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On TNA: From TNA: In the matter of an application by JR87 and another for Judicial Review
In the matter of an application by JR87 and another for Judicial Review - Find Case Law - The National Archives
THE COURT ORDERED that no one shall publish or reveal the name or address of the Appellants who are the subject of these proceedings or publish or reveal any information which would be likely to lead to the identification of the Appellants or any member of their family in connection with these proceedings. Furthermore, an Order of the High Court dated 27 September 2019 is in force anonymising the Appellants. In the matter of an application by JR87 and another for Judicial Review (Appellant) Respondent – The Department of Education (Northen Ireland) Tony McGleenan KC Philip McAteer (Instructed by Departmental Solicitor’s Office (Belfast)) Respondent – The Board of Governors of the Primary School Peter Coll KC Roisín McCartan (Instructed by Education Authority Solicitors (Belfast)) LORD STEPHENS (with whom Lord Reed, Lord Lloyd-Jones, Lord Hamblen, Lord Burrows agree): In these judicial review proceedings, a young girl, anonymised as JR87, and her father, anonymised as G, challenge the legality of the teaching of religious education and the practice of collective worship in the primary school (“the School”) which she attended between the ages of four and seven. They contend that the Christian religious education given and collective worship provided in the School is contrary to religious freedom protections guaranteed by article 2 of protocol 1 (“A2P1”) to the European Convention on Human Rights (“ECHR”) read with article 9 ECHR as scheduled to the Human Rights Act 1998. The proceedings involve wide and important points of law which affect not only JR87, G, and the School, but also the teaching of religious education and the practice of collective worship more generally in Northern Ireland. The Department of Education (“the Department”) is the respondent to the proceedings. In the lower courts the Board of Governors of the School was a notice party. In this court and in the Court of Appeal the Transferor Representatives’ Council was permitted to intervene. The Transferor Representatives’ Council represents the Church of Ireland, the Presbyterian Church in Ireland, and the Methodist Church in Ireland in all matters of education. In this court the Board of Governors of the School is a respondent as the Board falls within the category of respondents under rule 3.2 of the Supreme Court Rules 2024. In the High Court JR87’s and G’s judicial review challenge was successful: [2022] NIQB 53. In a judgment delivered on 5 July 2022, Colton J (“the judge”) held that as both religious education and collective worship in the School followed the core syllabus specified by the Department, they were not conveyed in an objective, critical, and pluralistic manner. The judge then considered whether the parents’ statutory right to withdraw their daughter from religious education and from collective worship was sufficient to prevent a breach of A2P1 read with article 9 ECHR. He concluded that it was not, because: (a) exercising the right of withdrawal placed an undue burden on parents; (b) parents would be deterred from seeking exclusion for their child; and (c) importantly, parents exercising the right would run the risk of stigmatisation of their children. Thereafter, the judge sought submissions from the parties as to the appropriate relief. 4. Part of the relief sought by JR87 and G was an order quashing several provisions of subordinate Northern Ireland legislation as invalid because, it was submitted, they required the School to breach JR87’s rights and the rights of JR87’s parents under A2P1 read with article 9 ECHR. In an addendum judgment delivered on 29 September 2022 the judge held that it was because of the “outworkings” of the various legislative provisions that the teaching of religious education and the arrangements for collective worship in the School were in breach of A2P1 read with article 9 ECHR. The School in teaching religious education was required to include the core syllabus, as specified by the Department, but it could have taught additional matters so that overall, the education could have been conveyed in an objective, critical, and pluralistic manner. Accordingly, it was possible for a school lawfully to teach religious education and to provide collective worship, and the legislation did not require the School to breach A2P1 or article 9 ECHR. The judge declined to quash the subordinate legislation. Rather, he granted a declaration that: “The teaching of religious education under the core syllabus specified under article 11 of the Education (Northern Ireland) Order 2006 as implemented through article 3 of the Education (Core Syllabus for Religious Education) Order (Northern Ireland) 2007 and the arrangements for collective worship in the primary school attended by [JR87] breached her and her father’s rights under [A2P1] read with article 9 of the ECHR.” JR87 and G have not appealed against the judge’s refusal to quash the subordinate legislation so no issue arose before the Court of Appeal or before this court as to its validity. Rather, the issues on appeal concern the teaching of religious education and the provision of collective worship in a school (such as the School) which follows the core syllabus specified by the Department but which does not include any or any sufficient additional objective, critical, and pluralistic material. On appeal to the Court of Appeal (Keegan LCJ, Treacy and Horner LJJ), it was argued on behalf of the Department, the Board of Governors of the School, and on behalf of the Transferor Representatives’ Council as an intervener, that: (a) the judge erred in finding that religious education or collective worship in the School were not conveyed in an objective, critical, and pluralistic manner; (b) the judge erred in holding that there was a breach of A2P1 absent a finding that the State was pursuing an “aim” of “indoctrination”; and (c) the parents’ right of withdrawing their daughter from religious education and from collective worship prevented any breach of A2P1. In a judgment of the court delivered by Treacy LJ ([2024] NICA 34) with which Keegan LCJ and Horner LJ agreed, the Court of Appeal upheld the judge’s finding that religious education and collective worship in the School were not conveyed in an objective, critical, and pluralistic manner. However, the Court of Appeal disagreed with the judge’s conclusion that the parents’ statutory right to withdraw JR87 from religious education and from collective worship was insufficient to prevent a breach of A2P1 read with article 9 ECHR. The Court of Appeal held, at para 103, that the existence of the unqualified statutory right of the parents to withdraw JR87 meant that the State was not pursuing the forbidden aim of indoctrination. Furthermore, the Court of Appeal held, at para 101, that the fears of stigmatisation or of being under an undue burden “would [not] have been realised in practice.” On that basis the appeal was allowed and the application for judicial review was dismissed. JR87 and G applied to this court for permission to appeal. The Department opposed the application but if permission was granted it applied for permission to cross appeal on two grounds, namely: (a) whether the judge erred in concluding that the religious education curriculum was not conveyed in an objective, critical, and pluralistic manner; and (b) whether the judge erred in failing to separately analyse and determine the claims made by both JR87 and G. On 17 October 2024 a panel of this court granted JR87’s and G’s application for permission to appeal. The panel refused the Department’s application to cross appeal on ground (a) as to whether the judge erred in concluding that the religious education curriculum was not conveyed in an objective, critical, and pluralistic manner. The panel granted the Department’s application to cross appeal on ground (b) as to whether the judge erred in failing to separately analyse and determine the claims made by both G and JR87. JR87 and G now appeal to this court and the Department now cross appeals on ground (b). 10. One of the issues on this appeal is whether teaching of religious education, which is not undertaken in an objective, critical, and pluralistic manner, amounts to pursuit of the aim of “indoctrination.” It is important when addressing that issue to emphasise that Christians wish to encourage others to believe that “[t]here is but one living and true God” and to encourage others to practise the Christian faith as the only path to salvation: see the first Article of Religion in the Church of Ireland, see the first Article of the Church of Ireland 2009 Declaration on the 39 Articles of Religion, and see John 14:6, and Acts 4:12. The word “indoctrination” ordinarily has negative connotations but in the context of the Christian faith it is a synonym for evangelism or proselytising. It means winning others over so that they believe in and practice the Christian faith. In that sense indoctrination is an entirely proper Christian missionary process which seeks to secure salvation for others. The word “indoctrination” is used in this judgment as a synonym for evangelism and proselytising devoid of any negative connotations. At the outset of this judgment, it is important to emphasise what this case is not about. First, this case is not about secularism in the education system. No one is suggesting that religious education should not be provided in schools in Northern Ireland. Rather, JR87 and G strongly support the provision of religious education provided it does not amount to indoctrination. Indeed, parents cannot object to the integration of teaching as to a directly or indirectly religious or philosophical kind in the school curriculum: see Folgerø v Norway (Application No 15472/02) (2007) 46 EHRR 47 (“Folgerø”), at paras 84(g) and 89. Secondly, this case is not about whether Christianity should be the main or primary faith that pupils learn about in schools in Northern Ireland. Historically and today, Christianity is the most important religion in Northern Ireland. It is within the Department’s margin of appreciation in planning and setting the curriculum for the greater part of religious education to focus on knowledge of Christianity: see Folgerø at para 89. Thirdly, this case does not concern indoctrination, evangelism, or proselytising outside the school environment. Parents are primarily responsible for the education and teaching of their children: see Folgerø at para 84(e). Parents retain in full their right “to enlighten and advise” their children and “to guide them on a path in line with [the parents’] own [religious or] philosophical convictions”: see Lautsi v Italy (Application No 30814/06) (2011) 54 EHRR 3 (“Lautsi”) at para 75. Parents have an undoubted right in their own homes or within their own church or religious environments to guide and encourage their children to believe in and to practise religion in line with the parents’ own religious and philosophical convictions. Fourthly, there is no challenge in this case to the margin of appreciation enjoyed by the Department in setting and planning of the curriculum for religious education in Northern Ireland. The Department enjoys a wide margin of appreciation as the function of setting and planning of the curriculum “mainly involves questions of expediency … whose solutions may legitimately vary according to the country and the era”: Folgerø at paras 84(g). Fifthly, there is no challenge in this case to collective worship in schools in Northern Ireland being focused on the Christian religion or that in Catholic maintained schools the focus of collective worship may be distinctive of the Catholic denomination: see para 54 below. The School which JR87 attended between the ages of four and seven is a controlled grant-aided primary school with a nursery. Her attendance at the School commenced in 2017 and she left the School in June 2021 after completing year 3 of her Primary education (P3). In September 2021 she moved to a new controlled school commencing year 4 of Primary school (P4). The Principal of the School states that JR87 “was a much-valued pupil” and throughout her time at the School she participated in all aspects of the curriculum on an equal basis with all other pupils in her class and year group, including religious education and collective worship. Both parents agree that JR87 was happy at the School. They are at pains to point out that they have no issue with the School other than the provision of religious education and collective worship. Equally, they are at pains to point out that they are not against the teaching of religion. What the parents seek is education (including religious provision) that is appropriately objective, critical, and pluralistic, having regard to JR87’s age. JR87’s parents are not Christians and do not profess any other religious beliefs. They are “broadly speaking” humanist in their outlook. Both parents are primarily responsible for the education and teaching of JR87: Folgerø at para 84(e). They do not wish her to be raised as a Christian. They object to her being taught at the School to assume that Christianity is an absolute truth. Their concerns as to religious education and collective worship at the School are heightened given that she is being taught at an age prior to the development of her critical faculties. Rather, JR87’s parents wish to raise her to be caring, ethical, and respectful towards all people, whatever their religious beliefs or otherwise. The School teaches the Foundation Stage of the Northern Ireland curriculum which covers years 1 and 2 of Primary school (P1 and P2). These years correspond to the ages of four and five, and five and six respectively. The School also teaches half of Key Stage 1 of the Northern Ireland curriculum (P3) which corresponds to the ages of six and seven. The pupils leave the School after completing P3. The Principal states that the School follows and delivers the core syllabus. Therefore, the content of the core syllabus was crucial to the decision at first instance, upheld on appeal, that religious education at the School is not taught in an objective, critical, and pluralistic manner. G raised an issue as to whether religious education and collective worship at the School was confined to respectively the classroom and assemblies. In response the Principal accepted that it was not, as some individual teachers may say a prayer, for example before snack-time. The Principal stated that whether and when a prayer is said is left to teacher discretion. It is neither required nor prohibited and no specific format is used. The Principal added that if teachers choose to say a prayer, it will be a very simple expression of thanks to God for the food, environment, or opportunities which are available to the child. The Principal states that collective worship predominantly takes place through the School assembly programme and meets the requirements of the core syllabus. Again, the content of the core syllabus was crucial to the decision at first instance, upheld on appeal, that collective worship at the School is not conveyed in an objective, critical, and pluralist manner. 26. Another factor which led the judge to conclude that collective worship at the School was not conveyed in an objective, critical, and pluralist manner was the right of external persons to be granted access to pupils at the School for the purpose of giving religious education in addition to that contained in the core syllabus: article 21(7) of the Education and Libraries (Northern Ireland) Order 1986 (SI 1986/594 (NI 3)) (“the 1986 Order”). The only external persons who have had access to pupils at the School are either Christian religious ministers or representatives from Christian organisations. The religious ministers who have attended assemblies at the School are ministers from the Church of Ireland, the Presbyterian Church in Ireland, and the Methodist Church in Ireland. Their addresses during assemblies are based on Christian teachings, are Bible-based and linked to the core syllabus. The representatives from Christian organisations who have attended assemblies at the School were representatives from the Scripture Union and the Christian Fellowship Church, Belfast. Religious education during collective worship in assemblies at the School is Christian education based on the Holy Scriptures. The calling of Christian ministers and of representatives from Christian organisations is to proselytise. On a factual basis the Principal points out that, because of the restrictions imposed, during the Covid pandemic the opportunity to have collective worship in the school in the usual way was significantly reduced. In all educational areas apart from religious education and collective worship, it is the duty of inspectors appointed by the Department to promote the highest standards of education and of professional practice among teachers in schools by monitoring, inspecting, and reporting on the standard of education being provided in schools: article 102(5) of the 1986 Order. The Department and the School accept that there has been no inspection of religious education or of collective worship in the School. Mr Dempster, the acting Principal Officer in the Curriculum and Assessment Team in the Department, states that religious education in schools is not inspected or evaluated by the Department, and the Department has no knowledge of the practice in individual schools. Therefore, the Department does not know whether grant-aided schools do in fact provide religious education which includes the core syllabus, or whether additional religious education is given and if so whether the additional teaching amounts to further indoctrination, evangelism, or proselytising. Also, the Department has no knowledge of the constraints, if any, on teachers saying prayers of thanks to God. Mr Dempster makes no mention of inspection of collective worship. Therefore, the Department does not know whether grant-aided schools comply with the statutory requirement to include daily collective worship, or whether the collective worship amounts to indoctrination or evangelism or proselytising. The Principal of the School states there has been no inspection of religious education or of collective worship in the School. Therefore, on a structured basis, the Board of Governors of the School does not know whether the School does in fact provide religious education which includes the core syllabus, or whether additional religious education is given and, if so, whether the additional teaching amounts to indoctrination, evangelism, or proselytising. Similar observations can be made about collective worship in the School and as to the exercise of discretion by individual teachers to say prayers of thanks to God outside formal teaching of religious education and outside assemblies. 32. By letter dated 30 May 2019 to the School, JR87’s parents queried the provision of religious education and collective worship in the School. They stated that they were not comfortable in having to disclose their own personal beliefs in the context of their daughter’s education but felt compelled to do so. They stated that neither of them professed any religious beliefs and they were not Christians. They were concerned that by the time JR87 had commenced P2 she had absorbed and adopted a religious (specifically Christian) worldview which was not consistent with their own views and beliefs. By way of illustration G states that, in the absence of any religious exposure at home, his daughter now believes that God made the world, and she repeats and practices a prayer/grace that she was taught at school at snack-time. His concern is that his daughter is learning Christianity and not learning “about” Christianity in a school context that effectively assumes its absolute truth and which encourages her to do the same. They stated that they were aware that it was possible to exclude JR87 from both collective worship and religious education. They did not feel this was an adequate answer to their concerns but rather exposed that the root cause of the problem was the complete lack of religious and belief diversity within the education system. The solution was an objective, critical, and pluralistic religious education rather than exclusion from religious education. In relation to exclusion they wished to know, for example: (a) what would JR87 be doing during periods of exclusion; (b) where would she go and who would be responsible for her welfare; and (c) what alternative activity/education could be provided by the School to JR87 during such periods of exclusion. The School responded by letter dated 21 June 2019. The gist of the response was to say that the School would continue to provide collective worship and religious education exactly as it had done and in accordance with the School’s understanding of the legislation. In its letter the School did set out the option of JR87 being excused from attendance at religious education and collective worship. However, the School stated that “prior” to the commencement of withdrawal from religious education and collective worship there would be discussions with the parents as to the alternative provisions to be put in place for JR87. The Principal’s evidence is that in her experience over the six years she has been in post only two children have been withdrawn by their parents from religious education and collective worship at the School but that on each occasion the withdrawal was short- lived. The short-lived periods of withdrawal may reflect problems experienced by those pupils and their parents. It would have been good practice for the Principal to have made enquiries of the parents as to why the withdrawals were short- lived. There is no evidence that she did. If JR87’s parents had withdrawn her from either religious education or from collective worship, she would have been the only child out of some 250-275 pupils at the School who did not attend. The arrangements which are required to be made if a pupil is excused from religious education or from collective worship Parents have a statutory right to withdraw their child from religious education or from collective worship or from both: see article 21(5) of the 1986 order and para 60 below. There is no requirement for a parent to explain or justify a request. Rather, a pupil is wholly or partly excused upon a request being made and the pupil remains so excused until the request is withdrawn. It might be thought that withdrawing a pupil was a simple matter of a parent making a request with which the school must comply and that there was no need for any burdensome discussion or negotiations between the school and the parents. However, exercising the right of withdrawal is not that simple, either for parents or for schools, as, absent established alternative arrangements, decisions must be made as to the arrangements for the pupil. In practice those decisions involve discussion and negotiations between the school and the parents giving rise to “a potential breeding ground for conflict:” see Folgerø at para 98. The facts of this case demonstrate that exercising the right of withdrawal was not simple either for JR87’s parents or for the School. There were no pre-existing alternative arrangements which could be implemented if JR87 was withdrawn from religious education and collective worship. In practice there had to be discussions between the School and the parents “prior” to withdrawal. The parents had to know the alternative arrangements to make an informed decision as to whether to exercise the right of withdrawal and the School had to devise those arrangements and consider whether it had the resources to implement them. The School sought to explore with JR87’s parents options for her if she was excused attendance. A difference arose as to whether a meeting between the School and JR87’s parents to discuss the options would be on a without prejudice basis or whether JR87’s parents’ solicitor should be present. As a result of those differences a meeting did not take place. Instead, the School provided JR87’s parents with outline details of the type of educational arrangements it might have been able to provide for JR87. In the outline details the School acknowledged that “[a] finalised and detailed plan can only be put in place following discussion between parents and school.” The School also acknowledged that consideration needed to be given to the availability of school resources to implement any plan. The type of discussion between the School and JR87’s parents “prior” to the commencement of withdrawal can be illustrated by the School’s various proposed options in relation to religious education lessons. The first option was for JR87 to remain in the classroom whilst the teaching of religious education took place, and she would “complete agreed activities in the classroom (with assistance of teacher/[classroom assistant]).” (Emphasis added). This proposal would inevitably involve careful discussions with the parents and negotiation on an ongoing basis about exactly what was involved in the content of the religious lesson and which aspects JR87 would and would not participate in on a lesson-by-lesson basis. Inherent in such discussions is the risk that: (a) the parents might feel compelled to disclose to the School authorities intimate aspects of their own religious and philosophical convictions; and (b) the parents might be in conflict with the School. The parents’ reasons for not exercising the right to withdraw JR87 from religious education and from collective worship at the School The parents of JR87 did not exercise their right to withdraw her from attendance at religious education and collective worship at the School for several reasons. First, if JR87’s parents had utilised the right to withdraw her from attendance then she would have been the only child, out of some 250-275 pupils, to be withdrawn. The parents of JR87 considered that singling her out from all her peers would have given rise to risks to her. Those risks included: (a) the risk that she would be “bullied or isolated as a result”; (b) the risk that she might be confused or upset about being singled out from all her peers and might feel that she was being punished by such exclusion; and (c) the risk that she would be outed, school year by school year, as a non-Christian to the pupils at the School, the School staff, and the parents of the other pupils at the School. All these risks deterred JR87’s parents from exercising their right to withdraw her from attendance at religious education and collective worship. The parents of JR87 considered that the risk of stigmatisation had not only to be seen in the context that she would have been the only pupil excluded from religious education and collective worship, but also in the context that the parents’ objections in a small School community may not be welcomed and/or may be misunderstood as hostility towards the majority religious tradition in Northern Ireland. Secondly, the parents of JR87 considered that she should not have to be excluded from any aspect of her education simply because the Department had specified a core syllabus which is not objective, critical, and pluralistic. The parents of JR87 wanted her to receive a lawful education. They did not wish her to be excluded from religious education simply because the education provided was unlawful. Thirdly, JR87’s parents stated that exercising the right to withdraw her from religious education and collective worship was capable of placing an undue burden on them by: (a) the risk of exposing their philosophical but non-religious beliefs to the School and to the wider School community; (b) the potential for conflict with the School in relation to alternative arrangements for JR87 if she were to be excused from attendance; and (c) the risk of the School viewing them as “difficult or awkward parents.” They considered that these matters not only placed an undue burden on them but also had a deterrent effect. The parents of JR87 acknowledge that there was no legal requirement for them to reveal their philosophical but non-religious beliefs and that the School did not expressly ask them to do so. They also acknowledge that in their letter dated 30 May 2019 they chose to reveal their beliefs to the School. However, they contend that: (a) they felt compelled to do so; and (b) inevitably, in practice, they would have been required to do so in the discussions as to alternative arrangements for JR87 which the School stipulated should take place “prior” to her withdrawal from religious education and collective worship. Fourthly, JR87’s parents also considered that where, as here, the statutory scheme does not provide any alternative educational provision, an undue burden was placed on them in conjunction with the School to devise alternative arrangements for JR87 “prior” to her withdrawal. JR87’s parents considered that devising alternative arrangements in conjunction with the School not only placed an undue burden on them but also had a deterrent effect. At the core of this case are the legislative provisions which: (a) require religious education to include education in accordance with a core syllabus specified by the Department; and (b) confer a right for parents to withdraw their child from attendance at religious education or collective worship or both. It is not appropriate to consider those legislative provisions in isolation. It is a feature of the legislative framework in Northern Ireland that there are different categories of grant-aided schools. For present purposes it is sufficient to identify and to provide a partial summary for illustration purposes of some of the different categories of schools. After partition of Ireland in 1921 schools which had previously operated on a voluntary and charitable basis were offered the opportunity to transfer their capital assets to the State to secure full funding for both capital and maintenance. 50. In broad terms the Church of Ireland, the Presbyterian Church in Ireland, and the Methodist Church in Ireland (“the transferor Churches”) availed of this opportunity so that their schools were transferred in the 1930s, 1940s, and 1950s to and are under the control of what is now the Education Authority (“the Authority”). Such a school is categorised as a “controlled school”, that is a grant-aided school under the management of the Authority: article 2(2) of the 1986 Order. However, whilst a controlled school is under the management of the Authority, the Authority is required to appoint a Board of Governors for the management of each controlled school: article 10(1) of the 1986 Order. In return for transferring their schools, the transferor Churches were accorded statutory rights of representation on the Boards of Governors of existing and future controlled schools. Those statutory rights are now contained in article 10(3)(a) of and Schedule 4 to the 1986 Order. For instance, in relation to controlled primary schools where nine voting members are appointed by the Authority to the Board of Governors then, of those members, four shall be nominated by the transferors: Schedule 4 para 2(2)(a) of the 1986 Order. In this way, controlled schools are schools the management of which is influenced by the transferor Churches. 