Docket: IMM-5788-11
IMM-5790-11
Citation: 2012 FC 521
Ottawa, Ontario, May 3, 2012
PRESENT: The Honourable Mr. Justice Russell
BETWEEN:
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GORDON ROSENBERRY;
MURIEL ROSENBERRY
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Applicants
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and
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THE MINISTER OF CITIZENSHIP
AND IMMIGRATION
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Respondent
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REASONS FOR JUDGMENT AND
JUDGMENT
INTRODUCTION
[1]
These
reasons deal with two applications under subsection 72(1) of the Immigration
and Refugee Protection Act, SC 2001, c. 27 (Act) for judicial review of
two decisions of an immigration officer (Officer), dated 6 July 2011, which
refused the Applicants’ request for permanent residence on humanitarian and
compassionate (H&C) grounds under subsection 25(1) of the Act (H&C Decision)
and refused their application for Temporary Residence Permits (TRP Decision).
BACKGROUND
[2]
The
Applicants are both citizens of the United States of America (USA) who
currently live in Edmonton without status. The Male Applicant is 85 years
old and the Female Applicant is 87 years old. Before coming to Canada, the
Applicants lived in Albany, California. Their daughter (Janice), a permanent
resident of Canada, also lives
in Edmonton, while their two sons live in the USA.
[3]
Janice
filed a Family Class sponsorship application to bring the Applicants to Canada on
18 December 2007 (Family Class Application). Shortly after this
application was received, Citizenship and Immigration Canada (CIC) advised her
that the Family Class Application would likely take a long time to process. As
of 23 February 2011, CIC was still processing the Family Class Application.
[4]
While
the Family Class Application was still pending, the Applicants sold their home
in California, bought a
house in Edmonton, and shipped
their belongings there. In May 2008, the Applicants twice attempted to enter Canada through
Kingsgate, British Colombia. On their first attempt, the Male Applicant told an
officer of the Canada Border Services Agency (CBSA) that he and his wife wanted
to live with Janice in Edmonton and they had no intention of returning to the USA. The CBSA
officer telephoned Janice, who said her parents could live with her brothers in
California. The CBSA
officer found the Applicants were not genuine visitors to the USA and so he
denied them entry.
[5]
On
their second attempt to enter Canada, the Male Applicant told another CBSA
officer they had nothing to return to in the USA and it would
be impossible for the Applicants to re-establish themselves there. The second
CBSA officer also denied them entry, finding they were not genuine visitors.
After they were refused entry on this occasion, the Applicants travelled to Seattle and went to
the Canadian Consulate (Consulate) there. Although they sought assistance in
entering Canada at the
Consulate, none was forthcoming. The Applicants then went to California, stayed
there for ten days, and returned to Seattle. The Applicants sold
their car in Seattle because it
seemed prudent at the time.
[6]
After
selling their car, the Applicants had a friend drive them across the border
into Canada sometime in
June 2008. When they crossed the border, the CBSA officer present asked to see
their passports, admitted them to Canada as visitors, and told
them to have a nice trip. Once in Canada, the Applicants
travelled to Vancouver, where they booked flights to Edmonton. The
Applicants flew to Edmonton and remain there to this day.
[7]
The
Applicants applied to extend their stay in Canada on 17
November 2008. An immigration officer in Edmonton interviewed
the Applicants on 9 July 2009 (2009 Interview). The immigration officer
conducting the interview (Korzenowski) noted that the Female Applicant was
incoherent, smiled, and moaned. Korzenowski said in her notes it appeared the
Female Applicant had major health and medical issues which the Applicants had
not disclosed in their application to extend their stay. She excused the Female
Applicant from the interview room when it became apparent she could not
participate.
[8]
After
the interview, Korzenowski denied the Applicants’ request to extend their stay
in Canada. In a
refusal letter, dated 14 July 2009, she noted she had considered the reasons
for their original entry and request for an extension, their financial means
for return and an extended stay in Canada, their ties to the USA,
and the probability they would leave Canada at the end of their
authorized stay. Korzenowski found there were insufficient grounds to extend
their stay. She informed the Applicants they were required to leave Canada immediately
and issued them voluntary departure confirmation certificates.
[9]
The
Applicants respondent to Korzenowski’s decision by letter dated 21 July 2009.
They noted they had filed an application for H&C relief prior to asking an
extension of their stay, which was still outstanding (see below). They also
said they could not return to Canada and that “if Canadian immigration law
related to sponsoring parents worked properly, this situation would not have
developed.” They informed Korzenowski they would make every attempt to block
their removal through the judicial process.
[10]
As
a result of the 2009 Interview, Korzenowski issued inadmissibility reports
against the Applicants under subsection 44(1) of the Act. These reports led a
Minster’s delegate to issue removal orders against the Applicants on 31 July
2009. They applied for judicial review of the decision to issue exclusion
orders against them. Justice John O’Keefe dismissed their application for
judicial review on 8 September 2010 (see Rosenberry v Canada (Minister of
Citizenship and Immigration) 2010 FC 882).
[11]
On
8 July 2009, CIC received the Applicants’ application for permanent residence
on H&C grounds (H&C Application). At the same time, Janice filed an
Application to Sponsor and Undertaking – form IMM 1344 – and a Sponsorship
Agreement – form IMM 1344 B – to support the H&C Application. The
Applicants also made written submissions in which they said they did not have a
support system in place in the USA and Janice was the only one of their
children who was interested in taking care of them. They also said their stay
in Canada underlined
the failings of the Canadian immigration system, in that the delay in
processing their Family Class Application drove them to come to Canada and live
here without status.
[12]
With
their written submissions, the Applicants provided a letter from Dr. Robert
Carter – the Applicants’ family physician in Edmonton (Carter
Letter). The Carter Letter said the Female Applicant suffers from advanced
Alzheimer’s disease and that, though she required care from the Male Applicant and
Janice,
Canada’s
health care system had not borne any of the costs for her care. The Carter
Letter also indicated that the Female Applicant’s medical needs exerted a
significant burden on her family and she would eventually require
institutionalized care. The Carter Letter concluded that the Female Applicant
would require increased health care and could become a burden on Canada’s health
care system.
[13]
The
Applicants provided additional submissions to the Officer on 2 October 2009. At
this time, they submitted a report from Bonnie Patterson-Payne, a social worker
practicing in Edmonton (Social
Worker Report), and a letter from Jeanne Hackama, the Director of Care at Open
Arms Family Care Ltd. – the private care home to which the Female Applicant had
been admitted (Hackama Letter). The Hackama Letter indicated the Female
Applicant is unable to speak for herself and needs total physical care.
[14]
The
Social Worker Report indicated that Janice was concerned about the Female
Applicant’s condition and that the cost of the Female Applicant’s care in Canada was
approximately $2900 per month, where the same level of care would cost $8000
per month in the USA. The Social Worker Report also noted that in Edmonton the Male
Applicant had the support of a group of Plymouth Brethren – a Christian sect of
which he is a member.
[15]
A
medical officer at CIC (Quevillon) issued a Medical Notification to the Female
Applicant on 4 November 2009. The Medical Notification indicated that if she
were permitted to enter Canada, the Female Applicant might reasonably be
expected to cause excessive demands on Canada’s health or
social services. Quevillon found the Female Applicant had advanced Alzheimer’s
disease and her condition would deteriorate over time so that she would
eventually require 24 hour care. Quevillon also found the Female Applicant’s
condition might reasonably be expected to require services which would cost
more than the average Canadian per-capita cost over five years. Quevillon
concluded the Female Applicant was inadmissible under paragraph 38(1)(c)
of the Act.
