Date: 20090107
Docket: IMM-1753-08
Citation:
2009 FC 11
Ottawa, Ontario, the 7th day of January
2009
Present:
The Honourable Mr.
Justice
Shore
BETWEEN:
MANJIT SINGH
RAVINDER KAUR
MUSKAN SINGH
SAMANINDER SINGH
Applicants
and
THE MINISTER OF CITIZENSHIP
AND IMMIGRATION
Respondent
REASONS FOR JUDGMENT AND
JUDGMENT
I. Preliminary comments
[1]
One of the
cornerstones of the Immigration and Refugee Protection Act,
S.C. 2001, c. 27 (IRPA), is the requirement that persons who wish to settle
in Canada must, prior to their arrival in Canada, submit an application from outside
Canada and qualify for and obtain a permanent resident visa. Section 25 of
the IRPA gives the Minister the discretion to approve deserving cases for
processing within Canada. This is clearly an exceptional remedy, as is made
clear by the wording of this provision (Doumbouya v. Canada
(Minister of Citizenship and Immigration), 2007 FC 1186,
325 F.T.R. 186, at paragraph 6).
[2]
To obtain
this exemption, the applicants had to prove that they would face unusual,
undeserved or disproportionate hardship if they were required to file their
respective applications for permanent residence from outside the country (Doumbouya,
above, at paragraph 8; Akinbowale v. Canada (Minister of
Citizenship and Immigration), 2007 FC 1221, at paragraphs 14 and
24; Djerroud v. Canada (Minister of Citizenship and Immigration),
2007 FC 981, 160 A.C.W.S. (3d) 881, at paragraph 32).
II. Introduction
[3]
This is an
application under the IRPA for judicial review of an immigration officer’s
decision on March 19, 2008 refusing to exempt the applicants on
humanitarian and compassionate (H&C) grounds from the obligation to obtain
an immigrant visa from outside Canada. Such an exemption would have made it
possible to process their application for permanent residence in Canada.
III. Facts
[4]
The
principal applicant, Manjit Singh, his spouse, Ravinder Kaur, and
their 6-year-old daughter, Muskan Singh, are citizens of India. Their 9-year-old
son, Samaninder Singh, is a citizen of the United States.
[5]
The
applicants arrived in Canada on November 18, 2003. All of them except
Samaninder Singh claimed refugee status in Canada in May 2004.
[6]
The claim
was rejected on April 20, 2005. However, on
November 23, 2005, this Court set aside that decision and referred
the matter back to another decision‑maker.
[7]
The
refugee claim of the same three applicants was rejected again on
October 24, 2006, and that decision was upheld by this Court on
June 5, 2007.
[8]
On or
about November 1, 2007, the applicants, while they were in Canada,
applied for permanent residence based on humanitarian and compassionate
considerations under subsection 25(1) of the IRPA.
[9]
On March 19, 2008, that application was
refused.
IV. Issue
[10]
Did the
officer make an unreasonable error?
V. Analysis
Applicable
legislation
[11]
It is a
basic principle that persons who wish to obtain permanent resident status in Canada must apply for such status
from outside Canada. This is clearly stated in
subsection 11(1) of the IRPA:
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.
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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.
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[12]
Section 6
of the Immigration and Refugee Protection Regulations, SOR/2002‑227
(Regulations), reiterates this obligation in the following terms:
6. A foreign national may not enter Canada to remain on a permanent
basis without first obtaining a permanent resident visa.
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6. L’étranger ne peut entrer au Canada pour s’y établir en permanence
que s’il a préalablement obtenu un visa de résident permanent.
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[13]
However,
subsection 25(1) of the IRPA provides that the Minister has the discretion
to exempt a foreign national from any criterion or obligation provided for in
the IRPA and grant the foreign national permanent resident status if the
Minister is of the opinion that it is justified by humanitarian and
compassionate considerations relating to the foreign national:
25. (1) The Minister shall, upon request of a foreign national in
Canada who is inadmissible or who does not meet the requirements of this Act,
and may, on the Minister’s own initiative or 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 obligation of this Act if the Minister is of the
opinion that it is justified by humanitarian and compassionate considerations
relating to them, taking into account the best interests of a child directly
affected, or by public policy considerations.
