Guidance

Refusing passport applications and passport facilities

Published 7 July 2025

Version 23.0

His Majesty’s Passport Office guidance on refusing passport applications and passport facilities, because we cannot confirm the customer’s identity, because they have no claim to British nationality or because we are refusing the application on other grounds covered by the Royal Prerogative.

About: Refusing passport applications and passport facilities

This guidance tells His Majesty’s Passport Office operational staff:

• what refusing passport applications and passport facilities (services) mean
• when to treat refusing passport applications or passport facilities as withdrawing passports or passport facilities
• when and how to refuse a passport application
• when you must offer a customer the option of registering as a British citizen, before refusing their passport application

You must use this guidance when refusing an application for a first British passport.

If you are refusing an application to renew or replace a passport, you must refer to withdrawing passports and passport facilities (as you may need to consider the effect on the customer).

Contacts

If you have any questions about the guidance and your line manager or senior caseworker cannot help you or you think that the guidance has factual errors then email HM Passport Office’s Guidance team.

If you notice any formatting errors in this guidance (broken links, spelling mistakes and so on) or have any comments about the layout or navigability of the guidance then you can email the Guidance team.

Publication

Below is information on when this version of the guidance was published:

• version 23.0
• published for Home Office staff on 23 May 2025

Changes from last version of this guidance

This guidance has been updated to:

• explain how to refuse an application when the customer is the direct descendent of a Chagossian (in the How to refuse an application on nationality grounds section)
• show which letter you must send to the customer if you are refusing their application on DAP because they do not have a claim to British nationality
• explain when we will not keep an application open while a customer applies to register (in the Fraud concerns with a customer’s nationality claim and Refusal on nationality grounds: exceptions to consider sections)
• make it clearer how to deal with applications when a customer meets a refusal exemption (in the Refusal on nationality grounds: exceptions to consider)
• confirm that you must wait 3 months before completing the UKVI registration form and emailing it to your local QuESt, when a customer confirms they will apply to register
• tell examiners that applications to register a child in the care of local authority are now exempt from a fee
• remove the instruction to transfer the application from DAP to AMS, if a customer is applying to register as a British citizen with United Kingdom Visas and Immigration (UKVI)
• show applications to register a child as a British citizen, if they are in the care of local authority, are exempt from a fee if the child is subject to a full or interim care order
• add a link to Recording your decision: children in care
• show applications for children in care that are being referred to UKVI to register free of charge must be referred to QuESt before contacting the customer
• tell examiners what they need to do when refusing an application from a direct descendent of a Chagossian
• remove instructions telling HM Passport Office staff to refuse an application which has a name subject to trademark or copyright laws
• remove the instruction to use ‘offline’ letter template 622 which is now on Comms Builder
• remove references to Application Management System (AMS) from the guidance

Refusing passport applications

This section tells HM Passport Office operational staff why we refuse passport applications and passport facilities (services), when we must not immediately refuse passport applications, what may happen if we incorrectly refuse passport applications and how to handle refund and compensation requests for refused applications.

We issue, refuse and withdraw passports at the discretion of the Secretary of State for the Home Department, in line with the issuing, withdrawal or refusal of passports written ministerial statement and the Royal Prerogative guidance.

We will only issue a customer with a passport when they meet all the following criteria:

• we are satisfied with their identity
• we are satisfied they are a British national (in line with nationality legislation)
• there are no other reasons why we must not issue a passport (for example, safeguarding (protection) or vulnerability concerns)

We may refuse passport applications or passport facilities:

In some cases, we will make decisions using a balance of probability (for example, when a customer applying for a child in care cannot provide us with the standard documents we need).

If you need to refuse an application to renew (or replace a passport), you must refer to withdrawing passports and passport facilities, as you will need to consider the effect on the customer.

Incorrect refusals

Before deciding to refuse a passport application or passport facilities, you must:

• consider each case on its own merits
• take care to correctly apply the guidance
• be able to show clear reasons why you decided to refuse it

If we incorrectly refuse a passport application or passport facilities, customers may:

• make a complaint, for example, through:
  • the Customer Services Management team
  • their MP
  • an ombudsman
• take legal action, for example, through a Judicial Review

The case ‘R v the Secretary of State for Foreign and Commonwealth Affairs ex parte Everett (1998)’ explains the Secretary of State must have a general policy for refusing passports and passport facilities. We must:

• have a reasonable need to refuse passport applications or passport facilities
• refuse passport applications and passport facilities fairly
• give customers enough information about why we refused their application so they can challenge our decision (for example, if it was based on wrong information)
• consider exceptional circumstances that allows us to issue a passport

The HM Passport Office Litigation team will work with the Government Legal Department to deal with legal challenges from customers whose applications we refused. They may contact the person (or team) who refused the application, if they need more information to deal with the legal challenge.

