Football Governance Bill [ Lords ] (Seventh sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Thursday 12th June 2025 Public Bill Committees

[Mr Clive Betts (Sheffield South East) (Lab)]

I beg to move amendment 94, in clause 43, page 34, line 38, at end insert—

“(e) following the revocation by the IFR of the club’s operating licence under clause 19 or under paragraph 9 of Part 1 of Schedule 9.”

I am pleased to see you in the Chair again, Ms Butler; it is a pleasure to have you presiding over us. The amendment is fairly simple, and I hope the Minister will consider it. Clause 43 is quite an important clause, because it deals with the removal of ownership. Ownership, in the end, is of a private asset. A club is a public good for the fan base, but in the end, it is owned by an individual or a corporate entity. The clause provides the regulator with a power, not a duty, to remove owners in certain circumstances if appropriate. All my amendment would do is add the revocation of a club’s operating licence to the circumstances in which the regulator can act. In other words, if the club does not have an operating licence, should not that be a factor that allows, but not forces, the regulator to deal with the ownership of the club?

[Stephanie Peacock]

I thank my hon. Friend for his amendment. We have seen far too many examples of the damage that can be caused by unsuitable custodians of clubs, and that is why the Bill introduces a strengthened owners and directors test.

I believe that my hon. Friend hopes that the amendment will give reassurance to fans that, where a club fails to comply with regulation and loses its licence as a result, the regulator will be able to remove the owner. The aim is to hold those responsible to account. Let me reassure my hon. Friend that the regulator is already empowered to hold individuals to account for their actions. If the club’s non-compliance or its financial situation gives the regulator concern about the owner’s suitability, it can test them, and they could be failed on that basis. If they are found to be unsuitable, the regulator will have the power to remove them. That ability to isolate and remove unsuitable owners and officers should mean that a club never has to have its licence suspended or revoked on the basis of poor ownership. That means that a club’s fans should not have to suffer the consequences of bad leadership.

The revocation of a club’s licence is the very last resort. We hope the regulator will never have to do that, but I reassure my hon. Friend that if a club is so seriously and consistently non-compliant that the regulator has no choice but to revoke its licence, we would expect the regulator to consider very carefully whether any responsibility for that failure can be laid at the owner’s door, and if the owner is tested and found unsuitable, they can be removed on that basis. We believe that the Bill’s provisions are sufficient to protect fans and hold owners to account where necessary. We hope that they will ensure that a licence is never revoked.

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[Stephanie Peacock]

I will address that point in just a moment.

As a club’s licence is separate from its owners, the licence is held directly by the club itself, not its owners. The removal of an owner will not impact the club’s licence status. This ability to isolate and remove unsuitable and owners and officers should mean that a club never has to have its licence suspended or revoked because of its owner, which means that a club’s fans should not have to suffer the consequences of bad leadership.

We hope that a club losing its licence will be the very last resort, and an unsuitable owner will have to follow the removal order made by the regulator. It will be in the best interests of an unsuitable owner to sell their stake in a club before the regulator has to step in to force divestment and a sale at no minimum price. If the owner fails to comply with this order, the regulator will have enforcement powers that it can use to ensure compliance.

These powers will include a variety of sanctions against the individuals calling shots at the club and, where necessary, directly against the club itself. Where appropriate, the regulator will also be able to seek an injunction from the courts. Having this broad range of tools of escalating severity at its disposal will allow the regulator to take strong action as and when required. For those reasons, I hope that my hon. Friend the Member for Sheffield South East will withdraw his amendment.

[Mr Betts]

Sometimes the Minister has partially satisfied me with her responses; this time she has wholly satisfied me. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause stand part of the Bill.

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[Stephanie Peacock]

I do not want to get drawn into hypotheticals. As we previously discussed, there might be a perfectly legitimate reason for a club to move—or to move temporarily, such as for flooding. It is not an absolute power. We want to give the regulator discretion when clubs may need that for legitimate reasons. The amendment speaks to where we think clubs are asset stripping or acting in bad faith.

We would expect the power to include assets remaining in the club’s ownership and any plans to change its financial arrangements. It would be at odds with the sustainability of a football club for there to be no home ground or location to train. It is therefore implicit that the regulator would address that.

[Mr Betts]

Does that mean that if the regulator felt that an owner was proposing to divest themselves or the club of a training ground that could influence the club’s financial sustainability and competitiveness, it could act to prevent that before the sale was completed?

[Stephanie Peacock]

Yes, I believe that there is provision in the Bill to do that. For those reasons, I ask my hon. Friend to withdraw the amendment.

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[Stephanie Peacock]

Can I write to the hon. Gentleman on that point?

[Mr Betts]

The Minister is doing quite well today: she has satisfied me once again. I am reassured that the regulator does have the power that I sought to put in the Bill, so I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

[Mr Betts]

I beg to move amendment 83, in clause 46, page 39, line 2, at end insert—

“(ii) in the case of the home ground and training ground, it is satisfied that there are suitable plans in place to ensure the club’s continued long-term use of the home ground or training ground or to secure an alternative home ground or training ground for the next football season;

(iii) in the case of a home ground, it is satisfied that any alternative under sub-paragraph (ii) will have been actively approved by the club’s fans domiciled in England and Wales if any of the following non-exhaustive factors represent a significant upheaval of the connection between the fans of a club and the club: proximity to home ground, proximity to other clubs' grounds, journey time for fans and any other factors that the Regulator deems relevant;”

I have a simple question for the Minister. If the regulator decides that a sale can go ahead, is the power there to allow it to be satisfied that there are suitable plans to ensure that the club will have long-term use of a home ground and training ground? That may not be the ground it had before, but there must at least be a replacement. Does the regulator have the power to ensure that?

[Stephanie Peacock]

I thank my hon. Friend tabling the amendment. It seeks a number of things: extending the clause to include training grounds; guaranteeing long-term use of home grounds and/or training grounds; and introducing parameters for home ground relocation. If it is helpful, I will address those briefly, but I appreciate that this debate is similar to the one we just had.

On extending the scope of the clause to include training grounds, the Bill has carved out specific protections to safeguard home grounds against risky financial decisions or the sale of grounds. As I said in the previous debate, that is to reflect the home ground being the club’s most important asset. It does not mean that other assets, such as training grounds or office space, are not important.

I understand that, as we have discussed, the amendment is really focused on asset stripping. As I have alluded to—I will be a bit clearer and perhaps more explicit—the regulator has the power to attach discretionary licence conditions. Therefore, on the point about needing a training ground, I believe that the regulator could apply a temporary or particular licence condition on a club.

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[Stephanie Peacock]

I am grateful to the hon. Gentleman for his comments. I draw his attention to the discretionary licensing addition that I have referred to: the regulator can react to different situations. I do not want to be drawn on individual cases, nor do I want to pre-empt the actions of the regulator.

[Mr Betts]

I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

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[Mr Betts]

I really do not understand the way in which the Bill is written at present; perhaps the Minister can help me with that.

We will come on to clause 48, which is about the relocation of a club; of course, that means moving grounds. As set out in clause 48 4(c) and (d), there is a specific requirement on the club to consult with fans. We can have another discussion at some point—we may do—about consultation with which fans and which groups. I still think that this is a challenging issue that we need more clarity about.

Clause 46 is about the disposal of a ground, which is a very emotive subject for fans. It may not be the wrong decision to relocate, and clubs can relocate and take their fans with them, with proper involvement; the Everton example is probably in that category. However, there is no requirement at all to consult the fans on the potential sale of a ground. That seems to be a big omission in the Bill. Fans would not have a veto, because it is understood that sometimes there are very good commercial reasons as to why a club needs to move, which can be accepted and explained to the regulator.

