[2022] UKSC 27
On appeal from: 2020 EWCA Civ 387
JUDGMENT
Guest and another (Appellants) v Guest (Respondent)
before
Lord Briggs
Lady Arden
Lord Leggatt
Lord Stephens
Lady Rose
19 October 2022
Heard on 2 December 2021
Appellants (David George Guest and Josephine Guest)
Thomas Dumont KC
William Moffett
(Instructed by Thrings LLP (Bristol))
Respondent (Andrew Charles Guest)
Penelope Reed KC
Philip Jenkins
(Instructed by Clarke Wilmott LLP (Taunton))
LORD BRIGGS (with whom Lady Arden and Lady Rose agree)
“One day my son, all this will be yours”. Spoken by a farmer to his son when in his teens, and repeated for many years thereafter. Relying on that promise of inheritance from his father, the son spends the best part of his working life on the farm, working at very low wages, accommodated in a farm cottage, in the expectation that he will succeed his father as owner of the farm, to be able to continue farming there, and in due course to pass on the farm to his own children.
Many years later, father and son fall out. It does not matter who is to blame for the falling out, but they can no longer work together or even live in close proximity. The son has no alternative but to leave, to find alternative work and rented accommodation for himself and his family elsewhere. Meanwhile the father cuts him out of his will. The facts of this case differ from the above common example only because the father David Guest has two sons, Andrew and Ross as well as a daughter Jan. Andrew was not promised the whole of the farm (“Tump Farm”) as an inheritance, but only a sufficient (but undefined) part of it to enable him to operate a viable farming business on it after the death of his parents.
What if anything can the law do for Andrew? There is no contract between them which Andrew can enforce. The farm was not put into trust for the parents for life with remainder to be shared between Andrew, Ross and Jan. The Inheritance (Provision for Family and Dependants) Act 1975 is unlikely to assist Andrew because he can still earn a living. Anyway his parents may have many years to live. And the farmhouse is their home. Most people would think that Andrew has been very unfairly treated by his father, but many would also think it strange if the court were to require David to give Andrew a viable share of the farm now, when he had promised to do so only upon his and his wife’s death. Why should Andrew receive a share of the farm earlier than he had been promised it, because of a family dispute for which he may have been no less to blame (if blame is the right word at all) than his father?
Providing a remedy for Andrew is a task for which the courts have recourse to equitable principles. One of the principal functions of equity is to put right injustice to which the law is otherwise blind, by restraining the rigid application of legal rules where their implementation would be unconscionable. Two legal rules are engaged here. The first is that a promise is not enforceable unless it is made part of a contract. The second is that a person is free to change his will until he dies (or loses mental capacity to do so). David was, in accordance with those rules both free to renege upon his promise to Andrew, and to do so both by evicting him and then changing his will. But equity may in such circumstances provide the promisee (here Andrew) with a remedy if a promise has been made to confer property upon him in the future, (or an informal assurance that the property is already his) in reliance upon which he has acted to his detriment. The remedy is called proprietary estoppel. The word “proprietary” reflects the fact that the remedy is all about promises to confer interests in property, usually land. The perhaps quaint word “estoppel” encapsulates the notion that the equitable wrong which has been threatened or done is the repudiation of the promise where it would be unconscionable for the promisor to do. So the equitable remedy is to restrain, or stop or “estop” the promisor from reneging on the promise. The court may require the promise to be performed by the promisor or, if he has died in the meantime, by or at the cost of his estate. It may in limited circumstances affect successors in title of the promisor to the relevant property.
Equitable remedies are generally more flexible than those afforded by the common law and they are always discretionary. The very notion of the specific enforcement (or performance) even of a contractual promise is equitable in origin. It exists to fill the lacuna in the common law remedy of damages, where the nature of the underlying property is such that damages would be an inadequate remedy. But there is no cause of action for damages for breach of a non-contractual promise. Equity is not in this context merely providing an ancillary remedy in support of a common law cause of action, for which damages is the primary remedy. Under the doctrine of proprietary estoppel the specific enforcement of the promise or assurance is the primary remedy for the unconscionability threatened or occasioned by its breach.