51. After partition of Ireland in 1921, the Catholic Church did not wish to avail itself of the opportunity of transferring their schools’ capital assets to the State. Rather, the Catholic Church wished to retain voluntary status for their schools to enable Catholic pupils to be taught in Catholic schools under Catholic auspices. Such Catholic schools fall within the category of Catholic maintained schools: see article 2(2) of the 1986 Order and article 141(3) of the Education Reform (Northern Ireland) Order 1989 (SI 1989/2406 (NI 20)) (“the 1989 Order”). A grant-aided Catholic maintained school also falls within the category of a voluntary school: article 2(2) of the 1986 Order. The Council for Catholic Maintained Schools (“the Council”) is the managing authority for all Catholic maintained schools. Such schools are “managed” for the Council by their Boards of Governors: article 11(1) of the 1986 Order. Most of the Governors are appointed by the Catholic Church and some by parents. In this way Catholic maintained schools are schools, the management of which is influenced by the Catholic Church. Integrated schools in Northern Ireland are schools that intentionally foster diversity and inclusivity by bringing together students from Catholic, Protestant, and other backgrounds. They aim to create a learning environment where pupils from different religious, cultural, and socio-economic backgrounds can learn and grow together, developing respect for each other's identities and beliefs. A grant-aided Integrated school falls within the category of a voluntary school: article 2(2) of the 1986 Order. “Subject to the provisions of this article, religious education shall be given in every grant‐aided school other than a nursery school and the school day in every such school shall also include collective worship whether in one or more than one assembly on the part of the registered pupils at the school.” I make the following observations about article 21(1). First, the requirement to give religious education and to include daily collective worship is mandatory. Secondly, the requirement applies to every grant-aided school and therefore applies to grant-aided controlled schools, to grant-aided Catholic maintained schools and to grant-aided Integrated schools. Thirdly, the only exception to the mandatory requirement is in relation to a nursery school. 54. “In a controlled school, other than a controlled integrated school, the religious education required by paragraph (1) shall be undenominational religious education, that is to say, education based upon the Holy Scriptures according to some authoritative version or versions thereof but excluding education as to any tenet distinctive of any particular religious denomination and the collective worship required by paragraph (1) in any such school shall not be distinctive of any particular religious denomination.” The following observations may be made in respect of article 21(2). First, article 21(2) only applies to controlled schools. It does not apply to, for instance, Catholic maintained schools or to Integrated schools. Secondly, in controlled schools the religious education must be based upon the Christian religion (“based upon the Holy Scriptures”). Thirdly, in controlled schools, there is a mandatory requirement that religious education and collective worship shall be undenominational, that is not distinctive of Catholic or Protestant beliefs or forms of worship. The mandatory requirement in controlled schools avoids proselytising on behalf of one particular religious denomination but means that pupils are not taught about diversity between Christian denominations. For instance, a pupil from a Church of Ireland background is not to receive religious education as to the tenets distinctive of the Presbyterian Church in Ireland. Fourthly, denominational religious education and collective worship is not prohibited in Catholic maintained schools and in Integrated schools. 55. “Subject to paragraph (3A), in—… (c) a voluntary school, the religious education and collective worship required by paragraph (1) shall be under the control of the Board of Governors of the school and that religious education shall be subject to such arrangements for inspection and examination as the Board of Governors thinks fit.” I make the following observations about article 21(3). First, it applies to voluntary schools, which category includes Catholic maintained schools and Integrated schools. It does not apply to controlled schools. Secondly, the control of the Board of Governors is subject to paragraph 3A which makes provision for a core syllabus specified by the Department. Thirdly, it is for the Board of Governors in voluntary schools to determine what, if any, arrangements should be made for inspection and examination in relation to religious education. There is no requirement for inspection by the Department: see also article 102(7) of the 1986 Order. “In a grant-aided school the religious education required by paragraph (1) shall include religious education in accordance with any core syllabus specified under article 11 of the Education (Northern Ireland) Order 2006.” 57. I make the following observations in relation to article 21(3A). First, the requirement to include religious education in accordance with any core syllabus is mandatory. Secondly, the mandatory requirement is also contained in Part 1 of Schedule 2 to the Education (Curriculum Minimum Content) Order (Northern Ireland) 2007 (NISR No 46 of 2007). Thirdly, article 21(3A) applies in relation to every grant-aided school so that it applies to both grant-aided controlled schools, to grant-aided Catholic maintained schools, and to grant-aided Integrated schools. Fourthly, the mandatory requirement to “include” religious education in accordance with any core syllabus is a minimum requirement. Provided the religious education given in a grant-aided school includes the core syllabus, the school is at liberty to give additional religious education. On the one hand the additional religious education could contain matters which are objective, critical, and pluralistic. On the other hand, the additional religious education could amount to indoctrination, evangelism, or proselytising. After setting out further provisions in article 21 of the 1986 Order it will be necessary to consider how the current core syllabus was drafted. It will also be necessary to consider how the contents of the current core syllabus led the judge and the Court of Appeal to conclude that the teaching of religious education and the provision of collective worship in the School was not undertaken in an objective, critical, and pluralistic manner. “Religious education and collective worship required by paragraph (1) shall be so arranged that—(a) the school shall be open to pupils of all religious denominations for education other than religious education; (b) no pupil shall be excluded directly or indirectly from the other advantages which the school affords.” A child can attend any school regardless of the child’s religious denomination. 60. Article 21(5) of the 1986 Order contains the right to withdraw a child from attendance at religious education or collective worship or from both. It provides: “If the parent of any pupil requests that the pupil should be wholly or partly excused from attendance at religious education or collective worship or from both, then, until the request is withdrawn, the pupil shall be excused from such attendance in accordance with the request.” I observe the following in relation to article 21(5). First, a pupil is wholly or partly excused upon a request being made and the pupil remains so excused until the request is withdrawn. Secondly, for the school to be obliged to comply with the request, there is no requirement for the request to be in writing or for the parent to explain or justify the request. Thirdly, as soon as the request is made the school must immediately excuse the pupil from attendance. “No payment from public funds in respect of a pupil shall be varied by reason of his attendance or non-attendance at religious education or collective worship.” By virtue of article 21(6) a parental request to excuse a pupil from attendance will not have the adverse consequence of a reduction in public funds available to the school. However, no additional funds are to be made available to the school so that it can put in place alternative arrangements for a child who is excused. Those alternative arrangements must be funded by the school out of its existing public funds. If there are no funds available, then the school is limited in what alternative arrangements can be made. “Ministers of religion and other suitable persons, including teachers of the school, to whom the parents do not object shall, subject to paragraph (8), be granted reasonable access at convenient times to pupils in any grant‐aided school other than a nursery school for the purpose of giving religious education, whether as to tenets distinctive of a particular religious denomination or otherwise, or of inspecting and examining the religious education given in the school and education given by virtue of this paragraph may be in addition to that provided under paragraph (1).” First, article 21(7) applies to any grant-aided school (other than a nursery school). Therefore, it applies to grant-aided controlled schools, to grant-aided Catholic maintained schools, and to grant-aided Integrated schools. Secondly, there is a mandatory obligation on grant-aided schools to grant access to pupils to “Ministers of religion and other suitable persons, including teachers of the school.” There is no statutory definition of a Minister of religion or of “suitable persons”. In practice at the School the Ministers and persons were all exclusively Christian. Thirdly, the purpose of granting access is: (a) to give religious education, in addition to that provided under article 21(1); or (b) to inspect or examine the religious education given in the school. Fourthly, in a controlled school the only potential inspection or examination of religious education is under article 21(7) or if the Board of Governors agrees by the Department: see article 102(7). Fifthly, the additional religious education given by a minister of religion or other suitable person, including a teacher of the school, can be denominational. Therefore, in a controlled school or in a Catholic maintained school, the tenets of, for instance, the Presbyterian Church in Ireland could be taught to pupils whose parents adhere to the tenets of a different Christian religion, unless the parents object. Sixthly, the right of access for either purpose is subject to the qualification that “the parents do not object.” However, it is unclear as to whether parental objection is by all the parents, or a proportion of the parents and if so what proportion. Seventhly, the right of access is subject to the qualification that it is reasonable and at convenient times. Eighthly, the qualification in article 21(8) to the right of access in article 21(7) applies to voluntary schools. The qualification does not arise on the facts of this case as the School is a controlled school. Article 21(9) of the 1986 Order enables the Department to make such regulations as it considers necessary for securing that the provisions of article 21 relating to religious education are complied with in all grant‐aided schools other than nursery schools. 72. The Primary Schools (General) Regulations (Northern Ireland) 1973 (NISR No 402 of 1973) (“the 1973 Regulations”) were made by the Department’s predecessor under earlier legislation. Regulation 21(4) of the 1973 Regulations read with article 21(1) of the 1986 Order requires schools to give religious education for half an hour every school day, or its equivalent within each week. Regulation 21(5) of the 1973 Regulations provides that a minister in charge of any church or other place of worship in the vicinity of a controlled school can require the Board, that is the relevant Education and Library Board, to communicate to him the names of pupils who are, or are stated to be, of the same religious denomination as that minister. Regulation 21(5) of the 1973 Regulations therefore envisages that the Board will have ascertained the religious denomination of pupils and will reveal their beliefs concerning spiritual matters to the relevant minister on request. The relevant minister can then require the school to grant access to that pupil for the purpose of giving additional religious education unless the parents object: see article 21(7) of the 1986 Order. 73. The religious education required by article 21(1) of the 1986 Order must include religious education in accordance with any core syllabus specified under article 11 of the Education (Northern Ireland) Order 2006 (SI 2006/1915 (NI 11)) (“the 2006 Order”). Article 11(1) provides: “Subject to paragraph (2), the Department may by order specify a core syllabus for the teaching of religious education in grant-aided schools, that is to say a syllabus which— sets out certain core matters, skills and processes which are to be included in the teaching of religious education to pupils in such schools, but does not prevent or restrict the inclusion of any other matter, skill or process in that teaching; and is such that the teaching in a controlled school (other than a controlled integrated school) of any of the matters, skills or processes set out in that syllabus would not contravene article 21(2) of the 1986 Order.” (Emphasis added) I make the following observations in relation to article 11(1). First, it is the Department which by order may specify a core syllabus in respect of religious education. Secondly, a core syllabus does not prevent or restrict the inclusion of any other matter, skill, or process in teaching religious education. The core syllabus is a mandatory minimum. It is permissible for grant-aided schools to teach matters in addition to the matters in the core syllabus but there is no requirement that the additional matters are objective, critical, and pluralistic. Rather, the additional matters might amount to indoctrination, evangelism, or proselytising. The ability to teach additional matters is to be seen in the context that there is no statutory requirement on the Department to inspect the provision of religious education. Thirdly, in respect of a controlled school (other than a controlled Integrated school) the core syllabus must not contravene the requirement that religious education shall be undenominational and based upon the Holy Scriptures. 74. The Department’s power by order to specify a core syllabus in respect of religious education is qualified by article 11(2) of the 2006 Order. Article 11(2)(a) provides that the Department shall not specify a core syllabus unless a draft of that syllabus was prepared by the drafting group and submitted by it to the Department. The group responsible for drafting the current core syllabus consisted solely of representatives of the Catholic Church, the Church of Ireland, the Presbyterian Church in Ireland, and the Methodist Church in Ireland (“the four main Churches”). Article 11(2)(b) provides that the draft must be published with a notice inviting representations to be made and article 11(2)(c) provides that after considering all the representations the draft may or may not be revised by the drafting group. Thereafter, the drafting group submits the final draft to the Department, with: (i) a report by that group on the nature of representations made and on the extent to which, and the manner in which, account has been taken of those representations; and (ii) any other information which the Department may request. The process which led the Department to specify the current core syllabus for religious education A core syllabus was first introduced in 1993 having been prepared by the four main Churches. In 2002 the then Minister of Education asked the leaders of the four main Churches to review the core syllabus and specifically asked the four main Churches to consider the inclusion of other world faiths as part of the core syllabus. 77. In September 2003, a working party of the four main Churches, published “Proposals for a Revised Core Syllabus in RE in Grant-Aided Schools in Northern Ireland.” In the introduction section the working party stated: …. The decision to include the study of other world religions, at an appropriate key stage and level of study, in no way compromises the essential Christian character of the Core Syllabus, nor suggests that current provision for Religious Education should be replaced by a study of comparative religions. Indeed, the Working Party believes that the approach it is proposing in relation to other world faiths is the outworking of our Christian duty to our fellow men and women. 11. Some would favour going further or, indeed, in an altogether different direction, and advocate a rigorous multi-faith or comparative and phenomenological approach to the study of religions. The Working Party is convinced that there are strong educational, as well as theological, reasons for not adopting such an approach and concurs with Kay and Linnet Smith … who conclude … that the study of a wide range of world faiths ‘confuses pupils and that thematic teaching produces less favourable attitudes’ towards religion in general, rather than respect for religious diversity …. The Working Party maintains that the essential Christian character of Religious Education in Northern Ireland plays an important part in the faith development of our young people, and is overwhelmingly supported by parents and contributes significantly to the promotion of tolerance and the common good in Northern Ireland. The Working Party supports strongly, therefore, maintaining the essential Christian character of Religious Education for all grant aided schools in Northern Ireland as recognised in existing legislation.” (Emphasis added) The working party then set out its proposed core syllabus for each Stage of the Northern Ireland curriculum. It was only at Key Stage 3 that pupils were to study two World Faiths in addition to Christianity. 79. Several observations can be made in relation to paragraphs 10-11 of the introduction and in relation to the working party’s proposed core syllabus. First, the working party considered that its Christian duty in drafting the core syllabus was the development of the Christian faith in young people rather than imparting knowledge about Christianity. Secondly, there was to be no reference to any other faiths in the Foundation Stage and in Key Stages 1 and 2. Therefore, between the ages of four and eleven the core syllabus was to be exclusively based on promoting faith in Christianity without any education about any other world religion. Thirdly, the first stage at which there was to be study of other world religions was to be at Key Stage 3 at which stage pupils were to study only two World Faiths in addition to Christianity, but it was “intended that study of the World Faiths will require only a modest amount of teaching time in each year of key stage 3.” Fourthly, in rejecting any education as to other religions until Key Stage 3 the working party expressly took into account their own theological beliefs. Fifthly, the working party justified the failure to provide any education about other world religions until Key Stage 3 and then to provide a modest amount of teaching time devoted to other world religions on the basis that pupils would be confused. In January 2005 the drafting group submitted their proposals for a revised core syllabus. There followed a full Equality Impact Assessment on these proposals together with a three-month public consultation. The Northern Ireland Council for Voluntary Action and the Equality Commission for Northern Ireland made several criticisms of the proposed revised core syllabus. The judge set out those criticisms at para 66 (a)-(b) of his judgment dated 5 July 2022. The Northern Ireland Council for Ethnic Minorities expressed the view that they were extremely unhappy with the entire process by which the syllabus was reviewed, to the extent that they refused to formally take part in the consultation as they considered it fundamentally flawed (para 66(c)). The Examiner of Statutory Rules raised concerns about the content of the core syllabus which were set out by the judge at para 67 of his judgment dated 5 July 2022. In October 2006, the then Minister of Education accepted the drafting group’s proposals in relation to the revised core syllabus. Thereafter, the Department specified the core syllabus in the Education (Core Syllabus for Religious Education) Order (Northern Ireland) 2007 (NISR No 309 of 2007). In conclusion, the current core syllabus was drafted by the four main Churches and then, despite the criticisms, it was specified by the Department. The judge set out various provisions of the core syllabus at paragraphs 39-44 of his judgment dated 5 July 2022. The judge concluded, at para 74, that a fair analysis of the core syllabus “leads to the conclusion that under the curriculum religious education is not conveyed in an objective, critical and pluralist manner.” His conclusion was unanimously upheld in the Court of Appeal and leave to cross appeal to this court on a ground challenging that conclusion was refused. Even though no issue arises in this court, it is appropriate to briefly set out some of the reasoning which led to the conclusion that the core syllabus did not convey religious education in an objective, critical, and pluralistic manner. First, it was the inevitable consequence of leaving the drafting of the core syllabus to the four main churches. All four main churches seek to promote faith in Christianity as an absolute truth rather than knowledge about Christianity. Secondly, there is a complete absence of plurality in relation to the teachings or practices of any other religions or non-religious traditions and philosophies in the Foundation Stage and in Key Stages 1 and 2. Thirdly, there is an absence of plurality in relation to the teaching of Christianity in controlled schools by virtue of the mandatory prohibition on teaching pupils about the tenets of any particular religious denomination: see para 54 above. 88. Fourthly, there is no commitment in the core syllabus to objectivity or to the development of critical thought. To teach pupils to accept a set of beliefs without critical analysis amounts to evangelism, proselytising, and indoctrination. Rather, the core syllabus encourages pupils faithfully to accept the existence of the Christian God, to accept that good things come from the Christian God, that the Christian God can help in times of adversity and that morality is based upon, and derived from, the existence of the Christian God. For instance, in the Foundation Stage the core syllabus stipulates that teachers should provide opportunities for pupils to appreciate that “praying is a way of talking to God so that we can thank him, praise him, say sorry and ask for help.” Another instance is that in Key Stage 1 teachers should provide opportunities for pupils to understand that the God who loves them is forgiving towards them and that they should be forgiving towards others. The morality of forgiveness is derived from the Christian God’s example of being forgiving towards them. Fifthly, at Key Stage 2 “[t]eachers should provide opportunities for pupils to[c]onsider the respect due to creation, which is the gift of God” (Emphasis added). This involves teaching children of the correctness of the important Christian belief that the world is created by a God who exists and that the world is his gift. Sixthly, the four main Churches have developed non-statutory material for the guidance of teachers in relation to attainment of the Key Stages. It shows how the drafting group intended the core syllabus to be taught in practice and what the pupils are expected to attain through each Stage of the Northern Ireland curriculum. The guidance is unequivocally an expression of Christian faith. For instance, pupils should be able to recognise that God cares for his creation and people. Again, this teaches that the Christian God created the world and that the pupils are his people. The conclusion that the core syllabus does not convey religious education in an objective, critical, and pluralistic manner has been accepted in this court by the Transferors’ Representative Council, which now seeks a review of the core syllabus in which the study of other faiths would be mandatory from the Foundation Stage of the Northern Ireland curriculum. 92. Everyone has the right to freedom of thought, conscience and religion; this right includes freedom to change his religion or belief and freedom, either alone or in community with others and in public or private, to manifest his religion or belief, in worship, teaching, practice and observance. Freedom to manifest one’s religion or beliefs shall be subject only to such limitations as are prescribed by law and are necessary in a democratic society in the interests of public safety, for the protection of public order, health or morals, or for the protection of the rights and freedoms of others.” “No person shall be denied the right to education. In the exercise of any functions which it assumes in relation to education and to teaching, the State shall respect the right of parents to ensure such education and teaching in conformity with their own religious and philosophical convictions.” 94. The Grand Chamber in Lautsi set out the threshold to be met in relation to parents’ non-religious philosophical convictions for those convictions to attract protection under article 9 ECHR and to engage the respect guaranteed to a parent’s “religious and philosophical convictions” under A2P1. In Lautsi the Court found that the threshold requirement had been met in relation to secularism. It stated, at para 58, that: “… the supporters of secularism are able to lay claim to views attaining the ‘level of cogency, seriousness, cohesion and importance’ required for them to be considered ‘convictions’ within the meaning of articles 9 of the Convention and 2 of Protocol No 1. More precisely, their views must be regarded as ‘philosophical convictions’, within the meaning of the second sentence of article 2 of Protocol No 1, given that they are worthy of ‘respect’ “in a democratic society”’, are not incompatible with human dignity and do not conflict with the fundamental right of the child to education.” The parents’ beliefs in this appeal are set out at paras 20-21 above. The judge held, at para 52, that “the parents’ convictions in this case are embraced by both article 9 and A2P1.” There has been no challenge to that finding nor could there be as they attain the requisite “level of cogency, seriousness, cohesion and importance”, they are worthy of respect in a democratic society, are not incompatible with human dignity, and do not conflict with the fundamental right of JR87 to education. There is extensive Strasbourg jurisprudence on the application of A2P1 to religious education. It is not necessary to examine all those cases to determine the general principles as the Grand Chamber has set them out in Folgerø. The central aspect of this appeal is the parents’ right to withdraw JR87 from religious education and collective worship. A right of withdrawal is one factor that the Strasbourg Court takes into account in assessing whether there has been a breach of A2P1. The Grand Chamber of the Strasbourg Court has considered the right of withdrawal in Folgerø at paras 96-100 and in Papageorgiou v Greece (2019) (Application Nos 4762/18 and 6140/18) 70 EHRR 36 (“Papageorgiou”) at paras 87-89. I will now examine in some detail Folgerø and Papageorgiou. 98. The applicants in Folgerø, were all members of the Norwegian Humanist Association, and were the parents of children at primary school. In 1997 the school curriculum was changed: Christianity and philosophy were replaced by a single subject called KRL in which Christianity, religion, and philosophy were taught together. Under the previous system, children of parents who were not members of the Church of Norway were entitled, upon the parents’ request, to be exempted in whole or in part from lessons on the Christian faith. There was no requirement for the parents to give reasons. However, in relation to KRL it was only possible to request exemption without providing reasons in relation to activities that were clearly religious (“an automatic mandatory exemption on request”): see section 2-4 of the Education Act 1998 read with Circular F-03-98 by the Ministry of Education and Research of 12 January 1998. In relation to activities that were not clearly religious, then the parental note requesting exemption was required to contain reasons setting out what they considered amounted to practice of another religion or adherence to another philosophy of life (“partial exemption”): see section 2-4 of the Education Act 1998 read with Circular F-90-97 by the Ministry of Education and Research of 10 July 1997. 99. An example of an activity that was not clearly religious is dance classes organised as part of Physical Education: see Circular F-03-98 page 4. In relation to dancing a parent would have to give reasons such as dancing with a partner being incompatible with their convictions, while movement to music is acceptable. If a request for partial exemption was made then section 2-4 provided that “the school shall as far as possible seek to find solutions facilitating differentiated teaching within the school curriculum”. A detailed outline with examples of how differentiated teaching was to be implemented is found in Circular F-03-98, from which it can be seen that the teacher was to apply, in cooperation with the parents, a flexible approach, having regard to the parents’ religious or philosophical affiliation and to the kind of activity at issue. If the partial request for exemption was rejected, the parents had a right of appeal to the State Education Office in the county concerned. The appeal was sent via the school, which then had an opportunity to alter its decision. The applicant parents maintained that the KRL subject was neither objective, nor critical, nor pluralistic. They contended that the partial exemption was not practical and effective for several reasons, including exercising it was capable of placing an undue burden on them. There was no issue before the Strasbourg Court in relation to the automatic mandatory exemption on request. 