Late Night Levy (Application and Administration) Regulations 2012

Baroness Stowell of Beeston Excerpts

Monday 8th October 2012 Grand Committee

Moved by

[Baroness Stowell of Beeston]

That the Grand Committee do report to the House that it has considered the Late Night Levy (Application and Administration) Regulations 2012.

Relevant documents: 6th Report Joint Committee on Statutory Instruments.

[Baroness Stowell of Beeston]

My Lords, I beg to move that the Grand Committee considers the Late Night Levy (Application and Administration) Regulations 2012, which were laid before Parliament on 4 July.

Alcohol-related crime and disorder is a serious problem for many communities. In 2010-11 there were almost 1 million alcohol-related violent crimes. That is approximately half of all violent crimes. As the Committee is aware, the Government have already taken significant steps to rebalance the Licensing Act to enable local agencies to tackle alcohol-related crime and disorder more effectively. For instance, from April 2012 local agencies have been able to challenge irresponsible businesses more easily by refusing, revoking or imposing conditions on a licence, as the evidential threshold has been reduced from what is “necessary” to what is “appropriate” to take such steps.

In March the Government also published our alcohol strategy, which signals a radical change in approach to dealing with binge drinking and tackling the harms caused by excessive alcohol consumption. The strategy is clear that turning the tide against irresponsible drinking will require collective action, and it includes a range of measures such as reducing the availability of cheap alcohol and supporting responsible businesses and growth.

Alcohol-related crime and disorder costs the taxpayer approximately £11 billion every year, and the police regard the night-time economy as one of the main causes of overtime payments. Many businesses profit from selling alcohol in a safe night-time economy. It is right that those businesses make a reasonable contribution towards late-night policing, rather than relying on other taxpayers in the community to bear the full costs.

The late night levy is a tool to help local agencies do just that by raising a contribution from late-opening alcohol retailers towards policing the night-time economy. Introduced by the Police Reform and Social Responsibility Act 2011, this relates to the coalition’s ambition to permit local councils to raise a contribution from those with late-night licences towards the cost of policing the night-time economy in England and Wales.

The levy is a discretionary power, and it is therefore for individual licensing authorities to decide whether it is appropriate in their area. If introduced by the local authority, any premises in the licensing authority’s area licensed to sell alcohol during the levy period will be liable to pay. The licensing authority chooses the period during which the levy applies between midnight and 6 am on each night and whether to apply exemptions and reductions from a menu prescribed in regulations, although not the regulations before the Committee today. The revenue raised by the levy will be split between the police and the licensing authorities, once licensing authority costs have been deducted, with the police receiving at least 70% and licensing authorities up to 30%.

The levy will raise an estimated £17.1 million each year across England and Wales. Once licensing authority administration costs are deducted, this should raise at least £11.1 million for the police and up to £4.7 million for local authorities, depending on how the revenue is split.

The regulations under consideration today relate to the application and administration of the levy. They set out a range of matters relevant to the administration, including the basis on which holders of premises, licences and club premises certificates are liable to pay the levy, including when they are liable, the charge for which they are liable and when they are liable to pay it; what adjustments may be made to their liability to the levy; how the licensing authority must pay the police their share of revenue and what it can spend its own portion on; and the consultation that licensing authorities must run prior to the introduction or variation of the levy.

It is worth highlighting two elements of these regulations which may be of particular interest: the types of services on which licensing authorities can spend their money, and the levy charge. During the consultation, a number of respondents raised the issue of how levy revenue could be spent locally. Licensing authorities in particular call for the types of services on which they could spend their share of the revenue to be broadened from those that prevent and tackle alcohol-related crime and disorder to services that are also connected to the management of the night-time economy.

The Committee will be pleased to hear that the Government have listened to licensing authorities. The regulations will therefore now enable licensing authorities to fund activities such as street cleaning—clearing up the broken glass and general debris that litters so many of our town centres in the morning—as well as services such as CCTV and taxi marshals.

The level of the late-night levy charge has remained the same since the levy provisions in the Police Reform and Social Responsibility Bill were considered by this House. We believe that this is a fair contribution, given the estimated £11 billion annual cost to the taxpayer of alcohol-related crime and disorder. The charges paid by those premises liable for the levy are determined on broadly the same basis as fees under the existing alcohol licensing regime. Premises are allocated to bands in accordance with their rateable value. These are the same bands as those used for determining the level of their fees under the Licensing Act, such as their annual fee. Moreover, the levy will in almost all cases be payable at the same time as the annual fee. It should therefore make the levy simple for licensing authorities to administer as they can collect it alongside the annual fee each year, keeping administration costs to a minimum.

