Date: 20081201
Docket: IMM-1159-08
Citation: 2008 FC 1334
Ottawa, Ontario, December 1, 2008
PRESENT: The Honourable Mr. Justice Russell
BETWEEN:
AGUINALDO PINTO FERRARI,
YORLING MARGARITA ALVIR ABRAHAM
(a.k.a. YORLING MARGARI ALVIR ABRAHAM),
IRVING FERRARI ALVIR,
GIAN ANDRE FERRARI ALVIR,
and EDWIN FERRARI ALVIR
Applicants
and
THE MINISTER OF CITIZENSHIP
AND IMMIGRATION
Respondent
REASONS FOR JUDGMENT AND JUDGMENT
[1]
This
is an application pursuant to s. 72 (1) of the Immigration and Refugee
Protection Act, S.C. 2001, c. 27 (Act) for judicial review of a decision of
the Refugee Protection Division of the Immigration Refugee Board (Board), dated
February 14, 2008 (Decision) refusing the Applicants’ application to be deemed
Convention refugees or persons in need of protection under section 96 and section
97 of the Act.
BACKGROUND
[2]
Aguinaldo
Ferrari is a 39-year-old citizen of Brazil, while his 36-year-old
wife, Yorling Abraham (Principal Applicant) and their 3 sons, Irving Alvir,
Gian Alvir and Edwin Alvir are all citizens of Mexico.
[3]
The
Principal Applicant alleges that in October 2001, she as a doctor, and her
husband as a nurse, provided medical assistance in Saltillo, Mexico to a
woman who had been seriously wounded by a gunshot. The victim told them she had
been shot by Chato Lee, a well-known criminal. The Principal Applicant did not
divulge the name of Chato Lee to the police during their investigation of the
shooting. However, the Principal Applicant did give the police her cell phone
number. The next day, the Principal Applicant says she received a phone call on
her cell phone warning her not to talk.
[4]
Over
the next five years, the Principal Applicant says she received phone calls during
which no one spoke or, on other occasions, she was warned not to speak about
what she had heard from the victim of the shooting. The Principal Applicant
also believes that, at times, her house was under surveillance.
[5]
In
November 2005, the Principal Applicant was a victim of a sexual assault in Saltillo, Mexico. The
incident was not reported to the police.
[6]
In
January 2006, while in Mexico City, the Principal
Applicant’s husband was called by name and detained for an ID check by two men,
one of whom was dressed as a policeman. The husband escaped because persons passing
by came to his assistance.
[7]
The
Principal Applicant believes that if she and her family had remained in Mexico,
the criminals who had shot the woman in 2001 would have taken action to ensure
that she and her husband could not repeat to the police or others the name of
Chato Lee.
DECISION UNDER REVIEW
[8]
The
Officer determined that parts of the Applicants’ account were, on their face,
implausible, and that the fear of serious harm from members of the gang today
was not supported by the evidence. In the alternative, the Officer also found
as follows:
Parts of the account, on their face, are
implausible.
Even so, I am satisfied that if the
family was to move to the Federal District (D.F.) within Mexico City and have
incidents connected to the criminals she fears, that adequate, although not
perfect, protection would be provided. Hence, the D.F. is a viable Internal
Flight Alternative (IFA).
Principal Applicant’s Fear of Serious
Harm
[9]
The
Officer determined that the Principal Applicant’s fears of facing serious harm
at the hands of a criminal gang were not supported because:
1)
She has
never divulged any incriminating information to police;
2)
She has
never reported any of the phone calls;
3)
She has
refused to assist the victim in any legal proceeding;
4)
Five
years have passed where the gang has had opportunity and motivation to do the
claimant harm but has taken no such steps.
[10]
The
Officer also concluded that there was no direct evidence that the Principal
Applicant’s 2005 sexual assault was connected to the 2001 incident.
Whether D.F.
