alcohol licensing
A learning log
an evidence learning set (ELS) with kent county council, West Northamptonshire Council, blackburn with darwen borough council, south tyneside council and central bedfordshire council 2025-26
ELS #1 the brief. alcohol licensing
Situation
Objectives
Key Facts
- To support local government to work with the evidence
- To provide a setting to make sense of the evidence
- To provide an opportunity to share local knowledge
- To bring our learning together for action & sharing
Alcohol use is a significant public health problem. Alcohol-specific deaths are growing and both alcohol-specific and -related hospital admissions have been increasing over time (OHID 2025).
alcohol licensing
Local authorities have a statutory role in alcohol licensing. Public health is responsible authority but has limited powers. Public health is not one of the 4 licensing objectives in the 2003 Act.
Problem Statements
- The first Evidence Learning Set (20.11.25) focused on the problem of alcohol licensing
- Participants (n=7) described the challenges in their setting
evidence learning set
KNOW-PH is leading a six-part evidence learning set between November 2025 and February 2026 to help address the problem of public health engagement in alcohol licensing.
+Info
+Info
ELS #2 responding to the problem of influence
study: public health engagement in licensing in england/scotland
RQ: Does intensive public health engagement in alcohol licensing reduce alcohol-related harms, in local authorities where such activity exists, compared with authorities with low levels of, or no, such activity?
- 4 year study (2017-2021)
- Very robust methods using data from 2012-2019
- 9 outputs from the study
Licensing as an 'alcohol availability intervention' (in a complex system) Recognition that PH commitment to licensing has implications - a trade off
what types of activity do public health professionals engage in?
headline finding
Responding to applications
Staff related
"No clear evidence of association between level of public health team activity and the health or crime outcomes examined"
Using data
Reviewing
+Info
+Info
Public involvement
Influencing
NB 19 activities identified in total
issues and possibilities. learning from scotland
the public health objective in scotland influenced activity
assist relationships
support for objective in england & wales
unique contributions
overall more activity in scotland
Public health teams were able to establish a sustainable and constructive role
Public health teams had expertise in data and knowledge
An objective would add legitimacy to public health involvement
Raising the profile of public health in licensing systems
engaging in different ways. strategies and tactics
approaches
three models
Health stakeholders took three different approaches to their work with the licensing system
Active Close partnership with licensing teams. Challenge + influence
Reactive Data or other support when police or other colleagues asked
Challenging Reducing availability to change drinking culture in the long term
overall
- Some English public health teams were not involved at all in in licensing processes
- The PH objective introduced in Scotland slowly reoriented local licensing systems
- More strategic approach to Statement of Licensing Policy input over time in Scotland - more context, explanations of policy positions, more supporting evidence & inclusion of views of consultees
- Being able to talk about how reducing alcohol availability can reduce harm seems important but is underexplored
References
Bibliography
+Info
+Info
some additional ideas
- Consider opening hours, not just numbers of premises & their location (international evidence supports this). More compatible with economic development than preventing granting licenses
- Small changes, potentially through evidence/data expertise, could show the value of PH input and contribute to small steps towards more routine involvement
els #3 community engagement in alcohol licensing decision-making
what does community involvement in licensing decision making look like?
typology
2018 study
Identifying mechanisms to engage the community in local alcohol decision making - link to study report
The study revealed four main types of community engagement
useful references
Overall insight from the study
See links for full reports, papers and resources
Four main insights and some reflections on what it means for partners
els #4 'sweetspot' policies
balancing health with statutory objectives
headlines
recap
- There is good evidence that increasing the price of shop-bought alcohol is a sweetspot policy.
-
Restricting remote/online alcohol sales is also a likely sweetspot policy.
- Measures to shape or manage the night-time economy are less well supported by evidence.
Licensing Act 2003 does not have a public health objective. We have looked at evidence from Scotland that indicates such an objective would be useful but it not a panacea. We will need to adopt other strategies.