Nonetheless there have been many cases where the court has recognised that full specific enforcement is not the appropriate remedy. The promise may be incapable of specific enforcement, for example where the underlying property is no longer in the hands of the promisor or his estate. The promised date for performance may lie so far in the future, or the date may be so unpredictable, that an order for performance on the promised date would be too insubstantial as a remedy. Or the early enforcement in full of a promise which, although repudiated, is years away from the due date for performance may give the promisee too much, or something radically different from that which was promised. The promisor may have other powerful equitable or moral claims on his bounty, so that the appropriation of the whole of the promised property to meet the claim of the promisee may be unjust to those other claimants, and be more the cause of unconscionable conduct than a remedy for it. Finally the magnitude of specific enforcement in full may be so disproportionate to the detriment undertaken by the promisee that something much less than full specific enforcement is needed to clear the conscience of the promisor.
These real-life difficulties (and those outlined above are only a few examples) have come to mean that in the field of proprietary estoppel equity is regarded as being at its most flexible in terms of remedy. Furthermore the lack of any necessary or even likely equivalence between the value of the expectation generated by the promise and the burden of the detriment undertaken in reliance on it has led, during the last 25 years, to a fundamental divergence of view about which, as between satisfying the expectation and compensating for the detriment, is or rather should be the true underlying aim of the remedy. The divergence is best understood, at the academic level, by reading Elizabeth Cooke’s The Modern Law of Estoppel (2000) and Ben McFarlane’s The Law of Proprietary Estoppel, 2nd ed (2020). It is mentioned by Robert Walker LJ in Jennings v Rice [2003] 1 P & CR 8, by Dyson LJ in Cobbe v Yeoman’s Row Management Ltd [2006] 1 WLR 2964, by Lewison LJ in Davies v Davies [2016] 2 P & CR 10 and by Floyd LJ in the Court of Appeal in the present case [2020] 1 WLR 3480. It even continued on the internet during the hearing of this appeal. It has been complicated by the well-known but often misunderstood dictum of Scarman LJ in Crabb v Arun District Council [1976] Ch 179, 198 that the court’s remedy in that case was “the minimum equity to do justice”. Mr Tom Dumont KC for the Appellants placed this dictum in the forefront of his submissions, describing it as the golden thread which explains the nature and purpose of the remedy.
I shall in due course examine some of the many authorities to ascertain whether they answer this supposed conundrum. Relief on the ground of proprietary estoppel is a purely judge-made remedy, so that the assistance from authority is, if available, likely to be compelling. That said, the dicta mentioned above do not suggest that the search is likely to be a short or simple one. But it is worthwhile first to look at the problem from the perspective of first principles, free from authority. As I have already said, the remedy afforded under the label of proprietary estoppel is there to eliminate, or at least mitigate, the affront to conscience constituted by a decision by the maker of a non-contractual promise or assurance about property upon which the recipient has relied to their detriment to go back on it. Although part of the same doctrine, I can leave aside the cases about the informal assurance of a supposed existing right, because this case is about a promise of a future interest, no more and no less.
The equitable “wrong” (if that is the right word) is not the making of the promise in the first place. In almost all the cases, and certainly this one, the promise was genuinely made, in complete good faith, typical of the relations between a farmer and his eldest son, and it was adhered to over more than 25 years. Nor is the detrimental reliance to be classified as harm in any conventional sense. It is usually (and was in this case) something freely and willingly undertaken in the expectation of the fulfilment of the promise, not being daily counted as a cost, still less resented at the time when it was being incurred. Nor is it something which can necessarily or even usually be valued. In the present case, as in many where the promisee is a young person who gives up other career opportunities to work for their parents on the family farm, a measure of the supposed wages differential to date, coupled with interest, will not begin to recognise the improvement in life which further education, an independent career and the opportunities to develop their own farming or other business might have generated. A modest home, bought on an 80% LTV mortgage twenty-five years ago could itself now be worth hundreds of thousands of pounds, because of the meteoric rise in property prices.