101. The Strasbourg Court, at para 84, set out the following major principles as to the general interpretation of A2P1, namely: The two sentences of article 2 of Protocol No 1 must be interpreted not only in the light of each other but also, in particular, of Arts 8, 9 and 10 of the Convention. It is on to the fundamental right to education that is grafted the right of parents to respect for their religious and philosophical convictions, and the first sentence does not distinguish, any more than the second, between state and private teaching. The second sentence of article 2 of Protocol No 1 aims in short at safeguarding the possibility of pluralism in education which possibility is essential for the preservation of the ‘democratic society’ as conceived by the Convention. In view of the power of the modern State, it is above all through state teaching that this aim must be realised. Article 2 of Protocol No 1 does not permit a distinction to be drawn between religious instruction and other subjects. It enjoins the State to respect parents’ convictions, be they religious or philosophical, throughout the entire state education programme. That duty is broad in its extent as it applies not only to the content of education and the manner of its provision but also to the performance of all the ‘functions’ assumed by the State. The verb ‘respect’ means more than ‘acknowledge’ or ‘take into account’. In addition to a primarily negative undertaking, it implies some positive obligation on the part of the State. The term ‘conviction’, taken on its own, is not synonymous with the words ‘opinions’ and ‘ideas’. It denotes views that attain a certain level of cogency, seriousness, cohesion and importance. Article 2 of Protocol No 1 constitutes a whole that is dominated by its first sentence. By binding themselves not to ‘deny the right to education’, the contracting states guarantee to anyone within their jurisdiction a right of access to educational institutions existing at a given time and the possibility of drawing, by official recognition of the studies which he has completed, profit from the education received. It is in the discharge of a natural duty towards their children—parents being primarily responsible for the ‘education and teaching’ of their children—that parents may require the State to respect their religious and philosophical convictions. Their right thus corresponds to a responsibility closely linked to the enjoyment and the exercise of the right to education. Although individual interests must on occasion be subordinated to those of a group, democracy does not simply mean that the views of a majority must always prevail: a balance must be achieved which ensures the fair and proper treatment of minorities and avoids any abuse of a dominant position. However, the setting and planning of the curriculum fall in principle within the competence of the contracting states. This mainly involves questions of expediency on which it is not for the Court to rule and whose solution may legitimately vary according to the country and the era. In particular, the second sentence of article 2 of Protocol No 1 does not prevent states from imparting through teaching or education information or knowledge of a directly or indirectly religious or philosophical kind. It does not even permit parents to object to the integration of such teaching or education in the school curriculum, for otherwise all institutionalised teaching would run the risk of proving impracticable. The second sentence of article 2 of Protocol No 1 implies on the other hand that the State, in fulfilling the functions assumed by it in regard to education and teaching, must take care that information or knowledge included in the curriculum is conveyed in an objective, critical and pluralistic manner. The State is forbidden to pursue an aim of indoctrination that might be considered as not respecting parents’ religious and philosophical convictions. That is the limit that must not be exceeded [see Kjedsen v Denmark (A/23) (1979–80) 1 EHRR 711 at [53]]. In order to examine the disputed legislation under article 2 of Protocol No 1, interpreted as above, one must, while avoiding any evaluation of the legislation’s expediency, have regard to the material situation that it sought and still seeks to meet. Certainly, abuses can occur as to the manner in which the provisions in force are applied by a given school or teacher and the competent authorities have a duty to take the utmost care to see to it that parents’ religious and philosophical convictions are not disregarded at this level by carelessness, lack of judgment or misplaced proselytism.” It is appropriate at this stage to make several observations in relation to these major principles which are relevant to the appeal before this court. First, in relation to the major principle at (h) above, the judge, at para 60(viii), drew no distinction between: (a) indoctrination; and (b) the State conveying information or knowledge in a manner which was not objective, critical, and pluralistic. The Court of Appeal, at para 66, disagreed. It considered that there was a distinction between the two concepts so that indoctrination was different from conveying information or knowledge in a manner which was not objective, critical, and pluralistic. The decision in Folgerø clearly establishes that the judge was correct and that the two concepts are simply different sides of the same coin. 105. In Folgerø, at para 71, the Norwegian Government identified the first issue as being: “… whether the KRL subject in general involved the imparting of information and knowledge in a manner which objectively might be perceived as indoctrinating, that is, not objective, neutral and pluralistic.” The Norwegian Government did not consider that there was any distinction between the two concepts. The Strasbourg Court in its judgment did not state that the Government’s approach was incorrect. Rather, at para 85, it expressed the concepts as alternatives. The Court stated: “The question to be determined is whether the respondent State, in fulfilling its functions in respect of education and teaching, had taken care that information or knowledge included in the Curriculum for the KRL subject be conveyed in an objective, critical and pluralistic manner or whether it had pursued an aim of indoctrination not respecting the applicant parents’ religious and philosophical convictions and thereby had transgressed the limit implied by article 2 of Protocol No 1.” (Emphasis added). Thereafter, the Strasbourg Court made a finding, at para 102, that it “[does] not appear that the respondent State took sufficient care that information and knowledge included in the curriculum be conveyed in an objective, critical and pluralistic manner for the purposes of [A2P1].” The Court did not make a separate and distinct finding of indoctrination. It was unnecessary to do so because conveying information and knowledge in a manner which is not objective, critical, and pluralistic manner amounts to indoctrination. Not only does the decision in Folgerø clearly establish that the judge was correct but also Mr McGleenan KC, on behalf of the Department, was unable to refer to any Strasbourg authority which established a distinction between the two concepts or identified a dividing line between them. Furthermore, quite apart from any Strasbourg authority, he was unable to articulate any test for distinguishing between the two concepts. 107. Secondly, in relation to the major principle at (h) above, Mr McGleenan, on behalf of the Department, submitted that, even if the State had failed to fulfil the functions assumed by it so that indoctrination had occurred, there would be no breach of A2P1 unless there was a finding that the State was pursuing an aim of indoctrination. I reject that submission. In circumstances where indoctrination has occurred, making a breach of A2P1 dependent on a finding that the State had pursued the aim of indoctrination would make the rights of parents and pupils theoretical and illusory, by depriving them of a remedy where they had suffered a wrong: see the Chamber decision in Öcalan v Turkey (Application No 46221/99) (2003) 37 EHRR 10 at para 153, the Grand Chamber decision in the same case (2005) 41 EHRR 45 at para 135 and Artico v Italy (1980) 3 EHRR 1, at para 33. Furthermore, the submission ignores the positive duty, under the major principle at (i) above, on the competent authorities to inspect schools “to see to it” that indoctrination does not occur and the concomitant duty on the competent authority to take action if on inspection it is found that it is occurring. In circumstances where indoctrination is occurring, the competent authority would also be in breach of its positive duties under major principle (i). Finally, the Strasbourg Court in Folgerø found that there was a breach of A2P1 and did so without making a finding that the State was pursuing the “aim” of indoctrination. Thirdly, as I have indicated, the major principle at (i) above places positive duties on the competent authority to inspect and to take action if on inspection it is found that indoctrination is occurring. In this case one of the reasons advanced by JR87’s parents for not withdrawing her from religious education and collective worship at the School is that they wished her to receive religious education, provided it did not amount to indoctrination. If the Department had inspected and had taken positive action to prevent indoctrination, then there would be no substance in this reason advanced by JR87’s parents. However, the Department, as the competent authority, has conspicuously failed to comply with its duties to inspect and to take action so there is considerable substance in this reason as one of the factors to be taken into account in determining whether there has been a breach of A2P1. Fourthly, there is another feature of the duty to take the utmost care identified in major principle (i) above. Utmost care requires the Department to provide some assistance to individual schools in relation to the difficult practical questions as to: (a) the alternative arrangements to be made for pupils who are withdrawn from religious education and/or collective worship; and (b) the procedures to be followed by the schools in conjunction with the parents when seeking to identify appropriate alternative arrangements. 110. Returning to the judgment in Folgerø and after detailed consideration of the KRL curriculum the Strasbourg Court held, at para 95, that there were not only quantitative but even qualitative differences applied to the teaching of Christianity as compared to that of other religions and philosophies. Thereafter, it addressed the issue as to whether this imbalance could be said to have been brought to a level acceptable under A2P1 by the possibility for pupils to request exemption from the KRL. The Court, between paras 97 and 99, found that there were several difficulties with the exercise of the exemption. It is sufficient, for present purposes, to set out para 98: “Secondly, pursuant to Circular F-03-98, save in instances where the exemption request concerned clearly religious activities—where no grounds had to be given, it was a condition for obtaining partial exemption that the parents give reasonable grounds for their request. The Court observes that information about personal religious and philosophical conviction concerns some of the most intimate aspects of private life. It agrees with the Supreme Court that imposing an obligation on parents to disclose detailed information to the school authorities about their religions and philosophical convictions may constitute a violation of article 8 of the Convention and, possibly also, of article 9. In the present instance, it is important to note that there was no obligation as such for parents to disclose their own conviction. Moreover, Circular F-03-98 drew the school authorities’ attention to the need to take duly into account the parents’ right to respect for private life. The Court finds, nonetheless, that inherent in the condition to give reasonable grounds was a risk that the parents might feel compelled to disclose to the school authorities intimate aspects of their own religious and philosophical convictions. The risk of such compulsion was all the more present in view of the difficulties highlighted above for parents in identifying the parts of the teaching that they considered as amounting to the practice of another religion or adherence to another philosophy of life. In addition, the question whether a request for exemption was reasonable was apparently a potential breeding ground for conflict, a situation that parents might prefer simply to avoid by not expressing a wish for exemption.” (Emphasis added). A comment to be made in relation to this paragraph is that the capacity for placing an undue burden on parents by disclosing intimate aspects of their own religious and philosophical convictions was not dependent on whether there was an obligation “as such” on them to do so. It was sufficient if the parents reasonably felt compelled to do so. 111. “ … the system of partial exemption was capable of subjecting the parents concerned to a heavy burden with a risk of undue exposure of their private life and that the potential for conflict was likely to deter them from making such requests. In certain instances, notably with regard to activities of a religious character, the scope of a partial exemption might even be substantially reduced by differentiated teaching. This could hardly be considered consonant with the parents’ right to respect for their convictions for the purposes of article 2 of Protocol No 1, as interpreted in the light of Arts 8 and 9 of the Convention. In this respect, it must be remembered that the Convention is designed to ‘guarantee not rights that are theoretical or illusory but rights that are practical and effective’.” (Emphasis added). The Court, at para 102, found a violation of A2P1. In so far as relevant to this appeal it stated: “Against this background … it does not appear that the respondent State took sufficient care that information and knowledge included in the curriculum be conveyed in an objective, critical and pluralistic manner for the purposes of article 2 of Protocol No 1. Accordingly, the Court finds that the refusal to grant the applicant parents full exemption from the KRL subject for their children gave rise to a violation of article 2 of Protocol No 1.” 113. There were two joined applications to the Strasbourg Court. In the first application the first two applicants were parents of the third applicant, a student who attended the General High School on the small island of Milos. In the second application the first applicant was the mother of the second applicant, a student attending the only primary school on the small island of Sifnos. The focus of the compulsory religious education in both schools was on the Christian Orthodox faith. Parents could seek exemption from religious education courses by submitting a “solemn declaration” in writing to the school Principal stating that “the student is not an Orthodox Christian and therefore relies on grounds of religious conscience”. The submission of a false solemn declaration was a criminal offence. The applicant parents never submitted an application for exemption from the religious education course. Their case was that the exemption procedure was incompatible with their Convention rights as it was capable of placing an undue burden on them. The Court considered that the exemption procedure was capable of placing an undue burden on parents. It stated, at para 87, that: “… the current system of exemption of children from the religious education course is capable of placing an undue burden on parents with a risk of exposure of sensitive aspects of their private life and that the potential for conflict is likely to deter them from making such a request, especially if they live in a small and religiously compact society, as is the case with the islands of Sifnos and Milos, where the risk of stigmatisation is much higher than in big cities. The applicant parents asserted that they were actually deterred from making such a request not only for fear of revealing that they were not Orthodox Christians in an environment in which the great majority of the population owe allegiance to one particular religion, but also because, as they pointed out, there was no other course offered to exempted students and they were made to lose school hours just for their declared beliefs.” 114. The Court, at para 90, found that there was a breach of the rights of all the applicants, both parents and students, under the second sentence of A2P1, as interpreted in the light of article 9 ECHR. The Court explained, at para 39, that the second sentence of A2P1: “… should be read in the light not only of the first sentence of the same article, but also, in particular, of article 9 of the Convention, which guarantees freedom of thought, conscience and religion, including the freedom not to belong to a religion, and which imposes on Contracting States a ‘duty of neutrality and impartiality’. When read as it should be in the light of article 9 of the Convention and the second sentence of article 2 of Protocol No 1, the first sentence of that provision guarantees schoolchildren the right to education in a form which respects their right to believe or not to believe.” On this basis the Court found that there was a breach of the rights of all the applicants, both parents and students. The Court awarded jointly to the parents and to the student in the first application the sum of €8,000 and jointly to the mother and the student in the second the sum of €8,000. In respect of grant-aided schools the Department has assumed the function of specifying a core syllabus for religious education and has enacted requirements for collective worship (“the assumed functions”). In fulfilling the assumed functions, the Department must take care that information or knowledge included in the core syllabus is conveyed in an objective, critical, and pluralistic manner. Teaching at the School in accordance with the core syllabus did not convey information or knowledge in an objective, critical, and pluralistic manner, and amounted to indoctrination. The Department breached the obligation to take care. The breach affected not only the teaching of religious education but also the conduct of collective worship which is based on the core syllabus. A factor to be taken into account in determining whether there is a breach of A2P1 is whether there is a right to withdraw JR87 from religious education and collective worship without placing an undue burden on her parents. If the right of withdrawal is capable of placing an undue burden on them, then their rights and the rights of JR87 under A2P1 read with article 9 ECHR would be theoretical and illusory rather than practical and effective. 117. The judge considered and rejected the argument that the parents’ statutory right, which the judge described as an unfettered right, to withdraw JR87 from religious education and collective worship was sufficient to prevent a breach of A2P1 read with article 9 ECHR. In arriving at that conclusion the judge set out, at para 107, the concerns of the parents if they exercised the statutory right. I have summarised those concerns at paras 40-46 above. The judge considered, at para 122, that: “… the concerns raised by the parents in relation to exclusion are valid. Whilst an unfettered right to exclusion is available it is not a sufficient answer to the lack of pluralism identified by the court. It runs the risk of placing undue burdens on parents. There is a danger that parents will be deterred from seeking exclusion for a child. Importantly, it also runs the risk of stigmatisation of their children.” (Emphasis added). The judge, relying on the judgment of Warby J in R (Fox) v Secretary of State for Education [2015] EWHC 3404 (Admin); [2016] PTSR 405 at para 79, added a further reason as being that “the need to withdraw [JR87] would be a manifestation of the lack of pluralism in question.” The finding that the concerns raised by the parents in relation to exclusion are valid was a factual finding made by the judge. There was ample evidence to support it. For instance in relation to the parents’ concerns as to the risk of stigmatisation of JR87: (a) there was the parents’ evidence; (b) there was no evidence from the School that JR87 would not be stigmatised; (c) the evidence of stigmatisation is consistent with peer pressure and classroom norms to which children are inevitably exposed and to which they are sensitive; (d) JR87 would have been the only child withdrawn from religious education and collective worship; (e) the evidence that the two previous withdrawals at the School had been short lived: see para 34 above; and (f) this was a small school environment. I consider that there was not only ample evidence to support the judge’s factual finding as to the risk of stigmatisation of JR87, but it was also the only available finding open to him on the evidence. Another instance is that there was ample evidence to support the factual finding of a risk of placing undue burdens on the parents. In practice it was reasonable for the parents to have felt compelled to disclose to the School their non-religious and philosophical convictions even though there was no obligation “as such” to do so. Furthermore, in practice the discussions and negotiations to be entered into with the School “prior” to withdrawal of JR87 would have led to a real risk that the parents would feel compelled to disclose their convictions to the School. A yet further instance is that there was ample evidence to support the factual finding of a danger of being deterred from seeking withdrawal. The risk of stigmatisation of JR87 alone would give rise to that risk. The judge concluded that the right to withdraw JR87 was insufficient to prevent a breach of A2P1 read with article 9 ECHR. The Court of Appeal disagreed. However, I consider that in applying the legal principles to the facts of this case the Court of Appeal fell into several errors. First, the Court of Appeal fell into error by drawing a distinction between conveying knowledge in a manner which was not objective, critical, and pluralistic on the one hand and indoctrination on the other: see paras 104-106 above. The two concepts are merely different sides of the same coin. Secondly, the Court of Appeal fell into error in making a breach of A2P1 dependent on a finding that the Department had pursued the aim of indoctrination. The Court of Appeal held, at para 69, that to establish that there has been a breach of A2P1 it must be shown that the State has crossed the line of pursuing the forbidden aim of “indoctrination that might be considered as not respecting parents’ religious or philosophical convictions.” Conveying knowledge in a manner which is not objective, critical, and pluralistic on the one hand and indoctrination on the other are, as I have just said, different sides of the same coin. Conveying knowledge in that manner amounts to pursuing the aim of indoctrination. The Strasbourg Court does not make a separate and distinct finding that the State was pursuing the aim of indoctrination before it finds a breach of A2P1: see paras 107 and 112 above. Thirdly, the Court of Appeal fell into error by failing to recognise that established principles of Convention law apply to both automatic and partial exemptions and therefore fell into error in relation to the application of the Ullah principle (R(Ullah) v Special Adjudicator [2004] UKHL 26; [2004] 2 AC 323). The Court of Appeal stated: (a) that the exemption cases before the Strasbourg Court “concerned only partial rights of withdrawal” (see para 84); (b) that “an overview of the European caselaw shows that only qualified exemptions have been found to be in breach of the Convention” (see para 98); and (c) applying the Ullah principle, that the domestic courts should not go further than the Strasbourg Court by finding a breach of A2P1 where there is an automatic exemption (see para 108). 125. I disagree with the Court of Appeal that the exemption cases before the Strasbourg Court “concerned only partial rights of withdrawal.” In Folgerø the exemptions were both an automatic mandatory exemption on request in relation to activities of a clearly religious nature and a partial exemption in relation to other matters. I agree with the Court of Appeal that there is no Strasbourg authority which has found that an automatic exemption was insufficient to bring an imbalance to an acceptable level under A2P1. However, that was because there has been no Strasbourg case, including Folgerø, in which the issue was raised. The issue in Folgerø was whether the partial exemption was sufficient to bring the imbalance to a level acceptable under A2P1. In determining that issue, the Strasbourg Court applied the core principle that the right of exemption must not be capable of placing an undue burden on parents. If the exemption is capable of placing an undue burden on parents, then the rights under A2P1 would be theoretical and illusory rather than practical and effective. Mr McGleenan, on behalf of the Department, accepted, in my view correctly, that the established principle of Convention law as to the practicality and effectiveness of Convention rights must apply to automatic as well as to partial exemptions. There is no reason why all the established principles of Convention law in relation to partial exemptions should not also apply to automatic exemptions. The Court of Appeal’s error in failing to recognise that the same principles apply to automatic and partial exemptions caused the Court of Appeal to fall into error in relation to the application of the Ullah principle. As Lord Reed stated R (AB) v Secretary of State for Justice [2021] UKSC 28; [2022] AC 487, at para 59, “it is not the function of our domestic courts to establish new principles of Convention law.” However, this case does not involve our domestic courts establishing any new principles of Convention law. Mr McGleenan, on behalf of the Department, was unable to identify any new principle as opposed to the application of established principles of Convention law as to the exemption being capable of placing an undue burden on the parents. This appeal does not establish any new principles of Convention law. The Ullah principle is not infringed. Fourthly, the Court of Appeal fell into error by incorrectly imposing, at para 93, a requirement on the parents of JR87 to establish that their apprehensions were “objectively made out” so that, at para 101, they “would have been realised in practice.” In considering whether there is capacity for an undue burden reasonable apprehensions on the part of parents are sufficient. Such apprehensions can include the risks of: (a) stigmatisation of them and/or their child; (b) conflict with the school authorities; and (c) exposure of sensitive areas of their private lives, even in circumstances where there is no requirement “as such” to disclose their religious or philosophical views. The Court of Appeal incorrectly imposed a higher and different standard to the parents’ apprehensions requiring those apprehensions to be objectively justified so that they would have been realised in practice. Fifthly, the Court of Appeal fell into error in departing from the factual finding made by the judge. The judge made a factual finding that “the concerns raised by the parents in relation to exclusion are valid.” It is only in exceptional circumstances that an appellate court should reverse a finding by a trial judge on a question of fact. The Court of Appeal was not justified in departing from the judge’s factual findings by holding, at para 100, that it was not satisfied “that the filing of an exemption” would “result in stigmatisation.” In conclusion, the judge decided that the right to withdraw JR87 from religious education and collective worship was insufficient to prevent a breach of A2P1 read with article 9 ECHR. The Court of Appeal disagreed and allowed the appeal. In arriving at that conclusion, the Court of Appeal fell into several errors. It was bound by the judge’s factual finding that “the concerns raised by the parents in relation to exclusion are valid.” The Court of Appeal ought to have found that exercising the right to withdraw JR87 was capable of placing an undue burden on the parents so that there was a breach of A2P1 read with article 9 ECHR. I would allow G’s appeal and, subject only to the Department’s cross appeal, I would also allow JR87’s appeal. For the purposes of this appeal and absent full argument on these points it is not necessary to decide whether: (a) the Department was also in breach of A2P1 by failing to monitor, inspect and report on the standard of religious education being provided in schools (see paras 28-30 and 108 above); (b) regulation 21(5) of the 1973 Regulations breaches article 9 ECHR by requiring the Board to reveal pupils’ beliefs concerning spiritual matters to the relevant minister on request (see para 72 above); (c) the safeguards in relation to the qualification to the right of access to pupils under article 21(7) of the 1986 Order that “the parents do not object” is sufficient to protect the rights of parents and their children (see para 68 above). The Department submits that the judge erred in failing to separately analyse and determine the claims made by both JR87 and G. The judge granted a declaration that the teaching of religious education under the core syllabus and the arrangements for collective worship in the School breached not only G’s rights but also the rights of JR87. As the Court of Appeal allowed the appeal on other grounds it was unnecessary for it to determine whether the judge was correct to consider the claims of JR87 and G together. However, the Court of Appeal, at para 109, stated that it did not consider that the trial judge erred by considering the applicants’ claims together. The second sentence of A2P1 places an obligation on the State to “respect the right of parents.” Mr McGleenan, on behalf of the Department submitted that the claim of JR87 ought to have been dismissed as “the right in the second sentence of A2P1 relates only to parents’ rights as is evident from the text of the article and the relevant jurisprudence.” This issue was addressed in Papageorgiou (see para 114 above) and in Lautsi at para 78. It was addressed in most detail in Perovy v Russia (Application No 47429/09) [2021] ELR 298 (“Perovy”). 135. In Perovy the first two applicants were the parents of the third applicant, their son, who was a seven-year-old first year pupil at the time of the relevant events. All three applicants alleged a violation of their right under article 9 ECHR to freedom of religion. The first and second applicants also complained that their right under A2P1 to ensure their son’s education in conformity with their own religious convictions had not been respected. The Court observed that whilst the third applicant had made a complaint under article 9 ECHR in his own name, he had made no complaint under the first sentence of A2P1. The Court stated that: … The Court has previously accepted complaints under [the first sentence of A2P1], without reservations ratione personae, from persons who experienced an alleged violation of article 9 of the Convention before reaching the age of majority, thus acknowledging the position of children as holders of the right to freedom of religion. In this connection it must be highlighted that the first sentence of article 2 of Protocol No 1, read in the light of the second sentence of that provision and article 9 of the Convention, guarantees schoolchildren the right to education in a form which respects their right to believe or not to believe ...” The Court continued by stating that as the third applicant had made no complaint under the first sentence of A2P1 it would: “examine the third applicant’s complaint under article 9 of the Convention. However, any such examination will be guided by the findings in respect of the first and second applicants’ complaints under the second sentence of article 2 of Protocol No 1.” I consider that the jurisprudence is clear: (a) both parents and children are holders of the right to freedom of religion under article 9 ECHR; (b) the rights guaranteed by A2P1 when read with article 9 ECHR are not limited to parental rights; (c) the first sentence of A2P1 must be read in the light of the second sentence of that provision and article 9 ECHR; (d) when read in that way, the first sentence of A2P1 guarantees schoolchildren the right to education in a form which respects their right to believe or not to believe (the child in Perovy did not need to restrict his complaint to article 9 ECHR); (e) the rights of parents and schoolchildren under A2P1 read with article 9 ECHR must be separately analysed; and (f) ordinarily the outcome in respect of a complaint by a schoolchild under the first sentence of A2P1 will be guided by the findings in respect of the parents’ complaints under the second sentence of A2P1. In relation to JR87’s rights, the judge was correct to be guided by the finding of a breach of G’s rights under the second sentence of A2P1 and was correct to find a breach of A2P1 read with article 9 ECHR in relation to both JR87 and G. I would allow JR87’s and G’s appeal. I would dismiss the Department’s cross appeal. I would reinstate the declaration made by the judge.