+Info
+Info
+Info
+Info
overcoming competing local priorities
Experience and the evidence show that economic drivers can 'trump' other arguments about alcohol control. How can we deal with this dilemma?
how could these findings be actioned?
+Info
+Info
- Requires some careful thinking
- Pricing not within local government gift
- But some strategies and tactics could be shaped for potential local benefit
four policy options explored
Using the evidence and knowledge of the policy environment, the researchers explored four feasible options.
+Info
+Info
+Info
+Info
strategies & tactics. possibilities emerging from the evidence
on-line
discussing options for action
Do you have any powers over local licenses that include delivery?
It is difficult to assess from the NIHR research I have seen but the evidence available suggests off-sales and on-line delivery cause meaningful additional harm.
+Info
+Info
speed
provider
time
Delay?
Restrict hours?
On- vs. off-?
what might be possible?
References
offers
VOLUME
TYPE
Bibliography
+Info
+Info
Discounting, BOGOF
Restrict amounts?
Draught, wine - not spirits?
ELS #5 alcohol licensing matrices. examples and usage
what's a matrix?
They rank local areas in terms of alcohol-related harm risk. They appear to be often led by public health teams.
Alcohol licensing matrices are data-driven tools that provide key information that can be considered for alcohol licensing decision makers.
+Further info
EXAMPLES OF MATRICES
what a matrix can and can't do
A matrix is a decision-support tool.
+Kirklees
+Bury
+Leeds
Not been evaluated to assess reductions in harm
Can be easy to use and visualise e.g. problem hot spots
Useful for Cumulative Impact Assessments
+Central Beds
ELS #6. outputs and cocreation
where should public health put its energy? a decision support tool
Suggested citation for this learning log: Such, E. (2026) Alcohol licensing: A learning log. https://view.genially.com/6920786c33dd5b5d7424292e
Disclaimer
Knowledge for Public Health (KNOW-PH) is funded by the National Institute for Health and Care Research (NIHR) Public Health Research programme, project reference number NIHR159057. The views expressed are those of the author(s) and not necessarily those of the NIHR or the Department of Health and Social Care.
evidence
Public health teams had access to data and knowledge. These could be better used to promote good practice & help shape the retail environment.
useful references
lessons from covid lockdowns
sweetspot policy
Fitzgerald et al. (2022) Lockdown and licensed premises: COVID-19 lessons for alcohol policy
Fitzgerald et al. (2024) Reducing alcohol harms whilst minimising impact on hospitality businesses: ‘Sweetspot’ policy options
Reducing alcohol harms whilst minimising impact on hospitality
businesses: ‘Sweetspot’ policy options
Published 2024. A study of policy 'win-win' options: "those with potential to benefit public services and health, whilst avoiding or minimising negative impact on the hospitality sector" (p.1) (on-licenses).
four types of community engagement
- Statutory routes (‘responsive mode’). Members of the community making representations of their own.
- Consultation for policy development (formal and informal)
- Invited representation e.g. to task-oriented groups
- Longer term strategic engagement
a recap of the 4 licensing objectives in england
i) The prevention of crime and disorder, ii) public safety, iii) the prevention of public nuisance and, iv) the protection of children from harm.
problem clusters
What 'good' looks like - objections, safer/less harmful decisions, public health influence. Coalitions - with officials, elected members, communities. Optimising engagement - strategies, tactics, triaging.
Staffing activity
- Included senior leadership & staff continuity
- Both activities graded 'high' "according to their likely relative impact on alcohol-related health harms and crime"
example matrix content (leeds)
- Population characteristics including deprivation score, NEET & others
- hospital alcohol admissions
- GP alcohol harm assessment score
- looked after children
- youth offences
- Off- & on- licensed premises density
- alcohol related anti-social behaviour
- alcohol flagged crimes, inclusing violent crime
- drunk and disorderly data
- clients who use alcohol services
- licensing risk scores.
