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Housing in Multiple Occupancy (HMO)

What is a HMO?

A House in Multiple Occupation (HMO) is a residential property occupied by three or more persons forming two or more households who share basic amenities such as a kitchen, bathroom or toilet, as defined by the Housing Act 2004 (Section 254 -257).

A household may be:

  • A single person
  • A cohabiting couple
  • Several members of the same family, all related by blood or marriage

For example, a house occupied by a brother, sister, and one other unrelated occupant forms two households. Three unrelated persons would form three households.
The number of tenancy agreements is not relevant in determining whether a house is an HMO.

Information for tenants

The council is responsible for enforcing HMO standards, so if you are a tenant living in a HMO and feel there are any unreasonable hazards and your HMO is not being managed properly  please report it.

You can contact Gloucester City Council on 01452 396 396 or email heretohelp@gloucester.gov.uk

Information for landlords

If you rent rooms in a house of multiple occupancy the property must meet the required standards for tenants, with regards to health, safety and welfare.

We have produced a HMO guide for landlords, agents and tenants so that you are aware of some of the standards and conditions landlords must meet with regards to HMO properties.

Download the Houses in Multiple Occupation - A Guide for Landlords, Managers and Tenants

House in Multiple Occupation (HMO) licensing

If you own or manage a house in multiple occupation (HMO) you may need a licence for the property. It is a criminal offence to operate a licensable HMO without a licence. Landlords who are caught operating a HMO without a licence may be fined or prosecuted.

All HMOs with 5 or more tenants living as 2 or more households currently require a HMO licence.
 
The Gloucester City Council Designation of an Area for Additional Licensing of Houses in Multiple Occupation 2026 designation was made on 09 June 2026. This HMO licensing designation shall come into force on 21 September 2026.

Click here to view the Additional Licensing designation Notice
 
This city wide (all wards) additional licensing designation applies to all HMOs within Gloucester that are occupied by 3 or more persons comprising 2 or more households and which fall within section 254 of the Act, but are not HMOs required to be licensed under the mandatory HMO licensing . This designation also applies to relevant HMOs falling within section 257 of the Act, namely certain buildings converted into self-contained flats where the conversion did not comply with the appropriate Building Regulations in force at the time and still does not comply, and less than two-thirds of the flats are owner-occupied. 
 
Each HMO licence that is granted will come with specific conditions that the licence holder will be bound to comply with. Licences will be granted for a duration of up to 5 years. Failure to comply with the conditions of a HMO licence is an offence for each breach and may lead to enforcement action being taken.

Who can be a licence holder?

The proposed households in multiple occupation (HMO) licence holder should be the most appropriate person to hold a licence. This should be the person who is in control of the property for example, the person receiving the rack-rent of the premises. This would normally be the property owner or a manager with full management responsibility. The licence holder must be fit and proper to hold a licence.

A licence can be issued to one or more named person(s), or a limited company. It cannot be issued to a company name that is not a limited company.

There does need to be a connection between the proposed licence holder and the property. If a limited company is proposed as a licence holder, we may require proof that the limited company is involved in the ownership or management of the property.

The licence holder should be located in the UK and ideally within reasonable travelling distance of the property. Alternatively, a local manager can be appointed as the named contact.
All people involved in the management of the property must be fit and proper to hold a licence.

Fit and Proper Person and Cause for Concern Assessment

The council must undertake checks to ensure that the proposed licence holder (and the manager, if different) is a fit and proper person. In deciding whether a person is fit and proper they must take into account:

  • Any previous convictions involving fraud or other dishonesty, violence, drugs or specified sexual offences
  • Contraventions of housing or landlord and tenant law
  • Whether the person has practised unlawful discrimination
  • Whether the person has acted otherwise than in accordance with any applicable code of practice approved under section 233.

Careful consideration will be given to an application or existing licence where a person who has made a fit and proper person declaration has contravened housing law or landlord and tenant law, evidence of poor management, previous history, prosecutions, simple cautions. 

The council will also consider whether the proposed licence holder has been previously:

  • Refused an HMO licence
  • Issued a reduced term HMO licence

The application of the cause for concern test allows Gloucester City Council to reduce the regulatory impact of licensing on good compliant landlords and introduces a framework to increase the level of engagement and education and monitoring of properties managed by poor landlords and agents that fail the fit and proper person or cause for concern tests.

When granting a licence, the Council will also determine that suitable financial and management arrangements are in place for the management of the HMO and that the HMO is suitable for occupation by a specified number of tenants based on the minimum standards. Licensing decisions will be guided by the Councils Enforcement and Regulation Policy and supporting Appendices.

