© 2024 by Michael Firth KC, Gray's Inn Tax Chambers
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N2-9. EU law after Brexit
Withdrawal Act (and subsequent legislation) is a complete code re continued effects of EU law
"[59] The parties put forward two alternative analyses to explain how the Liptons' cause of action arising from their cancelled flight was carried forward post-Brexit. In summary they are as follows:
a. The Complete Code analysis. This approach regards the Withdrawal Act 2018 as a complete code by which Parliament dealt comprehensively with the application in the United Kingdom of EU law following IP completion day. According to the Complete Code analysis, where a set of facts occur pre-Brexit which, having regard to EU law which applied at that time, gives rise to a cause of action, the claimant's right to pursue that cause of action is brought forward as part and parcel of the bringing forward of the law itself under whichever of sections 2, 3 or 4 is relevant. The scope of that cause of action is subject then to whatever limitations are placed upon it by other provisions of the Withdrawal Act 2018 as is clear, for example, from the provisions restricting Francovich damages claims.
b. The Interpretation Act analysis. This approach regards the Withdrawal Act 2018 as bringing forward only the instrument containing the EU law but not causes of action that have accrued by virtue of the application of the instrument prior to Brexit. According to the Interpretation Act analysis, where a set of facts occurs pre-Brexit which, having regard to an EU law which applied at the time, gives rise to a cause of action, the claimant's right to pursue that cause of action is saved by the application of section 16 of the Interpretation Act. This is subject, of course, to those provisions of the Withdrawal Act 2018 which limit or erode that cause of action in some way after Brexit.
...
[83] Our conclusion is that the Complete Code analysis and not the Interpretation Act analysis is the right one, according to the true construction of the Withdrawal Act 2018. Section 3 of the Withdrawal Act 2018 is effective not only to bring forward into domestic law as "retained EU law" the text of Regulation 261 itself as it was "operative immediately before IP completion day", that is to say in the form of the EU text of the Regulation. It also brings forward accrued causes of actions such as the Liptons' arising under direct EU legislation within the meaning of section 3." (Lipton v. BA Cityflyer Ltd [2024] UKSC 24)
​
LEGISLATION AND RIGHTS
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EU derived domestic legislation continues to have effect
"(1) EU-derived domestic legislation, as it has effect in domestic law immediately before IP completion day, continues to have effect in domestic law on and after IP completion day.
...
(3)This section is subject to section 5 and Schedule 1 (exceptions to savings and incorporation) and section 5A (savings and incorporation: supplementary)" (EU (Withdrawal) Act 2018, s.2)
​​​​​
Note the reference to continuing to have effect "as it had effect in domestic law immediately before..."
​
- Meaning of EU-derived domestic legislation
​
"(7) In this Act “EU-derived domestic legislation” means any enactment so far as—
(a) made under section 2(2) of, or paragraph 1A of Schedule 2 to, the European Communities Act 1972,
(b) passed or made, or operating, for a purpose mentioned in section 2(2)(a) or (b) of that Act,
(c) relating to—
(i) anything which falls within paragraph (a) or (b), or
(ii) any rights, powers, liabilities, obligations, restrictions, remedies or procedures which are recognised and available in domestic law by virtue of section 2(1) of the European Communities Act 1972, or
(d) relating otherwise to the EU or the EEA,but does not include any enactment contained in the European Communities Act 1972 or any enactment contained in this Act or the European Union (Withdrawal Agreement) Act 2020 or in regulations made under this Act or the Act of 2020." (EU (Withdrawal) Act 2018, s.1B)
​
- Includes domestic VAT legislation
​
"[109] The VATA and the VATR are 'EU-derived domestic legislation' as defined by s 1B(7) of the European Union (Withdrawal) Act 2018. Section 2 of that Act provides that EU-derived domestic legislation, as it has effect in domestic law immediately before 31 December 2020 ('IP completion day'), continues to have effect in domestic law on and after that day. Under s 5 of that Act the principle of supremacy of EU law continues to apply so far as relevant to the interpretation, disapplication or quashing of any enactment or rule of law passed or made before IP completion day." (Tower Bridge GP Limited v. HMRC [2022] EWCA Civ 998, Lewison LJ)
​
- Certain repeals from 1 January 2024
​
"(1) Legislation listed in Schedule 1 is revoked at the end of 2023, to the extent specified there.
(2) In that Schedule—
(a) Part 1 lists subordinate legislation;
(b) Part 2 lists retained direct EU legislation." (Retained EU Law (Revocation and Reform) Act 2023, s.1)
​
Direct EU legislation incorporated
"Direct EU legislation, so far as operative immediately before IP completion day, forms part of domestic law on and after IP completion day." (EU (Withdrawal) Act 2018, s.3)
​
Direct EU legislation
​
(2) In this Act “direct EU legislation” means—
(a) any EU regulation, EU decision or EU tertiary legislation, as it has effect in EU law immediately before IP completion day and so far as—
(ai) it is applicable to and in the United Kingdom by virtue of Part 4 of the withdrawal agreement,
(bi) it neither has effect nor is to have effect by virtue of section 7A or 7B,
(i) it is not an exempt EU instrument (for which see section 20(1) and Schedule 6), and
...