Within Mexico
City
was a Viable IFA
[11]
The
Officer examined whether the D.F. within Mexico City was a viable
IFA. He was satisfied it would be for several reasons:
1)
There has
been an effort by the state to assist women in the D.F. within Mexico City by providing provisions to
access psychological support by women at risk;
2)
The Principal
Applicant already lived for five years in the same area where the incident
occurred;
3)
If the Principal
Applicant was to move to the D.F., she and her family will be at less risk of
harm with more support available than they [had] for the five years when they
lived in the same area where the original incident occurred;
4)
The family
could reasonably relocate to the D.F;
5)
The state
would make serious efforts to provide adequate protection in the D.F. even in
the case where individual police officers or authorities are connected to the
criminals.
[12]
The
Officer concluded that while there are areas of Mexico where serious efforts to
provide adequate protection as a result of corruption and criminality are not
being made, in the D.F., within Mexico City, this is not the case.
Principal
Applicant’s Husband Being Approached by Authorities in Mexico City
[13]
The
Officer found that the “new report” presented by counsel, that identified the husband
as being present when assistance was provided to the victim in 2007, was problematic
for two reasons:
1)
The
suspect of the crime was not reported as Chato Lee as the claimant recalls
hearing spoken by the victim, but the sister of Chato Lee;
2)
There is
no mention of the claimant being present, only that her husband was present.
[14]
The
Officer concluded that, even if the husband believed he was being targeted by
authorities in Mexico City for assisting the victim of the shooting five
years earlier, his recourse as a citizen of Brazil is to
Brazilian authorities. The evidence of this incident within the D.F. provides
insufficient weight to offset the documentary evidence as to the efforts of the
state to protect its citizens within the D.F.
[15]
The
Officer concluded that the husband had not demonstrated a well-founded fear in Brazil.
State
Protection in D.F.
[16]
The
Officer provided the following reason for his conclusions on the availability
of state protection:
The premise for my analysis of state
protection in the D.F. is if, in the future, the claimants became the victims
of criminality or believed they were about to be victims, they would have
recourse at that time. Five years have passed since the claimants were involved
with Chato Lee’s victim. During that time, the claimants never offered evidence
or requested assistance. I made no inference from their lack of seeking
assistance in the past, but focused on the future-looking aspect of the
definition. As a result, I find the paragraph referenced by counsel is not
relevant.
[17]
The
Officer makes the following findings on the January 2008 Human Rights Watch, Mexico, World
Report, 2008.
1)
The abuses
referred to during law enforcement operations are not applicable to these
facts;
2)
The last sentence
of the first paragraph on human right violations may apply to parts of Mexico, but the documents satisfy
that this is generally not the case in the D.F.;
3)
The
discussion of President Calderon’s proposal to strengthen the ability of
prosecutors to combat organized crime is criticized since some due process
guarantees are set aside. However the Officer finds “this appears to be exactly
the claimants’ request of the authorities, i.e. take action, even without
strong evidence”;
4)
The
section on Abuses by Security Forces was a cause for concern but was deemed to
not apply to the facts before the Officer as the Applicants had not been
exposed to such acts and abuses referenced. The act in Mexico City where the Principal Applicant’s husband was
not harmed was not considered to be of the nature described in the report;
5)
Mexico
City is
referenced once in the report as an area of Mexico where abortion is legalized. The Officer
concluded that just as abortion rights are different within jurisdictions
within Mexico, other areas of law and the implementation of law are equally
different as law and enforcement are left to each state by the Constitution
with certain exceptions;
6)
Despite
the report not distinguishing between Mexico City and the rest of Mexico, the
Officer gave “such generalized statements insufficient weight to offset the
statements made specifically regarding Mexico City” found in other documents.
The Officer concludes at page 8 of the Decision
that the fear of harm today from criminals is not supported by the evidence.
The D.F. within Mexico City meets both tests for a viable IFA. The Principal
Applicant and her children had not established a serious possibility that they
would be persecuted or seriously harmed in all parts of Mexico. Therefore,
their claims failed pursuant to both sections 96 and 97(1) of the Act.
ISSUES
[18]
The
Applicants have raised the following issues on this application:
1)
Is there a
reasonable apprehension of bias on the part of the decision maker?
2)
The
decision maker failed to assess whether protection in Mexico is real and effective.