HMO Licence Register

The council must maintain a public register of all the premises licensed as a house in multiple occupation. A basic copy of the register is available to download below.

HMO Licensed Property Register

If you have any enquiries about a property which has been licensed or which you feel should be licensed and is not, please contact us.

How to Apply

All HMOs in Gloucester are required to be licensed. You can apply for a HMO licence online using our new Online Application form or you can download and complete the form here.

New HMO Licence application form 2025-26

Renew HMO Licence application form

A Guidance Note to assist in the completion of the application

HMO Licensing Fees

The HMO licensing fees effective from 1 April 2026, will be charged as follows for up to a five year licence:

TYPE DURATION

FEE
New up to 5 years £1260.00
Renewal  up to 5 years £900.00

Early Bird HMO Licence Fees

Listening to the representations made during the Additional Licensing consultation the Council will introduce a new ‘Early Bird Licesnsing Fee Discount’ for all HMO Licence applications that are required to be submitted by the making of the new Additional Licensing Designation only.   The Early Bird Discount licensing fee will be £1060 for a new HMO Licence application. The discount period will apply to all valid applications that are received before the 21 September 2026 and will only apply to HMO Licence applications for properties that fall under the additional licensing designation – It excludes mandatory HMO Licence applications. Any applications received on or after the 21 September 2026 for a HMO licence under the Additional Licensing Designation will be charged the full current fee structure £1260 for a new HMO Licence application and £900 for a HMO licence renewal application.

TYPE DURATION FEE

New - Early bird additional licensing fee.

For all additional licence applications  received before 21st September 2026.

 up to 5 years £1060.00
Renewal  up to 5 years £900.00

Planning and HMO's

For planning purposes a House in Multiple Occupation (HMO) can be small or large:

Small HMO (use class C4)

A small HMO is a property occupied by between three and six unrelated individuals, as their only or main residence, who share basic amenities such as a kitchen or bathroom. Change of use to a small HMO does not currently require planning permission but will require licensing.

The Council has now confirmed a non-immediate Article 4 Direction that will come into force on the 3 March 2027. The purpose of this Article 4(1) Direction is to remove permitted development rights for the change of use from dwellinghouses (Use Class C3) to small Houses in Multiple Occupation (Use Class C4) within the designated area. This will enable Gloucester City Council to manage and control the concentration and impact of HMOs through the planning process by restoring the requirement for planning permission under Part III of the Town and Country Planning Act 1990 for such a change of use. The Direction applies to land within the administrative area of Gloucester City Council, namely the wards of Kingsholm and Wotton, Elmbridge, Westgate, Barton and Tredworth, Moreland and Kingsway.

A copy of the confirmed Direction decision and the map defining the area to which it relates may be viewed on the Council’s website and at the following address during normal office hours: Appointment Centre, Gloucester City Council, Eastgate Management Suite, Eastgate Street, Gloucester, GL1 1PA.

Large HMO (use class Sui-Generis)

A large HMO is a property occupied by 7 or more people who form more than 1 household. These require planning permission and licensing.

The Gloucester City Plan (2011-2031) (GCP) sets out when planning permission will be granted. All policies in the GCP require consideration but there is also a specific policy for HMOs which says:

Policy A2: Houses in Multiple Occupation
Planning permission for the creation of a House in Multiple Occupation (HMOs) will be permitted where:

  1. The development would not result in any existing residential property (C3 use) being ‘sandwiched’ between two HMOs; and
  2. The development would not result in the creation of more than two adjacent properties in HMO use; and
  3. HMOs, including the proposed development, would represent no more than 10% of properties within a 100-metre radius of the application property.


For further details of how to use this policy, and to see other policy considerations, please refer to Houses in Multiple Occupation – A guide for applicants and decision takers.
Adopted Development Plan | Gloucester City Council
 

Frequently asked questions - Houses in Multiple Occupation

What is a house in multiple occupation (HMO)?

A house in multiple occupation (HMO) is a property that is occupied by three or more people, including children. The occupants must also form two or more households.
This includes shared houses, bedsits, and flats where there is some sharing of the kitchen or bathroom. This includes houses rented by students.
A household may be:

  1. A single person
  2. A co-habiting couple
  3. Several members of the same family, all related by blood or marriage

For example, a house occupied by a brother, sister, and one other unrelated occupant forms two households. Three unrelated persons would form three households.

Where can I get an application form to licence my HMO?