1. Niamh Fitzgerald et al. Exploring the impact of public health teams on alcohol premises licensing in England and Scotland (ExILEnS): protocol for a mixed methods natural experiment evaluation. BMC Med Res Methodol 2018;18:123. https://doi.org/10.1186/s12874-018-0573-z1 2. Richard Purves et al. Demonstrating diverse public health team activity to influence alcohol premises licensing: Qualitative findings from the ExILEnS study. Under review. Public Health Research. 3. Niamh Fitzgerald et al. Factors influencing public health engagement in alcohol licensing in England and Scotland including legal and structural differences: comparative interview analysis. In Press, Public Health Research. 4. Niamh Fitzgerald et al. Measuring how PH stakeholders seek to influence alcohol premises licensing in England and Scotland: the Public Health engagement In Alcohol Licensing (PHIAL) measure. Journal of Studies on Alcohol and Drugs. https://doi.org/10.15288/jsad.22-000202 5. James Nicholls et al. ‘Give us the real tools to do our jobs’: views of UK stakeholders on the role of a public health objective for alcohol licensing Public Health 211 2022. https://doi.org/10.1016/j.puhe.2022.07.0063 6. Rachel O’Donnell et al. Mechanisms of impact of alcohol availability interventions from the perspective of 63 diverse alcohol licensing stakeholders: a qualitative interview study. Drugs: Education, Prevention and Policy 2023. https://doi.org/10.1080/09687637.2023.2205991 7. Frank de Vocht et al. Impact of public health team engagement in alcohol licensing on health and crime outcomes in England and Scotland: A comparative timeseries study between 2012 and 2019. The Lancet Regional Health – Europe 2022;20:100450 (published online 30 June 2022). https://doi.org/10.1016/j.lanepe.2022.1004504 8. Rachel O’Donnell et al. How public health teams navigate their different roles in alcohol premises licensing: ExILEnS multi-stakeholder interview findings (published online August 24 2022). Public Health Res 2022. https://doi.org/10.3310/XCUW12395 9. Niamh Fitzgerald et al. Public health engagement in alcohol licensing in England and Scotland: the ExILEnS mixed-method, natural experiment evaluation. Public Health Research.
Four 'sweet-spot' policy options
- Structured pricing interventions including minimum pricing and alcohol taxation (not within the gift of LAs)
- Regulation of online sales: including emerging remote off-sales via delivery services (some options?)
- Place shaping: prioritising licensing of venues with less of a focus on alcohol consumption (LAs currently using)
- Violence reduction interventions in or around NTE premises including changes in serving or closing times
expert quote
There’s been two major groups that have been hugely affected by
rapid online delivery and that is alcoholics [sic] and family violence.
They are the two that are really suffering from online [deliveries]…
talking about the fear of the ‘knock, knock, knock’ on the door of the
alcohol being delivered but also just how devastating it is to be an
alcoholic [sic] in this age. At least you used to have to go out the door
to get a drink, now you’ve got apps pinging you saying “buy more
alcohol”. So I think the delayed delivery saying at least one hour and
certainly time limits to say not after 10pm would be very reasonable.
[Workshop 2] (p.5)
enabling
Inclusion of the objective was significant in enabling better engagement. "One [respondent] commenting that they couldn’t ‘underestimate the value of it being written down … within a law’."
Useful references
Exploring community engagement in local alcohol decision making
Web page for the project
community involvement: a literature review
Journal publication
3 local authority case studies
Journal publication
a databank for alcohol trends
Latest trends on alcohol consumption in England from the Alcohol Toolkit Study
overall insight
There are four main insights that may be useful for us:
DISCUSSION POINTS 05.01.26
- Who to involve? Lived experience of personal alcohol problems may be powerful.
- Unheard voices. Outreach may be needed.
- Building from existing networks - more efficient than building new.
