Docket: IMM-5562-13
Citation:
2015 FC 101
Toronto, Ontario, January 26, 2015
PRESENT: The
Honourable Mr. Justice Diner
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BETWEEN:
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THEEPAN KULANAYAGAM
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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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JUDGMENT AND REASONS
I.
Overview
[1]
This is an application for judicial review
pursuant to subsection 72(1) of the Immigration and Refugee Protection Act,
SC 2001, c 27 [IRPA], of the decision of a Senior Immigration Officer
[Officer] of Citizenship and Immigration Canada refusing the Applicant’s
pre-removal risk assessment [PRRA]. I dismiss the application for the following
reasons.
II.
Facts
[2]
Theepan Kulanayagam [the Applicant] is a Tamil
male, originally from Sri Lanka. He claimed before the RPD that members of the
Eelam People’s Democratic Party [EPDP] and the army extorted him three times
while he was running his uncle’s store alone. He also claimed that the third
time these groups approached him, he was unable to give them more money. As a
result, they thought he was also providing money to the Liberation Tigers of
Tamil Eelam [LTTE], and abducted and detained him for three days, during which
time they beat him. He claimed that since his departure to Canada, the EPDP and army continued to make specific enquiries about him and threaten him through
his uncle and father.
[3]
The RPD denied the Applicant’s refugee claim on
February 2, 2012, on the basis that the Applicant lacked credibility. The Board
acknowledged country condition documents reporting EPDP abductions and
extortion, but did not believe that the extortion alleged by the Applicant
occurred and/or that his family had been questioned about his whereabouts since
his departure.
[4]
The Board acknowledged country condition
documents reporting the LTTE resurgence that had taken place outside of Sri Lanka, including in Canada, but found the claimant was not a person who would be targeted on
suspicion of LTTE affiliation.
[5]
The Applicant applied for leave and judicial
review of the RPD decision, but was denied leave.
[6]
The Applicant thereafter submitted a PRRA
application, with which he submitted (1) a statutory declaration in which he
states that EPDP members and army soldiers came to search for him at his
father’s house and his uncle’s store; (2) letters from his father and a
neighbour (also a close relative) indicating that unknown persons had inquired
into his whereabouts and activities in mid-January 2013; and (3) country
condition documents published since the date of the RPD decision.
[7]
On July 10, 2013, the Officer rejected the
Applicant’s PRRA Application [the Decision].
III.
Decision
[8]
The Officer refused the PRRA application on the
basis that the Applicant had provided insufficient objective evidence that
would be indicative of new risk developments in either country conditions or
personal circumstances since the date of his RPD decision. The Officer checked
the box indicating that the Applicant had not submitted any new evidence
(Applicant’s Record, p 8).
[9]
The Officer found that the statutory declaration
of the Applicant and letters of his father and neighbour reiterated the same
material facts that were before the RPD and were not capable of rebutting the
RPD’s findings, specifically the findings that the Applicant was not a victim
of extortion by members of the EPDP and army, and that the Applicant’s family
was never questioned about his whereabouts since his departure from Sri Lanka.
[10]
The Officer then assessed the Applicant’s claim
that he would be at risk as a failed asylum seeker from Canada. He acknowledged the country condition evidence regarding screening protocols at Sri Lankan
airports and the incidents of detention and harassment of returnees, noting
that one of the principal areas of concern for authorities in Sri Lanka are returnees that are suspected of having ties with the LTTE. However, the Officer found
that: the Applicant had failed to establish that he currently had or had had in
the past any affiliation with the LTTE; the country condition documents
submitted were generalized in nature; and the country condition documents did
not establish a link to the Applicant’s personal circumstances.
IV.
Issues
[11]
This matter raises the following issues:
a)
Did the Officer err by refusing to accept the
evidence submitted by the Applicant as “new evidence”?
b)
Was the Decision reasonable?
c)
Did the Officer err by failing to hold an oral
hearing?
V.
Relevant Provisions
[12]
Section 113 of IRPA and subsection 167 of
the Immigration and Refugee Protection Regulations, SOR/2002-227
[Regulations] are annexed below.
VI.
Submissions of the Parties
[13]
The Applicant submits that the letters he
submitted should have been accepted as “new evidence”
as they described events that occurred after the Applicant’s refugee hearing,
namely that Sri Lankan paramilitary personnel had approached and harassed both
his family and neighbours with regard to his whereabouts since the RPD hearing.
He further submits that the country condition documents submitted were “new evidence” as they post-dated the RPD decision and
described changing country conditions in Sri Lanka. The new evidence also
expanded the risks he faced.
