Open consultation

Consultation on restructuring HM Land Registry fees

Published 27 October 2026

Applies to England and Wales

1. Purpose of Consultation

HM Land Registry (HMLR) is consulting on proposals to simplify elements of the fee model contained within The Land Registration Fee Order 2024. The changes proposed are intended to support the Government’s wider ambition to deliver simpler, more efficient and customer-focused public services.

This consultation is relevant to HMLR customers and stakeholders.

Your comments on what we propose will be appreciated. We also invite you to comment on further steps that we could take to further simplify the fees and charging model in the future to continue to make it easier to do business with us.

• Issued: 27 October 2026

• Respond by: 22 December 2026

• Enquiries to: FeesAndChargingStructure@landregistry.gov.uk

2. Territorial extent

This consultation applies to England and Wales.

3. Related Consultation: Consultation on the Future of Access to HM Land Registry Information

Alongside this consultation, HMLR, the Ministry of Housing, Communities and Local Government (MHCLG) and the Department for Environment, Food and Rural Affairs (Defra) are also consulting through the ‘Future of Access to HM Land Registry Information consultation’. The purpose of this consultation is to seek views on a package of proposals to increase the public value of HM Land Registry (HMLR) data and improve access to land ownership information, while ensuring appropriate safeguards are in place. While the consultations cover separate areas of work, they both support our wider ambition to improve access to trusted land and property information. We encourage respondents to contribute to the Future of Access to HM Land Registry Information consultation and share their views on the proposals set out in each.

4. Consultation principles

This consultation is being conducted in line with the revised Cabinet Office consultation principles published in March 2018. These principles give clear guidance to government departments on conducting consultations.

5. Personal Data

By responding, you consent to processing the data you provide in accordance with HMLR’s and MHCLG’s personal information charters.

All feedback will be treated in confidence and nothing that would identify you or your organisation will be included in any reporting or published analysis.

HMLR and MHCLG plans to use an Artificial Intelligence (AI) tool called Consult to assist the analysis. The tool is hosted in the Department for Science, Innovation and Technology (DSIT). HMLR and MHCLG will appoint DSIT as a ‘data processor’, acting on behalf of the Departments and under our instruction, to help analyse the responses to this consultation. Where we do, we will ensure that the processing of your personal data remains in strict accordance with the requirements of the data protection legislation. 

HMLR and MHCLG will take reasonable and proportionate steps to prevent personal data from the consultation responses being sent Consult. The AI tool processes data securely and does not copy or share data. The data will only be accessed and used by those authorised to do so.   

The AI tool identifies themes present in the responses. The draft themes are reviewed and agreed by a policy team before the tool then maps responses to the themes to be used by policy teams to analyse the consultation. HMLR and MHCLG will take steps to check for accuracy and identify and reduce bias.  Your data will not be used to train the AI models.

6. How to respond to this consultation

You may respond by using our online survey

All members of the public are invited to respond, along with organisations such as local authorities, representative bodies, communities, and businesses. We are particularly interested in what these proposals would mean for you in your context.

We strongly encourage responses via the online survey. Using the online survey greatly assists our analysis of the responses, enabling more efficient and effective consideration of the issues raised for each question.

If you are providing a response, please refer to our privacy notice. If answering any questions using a free text box, please do not include any sensitive personal information in your answer. Please only respond to this consultation if you are over 18.

If you are unable to respond via the online survey, printed proformas can be requested from and sent to:

Email: feesandchargingstructure@landregistry.gov.uk.

Address:

Strategic Finance Team
HM Land Registry
7th Floor
Trafalgar House
1 Bedford Park
Croydon
CR0 2AQ

7. Next Steps

We will publish the government response to the policy consultation on GOV.UK.

8. Foreword from the Chief Executive and Chief Land Registrar

HMLR plays a vital role in supporting confidence in land and property ownership in England and Wales. The register of title provides a trusted record of ownership, rights and interests affecting land. It underpins the property market, supports public services and helps people, businesses and communities understand who owns land and how it is used.