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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, de sa propre initiative ou
sur demande d’un étranger se trouvant hors du Canada, étudier le cas de cet
étranger et peut lui octroyer le statut de résident permanent ou lever tout
ou partie des critères et obligations applicables, s’il estime que des
circonstances d’ordre humanitaire relatives à l’étranger — compte tenu de
l’intérêt supérieur de l’enfant directement touché — ou l’intérêt public le
justifient.
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[14]
One of the
cornerstones of the IRPA is the requirement that persons who wish to live in
Canada must, prior to their arrival in Canada, submit an application from outside
Canada and qualify for and obtain a permanent resident visa. Section 25 of
the IRPA gives the Minister the discretion to approve deserving cases for
processing within Canada. This is clearly an exceptional remedy, as is made
clear by the wording of this provision (Doumbouya, above).
[15]
An
application for permanent residence made in Canada triggers a two‑step decision‑making
process. First, the officer must determine whether the applicant should be
exempted from the statutory obligation to apply for an immigrant visa before
coming to Canada, in accordance with subsection 11(1) of the IRPA. The
second step is then to verify whether the applicant meets the requirements
established by the IRPA, including the security requirements (Mutanda v.
Canada (Minister of Citizenship and Immigration), 2005 FC 1101,
148 A.C.W.S. (3d) 977; Egbejule v. Canada (Minister of Citizenship
and Immigration), 2005 FC 851, 140 A.C.W.S. (3d) 363).
[16]
The
validity of this two‑step process was recently confirmed by the Federal
Court of Appeal in Espino v. Canada, 2008 FCA 77,
164 A.C.W.S. (3d) 680.
[17]
Moreover,
the H&C decision‑making process is entirely discretionary and seeks
to determine whether the granting of an exemption is warranted (Doumbouya,
above, at paragraph 7; Quiroa v. Canada (Minister of Citizenship
and Immigration), 2007 FC 495, 312 F.T.R. 262, at
paragraph 19).
[18]
To obtain
an exemption, the applicants had to prove that they would face unusual,
undeserved or disproportionate hardship if they were required to file their
respective applications for permanent residence from outside the country (Doumbouya,
above, at paragraph 8; Akinbowale, above; Djerroud, above).
[19]
With
regard to the meaning of the words “unusual, undeserved or disproportionate” in
this context, the following remarks by Justice Yves de Montigny
in Serda v. Canada (Minister of Citizenship and Immigration),
2006 FC 356, 146 A.C.W.S. (3d) 1057, were cited with approval in
Doumbouya, above, at paragraph 9:
[20] . . .
In assessing an application
for landing from within Canada on Humanitarian and Compassionate grounds made
pursuant to section 25, the Immigration Officer is provided with
Ministerial guidelines. Immigration Manual IP5 - Immigration Applications
in Canada made on Humanitarian or compassionate Grounds, a manual put out by
the Minister of Citizenship and Immigration Canada, provides guidelines on what
is meant by Humanitarian and Compassionate grounds . . .
. . .
The IP5 Manual goes on
to define “unusual and undeserved” hardship and “disproportionate” hardship. It
states, at paragraphs 6.7 and 6.8:
6.7 Unusual and underserved
hardship
Unusual and undeserved
hardship is:
- the hardship (of having
to apply for a permanent resident visa from outside of Canada) that the
applicant would have to face should be, in most cases, unusual, in other
words, a hardship not anticipated by the Act or Regulations; and
- the hardship
(of having to apply for a permanent resident visa from outside of Canada)
that the applicant would face should be, in most cases, the result of
circumstances beyond the person's control
6.8
Disproportionate hardship
Humanitarian and
compassionate grounds may exist in cases that would not meet the
"unusual and undeserved" criteria but where the hardship (of having
to apply for a permanent resident visa from outside of Canada) would have a
disproportionate impact on the applicant due to their personal circumstances.
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6.7 Difficulté
inhabituelle et injustifiée
On appelle difficulté
inhabituelle et injustifiée:
- la difficulté (de devoir
demander un visa de résident permanent hors du Canada) à laquelle le
demandeur s'exposerait serait, dans la plupart des cas, inhabituelle ou, en
d'autres termes, une difficulté non prévue à la Loi ou à son Règlement; et
- la difficulté (de devoir
demander un visa de résident hors du Canada) à laquelle le demandeur
s'exposerait serait, dans la plupart des cas, le résultat de circonstances
échappant au contrôle de cette personne.
