Docket: IMM-5151-11
Citation: 2012 FC 337
Ottawa, Ontario, March 20,
2012
PRESENT: The Honourable Mr. Justice Near
BETWEEN:
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LESLIE ANNETTE HOLDER
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Applicant
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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
[1]
The
Applicant, Leslie Annette Holder, seeks judicial review of a decision of an
Immigration Officer (Officer), dated July 6, 2011. The Officer denied her
application for permanent residence on humanitarian and compassionate (H&C)
grounds under section 25(1) of the Immigration and Refugee Protection Act,
SC 2001, c 27 (IRPA).
I. Background
[2]
The
Applicant is a 48 year old citizen of St. Vincent and the Grenadines (St. Vincent).
She initially came to Canada as a visitor in 2004 and worked as a
caregiver in Montreal.
[3]
She
suffers from type I diabetes with complicating factors including nerve damage
and loss of eyesight. She also sustained an injury to her leg as a result of
mistreatment by her employer in Montreal. Exacerbated by her
underlying condition, this injury has led to mobility restrictions.
[4]
The
Applicant brought a refugee claim based on sexual abuse and rape by her
father’s cousin since the age of 10 as well as threats and violence from her
brother. She also referred to her sexual orientation as a lesbian. The
Refugee Protection Division of the Immigration and Refugee Board found that she
was not a Convention refugee or person in need of protection as there was
adequate state protection in St. Vincent.
[5]
In
June 2010, the Applicant filed applications on H&C grounds and for a
Pre-Removal Risk Assessment (PRRA).
[6]
In
February 2011, she requested that her PRRA decision either not be released
until the H&C was determined or that the same Officer decide both
applications.
[7]
The
same Officer declined the Applicant’s PRRA and H&C applications in July
2011. Leave for judicial review sought concurrently for the PRRA decision was
denied on November 1, 2011 (IMM-5153-11). In the present application,
this Court is tasked solely with considering the Officer’s determination
on H&C grounds.
II. H&C
Decision
[8]
At
the outset, the Board noted that the Applicant had not submitted evidence to
support the conclusion that state protection was not available to her in St. Vincent. She had
also failed to provide documentary evidence to demonstrate that treatment would
not be available for her medical issue, or that it would be a hardship to
access such treatment.
[9]
Regarding
evidence submitted that the Applicant would face discrimination as a
homosexual; the Board found that although homophobia is still widespread in St.
Vincent, the general public does not appear to be aggressive towards
homosexuals.
[10]
The
Board noted that the Applicant’s partner had not provided information enumerating
the hardships she would incur if her relationship with the Applicant was
severed. Similarly, there was no evidence from the Applicant’s daughter that
she would not be willing or able to assist the Applicant, if only emotionally,
should she be returned to St. Vincent. The Applicant’s
reliance on friends and community members for errands and doctor’s appointments
as well as her involvement in church-related tasks was acknowledged by the
Board. While it was reasonable to expect that the Applicant maintained
meaningful personal ties while in Canada, she had not
established that severing these ties would have a significant negative impact
on her that would constitute an unusual and undeserved or disproportionate
hardship.
[11]
The
Board also concluded that while leaving Canada after more than six years would
be difficult, the Applicant had not become established in Canada to the
extent that severing ties amounted to an unusual and undeserved or
disproportionate hardship. She was initially employed as a caregiver but is
now unemployed and in receipt of Ontario Disability Support Program (ODSP)
benefits. She had not received recommended treatment for her condition of a
major depressive episode and chronic posttraumatic stress disorder since her assessment
three years earlier.
[12]
As
far as her ties to St. Vincent were concerned, the Board noted she had
immediate family members who continue to reside in the country and there was no
evidence that they would be unable and unwilling to assist her. She also had
ten years of work experience as a cosmetics and crafts vendor.
[13]
Although
she suffered from diabetes, she had not let the condition deter her from being
active in her community and it was reasonable to believe that she could be as
active in St. Vincent. Should her condition deteriorate and she was unable to
work, the country’s currently amended social insurance law provides for
assistance, including disability pensions.
