the provision of gaming machines as stipulated by regulations.
6.17 Factors for consideration when determining the application for an AGC will include:
- the location; and
- the ability of operators to minimise illegal access by under 18’s to the premises.
6.18 This is not an exhaustive list and each application will be judged on its merits. Any effective measures to support the licensing objectives will be taken into account.
6.19 Conditions may be applied by the Authority in support of the licensing objectives if it is felt necessary. Mandatory or default conditions may be attached by regulations issued by the Secretary of State. No one under the age of 18 is permitted to enter an AGC.
Club gaming permits and club machine permits
6.20 Club gaming permits authorise qualifying clubs to provide gaming machines as well as equal chance gaming and games of chance as prescribed in regulations.
6.21 Club machine permits allow the provision of higher category gaming machines.
6.22 Commercial clubs may in some circumstances operate with club machine permits but not club gaming permits.
6.23 The Authority may only refuse an application on the following grounds:
- (a) the applicant does not fulfill the requirements for a members’ or commercial club or miners’ welfare institute and therefore is not entitled to receive the type of permit for which it has applied;
- (b) the applicant’s premises are used wholly or mainly by children and/or young persons;
- (c) an offence under the Act or a breach of a permit has been committed by the applicant while providing gaming facilities;
- (d) a permit held by the applicant has been cancelled in the previous ten years; or
- (e) an objection has been lodged by the Commission or the police; and in the case of (a) or (b) must refuse the permit.
6.24 The Authority may grant or refuse a permit, but it may not attach conditions to a permit.
Alcohol licensed premises
6.25 The Act provides an automatic entitlement to provide two gaming machines of category C or D. The premises licence holder must notify the Authority of his or her intention and pay the prescribed fee. Although the Authority has no discretion to refuse the notification, the authorisation may be removed if gaming has taken place on the premises that breaches a condition of section 282 of the Act.
6.26 The Authority may also issue “licensed premises gaming machine permits” to premises in this category on application for any additional number of category C and/or D machines. This would replace any automatic entitlement under section 282 of the Act.
6.27 The Authority must have regard to the licensing objectives and the Gambling Commission Guidance when granting these permits. Factors for consideration will include:
- location, particularly in relation to vulnerable persons;
- suitability of the premises, size of premises in relation to the number of betting machines;
- the ability of staff to monitor the use or abuse of such machines, and;
- the provision for licence holders to ensure appropriate age limits are adhered to; and
- to enable the Licensing Authority to come to an appropriate decision, applicants are expected to submit a plan to show the proposed positioning of machines with their application.
6.28 This is not an exhaustive list and each application will be judged on its merits. Any effective measures to support the licensing objectives will be taken into account.
6.29 It is a condition of the automatic entitlement to make available two gaming machines (of category C or D), that any relevant provision of a code of practice under section 24 about the location and operation of a gaming machine is complied with. The Authority will take account of these provisions; the relevant codes of practice are available on the Gambling Commissions website.
Family entertainment centres
6.30 There are two classes of Family Entertainment Centres (FECs) dependent upon the type of gaming machines provided on the premises:
In determining the suitability of the location, consideration will be given to the following factors:
- FECs with category C and D machines require a Premises Licence.
- Unlicensed FECs provide only category D machines and are regulated through FEC gaming machine permits.
6.31 In determining the suitability of the location, consideration will be given to the following factors:
- proximity of premises to schools and vulnerable adult centres (for example, a centre for gambling addicts);
- proximity to residential areas where there may be a high concentration of families with children;
- town centre or edge of town centre locations;
- hours of operation; and
- proposed operational management to regulate entry by children and vulnerable persons.
6.32 It should be noted that a permit cannot be issued in respect of a vessel or a vehicle.
6.33 An applicant must be 18 years of age or over. Relevant convictions will be taken into account, especially with respect to child protection issues.
Prize gaming permits
6.34 These permits cover gaming where the nature and size of the prize is not determined by the number of people playing or the amount paid for or raised by the gaming - the prize is determined by the operator before play commences.
