Court of Appeal
Rex (Refugee and Migrant Forum of Essex) v Secretary of State for the Home Department
Rex (Adjei) v Secretary of State for the Home Department
[2025] EWCA Civ 1843
2025 June 24, 25;
Nov 19
Baker, Elisabeth Laing LJJ, Sir Nicholas Underhill
ImmigrationLimited leave to remainDocumentary proofSecretary of State’s policy not to provide all persons having limited leave to remain with documentary proof of immigration statusWhether policy irrational Immigration Act 1971 (c 77), s 3C

Pursuant to the Secretary of State’s policy, digital eVisas were issued to some, but not all, categories of persons whose limited leave to remain in the United Kingdom had been extended pursuant to section 3C of the Immigration Act 1971 pending the determination of their applications for variation of their leave. Like a physical biometric residence permit, an eVisa could be used to prove to third parties, such as employers or landlords, that the holder was in the country lawfully and had a continuing entitlement to the various rights which accompanied the grant of their limited leave to remain, such as the right to work and the right to rent property. The claimants brought a claim for judicial review of the Secretary of State’s policy not to provide a substantial number of those with section 3C leave with any physical or digital form of documentary proof of their immigration status, contending that the policy frustrated the objects of section 3C and the combination of laws that regulated immigrants’ access to work, benefits and services in the United Kingdom (in breach of the Padfield principle); that the policy was irrational; and that the Secretary of State had breached his duties under section 55 of the Borders, Citizenship and Immigration Act 2009 and section 149(1) of the Equality Act 2010. The judge allowed the claim, concluding that the failure to provide digital documentation was irrational and that there had been a breach of the section 55 duty. The Secretary of State appealed. The claimants cross-appealed, contending that they should have succeeded also on the Padfield ground.

On the appeal and cross-appeal—

Held, appeal allowed in part and cross-appeal dismissed. (1) The judge’s reasons did not support his conclusion that it had been Wednesbury unreasonable for the Secretary of State not to have provided, as at the date of the claimants’ challenge, immediately accessible digital proof of status for migrants on section 3C leave. Although the evidence established that where migrants with section 3C leave were unable to provide immediate proof of their status they might suffer prejudice which would in some cases amount to serious harm and/or financial loss, the evidence did not, and realistically could not, establish in how many cases that occurred; or, where it did, what the distribution of cases was along the scale from minor prejudice to serious harm. The uncertainty about the numbers of such cases was a relevant part of the picture. Furthermore, it was not part of the purpose of the various statutes to which the judge referred that migrants with section 3C leave should be able immediately to demonstrate their immigration status, and thus their access to the rights that depended on it, there being no reason to infer that Parliament had any intention that that should be the case. In circumstances where the legislation itself said nothing about the documentation of section 3C leave, the natural understanding would be that it would be a matter for the discretion of the Secretary of State in what way migrants with section 3C leave would be enabled to demonstrate their status, including the timescale within which they should be enabled to do so. She would in exercising that discretion be entitled to take into account all relevant considerations, including practicability. There was no reason to impute to Parliament an intention that she should exercise that discretion so as to provide for immediate demonstrability, as opposed to the kind of system which she in fact introduced. There was in any event a more specific reason against attributing any such purpose to Parliament. The judge’s unchallenged (and plainly correct) finding was that a physical document was incapable of providing immediate demonstrability of current immigration status: it could only be achieved by means of an immediately accessible online digital record of the eVisa kind. Yet there was no evidence, and no reason to think, that such systems were contemplated in 1999, when section 3C was introduced, or even in 2014 when the principal legislative components of the hostile environment were enacted. It could not be said to have been part of the legislative purpose on either occasion that the Secretary of State should provide for immediate demonstrability when no practicable means of achieving it were then available. Moreover, the judge was wrong to conclude that the fact that eVisas were already in the course of being rolled out for migrants with limited leave to remain was at least prima facie evidence that they, or equivalent digital proof of status, could forthwith be made available to everyone with section 3C leave, and that no reason had been shown why he should not draw that conclusion, when there was explicit evidence that the Secretary of State had decided to introduce eVisas gradually (paras 53, 54, 56–57, 59–60, 67, 103, 104, 105).

(2) The judge was correct that it was not appropriate to apply the Padfield principle in the present case, and even if it were, the approach taken by the Secretary of State to the provision of documentation to migrants on section 3C leave was not contrary to any statutory purpose ( paras 71, 74, 103, 104, 105).

(3) However, the challenge to the finding of breach of the duty under section 55 of the Borders, Citizenship and Immigration Act 2009 would be adjourned for further submissions in the light of recent Court of Appeal authority( para 75, 103, 104, 105).

Decision of Cavanagh J [2024] EWHC 1374 (Admin); [2024] 1 WLR 4950 reversed in part.

Zane Malik KC (instructed by Treasury Solicitor) for the Secretary of State.

Stephanie Harrison KC and Shu Shin Luh (instructed by Bhatt Murphy Solicitors) for the claimants.

Alison Sylvester, Barrister

We use cookies on this website, you can read our Privacy and Cookies Policy. To use website as intended please Accept Cookies