[14]
The
Board concluded based on the evidence before it that the Applicant had not
demonstrated her personal circumstances were such that the hardship of not
being granted the requested exemption would be unusual and undeserved or
disproportionate.
III. Issues
[15]
This
application raises the following issues:
(a) Did the Officer ignore material
evidence?
(b) Did the Officer make
unreasonable findings in light of the evidence?
(c) Did the Officer apply the wrong test
in assessing H&C grounds?
IV. Standard
of Review
[16]
Assessments
on an H&C application are reviewed on a standard of reasonableness (see Ahmad
v Canada (Minister of
Citizenship and Immigration), 2008 FC 646, [2008] FCJ no 814 at para
11).
[17]
In
applying the reasonableness standard, the Court must consider “the existence of
justification, transparency and intelligibility” as well as “whether the
decision falls within a range of possible, acceptable outcomes which are
defensible in respect of the facts and law” (Dunsmuir v New Brunswick,
2008 SCC 9, [2008] 1 S.C.R. 190 at para 47).
[18]
Also
notable is previous recognition by this Court that H&C assessments are
highly discretionary and therefore there is a wider scope of possible reasonable
outcomes (see Inneh v Canada (Minister of Citizenship and Immigration),
2009 FC 108, [2009] FCJ no 111 at para 13).
[19]
By
contrast, the application of a legal test and questions of procedural fairness
demand the correctness standard (see Dunsmuir, above at para 50; Canada (Minister of
Citizenship and Immigration) v Khosa, 2009 SCC 12, [2009] 1
SCR 339 at paras 43-44).
V. Analysis
A. Ignoring
Material Evidence
[20]
The
Applicant disputes the Officer’s finding that she was not severely restricted
in her daily activities as being made without regard for the evidence.
[21]
According
to the Applicant, the Officer ignored evidence that she is unable to meet daily
needs without the assistance of friends and community members. However, I am
not convinced that the Officer failed to address this particular aspect of the
application. The Officer expressly refers to this evidence in a section
entitled “Personal ties that would create hardship if severed.” It comments on
the details of a letter from the Applicant’s pastor describing the degree of
her involvement in church activities. While she asserted that assistance from
friends and community members was required to perform daily activities, the
Officer found this evidence did not specifically support her claim. Based on
what was before the Officer, weighing the evidence of friends and community
support in this manner was reasonable.
[22]
I
do, however, share the concerns raised by the Applicant regarding the Officer’s
treatment of relevant medical evidence.
[23]
The
Officer seemingly ignored letters from two doctors and a nurse practitioner
making reference to her difficulties walking and use of assistive devices. Aside
from general references to the Applicant having a disability, there is no
substantial consideration of the nature of her mobility restrictions, which
would appear central to the overall application. The Respondent has argued
that the letters would not contradict the Officer’s finding that there was no
independent evidence the Applicant requires and receives help for her daily
activities. Given the importance of the medical evidence to making this
determination, however, the Officer would be expected to explicitly mention and
consider the nature of it (see for example Cepeda-Gutierrez v Canada
(Minister of Citizenship and Immigration) (1998), 157 FTR 35, [1998] FCJ no
1425 at paras 27-28).
[24]
In
addition, this is problematic where there is some debate as to whether her
disability and receipt of ODSP relates merely to restrictions on her ability to
work or daily activities in general. Before making this distinction, the
Officer would have to provide a more fulsome analysis of the evidence as to the
restrictions she faced, even if that evidence was somewhat limited.
[25]
As
a consequence, I recognize that the Officer erred in failing to specifically
address important medical evidence.
B. Unreasonable
Findings
[26]
The
Applicant further contests the reasonableness of the Officer’s finding that
there was family support available to the Applicant in St. Vincent and she
could access government assistance.
