It has subsequently welcomed by the Canal & River Trust’s Board, which thanks the Commissioners and endorses the report’s analysis and main conclusions.
Independent Commission’s review of the framework for boat licensing
The report from the independent Commission set up to review the legal framework around boat licensing and whether it is appropriate for the canal network’s future has now been published.
The Commission was chaired by Andrew Cowan, a former senior partner at law firm Devonshires. Over the past ten months it has undertaken an extensive review, engaging with several thousand individuals and organisations via a public online survey, and then meeting with and receiving further submissions from many representative groups.
In the immediate term current licensing arrangements will remain in place, however the Report has concluded that boat licensing needs reform to reflect the current and future use of the waterways and notes the considerable work ahead for the Trust to consider the recommendations in detail.
You can also view the Commission online:
The review shines a light on the varying needs of different types of boaters and gives insight into the scale and breadth of the problems they face. Its recommendations aim to make the licensing system clearer and easier for boaters while being more efficient for the Trust to operate and enforce, for the wider benefit of all canal users.
Andrew Cowan comments: “We were asked to review, independently of the Trust, the fitness for purpose of the licensing system in the light of widespread dissatisfaction with the way it currently operates, and to make recommendations for change where we consider that to be beneficial for the future management of the canal network.”
David Orr, chair of the Canal & River Trust, said: “This report comes at a critical time for our ageing waterways, whose usage must continue to adapt to the needs of modern society. The Trustees and executive team welcome the recommendations and feedback received, and see this as an opportunity not only to reset relationships but also to revisit boat licensing arrangements so that they work better for boaters as well as for the Trust.
“The report’s conclusions have given us a great deal to reflect on. We will now take our time to consider the package of recommendations in more detail and will consult further in due course.”
Campbell Robb, chief executive of the Canal & River Trust, said: “This is an important and timely report. The Trust will take the opportunity it presents to think hard about what more we can do for those who live, work or simply enjoy time on the canals. We recognise the need to work closely with boaters across the canal network to bring about improvements in relationships and to make the system work fairly and effectively.
“We also recognise the need for greater clarity and better communications in licensing arrangements and enforcement, and we are going to challenge ourselves to do better. We will continue to invest in our Better Boating Plan to tackle the issues that we know are important to the boating community.
“It is also clear that some of the issues the Commission has highlighted are a symptom of the wider housing crisis, driven in part by the cost of living. More people are finding it harder to afford somewhere to live and turn to the waterways as a solution, and more people are vulnerable. We know that the recommendations in the report will not solve this. While the Trust is not a housing charity, we do recognise this reality and we therefore echo the spirit of the recommendations to offer the support that we can, within our means, while not compromising our obligations to others.”
The Trust will now begin its detailed work on proposals for pursuing the recommendations in the report. We will take this forward as quickly as possible, recognising that some proposals will require relevant impact assessment, further consultation and engagement with boaters and others may require new or amended legislation. Further details will be published in the New Year.
Hear from Andrew Cowan
In the below video recorded on 11 March 2025, chair Andrew Cowan talks about the Commission.
Frequently Asked Questions
What are 'charitable objects?'
'Charitable objects' are the core goals and objectives that define a charity's reason for being and are the specific purposes for which a charity is established and operates. A full list of the Trust’s charitable objects is available on the Charity Commission's website.
What is a Commission?
A Commission is a group of people who have been formally chosen to discover information about a subject or examine the reasons why an issue exists.
Why have you looked into this now?
It has been 30 years since the British Waterways Act 1995 was passed and, in that time, there have been many changes to the canal network and how it is managed, the number of boats licensed on our waterways, and the way people are choosing to use their boats. We believe it to have been a sensible time to take a fresh look at how we licence boats on our waters and help us consider whether it would be sensible to consider possible changes that better reflect the use of the network, today and in the future.
What did the Commission cover?
The Commission wanted to understand what licensing issues exist or can be predicted, evaluate options for mitigating them, and make recommendations to the Board of Trustees of the Canal & River Trust. More details can be found in the Terms of Reference, which were ratified at the Commission’s first meeting in January.
Has the Commission decided on future licence prices?
No, the Trust decides annual licence prices. We have already set out our plans for licence price changes up to 2028, and these won't change. All decisions on proposals for change coming out from the work of the Commission will remain with the Board of Trustees of the Canal & River Trust.
Who are the members of the Commission?
It was chaired by Andrew Cowan, a former senior partner at Devonshires law firm; Penelope Barber, one of the elected boating representatives on the Trust’s Council; and trustee Sir Chris Kelly, a former senior civil servant and former boat owner.
When did the Commission run?
The Commission started its review in January and finished in November 2025.
Who does the Commission report to?
The Commission’s report will be submitted to our Board of Trustees who will consider the recommendations and decide whether, and if so, on how to take them forward. During its operation, the Commission was overseen by the newly constituted Boating Sub-Committee of the Board, chaired by David Orr CBE, our chair.
When did Canal & River Trust receive the report?
The report was delivered to the Canal & River Trust’s Board of Trustees in November and was discussed at their meeting on 19 November. David Orr, Chair of the Board, instructed its external publication the same day.
When will Canal & River Trust provide details of its approach to the recommendations in the report?
The Trustees and executive team have welcomed the recommendations and feedback received. We will now begin detailed work on proposals for pursuing the recommendations in the report. We will take this forward as quickly as possible, recognising that some proposals will require relevant impact assessment, further consultation and engagement with boaters and others may require new or amended legislation. Further details will be published in the New Year. Please keep visiting this webpage for further updates.
What does this mean for my licence terms and conditions?
There are no immediate changes to licence terms and conditions, existing legislation, or the way we manage our waterways.
Can I speak to someone at the Trust about the report?
We are currently considering the package of recommendations in more detail and will consult further in due course. We will have more information in the New Year. Please keep visiting this webpage for updates.
How can I keep up to date with information from the Trust on its progress with the report?
We will publish any new information on this webpage. You can also sign up to the Boaters’ Update, where we will signpost any updates as they become available.
Meeting minutes
Last Edited: 8 December 2025
Stay connected
Sign up to our newsletter and discover how we protect canals and help nature thrive