6.35 Consideration will be given to the following factors:
- proximity of premises to schools and vulnerable adult centres (for example, a centre for gambling addicts);
- proximity to residential areas where there may be a high concentration of families with children; and
- town centre or edge of town centre locations.
6.36 It should be noted that a permit cannot be issued in respect of a vessel or a vehicle.
6.37 The applicant must be 18 years of age or over. Relevant convictions will be taken into account especially with respect to child protection issues.
Travelling fairs
6.38 Provided a travelling fair allows only category D gaming machines to be made available, and the facilities for gambling (whether by way of gaming machine or otherwise) amount together to no more than an ancillary amusement at the fair, then no application for a licence is required under the Act. The Authority will want to satisfy itself from time to time that gambling at a travelling fair is within the definition of section 286 of the Act. A guide for those wishing to operate gambling machines at travelling fairs is available on the Commission website.
Small society lotteries
6.39 Small Society lotteries are distinguished from large society lotteries by the amount of the proceeds that they generate. A lottery is small if the total value of tickets put on sale in a single lottery is £20,000 or less and the aggregate value of the tickets put on sale in a calendar year is £250,000 or less. Other lotteries are dealt with by the Gambling Commission.
6.40 Small society lotteries are required to be registered with the local Authority in the area where their principal office is located.
Temporary use notices
6.41 Premises which are not licensed for gambling may be used by a licensed operator for an aggregate period of 21 days in 12 months for prescribed types of gambling. In order to do so, the operator must serve a temporary use notice (or notices) on the Authority, the Commission and the Police. These are the only bodies who may object to such a notice. There are a number of statutory limits as regards Temporary Use Notices. It is noted that it falls to the Authority to decide what constitutes a “set of premises” where Temporary Use Notices are received relating to the same building/site (see Gambling Commission’s Guidance to Licensing Authorities).
Occasional use notices
6.42 Betting on unlicensed tracks may be authorised for up to 8 days in a calendar year by the service of occasional use notices by the occupier of the track or the person responsible for the administration of the event. The Authority has very little discretion as regards these notices aside from ensuring that the statutory limit of eight days in a calendar year is not exceeded. The Authority will need to consider whether a Notice in respect of premises can be dealt with under the definition of a “Track”. It will also need to consider whether the Applicant is permitted to avail him/herself of the notice, however, there is no provision for objections to be made to this type of activity or for it to be prohibited.
No casino resolution
6.43 The Authority has not passed a “no Casino resolution” under Section 166 of the Gambling Act 2005, but is aware that it has the power to do so. Should the Authority decide in the future to pass such a resolution, it will update this Policy Statement with details of that resolution.
Bingo
6.44 The holder of a bingo operating licence will be able to apply for a bingo premises licence to provide any type of bingo game including cash and prize bingo. Commercial bingo halls will also require a bingo premises licence from the Authority. If the only type of bingo to be provided is prize bingo then this may be authorised by way of a permit.
6.45 If children are allowed to enter premises licensed for bingo, then controls must be in place to prevent them from participating in gambling, other than on category D machines. Where category C or above machines are available in premises to which children are admitted the Authority will expect to see that:
- all such machines are located in an area of the premises separate from the remainder of the premises by a physical barrier which is effective to prevent access other than through a designated entrance;
- only adults (over 18s) are admitted to the area where the machines are located;
- access to the area where the machines are located is supervised;
- where the machines are located is arranged so that it can be observed by staff of the operator or the licence holder; and
- at the entrance to, and inside any such an area, there are prominently displayed notices indicating that access to the area is prohibited to persons under 18.
6.46 The Gambling Commission has issued guidance about the need for licensing authorities take into account the suitability and layout of bingo premises. Therefore, plans should make clear what is being sought for authorisation under the bingo premises licence and what, if any, other areas are to be subject to a separate application for a different type of premises licence.
6.47 A limited number of gaming machines may also be made available at bingo licensed premises.
6.48 Bingo is a class of equal chance gaming and is permitted in alcohol licensed premises and in clubs provided it remains below a certain threshold as directed by the law, otherwise it will be require a bingo operating licence which will have to be obtained from the Gambling Commission.