[16]
The
Applicants applied for TRPs on 22 September 2010 (TRP Application). In the Male
Applicant’s submissions, he noted the Female Applicant was in a nursing home
under 24-hour care. He said there was no prospect for improvement, so the
Applicants could not relocate. He also said they posed no danger to Canada and would
not place a burden on Canada’s health care system because they were
paying for their own care. The Male Applicant said he had not yet received word
on the Family Class Application. The Female Applicant’s application form
indicated the Applicants wished to stay in Canada until the
Family Class Application was considered. The Applicants also made written
submissions in support of their TRP Application in which they said they had
little support to return to in the USA and Janice was the only
child who would be able to care for them. They said a TRP was the fairest way
for Canada to address
their circumstances. According to the Applicants, to march the 80-year-old Male
Applicant out of Canada with his wife carried on a stretcher behind him
would demonstrate a complete collapse in Canadian humanity and reasonableness.
[17]
The
Officer informed the Applicants on 27 April 2011 that the TRP Application would
be processed along with the H&C Application. He also informed them he
believed the Female Applicant was inadmissible to Canada under
subsection 38(1) of the Act and invited them to make submissions on this issue.
In submissions dated 24 May 2011, the Applicants gave the Officer financial
information to show their ability to pay for the services the Female Applicant
would require. They noted they were currently paying for her medical attention
and said they had sufficient resources to continue to fund her care. The Applicants
also provided the Officer with a Declaration of Ability and Intent, dated 15
May 2011, in which the Male Applicant declared he would not hold provincial
authorities responsible for the cost of social services. He also declared he
would assume responsibility for arranging the provision of the required social
services. The Applicants asked the Officer to exercise discretion in their case
and give significant weight to their ability to pay for the Female Applicant’s
continuing needs.
[18]
The
Officer considered the Applicants’ submissions on the H&C Application and
made the H&C Decision on 6 July 2011. He was not satisfied unusual and
undeserved or disproportionate hardship would result to the Applicants if their
H&C Application were denied, so he refused their application.
[19]
After
considering the Applicants’ H&C Application, the Officer considered whether
to grant them a TRP under subsection 24(1) of the Act. On 6 July 2011, he wrote
a memorandum (Memorandum) to the Director of CIC (Director) in which the Officer
decided against granting the Applicants TRPs. The Officer’s supervisor agreed
with his findings and endorsed the Memorandum on 14 July 2011. The Director
concurred with the TRP Decision and endorsed the Memorandum on 21 July 2011.
[20]
The
Officer notified the Applicants of the TRP Decision and H&C Decision by
letter dated 21 July 2011. The Applicants applied for leave and judicial review
of both decisions on 25 August 2011. Justice Michael Kelen granted leave on 30
December 2011 and ordered that the applications be heard together.
DECISIONS
UNDER REVIEW
H&C
Decision
[21]
The
H&C Decision consists of the letter the Officer sent to the Applicants on
21 July 2011 (Refusal Letter) and his Reasons for Decision (H&C Reasons),
signed 6 July 2011. The Refusal Letter indicates the Officer considered and
rejected both the H&C and TRP applications.
[22]
The
Officer began by reviewing the Applicants’ biographical information and their
history with CIC. He then reviewed the factors they put forward in their claim.
The Officer noted the Applicants relied on their establishment in Canada related to
the home they have here, the proximity to their daughter, and the Female
Applicant’s medical condition. They also put forward the Male Applicant’s
connection to the Plymouth Brethren community in Ottawa, their sons’
practical inability to care for them, and their financial situation.
[23]
The
Officer briefly reviewed the impact of his Decision on any children directly
affected, finding the Applicants had not put forward any information to show
how their grandchildren would be affected by the H&C decision. The Officer
also reviewed concerns about the Applicants’ health. He noted Quevillon’s
finding the Female Applicant was medically inadmissible because of her advanced
Alzheimer’s disease. He also noted the Applicants submissions on this issue
made in response to the Fairness Letter. The Officer said the Male Applicant
underwent an immigration medical examination, after which he was designated M3.
An M3 designation meant the Male Applicant had a condition for which the
potential demand on health or social services is not sufficient to exclude him under
paragraph 38(1)(c) of the Act.
Analysis
[24]
The
Officer found he was not satisfied there were sufficient H&C grounds in the
Applicants’ case to grant them an exemption under section 25 of the Act.
Immigration
History
[25]
The
Officer noted the Applicants entered Canada in June 2008 after
twice being refused entry because they were not genuine visitors. He noted they
had disposed of their home in California and moved their assets to Canada before
coming here in 2008. Further, he noted Janice was notified about the lengthy
delays in processing parental sponsorship applications. The Officer said the
letter CIC sent Janice after she filed her sponsorship application informed her
about processing times, but did not suggest the Applicants should come to Canada before their
application was processed. The Officer also referred to the 2009 Interview in
which the Male Applicant described their repeated attempts to get into Canada.
[26]
The
Officer found the Applicants’ efforts to get into Canada indicated
persistence and a willingness to do whatever it took to get into Canada. They
continued trying to get into Canada even though they were aware, from their
refusals at the border, that they were not qualified to enter. He also found
that, even if they initially tried to enter Canada in ignorance
of the requirements on them, their entry in June 2008 appeared to have been
planned to circumvent the immigration process. The Officer found they should
have known in June 2008 that they would have to clarify their intentions at the
border, but they did not do so.
[27]
The
Officer then noted that, after the 2009 Interview, CIC issued removal orders
against them and they had applied for judicial review of the process for
issuing the removal orders. The Officer found the Applicants chose to remain in
Canada instead of making other arrangements for their care in the USA. The Officer
found the Applicants were determined not to follow the standard route for
immigration but had done whatever it took to stay in Canada.
[28]
The
Officer also analysed the Applicants’ motivation for coming to Canada. He found
they have several family members in the USA and the
Social Worker Report did not indicate any abuse at the hands of their American
family. He also found there was insufficient evidence the Applicants could not
move within the USA to be closer to their sons. The Officer noted
the Applicants do not live with their daughter in Canada; the Male
Applicant lives on his own and the Female Applicant lives in a care facility. In their submissions, the Applicants
raised the Male Applicant’s connection to the Plymouth Brethren community in Edmonton and the Social Worker Report said the support of this
community was not available to him in the USA. However, the Officer questioned how the
Male Applicant managed to get by without this support while he was in the USA
and what had made it necessary to have the support of the community in Canada.
[29]
The Officer found
there was no justifiable reason for the Applicants to have rushed their move to
Canada. He also found there was no reason they
could not return to the USA pending the outcome of their Family
Class Application.
[30]
The Officer also
found the motivating factor behind the Applicants move to Canada seemed to be the Female Applicant’s medical condition. He
said information before him clearly showed the Female Applicant was diagnosed
with Alzheimer’s disease as early as 2005. The Officer found that, by the time
the Applicants came to Canada in 2008, the Female Applicant’s
condition had progressed to the point that the Officers noted her dementia when
they attempted to enter Canada. Further, at the 2009 Interview, Korzenowski
mentioned that the Female Applicant was incoherent, moaned, and smiled quite a
bit. The Officer also referred to the Medical Notification, and noted he had
sent the Applicants a fairness letter. Although the Applicants made submissions
on the Female Applicant’s medical inadmissibility, the Officer found the
information they submitted did not modify her medical inadmissibility.
