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LAND REGISTRATION FOR THE TWENTY-FIRST CENTURY
A Conveyancing Revolution
LAND REGISTRATION BILL AND COMMENTARY
Laid before Parliament by the Lord High Chancellor pursuant to section 3(2) of the Law Commissions Act 1965
Ordered by The House of Commons to be printed 9 July 2001
LAW COMMISSION H M LAND REGISTRY
LAW COM NO 271
LONDON: The Stationery Office
HC 114

The Law Commission was set up by section 1 of the Law Commissions Act 1965 for the purpose of promoting the reform of the law.
THE COMMISSIONERS ARE:
The Honourable Mr Justice Carnwath CVO, Chairman
Professor Hugh Beale
Mr Stuart Bridge∙
Professor Martin Partington
Judge Alan Wilkie QC
The Secretary of the Law Commission is Mr Michael Sayers
Her Majesty’s Land Registry, a separate department of government and now an Executive Agency, maintains the land registers for England and Wales and is responsible for delivering all land registration services under the Land Registration Act 1925.
The Chief Land Registrar and Chief Executive is Mr Peter Collis The Solicitor to H M Land Registry is Mr Christopher West
The terms of this report were agreed on 31 May 2001.
The text of this report is available on the Internet at:
http://www.lawcom.gov.uk
∙Mr Stuart Bridge was appointed Law Commissioner with effect from 2 July 2001. The terms of this report were agreed on 31 May 2001, while Mr Charles Harpum was a Law Commissioner.
ii
LAW COMMISSION |
HM LAND REGISTRY |
LAND REGISTRATION FOR THE TWENTY-
FIRST CENTURY
A Conveyancing Revolution
CONTENTS
|
Paragraph |
Page |
PART I: THE LAND REGISTRATION BILL |
|
|
AND ITS OBJECTIVES |
|
1 |
INTRODUCTION |
1.1 |
1 |
THE OBJECTIVES OF THE BILL |
1.4 |
2 |
SOME KEY FEATURES OF THE BILL |
1.11 |
4 |
Electronic conveyancing |
1.12 |
4 |
Adverse possession |
1.13 |
4 |
Other changes |
1.14 |
5 |
THE BACKGROUND TO THE BILL |
1.15 |
6 |
STRUCTURE OF THE REPORT |
1.21 |
8 |
PART II: SUMMARY OF THE MAIN CHANGES |
|
|
MADE BY THE BILL |
|
9 |
INTRODUCTION |
2.1 |
9 |
FIRST REGISTRATION |
2.4 |
10 |
CAUTIONS AGAINST FIRST REGISTRATION |
2.14 |
13 |
POWERS OF DISPOSITION |
2.15 |
13 |
REGISTRABLE DISPOSITIONS |
2.16 |
14 |
PRIORITIES |
2.17 |
14 |
NOTICES AND RESTRICTIONS |
2.19 |
15 |
CHARGES |
2.23 |
16 |
OVERRIDING INTERESTS |
2.24 |
16 |
REGISTRATION |
2.28 |
18 |
SPECIAL CASES |
2.32 |
19 |
ALTERATION, RECTIFICATION AND INDEMNITY |
2.38 |
20 |
CONVEYANCING: GENERAL MATTERS |
2.40 |
21 |
ELECTRONIC CONVEYANCING |
2.41 |
21 |
Introduction |
2.41 |
21 |
Present conveyancing practice in relation to registered land |
2.43 |
22 |
Electronic conveyancing: the anticipated model |
2.48 |
23 |
Introduction |
2.48 |
23 |
How a typical conveyancing transaction might operate |
2.52 |
24 |
Compulsory use of electronic conveyancing |
2.59 |
27 |
Finance |
2.62 |
28 |
|
Paragraph |
Page |
Stamp duty |
2.64 |
29 |
Electronic conveyancing and first registration |
2.65 |
29 |
Do-it-yourself conveyancing |
2.68 |
30 |
ADVERSE POSSESSION |
2.69 |
30 |
Introduction |
2.69 |
30 |
Why do we have a doctrine of adverse possession? |
2.71 |
30 |
An outline of the new scheme in the Bill |
2.74 |
32 |
JUDICIAL PROVISIONS |
2.75 |
33 |
RULES |
2.76 |
33 |
PART III: FIRST REGISTRATION |
|
35 |
INTRODUCTION |
3.1 |
35 |
THE LEGAL SCOPE OF TITLE REGISTRATION ANDTHE |
|
|
EXTENT OF LAND THAT MAY BE REGISTERED UNDER IT3.3 |
35 |
|
The legal scope of title registration |
3.3 |
35 |
The extent of land that may be registered |
3.5 |
36 |
VOLUNTARY FIRST REGISTRATION |
3.6 |
37 |
Registrable estates |
3.6 |
37 |
Who may apply for first registration? |