6.7[sic]
Difficultés démesurées
Des motifs d'ordre
humanitaire peuvent exister dans des cas n'étant pas considérés comme
"inusités ou injustifiés", mais dont la difficulté (de présenter
une demande de visa de résident permanent à l'extérieur de Canada) aurait des
répercussions disproportionnées pour le demandeur, compte tenu des
circonstances qui lui sont propres.
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[20]
Hardship
that is inherent in having to leave Canada is not enough (Doumbouya, above, at
paragraph 10).
The applicable
standard of review
[21]
The
standard of review for a decision based on humanitarian and compassionate
considerations under subsection 25(1) of the IRPA is that of
reasonableness (Barzegaran v. Canada (Minister of Citizenship and
Immigration), 2008 FC 681, [2008] F.C.J. No. 867 (QL), at
paragraphs 15‑20; Zambrano v. Canada (Minister of
Citizenship and Immigration), 2008 FC 481, [2008]
F.C.J. No. 601 (QL), at paragraph 31).
Consideration
of the son's citizenship
[22]
The
applicants criticize the immigration officer for not taking account of the fact
that the principal applicant’s son, who is 9 years old, is a citizen of
the United States and not India.
[23]
It is true
that the decision‑maker’s reasons do not mention this fact, but this does
not necessarily make his decision invalid.
[24]
What was
in issue before the H&C decision‑maker was whether the applicants
would face unusual, undeserved or disproportionate hardship if they were
required to file their application for permanent residence from outside the
country.
[25]
The
applicants could each apply for permanent residence in the United States, where
one of them is a citizen.
[26]
However,
since the applicant Samaninder Singh is a young child, he would be
expected to make his application from India with his parents, who do not have
an absolute right to enter the United States.
[27]
In this
regard, the Court notes that the adult applicants did not establish or even
argue before the decision‑maker that (a) their son could not
accompany them to India; (b) he could not obtain Indian citizenship; and
(c) he would not be entitled to an education in India.
[28]
Since none
of these questions was raised before the decision‑making officer, this
Court on judicial review cannot fault him for not considering them.
[29]
It is settled
law that on judicial review a decision cannot be impugned on the basis of an
issue not raised before the decision‑maker, unless the new issue is a
jurisdictional issue, which is not the case here (Tozzi v. Canada (Attorney
General), 2007 FC 825, [2007] F.C.J. No. 1085 (QL), at
paragraph 22; Sabadao v. Canada (Minister of Citizenship and
Immigration), 2007 FC 623, 158 A.C.W.S. (3d) 457, at
paragraphs 16‑19; Comstock v. Public Service Alliance of
Canada, 2007 FC 335, 310 F.T.R. 277, at paragraph 56; 334156 Alberta
Ltd. v. Canada (Minister of National Revenue – M.N.R.),
2006 FC 1133, 300 F.T.R. 74, at paragraph 16; Hussain v.
Canada (Minister of Citizenship and Immigration), 2006 FC 719,
149 A.C.W.S. (3d) 303, at paragraph 17; Ahmad v. Canada (Minister
of Citizenship and Immigration), 2004 FC 1268, 140 A.C.W.S. (3d)
540, at paragraphs 16-17).
[30]
In the
circumstances, the decision‑maker was entitled to consider whether the
fact that Samaninder had to go to India with his parents amounted to unusual,
undeserved or disproportionate hardship for them and for him.
The decision‑maker’s
discretion
[31]
On this
point, the applicants argue in their reply memorandum (at paragraphs 1‑19)
that section 25 of the IRPA does not limit the discretion of the Minister,
who may grant an exemption under that provision “if the Minister is of the
opinion that it is justified by humanitarian and compassionate considerations
relating to them, taking into account the best interests of a child directly
affected, or by public policy considerations”.
[32]
The
applicants also note that Chapter IP 5 of the guidelines of the
Department of Citizenship and Immigration Canada (CIC) deals with
disproportionate, unusual or undeserved hardship in the case of applications made
from outside Canada and that the immigration officer made his decision strictly
from this point of view.