Therefore, I am not saying that the disposal of a ground has to get the full approval of the fans, but surely there should be a measure whereby the fans are at least consulted and their views taken into account before the home ground of a club, where the club may have played for 100 years, is disposed of. That would not be inappropriate.

[Stephanie Peacock]

I thank my hon. Friend for tabling the amendments. Home grounds are a vital asset for all clubs, so I do understand his intent.

Regarding changes to the ownership of a home ground, the potential adverse outcomes are entirely financial. We do not believe that they impact the heritage of the club, which is why clause 46 does not require any heritage consideration or fan engagement. Additionally, decisions about the financial arrangements of a home ground are commercial decisions and therefore we do not think it is appropriate to legislate on them. However, I will reassure my hon. Friend that if the sale of a club’s home ground would result in the relocation of the club, fans absolutely have to be consulted about that, as per clause 48, which we will discuss later. We know how much home grounds matter to fans and communities, but this clause is purely about protecting a club’s financial position.

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[Mr Betts]

Is the Minister saying, then, that a club owner could sell the ground without even consulting the fans—just present it as a fait accompli—and then, because there would not be a home ground to play on and the club might have to relocate, at that point they could say to the fans, “Well, the ground’s gone; we’re now going to ask you whether you want to move.”? There seems to be a gap in the thinking somewhere.

[Stephanie Peacock]

I appreciate that point, but the sale of home grounds is a primarily financial decision, separate from the decision about where the club actually plays its games. That is why there is currently no requirement to consult or obtain approval. If the club has not actually relocated, it would be caught in clause 48 and would be required to consult fans. We will come on to discuss that later.

[Stephanie Peacock]

I appreciate the comments that have been made, and I will take them away and reflect on them, but I ask my hon. Friend the Member for Sheffield South East at this point to withdraw his amendment.

[Mr Betts]

The Minister has taken a very sensible approach. I accept that accepting an amendment here and now, out of the blue, is not how Government operate; but there is a lack of consistency between the two clauses, so I appreciate her agreeing to go and have a look at them. She has not committed to a change, but she has agreed to have a look, and that is very helpful. On that basis, I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause stand part of the Bill.

[Stephanie Peacock]

As discussed during the debate on the previous amendments, clause 46 serves as an important protection for the home ground of a club. It requires clubs to gain the approval of the regulator prior to any sale or use of the home ground as collateral. A home ground is often one of the most vital and valuable assets a club can own. If it is used as collateral for debt or sold off, that can impact a club’s financial position by weakening the balance sheet. Not owning the stadium may also threaten a club’s long-term financial sustainability.

This clause requires clubs who own their ground to obtain the approval of the regulator prior to any sale or use as collateral. The regulator will consider the risk to the financial sustainability of the proposed transaction and block any potentially financially damaging sale of a club’s home ground. This applies to regulated clubs and also to any club regulated within the last five years, which prevents bad actors from being able to circumvent regulation by leaving regulated leagues in order to skirt protections and strip assets. It recognises the important role that football grounds play in the financial sustainability of clubs and adds protections against bad actors.

Question put and agreed to.

Clause 46 accordingly ordered to stand part of the Bill.

Clause 47

Duty not to appoint administrator without approval

Question proposed, That the clause stand part of the Bill.

Football Governance Bill [ Lords ] (Eighth sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Thursday 12th June 2025 Public Bill Committees

[The Parliamentary Under-Secretary of State for Culture, Media and Sport (Stephanie Peacock)]

I will respond to the points made by the shadow Minister and then come to those from the hon. Member for Spelthorne. The appointment of an administrator would not delay a club entering administration, as that is a separate process from the appointment of a specific administrator. My officials have met both relevant teams in the Insolvency Service and the Department for Business and Trade to ensure that the provisions in the Bill do not impinge on the existing insolvency processes. That speaks to the point made by the hon. Member for Spelthorne.

As for the shadow Minister’s other questions on precedent, special administration regimes exist for various purposes, such as the water utilities or energy suppliers. They have distinct processes for entering administration. The provision in the Bill does not go as far as that. Ideally, the provision will not need to be used frequently, if at all, but if it is, it will look to ensure that fans can feel more confident than they do now. It works alongside the requirements but it still stands alone, so I commend the clause to the Committee.

Question put and agreed to.

Clause 47 ordered to stand part of the Bill.

Clause 48

Duty not to relocate without approval

[Mr Clive Betts (Sheffield South East) (Lab)]

I beg to move amendment 91, in clause 48, page 40, line 18, at end insert—

“(e) if the arrangements would represent a significant upheaval of the connection between the fans of a club domiciled in England and Wales and the club (taking into account the following non-exhaustive factors: proximity to home ground, proximity to other clubs’ grounds, journey time for fans and any other factors that the IFR deems relevant) the club’s fans have actively approved the arrangements.

(4A) In order for the Regulator to be satisfied with subsection (4)(b), a regulated club must take reasonable steps to establish that the majority of the club’s fans domiciled in England and Wales do not consider the arrangements to constitute significant harm to the heritage of the club.”

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[Mr Betts]

I thank the Minister for the reply—I think. That was a bit of a reply about new clause 14 but she did not really address amendment 91 and the regulator being required to take account of factors such as relocation over distance and where fans live. In some ways, I think that is the strongest part of this discussion, because it is the thing that worries fans the most.

[Stephanie Peacock]

I talked about taking a holistic approach, and I said that the regulator must consider a number of factors—not just the current views of fans but the club’s history and how fans get to the ground. I acknowledge some of the examples that my hon. Friend has given, and I was really pleased to visit the new Everton stadium a few months ago. We obviously recognise that sometimes it is very legitimate, and other times it is not. That is why we have gone for the holistic approach.

[Mr Betts]

So does the Minister expect that the factors in amendment 91 would be taken into account by the regulator in reaching a decision?

[Stephanie Peacock]

Yes, and I have obviously drawn attention to some of them in my remarks. That is why we do not want to be prescriptive; we want the regulator to be able to take a holistic, case-by-case approach.

[Mr Betts]

I think that was a yes, so the regulator would be expected to take them into account. Am I right in thinking that?

[Stephanie Peacock]

It was. I gave some examples in my contribution about history—

[Mr Betts]

And it would include these.

[Stephanie Peacock]

Yes, it would—I have given some examples.

[The Chair]

Order. Both of you are standing; I might have to go to VAR.

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[Stephanie Peacock]

I thank hon. Members for tabling the amendments to clause 49. We will discuss the clause in more detail in the clause stand part debate, so I will reserve some of my comments until then. To summarise, however, the clause places a duty on regulated clubs not to make changes to key items of club heritage without the support of the majority of the club’s fans and approval by the Football Association.

As set out in clause 7(4), the regulator is already required to monitor compliance with obligations. However, we do not think it appropriate for the regulator to be directly involved in every instance of a heritage change. As a light-touch regulator, we do not expect it to intervene where clubs are already meeting what is required of them. Instead, it will be able to have a wide view, and intervene where there are concerns.

Any change to heritage assets will necessarily come under significant scrutiny by fans and the public, as well as the FA through its existing fan engagement standards. Additionally, in any case of non-compliance, the regulator will have sufficient enforcement options at its disposal. The process is therefore appropriately safeguarded without the need for direct regulatory involvement each time.