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November 19, 2025 at 10:53 AM
On TNA: From TNA: Simkova v Secretary of State for Work and Pensions
Simkova v Secretary of State for Work and Pensions - Find Case Law - The National Archives
LORD LLOYD-JONES AND LADY ROSE (with whom Lord Sales, Lord Hamblen and Lord Richards agree): Introduction This case concerns the characterisation of the child element of universal credit (“UC”) payable in the United Kingdom pursuant to the Welfare Reform Act 2012 (“the WRA 2012”) for the purposes of Regulation (EC) No 883/2004 of the European Parliament and of the Council of 29 April 2004 on the coordination of social security systems (“the Coordination Regulation”) as amended by Regulation (EC) No 988/2009 of the European Parliament and of the Council of 16 September 2009. This remains a current issue, notwithstanding the withdrawal of the United Kingdom from the European Union, by virtue of the Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Authority (2019/C 384I/01) (“the Withdrawal Agreement”) as given effect in domestic law by the European Union (Withdrawal) Act 2018 as amended (“the EU(W)A 2018”). Ms Michaela Simkova, a Slovakian national resident in England with a permanent right to reside in the United Kingdom, seeks to establish entitlement to the child element of UC in respect of her son, Markus, who at the relevant times resided with his grandparents in Slovakia. It is common ground between the parties that under the applicable provisions of domestic law Ms Simkova does not have an entitlement to the child element. Section 10(1) of the WRA 2012 provides that the calculation of an award of UC is to include an amount for each child or qualifying young person for whom a claimant is responsible. Regulation 4(2) of the Universal Credit Regulations 2013 (SI 2013/376) (“the UC Regulations 2013”) provides that a person is responsible for a child or qualifying young person who normally lives with them. Because Markus lived in Slovakia at the relevant times Ms Simkova cannot claim the UC child element even though she otherwise qualified for the UC standard allowance and even though she paid for his upkeep. Ms Simkova claims, however, that she has a directly effective right under the Coordination Regulation as a result of which her son must be deemed to live with her and regulation 4(2) overridden. She claims that the child element is a family benefit within the meaning of article 3(1)(j) of the Coordination Regulation. On that basis she relies on article 7 of the Coordination Regulation, which provides that cash benefits shall not be withdrawn on account of the fact that the beneficiary or members of her family reside in another Member State, and on article 67 which deems her son to be living with her. The Secretary of State for Work and Pensions (“SSWP”) maintains that the child element of UC is not a family benefit within the meaning of article 3(1)(j) of the Coordination Regulation and that, accordingly, Ms Simkova has no entitlement to the child element. Factual background On 26 July 2017, Ms Simkova made an application for UC, including a claim for housing costs element and a claim for child element in respect of her son, Markus. (Markus was born on 30 September 2002. He began High School (non-advanced) education in Slovakia on 1 September 2018 and completed it in June 2022.) On 1 September 2017 the SSWP decided that Ms Simkova was entitled to UC from 26 July 2017. She was paid the standard allowance and housing costs element with the child element still to be determined. On 8 September 2017 the SSWP accepted that she had a permanent right to reside in the United Kingdom. On 25 September 2017 the SSWP, who was aware that Markus was being schooled in Slovakia, decided to award the child element and arrears of child element were paid to Ms Simkova. On 17 October 2019, however, the SSWP revised the decision that Ms Simkova was entitled to the child element. This is the decision challenged in these proceedings. 7. On 31 January 2020, following mandatory reconsideration, the SSWP confirmed that Ms Simkova was not entitled to the child element and had not been entitled to the child element as from 26 July 2017. Ms Simkova appealed to the First-tier Tribunal which on 19 August 2020 allowed the appeal and awarded the child element from 12 September 2017. The SSWP appealed to the Upper Tribunal. In her response to the appeal, Ms Simkova accepted that the First-tier Tribunal misapplied the UC Regulations 2013 but submitted that the child element was a family benefit for the purposes of the Coordination Regulation with the result that she was entitled to the child element for different reasons. On 21 February 2023 the Upper Tribunal allowed the SSWP’s appeal and remade the First-tier Tribunal’s decision, with the result that from 26 July 2017 entitlement to UC was to be calculated without the child element. Ms Simkova appealed to the Court of Appeal (Lewison, Green and Laing LJJ) which on 26 April 2024 dismissed the appeal. On 9 October 2024 the Supreme Court (Lord Reed, Lord Leggatt and Lady Rose) granted permission to appeal to the Supreme Court. Statutory provisions Coordination Regulation (EC) No 883/2004 8. “Whereas: The rules for coordination of national social security systems fall within the framework of free movement of persons and should contribute towards improving their standard of living and conditions of employment. It is necessary to respect the special characteristics of national social security legislation and to draw up only a system of coordination. Due to the major differences existing between national legislation in terms of the persons covered, it is preferable to lay down the principle that this Regulation is to apply to nationals of a Member State, stateless persons and refugees resident in the territory of a Member State who are or have been subject to the social security legislation of one or more Member States, as well as to the members of their families and to their survivors. The general principle of equal treatment is of particular importance for workers who do not reside in the Member State of their employment, including frontier workers. It is necessary to subject persons moving within the Community to the social security scheme of only one single Member State in order to avoid overlapping of the applicable provisions of national legislation and the complications which could result therefrom. (17a) Once the legislation of a Member State becomes applicable to a person under Title II of this Regulation, the conditions for affiliation and entitlement to benefits should be defined by the legislation of the competent Member State while respecting Community law. (18a) The principle of single applicable legislation is of great importance and should be enhanced. This should not mean, however, that the grant of a benefit alone, in accordance with this Regulation and comprising the payment of insurance contributions or insurance coverage for the beneficiary, renders the legislation of the Member State, whose institution has granted that benefit, the applicable legislation for that person. Article 1 (Definitions) For the purposes of this Regulation: if, under the legislation which is applicable under subparagraphs 1 and 2, a person is considered a member of the family or member of the household only if he/she lives in the same household as the insured person or pensioner, this condition shall be considered satisfied if the person in question is mainly dependent on the insured person or pensioner; Article 2 (Persons covered) This Regulation shall apply to nationals of a Member State, stateless persons and refugees residing in a Member State who are or have been subject to the legislation of one or more Member States, as well as to the members of their families and to their survivors. Article 3 (Matters covered) This Regulation shall apply to all legislation concerning the following branches of social security: Article 4 (Equality of treatment) Unless otherwise provided for by this Regulation, persons to whom this Regulation applies shall enjoy the same benefits and be subject to the same obligations under the legislation of any Member State as the nationals thereof. Article 7 (Waiving of residence rules) Unless otherwise provided for by this Regulation, cash benefits payable under the legislation of one or more Member States or under this Regulation shall not be subject to any reduction, amendment, suspension, withdrawal or confiscation on account of the fact that the beneficiary or the members of his/her family reside in a Member State other than that in which the institution responsible for providing benefits is situated. Article 11 (General rules) Persons to whom this Regulation applies shall be subject to the legislation of a single Member State only. Such legislation shall be determined in accordance with this Title. Article 67 (Members of the family residing in another Member State) A person shall be entitled to family benefits in accordance with the legislation of the competent Member State, including for his/her family members residing in another Member State, as if they were residing in the former Member State. …” Many of the authorities cited in this judgment are decisions on an earlier Regulation (Regulation No 1408/71) which was replaced by the current Coordination Regulation. For present purposes, its provisions may be considered substantially similar to those of the current Coordination Regulation. The Coordination Regulation continues to have effect in the United Kingdom pursuant to the Withdrawal Agreement as implemented by section 7A of the EU(W)A 2018. Welfare Reform Act 2012 11. Universal credit may, subject as follows, be awarded to— An award of universal credit is, subject as follows, calculated by reference to— A claim may be made for universal credit by— A single claimant is entitled to universal credit if the claimant meets— The calculation of an award of universal credit is to include an amount for each child or qualifying young person for whom a claimant is responsible.” Detailed rules and administrative provisions are set out in the UC Regulations 2013 and the Universal Credit, Personal Independence Payment, Jobseeker’s Allowance and Employment and Support Allowance (Claims and Payments) Regulations 2013 (SI 2013/380) (“the Claims and Payments Regulations 2013”). Whether a person is responsible for a child or qualifying young person for the purposes of Part 1 of the Act and these Regulations is determined as follows. Social security benefits and the Coordination Regulation EU law draws a fundamental distinction between social security benefits and social assistance benefits. Social security benefits are subject to the rules set out in the Coordination Regulation. Article 3(1) makes clear that the Coordination Regulation applies to legislation concerning the identified branches of social security. Article 3(5)(a) expressly provides that it shall not apply to social and medical assistance. Social assistance benefits are subject to distinct legislation, in particular Directive 2004/38/EC and Regulation (EU) No 492/2011. In the context of the Coordination Regulation “social assistance” has been given a narrow meaning encompassing a situation where there is an individual assessment of a claimant’s personal needs and requiring a power to take account of circumstances other than those specified in legislation. Hughes v Chief Adjudication Officer, Belfast (Case C-78/91) [1992] CMLR 490 (“Hughes”) at paras 16, 17; De Cuyper v Office national de l’emploi (Case 406/04) [2007] ICR 317; [2006] 3 CMLR 44 (“De Cuyper”) at para 23). 17. The Coordination Regulation contains rules for the coordination of national social security legislation which fall within the framework of free movement of persons (recital 1). As its title suggests, it is a coordinating and not a harmonising measure. The preamble makes this clear. Recital 4 refers to the necessity of respecting the special characteristics of national social security legislation and of drawing up only a system of coordination. Recital 15 states that it is necessary to subject persons moving within the Community to the social security scheme of only one single Member State in order to avoid overlapping of the applicable provisions of national legislation and the complications which could result therefrom. Similarly, recital 17a states that once the legislation of a Member State becomes applicable to a person under the Coordination Regulation, the conditions for affiliation and entitlement to benefits should be defined by the legislation of the competent Member State while respecting Community law. The Coordination Regulation is intended, therefore, to provide conflict of laws rules which determine which Member State is responsible for providing which social security benefits. In Stewart v Secretary of State for Work and Pensions (Case C-503/09) [2012] PTSR 1; [2012] 1 CMLR 13 (at paras 75-77) the CJEU provided the following explanation with reference to the previous regulation: … Regulation 1408/71 does not set up a common scheme of social security, but allows different national social security schemes to exist and its sole objective is to ensure the co-ordination of those schemes: … Thus, according to settled case law, member states retain the power to organise their social security schemes: … Therefore, in the absence of harmonisation at EU level, it is for the legislation of each member state to determine, first the conditions concerning the right or duty to be insured with a social security scheme and, second, the conditions for entitlement to benefits: … In exercising those powers, member states must none the less comply with the law of the European Union and, in particular, with the provisions of the FEU Treaty giving every citizen of the Union the right to move and reside within the territory of the member states: …” The Coordination Regulation embodies the principle of single applicable legislation. This is described in recital 18a as a principle of great importance which should be enhanced. Recital 15 emphasises the necessity that persons moving within the Community should be subject to the social security scheme of only one Member State. Under Title II of the Coordination Regulation and subject to rules in Title III applicable to specific types of social security benefits, the State of applicable legislation is the State to which a person pays any relevant contributions and to which a new claim for benefit is directed. Article 11 in Title II sets out the key rules on applicable legislation. 19. In Tolley v Secretary of State for Work and Pensions (Case C-430/15) [2017] 1 WLR 1261 (“Tolley”) Advocate General H Saugmandsgaard Øe explained (at para 65) the importance of the principle of single application: “The designation, as applicable legislation, of the legislation of a member state (known as the competent state or the state of insurance) means that the social security scheme of that member state will apply to the worker concerned. Where appropriate, that worker will pay social contributions in that state and/or receive benefits there if one of the risks covered by that scheme materialises. In accordance with the principle that a single law is applicable, laid down in article 13(1) of Regulation No 1408/71, every worker is subject to one, and to only one, national legislation in social security matters. …” This explanation was echoed by the CJEU in its judgment in the same case (at paras 57, 58): Regulation No 1408/71 does not set up a common scheme of social security, but allows different national social security schemes to exist and its sole objective is to ensure the co-ordination of those schemes. It thus allows different schemes to continue to exist, creating different claims on different institutions against which the claimant possesses direct rights by virtue either of national law alone or of national law supplemented, where necessary, by EU law: … The provisions of Title II of Regulation No 1408/71, of which article 13 forms part, constitute a complete and uniform system of conflict rules. Those provisions are intended not only to prevent the concurrent application of a number of national legislative systems and the complications which may ensue, but also to ensure that persons covered by Regulation No 1408/71 are not left without social security cover because there is no legislation which is applicable to them: …” Article 4 of the Coordination Regulation precludes Member States from introducing conditions which base entitlement to benefits on the nationality of the claimant; a form of discrimination that has always been anathema in EU law. Conditions based on the residence of the claimant are, however, not subject to the same blanket prohibition as conditions based on nationality but are addressed in more detailed provisions including those set out in Title III. As the SSWP explains in her written case, where a claim for a social security benefit is made and the Coordination Regulation applies, a Member State must first determine whether it is the State of applicable legislation under the rules in Title II. Secondly, if it is, it must determine whether another State is competent for the benefit in question, which will depend on the specific rules applicable to the type of benefit concerned in Title III. Where the State is the competent State, either because its legislation is applicable, or because it is competent under the rules in Title III, it must then decide whether there are any other relevant rules to be applied such as article 4 (equality of treatment), article 5 (equal treatment of benefits, income, facts or events) or article 6 (aggregation of periods), or in the specific rules relevant to the type of benefit in question. In the present case it is common ground that, if the Coordination Regulation applies, the applicable law for Ms Simkova under article 11 of the Coordination Regulation would be UK law and she would qualify to receive the child element of UC by virtue of article 67 of the Coordination Regulation. The question is, therefore, whether the child element of UC is a family benefit within article 3(1)(j) of the Coordination Regulation so as to bring that Regulation into play. 23. The characterisation of a benefit for the purposes of the Coordination Regulation is a question of EU law. However, the applicable principles of EU law make clear that the exercise must be conducted by reference to the substantive characteristics of the benefit in national law. This reflects recital 4 in the preamble to the Regulation by showing respect for the special characteristics of national social security legislation. In Hughes the CJEU stated the principle as follows (at para 14): “The Court has repeatedly held that the distinction between benefits excluded from the scope of Regulation 1408/71 and those which fall within its scope is based essentially on the constituent elements of the particular benefit, in particular its purposes and the conditions on which it is granted, and not on whether a benefit is classified as a social security benefit by national legislation.” (See also Hoeckx v Centre Public d’Aide Sociale de Kalmthout (Case 249/83) [1987] 3 CMLR 638 (“Hoeckx”) at para 11.) In De Cuyper (para 25) the CJEU expressed the matter in the following terms: “The Court has already held that, in order to be categorised as social-security benefits, benefits must be regarded, irrespective of the characteristics peculiar to different national legal systems, as being of the same kind when their purpose and object as well as the basis on which they are calculated and the conditions for granting them are identical. On the other hand, characteristics which are purely formal must not be considered relevant criteria for the classification of the benefits …” (See also para 28 of Caisse nationale des prestations familiales v Lachheb (Case C-177/12) ECLI:EU:C:2013:689 discussed further below). The test of whether a benefit is a coordinated social security benefit within article 3 of the Coordination Regulation is well established. According to the CJEU in Caisse d’Assurance Retraite et de la Sante au Travail d’Alsace-Moselle v SJ (Case C-769/18) ECLI:EU:C:2020:203, at para 27, two conditions must be satisfied: “… [A] benefit may be regarded as a ‘social security benefit’ when two conditions are satisfied, namely (i) in so far as it is granted to recipients, without any individual and discretionary assessment of their personal needs, on the basis of a legally defined position and (ii) provided that it relates to one of the risks expressly listed in Article 3(1) of Regulation No 883/2004 …” First, the benefit must be available on the basis of objective criteria without an individualised assessment of need. If it is a discretionary award based on an individual assessment of need it constitutes social assistance and falls outside the ambit of the Coordination Regulation. In the present appeal it is common ground that both UC considered as a whole and the child element of UC considered in isolation meet this first condition. Secondly, Ms Julia Smyth KC, who made the submissions at the hearing on behalf of the SSWP, was correct in our view to contend that the benefit must be directed at one and only one of the risks listed in article 3(1) of the Coordination Regulation. This is necessary because the risks identified in article 3(1) all have different regimes. It may therefore be necessary to identify the appropriate risk where there is more than one contender. 28. In Hoeckx the CJEU expressed this condition in the following terms (at para 12): “Although it is possible that because of the classes of persons to which they apply, their objectives and the detailed rules for their application, certain laws may simultaneously contain elements belonging to both the categories mentioned [ie social security and social assistance] and thus defy any general classification, it must be stated that in order to fall within the field of social security covered by Regulation 1408/71 the legislation at issue must in any event satisfy, in particular, the condition of covering one of the risks specified in Article 4(1) of the regulation [Article 3(1) of Regulation 883/2004]. It follows that the list of risks contained in that paragraph is exhaustive and that as a result a branch of social security not mentioned in the list does not fall within that category even if it confers upon individuals a legally defined position entitling them to benefits.” 29. In De Cuyper a Grand Chamber of the CJEU had to decide whether unemployment allowances payable by Belgium constituted an unemployment benefit falling within the scope of the Coordination Regulation, a pre-retirement benefit or a sui generis benefit. In its judgment the Court addressed both whether a benefit fell within the scope of the Coordination Regulation and how it should be characterised for the purposes of the Regulation. The Court considered that regard should be had to the purpose and object of the benefit. It went on to observe (at para 27): “As regards its purpose, that allowance is aimed at enabling the workers concerned to provide for themselves following an involuntary loss of employment when they still have the capacity for work. In order to distinguish between different categories of social security benefits, ‘the risk covered’ by each benefit must also be taken into consideration. Thus an unemployment benefit covers the risk associated with the loss of revenue suffered by a worker following the loss of his employment although he is still able to work. A benefit granted if that risk materialises, namely loss of employment, and which is no longer payable if that situation ceases to exist as a result of the claimant’s engaging in paid employment must be regarded as constituting an unemployment benefit.” 30. In Tolley one of the questions referred by this court to the CJEU was whether a benefit such as the care component of disability living allowance (“DLA”) was a sickness benefit or an invalidity benefit for the purposes of Regulation No 1408/71. Both risks were listed in article 4(1) of that Regulation as they are in article 3(1) of the current Coordination Regulation. In approaching this question the CJEU (at para 45) cited para 27 of the judgment of the Grand Chamber of the CJEU in De Cuyper and referred (at para 46) to previous decisions of the CJEU to the effect that benefits which are granted objectively on the basis of a statutorily defined position and are intended to improve the state of health and quality of life of persons reliant on care have as their essential purpose supplementing sickness insurance benefits and must be regarded as sickness benefits for this purpose. It also referred to the consideration of DLA in its decision in Commission of the European Communities v Parliament and Council of the European Union (Case C-299/05) [2007] ECR I-8695 where it held that even though that allowance did not have the supplementing of sickness insurance benefits as its essential purpose, it had to be regarded, except so far as concerned its mobility component, as a sickness benefit for the purposes of Regulation No 1408/71. On this basis it concluded that the benefit in issue in the national proceedings was a sickness benefit for the purposes of that regulation. (See paras 47-55.) In our view Hoeckx remains an authoritative statement of the law on the second condition. Contrary to the submission of Mr Thomas de la Mare KC on behalf of Ms Simkova, we do not consider that its authority is diminished by either Newton v Chief Adjudication Officer (Case C-356/89) [1992] 1 CMLR 149 (“Newton”) or Hughes. Newton concerned mobility allowance. The CJEU explained (at paras 14 and 15) that this benefit had a two-fold function. It sought to ensure a minimum level of income for disabled persons who are entirely outside the social security system while also providing supplementary income for recipients of social security benefits who suffer from physical disablement affecting their mobility. The Court considered that in the case of an employed or self-employed person who by reason of his previous occupational activity was already covered by the social security system of the State whose legislation is invoked, that legislation must be deemed to fall within the field of social security, although in the case of other categories of beneficiaries it may be deemed not to do so. Hughes concerned family credit. The United Kingdom argued that family credit did not fall within any of the branches of social security listed in article 4(1) of Regulation 1408/71 because its main purpose was to provide supplementary income for poorly paid workers with a family who would have a higher income if they were unemployed, in order to encourage them to continue working. Once again, the CJEU considered (at para 19) that family credit performed a dual function. First it encouraged workers who were poorly paid to continue working. Secondly, it was intended to meet family expenses. The Court held (at para 20) that it was by virtue of that second function that a benefit such as family credit fell within the category of family benefits within Regulation 1408/71. Neither decision casts any doubt on the second condition for qualification as a social security benefit as formulated in Hoeckx. In both cases that condition had been satisfied by the benefit in question and the CJEU was concerned with the distinct and logically subsequent question as to how the benefit should be characterised where it also performed another function. The answer given by the Court was that in the circumstances of each case it should be treated presumptively as falling within the appropriate head of social security benefit within the Coordination Regulation. We also note that Hoeckx continues to be cited by the CJEU as authoritative. (See, for example, Ministre de l’Action et des Comptes Publics v Dreyer (Case C-372/18) ECLI:EU:C:2019:206 at para 32.) 35. Finally in this regard, it should be noted that, following the decision of the CJEU in Newton, Regulation 1408/71 was amended to provide for an intermediate category of benefits, special non-contributory cash benefits (“SNCBs”) which have characteristics of both social security legislation referred to in article 3(1) and of social assistance. This provision is now contained in article 70 of the current Coordination Regulation. The CJEU’s case law on SNCBs is considered further below. Neither party has suggested that UC or any element in it is an SNCB. At this point, it is sufficient to state that it allows Member States to declare certain allowances as SNCBs by listing them in what is now Annex X of the current Coordination Regulation (formerly Annex IIa of Regulation 1408/71). Listing of a benefit is permitted if a benefit provides supplementary, substitute or ancillary cover against the risks covered by the branches of social security referred to in article 3(1) and also guarantees minimum subsistence income having regard to the economic and social situation in the Member State concerned. SNCBs resemble social security in that they are coordinated but resemble social assistance in that they are not exportable. One advantage of such a listing from the point of view of a Member State is that Title III of the Coordination Regulation does not apply to an SNCB which can be subject to a residency test for eligibility. The United Kingdom has not listed UC or any component of it in Annex X. SNCBs are not directly relevant to the issues in this appeal. Against this background we turn to consider the nature of UC. UC was introduced by the WRA 2012 which effected a radical reform of the benefits system. Section 1(1) provides that a benefit known as universal credit is payable in accordance with Part 1 of the Act. Under section 1(3) an award of UC is calculated by reference to (a) a standard allowance, (b) an amount for responsibility for children or young persons, (c) an amount for housing, and (d) amounts for other particular needs or circumstances. UC is, therefore, a single benefit comprising a standard allowance payable to all who are eligible to which may be added further amounts, depending on the circumstances of the particular household. A claim has to be made for UC. It is not possible to make a claim for any of the additional amounts in isolation. The unitary nature of UC is readily apparent. 