Provisional statements
6.49 Developers may wish to apply to this Authority for provisional statements before entering into a contract to buy or lease property or land to judge whether a development is worth taking forward in light of the need to obtain a premises licence. There is no need to hold an operating licence in order to apply for a provisional statement.
7. Inspection and enforcement
General statement
7.1 The Authority will have regard to its General / Corporate Enforcement Policy, the relevant provisions of the Act, any relevant guidance and / or codes of practice when considering taking enforcement action.
7.2 It is the intention of the Authority to establish and maintain enforcement protocols with other enforcement agencies.
Inspections
7.3 The Authority will inspect gambling premises and facilities for compliance with the Act and any licence conditions through the application of a risk based inspection programme.
7.4 The inspection programme will in principle operate a light touch in respect of low-risk premises whilst applying greater attention to those premises which are considered to present a higher risk.
7.5 In addition to programmed inspections the licensing Authority will also investigate any evidence based complaints that it receives.
Policy Four
The Authority will adopt a risk based assessment approach for determining the frequency of compliance inspections. The risk rating will be based broadly on the following factors:
- location of the premises and their impact on the surrounding area;
- enforcement history of the premises;
- nature of the licensed or permitted operation;
- potential to have an adverse affect on the licensing objectives; and
- management record.
Reason: To provide a targeted and cost efficient enforcement service which will encourage and improve operating practice, promote the licensing objectives, and drive out poor practices; whilst at the same time meet accepted best practice principles of compliance inspection.
Enforcement
7.7 In general the Gambling Commission will take the lead on the investigation and where appropriate, the prosecution of illegal gambling. There may be occasions on which the licensing Authority is better placed to take the lead, particularly where there is illegal activity on a smaller scale confined to the Authority’s area.
7.8 Where a licensed premise is situated in more than one administrative area then this Authority will liaise with the other Authority to determine the most appropriate course of action and who will lead any investigation or prosecution.
7.9 Part 15 of the Act gives “authorised persons” power of investigation and section 346 enables licensing authorities to institute criminal proceedings in respect of offences described in that section. In exercising these functions the licensing Authority will endeavour to follow the Regulators code and Hampton principles. The principles require that enforcement should be:
- Proportionate: regulators should only intervene when necessary: remedies should be appropriate to the risk posed, and costs identified and minimised;
- Accountable: regulators must be able to justify decisions, and be subject to public scrutiny;
- Consistent: rules and standards must be joined up and implemented fairly;
- Transparent: regulators should be open, and keep regulations simple and user friendly; and
- Targeted: regulation should be focused on the problem, and minimise side effects.
7.10 The licensing Authority will work closely with the Gambling Commission and exchange information on suspected illegal gambling and any proposed action that the Authority considers necessary.
7.11 The main enforcement and compliance role for the licensing Authority in terms of the Gambling Act 2005 will be to ensure compliance with the Premises Licences and other permissions which it authorises. The Gambling Commission will be the enforcement body for Operator and Personal Licences. It is also worth noting that concerns about manufacture, supply or repair of gaming machines will not be dealt with by the licensing Authority but will be notified to the Gambling Commission.
7.12 The Authority may institute proceedings in respect of a number of offences as identified in section 346 of the Act.
7.13 The Authority will avoid duplication with other regulatory regimes.
8. Glossary of terms
Many of the terms used in this statement of licensing policy are defined in the appropriate section of the Act. Section 353 identifies various terminologies and directs the reader to the relevant section of the Act, where appropriate, for a full and complete meaning of the term.
In the interests of clarity the following terms, which are used in this statement of licensing policy, are defined below.