(iii)its effect is not reproduced in an enactment to which section 2(1) applies,..." (EU (Withdrawal) Act 2018, s.3)
​
- Read references to EU legislation as references to the incorporated legislation
"(1) Any reference so far as it, immediately before IP completion day—
(a) exists in—
(i) any enactment,
(ii) any EU regulation, EU decision, EU tertiary legislation or provision of the EEA agreement which is to form part of domestic law by virtue of section 3, or
(iii) any document relating to anything falling within sub-paragraph (i) or (ii), and
(b) is a reference to (as it has effect from time to time) any EU regulation, EU decision, EU tertiary legislation or provision of the EEA agreement which is to form part of domestic law by virtue of section 3,
is to be read, on or after IP completion day, as a reference to the EU regulation, EU decision, EU tertiary legislation or provision of the EEA agreement as it forms part of domestic law by virtue of section 3 and, unless the contrary intention appears, as modified by domestic law from time to time." (EU (Withdrawal) Act 2018, Sch 8, para 1)
​
- Incorporated EU legislation only modifiable in certain ways
"(4A) Assimilated direct legislation may only be modified by—
(a) primary legislation, or
(b) subordinate legislation so far as it is made under a power which permits such a modification by virtue of—
(i) paragraph 3, 8(3), 11A, 11B or 12(3) of Schedule 8,
(ii) any other provision made by or under this Act,
(iii) any provision made by or under an Act of Parliament passed before, and in the same Session as, this Act, or
(iv) any provision made on or after the passing of this Act by or under primary legislation." (EU (Withdrawal) Act 2018, s.7)
​​
"“assimilated direct legislation” means any direct EU legislation which forms part of domestic law by virtue of section 3 (as modified by or under this Act or by other domestic law from time to time, and including any instruments made under it on or after IP completion day)" (EU (Withdrawal) Act 2018, s.20(1))
​
- Certain repeals from 1 January 2024
​
"(1) Legislation listed in Schedule 1 is revoked at the end of 2023, to the extent specified there.
(2) In that Schedule—
(a) Part 1 lists subordinate legislation;
(b) Part 2 lists retained direct EU legislation." (Retained EU Law (Revocation and Reform) Act 2023, s.1)
​
- Remaining direct EU legislation to be read compatibly with and subject to domestic enactments from 2024
​
"(A2) Any provision of retained direct EU legislation—
(a) must, so far as possible, be read and given effect in a way which is compatible with all domestic enactments, and
(b) is subject to all domestic enactments, so far as it is incompatible with them." (prospective EU (Withdrawal) Act 2018, s.5(A1), inserted by (Retained EU Law (Revocation and Reform) Act 2023, s.3)
​
"(3) The other provisions of this Act come into force on such day as a Minister of the Crown may by regulations appoint." (Retained EU Law (Revocation and Reform) Act 2023, s.22(3))
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Domestic enactment
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"(8) In this section “domestic enactment” means an enactment other than one consisting of retained direct EU legislation.” (prospective EU (Withdrawal) Act 2018, s.5(A1), inserted by (Retained EU Law (Revocation and Reform) Act 2023, s.3)
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No application to events occurring before end of 2023
​
"(5) Sections 2, 3 and 4 do not apply in relation to anything occurring before the end of 2023." (Retained EU Law (Revocation and Reform) Act 2023, s.22(5))
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Preservation of EU derived rights and obligations (including direct effect)
"(1) Any rights, powers, liabilities, obligations, restrictions, remedies and procedures which, immediately before IP completion day—
(a) are recognised and available in domestic law by virtue of section 2(1) of the European Communities Act 1972, and
(b) are enforced, allowed and followed accordingly,
continue on and after IP completion day to be recognised and available in domestic law (and to be enforced, allowed and followed accordingly)." (EU (Withdrawal) Act 2018, s.4)
​
- Exclusion for rights etc. not of a kind recognised by court or tribunal in pre-Brexit case
"(2) Subsection (1) does not apply to any rights, powers, liabilities, obligations, restrictions, remedies or procedures so far as they—
(a)form part of domestic law by virtue of section 3,
(aa) are, or are to be, recognised and available in domestic law (and enforced, allowed and followed accordingly) by virtue of section 7A or 7B, or
(b) arise under an EU directive (including as applied by the EEA agreement) and are not of a kind recognised by the European Court or any court or tribunal in the United Kingdom in a case decided before IP completion day (whether or not as an essential part of the decision in the case)." (EU (Withdrawal) Act 2018, s.4)
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- Sufficient that there is a close relationship with a provision recognised as having direct effect
"[91] The court did not rule on the question of whether article 6(2) has direct effect. Section 4(3) does not, however, require that the particular provision in issue (here article 6(2)) has been held to have direct effect. It only requires that it is "of a kind" that has been held to have direct effect. There is a close relationship between article 6(2) and 6(3). They both require the national authorities to take steps to achieve the aims of the Habitats Directive and, in particular, to avoid deterioration of habitats and significant disturbance of species in the special areas of conservation. Article 6(3) applies prospectively. Article 6(2) enables a retrospective check that the article 6(3) steps remain adequate. Article 6(2) is thus "of a kind" that was recognised in Waddenzee as having direct effect." (Harris v. Environment Agency [2022] EWHC 2264 (Admin), Johnson J)
​​​
- Irrelevant whether domestic decision may have been per incuriam
"[93]...In addition, even if Warren was decided per incuriam, that is not relevant to the section 4(2) test. That test is satisfied once a case is identified that recognises article 6(2) as being enforceable in domestic proceedings. The statute expressly provides that it is not necessary for that to be an essential part of the court's decision. It is not relevant to the section 4(2) test to enquire as to whether the case was correctly decided or was decided per incuriam. The position might be different if the decision had been overturned on appeal, or later overruled, but that is not the case here." (Harris v. Environment Agency [2022] EWHC 2264 (Admin), Johnson J)
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- Recognition need not be part of the ratio of the case
"[51] In my view article 6(3) of the Habitats Directive continues to have effect in domestic law as a result of section 4(2)(b). Johnson J explained in Harris that the requirements of article 6(3) were accepted as binding by the CJEU in Waddenzee: [90]. Articles 6(2) and 6(3) of the Habitats Directive are closely related, so as to be "of a kind" with one another for the purposes of section 4: [91]. The demands of section 4(2)(b) are therefore met. The section is explicit that the recognition in the case law does not have to be by way of the ratio of a case "(whether or not as an essential part of the decision in the case)"." (C G Fry & Son Limited v. Secretary of State for Levelling Up Housing and Communities [2023] EWHC 1622 (Admin), Sir Ross Cranston)
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- Repealed (with prospective only effect) from 1 January 2024
"(1) Section 4 of the European Union (Withdrawal) Act 2018 (saving for rights, powers, liabilities etc under section 2(1) of the European Communities Act 1972) is repealed at the end of 2023.