Turning to amendments 111 and 92, club names are a vital part of the club’s heritage. The legislation therefore introduces legal protections for that heritage asset. The FA has a long track record of being able to take a considered approach to name changes, listening to fans and heritage concerns, and taking appropriate action. That was demonstrated in the case of Hull City: the FA blocked multiple attempts to change the name to “Hull Tigers”. The FA, with oversight of all levels of football, is also in a good position to ensure that name changes do not have unintended implications for clubs that are outside the regulator’s scope.

The Government therefore believe that the FA is in the best position to take into account fan opinions and all the other relevant considerations, with the regulator acting as an enforcement backstop. That is in addition to any mandatory licensing requirement for clubs to consult their fans on any matters relating to the club’s name, among other heritage assets.

The shadow Minister asked which fans will be consulted. For the most part, clubs will be in the best position to understand the demographics of their fans. The regulator will be able to provide guidance for clubs for on how best to consult fans. Clubs in the lower leagues will tend to have a more local fanbase, whereas larger clubs will have fanbases from across the world, as the hon. Member for Sheffield South East pointed out. That is why we want to implement proportional and flexible proposals.

[Mr Betts]

We all feel concerned about this issue. It is not about the clubs that already consult well; it is about those that do not consult, but will be compelled to consult by the legislation, and will not really want to—they will find ways around it. The regulator can give guidance, but if a club does not follow that guidance, what will the regulator’s likely course of action be?

[Stephanie Peacock]

We will come on to enforcement, but a range of enforcement options will be available to the regulator, if it feels that a club is not doing what it asked the club to do.

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[Stephanie Peacock]

Clause 49 requires a club to establish that a majority of domestic supporters approve any material change to its emblem, crest or predominant home shirt colours. A club’s name, home shirt colours and emblem are intrinsic parts of its heritage, intertwined with decades of club and supporter history. The decision to materially change any of them therefore requires considered thought and consultation. The clause means that changes can still be made, but only if, and once, fans have voiced their support. In practice, we expect that could take place through a formal survey of fan opinion, as we saw last season with Bristol Rovers, where supporters opposed the final proposal that was put to them, resulting in the club halting the redesign of their emblem.

The clause also requires clubs to get FA approval prior to changing the name that the club’s team plays under. The view of supporters is a significant factor in the FA’s decision making. However, the FA may also need to balance wider considerations regarding to a name change. That might include whether there would be any adverse effects on other clubs throughout the pyramid. The existing FA rule has been used to prevent name changes, which have been proposed in the past against the wishes of fans, as I mentioned with the example with Hull City. Codifying this as a legal duty will mean there are additional powers to ensure clubs do not make changes without proper approval and allow the regulator to respond to instances of non-compliance. The clause serves one of the key objectives of the regulator: protecting the heritage of English football. I commend it to the Committee.

[Mr Betts]

I am still a bit uneasy about those clubs that are not going to enter into the spirit of the really important part of the Bill: proper fan consultation. I come back to Sheffield Wednesday and its owner, who thinks sitting down for 10 hours of deliberation with hand-picked fan groups and not answering any questions amounts to a consultation—it does not.

I was interested in what the Minister said about how the regulator will have the right to issue guidance about how consultation should happen, and then there can be enforcement if the guidance is not followed, which means the guidance effectively becomes a requirement. I hope that we can elaborate on that later in the Committee’s discussions, as she indicated we would, because, without those backstop powers, there will be some club owners who regard the club as their personal possession and believe that no one has a right to interfere in how they run it.

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[Stephanie Peacock]

Names interact with other clubs in the pyramid, which is not the case with shirts and colours, and we think there are strong provisions in the Bill for fan consultation.

[Mr Betts]

I hear what the Minister said, but I want to think about that. I know what her good intentions are, but I also know there may be some people out there with bad intentions; it is about making sure that they come in line with the Minister’s good intentions. I am holding back to see what further discussions we have, but this is really important. It is a wider issue: there are so many clubs with so many disparate fan groups, and owners will pick and choose if there is not certainty. That is why I raised the issue, which I think we ought to come back to, of a clear role for the Football Supporters’ Association, the body that oversees fan groups in this country. It has a neutral view of which groups are the most important and relevant in different clubs, and it can help the regulator enormously in what, in some cases, will be a challenging process of trying to identify the fan groups who really speak for fans in those clubs.

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[Mr Betts]

I beg to move amendment 6, in clause 53, page 43, line 35, after “club” insert

“and in particular that the starting point for calculation of the levy payment applicable to a particular club should be a percentage of annual revenue”.

This amendment would require the IFR to have regard to a football club’s percentage of annual revenue when calculating a levy payment.

I encourage the Minister to say whether she thinks that the levy payment should relate to the income of clubs. Some clubs are clearly mega-rich—multi-million pound businesses, every year—but other clubs’ income is down in the few thousands of pounds. My amendment is probing, really, but will the Minister confirm whether clubs’ income is the basic building block on which the levy will be formulated?

[Stephanie Peacock]

I thank my hon. Friend the Member for Sheffield South East for tabling his amendment. The Government completely understand the importance of any charges on clubs being transparent and proportionate and offering value for money. That must be achieved while maintaining the regulator’s operational independence and flexibility to respond to industry developments in the future. I will come on to discuss the levy in detail, but I will set out the key points now for clarity, in relation both to this amendment and to how the Bill ensures the levy is affordable for clubs.

The regulator must set out in levy rules how the annual levy payments will be calculated. The Bill explicitly requires the regulator to have regard to the club’s financial resources and position in the pyramid. That would include revenue. It should ensure a proportionate approach where no club, big or small, is asked to pay more than what is fair and affordable. Premier League clubs are expected to shoulder the majority of costs, reducing the financial burden on smaller clubs.

It would not be appropriate to prescribe an exact methodology for charging the levy in legislation, as doing so would remove the regulator’s ability to explore other possibly more effective and proportionate methods of charging. That would be counter to the agile and independent regulator we want to create. For example, a club might have a relatively low organic revenue, but its owners might have very deep pockets. The regulator might want to take that into account to ensure that charges are fair, proportionate and relative to circumstances.

I also want to highlight that there is a statutory requirement for the regulator to consult industry on the levy. Every regulated club will be consulted. That transparency means that no club will be surprised by the changes asked of them. That will be sufficient to ensure the levy is fair and proportionate. For the reasons I have set out, I am unable to accept the amendment.

[Mr Betts]

I accept the Minister’s explanation, and I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Question proposed, That the clause, as amended, stand part of the Bill.

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[Stephanie Peacock]

I beg to move amendment 27, in clause 56, page 46, line 27, leave out

“means an order under section 62(1) or (3)”

and insert

“has the meaning given by section (Distribution orders)(6)”.

This amendment is consequential on the insertion of NC4.

The amendment is consequential on Government new clause 4, which we will debate later. Although it depends on that later change, the amendment would change clause 56, which is why we are discussing it now. We will also discuss clause 56 in more detail later, but one of the things it does is set out key definitions of key terms used throughout the backstop provisions. One of those defined terms is “distribution order”, which is the order made by the regulator at the end of the backstop process. It is designed to resolve the questions for resolution if the leagues have not managed to do so during mediation. Currently, the Bill’s definition of “distribution order” refers to clause 62, but we propose to remove clause 62 and replace it with new clause 4. New clause 4 completely changes the final stage of the backstop process. I met the shadow Minister and the Liberal Democrat spokesperson, the hon. Member for Cheltenham, to discuss this ahead of the Bill Committee. It moves the backstop away from a binary, winner-takes-all model, and allows the regulator discretion to design a solution to distribution issues.