STATUTORY PROVISIONS
[19]
The
following provisions of the Act are applicable in these proceedings:
|
Convention refugee
96. A Convention refugee is a person who, by reason of a
well-founded fear of persecution for reasons of race, religion, nationality,
membership in a particular social group or political opinion,
(a) is outside each of their countries of nationality and is
unable or, by reason of that fear, unwilling to avail themself of the
protection of each of those countries; or
(b) not having a country of nationality, is outside the country
of their former habitual residence and is unable or, by reason of that fear,
unwilling to return to that country.
Person in need of protection
97. (1) A person in need
of protection is a person in Canada whose removal to their country or
countries of nationality or, if they do not have a country of nationality,
their country of former habitual residence, would subject them personally
(a) to a danger, believed on substantial grounds to exist, of
torture within the meaning of Article 1 of the Convention Against Torture; or
(b) to a risk to their life or to a risk of cruel and unusual
treatment or punishment if
(i) the person is unable or, because of that risk, unwilling to avail
themself of the protection of that country,
(ii) the risk would be faced by the person in every part of that country
and is not faced generally by other individuals in or from that country,
(iii) the risk is not inherent or incidental to lawful sanctions, unless
imposed in disregard of accepted international standards, and
(iv) the risk is not caused by the inability of that country to provide
adequate health or medical care.
Person in need of protection
(2) A person in Canada who is a member of a class of persons prescribed by the
regulations as being in need of protection is also a person in need of
protection.
|
Définition de
« réfugié »
96. A qualité
de réfugié au sens de la Convention — le réfugié — la personne qui, craignant
avec raison d’être persécutée du fait de sa race, de sa religion, de sa nationalité,
de son appartenance à un groupe social ou de ses opinions politiques :
a) soit se trouve hors de tout pays dont elle a la
nationalité et ne peut ou, du fait de cette crainte, ne veut se réclamer de
la protection de chacun de ces pays;
b) soit, si elle n’a pas de nationalité et se trouve hors
du pays dans lequel elle avait sa résidence habituelle, ne peut ni, du fait
de cette crainte, ne veut y retourner.
Personne à protéger
97. (1) A
qualité de personne à protéger la personne qui se trouve au Canada et serait
personnellement, par son renvoi vers tout pays dont elle a la nationalité ou,
si elle n’a pas de nationalité, dans lequel elle avait sa résidence habituelle,
exposée :
a) soit au risque, s’il y a des motifs sérieux de le
croire, d’être soumise à la torture au sens de l’article premier de la
Convention contre la torture;
b) soit à une menace à sa vie ou au risque de traitements
ou peines cruels et inusités dans le cas suivant :
(i) elle ne peut ou, de ce fait, ne veut se réclamer de
la protection de ce pays,
(ii) elle y est exposée en tout lieu de ce pays alors que
d’autres personnes originaires de ce pays ou qui s’y trouvent ne le sont
généralement pas,
(iii) la menace ou le risque ne résulte pas de sanctions
légitimes — sauf celles infligées au mépris des normes internationales — et
inhérents à celles-ci ou occasionnés par elles,
(iv) la menace ou le risque ne résulte pas de
l’incapacité du pays de fournir des soins médicaux ou de santé adéquats.
Personne à protéger
(2) A
également qualité de personne à protéger la personne qui se trouve au Canada
et fait partie d’une catégorie de personnes auxquelles est reconnu par
règlement le besoin de protection.
|
STANDARD OF REVIEW
[20]
In
Dunsmuir v. New Brunswick, 2008 SCC 9,
the Supreme Court of Canada recognized that, although the reasonableness simpliciter
and patent unreasonableness standards are theoretically different, “the analytical
problems that arise in trying to apply the different standards undercut any
conceptual usefulness created by the inherently greater flexibility of having
multiple standards of review” (Dunsmuir at para.
44). Consequently, the Supreme Court of Canada held that the two reasonableness
standards should be collapsed into a single form of “reasonableness” review.
[21]
The Supreme Court of Canada in Dunsmuir also held that the
standard of review analysis need not be conducted in every instance. Instead,
where the standard of review applicable to the 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.