(2) Accordingly, anything which, immediately before the end of 2023, is retained EU law by virtue of that section is not recognised or available in domestic law at or after that time (and, accordingly, is not to be enforced, allowed or followed)." (Retained EU Law (Revocation and Reform) Act 2023, s.2)
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"(5) Sections 2, 3 and 4 do not apply in relation to anything occurring before the end of 2023." (Retained EU Law (Revocation and Reform) Act 2023, s.22(5))
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- Continues to have effect when interpreting VAT and excise law
"(2) Section 4 of EUWA 2018 (retained EU rights, powers, liabilities etc) continues to have effect (despite the provision made by section 2 of REULA 2023) for the purpose of interpreting VAT and excise law subject to the following exception.
(3) The exception is that Articles 110 and 111 of the Treaty on the Functioning of the European Union (which relate to internal taxation on products) have no effect for that purpose." (FA 2024, s.28(2) - (3))
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DISAPPLICATION OF DOMESTIC LEGISLATION
​​
Supremacy of EU law only applies to laws passed before 31 December 2020
"(1) The principle of the supremacy of EU law does not apply to any enactment or rule of law passed or made on or after IP completion day.
(2) Accordingly, the principle of the supremacy of EU law continues to apply on or after IP completion day so far as relevant to the interpretation, disapplication or quashing of any enactment or rule of law passed or made before IP completion day." (EU (Withdrawal) Act 2018, s.5)
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Application to modifications after 31 December 2020 if consistent with intention of modification
​
"(3) Subsection (1) does not prevent the principle of the supremacy of EU law from applying to a modification made on or after IP completion day of any enactment or rule of law passed or made before IP completion day if the application of the principle is consistent with the intention of the modification." (EU (Withdrawal) Act 2018, s.5)
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Meaning of supremacy of EU law
​
"(1) References in section 5 and this Schedule to the principle of the supremacy of EU law, the Charter of Fundamental Rights, any general principle of EU law or the rule in Francovich are to be read as references to that principle, Charter or rule so far as it would otherwise continue to be, or form part of, domestic law on or after IP completion day by virtue of section 2, 3, 4 or 6(3) or (6) and otherwise in accordance with this Act.
(2) Accordingly (among other things) the references to the principle of the supremacy of EU law in section 5(2) and (3) do not include anything which would bring into domestic law any modification of EU law which is adopted or notified, comes into force or only applies on or after IP completion day." (EU (Withdrawal) Act 2018, Sch 1, para 5)
​
Supremacy repealed in relation to all legislation from 1 January 2024 (but only for events after 2023)
“(A1) The principle of the supremacy of EU law is not part of domestic law.This applies after the end of 2023, in relation to any enactment or rule of law (whenever passed or made)." (EU (Withdrawal) Act 2018, s.5(A1), inserted by (Retained EU Law (Revocation and Reform) Act 2023, s.3)
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"(3) The other provisions of this Act come into force on such day as a Minister of the Crown may by regulations appoint." (Retained EU Law (Revocation and Reform) Act 2023, s.22(3))
But see next section: questions of the validity of assimilated law to be determined in accordance with assimilated case law.
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No application to events occurring before end of 2023
​
"(5) Sections 2, 3 and 4 do not apply in relation to anything occurring before the end of 2023." (Retained EU Law (Revocation and Reform) Act 2023, s.22(5))
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INTERPRETATION OF DOMESTIC LEGISLATION
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Supremacy of EU law continues to apply when interpreting VAT and excise law (duty of consistent interpretation remains)
"(4) Section 5(A1) to (A3) of EUWA 2018 (which are inserted by section 3 of REULA 2023 and which abolish the supremacy of EU law) have effect in relation to VAT and excise law as they have effect in relation to other domestic enactments but only so far as they relate to the disapplication or quashing of any enactment as a result of EU law (and, accordingly, the superseded provisions continue to have effect for the purpose of interpreting VAT and excise law)." (FA 2024, s.28(4))
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- HMRC confirm duty of consistent interpretation continues to apply
"HMRC policy for VAT and excise is unchanged. Section 28, Finance Act 2024 means that UK VAT and excise legislation will continue to be interpreted in the same way as it was before 1 January 2024. Drawing on rights and principles that have always applied for interpreting UK law, including the principle of abuse. This means, principle of consistent interpretation (sometimes known as the ‘Marleasing’ principle) continues to apply in interpreting VAT and excise legislation.