Refunds and compensation for refused applications

You must refer to:

• passport fees, when dealing with refund requests for an application we refused
• compensation guidance, when dealing with compensation requests for an application we refused

Refusing an application on identity grounds

This section tells HM Passport Office operational staff when and how to refuse a passport application on identity grounds. If it is an application to renew (or replace a passport) you must refer to withdrawing passports and passport facilities.

Before we issue the customer a passport, we must be satisfied with their identity (see Royal Prerogative guidance). We may refuse a passport application, when we:

• suspect the customer applied fraudulently (or have doubts about their identity)
• do not have fraud concerns or doubts about the customer’s identity but cannot confirm their identity, for example, using:
  • the documents they gave us
  • other evidence to support their identity (for example, referees)

You, the examiner, must complete additional checks if you have fraud concerns:

• about the customer’s identity
• with the documents the customer uses to confirm their identity

Refusal on identity grounds: you cannot confirm identity

You, the examiner, must be satisfied you have enough evidence to confirm the customer’s identity (in line with current guidance). If the customer cannot provide enough evidence to confirm their identity, you must consider:

• if there are genuine reasons why (for example, they would be put at risk if they tried to get the evidence)
• what other evidence they can give us (if they cannot give us the standard documents we need)
• if we can make a decision using a balance of probabilities
• discussing the application with your Operational team leader (OTL) or Quality and Examination Support team (QuESt) if you need advice

There are no fraud concerns

If you still cannot confirm the customer’s identity but you do not have fraud concerns, you must:

1. Make sure you have English translations of foreign documents and scan them on the system, if you are refusing the application because of the documents (as they will help with a complaint the customer may raise).

2. Send letter 334 to the customer, to explain:

• why you refused their application
• we will keep their fee (for dealing with the application)
• what they must do to successfully apply for a passport

3. Add a case note to:

• show the actions and decisions you made
• clearly explain why you refused the application

4. Return the supporting documents to the customer

5. Withdraw the application.

Refusing an application on nationality grounds

This section tells HM Passport Office operational staff when and how to refuse a passport application because the customer has no claim to British nationality. If it is an application to renew (or replace a passport), you must refer to withdrawing passports and passport facilities.

Before we issue the customer with a passport, we must be satisfied with their nationality claim (see Royal Prerogative guidance). We may refuse their application if they do not have a claim to British nationality (in line with nationality legislation).

Refusal on nationality grounds: dealing with the application

You, the examiner, must check the customer’s nationality claim, in line with:

• nationality legislation
• British national overseas guidance
• British overseas territories citizen guidance
• British overseas citizen guidance
• British subject guidance
• British protected persons guidance
• British citizenship: first generation by descent guidance
• legitimation and domicile guidance
• definition of parents for nationality purposes guidance

You must consider:

• what documents or evidence you need to help confirm the customers nationality claim
• what other documents may help confirm the customer’s nationality claim (if they cannot provide the standard documents we ask for)
• if we can decide the nationality claim using a balance of probabilities (if the customer cannot provide the standard documents we need)
• if we already have evidence to suggest the customer has a nationality claim (for example, if a child was born after their parent was granted Indefinite Leave to Remain)
• if you must deal with the application as a Windrush application
• if the claim can go through the other parent (see definition of parents for nationality purposes)
• if you have fraud concerns with the customer’s claim to British nationality
• discussing the application with your operational team leader (OTL) or the Quality and Examination Support team (QuESt) if you have doubts

If after considering all the above points you are satisfied the customer does not have a claim, you must consider if an exception applies when you must ask them to register as a British national and keep their passport application open while they do.

Fraud concerns with a customer’s nationality claim

If you have fraud concerns with a customer’s claim to British nationality, you must refer the application to the Counter Fraud team (CFT).

You, the Counter Fraud officer, must investigate the application in line with the CFT guidance. If you decide the customer made the application in good faith and has not committed an offence or acted dishonestly, you must:

1. Add a case note to explain the actions and decision you made.
2. Refer the application back to examination.

When you, the examiner, receive the application back from the CFT, you must continue to use this guidance.

Refusal on nationality grounds: exceptions to consider

If a customer does not have an automatic claim to British nationality, there are some exceptions when we will ask them to register and keep their passport application open while they do. We will only do this when there are no suspicions of fraud, dishonesty or risk indicators.