Using the same design as the existing licence fee also means that premises that are likely to be larger and more profitable, such as a supermarket or large nightclub, are likely to pay more than a small one-roomed pub. We estimate that almost one-quarter of premises with the lowest rateable value—those in band A, such as many small pubs—will pay a contribution of £299 each year and over half of premises in the next band, band B, will pay £768 each year. Only around 0.5% of premises in the highest band, the largest city centre pubs and clubs that exclusively or primarily sell only alcohol for consumption on the premises, will pay the maximum levy charge of £4,440.

The Government are clear that local communities and agencies are best placed to tackle alcohol-related issues in their area and that the late-night levy is a critical tool in helping them to create the night-time economy that they want. They recognise the vital role of the police and licensing authorities in maintaining a safe night-time economy and will help to support the provision of visible and proactive policing and other services where they are needed. I hope that the Committee will agree with the Government that these regulations are an appropriate use of the powers conferred on the Home Secretary by the Police Reform and Social Responsibility Act. I beg to move.

--- Later in debate ---

I understand the principle that the Government are trying to address. My concerns here are specific: will this work and is it practical, or is there a danger that all the Government are doing here is cutting expenditure in one area and then passing on new costs to businesses—costs that have previously been covered by business rates and licence fees—to replace the funding that is being cut from their budgets?

[Baroness Stowell of Beeston]

My Lords, I am grateful to the noble Baroness, Lady Smith of Basildon, for her contribution, as well as my noble friend Lady Hamwee. I will seek to address the points that have been raised. I start by saying clearly that the late-night levy does not affect any pub or club that is open during standard opening hours—that is, not open beyond midnight. We are talking only about premises that are going to be late-night premises. It is important that I restate that because often, when we get into debates of this kind, when we are talking we quite naturally assume that everyone else knows that this relates only to a specific portion of a particular sector rather than to everyone.

I thank the noble Baroness for her warm welcome. In fact, one of the few things that have not changed in my range of responsibilities in the past few weeks is being Home Office Whip, so in fact I am staying put on this one. It is always a pleasure to face the noble Baroness at the Dispatch Box. I will try to address her points before I turn to my noble friend’s, which cover more specific points of detail, and it might be the simplest thing to take them in order.

The noble Baroness welcomed our commitment to review how the levy worked but asked why we said that we would do so a minimum of five years after it had taken place. To commit now to when we will conduct that review would be premature because we need to see how it operates before we can say that. However, I take the point on board; if the levy is not operating correctly, then we will need to review it sooner rather than later.

The noble Baroness asked about the 70:30 revenue split between the police and the local authority. I can confirm that the cost will be removed from the revenue before that split takes place. As to whether there will be any guidelines, or publication around those guidelines, so that a local authority prescribes costs at a reasonable level, we will specify in separate regulations the type of expenses that may be deducted by the licensing authority. There is a power in the regulations for a limit to be placed on the amount that licensing authorities can charge for certain administrative costs under the late-night levy, and this would be used only if it became clear that there was widespread overcharging of expenses by the licensing authorities.

I understand the noble Baroness’s wider point concerning transparency in how the money is spent, and people will want to see that. With regard to the use made by the police of the money they receive, I would expect the local police and crime commissioners, once they are in place and as part of their responsibility to make public how the police budgets are being used, to include some reference to this. However, that will obviously be a matter for them.

The noble Baroness, Lady Smith, asked how many police officers will be employed as a result of the late-night levy. It is not possible for me to be specific on that but I would reiterate a point that I made earlier. While, as I have said and she has acknowledged, the late-night levy is being introduced as a way of contributing to a range of measures to tackle late-night binge-drinking and all its effects, we are not expecting it to cover all policing costs around the late-night economy. It will make a contribution.

The noble Baroness asked about premises which are not currently open between midnight and 6 am, or which may want to take advantage of the window that will be open to them. Some establishments may decide to change their opening hours in order not to be caught by the levy, and there will be an opportunity for them to do so without incurring any costs. However, if there are premises whose licences allow them to open only prior to whatever time period the local authority decides to introduce, they will be able to apply for temporary extension notices for occasional events, as they do now.

[Baroness Smith of Basildon]

In those circumstances, I assume that they would not have to pay the late-night levy.