3.6 |
37 |
Which legal estates may be registered with their own titles? |
3.9 |
38 |
A fee simple absolute in possession |
3.9 |
38 |
Certain leases |
3.10 |
38 |
Rentcharges |
3.18 |
40 |
Franchises |
3.19 |
41 |
Profits à prendre in gross |
3.20 |
41 |
Manors no longer to be registrable |
3.21 |
42 |
COMPULSORY REGISTRATION |
3.22 |
42 |
Introduction |
3.22 |
42 |
Events that trigger the compulsory registration of title |
3.23 |
43 |
Introduction |
3.23 |
43 |
Transfers |
3.24 |
43 |
Transfer of a qualifying estate |
3.24 |
43 |
Transfers to which section 171A of the Housing Act 1985 |
|
|
applies |
3.28 |
45 |
Grants |
3.29 |
45 |
Leases granted for a term of more than seven years from the |
|
|
date of grant |
3.30 |
45 |
Reversionary leases |
3.32 |
46 |
Grant of a right to buy lease under Part V of the Housing |
|
|
Act 1985 |
3.33 |
47 |
Grant of a lease to which section 171A of the Housing |
|
|
Act 1985 applies |
3.34 |
47 |
Protected first legal mortgages |
3.35 |
47 |
Crown grants out demesne land |
3.36 |
47 |
The power to extend the triggers to compulsory registration |
3.37 |
48 |
The effect of failure to register |
3.38 |
49 |
The duty to register |
3.38 |
49 |
The effect of non-compliance with the duty to register |
3.40 |
49 |
iv
|
Paragraph |
Page |
THE EFFECT OF FIRST REGISTRATION |
3.42 |
50 |
Classes of title |
3.42 |
50 |
Introduction |
3.42 |
50 |
Freehold titles |
3.43 |
50 |
Leasehold titles |
3.44 |
51 |
The effect of first registration |
3.45 |
52 |
Freehold title |
3.45 |
52 |
Registration with absolute title |
3.45 |
52 |
Qualified title |
3.49 |
54 |
Possessory title |
3.50 |
54 |
Leasehold title |
3.51 |
54 |
Miscellaneous rule-making powers |
3.52 |
55 |
CAUTIONS AGAINST FIRST REGISTRATION AND THE |
|
|
CAUTIONS REGISTER |
3.54 |
56 |
The nature of cautions against first registration under the |
|
|
present law |
3.54 |
56 |
Cautions against first registration under the Bill |
3.56 |
57 |
The right to lodge a caution |
3.56 |
57 |
The effect of a caution against first registration |
3.60 |
59 |
Cancellation of cautions |
3.63 |
60 |
The cautions register |
3.65 |
61 |
PART IV: DISPOSITIONS OF REGISTERED LAND |
63 |
|
INTRODUCTION |
4.1 |
63 |
POWERS OF DISPOSITION |
4.2 |
63 |
Introduction |
4.2 |
63 |
The principles adopted in the Bill |
4.4 |
64 |
The provisions of the Bill |
4.5 |
65 |
Owner’s powers |
4.5 |
65 |
Protection for disponees |
4.8 |
66 |
REGISTRABLE DISPOSITIONS |
4.12 |
67 |
Introduction |
4.12 |
67 |
The general principle |
4.13 |
68 |
Dispositions required to be registered and the registration requirements |
|
|
that apply to them |
4.16 |
69 |
Introduction |
4.16 |
69 |
Transfers of a registered estate |
4.17 |
69 |
The grant of certain leases |
4.20 |
71 |
Leases of franchises and manors |
4.23 |
72 |
Express grant or reservation of an easement, right or privilege |
4.24 |
73 |
Express grant or reservation of a rentcharge or legal right of re-entry |
4.27 |
74 |
The grant of a legal charge |
4.29 |
75 |
Dispositions of a registered charge |
4.30 |
76 |
Applications for registration |
4.31 |
76 |
PART V: PRIORITIES |
|
77 |
INTRODUCTION |
5.1 |
77 |
PRIORITY UNDER THE BILL |
5.5 |
78 |
v
|
Paragraph |
Page |
The general rule |
5.5 |
78 |
The principal exception: registrable dispositions that have been |
|
|
registered |
5.6 |
78 |
The exception |
5.6 |
78 |
Applicable only to registrable dispositions |
5.7 |
79 |
Made for valuable consideration |
5.8 |
79 |
Priority conferred |
5.10 |
79 |
When the priority of an interest will be protected |
5.11 |
80 |
The priority of registered charges |
5.14 |