[31]
The
Officer also noted the Applicants advised him they were paying for the Female
Applicant’s medical care and had sufficient funds to pay for her care. The
Officer said he chose not to pursue the medical inadmissibility issue; he said
his purpose in reviewing it was to show how the Female Applicant’s condition
was a significant, underlying motivation in the Applicants’ decision to come to
Canada. He
questioned why, even though the Applicants were currently paying for the Female
Applicant’s care, they should get into Canada ahead of
others by jumping the queue. The Officer also noted that, independent of the
medical inadmissibility, the Applicants were subject to outstanding removal orders.
Conclusion
[32]
The
Officer found the Female Applicant’s family knew about her condition two to
three years before the Applicants came to Canada. He found
their actions prior to coming to Canada showed a willingness to
bypass the rules when it was expedient and in their best interests to do so.
Although it was understandable they had anticipated her condition might
deteriorate to the point she would be clearly inadmissible to Canada, the
Officer found that the option of coming to Canada became more
attractive as the Female Applicant’s condition deteriorated. Given the
Applicants’ financial resources, he found they had not shown they could not
avail themselves of adequate medical care and housing in the USA.
[33]
Given
the way they had pursued immigration to Canada, the Officer
was not satisfied the Applicants were credible or trustworthy. The means by
which they sought immigration to Canada and an extension of
their visitor status appeared to be an attempt to reduce the impact of the
Female Applicant’s condition. Further, the plan the Applicants submitted to
show how they would pay for the Female Applicant’s care did not contain details
of any future care. The Officer was not convinced that the Male Applicant would
be both willing and able to follow through on his commitment to cover the costs
of the Female Applicant’s care. Although the Applicants said CIC’s lengthy
processing times were to blame for their circumstances, the Officer found they
were advised of these processing times and their circumstances were of their
own making.
TRP
Application
[34]
The
TRP Decision consists of the Refusal Letter and the Memorandum in which the
Officer gave reasons for his Decision.
[35]
The
Officer said in the Refusal Letter he had carefully and sympathetically
reviewed the TRP Application, but concluded there were insufficient grounds to
merit the issue of a TRP. The Officer then informed the Applicants that CBSA
would contact them to make arrangements for their removal.
[36]
In
the Memorandum, the Officer noted the Male Applicant’s statement in the TRP
Application that the Applicants posed no danger to Canada and would
not be inadmissible.
[37]
The
Officer also noted that he had considered and refused the H&C Application.
He said the H&C Application presented no reason for the Applicants to stay in
Canada. The Officer
also noted their Family Class Application was still outstanding and no action
had been taken on the file since 23 February 2011. He said the length of time
the Family Class Application would take was not relevant because the Female Applicant’s
medical inadmissibility was a major factor in refusing the H&C Application.
[38]
As
in the H&C Decision, the Officer found the information they Applicants’
submitted in response to the Fairness Letter did not change the Female
Applicant’s medical inadmissibility. He found she is in need of 24-hour care
but found no reason why a suitable means of returning her to the USA could not be
arranged. The Officer also noted the Male Applicant’s previous immigration
medical exam had expired and said that, given the Male Applicant’s age, there
was a reasonable possibility he might be medically inadmissible.
[39]
The
Officer concluded that, given the timing and means by which the Applicants came
to Canada, their
circumstances were of their own making. He said there was no likelihood of
permanent residence any time soon and that prolonging their stay in Canada could end up
making their situation even worse. The Officer recommended the Director not
issue TRPs to the Applicants.
[40]
Beside
his endorsement, the Supervisor wrote “medically inadmissible. Inadmissibility
still outweighs any H&Cs that may exist. Deliberate circumvent [sic]
the law. [exclusion orders] exist.”
ISSUES
[41]
The
Applicants raise the following issues in this case:
a.
Whether
the Officer properly considered all the evidence;
b.
Whether
the Officer properly assessed hardship in the H&C Application;
c.
Whether
the Officer’s reasons are inadequate;
d.
Whether
the Officer breached their right to procedural fairness;
e.
Whether
the Officer improperly applied CIC’s manual IP-5 – Immigrant Applications in
Canada made on
Humanitarian or Compassionate Grounds (H&C Guidelines) or IP1
– Temporary Resident Permits (TRP Guidelines);
f.
Whether
the Officer was biased.
STANDARD
OF REVIEW
[42]
The
Supreme Court of Canada in Dunsmuir v New Brunswick 2008 SCC 9 held that
a standard of review analysis need not be conducted in every instance. Instead,
where the standard of review applicable to a particular question before the
court is well-settled by past jurisprudence, the reviewing court may adopt that
standard of review. Only where this search proves fruitless must the reviewing
court undertake a consideration of the four factors comprising the standard of
review analysis.
[43]
In
Baker v Canada (Minister of Citizenship and Immigration),
[1999] 2 S.C.R. 817, the Supreme Court of Canada held that, when reviewing an H&C decision, “considerable
deference should be accorded to immigration Officers exercising the powers
conferred by the legislation, given the fact-specific nature of the inquiry,
its role within the statutory scheme as an exception, the fact that the
decision-maker is the Minister, and the considerable discretion evidenced by
the statutory language” (paragraph 62). Justice Michael Phelan followed this
approach in Thandal v Canada
(Minister of Citizenship and Immigration) 2008 FC 489, at paragraph 7. The Federal
Court of Appeal found at paragraph 18 of Kisana v Canada
(Minister of Citizenship and Immigration) 2009 FCA 189 that the standard of review on H&C determinations is reasonableness.
[44]
In Vidakovic
v Canada (Minister of Citizenship and
Immigration) 2011
FC 605, Justice Yvon Pinard held at paragraph 15 that the standard of review on
the decision to issue a TRP is reasonableness. Justice Michel Shore found that a TRP decision is highly
discretionary and was subject to the patent unreasonableness standard of review
in Farhat v Canada (Minister of Citizenship and
Immigration) 2006
FC 1275. The standard of review on the first two issues is reasonableness.
[45]
In Newfoundland and Labrador Nurses’ Union v Newfoundland and
Labrador (Treasury Board) 2011 SCC 62, the Supreme Court of Canada held
at paragraph 14 that the adequacy of reasons is not a stand-alone basis for
quashing a decision. Rather, “the reasons must be read together with the
outcome and serve the purpose of showing whether the result falls within a
range of possible outcomes.” The third issue in this case, whether the Officer
provided adequate reasons, is to be analyzed along with the reasonableness of
the Decision as a whole.
[46]
The fifth
issue in this case touches on the Officer’s application of a legal test to the
evidence in front of him. This is a question of mixed fact and law, to which
the applicable standard of review is reasonableness (see Dunsmuir,
above, at paragraph 51).
[47]
When
reviewing a decision on the standard of reasonableness, the analysis will be
concerned with “the existence of justification, transparency and
intelligibility within the decision-making process [and also with] whether the
decision falls within a range of possible, acceptable outcomes which are
defensible in respect of the facts and law.” See Dunsmuir, above, at
paragraph 47, and Canada (Minister of Citizenship and
Immigration) v
Khosa 2009 SCC 12 at paragraph 59. Put another way, the Court should
intervene only if the Decision was unreasonable in the sense that it falls
outside the “range of possible, acceptable outcomes which are defensible in
respect of the facts and law.”