[33]
According
to the applicants, the above‑mentioned guidelines fetter the discretion
of immigration officers who have to make a decision on the Minister’s behalf
under subsection 25(1) of the IRPA.
[34]
In Ha v.
Canada (Minister of Citizenship and
Immigration),
2004 FCA 49, [2004] F.C. 195, the Federal Court of Appeal noted the
following:
[71]
While administrative decision‑makers may validly adopt guidelines to
assist them in exercising their discretion, they are not free to adopt
mandatory policies that leave no room for the exercise of discretion. In each
case, the visa officer must consider the particular facts.
(See also Thamotharem v . Canada (Minister of
Citizenship and Immigration), 2007 FCA 198, 158 A.C.W.S. (3d)
972, at paragraph 78.)
[35]
Here, it
is clear from the decision‑maker’s reasons that he considered the
applicants’ particular facts.
[36]
In Duplessis v.
Canada (Minister of Citizenship and Immigration), 2006 FC 1190, [2006]
F.C.J. No. 1974 (QL), Justice Luc Martineau rejected an argument
similar to the one made by the applicants in this case. He wrote:
[translation]
[18] In my opinion, the immigration officer made no reviewable
error in relying on the Minister’s guidelines. Those guidelines are a useful
guide in exercising the Minister’s discretion, which here is delegated to the
immigration officer (Irimie v. Canada (Minister of Citizenship and
Immigration) (2000), 10 Imm. L.R. (3d) 206; Pashulya v. Canada
(Minister of Citizenship and Immigration) (2004), 257 F.T.R. 143,
2004 FC 1275).
[19] In this case, the applicant cannot say which other
criteria, if any, the immigration officer should have considered in addition to
or instead of the criteria found in the guidelines. The applicant has not
satisfied me that it was unreasonable for the immigration officer to consider
whether the hardship was unusual, disproportionate or undeserved in the context
of an application for a visa exemption based on humanitarian and compassionate
considerations. Accordingly, the applicant’s criticism here seems more
theoretical than practical, since the real question in this case is whether the
decision at issue is reasonable in the circumstances. This therefore leads me
to the applicant’s second argument.
[37]
In short,
the issue on judicial review is whether the impugned decision is a reasonable
application of the more general language of subsection 25(1) of the IRPA (Tshidind v.
Canada (Minister of Citizenship and Immigration), 2006 FC 561,
291 F.T.R. 156, at paragraphs 9 and 12).
[38]
Moreover,
the criterion of “unusual, undeserved or disproportionate hardship” or “difficultés
inhabituelles et injustifiées ou excessive” has now been adopted by this Court
in its decisions on subsection 25(1), which means that these terms are
more than mere guidelines (Liniewska v. Canada (Minister of Citizenship
and Immigration), 2006 FC 591, 152 A.C.W.S. (3d) 500, at
paragraph 16; Ruiz v. Canada (Minister of Citizenship and
Immigration), 2006 FC 465, 147 A.C.W.S. (3d) 1050, at
paragraph 35; Kawtharani v. Canada (Minister of Citizenship and
Immigration), 2006 FC 162, 146 A.C.W.S. (3d) 338, at
paragraph 16; Pashulya v. Canada (Minister of Citizenship and
Immigration), 2004 FC 1275, 257 F.T.R. 143, at paragraph 43;
Legault v. Canada (Minister of Citizenship and Immigration), [2002]
4 F.C. 358, 2002 FCA 125, at paragraphs 23 and 28; Baker v.
Canada (Minister of Citizenship and Immigration), [1999] 2 S.C.R. 817,
at paragraph 17).
The decision‑maker’s
obligation to consider the children’s upbringing in Canada as a factor in
assessing ties to Canada
[39]
With
regard to the nine‑year‑old son, Samaninder Singh, the
applicants also object to the following passage from the officer’s reasons:
. . . The applicants have not indicated
whether the children have any ability to speak their parents’ native language,
however, language acquisition and cultural adjustment should be relatively easy
because of their young ages, and in light of the support of their parents and
extended family members who still reside in India.
(Decision,
at page 4.)