However, businesses will no longer be able to rely on the ‘direct effect’ of EU law. It will no longer be possible for any part of UK legislation to be quashed or disapplied on the basis that it’s incompatible with EU law, as UK law is now supreme. This does not lead to any changes in HMRC policy." (Brief 4/2024)
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- Duty of consistent interpretation not intended to apply to other legislation
"[92] Subsection (A1) ends the principle of supremacy after the end of 2023 in relation to all domestic legislation, whenever made. This has the effect of removing the principle of consistent interpretation in relation to all domestic legislation, and the conflict rule requiring domestic legislation to give way to RDEUL where a consistent interpretation is not possible." (REULA 2023 explanatory notes)
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EU cases not binding if decided on or after 31 December 2020
"(1) A court or tribunal—
(a) is not bound by any principles laid down, or any decisions made, on or after IP completion day by the European Court, and
(b) cannot refer any matter to the European Court on or after IP completion day.
(2) Subject to this and subsections (3) to (6), a court or tribunal may have regard to anything done on or after IP completion day by the European Court, another EU entity or the EU so far as it is relevant to any matter before the court or tribunal." (EU (Withdrawal) Act 2018, s.6)
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- May nevertheless be a useful summary of principles from existing case law that is binding
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"[222] We agree with [the taxpayer] and with the UT in Gloucestershire Hospitals, and we find as follows:
(1) The Voucher Directive was issued long before IP Completion Day, and was implemented by Sch 10B for periods after 1 January 2019. The assessments under appeal are for periods after that date which end before IP Completion Day.
(2) Although we are not bound by DSAB, because it was issued after IP Completion Day, it provides helpful and relevant guidance as to the meaning of the Voucher Directive, and thus of Sch 10B. To borrow the words of the UT in Gloucestershire Hospitals in relation to Frenetikexito, the judgment in DSAB "attempts to summarise principles from existing law by which we are bound"." (Go City Limited v. HMRC [2024] UKFTT 745 (TC), Judge Redston)
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Assimilated/Retained EU law to be interpreted and applied in accordance with retained case law and (until January 2024) general principles (if unmodified)
Pre-January 2024
"(3) Any question as to the validity, meaning or effect of any retained EU law is to be decided, so far as that law is unmodified on or after IP completion day and so far as they are relevant to it—
(a) in accordance with any retained case law and any retained general principles of EU law, and
(b) having regard (among other things) to the limits, immediately before IP completion day, of EU competences." (EU (Withdrawal) Act 2018, s.6)
​
January 2024 onwards
"(3) Any question as to the validity, meaning or effect of any assimilated law is to be decided, so far as that law is unmodified on or after IP completion day and so far as they are relevant to it—
(a) in accordance with any assimilated case law, and
(b) having regard (among other things) to the limits, immediately before IP completion day, of EU competences." (EU (Withdrawal) Act 2018, s.6)
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Modified retained EU law can also be interpreted in accordance with retained case law and principles if consistent with intention
​
"(6) Subsection (3) does not prevent the validity, meaning or effect of any retained EU law which has been modified on or after IP completion day from being decided as provided for in that subsection if doing so is consistent with the intention of the modifications." (EU (Withdrawal) Act 2018, s.6)
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- Retained case law
“retained case law” means—
(a) retained domestic case law, and
(b) retained EU case law;" (EU (Withdrawal) Act 2018, s.6(7))
​
Retained domestic case law
​
“retained domestic case law” means any principles laid down by, and any decisions of, a court or tribunal in the United Kingdom, as they have effect immediately before IP completion day and so far as they—
(a) relate to anything to which section 2, 3 or 4 applies, and
(b) are not excluded by section 5 or Schedule 1,
(as those principles and decisions are modified by or under this Act or by other domestic law from time to time);" (EU (Withdrawal) Act 2018, s.6(7))
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Retained EU case law
​
“retained EU case law” means any principles laid down by, and any decisions of, the European Court, as they have effect in EU law immediately before IP completion day and so far as they—
(a) relate to anything to which section 2, 3 or 4 applies, and
(b) are not excluded by section 5 or Schedule 1,
(as those principles and decisions are modified by or under this Act or by other domestic law from time to time);​" (EU (Withdrawal) Act 2018, s.6(7))
​
- Retained general principles
“retained general principles of EU law” means the general principles of EU law, as they have effect in EU law immediately before IP completion day and so far as they—
(a) relate to anything to which section 2, 3 or 4 applies, and
(b) are not excluded by section 5 or Schedule 1,
(as those principles are modified by or under this Act or by other domestic law from time to time)." (EU (Withdrawal) Act 2018, s.6(7))
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- Principle of effectiveness is retained general principle
​
"[22] It was common ground between the parties that the principle of effectiveness was a “retained general principle of EU law” within the meaning of section 6(7) European Union (Withdrawal) Act 2018 (“EUWA 2018”) and that it should be given full effect in relation to the matters under consideration in these proceedings. The restriction in paragraph 3 Schedule 1 EUWA 20183 did not apply as a result of the application of the transitional provision in paragraph 39(3) Schedule 8 EUWA 2018 for proceedings begun before “IP completion day” (11pm on 31 December 2020)." (Hewitt v. HMRC [2021] UKUT 231 (TCC), Judge Scott and Judge Greenbank)
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- All general principles repealed from 2024
​
"(1) The European Union (Withdrawal) Act 2018 is amended as follows.
(2) In section 5 (exceptions to savings and incorporation)—
(a) after subsection (A3) (inserted by section 3(1)) insert—
“(A4) No general principle of EU law is part of domestic law after the end of 2023.”;
(b) omit subsection (5).