We will have a chance to debate that fully when we debate clause 62, so I will withhold some of my comments until we get to that point. This simple amendment just updates the definition of “distribution order”, so that it appropriately refers to new clause 4 instead of clause 62. It is vital that we make these sorts of consequential changes, to ensure that the legislation remains coherent. Therefore I hope that Members will support this amendment.

[Mr Betts]

As the Minister said, we will come on to debate these issues later, but again, I just want to place it on the record that she has been really listening to concerns that have been raised about the pendulum nature of the previous backstop. This is a much better process, which we will come on to discuss in more detail. Thanks to the Minister, we will discuss it further, but it is a much better framework that we will now be putting in place for the regulator to decide on any disputes or failures to agree between the leagues.

Amendment 27 agreed to.

[Stephanie Peacock]

I beg to move amendment 28, in clause 56, page 46, line 42, leave out subsection (7).

This amendment removes the definition of “the question or questions for resolution” which is now superfluous.

Football Governance Bill [ Lords ] (Fifth sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Tuesday 10th June 2025 Public Bill Committees

[The Parliamentary Under-Secretary of State for Culture, Media and Sport (Stephanie Peacock)]

It is a pleasure to once again serve under your chairship, Sir Jeremy. I look forward to day three of Committee. I thank my hon. Friend the Member for Sheffield South East for the amendments; I am never fed up of hearing from him and I know he is very passionate about this issue.

The Government recognise the intent behind the amendments to ensure that football continues to be played at a club’s home ground. The Bill already has a number of strong protections to safeguard home grounds against reckless sales or ill-thought-out relocations. I will respond to a couple of points made in the debate and will then outline why we will not be accepting the amendments.

Fan consultation was mentioned. Clubs must consult their fans on any plans to change or move their home ground as per the fan engagement threshold condition. The shadow Minister, the hon. Member for Old Bexley and Sidcup, made an important point about how it will sometimes be necessary for clubs to relocate their home ground, for a number of reasons, such as the ground being too small, facilities no longer working or the ground being sold. We recognise that we need flexibility in that approach, but fans will have a say.

For clubs that do not own their stadium or have already sold the stadium, due to the scope of the Bill and existing property law, it is not always possible for home grounds that are not owned by the club to have the same protections as home grounds that are. This point was recognised in the fan-led review. However, alongside the fan engagement requirements, there are also protections under the national planning policy framework for sports grounds and existing assets of community value, and there is work under this Government, as well as an ongoing Law Commission review of security of tenure that has the scope to address sports grounds. Those powers will all work alongside the soft powers and levers of the regulator to look to protect home grounds, as far as possible.

My hon. Friend the Member for Sheffield South East also referred to the fact that leagues have requirements for tenure, and clubs are prevented from entering the league if they do not meet them. Leagues also have enforceable standards regarding the quality of the grounds. These vary from league to league and can get into the specifics of grass length on matchdays, for example. Given those requirements, we do not feel it is necessary for the regulator to duplicate rules. Instead, it will work alongside the leagues.

It should be noted that clubs may not own their home grounds—I have responded on that point—and therefore they would require the agreement of their landlord to meet the additional licensing requirement we believe that the amendments would lead to. These amendments would place a requirement on clubs to guarantee something that may not be within their control, as well as duplicating pre-existing league requirements for home grounds.

We recognise that the fan-led review recommended that the Government explore the viability of introducing security of tenure property rights for football clubs. I hope I have explained why we do not feel we can do that.

The Law Commission is now in the process of reviewing the Landlord and Tenant Act 1954, including an assessment of security of tenure for all commercial properties, including football clubs. Following the review, the Ministry of Housing, Communities and Local Government will consider the recommendations and publish a full response.

For those reasons, I am not able to accept my hon. Friend’s amendments and would ask that he withdraws them.

[Mr Betts]

I am still not quite sure why my amendments would cause so many problems. I understand the difficulty where a club does not actually own the ground but leases it, but the amendment is about security of tenure. There does not have to be ownership; it could be a secure lease, as the English Football League requires, for a 20-year period. That is implied by the amendment.

I was not quite sure what the Minister was saying about how the review by the Law Commission and implementation by MHCLG Ministers would secure the position for football clubs, and what else is being looked at in terms of the planning framework. Is she able to say any more on those points to get on the record what further safeguards might be in place?

[Stephanie Peacock]

On the point in the amendments about 20 years, we appreciate that not all the leagues go that far, but we think that the point is addressed by the league rules. On the consultation by MHCLG, it might be helpful if I ask my counterpart there to write to my hon. Friend and to share that letter with the Committee, because that ongoing work falls in that Department.

[Mr Betts]

The Minister often completely convinces me—on this occasion, she goes a little way towards being convincing. I want to read what MHCLG is going to say. In the end, it is not how we do it, but what we achieve in terms of the safety and security of grounds for the fans. That is what this is about. If what MHCLG is going to do moves us in that direction, as the Minister indicates it will, I am happy to await that correspondence from it before pushing this further. I hope that we can get a response from MHCLG Ministers before Report—if the Minister could encourage them to write in that time period, it would be helpful.

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[Stephanie Peacock]

It is a disappointment that I am not able to convince my hon. Friend fully. Not all of what he asks is in my gift, but I commit to the Committee that I will do my very best to get a response from the Department before Report, and if possible earlier.

[Mr Betts]

On that basis, with the Minister going as far as she can this morning, I am happy not to press the amendment. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

--- Later in debate ---

[Mr Betts]

On a general point, when we talk about fans and fan groups, who defines who they are and the relevant ones? That is a really important point. Coming back to our club, Sheffield Wednesday, we have more than 20 different fan groups. That is also true of other clubs. Talk to the EFL, because it often struggles to engage or know who actually represents fans, as opposed to two or three people who have got together to name themselves as a group. How are we going to deal with that? As fans become an integral part of the process, who decides who the relevant groups are?

[Stephanie Peacock]

I appreciate that point. We will come on to discuss that in relation to schedule 5, and I will give a fuller response then.

Question put and agreed to.

Schedule 4 accordingly agreed to.

Clause 19

revocation and cessation of operating licence

--- Later in debate ---

[Stephanie Peacock]

I appreciate the shadow Minister’s comments. I will address them in detail when we come to the relevant debate.

Question put and agreed to.

Clause 20 accordingly ordered to stand part of the Bill.

Schedule 5

Mandatory Licence Conditions

[Mr Betts]

I beg to move amendment 7, in schedule 5, page 100, line 19, at end insert “(e) an enforcement condition.”

See explanatory statement for Amendment 8.

--- Later in debate ---

[Mr Betts]

They would, and therefore the club disappears. No one wants to see that. The whole purpose of the Bill is to stop clubs disappearing, to stop what happened to Bury, and so there is a gap in the legislation, because what happens in that situation? It nearly happened at Reading—the club nearly disappeared, but in the end it was a last-minute sale. If the owner had not sold it at the last minute, however, the EFL has no powers to deal with it, and the regulator will not either. The regulator has the power to say: “You shouldn’t be owning the club. You shouldn’t have a licence to operate the club, because of what you have done, you haven’t got the funds, your source of funds is inappropriate”—all those things—but then what happens?

I am saying to the Minister that the whole intention of the Bill is to ensure that the clubs that fans have supported for years, for generations—for communities, it is their club—do not disappear, go out of business or lose their place in the competition they are playing in. Clubs might get relegated, that is fine, but they should not lose their place because they have an owner who is not fit and proper, and does not meet the test. We have to find way of dealing with this, which the Bill does not do as drafted.

