Date: 20070731
Docket: IMM-5343-06
Citation: 2007 FC 806
Ottawa, Ontario, July 31, 2007
PRESENT: The Honourable Madam Justice Simpson
BETWEEN:
THI
THIET TRAN
Applicant
and
THE MINISTER OF CITIZENSHIP
AND IMMIGRATION
Respondent
REASONS FOR JUDGMENT AND JUDGMENT
[1]
This
is an application for judicial review of a decision dated August 24, 2006
(the Decision) by an Immigration Officer (the Officer) denying Thi Thiet Tran's
application for permanent residence which she made from within Canada on
humanitarian and compassionate grounds (the H&C Application) pursuant to
section 25(1) of the Immigration and Refugee Protection Act, S.C. 2001,
c. 27 (the Act).
I. Background
[2]
Mrs. Thi Thiet Tran
(the Applicant) is a 42-year-old citizen of Vietnam who, before
coming to Canada, worked as a
farm labourer. She is married and has four children. One is an adult. Her
husband and children are in Vietnam.
[3]
On
April 26, 2004, the Applicant entered Canada on a
visitor's visa for the purpose of donating a kidney to her brother, Mr. Hoa Than Tran.
He is a Canadian citizen who by 2004 had been on British Columbia's transplant
waiting list for two years and was suffering from acute renal failure.
[4]
The
Applicant says and it is not disputed, that as a result of donating her kidney,
she developed a severe case of psoriasis which, at the time of the Decision, had
not responded to treatment. In this regard, the Applicant submitted two medical
opinions in support of her H&C Application. One from her general
practitioner, Dr. Benjamin Chou, M.D. dated January 4, 2005 (in
error, it was actually written in January 2006) and a second from a
dermatologist, Dr. Nhiem Nguyen, M.D. dated October 4, 2005.
[5]
Dr. Chou
first saw the Applicant in April 2005 because she had developed a rash on her scalp.
He examined her a total of four times – the last visit was in mid-June 2005. During
that period, the rash worsened significantly and extended on a widespread basis
to the rest of her body.
[6]
Dr. Chou's
letter concluded as follows:
Ms. Tran's condition could seriously
limit her in a physically demanding occupation such as farming and
unquestionably this disease would be much better managed here in Canada rather
than in rural Vietnam.
[7]
Dr. Nguyen
first saw the Applicant on August 5, 2005, in connection with what he
described as a recent and extensive skin eruption. The lesions which covered
almost her entire scalp, and which were numerous on her back, arms and legs, were
treated with steroid injections. However, when Dr. Nguyen next saw the
Applicant on October 4, he noted only a slight improvement.
[8]
Dr. Nguyen
concluded that the Applicant had psoriasis and described the disease as
follows:
This patient's skin manifestations were
consistent with psoriasis. This is a common genetically determined proliferative
disease of the skin, characterized by seven times too fast epidermal cell
turnover. Its duration may vary from a few weeks to a whole life-time; it may
pursue an unpredictable course with spontaneous improvement or exacerbation of
the lesions without discernable [discernible] causes, or under the influence of
environment factors, seasonal variations, cutaneous injuries or adverse life
events and psychologic distress.
[9]
He
then spoke of the Applicant's future in the following terms:
If her current skin condition continues
to progress and to possibly extend to [a] generalized psoriatic erythroderma,
her life as a farm worker in [a] hot climate would be impossible.
[10]
Finally,
he described her treatment:
Mrs. Tran's current treatment
includes topical steroid lotion to her scalp and a combination of steroid and
vitamin D analogues ointment to the rest of her body skin. Trials of supervised
photo-therapy at the UBC Skin Care Centre, systemic anti-metabolites, or
Retinoids would be considered in the next follow-up visit.
[11]
In
a letter dated January 10, 2006 (the H&C Submission) counsel for the
Applicant noted that the Applicant's brother (the one who received her kidney)
and his wife were prepared to sponsor the Applicant and her family.
[12]
The
H&C Submission also described the Applicant's prospects as a farm worker in
rural Vietnam in the
following terms:
Once capable of handling the toil and
vigorous duties of working in a farm in the heat and humidity of rural Vietnam, she now finds herself
weakened and in a very much diminished condition. She is stricken by persistent
anxiety, listlessness, depression and fatigue. She is unfit to resume the
physically demanding jobs required of farm workers….
II. Standard of Review
[13]
The
parties agree and I accept that in light of the Supreme Court of Canada's
decision in Baker v. Canada (Minister of Citizenship and Immigration), [1999]
2 S.C.R. 817 (Baker)
at para. 57 and following, the Officer's Decision is reviewable on the standard
of reasonableness simpliciter. The question is whether the Decision was
reasonable or "tenable". That is, after a "somewhat probing
examination", can the Officer's reasons, when taken as a whole, support
his decision to deny the H&C Application. As long as the Decision is
"tenable", the reviewing court is not to substitute its own decision
merely because it would have decided differently. It is not the role of the
court to re-weigh the evidence.
