JSTL 1.1.2 c:url problem?

Is c:url supposed to encode your ampersands?

<c:set var="link"><c:url value="/command.cgi">
         <c:param name="command" value="ud"/>
         <c:param name="action" value="select_unit"/>
         <c:param name="job_id" value="${display_job.ID}"/>
         <c:param name="dt" value="dflt"/>
         <c:param name="reason" value="select_unit"/>
         <c:param name="domulti" value="true"/>
         <c:param name="job_type" value="${display_job.jobType}"/>
       </c:url></c:set>

The above produces &action=select_unit as opposed to 
&amp;action=select_unit.  As such, my page does not validate.

Is that the behavior I should expect?  If so, then c:url really has no 
value over me constructing my own URLs myself, right?

Thanks.