[Stephanie Peacock]

I thank my hon. Friend for moving the amendment and tabling amendment 8. To be the owner of a football club is to be the custodian of a treasured and historic community asset. That should be an honour, but it also comes with great responsibility. We recognise that in the past, however, it has typically been the actions of unsuitable custodians that have put our historic clubs at risk of collapse. It is vital that the regulator has the necessary powers to protect clubs and their fans from such owners. We therefore completely recognise the intent behind the amendments—to ensure that the regulator has the necessary enforcement mechanisms to back up its regime and guarantee protection from unsuitable owners.

I reassure my hon. Friend that the Bill already suitably achieves that. The regulator already has the power to require a club to make constitutional changes if the regulator considers that that is an appropriate way to secure an unsuitable owner’s removal. It has a range of strong powers to enforce against any non-compliance. The powers include the imposition of sanctions, such as financial penalties, all the way up to forcing divestment, which would force an owner to divest their stake in the club at no minimum price, directing them to take no part in the running of the club in the meantime. If necessary, the regulator can appoint an interim officer to assist the club operating effectively in the owner’s absence.

To respond to the point made by the hon. Member for Spelthorne in an intervention—a point made by my hon. Friend the Member for Sheffield South East a number of times—that ability to isolate and remove unsuitable owners and officers should mean that a club never has to have its licence suspended or revoked. A clubs’ fans should therefore not have to suffer the consequences of bad leadership. To be clear, because the licence is separate from the owner, the removal of an owner will not impact the club’s licensed status. We will come on shortly to discuss owners and directors, so I shall reflect on my hon. Friend’s comments ahead of that debate. I hope to provide him with reassurance, but we will not support his amendment.

[Mr Betts]

Is the Minister saying that the regulator has the power to direct that someone else should be in charge of running a club and having operation of the licence that the club needs to compete in the competition, even if the owner is not a fit and proper person?

[Stephanie Peacock]

I am saying that the regulator may—I am not saying definitely will, because I do not want to get into hypotheticals of what it will do or not—appoint an interim officer to assist a club to operate effectively in the owner’s absence. To be clear, the club’s licence is separate from its owner, so the removal of the owner does not impact the club’s licensed status.

[Mr Betts]

In further debate, we will come back to the issues of owners and directors, to which the Minister referred. As I said at the beginning, this was an exploratory amendment for discussion of the whole issue, which is important, but with her reassurance. at this point I will not press the amendments to a vote. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

--- Later in debate ---

[Mr Betts]

Assets of community value have been looked at in a number of different ways over time. Some clubs are already in this situation because their fans have moved to do this. That is true at Sheffield Wednesday, where fans moved some time ago to have the ground designated as an asset of community value. It does not provide a complete safeguard against an owner, who wants to cause mischief and upset for fans and the club, transferring the ground for another purpose, but it provides more of a safeguard than simply having it as a ground without any particular protection, as is currently the case.

The Minister referred to what the MHCLG might be doing in this area on the rules around planning. Is she prepared to look at using assets of community value to give further protection and to comfort fans that football grounds hold a different status to other assets that owners, from time to time, might want to change for another purpose?

[Stephanie Peacock]

I thank my hon. Friend for tabling the amendments. I know we have discussed this issue a number of times; it has always been a pleasure to do so, and I recognise its importance. Home grounds are often the most important asset that a club owns, so that is why I want to thank my hon. Friend for placing a real focus on them.

The significant financial and heritage value that grounds hold is why the Bill has strong protections to prevent home grounds being sold, used as collateral or relocated without the necessary considerations. Asset of community value status is another mechanism that a number of clubs and supporter groups have obtained for their home grounds. We would expect the regulator to welcome any club that wishes to gain community value status for an asset as another way to protect their home ground.

However, we are confident that the legislation will provide the necessary protections to address fan concerns and keep these important assets protected without mandating this status. Additionally, while assets of community value have proven beneficial for many clubs where no other protections have been in place, these amendments may place an unnecessary burden on clubs. As currently drafted, they would require clubs to either go through what can be a lengthy process with the relevant authority or make structural changes to the constitutional document of a club. Given that significant protections are already in place in the Bill that deliver the necessary safeguards, it is difficult to justify any additional measures for all regulated clubs, especially as a mandatory licence condition.

I really want to reassure my hon. Friend, as I know that home ground protections are of particular importance to him, that the Government have already committed to asset of community value reform in our manifesto, and this is something that the recent English devolution White Paper from the Ministry of Housing, Communities and Local Government commits to.

[Stephanie Peacock]

I am saying that I am confident the legislation will provide the necessary protections to address fan concerns, but I also draw the Committee’s attention to the work of the Ministry of Housing, Communities and Local Government on the specific issue of assets of community value. Of course, that does not fall into my portfolio, but I am very happy to commit to speaking to my relevant counterpart and adding to the letter that I have earlier committed to writing. This is something that I am sympathetic to, but I do not have the ability to make that commitment today. I believe that the work the Ministry is doing is very interesting and relevant to what we are discussing. For that reason, I am unable to accept my hon. Friend’s amendment, and I ask that he withdraws it.

[Mr Betts]

I thank the Minister for that reply; it is helpful in moving the discussion in the right direction. I appreciate that she cannot commit on behalf of another Department and other Ministers, but she has indicated that work is going on in this area. Again, it would be helpful if she could encourage her colleagues in the MHCLG to come forward with that further information before we get to Report. If they are going to write to us about the other issue, they could write to us about this as well. It would be extremely helpful if that could be done, but I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Football Governance Bill [ Lords ] (Sixth sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Tuesday 10th June 2025 Public Bill Committees

[Stephanie Peacock]

The schedule outlines the mandatory licence conditions that the regulator will attach to all licences as standard, regardless of the club’s circumstances. Those conditions are related to core areas of financial management, corporate governance, fan engagement, and reporting. They will form the foundations for the overall improved standards and sustainability of a club. Long-term financial sustainability is at the heart of the Bill, and is vital to making clubs more resilient to financial difficulties.

The financial plan condition requires clubs to present a plan that allows the regulator to understand the risk profile of the club and its plans for mitigating risks if necessary. That will include contingency planning and plans to wind a club back to a sustainable state if it faces unexpected financial difficulty. Those are not overly onerous requirements, but basic business planning that most well-run clubs will already be doing. It is anticipated that the regulator will help clubs update their plans if they exhibit unmanaged risk. If the updated plan still exhibits excessive risk, the regulator can place discretionary licence conditions on a club to help them meet the financial resources threshold requirement. That ensures that clubs can be ambitious but, equally, that failing to achieve those ambitions does not put the long-term financial sustainability of the club at risk.

A key tenet of a well-run business is good corporate governance, and the regulator will look to instil that into all licensed football clubs through the mandatory condition. Corporate governance standards in the industry need improving, with many clubs lacking even the most basic of good governance arrangements, such as a proper, functioning board. In consultation with the Football Association and other relevant stakeholders, the regulator will prepare and publish a code of practice about the corporate governance of regulated football clubs. Through that condition, licensed clubs will be required to submit a statement detailing how they are applying the code of practice. That will include what action they are taking to improve equality, diversity and inclusion.

Given the rich variety of clubs and fanbases, good supporter consultation will look different from one club to another. The fan engagement licence condition has been designed to reflect that, empowering the regulator to impose specific requirements on the form and frequency of supporter consultation where necessary. That mandatory licence condition works in tandem with the fan engagement threshold requirement, which is in schedule 4. The mandatory licence condition will be the minimum requirement for all clubs.