You can complete an online application form or download a hardcopy application form to type or complete by hand.
If you have downloaded an application form you can email a completed application and supporting documents and fee to HMO.Licensing@gloucester.gov.uk 
For both forms, see apply for a HMO licence.

How many people can occupy an HMO?

The number of people who can live in each HMO depends on the number and size of bedrooms and the level of kitchens and bathrooms provided.
There may be limits because of the size, number, and location of facilities. This includes bathrooms, toilets, and kitchens.
For guidance, check the HMO standards.

What areas of the city are covered by the HMO licensing scheme?

Mandatory licensing covers the whole city. So if you have a HMO with five or more persons anywhere in the City, it will require licensing.

From the 21 September 2026 the additional HMO licensing designation applies to all HMOs in the city that are occupied by 3 or more persons comprising 2 or more households and which fall within section 254 of the Act, but are not HMOs required to be licensed under the mandatory HMO licensing provisions in section 55(2)(a) of the Act.

This designation also applies to relevant HMOs falling within section 257 of the Act, namely certain buildings converted into self-contained flats where the conversion did not comply with the appropriate Building Regulations in force at the time and still does not comply, and less than two-thirds of the flats are owner-occupied.

How does additional HMO licensing work?

Anyone who owns or manages an HMO in the city has to apply to the council for a licence.
The council must issue a licence if it is satisfied that the:

  • HMO is reasonably suitable for occupation by the number of occupants/households allowed under the licence
  • proposed licence holder is a ‘fit and proper person’ to hold a licence
  • proposed licence holder is the most appropriate person to hold the licence
  • proposed manager (if there is one) is a 'fit and proper person' to manage the property;
  • proposed management arrangements are satisfactory
  • person involved in the management of the HMO is competent 

 ‘What happens if I do not meet the fit and proper person’ criteria?

You must appoint a manager for your property who meets the fit and proper person criteria 

Will you contact me about licensing my property?

No. The person responsible for the property must apply to us for an HMO licence. This is usually the owner or manager.

I rent out rooms in my private house. Do I need an HMO licence?

A resident landlord or family can have up to two lodgers living in the house. If you have three or more lodgers, the house will require an HMO licence.

Do I need planning permission for my HMO?

Yes. You must have planning permission before you let the house as a new large HMO.
The Council has now confirmed a non-immediate Article 4 Direction that will come into force on the 3 March 2027. The purpose of this Article 4(1) Direction is to remove permitted development rights for the change of use from dwellinghouses (Use Class C3) to small Houses in Multiple Occupation (Use Class C4) within the designated area.

What is the benefit of licensing my HMO?

The licensing scheme is designed to improve housing conditions, and ensure the health and safety of tenants.

Do I need to licence all of my HMO properties?

Yes, if they are in a licensable area of the city.
You must hold a separate licence for each property that meets the licensing criteria.

How much does it cost for an HMO licence?

The license fees are published on the website.

Can I pay the HMO licence fee in instalments?

No. Licence fees must be paid in full with the licence application.

How long is the HMO licence for?

A licence will be granted for up to 5 years as long as the licence holder and manager pass the fit and proper person and cause for concern tests.

Are there any additional fees?

No the licence fees cover the costs of administering licensing.
You may incur additional fees and charges if the Council has to take any enforcement action.

Can I get a refund if I let my HMO to a family?

No. You can apply for the licence to be revoked if you no longer want to operate the property as an HMO. You will not receive a refund.

What additional documents are required to support my application for an HMO licence?

Where applicable, you have to supply the following:

  • A satisfactory domestic electrical installation condition report. It must be dated within five years of the application date
  • A satisfactory gas safety certificate dated within twelve months of the application date
  • Floor plans with rooms measurements and layouts.

If subject to licensing and where applicable:

  • A fire alarm test certificate
  • An emergency lighting certificate

Do I need a fire risk assessment?

All HMOs should have a fire risk assessment in accordance with the current guidance. There are templates available online to carry out your own HMO fire risk assessment.
It does not need to be carried out by a surveyor or consultant.

How do I pay for my HMO licence?

You can pay online when submitting your application. If you do not pay the fee your application will be invalid and will be rejected.

Do I need to tell others, like my mortgage provider, about my HMO application?

Licences are legally enforceable and may require changes to the house.
People with a legal interest in the property have a statutory right to know how the HMO licence may affect them. This includes mortgagees and other owners or managers.

What are the conditions applied to an HMO licence?

There are general conditions relating to the management of the property. Specific conditions may require you to limit the number of occupiers depending on the level of amenities and space standards. You can download the HMO standards from the website.

What happens if I do not apply for an HMO licence?