[22]
Thus, in light of the Supreme Court of Canada’s decision in Dunsmuir and
the previous jurisprudence of this Court, I find the standard of review
applicable to the second issue raised by the Applicants to be reasonableness.
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” (Dunsmuir
at para. 47). Put another way, the Court should only intervene if the Officer’s
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.”
[23]
The
Applicants also raise a procedural fairness issue to which the standard of
correctness applies: Suresh v. Canada
(Minister of Citizenship and Immigration) 2002 SCC 1.
ARGUMENTS
The Applicants
Reasonable Apprehension of
Bias
[24]
The
Applicants submit that the Officer exhibited an apprehension of bias towards
them. They rely upon the definition for apprehension of bias in Committee
for Justice and Liberty v. Canada (National
Energy Board),
[1978] 1 S.C.R. 369 at p. 394 (Liberty) and mentioned in R v.R.D.S., [1997]
3 S.C.R. 484 at paragraph 11:
…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…[T]hat 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 [the decision-maker],
whether consciously or unconsciously, would not decide fairly.
[25]
The
Applicants go on to submit that where a reasonable person, reviewing the facts,
would suspect that a tribunal may be influenced by improper considerations to
rule against an applicant, the applicant does not have to show that the bias
prejudiced his/her position, but simply that it could have occurred: Spence
v. Prince Albert (City) Police Commissioners, [1987] S.J. No. 5
(Sask.C.A.), leave to appeal to S.C.C. refused [1987] 1 S.C.R. xiv.
[26]
The
Applicants cite case law that states that sarcastic remarks, or impugning the
character of an applicant, is an apprehension of bias under some circumstances:
Saleh v. Canada (Minister of Citizenship and Immigration), [1995]
F.C.J. No. 745 (F.C.T.D.) and de Freitas v. Canada (Minister of Employment
and Immigration, [1989] F.C.J. No. 52 (F.C.A.). In addition, they
say that unreasonably aggressive questioning or comments about an applicant’s
testimony gives rise to a reasonable apprehension of bias: Re Gooliah and
Minister of Citizenship and Immigration, [1967] M.J. No. 39 (Man.
C.A.); Re Golomb and College of Physicians and Surgeons of Ontario, [1976]
O.J. No. 1707 (Ont. Div. Ct.) and Yusuf v. Canada (Minister of
Employment and Immigration), [1991] F.C.J. No. 1049 (F.C.A.).
[27]
The
Applicants find the following comments from the Board to be inappropriate and
illustrative of an apprehension of bias and refer to the affidavit of Jenny
Hwang, associate lawyer at the office of the solicitor of the Applicant:
3. I attest during parts of the hearing,
the Board Member chuckled on occasion during the Applicant’s hearing and made
comments which gave the impression that the Applicants’ claim for protection
was not being seriously considered. During Mr. [Ferrari's] testimony, the Board
Member interrupted to note “I’m glad to see the Portuguese citizens are no
different than the Spanish, they gotta tell me everything.”
[28]
The
Applicants say that the statements of the Board must be taken as they appear,
and that speculation as to what the Officer meant is of no value, as no one could
know what was in the mind of the Officer. The Applicants also say that the
statement of the Officer shows a “level of generalization towards the presumed
nature of Mexican and Portuguese claimants but also shows that the [Board
member] is intruding and cutting the applicant’s testimony.”
[29]
The
Applicants conclude that the “Board Member also shows a troubling insensitivity
towards the Female Applicant in regard to the Sexual Assault that she was
subjected too (sic).” This insensitivity demonstrates bias toward the Principal
Applicant, which is in violation of the spirit of the Chairperson Guidelines
4, Women Refugee Claimants Fearing Gender-Related Persecution.
Real and Effective Protection in Mexico
[30]
The
Applicants submit that the Officer also failed to assess whether protection in Mexico is real and
effective and merely accepted the declaration of the Mexican Government that it
was making attempts to provide protection. The Applicant cites and relies upon the
following excerpt from Tobar v. Canada (Minister of
Citizenship and Immigration), [1999] F.C.J. No. 798 (F.C.T.D.):
24. A presumption exists that if the
government apparatus has not completely collapsed a government is in a position
to protect its citizens. Chile is not in a state of complete
collapse. It was therefore up to the applicant to show clearly and convincingly
that it was objectively unreasonable to seek protection from the Chilean
authorities: see Ward v. M.E.I., 103 D.L.R. (4th) 1 (S.C.C.).