To support delivery of our services it is important to ensure that our fees are clear, value for money and simple to understand for our customers. The way in which we charge for our services has not fundamentally changed since our inception and we recognise that aspects of the current fees and charging model are unnecessarily complex and can lead to avoidable errors from customers. As customer expectations change and our services continue to become more digital, it is key that our charging model evolves alongside them to support the continued modernisation of our services. A clearer and more consistent approach will create greater opportunities for automation. In turn, this will enable us to reduce avoidable delays and provide a better experience for customers. The model must also be flexible and sustainable to ensure we cover all our operating and investment costs through our fee income as set out in our financial arrangements with HM Treasury.

This consultation sets out proposals to change the model by simplifying Scale 2 registration fees, replacing the existing charging model with two clear fixed fees: one for changes of ownership where the full market value of the land or property has not been paid and one for the registration of mortgages. We believe this approach will make our fees easier to understand and provide greater certainty for customers. In turn, this will reduce errors caused by uncertainty, to support a more efficient registration process.

Alongside these proposals, we are also seeking your views on the structure of Scale 1 registration fees (for traditional home buying and selling transactions). This consultation provides an opportunity to better understand the potential benefits, opportunities and challenges before any consideration is given to potential changes.  

We recognise that our customers and stakeholders bring a wealth of knowledge and experience. Whether you are a member of the public, a conveyancer, lender, representative body, local authority or another organisation that interacts with HMLR, your views are invaluable. By taking part in this consultation, you will help ensure that any future changes are informed by those who use our services every day.

I encourage you to read the proposals carefully and share your views. Every response will be considered as we develop our recommendations and continue to build a fees and charging model that supports a modern, efficient and customer focused land registration service.

Iain Banfield Chief Executive and Chief Land Registrar, HM Land Registry

9. Executive Summary

In our Strategy 2025+ we are committed to making our services and information easy to get hold of, easy to understand and easy to use.  As part of this commitment, we have reviewed our fees and charges to ensure they are simple, transparent and fit for purpose.

The current fee model for registration services is divided into four elements:

• Scale 1, which generally applies to transfers for value and first registrations.
• Scale 2, which applies to a range of other registration services, including transfers of equity and the registration of mortgages.
• Fixed fees which do not vary according to the transaction value and are payable on certain applications for registration (usually where there is no change of ownership such as registering a restriction on the land or a unilateral notice).
• Applications where no fee is payable. These are generally to keep our records up to date such as changes or updates to the proprietor’s name or contact address.

Over time, customer insight, particularly from self-service (unrepresented) citizens has highlighted that aspects of the current charging model, particularly Scale 2 fees, are complex and difficult to understand, leading to an increased error rate when submitting applications.

In considering where reform could deliver the greatest, immediate benefit, we have therefore focused on Scale 2. This contains a number of rules and exceptions that require applicants to undertake additional calculations before the correct fee can be identified and paid. Simplifying this part of the fee model provides an opportunity to improve transparency, reduce complexity and support more efficient processing.

This consultation sets out our proposal to simplify Scale 2 by replacing the existing value-based charging model with two clear fixed fees:

• One fixed fee for changes of ownership not for monetary consideration, such as transfers of equity or assent to a beneficiary following a death; and
• One fixed fee for registering a mortgage or a transfer of a mortgage when not lodged with an application which attracts a Scale 1 fee or one of the fixed fees which will replace Scale 2.

Moving to fixed fees for these services would make fees easier to understand, reduce fee calculation errors and support a more efficient registration process.

Whilst this consultation focuses on changing Scale 2, we recognise the potential benefits of simplifying the overall fees model in the future. Previous engagement has indicated that there may be appetite for wider reform, including the simplification of Scale 1 fees. Therefore, we are also seeking views on some changes that we might want to explore to better understand stakeholder perspectives, the potential benefits, and any challenges that would need to be considered before developing them into future proposals.