A person commits an offence under Section 72 of the Housing Act 2004 if he or she is a person having control of or managing an HMO which is required to be licensed under the additional or mandatory licensing schemes but which is not so licensed.

Where necessary, we will consider legal proceedings for a failure to licence a HMO in accordance with our enforcement policy. This could result in the service of a Civil Penalty Notice or prosecution. The maximum fine is currently £40,000 for a Civil Penalty and an unlimited fine on conviction.
You should be aware of the following:

  • Rent repayment orders - A tenant living in a property that should have been licensed, but was not, can apply to the Residential Property Tribunal to claim back rent. They can claim back rent they have paid during the unlicensed period. This is up to a limit of 24 months.
    Councils can also reclaim any housing benefit that has been paid during the time the property was without a licence. This will only apply where the person having control of or managing the HMO (and therefore responsible for licensing the premises), is also the person having control of the dwelling concerned.
  • Restrictions on termination of tenancies - Tenants living in a property that should have been licensed, but was not, cannot be evicted by serving Housing Act 1988 Notice. This applies until the HMO is licensed or a management order is in place.
    This only applies where the person having control of or managing the HMO (and therefore responsible for licensing the premises) is also the person having control of the dwelling concerned.

What happens if I don't comply with the conditions of the HMO licence?

A breach of any of the licence conditions or HMO management regulations is a criminal offence.
Failure to comply with a licence condition can result in the service of a Civil Penalty Notice or prosecution. The maximum fine is currently £40,000 for a Civil Penalty and an unlimited fine on conviction.

Are there any exemptions from HMO licensing?

Buildings controlled or managed by the following:

  • A local housing authority
  • A non-profit registered provider of social housing
  • A registered social landlord (Part one Housing Act 1996)
  • A Police and Crime Commissioner
  • The Mayors office for policing and crime
  • A fire and rescue authority
  • A health service body (S9 National Health Service Act 2006)
  • Co-operative society
  • Educational Establishments
  • Religious communities

I am going to sell my HMO. What should I do?

The licence holder is legally responsible for the HMO.

You must inform us when the property is sold.

Your licence will be revoked when the HMO has been sold.

The new owner must apply for a licence and pay a fee to continue operating the property as an HMO.
Licences are not transferable.

As an HMO landlord, how should I tackle antisocial behaviour?

Tackling anti-social behaviour is a priority for us. There may be specific licence conditions tailored to individual properties.

These conditions may involve a landlord:

  • Reporting persistent anti-social behaviour by persons visiting or occupying the HMO to the police
  • Ensuring security arrangements are in place to prevent unauthorised access
  • External sensor lighting to discourage such behaviour
  • Tenancy agreements must contain clauses relating to anti-social behaviour.
  • Tenants that consistently cause problems are in breach of their tenancy. You can therefore take steps to take possession of your property.

Is there a public register containing my personal information?

Certain details are required to be held on a public register. These include:

  • Address of the HMO
  • Name, address and telephone number of the licence holder
  • Description of the HMO - number and type of rooms present, amenities and occupant levels
    View the public register.

Is the council using licensing fees to raise money?

We are not permitted to obtain financial gain from the fees paid through the licensing process.
The fee charged is used to cover the costs associated with administering the mandatory and additional HMO licensing schemes.

Who do I contact if I am refused an HMO licence or if I wish to appeal against licence conditions?

You can appeal against a licence refusal or condition.
In the first instance, please contact the officer dealing with your case.
If you are not satisfied with the decision you can apply to the Residential Property Tribunal (RPTS).

Is my HMO considered a ‘Shared House HMO’ or a ‘bedsit-type HMO’ for fire safety standards?

We follow the fire safety guidance by Local Authorities Coordinators of Regulatory Services (LACORS) Housing – Fire Safety, Guidance on fire safety provisions for certain types of existing housing.

The council has considered the appropriate fire standards to apply in each HMO. We use the guidance in paragraph:

  • 35.2 to describe a Shared House HMO
  • 36 to describe a bedsit-type HMO

We use the type of tenancy as a key indicator. For example a:

  • Single joint tenancy where an identifiable group of sharers has rented the whole property is considered a shared house HMO
  • HMO where individuals, with separate tenancies, let separate rooms, is considered a bedsit-type HMO

If you believe that we should consider your HMO differently, you should submit a risk assessment. This must be a full, fire risk assessment. A competent person must complete the risk assessment. You should send this to the HMO Licensing team. Include an explanation and reasons for the suitability of the alternative standards.

Landlords have a statutory duty to apply for a licence for certain properties that are in multiple occupancy (HMOs).