Nonetheless the detriment is relevant to both the arising of the equity and to the remedy. Without reliant detriment there is simply no equity at all. This reflects the notion that it is the reliant detriment which makes it unconscionable for the promisor to go back on his promise. Detriment is relevant to remedy because a slavish enforcement of the promise may be so completely disproportionate to the detriment that it goes much further than necessary to put right the unconscionability inherent in the repudiation of the promise. A simple example will suffice. Suppose that a disabled 50 year old person with no expectation of an early death secures a commitment by her carer to look after her at very low wages for the rest of her life, on the assurance that she will inherit her large mansion. But she dies only three months later, without making a will to give effect to her promise. Plainly some compensation less than the mansion would be sufficient to remedy any unconscionability.
But the harm caused by the repudiation of the promise is not the same as the detriment. That lies entirely in the past. It cannot be undone and is in no sense caused by the repudiation, or by any wrong at all (unless the original promise was dishonest, in which there would be a cause of action in deceit). In a case like the present the harm consists of the soul-destroying, gut-wrenching realisation of being deprived, and then actually being deprived over the rest of a lifetime, of an expected inheritance of land upon which the promisee has spent the whole of his life and work to date and which, in due course, he expected to be able to pass on to one or more of his own children, making the same promise to them as his father made to him. Again that cannot necessarily be valued with any reliability, not least if (as here) the expectation of inheritance still lies mainly in the future at the time when the promise is repudiated. Discount for the accelerated receipt of a future benefit is an imperfect tool, as has been vividly demonstrated in the field of personal injuries litigation.
It is true that the common law courts have developed a formidable armoury for valuing or monetising harm (and for present purposes even detriment) in comparable circumstances, and even for treating some kinds of what a lay person would easily recognise as harm as being too remote on policy grounds. So if the only difficulty in identifying compensation for detriment or fulfilment of expectation as the true purpose of proprietary estoppel was difficulty in quantification in monetary terms, that might perhaps not be insuperable, at least from the perspective of the common law. Quantifying the detriment might generally be harder than valuing the expectation, but that would not of itself be a sufficient ground for preferring one over the other, certainly as a general rule, not least because those difficulties are likely to be widely different in particular cases. Even in an individual case a perception that one was much easier to quantify than the other would not of itself be a sound basis for concluding that it was therefore the more just. Furthermore the expectations typically generated by this kind of estoppel are, in part because they are always about property and usually land, not generally susceptible to being fairly reduced to monetary terms unless that is truly unavoidable. That is why equity grants specific performance of contracts concerning land rather than damages for breach, even if the value of the land can be reliably ascertained. In that respect neither is the detriment fairly capable of being monetarised, when it consists of decisions about education, training and career which (as here) have life-long consequences. The expectation of being a farmer for life may or may not be more valuable in money terms than being a plumber, but neither is a fair substitute for an expectation of the other, and nor is their monetary equivalent.
In my view the notion that the problems about framing an appropriate remedy in proprietary estoppel cases can all be solved by identifying either compensation for detriment or fulfilment of expectation (or in default compensating for its loss by a monetary award) as the true purpose of the remedy, is misconceived. The true purpose, as recognised by the Court of Appeal in the present case, is dealing with the unconscionability constituted by the promisor repudiating his promise. It is wrong to treat the unconscionability question as limited to the issue whether or not an equity arises, and then to leave it out of account when framing the remedy. Concern about disproportionality between expectation and detriment is not the only one of the many real-life problems that have made the framing of an appropriate remedy so difficult in many cases. Nor is the beguiling application of “minimum equity” necessarily a just solution. The suggestion is that the court separately values the expectation and the detriment and then chooses whichever is the cheaper for the promisor: see Robertson: The reliance basis of proprietary estoppel remedies [2008] Conv 295. Scarman LJ had nothing like that in mind in Crabb. His dictum was not minimum equity, but minimum equity to do justice. In this context justice means remedying the unconscionability identified in the promisor’s repudiation of his promise.