We welcome responses from everyone with an interest in HMLR’s fee model.

10. The current fee model

We charge fees for a wide range of registration services that support the buying, selling and ownership of land and property in England and Wales. These fees cover our operating and improvement costs and are set out in legislation.

The current fee structure for registration services includes two charging scales - Scale 1 and Scale 2. Details can be found at HM Land Registry: Registration Services fees.

Scale 1 generally applies to applications involving the transfer of ownership for value, such as the purchase of a property, the grant of a lease or other transactions where land or property is being acquired. Fees are calculated using a series of value bands, meaning the amount payable usually depends on the value of the property or land being registered.

Scale 2 applies to a range of other registration services where there is generally no transfer of value. These include applications such as transfer of equity, transfers to beneficiaries following a death, the registration of mortgages and other updates to the register. Scale 2 fees are not always assessed on the value of the property and can include a number of calculations such as determining the value of the equity and deducting the amount outstanding on an existing mortgage when determining the correct fee.

Besides the scale fees, registration services also include fixed fees which are payable on certain applications for registration (usually where there is no change of ownership such as registering a restriction on the land or a unilateral notice) and registrations where no fee is payable. These are generally to keep our records up to date such as changes or updates to the proprietor’s name or contact address.

Together, these have formed the basis of our registration services fee model for many years. In practice, fees are typically calculated and paid by solicitors and licensed conveyancers on behalf of their clients as part of the wider conveyancing process.

11. Challenges with the current model

Through stakeholder engagement, user research and a call for evidence in 2024, we have gathered valuable insight into how the current fee model operates in practice.

While the existing model has supported the land registration system for many years, customers have consistently identified areas where the current arrangements can be difficult to understand and administer.

The call for evidence in 2024 asked several questions about our fee structure alongside those relating to the use of our data. We sought views on the challenges of the existing structure and found almost 50% of those who experienced issues identified the primary cause being the complexity involved in calculating the fee.

Much of this feedback relates to the complexity of Scale 2, where the application of different rules, exceptions and calculations can make it challenging to determine the correct fee. This can create uncertainty for customers, especially for self-serving citizens, increasing the risk of fee errors and result in requests for information, where applications require further clarification before they can be processed. As we continue to modernise our services, reliance on inputs from customers that cannot be validated such as the value of a share in a property means verification by a caseworker is needed to ensure the fee as set out in the Fee Order has been paid. This makes it harder to deliver the simple and efficient digital services that customers expect.

The key themes identified through our engagement and operational analysis are:

• The current Scale 2 fee model can be difficult to understand and apply, with a number of rules and exceptions that make calculating the correct fee more complex.
• The need to confirm the value on which the fee should be calculated and errors in the fee calculation can lead to unnecessary delays, additional correspondence and work for customers, and for us.
• Reliance on customers entering the value on which the fee is assessed because it is usually not contained within the documents lodged for registration.
• The need for a caseworker to verify the value on which the fee is assessed rather than it being possible to automatically validate it to ensure the correct fee as set out in the Fee Order is paid. This does not facilitate automation.
• The importance of a fee model that is clearer, more transparent and easier to understand, providing greater certainty about the fees payable for registration services.

12. Policy drivers for reform

As set out in ‘A blueprint for Modern Digital Government (January 2025), the Government is committed to delivering public services that are simpler, more efficient and easier for customers to use. As public services continue to modernise, there is an increasing expectation that charging models are transparent, proportionate and support the digitalisation of our services.

We have reviewed our current fee model and identified opportunities to simplify the way registration services are charged. In particular, the complexity of the current Scale 2 fee model presents an opportunity to reduce administrative burden, improve the customer experience and support more efficient processing through greater consistency and automation.