III. The Context
[14]
The
Decision was made under section 25(1) of the Act. It provides for an exemption
from the provisions of section 11(1) of the Act and reads as follows:
|
Humanitarian and compassionate
considerations
|
Séjour pour motif d’ordre
humanitaire
|
|
25. (1) The Minister shall, upon request
of a foreign national who is inadmissible or who does not meet the
requirements of this Act, and may, on the Minister’s own initiative, 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.
[my emphasis]
|
25. (1) Le ministre doit, sur demande d’un
étranger interdit de territoire ou qui ne se conforme pas à la présente loi, et
peut, de sa propre initiative, 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.
[je souligne]
|
[15]
The
Ministerial Guidelines, found in Citizenship and Immigration Canada’s Manual IP
5 entitled "Immigrant Applications in Canada made on Humanitarian and
Compassionate Grounds" (2005-06-09) (the Guidelines), describe
humanitarian and compassionate grounds. The pertinent passages read as follows:
6.5
Humanitarian
and compassionate decision
A
positive H&C decision is an exceptional response to a particular
set of circumstances. An H&C decision is more complex and more
subjective than most other immigration decisions because officers use
their discretion to assess the applicant's personal circumstances.
Applicants
must satisfy the decision-maker that their personal circumstances are such that
they would face unusual, undeserved, or disproportionate hardship if required
to apply for a permanent resident visa from outside Canada.
6.7 Unusual
and undeserved hardship
…
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,
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 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 underserved" 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.
IV.
The Decision
[16]
The
gravamen of the Decision appears in the following passage:
…I
note the unpredictable nature of psoriasis, as presented by her physician
(Dr. Nguyen). This condition could last for a few weeks or up to a
lifetime. The applicant is currently receiving treatment for this condition.
The treatment is in the form of steroids and vitamin creams. It was reported by
her physician that if this treatment is unsuccessful then they would consider
an alternate remedy of photo light treatment to control the symptoms associated
with psoriasis. While it may be desirable to remain in Canada to complete treatment, the applicant has not demonstrated
that she would not be able to receive treatments in Vietnam. While I accept that the physician’s report that the
applicant’s skin condition may worsen if returned to Vietnam, I expect there
are medical facilities in Vietnam that could provide the applicant with
the appropriate medical care.
I am not satisfied that this factor is sufficient to warrant an exemption from
applying outside of Canada.
[my
emphasis]
VI. Discussion
[17]
The
following facts were not in issue when the Decision was made:
·
The
Applicant’s organ donation and the associated stress triggered the outbreak of psoriasis.
The Applicant had never before suffered from psoriasis.
·
The
outbreak was extensive and not responding to treatment at the time the Decision
was made.
·
The
Applicant suffered a large number of itchy sores which had practically covered
her head and which were present on most parts of her body. Some sores were
open.
·
When
the Decision was made, it was not known how long the disease would last or how
severe it would be.
·
Further
it would have been highly unpleasant, if not impossible, for the Applicant to
resume work as a farm labourer in the tropical heat of rural Vietnam with the disease as it
was at the time of the Decision.
·
The
medical evidence showed and the Officer acknowledged that the heat in Vietnam would worsen the
Applicant’s condition.
[18]
Simply
stated, the Decision to deny the H&C Application meant that, a woman who
had donated her kidney to save her brother and who was covered with sores as a
result, would be sent back to rural Vietnam where her condition which was not
responding to treatment, would be exacerbated and where it would be highly
unpleasant, if not impossible, for her to work as a farm labourer. In my view,
it is difficult to imagine a more compelling case of unusual, undeserved and
disproportionate hardship.
[19]
However,
the Respondent says that, because the Applicant adduced no evidence about the
availability of treatment in Vietnam, the Officer’s Decision was reasonable. With respect, I do
not agree. The Officer’s Decision was not entirely based on the Applicant’s
failure to adduce evidence about treatment in Vietnam. In the absence of such evidence, the
Officer said that he “expected” that there would be medical facilities in Vietnam that could provide the
Applicant with the appropriate medical care. Being unable to find unusual,
undeserved or disproportionate hardship because an applicant has adduced
insufficient evidence is one thing; speculating as to the quality of a distant
nation’s medical facilities and care in the absence of any evidence is another.
In my view, this speculation was an important component of the Decision and since
it was not supported by any evidence, it is untenable.
VII. Conclusion
[20]
For
all these reasons, I have concluded that the Decision was not reasonable.
JUDGMENT AND
DIRECTION
UPON noting that
no questions were posed for certification pursuant to section 74 of the Immigration
and Refugee Protection Act, S.C. 2001, c. 27 and for the reasons given
above;
THIS COURT
ORDERS THAT the application for judicial review is allowed and the
H&C Application is to be re-determined by a different immigration officer who
is hereby directed to grant the H&C Application.
“Sandra
J. Simpson”
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