(3) In section 6 (interpretation)—
(a) in subsection (3)(a) omit “and any retained general principles of EU law”;
(b) in subsection (7) omit the definition of “retained general principles of EU law”." (Retained EU Law (Revocation and Reform) Act 2023, s.4)
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"(3) The other provisions of this Act come into force on such day as a Minister of the Crown may by regulations appoint." (Retained EU Law (Revocation and Reform) Act 2023, s.22(3))
No application to events occurring before end of 2023
​
"(5) Sections 2, 3 and 4 do not apply in relation to anything occurring before the end of 2023." (Retained EU Law (Revocation and Reform) Act 2023, s.22(5))
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- General principles continue to apply to interpreting VAT and excise law
"(5) Retained general principles of EU law—
(a) continue to be relevant (despite the provision made by section 4 of REULA 2023) for the purpose of interpreting VAT and excise law in the same way, and to the same extent, as they were relevant for that purpose before the coming into force of that section, but
(b) otherwise have effect for that purpose subject to the provision made by that Act (including, in particular, the amendments made by section 6 of that Act (role of courts))." (FA 2024, s.28(5))
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"[220] The Court held by a majority that the Complete Code analysis was correct. As can be seen from the underlined passages in Mr Beale's summary, he followed the Interpretation Act analysis. However, all the Assessments under appeal were issued before Brexit, so the Complete Code analysis gives the same result as the Interpretation Act analysis. In brief, the Appellant can rely on the law as it was before Brexit." (Go City Limited v. HMRC [2024] UKFTT 745 (TC), Judge Redston)
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Meaning of Retained EU law and Assimilated law
"“retained EU law” means anything which, on or after IP completion day, continues to be, or forms part of, domestic law by virtue of section 2, 3 or 4 or subsection (3) or (6) above (as that body of law is added to or otherwise modified by or under this Act or by other domestic law from time to time)" (EU (Withdrawal) Act 2018, s.2)
​​
"“assimilated law” means anything which, on or after IP completion day, continues to be, or forms part of, domestic law by virtue of section 2 or 3 or subsection (3) or (6) above (as that body of law is added to or otherwise modified by or under this Act or by other domestic law from time to time)" (EU (Withdrawal) Act 2018, s.6(7))
​
- VAT legislation is retained EU law
​
"[7] It is common ground between the parties that the withdrawal of the UK from the European Union (“EU”) has no impact at all on the issues in this case. While the UK was part of the EU, VAT was governed by EU Directives and those Directives were implemented in the UK by domestic statutes, in particular by the VAT Act. By reason of the European Union (Withdrawal) Act 2018 and the European Union (Withdrawal Agreement) Act 2020, the relevant EU law and EU derived domestic legislation is “retained EU law” after the implementation completion day (31 December 2020) but, in any event, the period with which this case is concerned expired before the implementation completion date." (News Corp UK & Ireland Ltd v. HMRC [2023] UKSC 7)
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"[109] The VATA and the VATR are 'EU-derived domestic legislation' as defined by s 1B(7) of the European Union (Withdrawal) Act 2018. Section 2 of that Act provides that EU-derived domestic legislation, as it has effect in domestic law immediately before 31 December 2020 ('IP completion day'), continues to have effect in domestic law on and after that day. Under s 5 of that Act the principle of supremacy of EU law continues to apply so far as relevant to the interpretation, disapplication or quashing of any enactment or rule of law passed or made before IP completion day." (Tower Bridge GP Limited v. HMRC [2022] EWCA Civ 998, Lewison LJ)
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- Renamed as "assimilated law" from 2024
​
See Retained EU Law (Revocation and Reform) Act 2023, s.5
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Departing from retained EU case law
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- Certain courts not bound by retained EU case law
"(4) But—
(a) the Supreme Court is not bound by any retained EU case law,
(b) the High Court of Justiciary is not bound by any retained EU case law when—
(i) sitting as a court of appeal otherwise than in relation to a compatibility issue (within the meaning given by section 288ZA(2) of the Criminal Procedure (Scotland) Act 1995) or a devolution issue (within the meaning given by paragraph 1 of Schedule 6 to the Scotland Act 1998), or
(ii) sitting on a reference under section 123(1) of the Criminal Procedure (Scotland) Act 1995,
(ba)a relevant court or relevant tribunal is not bound by any retained EU case law so far as is provided for by regulations under subsection (5A), and
(c) no court or tribunal is bound by any retained domestic case law that it would not otherwise be bound by." (EU (Withdrawal) Act 2018, s.6)
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- Apply same test as for departing from own case law
​
(5) In deciding whether to depart from any retained EU case law by virtue of subsection (4)(a) or (b), the Supreme Court or the High Court of Justiciary must apply the same test as it would apply in deciding whether to depart from its own case law." (EU (Withdrawal) Act 2018, s.6)
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"[80] Budvar is "retained EU case law" within section 6(7) of the European Union (Withdrawal) Act 2018, meaning that it continues to form part of domestic law after Brexit and continues to bind lower courts: section 6(3) of the 2018 Act. The Court of Appeal and the Supreme Court have power to depart from such judgments of the CJEU, but only on the same basis that the Supreme Court has power to depart from one of its own precedents or of one of the House of Lords in accordance with the Practice Statement (Judicial Precedent) [1966] 1 WLR 1234: see section 6(5A) of the 2018 Act and the European Union (Withdrawal) Act 2018 (Relevant Court) (Retained EU Case Law) Regulations 2020 (SI 2020/1525)." (Industrial Cleaning Equipment (Southampton) Limited v. Intelligent Cleaning Equipment Holdings Co Ltd [2023] EWCA Civ 1451, Arnold LJ)