[48]
The
Applicants raise several breaches of procedural fairness, including the Officer’s
decision not to interview them. The Federal Court of Appeal held in Sketchley
v Canada (Attorney General) 2005 FCA 404 at paragraph 53 that the “procedural
fairness element is reviewed as a question of law. No deference is due. The
decision-maker has either complied with the content of the duty of fairness
appropriate for the particular circumstances, or has breached this duty.” Also,
in Canadian
Union of Public Employees (C.U.P.E.) v Ontario (Minister of
Labour) 2003
SCC 29, the Supreme Court of Canada held at paragraph 100 that “It is for the courts,
not the Minister, to provide the legal answer to procedural fairness questions.” The standard of review in
on the fourth issue is correctness.
[49]
In Committee for Justice and Liberty v Canada
(National Energy Board), [1978] 1 S.C.R. 369, [1976] SCJ No 118,
Justice de Grandpré wrote at page 394 that the test for bias is that
[...] the apprehension of bias must be a reasonable one, held by reasonable and
right minded persons, applying themselves to the question and obtaining thereon
the required information. In the words of the Court of Appeal, that test is “what
would an informed person, viewing the matter realistically and practically --
and having thought the matter through -- conclude. Would he think that it is
more likely than not that Mr. Crowe, whether consciously or unconsciously,
would not decide fairly?”
[50]
Though Justice de Grandpré was in dissent, this formulation
of the test was later approved by the Supreme Court of Canada in R v RDS,
[1997] 3 S.C.R. 484, [1997] SCJ No. 84. In that case, Justice Cory held at
paragraph 114 that
The onus of demonstrating bias lies with the person who is alleging its existence.
[...] Further, whether a reasonable apprehension of bias arises will depend entirely on the facts of the
case.
[51]
Whether the Officer was biased is a question of fact within
the jurisdiction of the reviewing court (see also Martinez v Canada
(Minister of Citizenship and Immigration) 2005 FC 1065 at
paragraph 5).
STATUTORY
PROVISIONS
[52]
The
following provisions of the Act are applicable in this proceeding:
11. (1) A foreign national must, before
entering Canada, apply to an officer for a visa or for any other document required
by the regulations. The visa or document may be issued if, following an
examination, the officer is satisfied that the foreign national is not inadmissible
and meets the requirements of this Act.
[…]
24. (1) A foreign national who, in the opinion of an officer, is
inadmissible or does not meet the requirements of this Act becomes a
temporary resident if an officer is of the opinion that it is justified in
the circumstances and issues a temporary resident permit, which may be
cancelled at any time.
[…]
(3) In applying subsection (1), the officer shall act in accordance with
any instructions that the Minister may make.
[…]
25. (1) The Minister must, on request of a foreign national in Canada who is
inadmissible or who does not meet the requirements of this Act, and may, on
request of a foreign national outside Canada, examine the circumstances concerning
the foreign national and may grant the foreign national permanent resident
status or an exemption from any applicable criteria or obligations of this
Act if the Minister is of the opinion that it is justified by humanitarian
and compassionate considerations relating to the foreign national, taking
into account the best interests of a child directly affected.
[…]
42. A foreign national, other than a
protected person, is inadmissible on grounds of an inadmissible family member
if
(a) their accompanying family member or, in prescribed
circumstances, their non- accompanying family member is inadmissible; or
(b) they are an accompanying family member of an inadmissible
person.
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11. (1)
L’étranger doit, préalablement à son entrée au Canada, demander à l’agent les
visa et autres documents requis par règlement. L’agent peut les délivrer sur
preuve, à la suite d’un contrôle, que l’étranger n’est pas interdit de
territoire et se conforme à la présente loi.
[…]
24. (1)
Devient résident temporaire l’étranger, dont l’agent estime qu’il est
interdit de territoire ou ne se conforme pas à la présente loi, à qui il
délivre, s’il estime que les circonstances
le justifient, un permis de séjour temporaire — titre
révocable en tout temps.
[…]
(3) L’agent est tenu
de se conformer aux instructions que le ministre peut donner pour
l’application du paragraphe (1).
[…]
25. (1) Le
ministre doit, sur demande d’un étranger se trouvant au Canada qui est
interdit de territoire ou qui ne se conforme pas à la présente
loi, et peut, sur
demande d’un étranger se trouvant hors du Canada, étudier le cas de cet
étranger; il peut
lui octroyer le statut de résident permanent ou lever tout ou partie des
critères
et obligations
applicables, s’il estime que des considérations d’ordre humanitaire relatives
à l’étranger le justifient, compte tenu de l’intérêt
supérieur de l’enfant directement touché.
[…]
42. Emportent,
sauf pour le résident permanent ou une personne protégée, interdiction de
territoire pour inadmissibilité familiale les faits suivants:
a)
l’interdiction de territoire frappant tout membre de sa famille qui
l’accompagne ou
qui, dans les cas
réglementaires, ne l’accompagne pas;
b)
accompagner, pour un membre de sa famille, un interdit de territoire.
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[53]
The
following provision of the Federal Courts Rules SOR/98-106 (Rules) is
applicable in this case:
56. Non-compliance with any of these Rules
does not render a proceeding, a step in a proceeding or an order void, but
instead constitutes an irregularity, which may be addressed under rules 58 to
60.
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56. L’inobservation
d’une disposition des présentes règles n’entache pas de nullité
l’instance, une
mesure prise dans l’instance ou l’ordonnance en cause. Elle
constitue une
irrégularité régie par les règles 58 à 60.
|
[54]
The
following provision of the Federal Courts Immigration and Refugee Protection
Rules SOR/ 93-22 (Immigration Rules) is also applicable in this
case:
22. No costs shall be awarded to or payable
by any party in respect of an application for leave, an application for judicial
review or an appeal under these Rules unless the Court, for special reasons,
so orders.
|
22. Sauf
ordonnance contraire rendue par un juge pour des raisons spéciales, la
demande d’autorisation, la demande de contrôle judiciaire ou l’appel
introduit en application des présentes règles ne donnent pas lieu à des
dépens.
|
ARGUMENTS
The
Applicants
[55]
The
Applicants note that a TRP is a means by which people who are otherwise
inadmissible can enter Canada. They acknowledge that applicants bear the
onus of establishing why they should be granted a TRP and point out that
H&C considerations are often raised in this type of application. They also
note that CIC’s Manual the TRP Guidelines instruct officers on how to exercise
the discretion given to them under subsection 24(1) of the Act.
Officer
Ignored H&C Guidelines
[56]
The
Applicants say the Officer ignored the H&C Guidelines when he made the
H&C Decision before their Family Class Application was complete. At page
10, the H&C Guidelines say:
If an H&C
applicant also has a pending application for permanent residence in another
category (e.g. live-in caregiver, spouse or common-law partner in Canada, protected person
etc.), the application that was received first normally takes precedence
although certain types of cases may have priority (e.g. spousal application).
Multiple permanent resident applications should be consolidated. Processing of
the H&C application should not begin until a decision is made on the first
application.
[57]
This
shows the Officer should not have made the H&C Decision until the Family
Class Application was complete.
Officer
Ignored Evidence
[58]
The
Applicants also say the Officer did not examine evidence which was central to
their claim. In the H&C Reasons, the Officer only recited facts gleaned
from the documents they submitted, without appreciating how these facts were
important. They say the Refusal Letter does not mention the Social Worker
Report or the Family Class Application. The Officer does not say why he
rejected the findings set out in the Social Worker Report, which clearly
describes the ties between them and their family in Canada. The Refusal
Letter also does not mention the support the Applicants have from family and
their religious community in Canada, the Female Applicant’s inability to leave Canada, or the fact
the Applicants are paying for the Female Applicant’s care in Canada. The Officer
ignored this same evidence when he considered the TRP Application.