[14]
Further, the Applicant submits that the Officer
erred by failing to conduct a hearing. He argues that although the Officer
stated that there was “insufficient evidence” to
establish risk, credibility was in fact central to the Officer’s decision, and
the three factors in section 167 of the Regulations were met, thereby requiring
a hearing under paragraph 113(b) of IRPA.
[15]
Finally, the Applicant submits that the Decision
was unreasonable on the basis that the Officer erred in: (i) finding the
Applicant had simply reargued the facts and in placing too much emphasis on the
RPD’s credibility finding; (ii) finding there was insufficient evidence to
support the claimed risk; (iii) failing to evaluate whether the Applicant’s
specific profile would put him at risk if he returned to Sri Lanka; and (iv)
dismissing the extensive objective country documentation because it was “generalized” in nature, when the documentation spoke
directly to the risks faced by individuals with similar profiles to that of the
Applicant. The Applicant submits that any one of these errors on its own is
sufficient to send the matter back.
[16]
The Respondent, on the other hand, submits that
the Officer’s finding that there was no “new evidence”
was reasonable. Even if they occur after the RPD decision, new events must be “materially different” than those events earlier
dismissed by the RPD. The threats described in the letters are simply more of
the same sort of evidence already rejected by the RPD. Similarly, the Applicant
does not show in his submissions how the country condition documentation paints
a materially different picture than what was before the RPD. While the
Applicant argues that his evidence showed an expanded risk in that it showed that
he was perceived as being wealthy, that his family was harassed about his
whereabouts, and that he had evaded authorities in coming to Canada, all three
of these facts either were or could have been put before the RPD.
[17]
The Respondent submits that the Officer was not
required to provide the Applicant with a hearing. It is clear from the
Officer’s reasons that the Officer did not refuse the PRRA on the basis of
credibility findings, but rather because the evidence of continued visits by
the EPDP and army was not new evidence. Furthermore, even if all of the
Applicant’s evidence had been accepted, the evidence was insufficient to ground
a positive PRRA determination.
[18]
Finally, the Respondent submits that the
Decision was reasonable. Contrary to what the Applicant claims, the Officer:
did not require objective corroboration of the Applicant’s evidence; clearly
assessed the Applicant’s profile as a failed asylum seeker; and reasonably
found that the country condition documents did not indicate any link to the Applicant’s
personal circumstances.
VII.
Standard of Review
[19]
A PRRA Officer’s rejection of evidence on the
grounds that it is not new evidence under paragraph 113(a) of IRPA is a
question of mixed fact and law, and is reviewable on a reasonableness standard:
Ponniah v MCI, 2013 FC 386 at para 23; Perera v MCI, 2010 FC 699
at para 22.
[20]
Although there has been some disagreement in the
treatment of the standard of review with respect to whether the PRRA Officer
erred by failing to conduct an oral hearing, the recent jurisprudence of this
Court has held that it is also the deferential standard of reasonableness:
Ibrahim v Canada (Minister of Citizenship and Immigration), 2014 FC 837 at para
6; Bicuku v Canada (Minister of
Citizenship and Immigration), 2014 FC 339 at paras 16-20; Ponniah v Canada (Minister of
Citizenship and Immigration), 2013 FC 386 at para 24; Mosavat v Canada (Minister of
Citizenship and Immigration), 2011 FC 647 at para 9.
[21]
The appropriate standard of review for the
Officer’s findings of fact, issues of mixed fact and law, and whether the
Officer had proper regard to all the evidence when reaching his or her decision
is reasonableness: Alvarez v MCI, 2014 FC 564 at para 19.
[22]
Having established that all three issues in this
matter are to be reviewed on a standard of reasonableness, this Court will
review whether there is “the existence of justification,
transparency and intelligibility within the decision-making process” (Dunsmuir
v New Brunswick, 2008 SCC 9 at para 47). The standard is deferential
because the Court should only intervene if the Decision falls outside of the
range of possible, acceptable outcomes which are defensible in respect of the
facts and law: Newfoundland and Labrador Nurses’ Union v Newfoundland and
Labrador (Treasury Board), 2011 SCC 62 at para 14.
VIII.
Analysis
A.
Did the Officer err in finding the statutory
declaration, affidavits, and country conditions documentation were not new
evidence?
