This paper offers an interpretation of the behavioural evidence that casts doubt over whether people always have preferences or, if they do, that they are stable. If people do not have preferences in this sense, then the usual policy evaluation standard of preference satisfaction cannot be used in these cases. The paper then develops, to fill this gap, a Millian policy framework where policy is judged by whether it advances what Mill understands by individual liberty in On Liberty. This yields many recognisable policies but offers a different evaluative standard for them. It also yields some policy innovations: e.g. a basic income and a flat tax.