[59]
Following
Cepeda-Gutierrez v Canada (Minister of Citizenship and Immigration), [1998]
FCJ No 1425, the Applicants say the Court can infer that the Officer did not
consider these pieces of evidence from his failure to mention them in either
the H&C or TRP Decision. They also point to Kaur v Canada (Minister of
Citizenship and Immigration) 2010 FC 805, where Justice Marie-Josée
Bédard said the “immigration officer has discretion as to the weight to be
given to the personal circumstances raised by an applicant, but he cannot fail
to have regard to the applicant’s personal circumstances.”
Reasons
Inadequate
[60]
The
Officer’s H&C Reasons do not show why the factors they put forward were not
sufficient to grant an H&C exemption in their case. The Memorandum does not
show why he did not grant their TRP Application.
H&C
Application
[61]
The
Applicants point to Ventura v Canada (Minister of
Citizenship and Immigration) 2010 FC 871, where Justice Yves de Montigny
had this to say at paragraphs 29 and 30
I agree
with the Respondent that the onus is on the Applicant to satisfy the officer
that, in the Applicant’s personal circumstances, the requirement to obtain a
visa from outside Canada in the standard manner would cause unusual and undeserved
or disproportionate hardship. That being said, once an applicant has put
forward the positive factors militating in favour of granting his H&C
application, the officer must explain why he does not find these factors
sufficient to grant the application. An applicant is entitled to know why he
failed to convince the officer of the cogency of his case, especially when there
is so much at stake as his future in this country.
In the case
at bar, the officer did not meet this standard. He merely recited the
allegations of the Applicant, only to dismiss them without any kind of
explanation or analysis. Counsel for the Respondent countered that the
Applicant, through his counsel, had not elaborated as to how and why the
factors submitted would constitute undue hardship in the first place. I do not
find this argument convincing. The implications of severing the Applicant’s
establishment in Canada, as evidenced by his family relations, his community
involvement, his work and his studies are obvious without the necessity of
stating how and why, from his point of view, his return to Angola would constitute
undue hardship. On the basis of the record before him, the officer had more
than sufficient evidence not only to determine whether unusual and undeserved
or disproportionate hardship had been made out, but as importantly to give his
reasons as to why he came to his conclusion.
[62]
The
Officer in the present case did not adequately explain his conclusions and
engaged in speculation.
Officer did
not Consider Hardship
[63]
The
Officer did not assess whether the hardship the Applicants would face if their
H&C Application were denied was disproportionate in their circumstances.
They note the H&C Guidelines set out unusual and undeserved or
disproportionate hardship as an acceptable test for an H&C exemption.
Hardship should be assessed globally by weighing all the H&C considerations
applicants submit. The Applicants also note that, in Hinzman v Canada
(Minister of Citizenship and Immigration) 2010 FCA 177, the Federal Court
of Appeal held at paragraph 40 that officers assessing H&C applications
have a duty to consider applicants’ personal circumstances. However, the
Officer did not examine the disproportionate hardship the Female Applicant
would experience in her personal circumstances.
Establishment
[64]
The
Applicants note the H&C Guidelines instruct officers examining H&C
applications to consider establishment in Canada as a factor
in the H&C Application.
Medical
Condition
[65]
When
the Officer was assessing was assessing the H&C Application, he did not
appropriately treat the information about the Female Applicant. He did not say
why he rejected their submission that an individualized assessment of their
case meant non-medical evidence should be accepted. The Officer did not
consider the Applicants’ financial resources or the plan they submitted to pay
for the Female Applicant’s needs. The Officer only listed the documents they
submitted and said “the new information does not modify the current assessment
of medical inadmissibility.” Even though the Applicants provided submissions in
response to the 27 April 2011 Fairness Letter, the Refusal Letter did not mention
their plan to overcome the Female Applicant’s medical inadmissibility. The
H&C Reasons also do not show how the Officer considered the instructions on
health inadmissibility in the H&C Guidelines.
Family
Relationship
[66]
The
H&C Reasons do not show that the Officer adequately considered the
relationship they have with their family in Canada. They note
the H&C Guidelines direct officers to consider links to family members.
Although the Social Worker Report indicated strong family ties in Canada and the hardship
they would face if these ties were severed, the Officer only repeated the
report’s analysis of their family. The Officer ignored the recommendations in
the Social Worker Report that the Applicants be allowed to stay in Canada and did not
say how he applied the H&C Guidelines to this aspect of their case.
[67]
The
Applicants also say the Reasons do not adequately explain why the Officer did
not grant them TRPs after denying the H&C Application. The H&C
Guidelines say an officer may grant a TRP if an H&C Application is refused.
However, it appears the Officer rejected their TRP Application because he also
rejected the H&C Application, for which they provided strong evidence. The
Applicants say the reasons for rejecting the TRP Application are identical to
those for rejecting the H&C Application with the exception of the
Memorandum. The Officer closed his mind to the possibility of granting a TRP,
so the H&C Decision must be returned.
[68]
In
Parmar v Canada (Minister of Citizenship and Immigration) 2010 FC 723,
Justice François Lemieux held at paragraph 49 that
Without any analysis or comment the Visa Officer simply indicated
that the applicant’s Fairness response did not change her previously expressed
view. The reasons were seriously deficient as they did not fulfill their
functions of explaining why Mr. Parmar’s submissions on the lack of need for
social services were not accepted, providing public accountability and
permitting effective judicial review. On the basis of these inadequate reasons,
this Court simply does not know if the Medical Officer took into consideration
the teachings in Hilewitz particularly on the need
for an individualized assessment for Inderjot.
[69]
The
Applicants say the Reasons in this case do not meet the test Justice Lemieux
articulated in Parmar, so both Decisions must be returned for
reconsideration.
Improperly Assessment of Evidence in the
TRP Application
[70]
The
Applicants also say the Officer did not assess the evidence they presented him
in light of the TRP Guidelines. The TRP Guidelines tell officers they may issue
a TRP if the need to enter or remain in Canada and the need to for presence in Canada outweighs
the risks to Canadians or Canadian society. The Officer did not consider any of
the factors listed in section 12.1 – Needs Assessment in the TRP
Guidelines and also did not follow the instructions for assessing the risk to
Canadian society at section 13.1 of the TRP Guidelines. Further, the Officer
did not consider how the instructions to officers on medical inadmissibility
cases, found at section 13.2 of the TRP Guidelines, impacted on the Female
Applicant’s case.
[71]
Although
the Officer gave reasons for refusing the Applicants’ TRP Application, none of
the reasons he gave fall into the categories the TRP Guidelines list in section
18 – Procedure: When not to Issue a TRP. This shows the TRP Decision is
capricious and does not accord with subsection 24(3) of the Act, which directs
officers to exercise their discretion in accord with any instructions from the
Minister.
[72]
Although
the Female Applicant was medically inadmissible, this was not an obstacle to
granting the Male Applicant a TRP. Further, the Officer’s finding that the Male
Applicant’s medical admissibility might change for the worse was speculative,
so the TRP Decision should be returned.