These are when:

• the customer was born before 1 July 2006 and all the following apply:

  • they would have automatically become a British citizen if their mother had been married to their natural (biological) father

  • they have never been a British citizen
  • they do not have a claim by any other route (for example, through legitimation)
• the customer was born on, or after 1 July 2006 and all the following apply:

  • they would have automatically become a British citizen through their natural father if their mother had not been married to someone else

  • they have never been a British citizen
  • they do not have a claim through any other route
• the customer was born outside the UK before 1 January 1983 to a British mother and all the following apply:

  • they would have been a Citizen of the United Kingdom and Colonies (CUKC) by descent, if before 1 January 1983, women were able to pass on citizenship to their children (in the same way as men)

  • they would have been eligible for the Right of Abode because of 1 of the reasons shown in the UKM guide
  • they have never been a British citizen
  • they do not have a claim through any other route
• the customer was born before 1 July 2006 outside of a British overseas territory (BOT) to an unmarried British overseas territories citizen (BOTC) father and both of the following apply:
  • they would have become a BOTC had their mother been married to their natural father
  • they do not have a claim through any other route
• the customer was born between 1 January 1983 and 30 June 2006 (inclusive) in a BOT to an unmarried BOTC father or an unmarried settled father and both of the following apply:
  • they would have become a BOTC had their mother been married to their natural father
  • they do not have a claim through any other route
• the customer was born before 1 January 1983 outside of a BOT to a BOTC mother and both of the following apply:
  • they would have become a BOTC had their mother been able to pass on British nationality in the same way as men
  • they do not have a claim through any other route

If the customer does not meet one of these exceptions, you must refuse the passport application (See How to refuse an application on nationality grounds).

If the customer meets one of these exceptions, you must:

1. Not refuse the passport application.

2. Send system letter:

• 608, if the customer was born before 1 July 2006 and would have automatically become a British citizen had their mother been married to their natural father
• 615, if the customer was born on, or after 1 July 2006 and would have automatically become a British citizen had their mother not been married to someone other than their natural father
• 616, if the customer was born before 1 January 1983 to a British mother and would have automatically become a British citizen if citizenship was passed to them at the time of their birth
• 621 making sure not to use phrase 621H, if the customer was born before 1 July 2006 outside of a BOT to an unmarried BOTC father but they would have automatically become BOTC if their mother had been married to their father
• 621 making sure not to use phrase 621H, if the customer was born between 1 January 1983 and 30 June 2006 (inclusive) in a BOT to an unmarried BOTC father or an unmarried settled father but they would have automatically become a BOTC if their mother had been married to their father
• 621 making sure not use phrase 621G, if the customer was born before 1 January 1983 outside of a BOT to a BOTC mother and they would have automatically become a BOTC if their mother had been able to pass on British nationality in the same way as men

3. After the letter is sent follow the timeframes in withdrawing passport applications guidance until the customer tells us what they decide to do.

Customer tells you they will apply to register

If the customer tells you they will make an application to register or that they have already applied to register, you must:

1. Put the application on hold.
2. Add a case note to show that the application will be put on hold until the customer registers as a British Citizen.
3. Every 14 days, check UKVI systems to see if the customer has made an application to register.
4. Repeat the process of storing the application until the customer sends their registration certificate.
5. After 3 months from the date that UKVI received the customer’s application, if the customer has not registered, you must complete the UKVI registration referral form and email it to your local QuESt.

QuESt will forward your request to UKVI and ask them to expedite the registration application if possible.

If the UKVI system shows the customer successfully registered as either a British citizen or British overseas territories citizen (not both), you must:

1. Ask them for their registration certificate.
2. Add a case note to show the customer’s registration details and status.
3. Process the passport application and issue the passport (in line with current guidance).

If the UKVI system shows the customer successfully registered as both a British citizen and a British overseas territories citizen (or the customer tells you they have), you must:

1. Contact the customer to:

• tell them as they only made one passport application, you can only issue one passport with a status of either British citizen or British overseas territories citizen
• ask them what status they want to show on their passport
• ask them for the registration certificate that shows they are a British citizen or British overseas territories citizen (depending on what nationality status they want on their passport)
• tell them if they want a passport in the other nationality status, they must make a separate passport application

2. Add a case note to show the customer has registered as a British citizen or British overseas territories citizen (depending on what nationality status they want on the passport).

3. Process the passport application and issue the passport (in line with current guidance).

If UKVI refused or rejected their application, you must refuse the passport application.