81 |
The grant of leases that are not registrable dispositions |
5.15 |
81 |
The irrelevance of notice |
5.16 |
82 |
SPECIAL CASES |
5.22 |
84 |
Inland Revenue Charges |
5.23 |
84 |
Rights of pre-emption |
5.26 |
85 |
An equity arising by estoppel |
5.29 |
87 |
A mere equity |
5.32 |
89 |
Inchoate rights arising under the Prescription Act 1832 |
5.37 |
90 |
PART VI: NOTICES AND RESTRICTIONS |
|
92 |
INTRODUCTION |
6.1 |
92 |
THE PROPOSALS IN THE CONSULTATIVE DOCUMENT |
6.2 |
92 |
THE PROVISIONS OF THE BILL |
6.3 |
93 |
Prospective abolition of cautions against dealings |
6.3 |
93 |
Notices |
6.5 |
94 |
Introduction |
6.5 |
94 |
Nature and effect of a notice |
6.6 |
94 |
Interests which may not be protected by notice |
6.8 |
95 |
Interests under trusts of land and settlements |
6.9 |
95 |
Short leases |
6.10 |
96 |
A restrictive covenant between landlord and tenant |
6.13 |
97 |
An interest which is registrable under the Commons |
|
|
Registration Act 1965 |
6.14 |
97 |
An interest in any coal or coal mine or ancillary rights |
6.15 |
97 |
A PPP lease |
6.16 |
98 |
The circumstances in which a notice may be entered on the register |
6.17 |
98 |
Introduction |
6.17 |
98 |
Burdens entered on the register on first registration |
6.18 |
99 |
Entry in respect of an overriding interest |
6.19 |
99 |
Entry in respect of a registrable disposition |
6.20 |
99 |
Where the entry is necessary to update the register |
6.21 |
100 |
Applications for the entry of a notice |
6.22 |
101 |
Unilateral notices |
6.26 |
102 |
The nature of unilateral notices |
6.26 |
102 |
Protection against the improper entry of a unilateral notice 6.27 |
103 |
|
Abolition of inhibitions as a separate form of entry |
6.32 |
104 |
Restrictions |
6.33 |
104 |
Introduction |
6.33 |
104 |
The nature and effect of a restriction |
6.34 |
104 |
When a restriction may or must be entered |
6.38 |
106 |
vi
|
Paragraph |
Page |
Introduction |
6.38 |
106 |
When the registrar may or must enter a restriction |
6.39 |
107 |
Where the registrar may enter a restriction |
6.40 |
107 |
Where the registrar must enter a restriction |
6.46 |
110 |
Applications for the entry of a restriction |
6.47 |
111 |
Where the court may order the entry of a restriction |
6.51 |
113 |
Notifiable applications for a restriction |
6.54 |
114 |
Withdrawal of restrictions |
6.58 |
116 |
Pending land actions, writs, orders and deeds of arrangement |
6.59 |
116 |
PART VII: CHARGES |
|
118 |
INTRODUCTION |
7.1 |
118 |
THE POWER TO CREATE CHARGES AND THE POWERS OF |
|
|
THE CHARGEE |
7.2 |
118 |
Legal Charges |
7.2 |
118 |
The creation of charges and the powers of the chargee |
7.2 |
118 |
The definition of “charge” |
7.5 |
120 |
Powers of chargees and the need for a deed |
7.6 |
121 |
Dispositions made by chargees and the protection of disponees |
7.7 |
121 |
Equitable charges |
7.9 |
123 |
SUB-CHARGES AND THE POWERS OF THE SUB-CHARGEE |
7.11 |
123 |
PRIORITIES |
7.13 |
124 |
Priority of registered charges |
7.13 |
124 |
Registered sub-charges |
7.16 |
125 |
Equitable charges |
7.17 |
126 |
Tacking and further advances |
7.18 |
126 |
Present law and practice |
7.18 |
126 |
Provisions of the Bill |
7.28 |
130 |
Further advances made with the agreement of subsequent |
|
|
chargees |
7.29 |
130 |
Further advances where the prior chargee has not received |
|
|
notice of the subsequent charge |
7.30 |
130 |
Where there is an obligation to make a further advance |
7.31 |
131 |
Further advances up to a maximum amount |
7.32 |
131 |
Statutory charges |
7.37 |
133 |
Types of statutory charge |
7.38 |
133 |
Overriding statutory charges |