Other Factors and Evidence
[73]
The
Applicants also say the Officer did not consider the additional evidence they
submitted which showed they were able to overcome the Female Applicant’s
medical inadmissibility and should be granted a TRP. They provided the Officer
with information that showed they have the resources to pay for the Female
Applicant’s care, but neither the Refusal Letter nor the Memorandum mention
this evidence. The Officer’s only statement on this aspect of their TRP
Application is his conclusion that “the new information does not modify the
current assessment of medical inadmissibility.” The Officer does not explain
why the evidence they submitted does not overcome the medical inadmissibility,
which shows he did not consider it.
Officer Breached
Procedural Fairness
[74]
The
Applicants also say the Officer breached their right to procedural fairness
because he was biased. They refer to the test for bias in Committee for
Justice and Liberty, above, and say a reasonable and informed person would perceive
bias in the Officer’s conduct. The Officer made unfair statements which show he
did not approach the facts, evidence, and submissions with an open mind. He
wrote in a critical and harsh tone typical of matters dealing with
misrepresentation or criminal convictions which was inappropriate in this case.
The Applicants say the Officer committed the same error Justice L’Heureux-Dubé
cautioned against in Baker, above, when the officer’s “frustration
with the “system” interfered with his duty to consider impartially whether the
appellant’s admission should be facilitated owing to humanitarian or
compassionate considerations.” See paragraph 48.
[75]
The Applicants also say the Officer engaged in speculation
when he said he was not convinced the Male Applicant would remain willing and
able to follow through on his commitment.
Failure
to Conduct an Interview
[76]
The
Applicants note the Officer found they were not credible or trustworthy and say
he was obligated to call them for an interview to address any credibility concerns.
He did not, so he breached their right to procedural fairness.
Costs
[77]
The
Applicants ask for costs in this application, because the Officer was biased
against them. They note the Respondent has not given them notice he intends to
enforce the removal orders against them and point out that the TRP Guidelines
say a TRP may be issued where enforcement of a removal order is not possible.
The Respondent
[78]
The
Respondent notes that H&C Relief under subsection 25(1) of the Act provides
exceptional relief from the ordinary requirement to obtain a visa before coming
to Canada. TRPs are
also an exceptional measure; applicants must satisfy officers reviewing their
applications they will leave Canada upon the expiry of their status. The
Respondent also notes that Quevillon found the Female Applicant medically
inadmissible. The Applicants have a history of non-compliance with Canada’s
immigration laws and their actions show they are not trustworthy.
Guidelines
Not Binding
[79]
CIC’s
Guidelines are not binding on Officers and are only instructions which are
designed to encourage consistency in decision making. Subsection 25(1) confers
a large amount of discretion on officers to grant or not grant requests for
H&C relief.
H&C Process
[80]
The
H&C Guidelines instruct officers on how to proceed in H&C applications
where an applicant is found medically inadmissible, as the Female Applicant was
in this case. Officers can refuse an H&C application for medical
inadmissibility, but they can also grant the application. When considering an
H&C exemption in the face of a medical inadmissibility, the H&C
Guidelines instruct officers to consider the cost of care, alternate
arrangements which have been made, the likelihood the applicant will be
self-supporting, and the severity of the applicant’s anticipated need for
health or social services. Hilewitz v Canada (Minister of
Citizenship and Immigration) 2005 SCC 57 establishes that officers must
consider applicants’ willingness and ability to mitigate any excessive demand
on social services. The Officer considered these factors, so the H&C
Decision should stand.
TRP Guidelines
[81]
The
TRP Guidelines give direction to officers on how to exercise their discretion
and to encourage consistency in decision making. Subsection 24(3) of the Act
does not give the TRP Guidelines the force of law because they are not
instructions within the meaning of that section. Section 1 of the TRP
Guidelines provides as follows:
This chapter provides
policy and procedural guidelines to Citizenship and Immigration Canada (CIC)
staff at inland offices on:
i.
issuing
temporary resident permits to allow inadmissible persons to enter or remain in Canada;
ii.
extension,
expiry and cancellation of permits;
iii.
granting
of permanent resident status to permit holders.
[82]
Instructions
within the meaning of subsection 24(3) are appended to the TRP Guidelines and
are clearly issued personally by the Minister. The TRP Guidelines, though
useful to assist officers and the Court, are not binding on the Minister or his
delegates.
Two Decisions Separate
[83]
The
Respondent says the Officer made the Decision on the TRP Application
independent of his determination of the H&C Application. Although the
Refusal Letter addresses both decisions, they were made separately. The reasons
in each decision under review are separate except to the extent the Memorandum
refers to pages 8 and 9 of the H&C Decision.
No Premature
H&C Decision
[84]
It
was reasonable for the Officer to make the H&C Decision before their Family
Class Application was completed. Although the H&C Guidelines say Officers
should not process H&C Applications until other pending sponsorship
applications are complete, the Respondent says the only outstanding application
is Janice’s sponsorship application; the Applicants have not actually applied
for permanent residence.
[85]
The
Respondent also notes that the H&C Guidelines are not legally binding, so
it was not a reviewable error for the Officer to make the H&C Decision when
he did. Leaving an H&C application to be processed until after other
applications may not be practical in every case. Further, the Applicants were
not prejudiced when the Officer processed their H&C Application before the
Family Class Application was complete.
Factors and
Evidence Weighed Appropriately
H&C Application
[86]
The
Officer provided sufficient reasons to show he weighed all the factors and
evidence the Applicants put forward to support their H&C Application. The
H&C Guidelines set out factors to be considered in processing an H&C
application, but these are only indicators of what constitutes a reasonable
interpretation of the power conferred by subsection 25(1) (see Baker,
above, at paragraphs 16 and 17). Although the Applicants have said he did not,
the Officer acknowledged the pending Family Class Application, but nothing
turned on this evidence.
Social
Worker Report
[87]
The
H&C Reasons show the Officer considered the Social Worker Report. He was
not bound to accept its conclusions. Immigration officers have substantial
leeway to decide which considerations are relevant in any given H&C application
and their discretion includes the right to assign more or less weight to
various factors.
Family Ties
[88]
In
this case, the Officer considered the support available to the Applicants in Canada and in the USA. Although
the Applicants said their children in the USA were unable
to care for them, the Officer found they provided insufficient evidence to
prove this was the case. Contrary to the Applicants’ assertions, the CBSA
officer’s notes from their first attempt to enter Canada showed their sons in California are a banker
and an electrical contractor, both of whom said the Applicants could live with
them. Further, the Social Worker Report indicated the sons had loving
relationships with their parents, even though they were not able to care for
them daily.
[89]
Even
though the Applicants preferred to stay close to Janice in Edmonton, they
provided insufficient reasons why they could not live in the USA. Their
documentation showed they were supporting themselves financially, so the sons’
financial support was not important. They are also not living with Janice and
have sold their home in California, so the distance from
their sons was not important.
Female
Applicant’s Condition
[90]
The
Officer also adequately considered the impact of the Female Applicant’s medical
condition on the H&C Application. The Applicants have not shown why the
fact the Female Applicant was in private care should have resulted in a
positive H&C determination. The Male Applicant decided to move the Female
Applicant into a care home in Canada even though they did not have status here.
It was clearly relevant for the Officer to consider that the Applicants’
circumstances in Canada were of their own making. The Applicants have
also not demonstrated that health care in the USA would be
inadequate, even though it may be more expensive. Bichari v Canada (Minister
of Citizenship and Immigration) 2010 FC 127 establishes that the standard
for H&C relief is not whether better or more affordable treatment is
available in Canada.
