Ask an Immigration Solicitor. Get an Answer ASAP.
I give your answer.
According to your explanation, she is not eligible to come to UK without visa. If she travelled before then border agency staff permitted her to enter UK to use their discretion. But legally she cannot claim entry without visa. She can come to UK without visa if visa stamp on her passport states that:
' family member of an EEA national'
Otherwise she need visa.
I hope it will help you.
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How long she was in the UK in the previous 12 months?