[27]
In
respect of the argument that family support would not be forthcoming from a
violent brother and family members who opposed her sexual orientation, the
Applicant has not demonstrated a clear error. The Officer merely made
reference to her mother and brother who continue to reside in St. Vincent. There
was also no evidence found to corroborate that her family would be unwilling or
unable to assist her. This was a reasonable conclusion since the Applicant had
not pointed to evidence beyond the submissions of counsel in this regard and
she retains the onus of establishing undue hardship (see for example Amponsah
v Canada (Minister of
Citizenship and Immigration), 2010 FC 974. [2010] FCJ no 1218 at para
33).
[28]
Similarly,
the Applicant’s suggestion that a breach of procedural fairness resulted from
failing to give her an opportunity to respond to documentary evidence regarding
government assistance available in St. Vincent is not convincing. An
officer may rely on publicly available documents so long as they are not novel
and do not relate to changes in general country conditions (see Mancia v
Canada (Minister of Citizenship and Immigration), [1998] 3 FC 461, [1998]
FCJ no 565 at paras 26-27; Stephenson v Canada (Minister of Citizenship
and Immigration), 2011 FC 932, [2011] FCJ no 1156 at paras 33-39; Xie v
Canada (Minister of Citizenship and Immigration), 2010 FC 580, [2010] FCJ
no 686 at para 29)
[29]
While
not a clear breach of procedural fairness, however, I do have concerns
regarding the Officer’s approach to assessing the evidence related to
government assistance. Initially the Officer focused on the ability of the
Applicant to find work as a former cosmetics and crafts vendor in St. Vincent
and proceeded to suggest that if her condition deteriorated government
assistance would be available to her. Based on the evidence, it is clear that
the Applicant’s condition has already deteriorated while here in Canada to the point
where she is unable to work and relies on disability benefits. Any reference
to her ability to work in St. Vincent is at odds with the
preponderance of evidence before the Officer.
[30]
The
material issue is therefore the prospects of the Applicant for receiving
similar assistance in St. Vincent. Since this was a significant factor in
the overall determination, it is unreasonable for the Officer to have
erroneously focused on the Applicant’s ability to work and then fail to conduct
a thorough analysis of the nature and extent of benefits available to her. The
Officer has not provided sufficient justification for its definitive conclusion
that the Applicant “will have access to government assistance” should she be
returned to St.
Vincent
and unable to work. This particular finding was not reasonable.
C. Correct
Legal Test
[31]
Irrespective
of my conclusions as to the assessment of evidence above, I do not accept the
Applicant’s submissions that the Board also applied the incorrect legal test in
the assessment of her H&C application. The cases relied on to suggest that
the Board confused the assessment of risk and state protection as in a PRRA
prove to be of limited relevance in this instance.
[32]
While
I acknowledge the Board’s initial reference to state protection, it is clear
from the remainder of the decision that the focus was on an assessment of
whether the Applicant would face undue hardship – the determinative issue in
H&C applications.
[33]
More
specifically, the Board considered whether medical treatment would be available
in St. Vincent or she would incur hardship in accessing that treatment. It
also addressed the hardship that would result from severing personal ties to Canada. The Board
summarized its assessment by stating:
Having read and considered the
information presented by the applicant and her counsel as well as publicly
available documentation, I find that the evidence before me does not support
the applicant’s assertion that the hardships associated with returning to St. Vincent are unusual and undeserved or
disproportionate.
[34]
Since
the Board directed its attention to the degree of hardship associated with the
Applicant’s return to St. Vincent, it cannot be said to have erred in applying
the appropriate test for H&C grounds. To the extent I have already found
the Board to have erred, this was in relation to the treatment of important
evidence in making the assessment rather than any incorrect statement of the
test itself.
VI. Conclusion
[35]
Since
the Board was unreasonable in its consideration of critical aspects of the
evidence submitted for the H&C determination, this application for judicial
review is allowed. The matter is referred back to a different Officer for
re-consideration.
JUDGMENT
THIS COURT’S
JUDGMENT is that this application for judicial
review is allowed. The matter is referred back to a different Officer for
re-consideration.
“ D.
G. Near ”
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