[91]
It
was also reasonable for the Officer to find he was not satisfied the Applicants
would follow through on their commitment to pay for the Female Applicant’s care
in Canada. The plan
they submitted lacked detail which was a reasonable basis for the Officer’s
conclusion. The Applicants also did not provide sufficient medical evidence to
show the Female Applicant could not be removed to the USA.
Male
Applicant’s Spiritual Support
[92]
The
Officer also considered the impact of the Male Applicant’s Plymouth Brethren
community on the H&C Application. It was reasonable for the Officer to put
little weight on this factor, as the Male Applicant had apparently been a
member of the Plymouth Brethren while he was in the USA. He had not
shown why it was necessary for him to be with the community in Canada.
[93]
The
Applicants’ complaints about the factors the Officer considered amounts only to
a disagreement with how he weighed the evidence. The Applicants have not
established the Officer did not consider any relevant factor and it is not
proper for the Court on judicial review to re-examine the weight the Officer
gave to those factors.
TRP Application
[94]
The
Respondent notes that a TRP application is not a full H&C Application,
which means the Officer was not obligated to deal with every submission the
Applicants made. The Officer considered all the relevant evidence.
[95]
Although
the Applicants have said otherwise, the Officer did not ignore the Female
Applicant’s medical condition or the plan they submitted to pay for her care
when he considered the TRP Application. The Officer thoroughly addressed these
matters in the H&C Decision and there was no reason to go into the same
detail on the TRP Application. The Memorandum referred to the Officer’s
analysis of these issues in the H&C Decision, which makes it clear the
Officer considered all the relevant factors and evidence. Given the way they
entered Canada, the Officer
was not satisfied the Applicants would remain willing or able to carry out
their commitment to pay for the Female Applicant’s care.
[96]
It
makes no sense for the Applicants to now say the Officer should have granted
the Male Applicant a TRP even if the Female Applicant was medically
inadmissible. This was a joint application and there was no reason for the
Officer to consider whether the Male Applicant would leave his wife of 60 years
to stay in Canada without her.
Section 42 of the Act also makes it clear that, since the Female Applicant is
medically inadmissible, this makes the Male Applicant also inadmissible.
Other Factors in the H&C Application
[97]
The
Respondent also says the Officer reasonably considered other factors in the
H&C Application which the Applicants have not addressed in their
submissions.
Lack of Clean Hands
[98]
It
was reasonable for the Officer to consider the manner in which the Applicants
came to Canada. In their
submissions on their H&C Application, they said the delays in processing
the Family Class Application put them “in a situation in which [they] had to
make a decision about how [Janice] would care for her parents.” It was not speculative
for the Officer to conclude the Female Applicant’s medical condition led them
to come to Canada, given that
they came to Canada without
authorization and knowing the Female Applicant had Alzheimer’s disease.
[99]
The
Respondent points to Legault v Canada (Minister of Citizenship and
Immigration) 2002 FCA 125 for the proposition that those who come to Canada to settle
must be of good faith and comply with the requirements of the Act. The
Applicants’ attempts to circumvent the requirements of the Act were relevant to
the H&C Decision, so it was not an error for the Officer to consider them.
Establishment
in the Applicants’ Control
[100] The
Respondent points to Tartchinska v Canada (Minister of
Citizenship and Immigration), [2000] FCJ No 373. He says where H&C
applicants remain in Canada without status in the absence of
circumstances beyond their control they should not be rewarded for accumulating
time in Canada.
No Evidence of Hardship
[101] In this case,
the Officer clearly took into account the Applicants’ personal circumstances
and found there was no evidence of hardship. It was not an error for the
Officer not to analyse hardship when they did not adduce any evidence of
hardship. Because there was no evidence of hardship, it was reasonable for the
Officer to conclude the H&C factors the Applicants put forward were
outweighed by the Female Applicant’s medical inadmissibility and the fact they
were subject to removal orders.
No
Breach of Procedural Fairness
[102] The
Respondent agrees with the Applicants that the proper test for bias is that set
out in Committee for Justice and Liberty, above, but says the test for
bias is not met in this case. Although the Applicants take issue with the tone
of the Officer’s comments, the Reasons contain fair comments and conclusions based
on the evidence. The Reasons show a reasonable, dispassionate evaluation of the
circumstances based on the evidence and without inflammatory language or
hyperbole. The Officer’s comments here are nothing like the impugned comments
in Baker, above. The Applicant’s disagreement with the Officer’s
conclusions does not show bias.
[103] The
Respondent relies on Ali v Canada (Minister of Citizenship and Immigration) 2008
FC 784, where Justice Michael Phelan held “A TRP is an exceptional remedy
and there is nothing in the process which, of itself, would raise the issue of
a right of interview to the level of procedural fairness” (see paragraph 17).
There was no requirement for the Officer to hold an interview, so he did not
breach the Applicants’ right to procedural fairness when he did not.
No Grounds
for Costs
[104] An award of
costs is inappropriate in this case because the Applicants did not seek costs
in their application for leave or the relief portion of their Memorandum of
Argument. This alone is sufficient to dismiss their request for costs in the
submissions portion of their Memorandum of Argument, but there are also no
special reasons for granting costs in this case. The Respondent points to
section 22 of the Rules and says the Applicants have not shown special reasons
in this case. Even if the Officer erred, this is not enough to justify a cost
award in the face of the policy against awarding costs in immigration matters.
The
Applicants’ Reply
[105] The
Applicants say the Court has overturned H&C decision where officers failed
to appropriately apply the H&C Guidelines. They point to Chen v Canada
(Minister of Citizenship and Immigration), [2003] FCJ No 630, Beluli
v Canada (Minister of Citizenship and Immigration), [2005] FCJ No
1112, Kaur, above, and Kargbo v Canada (Minister of Citizenship and
Immigration), [2011] FCJ No 577. They note that, in Kaur,
above, Justice Bédard held that an officer may weigh an applicant’s
circumstances but may not disregard them.
[106] Although the
Respondent has said the Applicants did not submit a permanent residence
application, they say the Family Class Application included their forms. It was
only a matter of time before CIC would begin processing the Family Class
Application.
[107] The
Applicants also say the inflammatory tone of the Officer’s reasons carries over
into the affidavit he has submitted to the Court. His affidavit also contains
argument which should be given no weight.
Costs
[108] Although they
did not include a request for costs in their leave application, the Applicants
say this was because they had not yet received the Reasons. They were unaware
of the language the Officer used in the Reasons, so they had no basis to
request costs at that time. Further, they rely on section 56 of the Rules to
meet the Respondent’s argument they should be denied costs for not asking for
costs in the ‘relief sought’ portion of their Memorandum of Argument.
The
Respondent’s Further Memorandum
[109] The
Respondent says the Applicants deliberately entered Canada in
contravention of the Act and Regulations. Given their immigration history, it
was reasonable for the Officer to conclude they had not entered Canada for a
temporary purpose and to deny their TRP Application accordingly. They have not
shown the H&C Decision was unreasonable, that any of the reasons the Officer
gave are inadequate, or the Officer was biased, so both decisions should stand.
Reasons
Sufficient
[110] The
Respondent says the Reasons were sufficient and, if they were not, the
Applicants were obligated to request additional information and clarification.
