HMO Licensing in London: Which Boroughs Have Additional Licensing?

Mandatory HMO Licensing: The National Baseline

Under the Housing Act 2004, mandatory HMO licensing applies to any property that:

• Is occupied by five or more persons
• Forming two or more separate households
• Who share one or more basic amenities (kitchen, bathroom, or toilet)

This is the national mandatory licensing threshold that applies across England regardless of location. A landlord renting to five unrelated individuals sharing a kitchen and bathrooms must obtain a mandatory HMO licence from the local authority, regardless of which borough the property is in.

The mandatory scheme does not cover smaller HMOs — a three-bedroom property let to four unrelated professionals sharing facilities is technically an HMO in the Housing Act definition, but does not require a mandatory licence unless additional or selective licensing applies in that borough.

Additional Licensing: Borough-Level Extension

Section 56 of the Housing Act 2004 allows local authorities to designate additional licensing schemes that extend the licensing requirement to HMOs that fall below the mandatory licensing threshold. These schemes are borough-specific, require central government confirmation, and have a maximum duration (typically five years, after which they must be renewed).

The practical effect is significant: an additional licensing scheme can require that a four-person shared house (which would not require a mandatory licence) must be licensed — and can extend to two-person shared accommodation in some designations.

Crucially, additional licensing schemes are active at a borough level and are frequently renewed or revised. The information below reflects the position as of mid-2025 — landlords must always verify the current status directly with their specific borough council, as schemes expire and are renewed on different timescales.

London Boroughs with Extensive Additional Licensing

Newham

Newham has operated one of the most comprehensive licensing regimes in London since 2013. The borough's scheme has historically required all privately rented properties — including all HMOs regardless of size — to be licensed. Newham was the first authority to implement a borough-wide selective licensing scheme covering all rental properties, not just HMOs. The scheme has been renewed and revised multiple times and remains among the most extensive in London. Landlords with any rental property in Newham (including single-tenancy properties) should verify the current licensing requirements directly with the council.

Tower Hamlets

Tower Hamlets operates additional licensing covering HMOs with fewer than five occupants that are not covered by mandatory licensing. The borough's additional scheme covers most shared accommodation letting in the borough. With a large concentration of rental properties and historically high proportions of houses in multiple occupation, Tower Hamlets is one of the most active enforcement boroughs for unlicensed HMOs in London.

Southwark

Southwark has operated additional licensing covering HMOs of three or more occupants forming two or more households. The scheme covers much of the borough's substantial HMO stock, including the large student and young professional rental market in areas such as Elephant and Castle, Peckham, and Bermondsey.

Lambeth

Lambeth's additional licensing scheme covers HMOs with three or more occupants. The borough includes areas with very high HMO concentrations — Brixton, Stockwell, Streatham, and Clapham — and the licensing scheme is actively enforced by the private sector housing team.

Hackney

Hackney operates additional licensing for smaller HMOs not covered by the mandatory scheme. The borough has consistently maintained licensing requirements for shared accommodation across Dalston, Stoke Newington, Shoreditch, and Homerton.

Waltham Forest

Waltham Forest has operated additional licensing alongside selective licensing in certain wards. The additional scheme targets HMOs below the mandatory threshold. Landlords in Walthamstow, Leytonstone, and Leyton in particular should verify current requirements.

Haringey

Haringey has operated additional licensing covering three-plus person HMOs. The borough's areas of Wood Green, Tottenham, and Hornsey have significant shared accommodation stock subject to the scheme.

Selective Licensing: Beyond HMOs

Several London boroughs have also designated selective licensing areas under Section 80 of the Housing Act 2004. Selective licensing is distinct from additional licensing — it requires all privately rented properties (not just HMOs) in designated wards or areas to be licensed, regardless of the number of occupants. A standard buy-to-let property let to a single family may require a selective licence if it is located in a designated ward.

Boroughs with selective licensing designations active in 2025 include (not exhaustive): Southwark (various wards), Lambeth (various wards), Waltham Forest (various wards), Brent (various wards), and Ealing (various wards). The boundaries and scope of selective licensing designations change when schemes expire and are renewed — always check the specific ward against the current council designation.

How to Check Your Borough's Requirements

The definitive source for any property's licensing requirement is the relevant London borough council. Most borough websites maintain a dedicated private sector housing or HMO licensing page that sets out:

• Whether mandatory, additional, or selective licensing applies
• The specific property types and occupancy thresholds covered
• The current scheme start and end dates
• The application process and fee structure

The government's national database of licensing schemes is available at housingdata.campaign.gov.uk. This should be treated as a starting point, not a definitive answer — scheme renewals and new designations may not be immediately reflected in national databases. Always cross-reference with the borough council directly.

Consequences of Operating an Unlicensed HMO in London

Operating an HMO that requires a licence without obtaining one exposes the landlord to serious consequences:

• Rent Repayment Order: Tenants or the local authority can apply to the First-tier Tribunal (Property Chamber) for a Rent Repayment Order requiring the landlord to repay up to 12 months of rent received during the unlicensed period. This is a real and regularly used enforcement tool — London tenants' rights groups actively assist tenants with RRO applications against unlicensed HMO landlords.
• Civil Penalty: Local authorities can impose civil penalties of up to £30,000 per offence for operating without a licence. Civil penalties are increasingly used as an alternative to prosecution, and multiple £30,000 penalties can be imposed for multiple unlicensed properties.
• Criminal Prosecution: Knowingly or recklessly operating an unlicensed HMO is a criminal offence with an unlimited fine on conviction. Serious or repeat offenders can face prosecution in the Magistrates' or Crown Court.
• Difficulty Recovering Possession: A landlord serving a Section 21 notice to recover possession of a property that was unlicensed during the tenancy may find the notice is invalid — courts have held that a Section 21 notice served during an unlicensed HMO tenancy cannot be relied upon.

Licence Conditions

When a licence is granted, it comes with conditions that the landlord must comply with throughout the licence period. Standard conditions typically include:

• Valid Gas Safety Certificate renewed annually
• Valid EICR (Electrical Installation Condition Report) renewed as required (typically every five years)
• Working smoke alarms on every floor
• Working carbon monoxide alarms in rooms with combustion appliances
• Adequate fire safety measures as specified in the fire risk assessment
• Management standards — keeping communal areas clean, responding to complaints, managing refuse properly
• Maximum occupancy as stated on the licence
• Minimum room sizes meeting the prescribed standards

Breach of licence conditions is also enforceable — the council can revoke the licence, impose financial penalties, and serve improvement notices for condition breaches.

Application Process and Fees

HMO licence applications are made to the local borough council. The process typically involves:

• Completing an online or paper application with property details, occupancy, and management arrangements
• Submitting supporting documentation — Gas Safety Certificate, EICR, floor plan, insurance documents
• Paying the application fee, which varies by borough and property size — typically £500–£1,500 for a standard HMO licence with a five-year term
• A council inspection of the property (mandatory for most HMO applications)
• Confirmation and issue of the licence document

Processing times vary by borough and current application volumes — some boroughs process within four to six weeks; others have significant backlogs. Apply well before any deadline and keep evidence of the application submission date.