38. The operation of UC was described by Andrews LJ in R (Salvato) v Secretary of State for Work and Pensions [2021] EWCA Civ 1482; [2022] PTSR 366 which account we gratefully adopt: “3. The amount of UC received by a claimant will depend on a number of factors which will vary from case to case, depending on individual circumstances. UC is a single payment which comprises a standard allowance (section 9 of the 2012 Act), plus (where applicable) various other elements, such as an amount in respect of responsibility for children (section 10); an amount in respect of housing costs (section 11); and amounts for ‘other particular needs or circumstances’ (section 12), which include a need for payment of childcare costs whilst a single parent or both parents are at work. UC is not a full indemnity. If the claimant is working, it operates as a supplement to their earnings. If the claimant's earnings increase, the amount of UC will be reduced, and vice versa. It is designed to operate flexibly to meet the wide variety of needs and circumstances of those who claim it, including claimants whose earnings fluctuate, and can be adjusted to meet changes in those circumstances as and when they arise. Payment of UC is made in arrears on a monthly basis, in the same way as a monthly salary would usually be paid. It will normally be made within seven days of the last day of the relevant monthly assessment period, which will be fixed by reference to the date on which the individual first makes a claim. That approach applies irrespective of whether the claimant is in or out of work, or moves between the two, and whether his or her earnings are from employment, self-employment, or both. The calculation of entitlement and payment each month creates certainty about what will be received and when. This encourages the recipient to budget on a monthly basis, and is seen as a means of fostering their independence. The system is designed around the core principle of using monthly assessment periods and making a single monthly payment in arrears, after taking into account the claimant’s actual earnings received in that period. This means that different elements of UC that feed into the overall calculation of what is due to a recipient cannot be separated out or paid before the end of the assessment period without upsetting the system and reintroducing the complexity and scope for error that it was designed to overcome.” Section 10(1) of the WRA 2012 provides that the calculation of an award of UC is to include an amount for each child or qualifying young person for whom the claimant is responsible. Regulation 4 of the UC Regulations 2013 provides that a person is responsible for a child or qualifying young person who normally lives with them. If a UC claimant is responsible for a child this has a number of further statutory consequences including the following: It is relevant to establishing how many rooms are included in the calculation of housing costs. (Paragraphs 9(1) and 10(1) of Schedule 4 to the UC Regulations 2013). It affects eligibility for the work allowance, ie the amount an individual can earn before their award starts to reduce. (Regulation 22 of the UC Regulations 2013). It may affect work conditionality requirements. (Sections 19-21 of the WRA 2012). In the present proceedings it is common ground between the parties that UC considered as a whole cannot be a coordinated social security benefit within article 3(1) of the Coordination Regulation. It is clearly an anti-poverty measure. It addresses a wide range of needs, some of which are not aimed at risks within the Coordination Regulation. Its overall purpose is the relief of poverty and the provision of a minimum level of income for those who do not have the resources to meet their own needs. It seems that the appellant accepts that. In CG v Department for Communities in Northern Ireland (Case C-709/20) [2021] 1 WLR 5919 (“CG (Northern Ireland)”), a Grand Chamber of the CJEU addressed the nature of UC in the following terms: It is apparent from the information available to the court that the benefit claimed by CG, namely universal credit, is a cash subsistence benefit under a welfare system funded by taxation, the grant of which is means tested. Its objective is to replace other social benefits, such as income-based jobseeker’s allowance, the income-related employment and support allowance, income support, working tax credit, child tax credit and housing benefit.” It appears therefore that Ms Simkova can only succeed in her present claim to receive the child element of UC if EU law requires this court to address the child element as a separate benefit. If that is the correct approach, it is clearly arguable that the child element considered in isolation is a family benefit within article 3(1)(j) of the Coordination Regulation. Despite the fact that it is means tested and not given to everyone regardless of their income and so might be regarded as in part a measure to alleviate poverty, the CJEU case law says that that conditionality is not sufficient to turn it into social assistance within the meaning of article 3(5)(a) of the Coordination Regulation and so take it outside the scope of article 3. It is therefore necessary to address the grounds on which Ms Simkova maintains that the child element should be considered as a free-standing benefit. Analogy with Child Tax Credit The first major plank of the appellant’s submission is that the child element of UC replaced child tax credit (“CTC”). CTC was (and still is) regarded as a family benefit within the Coordination Regulation. That is the case even though, as Mr de la Mare points out, many or even most of the families who received CTC were also on income support and other benefits which clearly constituted social assistance. (We note in passing that child benefit also constituted a family benefit within the Coordination Regulation. So much is clear from European Commission v United Kingdom (Case C-308/14) [2016] 1 WLR 5049 (“Commission v UK: CTC”).) 46. In his oral submissions on behalf of the appellant Mr Jack Castle drew attention to the fact that CTC shared many characteristics with the child element of UC and was characterised as a social security benefit for the purposes of the Coordination Regulation. He submitted that the child element of UC should be treated in the same way. However, the short answer to this submission is that CTC was a free-standing benefit. By contrast, it is clear from the scheme and detailed provisions of the WRA 2012 that the child element of UC is not a free-standing, independent benefit. It is deeply integrated into a generalised, composite benefits scheme and it is UC which constitutes the benefit which must be characterised for the purposes of the Coordination Regulation. Different considerations might apply if the appellant were submitting that there was something abusive about the treatment of the child element as a part of UC. However, quite rightly, no such suggestion is made. On the contrary, it is clear that the integration of the child element into UC is a matter of substance and not of presentation. Autonomous EU concepts and the judgment in Lachheb The appellant’s second submission followed on from the first. Mr de la Mare stressed that the terms used in the Coordination Regulation are autonomous EU concepts that do not depend on the labels attached to them by the Member State’s domestic legislation. The AIRE Centre which intervened in support of the appellant also emphasised this point. They argued that the Court of Appeal’s approach treats the formal structure of UC in domestic law as dictating the applicability of the protection given by the Coordination Regulation. This effectively removes the protections given to those who exercise the right of free movement which the Regulation is designed to facilitate. 48. The appellant relies in particular on the CJEU’s decision in Caisse national des prestations familiales v Lachheb (Case C-177/12) ECLI:EU:C:2013:689 (“Lachheb”). Mr and Mrs Lachheb were resident in France, one of them working in Luxembourg and one in France. The case concerned the calculation of a benefit known as a “child bonus” in determining the value of the payments which the Lachhebs would be entitled to receive from the Luxembourg State. The relevant Luxembourg Law of 21 December 2007 provided, broadly, for a child bonus to take the form of a tax rebate to be allowed for every child living with its parents, if the parents were entitled to family allowances. The Lachhebs were entitled to the payment of a “differential supplement” to reflect the difference in benefits available to Mr Lachheb because he worked in Luxembourg compared with the benefits payable to them in France where he resided. The question was whether the child bonus payable under Luxembourg law should be taken into account when calculating that differential. The detailed implementation of the child bonus law was governed by a Grand-Ducal Regulation and the referring court considered that the correct treatment of the child bonus under the relevant Luxembourg law turned on whether the child bonus fell to be classified as a family benefit within the meaning of article 1(u)(i) and article 4(1)(h) of Regulation 1408/71 (corresponding to article 1(z) and article 3(1)(j) of the Coordination Regulation respectively). 50. The CJEU said at para 28 that the distinction between benefits within and outside the scope of Regulation 1408/71 was “based essentially on the constituent elements of each particular benefit, in particular its purposes and the conditions on which it is granted, and not on whether a benefit is classified as a social security benefit by national legislation”. Further, the Court has made it clear “that characteristics which are purely formal must not be considered relevant criteria for the classification of benefits (…). Consequently, the fact that a benefit is governed by national tax law is not conclusive for the purpose of evaluating its constituent elements”. It was necessary therefore to evaluate whether the child bonus was a “social security benefit”. The Court reiterated that the method by which the benefit is financed is immaterial as is the legal mechanism by which it is implemented. The Court held that the child bonus was a family benefit because it represented a public contribution to a family’s budget to alleviate the financial burdens involved in the maintenance of children: para 36. The fact that it had its origin in a tax reduction had no bearing on its classification. Mr de la Mare made two submissions based on the Lachheb judgment. The first, which we fully accept, is that a Member State cannot direct the application of the Coordination Regulation simply by labelling a benefit so that it appears either to fall within or outside one of the categories in article 3(1)(a) to (j) of the Coordination Regulation. That much is clear from the CJEU’s judgments both before and after Lachheb: see for example Offermanns (Case C-85/99) ECLI:EU:C:2001:166; [2001] ECR I-2285, para 37 and OD Istituto Nazionale della Previdenza Sociale (INPS) (Case C-350/20) [2022] 1 CMLR 32, para 52. Further, the mechanism by which the sums are paid to the claimant makes no difference. The Luxembourg child bonus did not cease to be a “benefit” because it was administered and paid through the tax system. His second submission on the significance of Lachheb was that the CJEU’s approach to characterising the child bonus for the purposes of article 3 demonstrates that the CJEU did not conclude that the child bonus was a family benefit simply because it was part and parcel of the underlying family allowance awarded to Luxembourg nationals. It appears to have been uncontentious that the underlying family allowance fell within article 3 as a family benefit. It would have been a simple matter, he submitted, for the CJEU to say that the child bonus, as an element of that family allowance, must also be a family benefit covered by the Regulation. But the CJEU did not treat the matter as that straightforward. Instead, it examined the nature of the child bonus itself as a discrete benefit. That shows, Mr de la Mare submitted, that this court should look at the child element of UC as a discrete benefit and assess its classification separate from the overall classification of UC. We do not agree that any such principle can be derived from Lachheb. First, it is not at all clear from the Luxembourg law described in paras 16 onwards of the judgment that the child bonus was a component of the family allowance in the same way that the child element is a component of UC. The child bonus was introduced in separate legislation. It is true that entitlement to family allowance was a precondition of the award of the child bonus and it was paid to the person to whom the family allowance was paid for that child. But the questions referred by the Cour de cassation set out at para 25 of the judgment do not raise the issue of whether the characterisation of the child bonus followed that of the family allowance in those circumstances. It simply asked whether the child bonus was a family benefit or not, looked at on its own and the CJEU looked at child bonus on its own and concluded that it was. The fact that a further investigation of the relationship between the family allowance and the child bonus may have established a factual linkage that could have provided a short cut or different route to arriving at the same result does not assist Ms Simkova. Lachheb is not authority for the proposition that one can ignore the structure of the benefit in domestic legislation or the way it is administered. As we have already explained, the Coordination Regulation is a coordinating measure, not a harmonising measure and the Member States retain a large degree of discretion as to how generous their benefit system will be and to whom benefits will be awarded, provided that there is no discrimination on the grounds of nationality. Lachheb is an illustration of the application of well established principles which identify when a payment is or is not a social security benefit and a family benefit. Finally, as regards his argument that the CJEU has treated different components of a single benefit as being open to separate characterisation, Mr de la Mare relied on a comment in a footnote of the Opinion of Advocate General de la Tour in CG (Northern Ireland). That was a preliminary reference in proceedings brought by CG, an EU migrant living in Northern Ireland with limited leave to remain who challenged the rejection of her claim to UC. The case concerned the application of the Citizens Directive, Directive 2004/38/EC rather than the application of the Coordination Regulation. At para 25 of his Opinion, the Advocate General described UC as a social protection scheme funded by taxation and subject to conditions based on income. He went on: “its objective is to replace several other social benefits which have ceased to exist (or are still in force), like the Jobseeker’s Allowance and Employment and Support Allowance, Income Support, Working Tax Credit, Child Tax Credit and Housing Benefit.” The Advocate General referred to the Explanatory Memorandum published by the UK Government to accompany the Universal Credit (Northern Ireland) Regulations 2016 (S.R. 2016 No. 216) as support for his comment. Later, at para 42 of his Opinion, he said that it was common ground that lack of resources formed the basis of CG’s claim for UC for herself and her children. In the footnote to that passage, he noted that the expression “universal credit” served “to designate a variety of allowances, some of which may be governed by special rules of EU law” and he referred, by way of illustration to Commission v UK: CTC. That was the case in which the CJEU held that child benefit and CTC in the United Kingdom were social security benefits within article 3(1)(j) and article 1(z) of the Coordination Regulation: see para 59 as regards CTC. The CJEU’s judgment in the CG (Northern Ireland) case repeated at para 70 the Advocate General’s list of benefits that it was the “objective” of UC to replace but did not comment further on the nature of UC itself. With all due respect to the Advocate General, if his footnote was intended to suggest that some elements of UC might be governed by different EU rules from others, there is no basis for that suggestion. It was not an issue that arose in CG (Northern Ireland) and Commission v UK: CTC is not authority for any such proposition. In our judgment, there is no authority to support the submission that different elements of a composite benefit must be examined separately and may fall within different categories in article 3 of the Coordination Regulation. An emerging doctrine of severance Mr de la Mare’s second line of argument is that one can discern from the CJEU’s case law an emerging doctrine of severance in which different elements within a single benefit are to be treated as separate for the purpose of applying the Coordination Regulation. 62. As to this point, we note first that Newton and Hughes provide no support for an emerging principle of severance. Newton, referred to earlier, concerned a Briton who became severely disabled whilst working in France and, on return to Britain, was granted mobility allowance. That was withdrawn when he returned to reside in France. The question was whether the mobility allowance was an invalidity benefit (in which case it could not be withdrawn because of his non-residence) or social assistance (in which case it was not covered by the Regulation and so could be withdrawn when the residence requirement was no longer met). The Court held that the allowance had links with both those categories of schemes (para 12). The allowance had a two-fold function depending on whether or not the claimant was an employed or self-employed person who by reason of his previous occupational activity is already covered by the social security system of the State whose legislation is invoked. If, like Mr Newton, he was, then the benefit “must be deemed to fall within the field of social security” but if the person had been subject as an employed or self-employed person exclusively to the legislation of other Member States, it would not. That case did not therefore concern different elements within a single benefit but rather the characterisation of the same benefit as claimed by different classes of people. In Hughes, the claimant lived in Ireland with her husband and children and was refused family credit in Northern Ireland because she was not resident there, although her husband was a UK citizen and worked across the border in Northern Ireland. She maintained that family credit was a social security benefit because Regulation 1408/71 required her to be treated as if she was residing with her husband. The Court acknowledged that family credit performed a dual function namely encouraging poorly paid workers to go on working and also to meet family expenses. It was by virtue of that second function that a benefit fell within the category of family benefit: para 20. Again, that case was concerned with a distinct question remote from the present issue. There is a further line of authority on which Mr de la Mare relies as showing that severance is the necessary and appropriate approach to adopt to a composite benefit like UC. These cases arose out of the EU Commission’s challenges to amendments made by the EU Parliament and Council to Regulation 1408/71 and the category of benefits referred to as SNCBs: see para 35 above. A provision relating to special non-contributory benefits was first introduced into Regulation 1408/71 by Regulation 1247/92 (OJ 1992 L 136, p 1) but the version under consideration in the cases before the CJEU as regards cash benefits was article 4(2a) of Regulation 1408/71 as revised by Regulation 647/2005 (OJ 2005 L 117, p 1). Article 4(2a) of Regulation 1408/71 provided that the Regulation applied to special non-contributory benefits provided under schemes other than those referred to in article 4(1) where the benefits provided cover for the risks referred to in article 4(1). Article 10a (10)(1) provided that, notwithstanding certain other provisions of the Regulation, persons can only claim SNCBs in their Member State of residence, provided the benefit was listed in Annex IIa. Annex IIa to Regulation 1408/71 therefore contained a list of SNCBs which the Member States wished to list there as being provided exclusively by the Member State of residence. The persons to whom the Regulation applied received the benefits listed exclusively in the territory of the Member State in which they resided and under the legislation of that State. In other words, the benefits listed in the Annex were not exportable but paid only by the authority in the place of residence. Following the judgments of the CJEU in Jauch v Pensionsversicherungsanstalt der Arbeiter (Case C-215/99) [2001] ECR I-1901 and Leclere v Caisse nationale des prestations familiales (Case C-43/99) [2001] ECR I-4265, the Commission had drawn up a revised list of benefits that could be categorised as special non-contributory benefits in light of the Court’s interpretation in those cases of the criteria in article 4(2a). This list omitted various benefits which had previously been in the Annex. However, the Council agreed after representations from the Member States to reinsert some benefits that the Commission had omitted. The European Parliament approved the Council’s position and enacted the revised Annex including the disputed benefits. That led to the adoption of Regulation 647/2005. That Regulation replaced article 4(2a) of Regulation 1408/71 with a new text and replaced the then existing Annex IIa with a new Annex IIa. The Commission challenged the changes that had been made to the content of Annex IIa as substituted by Regulation 647/2005. It challenged in particular the inclusion as SNCBs of several benefits awarded in Finland, Sweden and the United Kingdom. The Commission complained that the benefits did not meet the definition of SNCBs as revised by Regulation 647/2005. The three contentious benefits included on the list by the United Kingdom were disability living allowance (“DLA”), attendance allowance and carer’s allowance. Of those, the benefit relevant to the appellant’s submission in the present case is the DLA. As described earlier, DLA comprises two distinct elements – mobility component and a care component. The CJEU upheld the Commission’s challenge in a case referred to earlier, Commission v European Parliament and Council (Case C-299/05) [2007] ECR I-8695 (“The Annex IIa case”). Advocate General Kokott’s Opinion in the Annex IIa case was handed down on 3 May 2007, after the close of the oral proceedings. As we have explained earlier, she recorded at para 22 of her Opinion that the parties were agreed that the mobility component of DLA was a SNCB and so could remain in Annex IIa. She noted in para 52 that it was clear from earlier case law that Annex IIa did not stand or fall in its entirety and that the individual benefits listed in it could be annulled without having to annul the whole Annex. She regarded the Leclere judgment as a case where the Court had “already acknowledged that the entries in Annex IIa constitute severable elements”. She turned to DLA at para 107 repeating that since “the parties have unanimously recognised the mobility component of disability living allowance as constituting a benefit within the meaning of Article 4(2a)(a)(ii)”, it was only necessary to assess the care component. Her conclusion at para 116 was that the care component was a sickness benefit and so could not be included in the list in Annex IIa. 71. Since the entry under Point (d) of Section Y (United Kingdom) [of Annex IIa] refers to the legislation governing disability living allowance in its entirety, without mentioning the care and mobility components separately, that entry may also be annulled only in its entirety. Although, by so doing, one annuls from Annex IIa a benefit which partially fulfils the requirements for special benefits, that fact cannot lead to the entry being maintained in its entirety. In the interests of legal certainty, Annex IIa to Regulation No 1408/71 must indicate the benefits which fall within Article 4(2a)(c) of the regulation. The principle of legal certainty requires that the persons concerned must be able to ascertain their rights and obligations from the provision. If the entry were not entirely removed, the recipient of the living allowance, with the exception of the mobility component, would not be in a position to know that that benefit is not in fact a special non-contributory benefit which, in accordance with Article 10a, can be claimed only at the place of residence. It would be open to the legislature, however, to reinstate the mobility component of disability living allowance separately into the annex. Until that happens, the mobility component - even though it satisfies the substantive conditions for a special non-contributory benefit - may not be considered as such. Article 4(2a)(c) of Regulation No 1408/71 imposes the additional requirement of listing in Annex IIa to the regulation.” The entry in the Annex could not, she said, “be partially annulled, nor may it be divided in order for the Court to maintain its effects” (para 120). The inclusion of this point in the Advocate General’s Opinion prompted the United Kingdom to seek to reopen the oral procedure on the grounds that it had not had the opportunity to respond to an argument to the effect that the reference to DLA in the list in Annex IIa as amended should be annulled in its entirety, even though it was not in dispute that the “mobility” component of that allowance met the requirements for it to be included (see para 17 of the CJEU’s judgment). That request was refused. In its judgment in the Annex IIa case, the CJEU held that the amending Regulation was vitiated by an error of law in including the benefits challenged by the Commission and those entries “must therefore be annulled”. The Court then addressed the problem that this would create, namely that the “straightforward annulment” of DLA would lead to the United Kingdom being forced to grant the mobility element of DLA to recipients throughout the EU even though it could have been lawfully included in the list as a non-exportable benefit. At this point the CJEU decided to address this problem by delaying the temporal effect of its judgment. The Court held that the issue warranted the Court exercising its power under article 231 EC “provisionally to maintain the effects of inclusion of the DLA as regards solely the ‘mobility’ part so that, within a reasonable period, appropriate measures can be taken to include it in Annex IIa as amended.” Unsurprisingly, this result led to further litigation and a further reference to the CJEU as to what was and what was not an exportable benefit. In Bartlett v Secretary of State for Work and Pensions (Case C-537/09) [2012] PTSR 535 three applicants challenged decisions of the SSWP to withdraw their entitlement to the mobility component of the DLA on the grounds that they no longer satisfied the conditions of presence and domicile in Great Britain. In other words, the SSWP treated the mobility component of DLA as non-exportable even though the conclusion of the CJEU in the Annex IIa case was that the inclusion of DLA in Annex IIa had been annulled. The CJEU recognised that the question referred to it was asking whether “the mobility component of disability living allowance can be regarded as a ‘benefit’ on its own account”: para 20. The Court held that it could. The CJEU thus in effect recognised that the temporal effect mechanism was not the right way to address the problem. Instead, the Court held that one must read the reference to “DLA” in Annex IIa of Regulation 1408/71 as referring just to the mobility component. We do not accept Mr de la Mare’s contention that the CJEU’s judgment in Bartlett establishes that each component of a benefit must be assessed separately to determine whether it is exportable. That submission seeks to draw too broad an inference from the judgment. Bartlett was a pragmatic decision by the Court in response to a very particular difficulty created by the list in Annex IIa. Further, it is clear looking at the different wording of the relevant statutory provisions, that the structure of DLA is different from UC. The mobility component and care component are clearly separate benefits. According to section 71(2) of the Social Security Contributions and Benefits Act 1992 “A person’s entitlement to a disability living allowance may be an entitlement to either component or to both of them”. The two components have separate criteria as set out in section 72 and 73. That is very different from the structure of UC. A claimant cannot just apply for the child element or the amount for housing – the relevance of those elements is that they affect the calculation of the award of UC: see section 10(1) and section 11(1) of the WRA 2012. Finally, we agree with Green LJ’s reasoning in para 31 of his judgment in this case that the policy and structure of the Coordination Regulation militate against the appellant’s arguments about severability. This is not only because the regime is limited to coordinating rather than harmonising social welfare systems but also because, as he put it, “a doctrine of severance, such as is contended for, would be a controversial and complex policy and would, from the perspective of legislative drafting, have been set out comprehensively and explicitly, were it to exist at all.” We agree that severance is not the sort of regulatory mechanism or principle that can be implied into this detailed and complex regime. It may be that the adjustment needed to the child element of UC if it were a family benefit and therefore exportable would be relatively straightforward to identify and administer. But, again as Green LJ said, “If the appellant is correct there is no reason why the doctrine of severance should be limited to family benefits. It would appear to be a principle of general application. And if that were the case then other benefits could equally be disaggregated so as to give rise to stand-alone legal rights.” (para 36) There is no basis in the case law to suggest that that is the basis on which the Coordination Regulation has been interpreted or should be applied. Reference to the CJEU under article 158 of the Withdrawal Agreement The appellant invites the Supreme Court, as a matter of discretion, to refer the issues raised in this appeal to the CJEU pursuant to article 158 of the Withdrawal Agreement as implemented in domestic law by section 7A of the EU(W)A 2018. A reference, it is submitted, would allow the CJEU to decide these issues definitively. 83. The application is opposed by the SSWP both on the ground that there is no power to make a reference and as a matter of discretion. With regard to the power to make a reference the SSWP makes two submissions. First, by virtue of section 12(8)(b) of the Social Security Act 1998, the law which must be applied is the law as it stood on 17 October 2019, the date of the decision of the SSWP which is under review. At that time EU law applied in the United Kingdom pursuant to section 2 of the European Communities Act 1972. The power to refer in article 158 of the Withdrawal Agreement arises only where a question is raised concerning the interpretation of Part Two of the Withdrawal Agreement. In this case no question arises concerning the interpretation of Part Two because it was not in force at the date of the SSWP’s decision. Secondly, article 158 only applies “in a case which commenced at first instance within 8 years from the end of the transition period before a court or tribunal in the United Kingdom” (article 158(1)). That reflects a deliberate choice that references should only be able to be made in proceedings instituted after the end of the transition period because it was only from then that Part Two of the Withdrawal Agreement applied. The present proceedings were instituted on 17 February 2020 which was before the end of the transition period. In light of the clear conclusion to which we have come on the issues in this appeal, we conclude, as a matter of discretion, that it is not necessary to make a reference to the CJEU to enable us to give judgment in this case. The questions raised as to the power to make such a reference will have to await decision by this court on a more appropriate occasion. For these reasons we would dismiss the appeal.