25. To determine whether a government can
offer adequate protection a court must look not only at whether the government
is able to offer such protection, but whether it will do so: see Bobrik v.
M.C.I. (September 16, 1994-IMM-5519-93 (F.C.T.D.). Among the relevant
factors, it must ascertain whether family violence is penalized under the
country’s legislation, whether that legislation is designed to protect victims
against attacks and, most importantly, whether it is applied.
26. The existence of support services
(counselling, legal and medical aid) is praiseworthy but does not in itself
constitute protection. Similarly, the existence of a halfway house does not
necessarily indicate that protection exists; if it only offers a temporary
refuge and the local authorities do not protect the victims of family violence.
27. In view of the rules recently laid
down by the international community, a government which does not take steps to
prevent offences of violence against women is as guilty as the perpetrators of
such acts. Governments are in fact required to prevent offences involving
violence against women, to investigate such acts and to punish them.
28. In Bobrik v. M.C.I.
9IMM-5519-93, September 16, 1994, F.C.T.D.), Tremblay-Lamer J. held that even
if the government wishes to protect its citizens, a claimant will meet the
refugee status criteria if the protection provided is ineffective. In
particular, she noted that “a state must actually provide protection, and not
merely indicate a willingness to help”.
[31]
The
Applicant points out that the Officer notes the existence of legislation and
policies, but does not actually consider if Mexico has a real
capacity to protect its citizens. This is contrary to the holding of Justice de
Montigny in Kaur v. Canada (Minister of Citizenship and Immigration),
[2005] FC 1491 at paragraph 28, where he said that “the protection offered by
the State must not be only theoretical, but also practical and real and
effective.”
The Respondents
Reasonable Apprehension of
Bias
[32]
The
Respondent contends that the Applicants allegations of bias are based on an inaccurate,
incomplete and a summarized version of the transcript. The Respondent claims
that the Officer’s chuckles where due to counsel nearly falling off his chair,
and are not evidence that the Officer was biased. The Respondent notes that after
the chair incident, the Officer went back to the task at hand and proceeded to
clarify the Applicant’s testimony about the alleged harassment by a police
officer in Mexico
City.
The result was that the Principal Applicant’s husband stated that the incident
was not connected to his wife and the problems she experienced.
[33]
The
Respondent says that the Officer’s comment that “I’m glad to see the Portuguese
citizens are no different than the Spanish, they gotta tell me everything”
indicated that the Officer was pleased the Principal Applicant’s husband was
forthcoming in his testimony.
[34]
The
Respondent concludes on this issue by stating that neither the transcripts nor
the reasons indicate that the Officer was biased, or that a denial of justice
occurred. Just because the Officer chuckled does not mean the Applicants did
not have a fair hearing; the Applicants did not act upon this until they received
a negative Decision. The right to complain of a breach of procedural fairness
on judicial review is waived when the matter is not raised before the Board
member: Bankole v. Canada (Minister of Citizenship and
Immigration), [2005] FC 1581 at paragraphs 20-22, Yassine v.
Canada (Minister of Employment and Immigration) (1994), 172 N.R. 308 at paragraph
7 (F.C.A.) and Ranganathan v. Canada (Minister of Citizenship and
Immigration) 2003 FC 1367.
[35]
The
Respondent also cites and relies upon Gonzalez v. Canada (Minister of
Citizenship and Immigration 2008 FC 983, where the claimants made an
accusation of bias against a member two weeks after the hearing in their
written submissions. The Court in Gonzalez held in relevant part as
follows:
18 The
applicants were represented by counsel at their refugee hearing. Moreover, this
is not a case where the significance of the member's comments could not have
been immediately apparent to the applicants or their counsel, nor was it a case
where additional matters arose during the course of the hearing that, when
taken cumulatively with the member's earlier comments, gave rise to a
reasonable apprehension of bias.