Customer does not respond or does not want to register

If the customer:

• tells you they do not want to make an application to register, you must refuse the passport application
• does not respond to let you know if they will make an application to register, you must withdraw their passport application
• tells you they will make an application to register but has not applied for registration after 3 months you must withdraw their passport application (unless the customer is still in contact with you and say they are making an application)

Refusing on nationality grounds: child in care of local authority

On 16 June 2022, UK Visa and Immigration (UKVI) changed their fees to allow children in the care of the local authority to be registered as British citizens free of charge.

Before you refuse an application where the child is in care of the local authority you must refer the application to QuESt for assessment. Where QuESt have assessed the application and confirmed there is not an automatic claim to British nationality you must tell the customer the registration will be free, if at the time they apply, the child is:

• under 18 years old; and,
• a child looked after by a local authority under a full or interim care order in the UK (or a child outside the UK under similar arrangements)

The fee exemption is applied by UKVI. The customer will need to follow the guidance on UKVI and submit the evidence requested.

How to refuse an application on nationality grounds

We will refuse and withdraw an application if, the customer does not have a nationality claim if:

• we refer the customer to UKVI to register, but they do not meet one of the exceptions to consider
• UKVI rejected or refused their application
• they decided not to make an application to register
• they said they were making an application to register but did not after 3 months

Refusing an application on nationality grounds

To refuse an application on nationality grounds, you (the examiner) must:

1. Check the customer is not eligible for British nationality.

2. Add a case note to show the actions and decisions you made including why you need to refuse the application.

3. Send the application to your operational team leader (OTL) to review your decision.

You, the OTL, must:

1. Check the:

• application record and case notes
• use the correct nationality guidance and nationality legislation to check the customer does not have a nationality claim
• evidence the customer sent with their application
• consider any alternative evidence you can use and if we can make a decision using a balance of probabilities
• discuss the case with QuESt, if you need more advice

2. Decide if the customer has a claim to British nationality.

Customer does not have a claim to British nationality

If you, the OTL, decide the customer does not have a claim to British nationality, you must:

1. Check if they are the direct descendent (for example a child, grandchild or great-grandchild) of a Chagossian.

2. Add a case note to show:

• you agree to refuse the application
• if the customer is a direct descendant of a Chagossian

3. Return the application to the examiner.

If the OTL confirms the customer is not the direct descendant of a Chagossian, you, the examiner, must:

1. Select No, withdraw application under ‘Can you determine the nationality status?’.

2. Add a case note to show why you are withdrawing the application.

3. Select send an email and Tell someone something – I’m not expecting a response under ‘Why you are sending it?’.

4. Create an email by selecting Withdraw application – not received documents or evidence we need in the Comms builder (see How to send an email using Digital Application Processing).

5. Select the letter template which matches the reason for withdrawing.

6. Select Submit when the task is complete.

If the OTL confirms the customer is the direct descendent of a Chagossian, you must:

1. Select No, withdraw application under ‘Can you determine the nationality status?’.

2. Add a case note to show why you are withdrawing the application.

3. Send letter 622 to the customer.

4. Follow the Passport fees guidance to process a refund to the customer. You must not send refund letter 419 as stated in the guidance, letter 622 will tell the customer they will receive a refund.

Customer has a claim to British nationality

If you, the OTL, decide the customer does have a claim to British nationality, you must:

1. Add a case note to show why the customer has a claim to British nationality.

2. Return the application to the examiner and ask them to process the application.

When you, the examiner, get the application back from the OTL, you must continue to process the application (in line with current guidance).

Refusing an application for other reasons

This section tells HM Passport Office operational staff when and how to refuse a passport application or passport facilities (services) for reasons other than identity or nationality. If it is an application to renew (or replace a passport) you must refer to withdrawing passports and passport facilities.

We must be satisfied there are no reasons (other than identity or nationality) not to issue the customer with a passport (see Royal Prerogative guidance)

The Royal Prerogative guidance provides a detailed list of specific circumstances when we may refuse a passport. These applications will have a watchlist entry. If there is no watchlist entry, you must refer the application to the Counter Fraud team (CFT).

Refusal: caveats

Although we may refuse an application after we carry out checks, you must not immediately refuse it when someone submits a caveat (an objection or court order that prevents the customer from having a passport). You must refer it to the CFT.

Refusal: customer’s name is not acceptable

We may refuse an application when a customer applies in a name that may cause public offence and they refuse to use another name.

You must refer to Names: names that cannot be used in passports when dealing with a name that may cause public offence, for:

• what you must consider before you refuse the application
• when we will refuse the application
• who decides to refuse the application
• who must refuse the application

If you need to refuse the application because the customer’s name may cause offence, you (the operational team leader) must:

1. Add a case note to explain your actions and decisions.
2. Refuse the application on the system.

Send the customer letter 321.