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- Power to be exercised with great caution
"[81] In the domestic context both the House of Lords and the Supreme Court have consistently stated that this is a power to be exercised with great caution. As Lord Bingham of Cornhill said in Horton v Sadler [2006] UKHL 27, [2007] 1 AC 307 at [29] in a passage cited as continuing to be applicable by Lord Wilson in Peninsula Securities Ltd v Dunnes Stores Ltd (Bangor) Ltd [2020] UKSC 36, [2021] AC 1014 at [49] (two decisions in which the power was exercised):
"Over the past 40 years the House has exercised its power to depart from its own precedent rarely and sparingly. It has never been thought enough to justify doing so that a later generation of Law Lords would have resolved an issue or formulated a principle differently from their predecessors."" (Industrial Cleaning Equipment (Southampton) Limited v. Intelligent Cleaning Equipment Holdings Co Ltd [2023] EWCA Civ 1451, Arnold LJ)
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- Relevant whether the point is in the dispositif/final answer (rather than whether it is obiter)
"[82] Counsel for the Defendants argued that one factor that should make this Court readier to depart from Budvar was that, if it were a domestic precedent, what the Court said about knowledge would not form part of the ratio decidendi, but would constitute obiter dicta. In my view this factor is of little weight. The Court of Justice does not follow the rules of precedent which apply in domestic law. What is more important from the perspective of the Court's own jurisprudence is that the relevant point formed part of the dispositif. This is the Court's formal answer to the question of law which has been referred to it, and which the national court is obliged to apply." (Industrial Cleaning Equipment (Southampton) Limited v. Intelligent Cleaning Equipment Holdings Co Ltd [2023] EWCA Civ 1451, Arnold LJ)
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- CJEU decision unpersuasive because it contained no supporting analysis and was an isolated decision unlikely to have been widely relied on
"[83] Where I think that counsel for the Defendants was on stronger ground was in his submission that Budvar was unpersuasive because neither the Advocate General's Opinion nor the Court's judgment contained any analysis of the issue, but simply stated a bald conclusion. Furthermore, they do not appear to have had the benefit either of receiving any arguments on this point or of considering the reasoning in Ghibli. Still less did they review the considerations discussed in Combe and above.
[84] Furthermore, Budvar is an isolated judgment. Even the reasoned order in I Marchi Italiani, while restating the fourth condition identified in Budvar, is not entirely consistent with it. Thus the present case is very different to Warner Music UK Ltd v TuneIn Inc [2021] EWCA Civ 441, [2021] Bus LR 1119, where the Court of Justice had developed its jurisprudence on the issue of communication to the public of copyright works over the course of no less than 25 judgments, including three Grand Chamber judgments, and had far greater experience of the issue than this Court.
[85] I also think that it is significant that the case law of the General Court and the practice of EUIPO both appear to be at variance with Budvar. While it would be presumptuous for this Court to try to predict what the Court of Justice would decide if this issue came before it, there is at least a real possibility that it would endorse the approach of EUIPO and the General Court and depart from its previous decision.
[86] This is also relevant to the question of legal certainty. One of the main reasons why the Supreme Court is cautious about departing from its own precedents is that doing so risks undermining legal certainty. In the present case, however, this consideration is of little weight. Few trade mark proprietors are likely to have based their commercial strategies on this aspect of Budvar. Moreover, a well-advised trade mark proprietor would be aware that EUIPO and the General Court have taken a different approach and that the Court of Justice might depart from Budvar.
...
[89] Accordingly, I conclude that this Court should depart from Budvar to the extent of holding that the five year period starts to run when the proprietor of the earlier trade mark becomes aware of the use of the later trade mark and the later trade mark is in fact registered, whether or not the proprietor of the earlier trade mark is aware of the registration of the later trade mark." (Industrial Cleaning Equipment (Southampton) Limited v. Intelligent Cleaning Equipment Holdings Co Ltd [2023] EWCA Civ 1451, Arnold LJ)
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More cautious approach emphasising inconsistency with other cases
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"[121] Arnold LJ points out that neither the Advocate General nor the Court in Budvar provides any analysis of the position, simply stating a bald conclusion. This is true. But I think it is possible to discern the reasoning. Both the Advocate General in her Opinion (at [74]) and the Court in its Judgment (at [53]) say in terms that it is "the wording of Art 9(1) of the Directive" which shows, or from which it is apparent, that the four conditions must be satisfied. The relevant wording is set out in the judgment of Arnold LJ at paragraph 67 above. In Article 9(1) of Directive 89/104, the relevant words are "has acquiesced, for a period of five successive years, in the use of a later trade mark registered in that Member State while being aware of such use". Since the proprietor of the earlier right must be "aware of such use", the question is what "such use" means. Does it mean only that he must be aware of the use of a mark which is in fact registered in that Member State, or does it mean that he must be aware of the fact that what was being used was a mark registered in that Member State? Purely as a matter of language the latter is a perfectly tenable reading. Indeed to my mind it might be thought to be the more natural one, or in other words that the relevant question to ask the proprietor of the earlier right is "Were you aware that a registered trade mark was being used?".