The Authorities
The principles applicable to proprietary estoppel have never been before the Supreme Court, and only twice in recent times before the House of Lords, in Cobbe v Yeoman’s Row [2008] 1 WLR 1752 and Thorner v Major [2009] 1 WLR 776. Neither yields rich pickings for a reasoned understanding of the principles governing the identification of appropriate relief to satisfy the equity once established. Cobbe v Yeoman’s Row was primarily about whether proprietary estoppel had any role to play in an arms-length commercial subject to contract relationship where one party incurred expense on a speculation that a binding contract would eventually be entered into, but from which the other resiled. The claim failed in limine in the House of Lords, so that the question of appropriate remedy never arose. Besides containing the well-known dicta of Lord Walker of Gestingthorpe about the need for certainty in property transactions and the need for principle rather than uncontrolled judicial opinion as to the morality of the parties’ conduct, a bare recognition of the debate between detriment and expectation as the basis for relief, it offers nothing more by way of a solution.
The main significance of Thorner v Major was to rescue proprietary estoppel from what some commentators thought had been a fatal blow delivered to it by Cobbe. It displays strong similarity of type with the present case, since it was about the disappointed expectation that a farmer (“Peter”) would leave his farm on his death to the son of his cousin (“David”), on which David had worked full-time but for no payment for many years. The House of Lords restored the judge’s order that David should receive the whole of the farm, animal stock and equipment on the farmer’s death. There was no valuation of, or compensation for, David’s detriment, although the judge concluded that, without needing a precise valuation of the detriment, his expectation of inheriting the whole farm was not disproportionate to it. The decision may have rescued proprietary estoppel from an unintended early demise, but the House saw no need to reinvent it or recast the underlying principles as they had been developed by the courts of equity over more than a century.
If nothing else Thorner v Major demonstrates how factual differences within the same type of case may make all the difference to a perception about the justice of the outcome, and therefore the difficulty of laying down rules or principles applicable even to cases of a particular type, let alone across the wide field covered by proprietary estoppel. In particular there was no falling out between Peter and David. Peter had provided fully for David’s expectation in his will, but then destroyed it only because it also contained a legacy to someone else, of which he had repented. He was warned of the consequences of intestacy but died before making a new will, and David got nothing. The critical difference with the present case was that the time for fulfilment of the promise did not lie in the future at the time when David discovered that it had been repudiated. There were therefore no problems arising from early receipt and potential injustice to the promisor and his other dependants from the imposition of a clean break lifetime remedy which complicate the present case. Nonetheless both the expectation and the detriment were of very similar kinds to those in the present case. Yet the judge plainly started from a disposition to satisfy David’s expectation rather than calculate and then compensate for the detriment, and this was not criticised as an error of principle by the House of Lords. A “minimum equity” point was raised as a ground of appeal but not, as far as can be seen from the judgments, seriously argued.
There being no decisive treatment of the present issue by the highest court, the student is thrown upon the confused waters of a large body of non-binding but persuasive authority in the Court of Appeal and below, with the (in the event) less than compelling assistance of the parallel learning of other common law jurisdictions. The repeated judicial statements that they contain no conclusive resolution of the question which, of satisfying expectation or compensating for detriment, is the purposive bedrock of the equitable jurisdiction to grant appropriate relief does not mean that they can therefore just be passed by. As Floyd LJ said in the Court of Appeal, this may be because neither is.
It is instructive to look first at some of the antecedents to what is now called proprietary estoppel, since the jurisdiction did not suddenly spring up, fully fledged, in the 20th century. There are much earlier cases which, although sometimes classified under different legal headings, are based upon remarkably similar fact types. The first is illustrated by the attempted application in Loffus v Maw (1862) 3 Giff 592; 66 ER 544 of the principle laid down by the House of Lords in Hammersley v De Biel (1845)12 Cl & F 45; 8 ER 1312 that where a person induces another to act upon the faith of a representation, then he will be compelled to make it good. The plaintiff was a young widow who was induced to care for the needs and home of an elderly and very unwell uncle for nothing more than pocket money by the promise that he would leave her specified interests in real property in his will, verified three years before his death, and on her threatening to leave, by her being showed a codicil to that effect. Sixteen days before he died he made a further codicil giving the same property to his son, cutting the plaintiff out altogether. The plaintiff claimed, in the alternative, the specific enforcement of the promise (i.e satisfaction of her expectation) or compensation by way of proper remuneration for all her work (i.e compensation for her detrimental reliance). Sir John Stuart VC gave her the former.