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November 13, 2025 at 8:22 AM
On TNA: From TNA: King Crude Carriers SA and others v Ridgebury November LLC and others
King Crude Carriers SA and others v Ridgebury November LLC and others - Find Case Law - The National Archives
LORD HAMBLEN AND LORD BURROWS (with whom Lord Reed, Lord Hodge and Lord Stephens agree): 1. The focus of this appeal is on the decision of the House of Lords in the Scottish case of Mackay v Dick (1881) 6 App Cas 251. Sitting as a panel of three, there were two leading speeches in the House of Lords in that case. The speech of Lord Blackburn stands as uncontroversial authority for there being an implied duty to co-operate whereby contracting parties are obliged to co-operate to ensure the performance of their bargain. In contrast, the speech of Lord Watson is controversial. That speech indicates that there is a principle (or rule or doctrine) of law that, where a party wrongfully prevents the fulfilment of a condition precedent (ie a pre-condition) to that party’s debt obligation (eg, as in that case, the duty to pay for goods being bought), that condition is treated as being fulfilled. The status of that “deemed fulfilment” principle, or alternative formulations of the same idea such as the condition being “dispensed with” or “deemed waiver” or “quasi-estoppel”, has long been a matter of debate. We shall refer to that principle, or alternative formulations of it, as the “Mackay v Dick principle of law”. This appeal raises the issue of whether there is such a principle in English law (without prejudice to the position in Scotland). Very closely related to that is the question whether, even if there is no such principle of law, contractual interpretation or an implied term achieves much the same outcome. 2. This issue arises in the context of contracts for the sale of three vessels on the Norwegian Saleform 2012, with amendments and additions. The sellers, who are the respondents, are (under each contract respectively) Ridgebury November LLC, Ridgebury Sierra LLC, and Makronissos Special Maritime Enterprise (the “Sellers”). The buyers, who are the appellants, are King Crude Carriers SA, Prince Crude Carriers SA, and Zenon Crude Carriers SA (the “Buyers”). Under the contracts, the Buyers were obliged to lodge a deposit of 10% of the purchase price with a deposit holder. The deposit was required to be paid within three banking days of the deposit holder confirming in writing that the deposit account had been opened. The parties were obliged to provide all necessary documentation for the opening of the account. In breach of contract, the Buyers never did so. The Sellers terminated the three contracts and claimed the deposits in debt, relying on Mackay v Dick. The Buyers contended that the Sellers’ sole remedy was in damages and that no loss had been suffered. The Sellers’ claim succeeded in arbitration, failed on appeal to the Commercial Court, but succeeded before the Court of Appeal. The Buyers now appeal to the Supreme Court arguing, primarily, that there is no Mackay v Dick principle of law in England and Wales and that contractual interpretation or an implied term cannot assist the Sellers in their debt claim in this case. Both parties also seek to raise secondary cases. The Buyers contend that, even if the right to the deposits had accrued, on the true interpretation of the contracts the deposits were not to be forfeited on termination by the Sellers. This requires them to contend that the Court of Appeal’s decision to the contrary in Griffon Shipping LLC v Firodi Shipping Ltd (“The Griffon”) [2013] EWCA Civ 1567; [2014] 1 Lloyd’s Rep 471 was wrong. The Sellers, in their secondary case, contend that the deposits accrued due as a debt when the contracts were made and that the stipulated conditions precedent went only to the time for payment of an already accrued debt. Put another way, it is said that the Buyers’ breach was a failure in the machinery of payment and did not prevent the accrual of the debt. This arguably requires the Sellers to contend that the Court of Appeal’s decision in Damon Compania Naviera SA v Hapag-Lloyd International SA (“The Blankenstein”) [1985] 1 WLR 435 was wrong. It was there held, unanimously on this point, that the right to the deposit did not accrue until after the signing of a Saleform contract. Between 28 and 30 April 2020, the Sellers and the Buyers concluded three Memoranda of Agreement (the “MOAs”) for the sale and purchase of three vessels, the Makronissos, the Ridgebury Astari, and the Ridgebury Alina L. Except for price, the three MOAs were on materially identical terms. 6. The lodging of the deposit was governed by clause 2 of the MOAs which provided (with amendments to the Saleform marked in strikethrough or italicised): As security for the correct fulfilment of this Agreement the Buyers shall lodge a deposit of 10% (ten per cent) or if left blank, 10% (ten per cent) of the Purchase Price (the “Deposit”) in an interest-bearing account for the Parties with the Deposit Holder within three (3) Banking Days after the date that: this Agreement has been signed by the Parties and exchanged in original or by email or telefax; and the Deposit Holder has confirmed in writing to the Parties that the account has been fully opened and ready to receive funds. The Deposit shall be released in accordance with joint written instructions of the Parties. Interest, if any, shall be credited to the Buyers. Any fee charged for holding and releasing the Deposit shall be borne equally by the Parties. The Parties shall provide to the Deposit Holder all necessary documentation to open and maintain the account without delay.” The Deposit Holder was defined as being Holman, Fenwick, Willan Greece (“the Deposit Holder”). 7. The consequences of failing to lodge the deposit were addressed in clause 13 which provided: Should the Deposit not be lodged in accordance with Clause 2 (Deposit), the Sellers have the right to cancel this Agreement, and they shall be entitled to claim compensation for their losses and for all expenses incurred together with interest. Should the Purchase Price not be paid in accordance with Clause 3 (Payment), the Sellers have the right to cancel this Agreement, in which case the Deposit together with interest earned, if any, shall be released to the Sellers. If the Deposit does not cover their loss, the Sellers shall be entitled to claim further compensation for their losses and for all expenses incurred together with interest.” Clause 14 addressed “Sellers’ default” and provided the Buyers with an option to cancel in the event of such default. If the Buyers elected to cancel, “the Deposit together with interest earned, if any, shall be released to them immediately”. Clause 16 was an English law and London arbitration clause. Following the signature of the three MOAs at the end of April 2020, in breach of clause 2 of each MOA, the Buyers failed to provide the Deposit Holder with the necessary documentation to enable the accounts to be opened without delay. For that reason, the Deposit Holder never confirmed that the accounts had been opened and were ready to receive funds, and the Buyers (by reason of their own conduct) could not, and did not, lodge the deposits. In late May and early June 2020, the Sellers purported to cancel (ie to terminate) the MOAs under clause 13 of the Saleform on the grounds that the deposits had fallen due and that the Buyers, having failed to provide the necessary documentation, had not paid those deposits. The Sellers commenced arbitrations under each of the three MOAs claiming, principally, payment of the deposits as debts. The tribunals ordered the determination of preliminary issues, including whether the Buyers were liable “because they cannot rely on their own breach of contract preventing the fulfilment of a condition precedent to payment [of the deposits]”. A majority of each tribunal held that the Buyers were so liable, accepting the Sellers’ case based upon Mackay v Dick. It was accordingly held that the Sellers were entitled to cancel the MOAs and claim payment of the deposits as debts. The tribunals ordered the Buyers to pay US$1.26 million (Makronissos), US$1.94 million (Astari) and US$1.74 million (Alina L). On 21 October 2022 Foxton J gave leave to appeal in relation to the following question of law: “Where an obligation for payment within a contract is contingent upon the fulfilment by one party of a condition, and that party fails in breach of contract to fulfil that condition, is the condition deemed to be fulfilled with the result that the payment sum can be claimed by the other party in debt? Or must the claim be in damages?” By a judgment dated 15 December 2023 ([2023] EWHC 3220 (Comm); [2024] 2 Lloyd’s Rep 115) Dias J allowed the appeal and held that the Sellers’ claim must be in damages. She conducted a careful and wide-ranging review of the authorities relevant to Mackay v Dick before concluding that the doctrine of deemed fulfilment (or deemed waiver) did not form part of English law. She also rejected the Sellers’ alternative case (raised by respondents’ notice) that the opening of the escrow account was not a true condition precedent but only part of the machinery of payment so that, on the Sellers’ argument, the right to the deposit accrued upon signing, or three banking days after signature, of the MOA. It is important to add that one of the facts assumed, for the purposes of the preliminary issues, was that the market price for each of the vessels was higher upon termination than the purchase price under each of the MOAs. On the face of it, therefore, the Sellers suffered no net loss by reason of the Buyers’ breach of contract so that only nominal damages would be recoverable by the Sellers. Hence the importance of the Sellers’ submission that they were entitled to payment of the deposit as a claim in debt. It is trite law that, at least in general, a debt claim entitles the creditor to the payment of the sum promised irrespective of whether the creditor has suffered a loss of bargain or whether any loss could reasonably have been mitigated by the creditor. Dias J granted leave to appeal. By a judgment dated 27 June 2024 ([2024] EWCA Civ 719; [2025] KB 311) the Court of Appeal (Popplewell, Nugee, Falk LJJ) allowed the Sellers’ appeal. The leading judgment was given by Popplewell LJ. Nugee LJ gave a short concurring judgment, agreeing with the reasoning of Popplewell LJ. Falk LJ agreed with both judgments. Popplewell LJ reformulated what was laid down by Lord Watson in Mackay v Dick in the following terms (para 85): “an obligor is not permitted to rely upon the non-fulfilment of a condition precedent to its debt obligation where it has caused such non-fulfilment by its own breach of contract, at least where such condition is not the performance of a principal obligation by the obligee, nor one which it is necessary for the obligee to plead and prove as an ingredient of its cause of action, and save insofar as a contrary intention is sufficiently clearly expressed, or is implicit because the nature of the condition or the circumstances of the case make it inappropriate”. He held that this was supported by “a consistent body of case law” (para 77). He further held that “the legal basis of the rule is that it represents the presumed contractual intention of the parties” and that “the agreement that the obligor will not engage in the conduct which prevents the debt accruing and/or becoming payable implicitly carries with it an agreement that the consequence should be that the debt accrues and is payable” (para 81). He held that this “accords with the approach to the maxim that a party should not be entitled to take advantage of their own wrong in the contractual field more generally” (para 84). By Order dated 28 October 2024, the Supreme Court (Lord Briggs, Lord Hamblen, and Lord Burrows) granted the Buyers permission to appeal. Issue 1, which is the primary issue on the appeal, concerns Mackay v Dick. The parties’ formulation of the issue is as follows: Where a party (i) has an obligation to make a payment when a pre-condition is fulfilled, (ii) has an obligation to fulfil the pre-condition but (iii) in breach of contract, fails to do so, is the pre-condition deemed to be fulfilled—or otherwise treated as inapplicable or dispensed with—so that the other party can claim the payment as a debt? Or must the other party’s claim be for damages only? If the Buyers’ appeal on Issue 1 fails, then Issue 2 is: Whether the Court of Appeal’s decision in The Griffon, which held that under the Saleform the deposit was forfeited when the seller terminated the MOA for non-payment of the deposit, was wrong. This is concerned with the Buyers’ secondary case (see para 3 above). This raises a further and prior issue, Issue 2A, which is: Whether the Supreme Court does not have jurisdiction because Issue 2 is outside the scope of the question of law on which the Buyers obtained leave to appeal from the High Court. If the Buyers’ appeal on Issue 1 succeeds, then Issue 3 is: Whether under the Saleform the right to the deposit accrues when the MOA is concluded with the consequence that the pre-conditions in clause 2 are only pre-conditions to the payability of the deposit, not to its accrual. This is concerned with the Sellers’ secondary case (see para 4 above). This raises a further and prior issue, Issue 3A, which is: Whether Issue 3 is not open to the Sellers because the Commercial Court decided the point in the Buyers’ favour and the Sellers did not obtain leave to appeal or seek to raise it before the Court of Appeal. Issue 1 - Where a party (i) has an obligation to make a payment when a pre-condition is fulfilled, (ii) has an obligation to fulfil the pre-condition but (iii) in breach of contract, fails to do so, is the pre-condition deemed to be fulfilled—or otherwise treated as inapplicable or dispensed with—so that the other party can claim the payment as a debt? Or must the other party’s claim be for damages only? 22. In Mackay v Dick (1881) 6 App Cas 251 the defender buyer, who was involved in the construction of a railway, entered into a contract (by exchange of letters) with the pursuer seller for the manufacture and purchase of a steam-operated digging machine. The buyer wanted the machine for the purpose of excavating a long railway cutting and thereby saving the cost of manual labour. One of the terms of the contract was that the machine should be capable of digging out at least 350 cubic yards of clay in a day and that that capability should be tested at a trial at a specified railway cutting belonging to the buyer. It was agreed that, if the trial was successful, the buyer would keep the machine and pay the agreed price. If the trial failed, the seller would remove the machine. Although the machine was delivered as agreed, the buyer failed to provide a “properly opened-up” face at the railway cutting so that the trial of the machine could not go ahead. It was held by the House of Lords (as a panel of three) that the seller was entitled to the agreed price. 23. Lord Watson’s reasoning was that payment of the price for the machine was conditional on the machine satisfying the buyer’s specified requirements at the trial. But as the trial did not go ahead because of the buyer’s default, that condition should be treated as if it had been fulfilled. He said at p 270: “The [sellers] were only entitled to receive payment of the price of the machine on the condition that it should be tried at a proper working face provided by the [buyer], and that on trial it should excavate a certain amount of clay or other soft substance within a given time. They have been thwarted in the attempt to fulfil that condition by the neglect or refusal of the [buyer] to furnish the means of applying the stipulated test; and their failure being due to his fault, I am of opinion that, as in a question with him, they must be taken to have fulfilled the condition. The passage cited by Lord Shand [in the Inner House] from Bell’s Principles (para 50) to the effect that, ‘If the debtor bound under a certain condition have impeded or prevented the event, it is held as accomplished. If the creditor had done all that he can to fulfil a condition which is incumbent on himself, it is held sufficient implement,’ expresses a doctrine, borrowed from the civil law, which has long been recognised in the law of Scotland, and I think it ought to be applied to the present case.” 24. Lord Blackburn’s reasoning was different. In his view, even though not expressly stated, a contract should generally be construed as including a duty on each party to do what is necessary on its part in order for the contract to be carried out. In modern parlance, there is an implied duty of co-operation. Under the terms of the contract in question, the buyer was bound to keep and pay for the machine that had been delivered unless it subsequently failed the trial; and that subsequent condition (failure of the trial) did not, and could not, occur because of the buyer’s own default (in breach of its duty of co-operation) in not allowing the trial to go ahead. Lord Blackburn said, at pp 263–264: “I think I may safely say, as a general rule, that where in a written contract it appears that both parties have agreed that something shall be done, which cannot effectually be done unless both concur in doing it, the construction of the contract is that each agrees to do all that is necessary to be done on his part for the carrying out of that thing, though there may be no express words to that effect. … the Defender, having had the machine delivered to him, was by his contract to keep it, unless on a fair test according to the contract it failed to do the stipulated quantity of work, in which case he would be entitled to call on the Pursuers to remove it. And by his own default he can now never be in a position to call upon the Pursuers to take back the machine, on the ground that the test had not been satisfied, he must, as far as regards that, keep, and consequently pay for it.” It will be apparent that there are two significant differences between the two main speeches. First, Lord Watson regarded success at the trial as a condition precedent to payment, whereas Lord Blackburn reasoned that there was a condition subsequent that the buyer did not need to pay if the machine failed the trial. Secondly, and most importantly, Lord Watson’s reasoning was that, by reason of the buyer’s default, there was a deemed fulfilment of the condition precedent that the machine must be successful at the trial. In contrast, Lord Blackburn did not rely on any such deemed fulfilment. Rather the condition subsequent (failure of the trial) simply did not occur so that the buyer was bound to pay for the machine. It follows that, because he did not rely on any deemed fulfilment of a condition, there is nothing controversial about Lord Blackburn’s reasoning in Mackay v Dick. Instead, his judgment is well known for its path-breaking recognition of an implied duty of co-operation. In contrast, it was Lord Watson’s reliance on there being a deemed fulfilment of a condition, by reason of the buyer’s default, that is being focused on when one refers to the Mackay v Dick principle of law. Julian Kenny KC, counsel for the Sellers, relies on four main cases (along with obiter dicta in several other cases) as establishing that there is a Mackay v Dick principle of law (in English law). Those four cases are: Hotham v East India Company (1787) 1 TR 639 (“Hotham”); Panamena Europea Navigacion (Cia Ltda) v Frederick Leyland & Co Ltd [1947] AC 428 (“Panamena”); Cory v London Residuary Body 1990 WL 753484 (“Cory”); and Companie Noga d’Importation et d’Exportation SA v Abacha (No 3) [2002] CLC 207 (“Abacha”). 28. In Hotham, which was decided nearly 100 years before Mackay v Dick, Ashhurst J upheld a claim for deadfreight (ie for short loading) by shipowners against charterers. It was a condition of the charterparty that no claim for short tonnage could be made unless it was certified by the charterers’ agents following loading in India. The charterers loaded 903 tons of cargo in India but the shipowners alleged that another 100 tons could, and should, have been loaded. Although requested to do so by the shipowners, the charterers’ agents had failed to provide the certificate of short loading. The charterers argued that the certificate was a condition precedent to the shipowners’ entitlement to deadfreight and that that condition had not been fulfilled so that deadfreight was not payable. Ashhurst J rejected that argument. His reasoning was that, because the shipowners had done all they could to obtain the certificate and that it had not been provided because of the default of the charterers, what the shipowners had done should be regarded as equal to performance ie the condition precedent of a certificate should be deemed to be satisfied. He said at p 645: “It is unnecessary to say whether the clause relative to the certificate be a condition precedent or not; for granting it to be a condition precedent, yet the [shipowners] having taken all proper steps to obtain the certificate, and it being rendered impossible to be performed by the neglect and default of the [charterer’s] agents, which the jury have found to be the case, it is equal to performance. If it were necessary to cite any case for this, which is evident from common sense, it was so held in Rolle’s Abridgment, 445, and many other books.” However, as there was clearly a breach of contract by the charterers in failing to supply the certificate, it may not have been of crucial importance whether the condition precedent was treated as satisfied or not. The shipowners were entitled to damages for that breach by the charterers and it may have been that the measure of damages would have embraced the deadfreight that the owners would have been entitled to had the certificate been provided as it should have been. 30. Panamena concerned a contract to repair a ship during the Second World War. When repaired, the ship was to be chartered to the Ministry of War Transport. By the terms of the contract, the owners (who were the appellants) were to pay the repairers (who were the respondents) for the repairs on an ordinary commercial basis but their obligation to pay was dependent on the issuing of two certificates. The first was certification by the owners’ surveyor to the effect that the work had been satisfactorily carried out; and the second was certification by the Costs Investigation Branch of the Ministry of War Transport (the “CIB”) as to the amount due. Contrary to the terms of the contract, the owners’ surveyor, Dr Telfer, failed to provide a certificate because he wanted information as to whether the repairs had been economically carried out. That was irrelevant to his role which was to certify the quality of the work. The other certificate was provided by the CIB specifying the amount due. The question at issue was whether the repairers were entitled to payment without the certificate of quality having been provided by Dr Telfer. 31. The House of Lords, sitting as a panel of four, held that the repairers were so entitled. Lord Thankerton, with whom Lords Uthwatt, Porter and Du Parcq agreed, reasoned that the conduct of the owners, through Dr Telfer, in illegitimately refusing to provide the certificate as to quality meant that the repairers were absolved from the requirement of obtaining such a certificate. They were entitled to the payment of the amount due without producing that certificate. Lord Thankerton cited the passage from Ashhurst J’s judgment in Hotham set out at para 28 above. He also approved obiter dicta of Blackburn J in Roberts v Bury Improvement Commissioners (1870) LR 5 CP 310, at p 326, that “It is a principle very well established at common law that no person can take advantage of the non-fulfilment of a condition the performance of which has been hindered by himself.” Lord Thankerton continued at pp 435–436: “an illegitimate condition precedent to any consideration of the granting of a certificate was insisted on by Dr Telfer and by the appellants. It is almost unnecessary to cite authority to establish that such conduct on the appellants’ part absolved the respondents from the necessity of obtaining such a certificate, and that the respondents are entitled to recover the amount claimed in the action.” Two points are noteworthy. The first is that, while Mackay v Dick was not mentioned in Lord Thankerton’s speech, his language of the repairers being “absolved” from the necessity of obtaining a surveyor’s certificate (the condition precedent) is similar, albeit not identical, to Lord Watson saying that the performance of the condition precedent was deemed to be satisfied. Secondly, as with Hotham, the owners, through Dr Telfer, were clearly in breach of contract in failing to provide the surveyor’s certificate. The damages to which the repairers were entitled, based on the position they would have been in if the surveyor’s certificate had been provided as it should have been, might have been the same as the amount certified as due by the CIB. In Cory, the Greater London Council (“GLC”) had a contract with the claimant, Cory, for the bulk transfer of domestic waste from refuse transfer stations to landfill disposal sites. On the dissolution of the GLC on 1 April 1986, the contract was transferred to a new body, the Western Riverside Waste Authority (“WRWA”). The question arising was what was to be done about sums claimed by Cory from the GLC, before 1 April 1986, but which were unpaid as at that date. The key legislative provision was paragraph 9(1) of the Local Government Reorganisation (Property etc) Order 1986 (SI 148/1986) by which, “All rights and liabilities in respect of any payment which was due and payable by or to an abolished council before 1 April 1986 shall vest in the appropriate residuary body.” That residuary body was the London Residuary Body (“LRB”). Therefore, if the sums claimed were due and payable before 1 April 1986, the LRB had to pay. If not, the WRWA was liable. In the terms of the contract between Cory and the GLC, Cory was entitled to basic costs but also, under clause 19, for certain cost increases provided they were certified as valid by the GLC’s engineer. It was common ground that there was an implied term that the certificate should be provided by the engineer within a reasonable time. Cory submitted claims under clause 19 relating to the period 25 March to 29 December 1985 and it was common ground that a reasonable time for certifying or refusing to certify these claims had expired before 1 April 1986. If the engineer had issued the appropriate certificate, these increased sums would have become due and payable before 1 April 1986. But the engineer simply did nothing about those claims within a reasonable period. 36. The Court of Appeal (Lord Donaldson MR with whom Nourse and Russell LJJ agreed) held that the LRB was liable because the debt was due and payable before 1 April 1986. The LRB could not rely on its own failure—through its (ie the GLC’s) engineer—to provide the necessary certificate. It was “in effect, estopped” from relying on the absence of the certificate. Lord Donaldson said at p 4: “But for the failure of the Engineer to certify, [the payment] would have been both due and payable before 1 April 1986. If the LRB, as the GLC’s successor in respect of pre-April 1986 liabilities is, in effect, estopped from relying upon the absence of the certificate, it is as if no certificate had ever been required with the result that the payment was due and payable at a time for which the LRB is responsible. The authority for this quasi-estoppel is to be found in a long line of cases of which the best known is perhaps McKay v Dick [(1881) 6 App Cas 251].” He then cited the crucial sentence from Lord Watson’s speech in Mackay v Dick, at p 270, accepting that the condition was deemed to be fulfilled and also Lord Thankerton’s approval in Panamena of Blackburn J’s obiter dictum in Roberts v Bury Improvement Commissioners (set out at para 31 above). Lord Donaldson concluded: “Here the LRB, as ‘executors’ of the GLC, seek to take advantage of the GLC’s failure to issue an Engineer’s certificate by contending both that in the circumstances no payment was due before 1 April 1986 and that, even if any such payment was due before then, it was not payable before that date—debitum in praesenti, solvendum in futuro. If we were to accede to either proposition, we should be allowing the GLC and the LRB standing in its shoes to take advantage of its own wrong.” It is clear that Lord Donaldson was here relying on a fictional estoppel not only because he used the language of “quasi-estoppel” but also because no attempt was made to identify a representation (by the GLC) and reliance (by Cory) that are the minimum necessary requirements for a true estoppel. In any event, there appeared to be no dispute that one or other of the LRB or the WRWA was liable for the debt and that depended on—and the whole dispute was about—when the right to the debt accrued. It is also again noteworthy that the GLC’s refusal to certify was a breach of contract entitling Cory to damages and it might have been that the damages would have been of the same amount as the debt. The final of the four main cases relied on by Mr Kenny is Abacha. The Federal Government of Nigeria (“FGN”) entered into a settlement, for the payment to it of DM300 million, with the “SJ Berwin Defendants” (“SJBDs”), who were individuals and companies associated with General Abacha, the former ruler of Nigeria. The bank accounts of the SJBDs were subject to freezing orders. One of the questions that Rix LJ, sitting as a single judge of the High Court, had to answer was the following. Under the settlement agreement, was the FGN entitled to immediate payment of the DM300 million plus interest or, rather, did that payment only become due, as the SJBDs argued, once their bank accounts had been unfrozen? In answering that, Rix LJ reasoned that, even assuming that the release of the bank accounts was a condition precedent to the obligation to pay the DM300 million, the non-fulfilment of that condition was caused by the breach by the SJBDs of their implied duty of co-operation (for which Rix LJ relied on Lord Blackburn in Mackay v Dick). Applying Lord Watson in Mackay v Dick, Rix LJ held that FGN was entitled to payment of the debt owed (and the relevant interest flowing from that). 41. After a wide-ranging survey of a number of authorities and obiter dicta, including some which expressed scepticism about the Mackay v Dick principle of law, Rix LJ concluded as follows at paras 106–107: … there is the rather odd situation where Mackay v Dick is regarded as authority for a well founded and general principle of English law, but there is a certain divergence of opinion as to how that principle can best be expressed. It is at any rate clear that there must be a relevant breach of contract on the part of the defendant: by relevant, I mean causatively relevant. The breach must bear on the condition which otherwise needs to be fulfilled. A doctrine of waiver perhaps sounds more like the common law than a doctrine of deemed fulfilment taken from the civil law: but they are both fictions designed to achieve the right result to which common sense and fairness seem to point. 