[Baroness Stowell of Beeston]

That is correct. The noble Baroness asked who is covered by the exemptions—a point also referred to by my noble friend Lady Hamwee. For the sake of accuracy, it is worth saying that the exemptions and reductions are not covered by these regulations; they are part of another set of regulations. However, the noble Baroness asked whether restaurants in particular would be exempt. A restaurant selling alcohol that was open during the period during which the local authority deemed the late-night levy would apply would be caught by the levy. However, excluded under the exemptions would be a hotel with overnight accommodation whose bar was open only to residents during the period of late-night levy that might be operational in another part of the authority. That hotel would not be caught.

My noble friend asked about exemptions. As I said, those are not strictly covered by these regulations, but I think that one of her points was to question why the exemptions are not by geographic area but by types of establishment—perhaps expressing her disappointment is a better way to define it. That is because it would be very difficult for the licensing authority to introduce the levy in that way. One of the things that we are trying to achieve is to make sure that this is the least burdensome that it can possibly be in terms of administrative cost. If a venue operating in a part of the licensing authority was caught by the levy charges, had opened in that levy’s time and had attracted any kind of policing need, policing costs would be involved by the very nature of the police probably having to leave the town centre to go to that area. However, there are specific exemptions, as my noble friend acknowledged. Venues such as country village pubs would fall under that heading.

The noble Baroness asked about the business improvement districts and how in particular they are caught by the exemptions. These matters are not the subject of the regulations today but we have made provision in separate regulations that business improvement districts with a crime prevention objective will be capable of being exempt from the levy, which addresses her concern on that. She also asked whether the licensing authority would have discretion on community premises. The authority will not have to make a new decision on community premises because they are already defined as a group of premises under the Licensing Act. If somebody’s premises fall under that heading, they are already identified as being premises of that kind.

Before I turn to the detail of my noble friend’s questions, the noble Baroness, Lady Smith, asked how many authorities we expect to introduce the levy. I think I am right in saying that the number she was referring me to was actually for the EMROs. As far as the late-night levy is concerned, we expect about 94 licensing authorities to take advantage of it.

As to the specific questions raised by my noble friend on why the licensing authority has discretion under Regulation 7(3), we believe that licensing authorities should have the discretion to adjust a holder’s liability if the licence is surrendered—for instance, because the licence holder ceases to trade. There is good reason for this. The availability of such discretion reflects the fact that the circumstances in which a licence holder may surrender the licence will vary considerably from case to case. For instance, a licensing authority might choose to exercise this discretion where the surrender is as a result of the licence holder suffering a long-term illness, but not in a case where a licence holder surrendered the licence in anticipation of it being revoked at a review hearing. We believe that it should be open to a licensing authority to decide that holders whose licences are revoked for contravening the licensing objectives should not be eligible for a reduction in their liability to the levy.

My noble friend also asked why premises under construction are to go into band C—a single band regardless of size—in Regulation 4(2). Premises that have a rateable value will be placed in the appropriate band. Regulation 4(2) addresses only those cases where there is no rateable value. Some premises, such as public parks or agricultural land, are exempt from rating. Where this is the reason that there is no rating, the premises are treated as being in the lowest band, band A. Where the premises have no rateable value because they are under construction, the premises are placed in band C.

Finally, my noble friend asked why, when there are two or more hereditaments, the rateable value is not the aggregate. The use of the higher band in Regulation 4(4), as opposed to the aggregate, is intended to reflect the way such a case would be treated under the current fees regulations as a matter of administrative convenience. It should be noted that this is expected to be a rare and temporary circumstance. Where there is identity of occupation, the premises will form a single hereditament.

I think I have covered the points that have been raised today. In conclusion, the levy is a key part of our work to rebalance the Licensing Act in favour of local communities. I am sure the Committee will agree that it is right that those businesses that benefit from selling alcohol late at night should make a reasonable contribution to late-night policing costs.

I am grateful for the support that has been voiced today by noble Lords.

[Baroness Hamwee]

With regard to my point about premises under construction, the Minister’s answer—and I do not blame her as it is all quite complicated—was, “Well, when they’re under construction, they’re in band C”, which is repeating the question rather than being an answer. Will she be able to let me have a note about the underlying thinking about why they will be in band C and why there is any need for a band to be attributed to premises which are not operating because they are still being constructed? I do not want to delay noble Lords now but I will be interested in the detail if the noble Baroness is able to deal with it after today.

[Baroness Stowell of Beeston]

I am grateful to my noble friend for her patience and for highlighting that I had not properly responded to her question. I will follow up in writing.

Motion agreed.