7.39 |
134 |
Charges which are local land charges |
7.42 |
135 |
MISCELLANEOUS |
7.43 |
135 |
Application of proceeds of sale |
7.43 |
135 |
Consolidation |
7.44 |
136 |
Power to give receipts |
7.46 |
137 |
PART VIII: OVERRIDING INTERESTS |
|
138 |
INTRODUCTION |
8.1 |
138 |
THE NATURE OF OVERRIDING INTERESTS |
8.3 |
139 |
UNREGISTERED INTERESTS WHICH MAY BE OVERRIDING: |
|
|
INTRODUCTION |
8.6 |
140 |
vii
|
Paragraph |
Page |
UNREGISTERED INTERESTS WHICH OVERRIDE FIRST |
|
|
REGISTRATION |
8.8 |
141 |
Introduction |
8.8 |
141 |
Short leases |
8.9 |
142 |
PPP Leases |
8.11 |
143 |
Interests of persons in actual occupation |
8.14 |
145 |
Legal easements and profits à prendre |
8.23 |
148 |
Customary and public rights |
8.26 |
150 |
Local land charges |
8.29 |
151 |
Mines and minerals |
8.31 |
152 |
Rights to coal |
8.32 |
152 |
Certain mineral rights where the title was registered before 1926 |
8.33 |
152 |
Miscellaneous |
8.35 |
153 |
Introduction |
8.35 |
153 |
Franchises and manorial rights |
8.40 |
155 |
Crown rents |
8.43 |
157 |
Certain rights in respect of embankments and sea and river walls |
8.45 |
158 |
A right to payment in lieu of tithe |
8.46 |
158 |
UNREGISTERED INTERESTS WHICH OVERRIDE |
|
|
REGISTERED DISPOSITIONS |
8.47 |
159 |
Introduction |
8.47 |
159 |
Categories of overriding interest that are the same as those that |
|
|
apply on first registration |
8.48 |
159 |
Categories of overriding interest that differ from those that apply on |
|
|
first registration |
8.49 |
161 |
Short leases |
8.50 |
161 |
Interests of persons in actual occupation |
8.53 |
162 |
Introduction |
8.53 |
162 |
The general principle |
8.54 |
163 |
Qualification: Protection is restricted to the land in actual occupation 8.55 |
163 |
|
Exception 1: No protection for settled land |
8.59 |
165 |
Exception 2: Rights not disclosed on reasonable enquiry |
8.60 |
165 |
Exception 3: Rights of persons whose occupation is not apparent |
8.61 |
165 |
Exception 4: Leases granted to take effect in possession more than three |
|
|
months after grant |
8.63 |
167 |
Transitional provisions |
8.64 |
167 |
Legal easements and profits à prendre |
8.65 |
168 |
The problem |
8.65 |
168 |
Only legal easements and profits may be overriding interests |
8.67 |
169 |
Legal easements and profits that are not easily discoverable should not |
|
|
be overriding interests |
8.68 |
169 |
Transitional arrangements |
8.73 |
171 |
REDUCING THE IMPACT OF OVERRIDING INTERESTS |
8.74 |
172 |
Introduction |
8.74 |
172 |
Categories of overriding interests that are to be abolished |
8.75 |
172 |
Introduction |
8.75 |
172 |
Squatters’ rights |
8.76 |
173 |
Rights excepted from the effect of registration |
8.79 |
174 |
Categories of overriding interests that are to be phased out |
8.81 |
175 |
viii
|
Paragraph |
Page |
The principle of phasing out overriding statues and the objections to it 8.81 |
175 |
|
The views expressed on consultation |
8.85 |
177 |
The scheme adopted in the Bill |
8.86 |
177 |
Human rights |
8.89 |
179 |
Ensuring that overriding interests are protected on the register when |
|
|
they come to light |
8.90 |
180 |
PART IX: THE REGISTER AND REGISTRATION |
182 |
|
INTRODUCTION |
9.1 |
182 |
THE REGISTER |
9.3 |
183 |
REGISTRATION AS PROPRIETOR |
9.4 |
183 |
Conclusiveness |
9.4 |
183 |
Dependent entries |
9.7 |
184 |
Effective date of registration |
9.8 |
184 |
BOUNDARIES |
9.9 |
185 |
The general boundaries rule |
9.9 |
185 |
Accretion and diluvion |
9.14 |
187 |
QUALITY OF TITLE |
9.16 |
188 |
Introduction |
9.16 |
188 |
When title can be upgraded |
9.17 |
189 |