| Terminology | Definition |
|---|---|
| the act | The Gambling Act 2005 (c19) |
| Authority | This refers to the “licensing Authority” as defined by section 2 of the Act |
| authorised person | An officer of a licensing Authority, and an officer of an Authority other than a licensing Authority, both of whom have been authorised for a purpose relating to premises in that Authority’s area |
| authorised local authority officer | An officer of a licensing Authority who is an authorised person for a purpose relating to premises in that Authority’s area |
| Gambling Commission | An organisation established under section 20 of the Act that is responsible for regulating gambling in Great Britain |
| guidance | “Guidance to licensing authorities”, issued by the gambling commission under section 25 of the Gambling Act 2005 |
| interested parties | Defined at paragraph 2.3 of this statement of licensing principles |
| mandatory condition | A condition that must be placed on a licence by virtue of regulations |
| regulations | Refers to regulations made under the Gambling Act 2005 |
| responsible authorities | Public bodies that must be notified of applications for premises licences and they also have the right to make representations in relation to those applications. They are listed in full in section 157 of the Act. |
9. Appendix One - list of bodies and organisations consulted
- Association of British Bookmakers
- Licensing Solicitors
- British Beer and Pub Association
- Gambling Commission
- HM Revenue and Customs
- Nottinghamshire Police
- Nottinghamshire Police and Crime Commissioner
- Nottinghamshire Fire and Rescue
- Nottinghamshire Safeguarding Children Partnership
- Nottinghamshire Safeguarding Adults Board
- Parish and Town Councils
- West Bridgford Local Area Forum
- Rushcliffe Borough Councillors
- Rushcliffe Borough Council Environmental Health Service
- Rushcliffe Borough Council Development Control
- Representatives of the various licences and permits for premises within the area who will be affected by this policy including premises licensed under the Gambling Act 2005 and Licensing Act 2003.
- Bingo Association
- GamCare
- BACTA
- Public Heath England
Accessible Documents
- Air Quality Action Plan 2021
- Air Quality Annual Status Report 2023
- Air Quality Annual Status Report 2022
- Air Quality Annual Status Report 2021
- Air Quality Strategy for Nottingham and Notts
- Auditor's Annual Report 2021
- Internal Audit Annual Report 2021/22
- Auditor's Annual Report 2021-22
- Annual Governance Statement 2021-22
- Annual Governance Statement 2020-21
- Asset Management Strategy
- Become a Councillor 2022
- Budget and Financial Strategy 2021-22
- Budget and Financial Strategy 2022-23
- Budget and Financial Strategy 2023-24
- Budget and Financial Strategy 2024-25
- Capital and Investment Strategy
- Climate Change Strategy 2021-2030
- Compulsory Purchase Order Procedure Protocol
- Confidential Reporting Code
- Corporate Enforcement Policy
- Corporate Strategy 2024-2027
- Council Constitution
- Council Tax Recovery and Enforcement Policy 2023
- Customer Access Strategy
- Discretionary Housing Payments Policy 2023-2024
- Disabled Facilities Grant Policy 2022
- Equalities Scheme 2021-25
- Empty Homes Strategy
- Environment Policy 2023
- External and Internal Communications Strategy
- Freedom Of Information Policy
- HB Recovery and Enforcement Policy
- Homelessness and Rough Sleeping Strategy
- Housing Allocations Policy
- ICT Strategy 2022 -25
- Information Management and Governance Strategy 2022-25
- Rushcliffe Borough Council Information Retention Schedule
- Leisure Strategy 2021-2027 review
- Local Code of Corporate Governance 2021/22
- Local Plan Part 1: Core Strategy
- Local Plan Part 2: Land and Planning Policies
- Local Scheme of Validation
- Off-street Car Parking Strategy
- Pay Policy Statement
- People Strategy 2021-26
- Planning Enforcement Policy
- Procurement Strategy
- Playing Pitch Strategy 2022
- 2021-22 Public Inspection Notice
- RIPA Policy and Guidance
- Risk Management Strategy 2023-26
- Rushcliffe Nature Conservation Strategy
- Statement of Gambling Licensing Principles
- Statement of Accounts 2019-20
- Statement of Accounts 2020-21
- Statement of Accounts 2021-22
- Statement of Accounts 2021-22 (unaudited)
- Statement of Accounts 2022-23 (unaudited)
- Statement of Accounts 2022-23 (audited)
- Statement of Licensing Policy
- Tenancy Strategy 2019
- Transformation Strategy and Efficiency Plan
- Tree Management and Protection Policy 2023
- WISE Agreement
- Neighbourhood Plans
- Conservation Areas
- Supplementary Planning Documents
- Local Plan Monitoring Report
- Complaints Policy