[Mr Clive Betts (Sheffield South East) (Lab)]

Will the Minister give way?

[Stephanie Peacock]

I will address some of my hon. Friend’s points, if he bears with me for a moment. If I do not, I will be very happy to give way.

All clubs must regularly consult a representative group of fans or a group elected by the club’s fans to represent them on the relevant matters listed in the Bill. The regulator can specify that the group is formed via fan elections—an additional measure the Government added to ensure the fan group can be independent from the club. The threshold requirement in schedule 4 then empowers the regulator to go further on fan engagement, if needed. It allows the regulator to impose discretionary licence conditions on clubs relating to fan consultation. There are several types of fan engagement that could be used to meet that requirement. No one way has been specified on the face of the Bill in order to allow for a bespoke approach to be taken at each club. We expect, however, that we would likely look to utilise existing structures where appropriate. Those would likely be organisations such as supporters’ trusts or fan advisory boards, which are often key independent fan bodies.

To address the points made by my hon. Friend the Member for Sheffield South East, for the most part, individual clubs will be in the best position to understand the demographics of their fans. The regulator will be able to provide guidance for clubs on how best to consult fans, which will include how to approach consulting across a widespread fan base. It is, however, vital that they engage with a representative group of fans, and therefore, if a section of the fan base has not been engaged with, the regulator has the ability to specify the club should meet with them. That will ensure that clubs have an appropriate framework in place that allows them to meet regularly and consult the group on key strategic matters and supporter interest.

Clubs in the lower leagues will tend to have more a more local fan base, whereas larger clubs will tend to have fans from across the world. That diversity is part of the reason why the English football pyramid is so special. It is also why we want to implement proportional and flexible proposals that work for clubs across the pyramid. The regulator will implement a minimum requirement for fan engagement, which the regular fan consultations will be a significant part of, alongside protections for club heritage. I hope that answers my hon. Friend the Member for Sheffield South East. I am happy to give way if not, or he can contribute to the debate.

[Mr Betts]

I will contribute to the debate.

[Stephanie Peacock]

Perfect. The annual declaration condition requires a club to submit an annual declaration to the regulator, which sets out all the notifications that the club has made, or should have made, to the regulator in the preceding 12 months. Broadly speaking, these notifications relate to changes in the circumstances affecting the club that the regulator needs to know about to regulate effectively. That includes any non-compliance related to the club. A club will also have to issue a statement even if there are not any matters to notify the regulator about. That will create a formal touchpoint each year in lieu of any licence renewal; the emphasis will be on clubs to declare all relevant changes in circumstances and compliance against which they can then be held accountable.

[Mr Betts]

It is a pleasure to have you back in the Chair, Mr Turner. The Minister is doing all she can to deal with situations that will apply to most clubs. The problem is those owners that do not want to engage. They will try to avoid this responsibility because they see it as an infringement of their right to run their club in the way they want.

I have to come back to Sheffield Wednesday because Mr Chansiri has a track record on this. He set up an engagement panel with fans, but he invited the fan groups he wanted to invite. Worse than that, once someone goes into a meeting with him, they have to sign a statement to say that they will not divulge any of the things that happen in that meeting. It is a closed shop.

I sat down with a myriad of different groups including the supporters’ trust, which is the biggest fan group by a long way, and several other groups, including the women’s group and the 1867 group. We formed an umbrella group to try to bring all the fan groups together. The club spoke to the groups and said, “If you get involved in the umbrella group, you will not be allowed on the engagement panel.” It is either/or because that is seen as an attack on the club and the chairman. You could not make it up—well, you can make it up, because we can see how the club is run. That is the problem.

How do we get around that situation? I was told the other day, “The chairman engages with fans. He has actually had two meetings of five hours each with fans.” But he does not answer any questions. When I asked one of the officers at the club why he will not answer questions, they said, “Well, they wanted to know what his business plan was.” It is not a bad question to ask, and that is exactly what the regulator is going to have the powers to do.

I am still not absolutely certain on what happens when the club tries to control the situation. Does the regulator then arbitrate? Does the regulator come in and say what they think good fan engagement looks like? It would be very helpful if the Football Supporters’ Association were to be given some role in that, because it understands fan engagement and fan involvement better than anyone. It knows what happens on the ground, it knows the tricks that the clubs pull and it knows how genuine fan engagement can be developed and implemented. I am not sure a new regulator will necessarily have all that intrinsic knowledge about what happens at clubs. Some role for the FSA in this would be helpful. In particular, it would help when problems arise of the sort that I have just explained.

I am sure Sheffield Wednesday are not the only club where owners do not really want fans around—they just want them to turn up, pay their money and go away. The Chair probably cannot get involved in the debate, but I can see you nodding, Mr Turner, because I am aware that there have been a few problems at Hull in that regard in the past. I ask that the Minister provide a bit more of an explanation and flesh this out further. In particular, sub-paragraph 8(2) reads:

“So far as the condition requires consultation with persons within sub-paragraph (1)(a), the condition may require the club to constitute a group of such persons”.

I know immediately how some clubs will constitute that group, and it will not be proper fan consultation.

[Stephanie Peacock]

I am grateful to my hon. Friend for his contribution. We would obviously expect the regulator to build on relevant expertise internally and via consultation. I have worked with and met representatives of the FSA a number of times. I pay tribute to the work they do, and I am sure that is the sort of group that the regulator will very much draw on.

My hon. Friend will completely understand why I am slightly reluctant to comment on live examples. That does not mean that I am not sympathetic to the points he makes on behalf of his constituents. I draw his attention to my remarks about how, if a section of the fanbase is not being engaged with, the regulator has the ability to require a meeting with the club. Where an owner or a club are not engaging, or not engaging effectively, the regulator will be able to intervene.

[Mr Betts]

It is helpful of the Minister to have elaborated on that. Would she go a bit further and say whether she anticipates that the regulator will engage with the Football Supporters’ Association when difficulties arise and there needs to be an independent look at fan engagement with a club?

--- Later in debate ---

[Stephanie Peacock]

It is important for sustainability that incumbent owners and officers continue to be suitable custodians of their clubs. That is why the Bill gives the regulator the power to test incumbents if it has grounds for concern about their suitability. That will help mitigate the risk of harm from individuals already in the system.

Clause 33 places a duty on incumbent owners and officers, as well as regulated clubs, to notify the regulator where they consider there to have been a relevant material change in circumstance. Notably, this is a change of circumstances that could have an impact on whether the regulator would find the individual suitable to be an owner or officer of the particular club—for example, if an officer became subject to criminal or relevant civil proceedings that the regulator was not previously aware of, or if an owner’s source of wealth had changed in some way that is relevant to whether it is connected to serious criminality.

The notification must explain the material change in circumstances and its relevance to an individual’s suitability. If this information gives the regulator grounds for concern about the incumbent’s suitability, it has the power to test them under clauses 34 or 35. Ensuring that the regulator is aware of relevant material changes will better enable it to ensure that incumbent owners and officers continue to be suitable.

Clause 34 provides the regulator with the necessary powers to test incumbent owners already in place in clubs where there is concern about their suitability. This allows the regulator to tackle any risks to clubs from unsuitable owners already within the industry.

[Mr Betts]

I just want to be clear about the grounds on which the regulator can investigate or intervene. We talked about the source of wealth being criminal, which has been clearly laid out. However, if the source of wealth is one that has diminished substantially, so the owner cannot now show that they can continue to run the club, is that a reason for the regulator to consider intervening?