2. There is a range of ways communities can influence alcohol environment (no single 'play book')
1. There is value in engagement for building relationships and knowledge in communities.
3. Different groups engage, reflecting different interests in alcohol environment. Be alert to whose voice is the loudest
4. Top-down vs bottom-up engagement approaches. Top-down dominant - any opportunities for bottom-up?
beyond symbolic
Although positive relationships were evident, effective working relationships would be better enabled to support the reduction of public health risks if an objective were in place
pragmatic
Not a strong belief that an objective would (or should) significantly reduce outlets or increase application rejection but would help 'make the case from a health perspective'. Evidence of lower confidence - more passive approach overall.
broad conclusion
"Restrictions on online sales such as speed or timing of delivery may reduce harm and diversion of consumption from on-trade to home settings. Placeshaping is not well-supported by evidence and experts were sceptical. Reduced late-night trading hours likely reduce violence; evidence of impact on hospitality is scant. Other violence reduction initiatives may modestly reduce harms whilst supporting hospitality, but require resources to deliver multiple measures simultaneously in partnership" (p.1).
in both england and scotland
There was no measurable impact of greater public health involvement in alcohol licensing on health harms & crimes in England or Scotland.
However, there were qualitatively positive views about public health involvement.
additional highlights
Alcohol policies that protect public health do not necessarily harm bars (useful for messaging?) ‘Sweetspot’ policies are those which can improve public health without affecting hospitality businesses.
Alcohol licensing Evidence Learning Sets
e.such
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Transcript
alcohol licensing
A learning log
an evidence learning set (ELS) with kent county council, West Northamptonshire Council, blackburn with darwen borough council, south tyneside council and central bedfordshire council 2025-26
ELS #1 the brief. alcohol licensing
Situation
Objectives
Key Facts
Alcohol use is a significant public health problem. Alcohol-specific deaths are growing and both alcohol-specific and -related hospital admissions have been increasing over time (OHID 2025).
alcohol licensing
Local authorities have a statutory role in alcohol licensing. Public health is responsible authority but has limited powers. Public health is not one of the 4 licensing objectives in the 2003 Act.
Problem Statements
evidence learning set
KNOW-PH is leading a six-part evidence learning set between November 2025 and February 2026 to help address the problem of public health engagement in alcohol licensing.
+Info
+Info
ELS #2 responding to the problem of influence
study: public health engagement in licensing in england/scotland
RQ: Does intensive public health engagement in alcohol licensing reduce alcohol-related harms, in local authorities where such activity exists, compared with authorities with low levels of, or no, such activity?
Licensing as an 'alcohol availability intervention' (in a complex system) Recognition that PH commitment to licensing has implications - a trade off
what types of activity do public health professionals engage in?
headline finding
Responding to applications
Staff related
"No clear evidence of association between level of public health team activity and the health or crime outcomes examined"
Using data
Reviewing
+Info
+Info
Public involvement
Influencing
NB 19 activities identified in total
issues and possibilities. learning from scotland
the public health objective in scotland influenced activity
assist relationships
support for objective in england & wales
unique contributions
overall more activity in scotland
Public health teams were able to establish a sustainable and constructive role
Public health teams had expertise in data and knowledge
An objective would add legitimacy to public health involvement
Raising the profile of public health in licensing systems
engaging in different ways. strategies and tactics
approaches
three models
Health stakeholders took three different approaches to their work with the licensing system
Active Close partnership with licensing teams. Challenge + influence
Reactive Data or other support when police or other colleagues asked
Challenging Reducing availability to change drinking culture in the long term
overall
References
Bibliography
+Info
+Info
some additional ideas
els #3 community engagement in alcohol licensing decision-making
what does community involvement in licensing decision making look like?
typology
2018 study
Identifying mechanisms to engage the community in local alcohol decision making - link to study report
The study revealed four main types of community engagement
useful references
Overall insight from the study
See links for full reports, papers and resources
Four main insights and some reflections on what it means for partners
els #4 'sweetspot' policies
balancing health with statutory objectives
headlines
recap
Licensing Act 2003 does not have a public health objective. We have looked at evidence from Scotland that indicates such an objective would be useful but it not a panacea. We will need to adopt other strategies.
