The Government is once again considering significant reforms to the UK’s firearms licensing regime following the conclusions of the Keyham inquest. Among the proposals under discussion are bringing shotgun certificates into line with the more stringent licensing requirements for firearms certificates and the creation of a national firearms licensing authority.

While no final decision has been made, the debate has significant implications for certificate holders, registered firearms dealers (RFDs), shooting estates, farmers and the wider rural economy.

Why is reform being considered?

The proposals follow the tragic events in Keyham, Plymouth, in August 2021, where five people were killed by a licensed shotgun holder before the offender took his own life.

Following extensive evidence, the inquest jury concluded that there had been a “catastrophic failure” in the management of firearms licensing by Devon and Cornwall Police. Separately, the Senior Coroner issued a Prevention of Future Deaths Report, expressing concern that the current legislative framework provides a less stringent licensing regime for shotguns than for firearms, despite shotguns being no less lethal.

The families of those who died have called for comprehensive reform of firearms licensing legislation.

What changes are being proposed?

Although the Government has not published final legislation, proposals include:

• applying the same statutory licensing test to shotgun certificates as currently applies to firearm certificates;
• replacing the existing presumption in favour of granting a shotgun certificate with a more discretionary assessment;
• consideration of a centralised licensing authority, described by some as a “DVLA for guns”, to improve national consistency.

The Government has stated that it remains open-minded and no final policy has been adopted.

Potential impact on certificate holders

For many certificate holders, the practical implications could be significant.

Those applying for or renewing shotgun certificates may be required to satisfy a more demanding evidential test, potentially increasing the level of scrutiny during the application process. Existing certificate holders may also experience longer processing times and greater administrative requirements if additional checks are introduced.

Whether these measures materially improve public safety remains the subject of considerable debate.

Implications for the firearms and rural sectors

Industry representatives have expressed concerns that the proposals could have unintended economic consequences.

Registered firearms dealers, shooting grounds, game shoots, pest control businesses and agricultural users rely upon a licensing system that is both rigorous and efficient. Delays or additional barriers to certification could affect participation in shooting sports and have wider consequences for rural businesses, hospitality providers and tourism.

Trade organisations have also questioned whether changes to the statutory test would address the failures identified during the Keyham inquest, arguing that many of those failures related to the administration of the existing licensing regime rather than deficiencies within the legislation itself.

Administration versus legislation

One of the key questions arising from the inquest is whether reform should focus on operational improvements or legislative change.

The jury’s findings were directed towards the management of firearms licensing by the relevant police force. This has prompted calls for improved resourcing, better information sharing, enhanced training and greater consistency between licensing departments.

Others argue that these operational improvements should be accompanied by legislative reform to ensure that shotgun licensing reflects the same level of scrutiny as other firearms.

These approaches are not necessarily mutually exclusive, and future reform may incorporate elements of both.

Looking ahead

The Government has not yet reached a final decision on the future of shotgun licensing.

However, the debate demonstrates the continuing tension between two legitimate public interests: maintaining a licensing system that protects public safety while ensuring that responsible certificate holders and legitimate rural businesses are not subject to unnecessary or disproportionate regulatory burdens.

Should reforms proceed, those operating within the firearms sector—including certificate holders, registered firearms dealers and rural businesses—will need to understand how any legislative changes affect their legal obligations and commercial operations.

As the Government’s consultation develops, stakeholders should continue to monitor developments closely and consider engaging with the legislative process before any reforms are implemented.