19 Having regard to
the nature of the applicants' objection in this case, it is clear that as soon
as the disputed words were out of the mouth of the presiding member, the
applicants and their counsel were in possession of all of the relevant
information and evidence relating to the matters that they now say gives rise
to a reasonable apprehension of bias on the part of the presiding member.
20 Not only did the
applicants and their counsel not raise their bias objection at the time that
the impugned statements were made, they continued on with the evidentiary
portion of the hearing to its completion, without objection. Indeed, it was not
until some two weeks later that the applicants first raised the issue of
apprehended bias on the part of the presiding member.
21 In
such circumstances, it cannot be said that the applicants have raised their
bias objection at the first reasonable opportunity. As such, they are deemed to
have waived their right to object.
[36]
The
Respondent says the Gonzalez case is “indistinguishable” from the case
at bar except for the fact that the Applicants in this case waited even longer
to object to the jurisdiction of the Officer on the grounds of bias. Their
complaint only arose when a negative decision was rendered over one month
later.
Real and Effective Protection in Mexico
[37]
The
Respondent contends that the actual question addressed by the Board was whether
the Applicants had an internal flight alternative in Mexico City-DF, and not
whether the protection in Mexico is real and effective. Therefore, the
Officer had to be satisfied on a balance of probabilities that there was no
serious possibility of the Applicants being persecuted in the Mexico City-DF
and that it would not be unreasonable for the Applicants to seek refuge there: Thirunavukkarasu
v. Canada (Minister of Employment and Immigration), [1994] 1 F.C.
589 (F.C.A.) at paragraph 12 and Rasaratnam v. Canada (Minister of Employment
and Immigration), [1992] 1 F.C. 706 (F.C.A.).
[38]
The
Respondent relies upon Thirunavukkarasu at paragraph 5 for the
proposition that since the existence of an internal flight alternative is “part
and parcel” of whether or not a person is in need of protection, the onus is
upon the Applicants to show, on a balance of probabilities, that there is a
serious possibility of persecution throughout the country, including the areas
where an internal flight alternative is alleged.
[39]
The
Respondent discusses the principles found in Zalzali v. Canada (Minister of
Employment and Immigration), [1991] 3 F.C. 605 at paragraph 21 and Rasaratnam
at paragraph 5, that persecution in a given region is not considered
persecution within the meaning of the Convention if the government of the
country is capable of providing protection for the applicants elsewhere within
its territory, as long as it is a reasonable place for the victims to move in
order to find protection.
[40]
The
Respondent points out that the Officer did not simply “accept the declaration
of the government that it was making attempts to provide protection.” The
Officer notes as follows:
1)
Civilian
authorities maintain control over security forces;
2)
The
Government protects human rights at the national level by investigating,
prosecuting and sentencing public officers, including security forces;
3)
There
exists a well-defined process to be followed for reporting crime which is
supported by offices providing psychological, legal and medical assistance to
victims (two such centres being found in Mexico City);
4)
While
corruption persists, there is a department responsible for monitoring
corruption and the Office of the Attorney General conducts internal
investigations that result in penalties including dismissal arrest and prosecution;
5)
In
particular, in the Federal District of Mexico City, police corruption can be
reported to Internal Affairs for action;
6)
That the husband
was menaced by police (or someone impersonating the police) in Mexico City who
asked to see his identification is insufficient to suggest that protection is
not available to the Applicants, should it be necessary, in Mexico City.
[41]
The
Respondent concludes that the Applicants have not identified any evidence that
was ignored or which would demonstrate that the Officer’s findings were not
within a range of possible, acceptable outcomes which are defensible in respect
of the facts and law. The Respondent also says that inconvenience,
attractiveness of the IFA, and possible job opportunities in the IFA are not genuine
considerations in determining whether it is reasonable to seek safety there: Thirunavukkarasu
at paragraphs 14-15.
ANALYSIS
[42]
This
application illustrates the ways in which levity can render a decision
problematic. The Applicants say that it is indicative of bias on the part of
the Board Member. Having reviewed the offending comments and “chuckles” in
context, I have to conclude that, although inappropriate, they do not give rise
to a reasonable apprehension of bias on the part of the Board.