Upgrading freehold title which has possessory title |
9.17 |
189 |
Upgrading freehold title which has qualified title |
9.18 |
190 |
Upgrading leasehold title which has a good leasehold title |
9.19 |
190 |
Upgrading leasehold title which has a possessory title |
9.20 |
190 |
Upgrading leasehold title which has a qualified title |
9.21 |
190 |
No power to upgrade where there is an outstanding adverse claim |
9.22 |
191 |
Who may apply for the upgrading of a title |
9.23 |
191 |
Effect of upgrading title |
9.25 |
192 |
Indemnity |
9.28 |
192 |
Use of register to record defects in title |
9.29 |
192 |
ACCESSING INFORMATION |
9.36 |
195 |
Introduction |
9.36 |
195 |
Open registers and their inspection |
9.37 |
195 |
The significance of the open register |
9.37 |
195 |
The rights conferred by the Bill |
9.38 |
196 |
The limitations on the rights to inspect and copy |
9.43 |
197 |
Official copies |
9.44 |
197 |
Conclusiveness of filed copies |
9.48 |
199 |
Introduction |
9.48 |
199 |
The preconditions |
9.50 |
199 |
Conclusiveness |
9.52 |
200 |
Index |
9.54 |
201 |
Historical information |
9.58 |
202 |
Official searches |
9.61 |
203 |
PRIORITY PROTECTION |
9.62 |
204 |
The present law |
9.62 |
204 |
Priority protection under the Bill |
9.67 |
206 |
The circumstances in which priority protection will be available |
9.68 |
206 |
ix
|
Paragraph |
Page |
The meaning of priority protection |
9.70 |
207 |
Rules |
9.73 |
209 |
APPLICATIONS |
9.76 |
209 |
The form and content of applications |
9.76 |
209 |
Registered charges and company charges |
9.81 |
211 |
LAND CERTIFICATES |
9.83 |
212 |
The nature of a land or charge certificate under the present law |
9.83 |
212 |
Present practice |
9.86 |
213 |
The impact of the Bill |
9.88 |
214 |
Abolition of charge certificates |
9.89 |
214 |
Land Certificates |
9.90 |
215 |
PART X: ALTERATION, RECTIFICATION AND |
|
|
INDEMNITY |
|
216 |
INTRODUCTION |
10.1 |
216 |
THE EFFECT OF THE BILL: ALTERATION |
10.5 |
218 |
Introduction |
10.5 |
218 |
The circumstances in which the register may be altered |
10.6 |
218 |
The meaning of alteration and rectification |
10.6 |
218 |
Powers of alteration |
10.9 |
219 |
The powers of the court |
10.10 |
220 |
The circumstances in which the court may order alteration |
|
|
of the register |
10.10 |
220 |
Qualified indefeasibility: the protection for the proprietor |
|
|
who is in possession |
10.13 |
221 |
The powers of the registrar |
10.19 |
226 |
The circumstances in which the registrar may alter |
|
|
the register |
10.19 |
226 |
Qualified indefeasibility: the protection for the proprietor |
|
|
who is in possession |
10.22 |
227 |
Alteration under network access agreements |
10.23 |
228 |
Costs in non-rectification cases |
10.24 |
228 |
The circumstances in which the register of cautions may be altered |
10.26 |
229 |
Alteration of documents |
10.27 |
229 |
THE EFFECT OF THE BILL: INDEMNITY |
10.29 |
231 |
Introduction |
10.29 |
231 |
The grounds on which indemnity is payable |
10.30 |
231 |
Loss by reason of rectification |
10.31 |
231 |
Loss by reason of a mistake |
10.32 |
232 |
Mistake in an official search |
10.33 |
233 |
Mistake in an official copy |
10.34 |
233 |
Mistake in a document kept by the registrar which is not an original |
10.35 |
233 |
Loss or destruction of a document lodged at the registry |
10.36 |
234 |
Mistake in the register of cautions against first registration |
10.37 |
234 |
Failure to notify a chargee of an overriding statutory charge |
10.38 |
234 |
Mines and minerals |
10.39 |
235 |
The measure of indemnity |
10.40 |
235 |
Introduction |
10.40 |
235 |
x