107. In the present case, it seems to me that Mackay v Dick is not only authority for the implication of the implied term of co-operation, but also authority for the potential waiver or deemed fulfilment of the condition precedent of release of the SJ Berwin defendants’ accounts by means of discharge of the court’s freezing orders … Because the condition precedent involves not only the actions of the parties, but also the order of the court, I have asked myself whether that is a factor which takes this case out of the general rule. I have concluded that it need not do so. The court’s freezing orders will not have been released in fact, with all the consequences which go with that fact, until the court orders it so. But that is not to say that the SJ Berwin defendants can rely on their own breach of contract to prevent the fulfilment of a condition precedent to payment. At the same time the SJ Berwin defendants will be responsible for any damages which flow, in the ordinary way, from their breach.” We make two points about Rix LJ’s judgment. First, it was clear that the SJBDs were in breach of contract (by their failure to co-operate) and therefore liable in damages. It may be that no different result followed from accepting that there was a claim in debt as well as damages (see Rix LJ at paras 94 and 108). Secondly, while accepting that common sense and fairness appeared to support it, Rix LJ explicitly adverted to the difficulty of explaining the Mackay v Dick principle of law and saw waiver and deemed fulfilment as both being fictions. In addition to those four main cases, in which the Sellers submit that the ratio decidendi supports the Mackay v Dick principle of law, Mr Kenny also relies on several obiter dicta. We here set out the most important of these (but see also, for example, Devlin J in Tiberghien Draperie Sarl v Greenberg & Sons (Mantles) Ltd [1953] 2 Lloyd’s Rep 739, 743–744; and Lord Sumption dissenting in Geys v Société Générale, London Branch [2012] UKSC 63; [2013] 1 AC 523, at para 131). Lord Wright in Luxor (Eastbourne) Ltd v Cooper [1941] AC 108 summarised the effect of Mackay v Dick as follows, at p 148: “This House held that the buyers had prevented fulfilment of the condition because they held that, it being the buyer’s duty under the contract to provide the necessary facilities, he had failed to do so. Hence his default prevented the seller from satisfying the condition. The seller could therefore say that he had done all that lay on him to fulfil the condition and was to be taken to have implemented it.” A few months later, in Heyman v Darwins [1942] AC 356 at 387, Lord Wright said that “It is familiar law that a party who has prevented fulfilment of a condition precedent cannot set up the fact of its non-fulfilment.” Devlin J in Mona Oil Equipment & Supply Co Ltd v Rhodesia Railways Ltd (1950) 83 Lloyd’s 178 at 187 said that Mackay v Dick established the implied term of co-operation and “a second proposition, based on the opinion of Lord Watson”, which: “gives the plaintiff in appropriate cases an additional form of relief. If the breach of the implied term prevents the plaintiff from performing a condition binding upon him, he is to be taken as having fulfilled that condition; and if the condition is one on which his right to payment depends, he may therefore sue for payment instead of damages.” In Agrimpex Hungarian Trading Co for Agricultural Products v Sociedad Financiera de Bienes Raices SA (The Aello) [1958] 2 QB 385, Parker LJ, with whom Lord Goddard CJ and Lloyd-Jacob J agreed, summarised the ratioof Mackay v Dick as follows at p 407: “The defendant, having prevented the holding of that test, was held to be in the same position as if the condition had been fulfilled. In other words, the price became payable not because the property was deemed to have passed but because the condition was deemed to have been fulfilled.” Nigel Eaton KC, counsel for the Buyers, submits that the Mackay v Dick principle of law is not part of English law. He seeks to distinguish Hotham, Panamena and Cory from the present case as cases where the condition, prevented by the debtor, is engaged where the creditor has already rendered performance and stands to lose the value of that performance. He further argues that Abacha was a simple case of breach sounding in damages equal to the debt. Moreover, he relies on two authorities in which it was explicitly indicated, by Scott J and Millett LJ respectively, that the Mackay v Dick principle of law forms no part of English law. 49. In the first of those two cases, Thompson v ASDA-MFI Group plc [1988] 1 Ch 241, C worked for X, part of D’s group of companies. C bought options under a scheme run by D. Under the scheme rules (and underlying law), the options lapsed if C was no longer employed by a company within the group. D sold X. Although not a breach of contract by D, this prevented C from satisfying the condition precedent to the exercise of the options (ie that C was still employed by a company within D’s group). Much of the argument was focused on implied terms. But Scott J made clear that, viewed as a principle of law separate from implied terms, Mackay v Dick was not a principle of English law. He said at p 266: “The principle expressed by Lord Watson in Mackay v Dick, 6 App Cas 251, 270, is not, in my view, a principle of English law. The fictional fulfilment of conditions precedent and the fictional non-fulfilment of conditions subsequent may be principles of the civil law, but they are not principles of English law. In this area of the law of contract English law proceeds, in my view, by means of implied terms. If a term can be implied that a party will not do an act that, if done, would prevent the fulfilment of a condition precedent, then the doing of that act will be a breach of contract; if a term can be implied that a party will not do an act that, if done, would cause a condition subsequent to be fulfilled, then the doing of that act will be a breach of contract. But if a suitable term cannot be implied into the contract then in my judgment, the contract will take effect according to its tenor. The condition precedent will fail and the condition subsequent will be fulfilled.” In the second case relied on by Mr Eaton, Little v Courage Ltd (1994) 70 P & CR 469, Courage was obliged to renew Mr Little’s lease if, among other conditions, Mr Little agreed a new business plan. Courage took no steps to agree such a plan and then argued that the condition was not satisfied. The Court of Appeal, in a judgment given by Millett LJ, held that, although no term could be implied to this effect, as a matter of “construction” the condition only attached if Courage required Mr Little to agree a plan. For our purposes at this stage (we examine the case in more detail at paras 87–88 below) the case is significant for Millett LJ’s clear statement, at p 474, that “The doctrine of fictional fulfilment of a condition precedent which is to be found in the civil law forms no part of English law.” Each side’s counsel was able to draw some support for his submissions from passages in McCardie J’s judgment in Colley v Overseas Exporters [1921] 3 KB 302 (“Colley”). In any event the decision repays careful attention because it illustrates very clearly the link between a debt claim and the passing of property (ie the transfer of title) in the context of the sale of goods. The facts were simple. The claimant sold a quantity of leather belting to the defendants “fob Liverpool” (ie free on board at Liverpool). In breach of contract, the defendant buyers failed to name an effective ship so that the claimant was prevented from loading the goods. The claimant sued for the price of the goods. McCardie J held that, while the claimant was clearly entitled to damages for breach of contract, he was not entitled to the price. That was because property in the goods did not pass to the buyer until loaded onto the ship (ie the passing of property by loading was a condition precedent to the obligation to pay the price). The fact that it was because of the buyer’s default that the loading had not occurred, and hence property had not passed, did not mean that one could treat that condition as having been fulfilled. McCardie J distinguished Mackay v Dick as a case in which property in the machine must have passed to the buyer on delivery (and hence that the decision rested on Lord Blackburn’s reasoning). Had that not been so and had the headnote to Mackay v Dick been correct (and although he did not mention this, it would appear that the headnote was referring to Lord Watson’s reasoning), McCardie J considered that the principle “would be most far reaching, and the results extraordinary” (p 307). Yet at the same time, McCardie J said, at p 308, that, while “Mackay v Dick turned on Scotch law”, the same principle was “equally well settled in English law” and he referred with approval to, for example, Ashhurst J’s judgment in Hotham. 55. It would appear therefore that McCardie J was accepting that the Mackay v Dick principle of law applies in respect of some conditions but does not apply to a condition in a sale of goods contract as to the payment of the price being dependent on the passing of property in the goods being bought (and, with reference to Laird v Pim (1841) 7 M & W 474, he thought that an analogous approach applied to contracts for the sale of land). Hence he said the following at pp 310–311: “A clear distinction exists between cases where the default of the buyer has occurred after the property has passed and cases where that default has been before the property has passed. To the former cases Mackay v Dick may be applied on appropriate facts. To the latter cases Mackay v Dick does not apply so as to enable the buyer to recover the price as distinguished from damages for breach of contract. To hold that Mackay v Dick applies where the property has not passed would lead to extraordinary results.” 56. The court was referred by both parties to the academic literature. Focussing on contract textbooks, Mr Eaton fairly summarised the general view, prior to the decision in the Court of Appeal in this case, as being one of scepticism as to the Mackay v Dick principle of law being good English law. For example, in Treitel’s Law of Contract, 15th ed (2020), at para 2-112 (and to very similar effect, see Chitty on Contracts, 34th ed (2021) para 4-204, originally written by Sir Guenter Treitel), after mentioning Mackay v Dick, there is the following passage: “To hold the party in breach liable for the full performance promised by him, on the fiction that the condition had occurred, seems to introduce into this branch of the law a punitive element that is inappropriate to a contractual action. More recent authorities rightly hold that such a doctrine of ‘fictional fulfilment’ of a condition does not form part of English law.” Quite commonly (see, eg, Goode and McKendrick on Commercial Law, 6th ed (2020), para 34.05, note 17 and Roger Halson, The Law of Contract, 7th ed (2022), para 7.40, note 4) Mackay v Dick is simply side-lined in the textbooks as a case where property in the machine had passed to the buyer and the condition that failed was subsequent only (thereby putting to one side the reasoning of Lord Watson). In contrast, Mr Kenny pointed out that the latest editions of texts, such as Treitel’s Law of Contract, 16th ed (2025), at para 2.113 and Chitty on Contracts, 35th ed (2024), para 4.205, had been rewritten to reflect the decision of the Court of Appeal in this case and were not critical of it. Perhaps more significantly, he relied on three 2025 case notes which, he submitted, were supportive of the Court of Appeal’s decision: Jordan English, “The principle in Mackay v Dick” (2025) 141 LQR 48; Jonathan Chu, “The place of deemed fulfilment of condition” (2025) Legal Studies 1; and Anthony Kennedy and Helen Morton, “Debt or Damages: Time to Dispense with the Doctrine of Deemed Fulfilment?” [2025] LMCLQ 24. But while we accept that those case notes do support the Court of Appeal’s decision, they cannot be said to agree with all the reasoning of Popplewell LJ. 59. It is convenient at this stage to point out that we regard the support in, for example, Jordan English’s case note, for Popplewell LJ’s limitation of the Mackay v Dick principle of law to subsidiary and not principal obligations (see para 16 above) to be problematic. While that may be pragmatically necessary in order to avoid undermining cases such as Colley, it is hard to see any principled reason for drawing such a distinction. We also cannot agree with Jordan English that Popplewell LJ’s reasoning is best rationalised as one of waiver of conditions (explored in greater depth in his book, Discharge of Contractual Obligations (2025), paras 5.1–5.36). We do not accept that English law recognises a form of waiver which the author describes as being waiver of a condition by prevention of fulfilment. That would constitute a novel and unwarranted extension of what is meant by waiver. Although the term “waiver” has different meanings (for example, it may refer to an estoppel or an election: see Chitty on Contracts,35th ed (2024), paras 26-043–26-050, 28-060–28-062), it essentially requires the person waiving its rights to make clear that it is giving up (ie forgoing) those rights. There can be no waiver where the person is clearly not giving up those rights but is rather insisting on compliance with them. On the facts of this case, for example, to say that there was waiver of the conditions by the Buyers contradicts their clear insistence that the conditions should be fulfilled. Both counsel also drew to our attention a very recent case note by Robert Stevens, “Deemed Fulfilment Again” [2025] LMCLQ 244. That note cuts both ways. On the one hand, Stevens rejects the reasoning of Popplewell LJ. He also persuasively argues (in line with what we have said in the previous paragraph) that there was plainly no true waiver on the facts of this case. “One thing the buyers were clear upon throughout was that they insisted upon the condition of the opening of the escrow account, something which they could frustrate. They never expressly or impliedly waived it.” (At p 245.) Stevens further rejects the “contractual intention” explanation (which we discuss at paras 70–99 below) because it “seems to stretch that concept too far.” On the other hand, Stevens suggests that the Court of Appeal’s decision can be saved because the payment of the deposit into the escrow account was a mere payment mechanism. We examine that suggestion at paras 123–124 below. Having surveyed the most relevant case law and academic commentary, it is our view that Mackay v Dick is not a principle of law in English law. This is for the following six main reasons. First, Lord Watson in Mackay v Dick did not cite or rely upon any English law authorities in support of the principle stated by him. Rather he relied upon what he understood to be “a doctrine borrowed from the civil law” (see para 23 above). Lord Blackburn’s reasoning was different and Lord Selborne LC’s speech is ambiguous since he agreed with both speeches. Secondly, the English law authorities do not speak with one voice. While the four main cases relied on by Mr Kenny (Hotham, Panamena, Cory and Abacha) support such a principle of law, Scott J in Thompson v ASDA-MFI Group plc and Millett LJ in Little v Courage have voiced persuasive views to the contrary. Moreover, it is possible that, in those four main cases relied on by Mr Kenny, the same result could have been reached through the application of the law on damages for breach of contract rather than the law on debt. 64. Thirdly, such a principle of law is contradicted by Colley. As McCardie J recognised, it would fundamentally undermine the law on contracts for the sale of goods (and it would appear also for the sale of land) if Mackay v Dick were to be applied in respect of a failure to fulfil a condition precedent to the passing of property. At the very least, therefore, and in order to avoid what McCardie J referred to as “extraordinary” and “far reaching” consequences, one would have to cut back the ambit of the Mackay v Dick principle of law. Indeed, as Mr Eaton submitted, one can think of many other types of contract (eg the payment of freight in a voyage charter) where the application of the Mackay v Dick principle of law would undermine the established law as to when a debt accrues. But it is unclear how one could achieve such a cut back in a principled manner and without resorting, for example, to the particular intentions of the parties. In a similar vein, it should be noted that the formulations of the principle in cases such as Hotham and Panamena are very wide ranging and give no indication that any such principle of law must have some limits. Popplewell LJ in the Court of Appeal recognised that there must be limits and formulated the principle in terms which recognised four broad exceptions (see para 16 above). But the application and rationale of those exceptions are uncertain. As Mr Eaton submitted, a supposed general rule which has to be stated in terms which significantly but uncertainly qualify and curtail it does not make for a robust principle of law. 66. Fourthly, the various formulations or explanations of the Mackay v Dick principle of law are all fictional. Rix LJ explicitly recognised this in Abacha. The language of there being a deemed performance, or a deemed waiver, or a quasi-estoppel immediately makes that clear. In reality, there has been no performance, and the ingredients of a true waiver or of a true estoppel (eg a representation plus reliance) have not been satisfied. Fictions tend to obscure transparent reasoning and, wherever possible, should be removed. Jeremy Bentham famously despised fictions. In his words (see J Bowring (ed), The Works of Jeremy Bentham, (1962), vol 5, p 92): “in English law, fiction is a syphilis, which runs in every vein, and carries into every part of the system, the principle of rottenness.” Lord Nicholls, in his dissenting speech in the economic tort case of OBG v Allen; Douglas v Hello! Ltd (No 3) [2007] UKHL 21; [2008] AC 1, paras 228–229, said: “fictions, of their nature, conceal what is going on. They are a pretence … I would like to think that, as a mature legal system, English law had outgrown the need for legal fictions.” And in Forsyth-Grant v Allen [2008] EWCA Civ 505; [2008] 2 EGLR 16, at para 45, looking at “waiver of tort” in the context of damages for the tort of nuisance, Toulson LJ remarked that the “modern tendency has been to eschew resort to legal fictions”. At the very least, a fiction has to be properly explained. But there is no convincing explanation for Mackay v Dick as a principle of law. Fifthly, we regard Scott J as being correct when he observed in Thompson v ASDA-MFI Group plc that the English law of contract in this area proceeds on the basis of the terms of the contract, express and implied, and their proper interpretation rather than by way of fictional fulfilment of a condition precedent. This is consistent with the importance which English law attaches to freedom of contract, and to the application and enforcement of the terms of the bargain which the parties have made. This promotes certainty and predictability, which are important considerations, especially in the commercial law context. Sixthly, the consequence of rejecting Mackay v Dick as a principle of law does not lead to injustice. Subject to terms to the contrary, where a condition precedent has not been fulfilled because of the debtor’s breach of contract, that breach is appropriately and adequately dealt with in English law through the claimant’s remedy in damages. Those damages aim to compensate the claimant by putting it into as good a position as if the contract had been performed, subject to limitations such as mitigation and remoteness. There is no good reason to strain to uphold a claim for debt where, as illustrated by this case, this involves disregarding the terms of the contract and where, in contrast to damages, allowing the debt claim may exceed the claimant’s net loss. In the light of our rejection of Mackay v Dick as a principle of law, we move on to consider whether the Sellers can here succeed by relying on Mackay v Dick not as a principle of law but as an aid to contractual interpretation or as based on an implied term. Both interpretation and the implication of terms (by fact) may be said to rest on the objective intention of the parties, but it was made clear in Marks and Spencer plc v BNP Paribas Securities Services Trust Co (Jersey) Ltd [2015] UKSC 72; [2016] AC 742 (“Marks and Spencer”) that they are different (and, it would appear, sequential) techniques. In simple terms, interpretation is concerned with what is there in the express terms of the contract whereas the implication of terms inserts into the contract what is not already there. Popplewell LJ’s reasoning in the Court of Appeal was that the juridical basis of Lord Watson’s reasoning in Mackay v Dick was presumed contractual intention and the maxim that a party should not be entitled to take advantage of its own wrong. In support of this approach Mr Kenny relied on Lewison, The Interpretation of Contracts, 8th ed (2023), at para 7.108 in which it is stated: “A contract will be interpreted so far as possible in such a manner as not to permit one party to it to take advantage of his own wrong. This principle is not a rule of law; rather it is an aspect of the principle of interpretation that leans against interpretations that produce unreasonable or absurd consequences that could not have been intended. The contractual intention is still to be decided by reference to the ordinary principles applicable to the interpretation of contracts.” (Original emphasis.) Mr Kenny also relied on a number of cases cited by Lewison and, in particular, Rede v Farr (1817) 6 M & S 121, New Zealand Shipping v Société des Ateliers et Chantiers de France [1919] AC 1 (“New Zealand Shipping”), Cheall v Association of Professional Executive Clerical and Computer Staff [1983] 2 AC 180 (“Cheall v Apex”) and Alghussein Establishment v Eton College [1988] 1 WLR 587. Lest there be any confusion, it should be noted at the outset that, in the first two cases, where the language used includes that the contract is “void”, it is clear from the context that what is meant by “void” is that the contract is brought to an end (in modern terminology is terminated) and not that the contract never existed. In Rede v Farr it was a term of a lease that if the rent was not paid for 40 days, the lease “shall cease, determine and be utterly void”. The lessee failed to pay the rent for more than 40 days and sought to rely on this provision to claim that the lease was thereby determined. It was held that he was not entitled to do so. Lord Ellenborough CJ stated, at p 124: “In this case, as to this proviso, it would be contrary to an universal principle of law, that a party shall never take advantage of his own wrong, if we were to hold that a lease, which in terms is a lease for twelve years, should be a lease determinable at the will and pleasure of the lessee; and that a lessee by not paying his rent should be at liberty to say that the lease is void.” 74. In New Zealand Shipping it was a term of a shipbuilding contract that, in the event of France becoming engaged in a European war, if the French shipbuilder were unable to deliver the vessel within 18 months of the completion date then “this contract shall become void”. It was held by the House of Lords that the contract became “void” and was thereby brought to an end in circumstances where this had not been caused by any wrongful act or default on the part of the shipbuilder. Lord Ellenborough’s judgment in Rede v Farr was cited with approval and Lord Atkinson stated, at p 9: “if the stipulation be that the contract shall be void on the happening of an event which one or either of them can by his own act or omission bring about, then the party, who by his own act or omission brings that event about, cannot be permitted either to insist upon the stipulation himself or to compel the other party, who is blameless, to insist upon it, because to permit the blameable party to do either would be to permit him to take advantage of his own wrong …” 75. In Cheall v Apex Lord Diplock referred to New Zealand Shipping and summarised the applicable principle as follows, at pp 188–189: “In the course of the speeches, which are not entirely consistent with one another, reference was made by all their Lordships to the well known rule of construction that, except in the unlikely case that the contract contains clear express provisions to the contrary, it is to be presumed that it was not the intention of the parties that either party should be entitled to rely upon his own breaches of his primary obligations as bringing the contract to an end, i e as terminating any further primary obligations on his part then remaining unperformed. This rule of construction, which is paralleled by the rule of law that a contracting party cannot rely upon an event brought about by his own breach of contract as having terminated a contract by frustration, is often expressed in broad language as: ‘A man cannot be permitted to take advantage of his own wrong.’” 76. Both Rede v Farr and New Zealand Shipping concerned reliance on a contractual provision bringing the contract to an end by rendering it void. Alghussein Establishment v Eton College concerned reliance on a provision conferring a contractual benefit. An agreement between a landowner and a developer provided that a 99-year lease would be granted to the developer “if for any reason due to the wilful default of the tenant [ie the developer] the development shall remain uncompleted” on a certain date. It seems clear that the word “not” had been inadvertently omitted, but the trial judge felt that he could not proceed on that basis in the absence of a claim for rectification. The developer claimed to be entitled to the lease under this provision in circumstances where the failure to complete the development was due to its wilful default. The House of Lords held that it was not so entitled. In so concluding, Lord Jauncey referred to and relied upon Rede v Farr, New Zealand Shipping and Cheall v Apex. He held that the principle stated in those cases equally applied to a provision under which a party claimed the right to enjoy a contractual benefit because of his wrong. He said, at p 594: “Although the authorities to which I have already referred involve cases of avoidance, the clear theme running through them all was that no man can take advantage of his own wrong. There was nothing in any of them to suggest that the foregoing proposition was limited to cases where the parties in breach were seeking to avoid the contract and I can see no reason for so limiting it. A party who seeks to obtain a benefit under a continuing contract on account of his breach is just as much taking advantage of his own wrong as is a party who relies on his breach to avoid a contract and thereby escape his obligations.” In Chitty on Contracts, 35th ed (2024), at para 16-115, these cases (and others) are cited in support of the following proposition: “It has been said that, as a matter of construction, unless the contract clearly provides to the contrary it will be presumed that it was not the intention of the parties that either should be entitled to rely on their own breach of duty to avoid the contract or bring it to an end or to obtain a benefit under it.” 78. In the light of the modern developments in the approach to contractual interpretation (see, eg, Investors Compensation Scheme Ltd v West Bromwich Building Society [1998] 1 WLR 896, Arnold v Britton [2015] UKSC 36; [2015] AC 1619, and Wood v Capita Insurance Services Ltd [2017] UKSC 24; [2017] AC 1173) it would appear that the above cases supporting the presumption that the parties did not intend a party to profit from its own breach, are best rationalised as ones where that presumption reflects the objective intention of the parties in the relevant context. But in any event, we agree with Chitty that, as a matter of authority, the cases on the presumption are all concerned with a claimed entitlement to treat the contract as being at an end or to obtain a benefit under it. They do not support any wider presumption that a party may not take advantage of its own wrong. There are many contractual circumstances in which a party may do so. This is most obviously illustrated by the principle that damages for breach of contract are to compensate the claimant and not to punish the defendant and, subject to rare exceptions, damages or an account of profits are not awarded to strip profits made by the defendant’s breach. Contract law permits efficient breach and the defendant may therefore profit from its wrong. 79. In the present case the Buyers are not relying on their own breach of contract to treat the contract as being at an end or to claim a benefit under it. They are not using it in order to found or to invoke any right under the contract. As Dias J said at first instance at para 99: “Far from deriving any benefit, Buyers’ breach exposed them to a liability in damages. Nor would they be rid of the contract, since that depended on whether or not Sellers elected to cancel.” Put another way, the Buyers’ reliance on the terms of clause 2 is purely defensive. They acknowledge that they are liable to pay damages but contend that to claim in debt the Sellers must show, and they cannot, that the pre-conditions set out in clause 2 have been satisfied. That is not comparable to any of the cases on interpretation principally relied upon by the Sellers (see paras 72–76 above) which are clearly distinguishable. In these circumstances the maxim that a party cannot take advantage of its own wrong is of no assistance in interpreting the contracts in this case. It is not a principle of interpretation of universal application, as the Court of Appeal acknowledged (para 79). More generally, applying the modern objective and contextual approach to contractual interpretation, we do not consider that the correct interpretation of the express pre-conditions in this case is that they do not need to be satisfied where the Buyers have defaulted. 