+Info
+Info
+Info
+Info
overcoming competing local priorities
Experience and the evidence show that economic drivers can 'trump' other arguments about alcohol control. How can we deal with this dilemma?
how could these findings be actioned?
+Info
+Info
four policy options explored
Using the evidence and knowledge of the policy environment, the researchers explored four feasible options.
+Info
+Info
+Info
+Info
strategies & tactics. possibilities emerging from the evidence
on-line
discussing options for action
Do you have any powers over local licenses that include delivery?
It is difficult to assess from the NIHR research I have seen but the evidence available suggests off-sales and on-line delivery cause meaningful additional harm.
+Info
+Info
speed
provider
time
Delay?
Restrict hours?
On- vs. off-?
what might be possible?
References
offers
VOLUME
TYPE
Bibliography
+Info
+Info
Discounting, BOGOF
Restrict amounts?
Draught, wine - not spirits?
ELS #5 alcohol licensing matrices. examples and usage
what's a matrix?
They rank local areas in terms of alcohol-related harm risk. They appear to be often led by public health teams.
Alcohol licensing matrices are data-driven tools that provide key information that can be considered for alcohol licensing decision makers.
+Further info
EXAMPLES OF MATRICES
what a matrix can and can't do
A matrix is a decision-support tool.
+Kirklees
+Bury
+Leeds
Not been evaluated to assess reductions in harm
Can be easy to use and visualise e.g. problem hot spots
Useful for Cumulative Impact Assessments
+Central Beds
ELS #6. outputs and cocreation
where should public health put its energy? a decision support tool
Suggested citation for this learning log: Such, E. (2026) Alcohol licensing: A learning log. https://view.genially.com/6920786c33dd5b5d7424292e
Disclaimer Knowledge for Public Health (KNOW-PH) is funded by the National Institute for Health and Care Research (NIHR) Public Health Research programme, project reference number NIHR159057. The views expressed are those of the author(s) and not necessarily those of the NIHR or the Department of Health and Social Care.
evidence
Public health teams had access to data and knowledge. These could be better used to promote good practice & help shape the retail environment.
useful references
lessons from covid lockdowns
sweetspot policy
Fitzgerald et al. (2022) Lockdown and licensed premises: COVID-19 lessons for alcohol policy
Fitzgerald et al. (2024) Reducing alcohol harms whilst minimising impact on hospitality businesses: ‘Sweetspot’ policy options
Reducing alcohol harms whilst minimising impact on hospitality businesses: ‘Sweetspot’ policy options
Published 2024. A study of policy 'win-win' options: "those with potential to benefit public services and health, whilst avoiding or minimising negative impact on the hospitality sector" (p.1) (on-licenses).
four types of community engagement
a recap of the 4 licensing objectives in england
i) The prevention of crime and disorder, ii) public safety, iii) the prevention of public nuisance and, iv) the protection of children from harm.
problem clusters
What 'good' looks like - objections, safer/less harmful decisions, public health influence. Coalitions - with officials, elected members, communities. Optimising engagement - strategies, tactics, triaging.