[40]
This
passage is part of the following paragraph of the officer’s reasons:
I now turn to the best interests of the
children, namely Muskan who is 6 years old, and Samaninder who is
9 years old. The best interests of children directly affected are a key
factor in an H&C decision. The children have been in Canada with their
parents for 4 years. The applicants state that the children have spent
more time outside of India than in India and are accustomed to North America.
Both children are currently in school. I note that the applicants have
several family members in India, including Majit’s parents, two brothers,
and Ravinder’s mother. The applicants have not indicated whether the children
have any ability to speak their parents’ native language, however, language
acquisition and cultural adjustment should be relatively easy because of their
young ages, and in light of the support of their parents and extended family
members who still reside in India. Returning to India would allow the children
to establish relationships with their grandparents and other extended family
members. Based on the evidence submitted, I am not satisfied that the best
interest of these children would be negatively affected should they be required
to return to India. (Emphasis added.)
[41]
There is
nothing unreasonable about the disputed passage. On the contrary, it is
entirely rational.
[42]
Moreover,
a decision‑maker may rely on factual presumptions drawn from established
facts. Findings based on such presumptions do not have to be found verbatim in
the evidence submitted by the parties.
[43]
As stated
by authors Sopinka, Lederman and Bryant in their book The Law of Evidence in
Canada, 2nd ed. (Toronto/Vancouver: Butterworths, 1999), at page 97:
4.4 A presumption of fact is a deduction of
fact that may logically and reasonably be drawn from a fact or group of facts
found or otherwise established. Put differently, it is a common sense
logical inference that is drawn from proven facts. Thus, on proof of
fact A, the trier of fact may infer the existence or non‑existence
of fact B. When established facts raise a presumption of fact, they give rise
to a permissive inference which the trier of fact may, but need not, draw.
(Emphasis added.)
[44]
Therefore,
the decision‑maker did not have to ask the applicants questions on the
content of the above paragraph of his reasons concerning the “best interests”
of the children.
Procedural
fairness
[45]
The
applicants start from a false premise, namely that the Immigration Manual is
binding on immigration officers. This argument runs counter to case law holding
that the Minister and the Minister’s agents are not bound by the Citizenship
and Immigration Canada (CIC) guidelines found in that Manual because the
guidelines are not regulations and do not have the force of law (Legault,
above; Canadian Association of Regulated Importers v. Canada (Attorney
General), [1994] 2 F.C. 247, 164 N.R. 342 (C.A.)).
[46]
Next, the
applicants argue that the officer [translation]
“could not speculate on the children’s ability to speak or learn the language
of their parents’ country or on the cultural adjustment that would be required
for the children, one of whom is American”.
[47]
As stated
above in this regard, in light of the evidence in the record, the decision‑maker
was entitled to make the findings of fact he made, which are entirely
reasonable.
[48]
The
decision‑maker therefore did not, in this regard, breach his duty to act
fairly or violate the applicants’ right to be heard.
The applicants’
degree of establishment in Canada
[49]
The
decision‑maker wrote the following about this:
The applicants have been in Canada for four years. I note
that in 2003, the applicants were receiving social assistance, however, there
is no indication that this continues. The applicant obtained a license to be a
long‑haul truck driver and is now self employed working for a brother.
His spouse is not currently working as a result of a work accident injuring her
arm, but she is expected to return to the work force soon. The applicants have
demonstrated that they have savings and have purchased vehicles and furniture. The
applicants state that all family members are fluent in both English and French.
The applicant has provided submissions to indicate that Manjit’s field of work
is experiencing a shortage of workers and therefore it is beneficial that he
remain working in Canada.
Although it is commendable that the
applicants have been self supporting for the majority of their stay in Canada,
there is a degree of establishment that is expected for this duration. The
applicants were granted the opportunity to work in Canada by means of work
permits issued to them while they were awaiting decisions on their claims to be
Convention refugees. These claims have now been heard and the family were found
not to be Convention refugees. I am sensitive to the factor that the
applicant has upgraded his skills and obtained a license for an occupation that
is in demand in Canada, however, the legislation accounts for other assessment
avenues available for applicants to be considered based on their occupation and
experience. The applicant has indicated that prior to entering Canada he was
self employed for 5½ years as a hotel owner. The applicant has not
provided any evidence to indicate that he could not resume a similar
occupation, or use his new skills acquired in Canada in order to support his
family. Based on all of the evidence submitted, I am not satisfied that the
applicants are established to a degree that would constitute undeserved or
disproportionate hardship if they were required to leave Canada. (Emphasis
added.)