80. Mr Kenny advanced a further and related argument that, unless the MOA is interpreted as not requiring the pre-conditions to be satisfied, unreasonable and absurd consequences follow. He submitted that the Buyers’ reading of clause 2 requires one to accept that the MOA: (i) requires the Buyers to pay the deposit upon the Deposit Holder’s confirmation; and (ii) requires the Buyers to provide documents to enable the Deposit Holder to give such confirmation; but (iii) allows the Buyers to avoid (i) by breaching (ii). That, he submits, is not a realistic interpretation. It permits the Buyers to adopt a “cunning plan” to avoid its agreed obligations. He relies on the concurring judgment of Nugee LJ in the Court of Appeal in this case and, in particular, his statement at para 101: “It cannot have been the parties’ intention that the buyer could avoid his obligation to pay the deposit by the simple expedient of deliberately failing to comply with what is on any view a subsidiary obligation to sign the necessary forms to open the account.” The difficulty with this argument is that it means that the parties cannot have intended what they have stated and agreed. Leaving aside the Sellers’ case on Issue 3, clause 2 makes the Buyers’ obligation to lodge the deposit within three Banking Days conditional on: (i) the parties signing and exchanging the MOA; (ii) the parties providing the Deposit Holder with all necessary documentation to open the account; and (iii) the Deposit Holder confirming that the account is fully open and ready to receive funds. This is what clause 2 states. The Sellers’ case is that there are, however, unstated circumstances in which those pre-conditions do not apply. If so, that would seem to require some term to be implied. It does not follow from the wording of clause 2. As Mr Eaton submitted, there is nothing extravagant about the proposition that a conditional obligation applies according to its terms. The parties should be understood to mean what they say. The Sellers’ case on interpretation means that a payment obligation subject to a promissory condition requires payment to be made regardless of whether the condition is performed. But if the parties intended it to be paid regardless, they would not have made it conditional. The Sellers’ case effectively strikes out the condition and rewrites the terms of the contract. It should also be stressed that it is always open to the parties to include a term in the contract making clear that a condition precedent to a debt obligation does not apply where the failure of the condition precedent is caused by the debtor’s breach. A similar point arose in The Blankenstein in which it was held that signing the MOA was a pre-condition to the deposit being payable. As Robert Goff LJ observed (at p 456): “I realise that the effect is that the seller does not get the protection of the deposit until signature; and that the buyer, by repudiating the contract before signature of the memorandum of agreement, can escape from the consequence of forfeiture of the deposit. That may not be very satisfactory from the seller’s point of view; but it is, in my judgment, what he has agreed. The security of the deposit is not due until after signature of the memorandum of agreement; and so, if the buyer repudiates the contract before signature, the seller is without the benefit of the deposit.” Subject to the Sellers’ case on Issue 3, the same applies to the pre-conditions in the present case. Until they are satisfied the Sellers do not have the security of the deposit. That is what they have agreed. In many contracts for the sale of land a deposit is paid at the time that the contract is made, often on exchange of contracts. In such cases the seller has the security of the deposit from the outset and from that moment the right to the deposit accrues. Subject to the Sellers’ case on Issue 3, the parties have agreed to defer that moment until certain pre-conditions have been satisfied, as in The Blankenstein. During the course of oral argument, it was suggested by Mr Kenny that the fact that the deposit arrangements were for the benefit of the Buyers might support an implied term (implied by fact, whether by reason of business efficacy or obviousness, the leading case being Marks and Spencer) to the effect that they could not be insisted upon in circumstances where the Buyers had made them impossible to carry out. An analogy could be drawn with Little v Courage Ltd (which has already been briefly looked at, in para 50 above, in respect of Millett LJ’s explicit rejection for English law of the Mackay v Dick principle of law). 87. Mr Little was the tenant of a public house and Courage was his landlord. His lease was for five years with an option to renew for a further five years. It was a condition precedent to the exercise of the option that Mr Little had agreed with Courage a “Business Plan” and a “Business Agreement”. Having decided that it did not wish the lease to be renewed, Courage did not put forward either document. The Court of Appeal held that the parties did not contemplate negotiation and agreement of these documents but rather acceptance by Mr Little of what Courage put before him. It further held that the documents were essentially for Courage’s benefit. In these circumstances it was held that, if Courage decided to dispense with the documents, that could not prevent the option being exercisable. Millett LJ stated as follows, at p 479: “What, then, if Courage had changed its policy and decided to dispense with Business Agreements and Business Plans? Would this mean that Mr Little would no longer have the right to renew the Lease? If the officious bystander had asked the parties this question in 1986, they would have told him not to be silly. The Business Agreement contained the tie, and both documents were essentially for Courage’s benefit. There could be no possibility of Courage ever dispensing with either. But legal problems are often most easily solved by considering what would happen in improbable events. The hypothetical bystander must be persistent as well as officious. If he had persisted in his question, I have no doubt what answer the parties would have made. Of course Mr Little could still exercise the option to renew. Courage had to give Mr Little something to sign. If Courage did not want him to agree anything, there was nothing for him to agree. In my judgment effect can be given to the parties’ obvious intentions by construing condition (c) as if it read: the Lessee shall if so required have agreed with the Company a further Business Plan and a further Business Agreement.” (Original emphasis.) Given the difficulty here of implying a term (because the contract was unilateral), Millett LJ described it as a matter of construction, but he relied on the officious bystander and did read terms into the lease. In the case of a bilateral contract that would be regarded as being a matter of implication. Mr Kenny argued that a similar approach could, and should, be adopted in this case given that the deposit arrangements were there for the Buyers’ benefit. Real difficulties arose, however, when Mr Kenny sought to formulate an appropriate implied term. The first two suggested implied terms involved inserting the following italicised words into clause 2: “… the Buyers shall lodge a deposit … in an account for the Parties with the Deposit Holder within three (3) Banking Days after the date that: (unless wrongfully prevented by the Buyers) the Deposit Holder has confirmed in writing to the Parties that the account has been fully opened and ready to receive funds.” “… the Buyers shall lodge a deposit … in an account for the Parties with the Deposit Holder within three (3) Banking Days after the date that: the Deposit Holder has confirmed in writing to the Parties that the account has been fully opened and ready to receive funds (or would have done if not wrongfully prevented by the Buyers).” 91. The obvious difficulty with both these implied terms is that they render clause 2 unworkable. Although they mean that the Buyers cannot contend that the time for lodging the deposit has not arisen, there is no account into which the deposit can be lodged. Such an account does not and cannot exist. Without the Buyers’ documents and, for example, compliance with Know Your Client requirements, the Deposit Holder cannot open the requisite account and so the deposit cannot be lodged as required by clause 2. There can be no justification for implying a term which makes a key part of the performance of the Buyers’ obligations under clause 2 impossible. Such a term cannot be necessary or obvious. Further, by making part of the performance of the Buyers’ obligations impossible, it contradicts and is inconsistent with the express terms agreed. Such unworkability means that there can equally be no justification for so interpreting clause 2 if, as Mr Kenny submits but we reject, introducing these additional words is a matter of interpretation rather than implication. In an attempt to meet this difficulty Mr Kenny put forward a third possible implied term. Third suggested implied term: “… the Buyers shall lodge a deposit … in an account for the Parties with the Deposit Holder within three (3) Banking Days after the date that: the Deposit Holder has confirmed in writing to the Parties that the account has been fully opened and ready to receive funds (or in the event the Buyers wrongfully prevent the above account from being opened, the Buyers shall promptly lodge the Deposit with the Sellers).” The obvious difficulty with this implied term (and again the same difficulty applies if one treats Mr Kenny’s submission as going to interpretation rather than implication) is that it is rewriting the contract. There is a major difference between a deposit arrangement which involves the deposit being held in escrow by a trusted intermediary and paying the deposit over to the sellers. Such a deposit arrangement provides significant protection for the buyers and it is an important part of the Saleform 2012. The sellers only obtain the deposit funds as a part payment of the contract price on delivery of the vessel or if the deposit is forfeited. Under clause 14 the buyers have the right to have the deposit released to them in the event of the sellers’ default. It is doubtful that many buyers would be willing to enter into an MOA on terms requiring the deposit to be lodged with the sellers; it involves a major rebalancing of risk. 94. The importance of deposit holder arrangements is explained in Strong & Herring, Sale of Ships, 3rd ed (2016), para 5.05: “banks have become increasingly reluctant to accept deposits into joint accounts. The advance of financial regulation and anti-money laundering legislation worldwide means that it is now significantly more difficult and time-consuming for a bank to set up and operate a joint account for the purpose of holding a deposit under an MOA. As a result, in most instances now the sellers and buyers find themselves having to agree on an alternative to the more traditional deposit arrangements once taken for granted in ship sale and purchase transactions. As the banks’ interest in acting as deposit holder has waned, so other entities prepared to assist with holding deposits have come to the fore. However, many of these bodies such as shipbrokers and lawyers will still be subject to regulatory oversight and will almost certainly require compliance by the parties with, for example, local anti-money laundering restrictions before they are able to act.” 95. Notwithstanding these difficulties, Strong & Herring state that it remains “extremely rare” for buyers to agree to pay the deposit to sellers, and observe that in such a case a refund guarantee is likely to be required: “In situations where sellers and buyers are unable to identify a suitable deposit holder there would seem to be only two other alternatives. Either the sellers and buyers will need to agree that there will be no deposit and that the full purchase price will be paid on delivery, or that the buyers will pay the deposit directly to the sellers-perhaps in return for a refund guarantee by the sellers or their parent or another company of substance. The second of these alternatives is extremely rare and requires a much greater degree of trust and confidence by the buyers in the sellers and its affiliates.” These considerations highlight how implausible it is for payment of a deposit directly from the buyer to the seller to be a matter of implication. To alter the parties’ bargain in such a fundamental way is neither necessary nor obvious. Any such term also contradicts and is inconsistent with the express terms agreed which contemplate a third party deposit holder. Indeed, many of the terms of clause 2 are inapplicable to a deposit lodged with the sellers, such as the fundamental requirement that it be an account “for the Parties” under which the deposit shall be released “in accordance with the joint written instructions of the Parties”. We also regard the implication of any term dealing with a failure by the buyers to lodge the deposit as problematic because of clause 13 (set out at para 7 above) under which the parties have already dealt expressly with what is to happen in that situation ie the sellers are entitled to cancel the agreement and to claim compensation. For all these reasons, we do not consider that there is a justification for any of the implied terms argued for by Mr Kenny. In any event, this is the type of issue which should have been raised before the arbitrators. They are generally best placed to decide what business efficacy requires or how the officious bystander test should be applied in relation to the implication of a term into a standard form ship-sale contract. The appeal on Issue 1 therefore succeeds. There is no Mackay v Dick principle of law in English law. Moreover, in this case, the proper interpretation of the contract does not entail, and there is no implied term, that the conditions precedent to the Buyers’ debt obligation are to be ignored because of the Buyers’ breach of contract in respect of those conditions precedent. The Sellers have their remedy in damages for the Buyers’ breach but they do not have a valid debt claim. 101. It follows that, on this issue, we agree with the decision and the essential reasoning of Dias J and disagree with the Court of Appeal. Popplewell LJ recognised the difficulties with accepting a Mackay v Dick principle of law and that no doubt explains why, first, he recognised significant exceptions to its operation and, secondly, he recast the principle as one resting on the parties’ presumed intentions (see para 16 above). But, with respect, and as has already been touched on in para 65 above, the two exceptions he formulated apart from contrary intention and the circumstances of the case (“the condition is not the performance of a principal obligation by the obligee, nor one which it is necessary for the obligee to plead and prove as an ingredient of its cause of action”) are not only very difficult, and probably impossible, to rationalise but would be highly complex to apply in practice. And, as we have made clear, a focus on the parties’ intentions, whether through interpretation or an implied term, would not assist the Sellers in this case. Issue 2 - Whether the Court of Appeal’s decision in The Griffon, which held that under the Saleform the deposit was forfeited when the seller terminated the MOA for non-payment of the deposit, was wrong. Issue 2A - Whether the Supreme Court does not have jurisdiction because Issue 2 is outside the scope of the question of law on which the Buyers obtained leave to appeal from the High Court. In the light of our conclusion on Issue 1 (and what we go on to conclude on Issue 3) it is not necessary to address the Buyers’ secondary case formulated as Issue 2 (and nor do we need to address the procedural Issue 2A). Issue 3 - Whether under the Saleform the deposit accrues due when the MOA is concluded with the consequence that the pre-conditions in clause 2 are only pre-conditions to the payability of the deposit, not to its accrual. Issue 3A - Whether Issue 3 is not open to the Sellers because the Commercial Court decided the point in the Buyers’ favour and the Sellers did not obtain leave to appeal or seek to raise it before the Court of Appeal. We shall address first the procedural objection (Issue 3A) to Issue 3 being raised. If this issue had been sought to be raised for the first time on appeal to this court, we have little doubt that it would have been allowed to be put forward. The Sellers are relying on it as an alternative or additional reason for upholding the judgment of the Court of Appeal. This is permissible under the Supreme Court Rules 2009 (which apply to this appeal: see Supreme Court Rules 2024, rule 62(1)(a)), specifically rule 25(1)): “A respondent who wishes to argue that the order appealed from should be upheld on grounds different from those relied on by the court below, must state that clearly in the respondent’s written case (but need not cross-appeal).” The issue raises a pure question of law and there is no possible prejudice to the Buyers if it is allowed to be advanced. The issue relates directly to the question of law in respect of which leave to appeal was given for the appeal to the Commercial Court and for the appeal to the Court of Appeal. The underlying issue raised by that question of law is whether the claim can be made in debt or whether it must be in damages. Can the payment sum “be claimed by the other party in debt? Or must the claim be in damages?” If this court could, and would, have given permission for the issue to be put forward had it been raised for the first time on appeal to this court, the Sellers cannot be in a worse position because it was in fact raised before—before the arbitrators (who did not decide it) and before Dias J (who rejected it). In these circumstances, we have no doubt that the Sellers should be permitted to argue the issue. Turning to the merits of the issue (ie Issue 3), it is helpful to make clear at the outset that we regard “the accrual of the right to the debt” and “the accrual of the debt” and “the debt having accrued due” as all being synonymous. They are all to be distinguished from the debt being payable. The important substantive point is that the time when a debt is payable may be later than when the right to the debt accrues. 108. The Sellers argue, as they did before Dias J, that the Buyers’ breach was a mere failure in the machinery of payment and did not prevent the accrual of the debt. It would then follow (according to the Sellers’ submissions) that, as the right to the debt has accrued, the Sellers are entitled to succeed in a debt action even though the contract has been terminated for the Buyers’ breach. The Sellers rely on cases in which a distinction is drawn between when the right to a debt accrues and when it becomes payable. That distinction is sometimes expressed (see, eg, Lord Donaldson in Cory, para 37 above) using the Latin maxim debitum in praesenti, solvendum in futuro (“a debt due at present, payable in the future”). A well-known example of a case in which the distinction was drawn is Bank of Boston Connecticut v European Grain & Shipping Ltd (“The Dominique”) [1989] AC 1056. In that case a voyage charterparty provided that “full freight” was “deemed to be earned on signing bills of lading”. Freight was to be paid “within five days of signing and surrender” of the bills of lading. The charter was terminated on the acceptance by the charterers of the owners’ repudiation. This occurred after the bills of lading had been signed but before they were surrendered. The House of Lords held that the owners had an accrued right to full freight at the time of termination. That right had been unconditionally acquired on signing of the bills of lading and this was not affected by the fact that the obligation to pay the freight had been postponed and had not arisen at the time of termination. Another case to similar effect is Vagres Compania Maritima SA v Nissho-Iwai American Corporation (“The Karin Vatis”) [1988] 2 Lloyd’s Rep 330 in which freight was expressly stated to “be deemed earned as cargo loaded”, although payable later. In many cases, a contract will not draw a distinction between when a right to a sum of money accrues (or, as it is sometimes put, is earned) and when it is payable. The MOA does not do so. The only provision as to timing in clause 2 is the requirement that the Buyers “shall lodge a deposit” within three banking days after the MOA has been signed and the Deposit Holder has confirmed that the account has been opened and is ready to receive funds. The main reason advanced by the Sellers for contending that the right to the deposit accrues when the MOA is concluded is the provision in clause 2 that the deposit is “security for the correct fulfilment of this Agreement”. Michal Hain, who made the oral submissions for the Sellers on Issue 3, argued that this means security for the fulfilment of all the Buyers’ obligations under the MOA, including, for example, the obligation to provide the necessary banking documentation. It can only stand as such security if it is to accrue before any such obligations arise, which means from the moment that the contract is made. We do not consider that this is a necessary inference to be drawn from the MOA wording. A deposit will still be “security for the correct fulfilment of this Agreement” even if it only becomes so once it is due to be lodged. In this type of contract, if a distinction is to be drawn between when the right to a sum accrues and when it is payable, one would expect that to be made clear in the contract, as it was in The Dominique and The Karin Vatis. Mr Hain submitted that it is necessary to construe the MOA as meaning that the right to the deposit accrues as soon as it is concluded in order to meet the commercial purpose of deposits. He says that that purpose is to protect the Sellers from being “messed around”, as Newey LJ put it in the Court of Appeal (para 102). No doubt a deposit does generally serve this purpose but from when it does so will depend on the terms of the contract. There is no a priori rule that it must do so from the time that the contract is made. Nugee LJ relied on the analogy of contracts for the sale of land but, as Robert Goff LJ observed in The Blankenstein at p 453: “We were referred to a number of authorities relating to deposits payable under contracts concerning land. In the last analysis, everything must depend upon the construction of the terms agreed …” Mr Hain further submitted that the deposit is the quid pro quo for the Sellers taking the vessel off the market, which occurs as soon as the contract is made. Again, however, that depends on the contract terms. If that was the intention, the contract could so state, but the MOA does not so provide. Further, quid pro quo is the language of consideration and, while the deposit is part of the consideration, its essential function is to provide security for performance. It will only become a part payment of the price when, and if, delivery of the vessel is made. Next, Mr Hain submitted that, unless the right to the deposit accrues when the MOA is concluded, there will be a lacuna in the contractual allocation of risk. The Sellers will be locked in but the Buyers will have a window of time in which they may choose not to proceed without being at risk of forfeiting a deposit. This is correct, as Robert Goff LJ acknowledged in The Blankenstein (see para 83 above). In most cases, however, that window will be short and in all cases buyers will be liable in damages if they choose not to go ahead with the contract. There are also unlikely to be many cases in which buyers change their mind in the short interval between concluding the MOA and lodging the deposit. In our view, the MOAs are not contracts, such as those in The Dominique and The Karin Vatis, where a distinction is drawn between when the right to a sum accrues and when it is payable. As in many contracts, they are concurrent. This conclusion is strongly supported by The Blankenstein. In that case clause 2 of the earlier Norwegian Saleform in issue provided that (at p 453): “As a security for the correct fulfilment of this contract, the buyers shall pay a deposit of 10 per cent … of the purchase money on signing this contract.” This is in materially the same terms as clause 2 of the MOA, save that there was only one stated pre-condition to payment (or lodging) of the deposit, namely the signing of the MOA. All three judges in the Court of Appeal considered that the seller’s only claim was in damages. At p 448 Fox LJ set out the buyer’s argument that “there is a short answer to any claim for the amount of deposit. Clause 2 … provides for payment of the deposit ‘on signing’ the contract. The contract was never signed and accordingly … the deposit never became payable”. He then set out the seller’s answer to that case but rejected it. He therefore accepted that there could be no debt claim for the deposit, but only one for damages. He nevertheless went on to find that the buyer was liable in damages for the amount of the deposit for breach of the obligation to sign the MOA within a reasonable time of the contract being made. Stephenson LJ agreed with Fox LJ’s judgment. 119. Robert Goff LJ recited that the arbitrator had held that the sellers “were not entitled to the deposit, because the payment of the deposit was conditional upon [the buyers] signing the memorandum of agreement and they had not done so” (p 455). He agreed with the arbitrator’s conclusion. His analysis, with which we agree, was as follows, at pp 455–456: “there are two distinct obligations resting upon the buyer. The first is the obligation to sign the memorandum of agreement; if no time is specified for the performance of this obligation, it must be performed in a reasonable time, but that must usually mean very shortly after receipt of the memorandum of agreement from the seller or his broker, in due form. The second obligation is the obligation to pay the deposit. This obligation is however to be performed not within a reasonable time, but upon signature of the memorandum. The fact that the practical effect is that the deposit must be paid within a reasonable time, or even that the deposit may be paid simultaneously with the handing over of the memorandum of agreement signed by the buyer, does not in my judgment alter the fact that the two obligations are separate and distinct, and that the obligation to pay the deposit does not accrue until the memorandum of agreement is signed. … So far as the deposit is concerned, the position of Hapag-Lloyd in the event of the repudiation of the contract by Damon was as follows. If the repudiation occurred after Damon had paid the deposit, Hapag-Lloyd would be safe: they would have the deposit and could keep it. If the repudiation occurred after the obligation to pay the deposit had accrued due, but before Damon had paid it, Hapag-Lloyd could sue Damon for the deposit as a debt; whether they could get it or not would depend on whether they could enforce that right, and in particular would depend on the solvency of Damon. But if the repudiation occurred before Damon's obligation to pay the deposit had fallen due, then Hapag-Lloyd could only recover damages for the repudiation …” His conclusion was that the sellers had a claim for damages for the loss of their bargain but not for the amount of the deposit as a debt claim. He went on to decide, dissenting from the majority only on this point, that the damages claim did not encompass the amount of the deposit. We are not concerned with that point because, on this appeal, the quantum of the damages for breach of contract, and whether they embrace the non-payment of the deposit, is not before us. It is correct to observe that the argument based on there being a difference between when the right to the deposit accrued and when it is payable was not advanced in The Blankenstein, but the decision was that there could be no claim in debt for the deposit until the MOA had been signed. Under these MOAs that would mean that there could be no such claim until all the clause 2 pre-conditions had been met. We agree with the decision in The Blankenstein. Even if it were open to doubt, we would be very reluctant to reverse a decision on a standard form made 40 years ago. As is stated in Lewison, The Interpretation of Contracts,at para 4.65: “In a case where the contract is based upon a standard form of commercial agreement, the court recognises the desirability of certainty, and is reluctant to disturb an established construction.” (Original emphasis.) As Lord Denning observed in The Annefield [1971] P 168 at p 183, if the business community is not satisfied with a decision, the form can be altered. 123. For completeness we should mention that Mr Hain relied on two of the recent case notes already mentioned (see paras 58 and 60 above) which provide some support for the Sellers’ case on Issue 3, namely those of Jonathan Chu and Robert Stevens. Both suggest that the right to the deposit had accrued on contract formation and that the payment into the escrow account was mere payment machinery. For example, having rejected the Court of Appeal’s reasoning on Mackay v Dick, Robert Stevens writes ([2025] LMCLQ 244, at 245): “The better solution, it is suggested, is that it is necessary to distinguish between conditions attaching to the entitlement to the contracted sum and conditions attaching to the mechanism of payment. The sellers’ entitlement to the 10 per cent deposit did not depend upon the opening of the escrow account at all.” We have carefully considered those case notes but, in our view, they do not focus sufficiently on the wording of the MOA and its established interpretation, as set out in The Blankenstein. We also do not consider that the deposit holder arrangements can be regarded merely as machinery of payment, as explained in paras 93–95 above. It is also our view that, if the escrow account failed through the fault of neither party (eg, as Stevens postulates, because of the insolvency of the specified solicitors’ firm) the deposit would not be payable direct to the Sellers but, rather, there would be an implied obligation to set up an alternative escrow account. For all these reasons we conclude on Issue 3, in agreement with the reasoning of Dias J, that under the Saleform the right to the deposit does not accrue when the MOA is concluded (nor when it is signed nor three banking days after signature). We therefore reject the Sellers’ secondary case. In conclusion, the Mackay v Dick principle of law is not part of English law. Nor, in this case, can the same outcome be achieved by contractual interpretation or an implied term. Furthermore, the terms of clause 2 are conditions precedent to the accrual of the debt. They are not merely concerned with the machinery of payment for an accrued debt.
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November 12, 2025 at 12:13 PM
On TNA: From TNA: Daly v His Majesty’s Advocate (Scotland)
Daly v His Majesty’s Advocate (Scotland) - Find Case Law - The National Archives
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November 12, 2025 at 11:43 AM
From Out-Law: UK sets vision for future of retail payment infrastructure
UK sets vision for future of retail payment infrastructure
Plans to strengthen the UK’s digital payments infrastructure need to be seamless or risk customers avoiding innovation in favour of familiarity, an expert has warned.
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November 12, 2025 at 8:20 AM