It isn't that the HOG guidance isn't being followed. The best example is that of the very real need for the decision maker to be sure that the applicant is going to use those firearms lawfully and safely.
The decision to grant or otherwise is made by the head of department. There will be a written, recorded force policy which dictates how that decision is reached. That policy will be a distillation of HOG, recommendations and national standards driven by the College of Policing (
Firearms licensing) , as well as the Chief Officer for the relevant area's policy and strategy. There isn't much room for huge variance in the strategy itself, as it's national. The local policy may vary in some details but that is becoming more and more homogenous thanks to legal challenge. Every police force firearms lead (usually an Assistant Chief Constable) will be kept up to date on current legal cases and precedents, and between them and the Office of the Force Solicitors will ensure policy is kept up to date and relevant.
So Example . You are the departmental head in a Licensing Department in Stalkingshire. Fred Astaire rings the department and asks to be allowed to buy a "bullet gun". Asked what experience he has and questioning determines that he once hit a couple of pop bottles with his neighbour's Relum Tornado. Oh and he can knock a pheasant out with a catapult at twenty paces, innit. He's managed to badger the local farmer into allowing him to shoot rabbits. So, the Stalking Directory Decision Making Massive all agree that he has good reason to possess a rifle and that any attempt to restrict that to ensure public safety is to be ridiculed, 'simply because the law says he can have one.'
"Come back when you have experience of shooting with a .22LR and we'll reconsider your application" appears to be a pretty sensible approach. We will need to be satisfied that you know what the rifle can do, and what safety measures you need to take to keep the public safe. Not exactly rocket science!
So Fred befriends someone he met on Facey, and spends the next few months learning to shoot his CZ under his tutelage and supervision, on land where he can be taught about backstops and ricochets, safe handling and transportation and storage of firearms and ammo.
Now he can be considered to a reasonably safe bet. He's much more likely to be granted an FAC, albeit restricted to Rimfire calibres.
However, he's got a taste for it now and has watched Youtube videos of a guy malleting foxes with a .243. "So if I can have a .22LR for bunnies, can I also have a .243 for foxes please? There are foxes on my patch of land."
No problem, says the Stalking Directory Decision Making Massive, he's got good reason and it would be ridiculous if the ......etc etc.
But here's where some Departments vary. How can the Decision Maker be satisfied that he will be safe with a .243? We all know in practical terms the potential for catastrophe are increased massively as the calibre leaps from .22LR to centrefire ( and I don't personally distinguish between .222 and .30-06) in this respect.....) so somehow we've got to establish how safe he'll be. Without experience, no decision maker in the UK would grant authority for a centrefire without at least some way of determining whether he can use one safely. The.22LR experience will help, but it doesn't answer all the questions.
I'm not a fan of mentoring as a condition. However, when I taught my son to shoot I ensured he was safe with a centrefire before allowing him to apply for one. That way he was able to demonstrate and give evidence of experience, could go into detail on backstops, legal requirements, safety and security on his initial interview. A few months after his 18th birthday he had .22LR, .17 HMR , .243 win and .308 win on an open ticket. I'll stress here that at the time of his application I was not an FEO, and my local force has been held as one of the more "rigid" forces in terms of what they will allow.
Other forces have different restrictions and use different ways to answer that all important question based on protecting the public from danger/harm, but the overarching strategy is the same.