(Decision,
at pages 3‑4.)
[50]
This
conclusion is not unreasonable.
[51]
With
regard to the applicants’ allegations about their degree of establishment, it
is settled law that this factor as well as the ties an applicant has allegedly
developed in Canada are not sufficient in themselves to justify exempting the
applicant from the requirement to obtain an immigrant visa from outside Canada.
[52]
The
following passages from decisions are relevant in this regard:
[22] The applicant has the onus of
proving that the requirement to apply for a visa from outside of Canada would
amount to unusual, undue or disproportionate hardship. The applicant assumed the
risk of establishing himself in Canada while his immigration status was
uncertain and knowing that he could be required to leave. Now that he may be
required to leave and apply for landing from outside of Canada, given that he
did assume this risk, the applicant cannot now contend, on the facts of this
case, that the hardship is unusual, undeserved or disproportionate. The words
of Mr. Justice Pelletier in Irmie v. M.C.I. (2000),
10 Imm. L.R. (3d) 206 (F.C.T.D.), are applicable to this case:
I return to my observation that the
evidence suggests that the applicants would be a welcome addition to the
Canadian community. Unfortunately, that is not the test. To make it the test is
to make the H & C process an ex post facto screening
device which supplants the screening process contained in the Immigration
Act and Regulations. This would encourage gambling on refugee claims
in the belief that if someone can stay in Canada long enough to demonstrate
that they are the kind of persons Canada wants, they will be allowed to stay.
The H & C process is not designed to eliminate hardship; it is
designed to provide relief from unusual, undeserved or disproportionate
hardship.
There is no doubt that the refusal of the applicants’ H & C
application will cause hardship but, given the circumstances of the applicants’
presence in Canada and the state of the record, it is not unusual, undeserved
or disproportionate hardship.
(Emphasis added).
(Uddin v . Canada (Minister of Citizenship and
Immigration), 2002 FCT 937, 116 A.C.W.S. (3d) 930.)
[11] A review of the decision confirms
that the Officer did consider the length of time the Applicant was in Canada,
his business, his investment, his skills, abilities and initiative as well as
his other links to Canada. However the degree of establishment is not
determinative of an H & C application. I can find no reviewable
error on this issue.
(Emphasis added.)
(Klais v. Canada (Minister of Citizenship and
Immigration), 2004 FC 785, 131 A.C.W.S. (3d) 731.)
[9] In my view, the officer did
not err in determining that the time spent in Canada and the establishment in
the community of the applicants were important factors, but not determinative
ones. If the length of stay in Canada was to become the main criterion in
evaluating a claim based on H & C grounds, it would encourage
gambling on refugee claims in the belief that if someone can stay in Canada
long enough to demonstrate that they are the kind of persons Canada wants, they
will be allowed to stay. (Irimie v. Canada (Minister of Citizenship and
Immigration), [2000] F.C.J. No. 1906) (Emphasis added.)
(Lee v. Canada (Minister of Citizenship and
Immigration), 2005 FC 413, 138 A.C.W.S. (3d) 350.)
[53]
The
applicants further argue that the degree of establishment in Canada was
considered incorrectly, since their prolonged stay in Canada was not due to
fault or negligence on their part.
[54]
In
this regard, it must be noted that the following guideline can be found in CIC’s
Policy and Program Manuals:
5.21. Prolonged stay in Canada has led to
establishment
Positive consideration may be warranted
when the applicant has been in Canada for a significant period
of time due to circumstances beyond the applicant’s control.
…
IP 5 Immigrant Applications in Canada
made on Humanitarian or Compassionate
Grounds
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5.21 Séjour prolongé au
Canada aboutissant à l’établissement
Une étude favorable pourrait
être justifiée si le demandeur est au Canada depuis assez longtemps en raison
de circonstances échappant à son contrôle.
[...]