[122] In those circumstances I think it doubtful whether the mere fact that a different reading was tenable and might seem preferable would have been sufficient to justify departing from the Court of Justice's interpretation. It is not enough that a subsequent court simply comes to a different view on a question from an earlier court. But as Arnold LJ's masterly analysis convincingly shows, not only is there an alternative reading available, but there does appear to be a divergence (surprising as this may seem to our eyes) between on the one hand the approach adopted by the OHIM/EUIPO and the General Court in Ghibli and later cases, and on the other the position of the Court of Justice in Budvar which suggests that the question is not regarded as settled at European level; and the wider context, the objectives of the legislation and practical considerations all suggest that the better view is that the proprietor of the earlier right need only be aware of the use of the later mark, not of the fact of its registration. In those circumstances I am persuaded that this is indeed a case where we can and should exercise the new freedom to depart from retained EU case law as Arnold LJ suggests." (Industrial Cleaning Equipment (Southampton) Limited v. Intelligent Cleaning Equipment Holdings Co Ltd [2023] EWCA Civ 1451, Nugee LJ with whom King LJ agreed)
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Departing from retained EU/domestic case law (from October 2024)
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- Wider powers to depart from/overrule retained case law not brought into force
See amendments Retained EU Law (Revocation and Reform) Act 2023, s.6 would have been brought into force by SI 2024/714.​
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SI 2024/714 revoked by SI 2024/976
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EXCEPTIONS AND SAVINGS
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Exceptions
- No Charter of Fundamental Rights
"(4) The Charter of Fundamental Rights is not part of domestic law on or after IP completion day.
(5) Subsection (4) does not affect the retention in domestic law on or after IP completion day in accordance with this Act of any fundamental rights or principles which exist irrespective of the Charter (and references to the Charter in any case law are, so far as necessary for this purpose, to be read as if they were references to any corresponding retained fundamental rights or principles)." (EU (Withdrawal) Act 2018, s.5)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No rights and obligations etc. arising under an EU directive but not recognised in a case decided before 31 December 2020
(2) Subsection (1) does not apply to any rights, powers, liabilities, obligations, restrictions, remedies or procedures so far as they—
[...]
(b) arise under an EU directive (including as applied by the EEA agreement) and are not of a kind recognised by the European Court or any court or tribunal in the United Kingdom in a case decided before IP completion day (whether or not as an essential part of the decision in the case)." (EU (Withdrawal) Act 2018, s.4)
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See further, above on the meaning of this provision.
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Saving for rights and obligations recognised by UK court/tribunal in a case begun before IP completion day
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"Section 4(2)(b) does not apply in relation to any rights, powers, liabilities, obligations, restrictions, remedies or procedures so far as they are of a kind recognised by a court or tribunal in the United Kingdom in a case decided on or after IP completion day but begun before IP completion day (whether or not as an essential part of the decision in the case)." (EU (Withdrawal) Act 2018, Sch 8, para 38)
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- No new general principles
"No general principle of EU law is part of domestic law on or after IP completion day if it was not recognised as a general principle of EU law by the European Court in a case decided before IP completion day (whether or not as an essential part of the decision in the case)." (EU (Withdrawal) Act 2018, Sch 1, para 2)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No right of action based on failure to comply with general principles of EU law
"There is no right of action in domestic law on or after IP completion day based on a failure to comply with any of the general principles of EU law." (EU (Withdrawal) Act 2018, Sch 1, para 3)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No disapplication of enactment or rule of law due to incompatibility with general principles of EU law
"(2) No court or tribunal or other public authority may, on or after IP completion day —
(a) disapply or quash any enactment or other rule of law
[...]
because it is incompatible with any of the general principles of EU law." (EU (Withdrawal) Act 2018, Sch 1, para 3)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No quashing of conduct due to incompatibility with general principles of EU law
"(2) No court or tribunal or other public authority may, on or after IP completion day —
[...]
(b)quash any conduct or otherwise decide that it is unlawful,
because it is incompatible with any of the general principles of EU law." (EU (Withdrawal) Act 2018, Sch 1, para 3)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No EU law right to damages for breach of EU law
"There is no right in domestic law on or after IP completion day to damages in accordance with the rule in Francovich." (EU (Withdrawal) Act 2018, Sch 1, para 4)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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- No right to new challenge to retained EU law on the basis that EU instrument was invalid
(1) There is no right in domestic law on or after IP completion day to challenge any retained EU law on the basis that, immediately before IP completion day, an EU instrument was invalid.
