Article by Sonya Kalyan
The question before the Supreme Court in this case was:
‘When will a refusal by the Secretary of State for the Home Department (“SSHD”) to grant Leave to Remain (“LTR”) to an individual, who cannot be removed to their country of nationality, breach their right to respect for private and family life under Article 8 of the European Convention on Human Rights (“ECHR”)?’
Relevant Law and Immigration Rules
- Article 8 ECHR
- 1(5)(a) of Schedule 10, Immigration Act 2016
- Paragraph 276ADE, The Immigration Rules (as applicable at the relevant time, now replaced by Appendix Private Life)
- Section 117A- 117C, Nationality, Immigration and Asylum Act 2002
Background Facts
AM is a Belarusian national who arrived in the UK in 1998 and claimed asylum. His asylum claim was refused on 12 December 2000, and he was deported to Belarus on 29 June 2001. As AM told the Belarussian authorities that he was not a Belarussian citizen, he was refused entry and returned to the UK. Attempts by the SSHD to obtain necessary travel authorisations for AM from Belarussian authorities failed and he remains in the UK. Between 1999 and 2018, AM was also convicted of a number of offences and sentenced to several terms of imprisonment. AM was present in the UK without LTR, but he was able to reside in the community because he had been granted immigration bail under paragraph 1(5)(a) of Schedule 10 to the Immigration Act 2016, this was known as AM’s ‘limbo’ status. AM suffered from ill-health. In early 2018, he was diagnosed with psychotic symptoms and his mental health has been adversely affected by delays in resolving his case and lack of status.
Decisions and comment
In R (AM) v SSHD (legal ‘limbo’) [2021] UKUT 62 (IAC) a Presidential panel of the Upper Tribunal (“UT”) held that, as the likelihood of removing AM to Belarus was remote, continuing to refuse to grant AM LTR would be a violation of his right under Article 8 ECHR.
The SSHD appealed to the Court of Appeal and his appeal was dismissed.
The SSHD appealed to the Supreme Court.
Lord Sales found [95] that the UT failed to give any significant, let alone proper weight, to the deliberate actions of AM in contributing to the situation in which he had limbo status as a material factor in its proportionality analysis. Furthermore [96] the UT erred in its assessment of the strength of the public interest that AM should be removed and, if that was not possible, that he should be maintained by the state with limbo status rather than granted LTR.
On considering Private Life 276ADE of the Immigration Rules (as applicable at the relevant time, now replaced by Appendix Private Life) and the potential impact of circumvention of immigration controls, the Court noted that the UT had made an additional error in evaluating the public interest in the individual’s removal. If removal was not possible, the individual would remain in a state of limbo, dependent on the State, rather than being granted LTR. The Court emphasised that Paragraph 276ADE reflects the SSHD’s policy on granting LTR when specific conditions are met and does not address the weight of the public interest in enforcing immigration controls for the broader application of Article 8. Therefore, the UT’s reliance on Paragraph 276ADE was misplaced.
An individual who has lived illegally in a country for twenty years is typically eligible to apply for legal status under Immigration Rules. However, AM was ineligible for this option due to his criminal record, which disqualified him based on the suitability criteria for that pathway. As a result, he had to depend on human rights grounds for his case.
When an individual’s state of limbo results from circumstances beyond their control, or they are destitute, have genuine prospects of employment, or have established personal or family ties, the issue remains one of proportionality, meaning the outcome is not guaranteed. Even if an individual’s limbo status is entirely self-inflicted, there is no legal rule that precludes a proportionality assessment.
Consequently, [104] it fell to the Supreme Court to determine whether Article 8 obliged the SSHD to grant LTR to AM. Whilst Lord Sales found that Article 8 was engaged [107], he found that the decision to maintain AM in limbo was in accordance with law [108] and was proportionate in that the decision struck a fair balance between AM’s rights and interests and the general interest of the community in the state maintaining effective immigration controls and focusing state benefits and other resources on citizens and lawful immigrants [117].
Lord Sales added that granting AM LTR would create an incentive for others to do their best to obstruct their removal as well, ‘thereby directly undermining the due operation and enforcement of the United Kingdom’s immigration controls’.
Outcome
The Supreme Court allowed the SSHD’s appeal and dismissed AM’s claim under Article 8 ECHR to be granted LTR.
It will be interesting to observe how this precedent is applied in future cases, particularly in the context of the Illegal Migration Act 2023. The new legislation prohibits the government from granting immigration status to anyone who has entered the country illegally after 7 March 2023. However, an exception exists if refusing the grant of status would violate an individual’s human rights, in which case Article 8 ECHR and sections 117A to 117C of the Nationality, Immigration and Asylum Act 2002 must be considered.