Simplification also supports government ambitions to improve the home buying and selling experience by reducing unnecessary complexity. In creating a clearer registration fee structure that is easier to use, we aim to ensure the overall fee and charging model remains fit for purpose, sustainable and capable of supporting the delivery and modernisation of land registration services.

13. Proposed fixed fee approach

We have considered where simplification could deliver the greatest benefit for customers and identified Scale 2 as the area where reform would have the greatest immediate impact. Unlike Scale 1, the amount on which the current Scale 2 fee is assessed is rarely contained within the documentation lodged for registration making it difficult to determine that the correct fee has been paid, increasing complexity for applicants and making the model more difficult to automate and administer.

The primary objective of this proposal is therefore to simplify the Scale 2 fee structure while maintaining a charging framework that is clear and straightforward to apply.

Following engagement with customers and stakeholders, we are proposing to replace the current Scale 2 fee structure with two fixed fees:

• One fixed fee for changes of ownership not for monetary consideration, such as transfers of equity or assents to beneficiaries following a death; and
• One fixed fee for registration of a mortgage or a transfer of a mortgage when not lodged with a transfer or lease.

Under this approach, the fee would apply regardless of the value of the property or land involved. Rather than being linked to the value of the transaction, the proposed fixed fees are intended to reflect the service provided and the outcome for the customer. This means customers would pay a consistent fee for the same type of service, providing greater clarity about the amount payable and removing the need for many of the calculations required under the current charging model.

Introducing fixed fees in place of the five Scale 2 fee bands will mean that some customers pay more and others less compared to now. However, the value of the land or property being transferred in these types of transactions is often outside the control of the person(s) obtaining ownership rights and has probably not been an element of any decision making. Therefore, we deem fixed fees to provide a more reasonable approach.

For example, someone may be added to or removed from a title because of a relationship change, family arrangement, or inheritance. A beneficiary inherits a property because the deceased left it to them, not because they chose to buy a property worth a particular amount.

In the case of registering a mortgage, these transactions often arise when a property owner changes lender usually to secure a better deal, when their fixed term mortgage comes to an end or to borrow additional money. In the majority of cases the fee is payable on the amount of money that has been borrowed including any future money as per the terms of the agreement and is not directly linked to the value of the land or property.

Where the proprietor of a mortgage transfers the mortgage to another lender (transfer of a mortgage), again the amount, if there is a monetary consideration, is not directly linked to the value of the land or property.

Under the current model the fee payable is dependent on the property value, but as can be seen by the examples above, the property value has little relevance to the transaction being registered.

In developing these proposals, we also considered alternative charging models, including a fee based on a percentage of the total property value and a tiered percentage rate (such as used in collecting Stamp Duty Land Tax) based on property value. While these options offered different ways of structuring fees, they would continue to rely on property value and additional calculations. Engagement with customers and stakeholders indicated that this would not resolve the challenges of determining the fee.  

14. Benefits of fixed fees for Scale 2

The proposed fixed fee model has been designed to simplify the way Scale 2 registration fees are charged while improving the experience for customers, and our staff. Through engagement with stakeholder and analysis of the current charging model, several key benefits have been identified. A fixed fee model would:

Improve customer service: A simpler model will bring greater transparency and predictability as customers would know the fee payable from the outset, providing greater certainty and making fees easier to understand.

Deliver simpler guidance and processes: A more straightforward charging model would reduce the need to interpret complex rules, and calculations, making it easier to identify the correct fee.

Reduce fee-related requisitions and costly delays: A simpler fee model will reduce errors in fee calculation, helping to minimise avoidable requisitions, additional correspondence and delays in processing applications.

Support automation and digital services: A simpler charging model would be easier to automate and maintain, supporting our wider digital transformation and enabling more efficient processing of applications.

Provide greater consistency: Applications of the same type would attract the same fee regardless of the value of the property which is often not a factor in these types of transaction, creating a clearer and more consistent charging model for customers.

Current vs proposed model examples

Under the current fee model for Scale 2, the amount payable ranges between £20 to £305.