(2) Sub-paragraph (1) does not apply so far as—
(a) the European Court has decided before IP completion day that the instrument is invalid, or
(b) the challenge is of a kind described, or provided for, in regulations made by a Minister of the Crown." (EU (Withdrawal) Act 2018, Sch 1, para 1)
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Subject to savings, applies to anything occurring before or after IP completion day
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"Subject as follows and subject to relevant separation agreement law (for which see section 7C) and any provision made by regulations under section 23(6) of this Act or section 41(5) of the European Union (Withdrawal Agreement) Act 2020, section 5(4) and paragraphs 1 to 4 of Schedule 1 apply in relation to anything occurring before IP completion day (as well as anything occurring on or after IP completion day)." (EU (Withdrawal) Act 2018, Sch 8, para 39(1))
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Savings
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- Proceedings begun but not finally decided before 31 December 2020: charter of rights, general principles and Francovich apply in full
"Section 5(4) and paragraphs 3 and 4 of Schedule 1 do not apply in relation to any proceedings begun, but not finally decided, before a court or tribunal in the United Kingdom before IP completion day." (EU (Withdrawal) Act 2018, Sch 8, para 39(3))
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- Proceedings begun by 31 December 2023 relating to pre-IP completion day events: greater scope to rely on general principles of EU law to challenge conduct
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"Paragraph 3 of Schedule 1 does not apply in relation to any proceedings begun within the period of three years beginning with IP completion day so far as—
(a) the proceedings involve a challenge to anything which occurred before IP completion day, and
(b) the challenge is not for the disapplication or quashing of—
(i) an Act of Parliament or a rule of law which is not an enactment, or
(ii) any enactment, or anything else, not falling within sub-paragraph (i) which, as a result of anything falling within that sub-paragraph, could not have been different or which gives effect to, or enforces, anything falling within that sub-paragraph." (EU (Withdrawal) Act 2018, Sch 8, para 39(5))
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- Proceedings for Francovich damages begun by 31 December 2022
"Paragraph 4 of Schedule 1 does not apply in relation to any proceedings begun within the period of two years beginning with IP completion day so far as the proceedings relate to anything which occurred before IP completion day" (EU (Withdrawal) Act 2018, Sch 8, para 39(3))
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- Conduct occurring before 31 December 2020 giving rise to criminal liability
EU validity may be challenged and general principles (including new ones) may be relied on in full
"Paragraphs 1 to 4 of Schedule 1 do not apply in relation to any conduct which occurred before IP completion day which gives rise to any criminal liability." (EU (Withdrawal) Act 2018, Sch 8, para 39(3))
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Implementation period (31 January 2020 to 31 December 2020)
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- Status quo broadly maintained during the implementation period​
"(1) Subsections (2) to (4) have effect despite the repeal of the European Communities Act 1972 on exit day by section 1.
(2) The European Communities Act 1972, as it has effect in domestic law or the law of a relevant territory immediately before exit day, continues to have effect in domestic law or the law of the relevant territory on and after exit day so far as provided by subsections (3) to (5)." (EU (Withdrawal) Act 2018, s.1A)
"(1) Subsections (2) to (5) have effect despite the repeal of the European Communities Act 1972 on exit day by section 1.
(2) EU-derived domestic legislation, as it has effect in domestic law immediately before exit day, continues to have effect in domestic law on and after exit day, subject as follows." (EU (Withdrawal) Act 2018, s.1B)
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Read with withdrawal agreement
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"(3) The Act of 1972 has effect on and after exit day as if —
(a) the definitions of “the Treaties” and “the EU Treaties” given by section 1(2) to (4) (interpretation)—
(i) included Part 4 of the withdrawal agreement (implementation period), other than that Part so far as it relates to, or could be applied in relation to, the Common Foreign and Security Policy, but
(ii) were otherwise limited to anything which falls within those definitions as at immediately before exit day so far as it is not excluded by regulations made on or after exit day by a Minister of the Crown under this sub-paragraph,
(b) the reference in section 2(2) to the objects of the EU were a reference to those objects so far as they are applicable to and in the United Kingdom by virtue of Part 4 of the withdrawal agreement,
(c) section 2(3) (payment of EU costs etc.) were omitted,
(d) in section 3 (decisions on, and proof of, EU Treaties and EU instruments etc.)—
(i) the references to the Treaties in subsections (1) and (2) included the withdrawal agreement, and
(ii) the words in brackets in subsection (1) only applied so far as they are in accordance with Part 4 of the withdrawal agreement,
(e) references in sections 5 and 6 (customs duties and common agricultural policy) to the common customs tariff of the EU, directly applicable EU provision, the exclusion of customs duties, EU arrangements and agricultural levies of the EU were to such things so far as they are applicable to and in the United Kingdom by virtue of Part 4 of the withdrawal agreement, and
(f) in Part 2 of Schedule 1 (general definitions in relation to the EU)—
(i) in the definition of “EU customs duty”, the reference to directly applicable EU provision were to such provision so far as it is applicable to and in the United Kingdom by virtue of Part 4 of the withdrawal agreement, and
(ii) in the definition of “Member” in the expression “member State”, after “EU” there were inserted “ and for the purposes of this expression the United Kingdom is to be treated as if it were a member of the EU during the implementation period (within the meaning given by section 1A(6) of the European Union (Withdrawal) Act 2018) ”." (EU (Withdrawal) Act 2018, s.1A)
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EU-derived domestic legislation
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"(7) In this Act “EU-derived domestic legislation” means any enactment so far as—
(a) made under section 2(2) of, or paragraph 1A of Schedule 2 to, the European Communities Act 1972,
(b) passed or made, or operating, for a purpose mentioned in section 2(2)(a) or (b) of that Act,
(c) relating to—
(i) anything which falls within paragraph (a) or (b), or
(ii) any rights, powers, liabilities, obligations, restrictions, remedies or procedures which are recognised and available in domestic law by virtue of section 2(1) of the European Communities Act 1972, or
(d) relating otherwise to the EU or the EEA,but does not include any enactment contained in the European Communities Act 1972 or any enactment contained in this Act or the European Union (Withdrawal Agreement) Act 2020 or in regulations made under this Act or the Act of 2020." (EU (Withdrawal) Act 2018, s.1B)
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Repeal on 31 December 2020
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"(5) Subsections (1) to (4) are repealed on IP completion day." (EU (Withdrawal) Act 2018, s.1A)
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"(6) Subsections (1) to (5) are repealed on IP completion day." (EU (Withdrawal) Act 2018, s.1B)
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"“IP completion day” means 31 December 2020 at 11.00 p.m (and see subsections (2) to (5));" (EU (Withdrawal) Act 2020, s.39)
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