--- Later in debate ---

[Stephanie Peacock]

There are different thresholds for new owners and incumbent owners; with new owners, it is grounds for suspecting, but with incumbent owners, it is the balance of probabilities. Of course, the latter is a higher bar, given the existing owner’s property rights. I do not know whether that fully answers my hon. Friend’s question, but I can write to him with some further detail.

[Mr Betts]

It would be helpful if the Minister could write to me because this is a big question in football. There are owners who promise the world and then find that they cannot deliver it; indeed, they can deliver very little. I come back to Sheffield Wednesday, but there have been other owners, such as Ken Bates at Oldham, who set up a structure that could not then be financially maintained. It is important to understand whether the regulator has power in that circumstance to intervene.

[Stephanie Peacock]

Absolutely, and I refer back to some of our earlier conversations. If we take the regulatory regime as a whole, at the very basic level, owners need to have a business plan, consult their fans and be fit and proper—those three things work together. As we spoke about earlier, if the business plan does not match the source or amount of funds, the regulator can go back and direct them. Perhaps that provides a little more clarity, but I am very happy to add more detail.

[Mr Betts]

I think the Minister and I are getting there. Obviously, the business plan and the source of funds come with a new owner and then continue. However, with an owner already in place, does that still apply? Can the regulator say, “Wait a minute. I need to see a business plan and a source of funds to ensure that you are a fit and proper person”?

[Stephanie Peacock]

In certain circumstances. I am hesitant to use the word “new” information, because the information may not be new. However, if relevant information comes to light for the regulator, which may be new or pre-existing but relevant, the regulator can look at it. I draw my hon. Friend’s attention to the difference in the threshold between new owners and existing owners.

[Mr Betts]

I will make just one more point—I think it is important that we understand precisely what this means. Clause 33 talks about an owner or club having a responsibility to notify the regulator. Surely that does not mean that nobody else could notify the regulator, if relevant information came to them. Could they then pass it on for the regulator to look at?

[Stephanie Peacock]

Yes, absolutely. That goes back to the discussion that we had earlier on new clause 15. The regulator will take credible information seriously.

Clause 34 provides the regulator with the necessary powers to test incumbent owners—those already in place—of clubs, where there is a concern about their suitability. It will allow the regulator to tackle any risk to clubs from unsuitable owners within the industry, while recognising that there are suitable owners already in the system who do not need to be tested. We want to ensure that the approach is not overly burdensome for the regulator, and we do not want to deter investment in the game. Incumbent owners can be assessed to ensure that they have the requisite honesty and integrity, and are financially sound enough, to own a club. If the regulator has information that gives it grounds for suspicion, incumbent owners can also be tested on their source of wealth. The regulator will need to establish if wealth is connected to serious criminal conduct, including crimes such as drug trafficking or fraud. The regulator will not remove incumbent owners because of a mere suspicion about their source of wealth. Rather, an incumbent owner must be treated as unsuitable if the regulator is more sure than not that their source of wealth is connected to serious criminal conduct. The clause will ensure that the regulator has the appropriate powers to test incumbent owners where a risk of harm arises.

Clause 35 provides the regulator with the necessary powers to test incumbent officers—those already in place—of clubs, where a risk of harm arises. As with the provisions for owners in clause 34, testing of officers is limited to cases where there is concern about suitability. It allows the regulator to tackle any risks to clubs from unsuitable officers already in the industry. Incumbent officers can be tested to ensure that they have the requisite honesty, integrity, competence, and are financially sound enough, to continue in their role.

The Government are aware that finding an incumbent owner or officer unsuitable would bring about significant consequences for that person, and may cause concern for clubs or fans. That is why, when the regulator is minded to fail an incumbent owner or officer, clause 36 gives the individual and the club concerned an opportunity to make representations before the regulator makes its final decision. That allows an officer or owner an appropriate opportunity to argue their case before the regulator finds them unsuitable. The regulator has the ability to test or re-test incumbent owners and officers, which will prevent unsuitable custodians from harming clubs over the long term, not just at the point of entry. That will help to ensure the sustainability of clubs over the long term, benefiting football now and into the future. I therefore commend the clause to the Committee.

Football Governance Bill [ Lords ] (Third sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Thursday 5th June 2025 Public Bill Committees

[Stephanie Peacock]

I am grateful to the shadow Minister for those questions, which somewhat rehearse the previous debate on the staffing of the shadow regulator. He should have received an answer to the written question, and we spoke about this last time; as of 1 June, it has 42 staff. I cannot comment on exactly how many staff there will be at the point of Royal Assent. In my remarks, I said that upon the creation of the regulator, property rights, liabilities and staff will be transferred. I am happy at that point to write to the shadow Minister, but I will not speculate now.

Question put and agreed to.

Clause 9 accordingly ordered to stand part of the Bill.

Schedule 3 agreed to.

Clause 10

State of the game report

[Mr Betts]

I beg to move amendment 2, in clause 10, page 7, line 6, at end insert—

“(d) an assessment of any existing and effective financial distribution agreement against the principles set out in section 62(2);”

This amendment would require the state of the game report to make an assessment of any existing and effective financial distribution agreement against the principles set out in distribution orders for the resolution process.

It is a pleasure to serve under your chairmanship, Mr Turner. We are finally starting to get on to the football issues in the Bill. The state of the game report is obviously a key element. It will shape how the regulator operates, and eventually, the financial distribution, which we will come to later in the Bill. So the report is really important.

Amendment 2, without undermining what is already in the Bill in any way, simply ensures that the financial distribution as it exists, and as it might exist according to the principles laid out in further clauses of the Bill, is taken into account when developing the state of the game report. It brings a symmetry to the whole process, so that the state of the game report looks at the financial distribution, and when we come to the financial distribution, it goes back to look at the state of the game report. It is a simple amendment that makes the Bill coherent as a whole. I hope that the Minister might at least consider it when looking at how the Bill might be improved.

--- Later in debate ---

[Stephanie Peacock]

I thank my hon. Friend the Member for Sheffield South East for the amendment. I understand its aims. We do not consider it necessary, as we are confident that the Bill already covers the issue. Per clause 10, the regulator will be obliged to look into the main issues affecting English football and any features of the market that risk jeopardising its objectives. If the existing distribution arrangement meets either of those criteria, the regulator will cover it in the state of the game report. I reassure my hon. Friend that the regulator has the ability to address distributions in the sector if the current scenario reaches a threshold, and we will discuss those powers when we get to part 6.

In general, we have not taken the approach of being overly prescriptive and listing every issue the regulator could and should look at here in the Bill.

[Mr Betts]

I am trying to work out what the Minister is saying. Is she saying that the amendment is unnecessary, because in the state of the game report as laid down already in the Bill, the regulator can do precisely that—look at the distribution within football? There were some other words added then about what might be a restraint on the regulator’s ability to do that. Is the regulator completely free to look at the distribution of resources and revenue within football as it stands?

--- Later in debate ---

[Stephanie Peacock]

Yes, the regulator has the ability to address distribution in the sector if the current scenario reaches the threshold. We will come on to discuss that in part 6. I was going to say that, in general, we have not taken the approach of being too prescriptive and listing every issue in the Bill that the regulator could and should look at, as that would be contrary to the light-touch regulator that we have discussed throughout the Committee’s proceedings. I can be very clear in answering my hon. Friend’s question: it has the ability as it stands, and we will discuss that point further in part 6. I hope that he will withdraw the amendment for those reasons.