Staffing activity
example matrix content (leeds)
1. Niamh Fitzgerald et al. Exploring the impact of public health teams on alcohol premises licensing in England and Scotland (ExILEnS): protocol for a mixed methods natural experiment evaluation. BMC Med Res Methodol 2018;18:123. https://doi.org/10.1186/s12874-018-0573-z1 2. Richard Purves et al. Demonstrating diverse public health team activity to influence alcohol premises licensing: Qualitative findings from the ExILEnS study. Under review. Public Health Research. 3. Niamh Fitzgerald et al. Factors influencing public health engagement in alcohol licensing in England and Scotland including legal and structural differences: comparative interview analysis. In Press, Public Health Research. 4. Niamh Fitzgerald et al. Measuring how PH stakeholders seek to influence alcohol premises licensing in England and Scotland: the Public Health engagement In Alcohol Licensing (PHIAL) measure. Journal of Studies on Alcohol and Drugs. https://doi.org/10.15288/jsad.22-000202 5. James Nicholls et al. ‘Give us the real tools to do our jobs’: views of UK stakeholders on the role of a public health objective for alcohol licensing Public Health 211 2022. https://doi.org/10.1016/j.puhe.2022.07.0063 6. Rachel O’Donnell et al. Mechanisms of impact of alcohol availability interventions from the perspective of 63 diverse alcohol licensing stakeholders: a qualitative interview study. Drugs: Education, Prevention and Policy 2023. https://doi.org/10.1080/09687637.2023.2205991 7. Frank de Vocht et al. Impact of public health team engagement in alcohol licensing on health and crime outcomes in England and Scotland: A comparative timeseries study between 2012 and 2019. The Lancet Regional Health – Europe 2022;20:100450 (published online 30 June 2022). https://doi.org/10.1016/j.lanepe.2022.1004504 8. Rachel O’Donnell et al. How public health teams navigate their different roles in alcohol premises licensing: ExILEnS multi-stakeholder interview findings (published online August 24 2022). Public Health Res 2022. https://doi.org/10.3310/XCUW12395 9. Niamh Fitzgerald et al. Public health engagement in alcohol licensing in England and Scotland: the ExILEnS mixed-method, natural experiment evaluation. Public Health Research.
Four 'sweet-spot' policy options
expert quote
There’s been two major groups that have been hugely affected by rapid online delivery and that is alcoholics [sic] and family violence. They are the two that are really suffering from online [deliveries]… talking about the fear of the ‘knock, knock, knock’ on the door of the alcohol being delivered but also just how devastating it is to be an alcoholic [sic] in this age. At least you used to have to go out the door to get a drink, now you’ve got apps pinging you saying “buy more alcohol”. So I think the delayed delivery saying at least one hour and certainly time limits to say not after 10pm would be very reasonable. [Workshop 2] (p.5)
enabling
Inclusion of the objective was significant in enabling better engagement. "One [respondent] commenting that they couldn’t ‘underestimate the value of it being written down … within a law’."
Useful references
Exploring community engagement in local alcohol decision making
Web page for the project
community involvement: a literature review
Journal publication
3 local authority case studies
Journal publication
a databank for alcohol trends
Latest trends on alcohol consumption in England from the Alcohol Toolkit Study
overall insight
There are four main insights that may be useful for us:
DISCUSSION POINTS 05.01.26
2. There is a range of ways communities can influence alcohol environment (no single 'play book')
1. There is value in engagement for building relationships and knowledge in communities.
3. Different groups engage, reflecting different interests in alcohol environment. Be alert to whose voice is the loudest
4. Top-down vs bottom-up engagement approaches. Top-down dominant - any opportunities for bottom-up?
beyond symbolic
Although positive relationships were evident, effective working relationships would be better enabled to support the reduction of public health risks if an objective were in place
pragmatic
Not a strong belief that an objective would (or should) significantly reduce outlets or increase application rejection but would help 'make the case from a health perspective'. Evidence of lower confidence - more passive approach overall.
broad conclusion
"Restrictions on online sales such as speed or timing of delivery may reduce harm and diversion of consumption from on-trade to home settings. Placeshaping is not well-supported by evidence and experts were sceptical. Reduced late-night trading hours likely reduce violence; evidence of impact on hospitality is scant. Other violence reduction initiatives may modestly reduce harms whilst supporting hospitality, but require resources to deliver multiple measures simultaneously in partnership" (p.1).
in both england and scotland
There was no measurable impact of greater public health involvement in alcohol licensing on health harms & crimes in England or Scotland.
However, there were qualitatively positive views about public health involvement.
additional highlights
Alcohol policies that protect public health do not necessarily harm bars (useful for messaging?) ‘Sweetspot’ policies are those which can improve public health without affecting hospitality businesses.