IP 05 Demande présentée par des
immigrants au Canada pour des motifs d’ordre humanitaire
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[55]
This
Court has confirmed that the exercise of the legal recourses contemplated by
the IRPA does not amount to “circumstances beyond” the applicants’ control (Serda v.
Canada (Minister of Citizenship and Immigration), 2006 FC 356,
146 A.C.W.S. (3d) 1057, at paragraph 23).
[56]
Individuals
who, like the applicants, have no legal right to remain in Canada but have done
so absent circumstances beyond their control should not be rewarded for
accumulating time in Canada (Quiroa, above, at paragraph 22).
[57]
At
paragraphs 32‑37 of their memorandum of argument, the applicants
challenge the following passage from the decision‑maker’s reasons:
Based on all of the evidence submitted, I
am not satisfied that the applicants are established to a degree that would
constitute undeserved or disproportionate hardship if they were required to
leave Canada. (Decision, at page 4.)
[58]
The
applicants dispute the lawfulness of the connection the decision‑maker
thus made between their degree of establishment in Canada and the criterion of
the hardship they would face if they were required to file their respective
applications for permanent residence from outside the country, which must be
unusual, undeserved or disproportionate.
[59]
Yet that
connection is entirely consistent with the decisions of this Court. As
Justice de Montigny wrote in Buio, above:
[36] Overall, it is
important to remember that the purpose of assessing establishment is to
determine whether the claimant is established to such a degree that removal
would constitute disproportionate hardship. This Court has repeatedly
affirmed the hardship which would trigger the exercise of a favourable H&C
discretionary decision should be something other than that which is inherent in
being asked to leave after one has been in Canada for a period of time (see Irimie v.
Canada (Minister of Citizenship and Immigration), [2000] F.C.J.
No. 1906 (F.C.T.D.) (QL) at paragraphs 12 and 17 [Irimie]; Mayburov v.
Canada (Minister of Citizenship and Immigration), [2000] F.C.J.
No. 953 (F.C.T.D.) (QL); Lee v. Canada (Minister of
Citizenship and Immigration), 2001 FCT 7 at paragraph 14). (Emphasis added.)
[60]
Along the
same lines, Justice Denis Pelletier wrote in Irimie v. Canada
(Minister of Citizenship and Immigration) (2000),
101 A.C.W.S. (3d) 995, [2000] F.C.J. No. 1906 (F.C.T.D.) (QL), at
paragraph 20, that “[t]he degree of attachment is relevant to the issue of
whether the hardship flowing from having to leave Canada is unusual or
disproportionate”.
[61]
At
paragraph 38 of their memorandum of argument, the applicants further argue
that the officer [translation] “also
did not consider the general situation of quasi‑insurgency and latent
civil war that exists in Jammu and Kashmir and the dangers the applicants would
have to face if they returned”.
[62]
There
is no evidence in the applicants’ record establishing that they told the
decision‑maker about the alleged risk(s) they faced if they returned to
the part of India known as Jammu and Kashmir (AR, at pages 32‑103).
[63]
The
applicants also submit that the principal applicant would have difficulty
returning to India because his Indian passport has been expired since 2006.
Once again, the applicants’ record does not show that they raised this point
before the decision‑maker as an obstacle to their return to India.
[64]
In
their memorandum of argument, the applicants also allege the following:
[translation]
41.
In light
of the general documentation, the officer could not think that the applicant
could return to India without being apprehended on his entry into India, nor
could he determine, without documentary support, how significant the
consequences of such a situation would be for the applicant and his family.
[65]
Yet
the documents the applicants submitted to the decision‑maker make no
mention of a risk of the principal applicant being apprehended on his entry
into India.
[66]
Since none
of these questions was raised before the decision‑making officer, this
Court on judicial review cannot fault him for not considering them.
[67]
As
the respondent argued above on another question, it is indeed settled law that on judicial
review a decision cannot be impugned on the basis of an issue not raised before
the decision‑maker, unless the new issue is a jurisdictional issue, which
is not the case here.
VI. Conclusion
[68]
Since
the officer did not err in making the decision impugned in this case, the
application for judicial review is dismissed.
JUDGMENT
THE COURT ORDERS that
1. The application for judicial review be dismissed;
2. No serious question of general
importance be certified.
“Michel
M.J. Shore”
Certified
true translation
Brian
McCordick, Translator