[43]
The
comment made by the Board that “I’m glad to see the Portuguese citizens are no
different than the Spanish. They’ve got to tell me everything. Let’s get to the
kidnapping” is deplorable stereotyping and has no place in a refugee hearing.
However, when I examine the full context in which the remark was made it is
clear that the Applicants were not prevented or discouraged from placing their
account before the Board. That account is also not discounted in any way that
is not justified in the reasons or that is not supported by the evidence. The
Board appears to be saying something to the effect of “Let’s get down to
dealing with the kidnapping.”
[44]
There
are several instances throughout the transcript where the Board asks the
Applicants if there is anything further they would like to say. The general
impression is that the Applicants were given a full and fair opportunity to
state their case and there is no indication that the innuendo present in the
isolated remark quoted above played any role in the Decision.
[45]
Similarly,
the Board’s comment that “Your counsel’s about to fall off his chair,” when
reviewed in context, obviously means that the husband’s testimony that there
was no connection between the police officer and the incident involving the
female Applicant is a mistake, and the Board, realizing this, goes on to give
the husband an opportunity to correct that mistake and tell his story. There
was no need for the Board to comment upon counsel’s possible reaction to the
husband’s mistake, but it is merely a humouress way of saying that an obvious
mistake has been made. As this case shows, humour can give rise to possible misconceptions and this Board member ought to bear that in mind
for the future.
[46]
I
have also examined the record regarding the Applicants’ allegations of
insensitivity towards the female Applicant. I can find none. The Board was
obviously confused about the legal concepts of “rape” and “sexual assault,” but
this matter was clarified between the Board and legal counsel, and the Board
expresses gratitude for the assistance. The Board was simply attempting to test
the credibility of the female Applicant. This is not disrespectful.
[47]
If
the “chuckles” and the remarks referred to by the Applicants gave rise to an
apprehension of bias, then any concerns would have been, and should have been,
raised much earlier than they have been raised in this application.
[48]
Instances
of levity on the record reflect the personal style of this Board member. They
are regrettable and should be corrected. But, on these facts, they do not give
rise to a reasonable apprehension of bias.
[49]
Nor
can I find evidence of bias or procedural unfairness in the manner of the
Board’s questioning. Justice Mosley’s comments in Bankole v. Canada
(Minister of Citizenship and Immigration), [2005] FC 1581 at paragraph 25, could
be applied equally to the present case:
Having reviewed the transcript closely, I am not persuaded that
the manner of questioning in this case amounted to a denial of procedural
fairness in the conduct of the hearing despite my concerns about specific
excerpts. Overall, the transcript discloses that the member went to
considerable lengths to obtain the applicant's complete evidence and to attempt
to clarify the contradictions and inconsistencies in his testimony. The hearing
as a whole, while flawed, was not unfair.
[50]
It is also apparent that the
Officer was not predisposed or biased as a result of any persuasive decisions
that might exist. There is no evidence that the Officer relied upon any such
decision, and I am satisfied that the Officer looked at the facts before him
and came to his own conclusions.
[51]
In summary, on the bias
issue, I have to conclude that an informed person, viewing the matter
realistically and practically, and having thought the matter through, would conclude
that there is no apprehension of bias in this case as alleged by the
Applicants.
[52]
As regards the Applicants’
second issue, I cannot agree that the Officer committed a reviewable error.
However, even if I were to so find, the Decision must stand because it was
based upon alternative grounds. The Officer makes it clear that the Applicants
have established no objective fear: “I find the claimants fear of serious harm
from members of the gang today to be not supported by the evidence I heard at
the hearing.” This was a reasonable conclusion and, apart from the bias issues
already addressed, the Applicants do not take issue with it. Hence, in the
absence of apprehended bias, that conclusion must stand. There is no need to
address in detail the I.F.A. issues raised by the Applicants.
JUDGMENT
THIS COURT ORDERS AND
ADJUDGES that
1. This
Application is dismissed
2. There is no
question for certification.
James
Russel