He points to Hayama v Canada (Minister of
Citizenship and Immigration) 2003 FC 1305, at paragraph 15, where
Justice Edmond Blanchard said
If the applicant was unsatisfied with the decision letter and felt
it did not adequately explain the decision, a request should have been made for
further elucidation. There is no evidence that such a request would have been
refused. I therefore conclude that, in the circumstances of this case, there is
no breach of duty of fairness due to an absence of reasons, or inadequacy of
reasons.
[111] Although the
Applicants have argued the H&C Reasons do not show how the Officer
considered the H&C Guidelines related to health inadmissibility, the
Respondent says Quevillon acknowledged the Applicants presently had funds to
pay for the Female Applicant’s care. However, the Officer found this was not
sufficient; he denied the H&C Application because he was not satisfied they
would continue to pay for the care the Female Applicant required. He also found
their ability to pay for her care was undermined by their immigration history
and lack of credibility. Further, the Female Applicant’s medical
inadmissibility was only relevant in that it showed the Applicants’ motivation
for avoiding ordinary immigration channels.
[112] In addition,
the Respondent notes the Officer said medical inadmissibility was not necessary
to refuse the H&C Application because the Applicants were already
inadmissible under subsection 44(1) of the Act. The Female Applicant’s medical
inadmissibility was only one of several factors the Officer considered. Parmar,
above, says reasons must explain the decision to the parties, provide public
accountability, and permit effective review. The H&C Reasons in this case
meet this test.
[113] Although the
reasons the Officer gave for refusing the TRP Application are concise, they are
clear. The Officer found no reason for the Applicants to remain in Canada. They are
inadmissible for a previous overstay, they are subject to a removal order, and
there is no likelihood they will be granted permanent residence in the near
future. The Female Applicant is medically inadmissible and it is possible the
Male Applicant is medically inadmissible as well. The handwritten note on the
Memorandum summarizes these concerns. The Respondent notes that the TRP
Decision was informed in part by the Officer’s H&C Decision; his reasons
for that decision were adequate, so his reasons on the TRP Application are also
adequate.
[114] The adequacy
of reasons depends on the circumstances of each case. So long as the reasons show
the decision-maker considered all the relevant factors, they will be sufficient
(see Shahid v Canada (Minister of
Citizenship and Immigration) 2004 FC 1607 at paragraph 15). It is clear
from his reasons that the Officer considered all the relevant factors in this
case.
TRP Refusal Reasonable
[115] A TRP is
premised on an applicant’s intention to stay in Canada for a
temporary purpose. The Officer was not satisfied the Applicants had such a
purpose, so it was reasonable for him to deny their TRP Application. Prior
non-compliance with immigration laws is a proper basis on which to conclude an
applicant for a TRP will not leave on the expiration of the TRP. Although the
Officer did not explicitly consider the factors set out in the TRP Guidelines,
the guidelines are not binding and cannot fetter the Officer’s discretion.
[116] The Officer’s
Decision to refuse the Applicant’s TRP Application was reasonable because they
did not have a temporary purpose to be in Canada. Given the
Officer’s refusal of their H&C Application and their history of disregard
for Canada’s
immigration laws, there was no reason for him to grant their application.
Further, their prior non-compliance was an appropriate basis for him to
conclude they would overstay any TRP they were granted. The Officer also
considered the Applicants’ ability to leave Canada and how this would be
affected by a prolonged stay in Canada.
ANALYSIS
[117] I heard
IMM-5788-11 and IMM-5790-11 together. These Reasons and my decision should be
placed on both files.
[118] Gordon and
Muriel Rosenberry are old and sick and, at this stage in their lives, deserve
respect and sympathy. Fortunately for them, as age and illness began to darken
their days, they came to Canada where, as the record shows, they have been
afforded every advantage and dignity our immigration system has to offer. The
officers who have dealt with them have acted with exemplary compassion and
professionalism, but those same officers are charged with the duty of enforcing
Canadian law and maintaining the integrity of our immigration system. Because
they have done their duty, the Applicants are now accusing them of bias and are
even asking that their costs be paid. This is an unfortunate approach for the
Applicants to take before this Court, and it is one which reflects badly upon
them.
[119] The truth of
the matter is that the Applicants have no right to be in Canada. They knew
this before they came and they know it now. They simply decided, knowing that
Muriel was very sick with Alzheimer’s, that they would jump the queue and come
and live in Edmonton. Muriel
cannot be faulted because of her illness, but Gordon and his daughter, Janice,
appear to have known exactly what the situation was and to have decided to act
in disregard of Canadian law. Nor have they been entirely forthright with
immigration authorities.
[120] Although
Gordon and Muriel are old and sick, they are far from destitute. They can both
afford the medical care they need and there is nothing to suggest it would not
be available to them in the USA at a price they can afford. They have
simply decided that they like Canada’s health care system better and that there
is likely a monetary advantage to their being here.
[121] The
Applicants are fortunate in having a loving daughter in Janice, who lives close
by in Edmonton. But they
also have two loving sons in the USA. Those sons are no
doubt busy people, but there is no basis for saying that they could not be
close by to render the family support that Muriel and Gordon need at this stage
in their lives. Muriel will be in full-time care and there is nothing to
suggest that Gordon cannot live independently with his sons close by in the
same way that he does with Janice in Edmonton.
[122] The
Applicants attack the H&C Decision for a variety of reasons. They say it is
premature and was made without regard for the evidence, that there is no
analysis of H&C factors, that hardship is not assessed, that establishment
is not taken into account, that the medical situation is not assessed, that
there is no analysis of the family situation, and that the tone the decisions
reveals bias. A simple reading of the decisions reveals that these grounds are
entirely spurious.
[123] The same
applies to the grounds raised by the Applicants with regard to the TRP
Decision. The H&C reasons apply to that application, but there are
additional reasons in the notes which show that the TRP was refused for a
variety of reasons, including medical inadmissibility, the existence of valid
exclusion orders, and the fact that the Applicants have acted, and continue to
act, illegally and in breach of Canada’s immigration laws. The
Applicants have no intention of leaving Canada at any time
and, even though these applications before me cannot succeed, the benign nature
of our system has allowed them a considerable amount of additional time here.
[124] I have
reviewed carefully all of the grounds advanced for reviewable error on both
applications. There is no sign of procedural unfairness or unreasonableness.
The Officer was fully alive to the whole situation and, while recognizing the
vulnerability of the Applicants, carried out his duty and applied the law
accurately and fairly.
[125] Of course,
the Court wishes Gordon and Muriel and their family well. Dealing with aging
and declining parents is always difficult, but it does not help to flaunt the
immigration system and attack officers who are simply doing their job. I also
have a concern about basic honesty. There is evidence in the TRP application
made to the Officer that the Applicants represented that the family somehow did
not know about Muriel’s Alzheimer’s before she came to Canada. Even before me,
legal counsel was not accurate on this point. The evidence is very clear,
however, that Muriel was diagnosed with the disease long before she came to Canada. At the 2009
Interview, Gordon told CIC that she had been diagnosed in 2005. It is easy to
see, then, why the Officer would doubt the Applicants’ honesty. I realize that
the horrible illnesses of loved-ones can give rise to desperate acts, but the
Rosenberry family, on the evidence before me, appears to be better positioned
than many others who have to face the challenges of old age.
[126] Counsel agree
there is no question for certification on either application and the Court
concurs.
JUDGMENT
THIS COURT’S
JUDGMENT is that
1.
The
application is dismissed.
2.
There
is no question for certification.
3.
These
Reasons for Judgment and Judgment will be placed on files IMM-5788-11
and IMM-5790-11.
“James
Russell”