Set out below are illustrative examples of the steps currently undertaken to determine the HMLR fee and a comparison with fixed fee proposal.

Example: Transfer of Equity – no monetary consideration

Scenario: John Smith transfers a property worth £310,000 into the joint names of himself and Sharon Jones. The outstanding mortgage is £100,000 and the ownership after transfer is 50% each.

• Step 1 - Calculate the property’s equity: £310,000 - £100,000 = £210,000

• Step 2 - Calculate the value of the share being transferred: £210,000/2 = £105,000

• Step 3 - Use the calculated value to identify the correct Scale 2 fee band.

Result: HMLR fee payable would be £30 in the current model. Under the new fixed fee proposal, the fee would be set between £40 to £110. We cannot set out specific fixed fee amounts until after the consultation. The final amount is to be determined based on numerous factors including demand forecasts and policy considerations.

Example: Registering a mortgage (not changing ownership)

Scenario: Sanjay is extending his home and takes out a mortgage to fund the work. The bank lends £100,000 for the initial building, with a further £150,000 available in stages for the interior works as building progresses.

• Step 1 – Establish the maximum amount secured

The mortgage provides for a total of: £100,000 + £150,000 = £250,000

• Step 2 – Determine the fee. The Scale 2 fee is assessed on the maximum amount secured, which is £250,000, rather than the amount initially advanced.

Result: HMLR fee payable would be £45 in the current model. Under the new fixed fee proposal the fee would be set between £25 to £55. We cannot set out specific fixed fee amounts until after the consultation. The final amount is to be determined based on numerous factors including demand forecasts and policy considerations.

15. Scope for future reform

Scale 1 fees apply to applications involving transfer of ownership for value, such as the purchase of a property or land. These fees are currently based on the value of the transaction, with different fee bands applying depending on the market value of the land or property being transacted.

We are keen to hear views on whether there is appetite for simplification of Scale 1 fees by moving to fixed fees in the future and to identify any opportunities or challenges that such a change may present.

The question linked to this in the consultation is intended to gather early views and should not be taken as a proposal to change Scale 1 fees at this stage. Any future changes would be subject to further policy development and consultation.

We wish to continue to improve our fees and charging model to meet customer needs and improve our service deliver. There may be other aspects therefore that we should consider for review such as higher fees for postal applications and the ability to adjust fees for inflation for example. There is an opportunity to share your views at the end of the survey.

16. Annex A – Terminology in this document

Assent: a transfer of property by the personal representatives of a deceased landowner to the person entitled to it. Unusually, it does not have to be by deed, but must be in writing (s.36, Administration of Estates Act 1925).

Beneficiary: a person entitled to receive property or assets, for example under a will or through the administration of an estate.

Charge: an entry on the title register showing that someone has a legal financial interest in the land or property, usually because money is owed. A mortgage is a common example.

Conveyancer: a solicitor or licensed conveyancer who carries out legal work relating to the transfer of property ownership.

Equity: the value of a property after deducting any outstanding mortgage or other secured debt.

Lease: a legal agreement that gives someone the right to use land or property for a set period of time. The lease will usually set out the rights and responsibilities of the leaseholder and the freeholder.

Mortgage: a legal agreement that allows money to be borrowed using land or property as security.

PropTech: technology used in the property sector. This can include digital tools, data services and software that help people understand, manage, buy, sell, develop or use land and property.

Public sector: organisations that provide public services or carry out public functions, such as central government, local authorities, police forces and other public bodies.

Registration: the process of recording ownership of land or property, and other rights and interests affecting it, in an official register.

Requisition: a request for further information, documents, or payment needed to process an application.

Title: a person’s right to land or property, or the evidence of that right.

Title registers: the records held by HMLR for registered land. A title register usually shows who owns the land, the type of ownership, and rights, restrictions, charges or other interests affecting the land.

Transfer: a legal document used to transfer ownership of land or property from one person or organisation to another.