[Mr Betts]

I think I am reassured by what the Minister is saying. It is obviously quite a complicated area, and it links in to what comes later in the Bill. Maybe we can pursue this later. I want to be certain that the regulator has these powers, because I believe that much of the concern among football fans is around the current distribution of revenue, and we must ensure that when we have finished with the Bill, it sorts that problem out. At this stage I will not pursue this to a vote, but we will have discussions about distribution in due course. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Football Governance Bill [Lords] (Fourth sitting)

Debate between Clive Betts and Stephanie Peacock

Committee stage
Thursday 5th June 2025 Public Bill Committees

[The Parliamentary Under-Secretary of State for Culture, Media and Sport (Stephanie Peacock)]

It is a pleasure to see you in the Chair and to serve under your chairship this afternoon, Ms Butler. I thank my hon. Friend for his amendment.

The state of the game report will be a key study into the structure and dynamics of the industry. It will help to build an evidence base to inform the regulator’s approach and decision making. I therefore recognise the intent behind my hon. Friend’s well-meaning amendments.

The state of the game report needs to be produced promptly, but it also needs to be a robust study. The timeframes set out in the Bill balance the importance of a timely first report with giving the regulator time to undertake the necessary in-depth analysis. The regulator will need to publish its first report as soon as possible or, as my hon. Friend outlined, within 18 months of the competitions in scope of regulation being specified by the Secretary of State, as an absolute maximum. For subsequent reports, a maximum of five years between publications will encourage the regulator to take a more long-term look. That should minimise unnecessary burdens on the industry and better align with the timelines for existing industry processes, such as commercial agreements. The regulator will still have the discretion—as my hon. Friend anticipated—to publish subsequent reports sooner if it considers it appropriate to do so.

I cannot accept my hon. Friend’s amendments to reduce the timings further. He asked me to go away and reflect on them, but I do not want to give him any false hope. We have put careful consideration into the time limits, which were changed from the previous Bill. They are an absolute maximum. We have had a number of conversations with the various leagues and stakeholders, and we are confident that they are the right time limits. We have made it clear that the regulator has the power and discretion to publish sooner, and we would very much hope that that would be the case for the first report in particular. For those reasons, I cannot accept his amendments.

[Mr Betts]

I will not press the amendments to a vote, but I want to encourage the Minister on this point. As she said, the regulator can come back to the state of the game report before five years. In doing so, would the regulator be encouraged to take account of any views or concerns from the leagues and clubs that are being regulated, and from fans’ groups? If there was a real concern that things were changing fundamentally, would the regulator be encouraged to come back and reflect on whether a state of the game report should be done more quickly?

[Stephanie Peacock]

Yes, absolutely. We have talked about light-touch regulation throughout the Bill. The regulator has the ability to go sooner, in both its first report and subsequent ones, so we hope that there will be ongoing conversations with all the affected parties. If something happens, the regulator has that power and we would expect it to react. That is why we are not being prescriptive.

--- Later in debate ---

[Mr Betts]

Briefly, I think we are going back to a very similar discussion to the one that we have just had, but would the Minister expect—without this going on the face of the Bill—the regulator to consult fans, in particular the Football Supporters’ Association? It has done a brilliant job. It was party to the fan-led Crouch review, and it has provided a great deal of assistance in framing this legislation. I hope that the association would be seen as part of the consultation process when the regulator comes to do that.

[Stephanie Peacock]

The state of the game report is expected to be a key piece of work that the regulator produces on the basis of extensive research and consultation. The Bill sets out a few parameters. What is included in the state of the game report, and therefore who is relevant to consult, are up to the regulator’s discretion, as the expert, allowing the report to evolve over time. The Bill therefore does not set out an exhaustive list of who to consult, and nor would we want it to.

Throughout the Bill, however, and especially where it states that the regulator should consult other relevant persons, we expect that those affected by the decisions of the regulator, such as fans, players and representative groups, would be included when appropriate. To answer the point made by the hon. Member for Sheffield South East directly, we absolutely would expect those groups to be taken into consideration. That is made clear in the regulatory principle set out in clause 8.

--- Later in debate ---

[Stephanie Peacock]

The clause introduces the licensing system. One of the regulator’s main responsibilities will be to operate a licensing system for football clubs through which the majority of its regulation will be delivered. If clubs do not have an operating licence, they will not be allowed to play. The licensing regime will cover all football clubs that have a team playing in any of the competitions specified by the Secretary of State in regulations—that is intended to be the top five leagues. The clause will require football clubs to have a licence to lawfully operate a team in any of the specified competitions.

The clause sets out the requirement for clubs to have a provisional or full operating licence, along with the regulator’s power to grant licences subject to clubs passing the relevant tests set out in the subsequent clauses. The licence will enable the regulator to regulate clubs through licence conditions set out later in the Bill. That will enable proportionate regulation tailored to clubs, rather than a one-size-fits-all approach. An operating licence will specify which clubs the licence relates to, the team the club is operating and any conditions attached to the licence.

Let me set out how, broadly speaking, the licensing regime will work. The duties in part 5 will apply to regulated and formerly regulated clubs within the licensing regime, and will cover clubs that have been in scope within the previous 10 years, to prevent circumvention. We will debate that later in Committee. For a club to gain a provisional operating licence, the independent football regulator must be satisfied that the club operates a relevant team and will comply with the mandatory conditions and the free-standing duties. The independent football regulator need only be satisfied that the club will comply with the mandatory conditions; it will not need to comply at the time of the provisional licence test. A provisional licence can be issued for a maximum of three years, but the time can be shorter if the regulator determines that. The regulator can use discretionary licence conditions to bring a club’s standard up to the necessary threshold requirement level.

Let me set out the test for a full operating licence. The independent football regulator must be satisfied that a club meets the threshold requirements and will continue to comply with the mandatory conditions and with the free-standing duties, and the regulator must not have determined that a current owner or officer is unsuitable. We will, of course, go into further details on these matters as we move through the licensing regime, so I will not do so now. I commend the clause to the Committee.

[Mr Betts]

With new clause 2, tabled in my name, we come back to the other key issue in the Bill, aside from distribution: how clubs operate, how owners have in some cases badly operated them in the past, and how we can do more to help to control such situations. The issue of operating licences is, then, absolutely key.

Before anyone gets too worried, I should say that I have not been collaborating with the Lib Dems, although their new clause is very similar. Perhaps we have both been talking to Fair Game, an excellent organisation that has been trying to work with clubs and fans to improve the regulation and operation of football clubs.

The simple aim of new clause 2 is to ensure that the regulator provides help when it is needed. Premier League clubs are not going to need help and Championship clubs should not need help. The EFL says that clubs in Leagues One and Two are already required, under the EFL’s regulations, to provide the vast majority of the information that the regulator will need anyway, so they are doing so as a matter of course. The new clause would probably apply only to some National League clubs. The support may not be financial support; in some ways, for the relevant clubs, training and supporting staff is the key issue. There may not be anyone in the club with a working knowledge of some of the complications and the legalities of the legislation so, to avoid the club getting into difficulties, the new clause would require the regulator, in those circumstances, to help those clubs, in a reasonable and proportionate way, with the requirements of the licence conditions.

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[Stephanie Peacock]

That is a really good question. The regulator can engage with clubs outside of scope, such as those in the National League North and South, to assist with the application process. I hope that answer gives clarity. It is a very good question from the hon. Gentleman. However, for the reasons that I have set out, I am unable to accept the new clauses, and I hope that they will be withdrawn or not pressed.

[Mr Betts]

I am very reassured by the Minister’s comments, so I shall not press my new clause to a vote.