[23]
It is well established that a PRRA is not
supposed to be an appeal or reconsideration of an RPD decision (Raza v MCI,
2007 FCA 385 at para 12; Singh v MCI, 2014 FC 11 at paras 22-24; Aboud
v Canada (Minister of Citizenship and Immigration), 2014 FC 1019 at para
20). Rather, the purpose of a PRRA is to assess new risk developments between
the RPD hearing date and the removal date, in order to ensure that Canada does
not remove people to a country where they would be at risk of persecution,
torture, risk to life or risk of cruel and unusual treatment or punishment (Raza
at para 10; Ponniah, above, at para 27).
[24]
To mitigate the risk of wasteful and potentially
abusive relitigation, PRRA officers are expected to respect negative refugee
determinations by the RPD unless there is new evidence of facts that might have
affected the RPD’s determination (Raza at para 13; Aboud at para
20; Singh at paras 22-24).
[25]
Paragraph 113(a) of IRPA limits the
evidence that may be presented to a PRRA officer to new evidence that arose
after the rejection of the refugee claim or was not reasonably available at the
time of the hearing, or evidence that the applicant could not reasonably have
been expected to have presented before the RPD (IRPA, s 113(a)).
[26]
In Raza, the Federal Court of Appeal held
that paragraph 113(a) of IRPA requires PRRA officers to only consider “new evidence of facts that might have affected the outcome of
the RPD hearing if the evidence had been presented to the RPD” (Raza at
para 13). Accordingly, PRRA officers are to consider all the evidence presented
to them, except where the evidence is excluded on one of the following grounds:
1. Credibility:
Is the evidence credible, considering its source and the circumstances in which
it came into existence? If not, the evidence need not be considered.
2.
Relevance: Is the evidence relevant to the PRRA application, in the
sense that it is capable of proving or disproving a fact that is relevant to
the claim for protection? If not, the evidence need not be considered.
3. Newness:
Is the evidence new in the sense that it is capable of:
(a) proving the current state of affairs in the country of
removal or an event that occurred or a circumstance that arose after the
hearing in the RPD, or
(b) proving a fact that was unknown to the refugee claimant at
the time of the RPD hearing, or
(c) contradicting a finding of fact by the RPD (including a
credibility finding)?
If not, the evidence need not be considered.
4. Materiality:
Is the evidence material, in the sense that the refugee claim probably would
have succeeded if the evidence had been made available to the RPD? If not, the
evidence need not be considered.
5. Express statutory conditions:
(a) If the evidence is capable of proving only an event that
occurred or circumstances that arose prior to the RPD hearing, then has the
applicant established either that the evidence was not reasonably available to
him or her for presentation at the RPD hearing, or that he or she could not
reasonably have been expected in the circumstances to have presented the
evidence at the RPD hearing? If not, the evidence need not be considered.
(b) If the evidence is capable of proving an event that
occurred or circumstances that arose after the RPD hearing, then the evidence
must be considered (unless it is rejected because it is not credible, not
relevant, not new or not material).
(Raza at paras 13, 15)
In this case, the
Applicant submitted, with the PRRA Application: (i) his own statutory
declaration; (ii) a letter from his father; (iii) a letter from a neighbour
(and “close relative”); and (iv) some 1400 pages
of country condition documentation. The statutory declaration, letters, and
some of the country condition documents, were written after the rejection of
his RPD claim.
[27]
The Officer found that the personal
documentation, i.e. items (i) through (iii), fit into the Raza exception
#3(c), thus concluding that they were not “new evidence”.
He states at page 3 of the Decision:
In reviewing these items, I find the applicant
is essentially rearguing the facts that were before the RPD. The information
described in these aforementioned documents is materially consistent with that
already considered by the RPD and not capable of overcoming any of its
findings. Namely, that the applicant was not a victim of extortion by members
of the army and the EPDP and as a result, his family was never questioned about
the applicant’s whereabouts since his departure from Sri Lanka (para. 15, RPD).
[28]
The RPD had found (a) that the testimony of the
Applicant was inconsistent on various points, and (b) that he was not credible
given that he changed his story and was evasive on more than one occasion. As
alluded to by the Officer, the Board simply did not believe that the Applicant
had been extorted or that his family members had been threatened after his
arrival in Canada.
[29]
The Officer did not reject the evidence
outright. Rather, he turned his mind to evaluating the evidence and explained
why the statutory declaration and two letters failed to overcome the findings
made by the Board. The Officer summarized the reasons behind the Board’s
negative credibility findings, found that the new facts established in the
documents were not substantially different from those presented at the RPD, and
explained that because the facts were materially consistent with the ones
already considered by the RPD, they could not rebut the RPD’s findings. In its
decision, the Board had considered the alleged threats against the Applicant
from the paramilitary, and rejected them. The letters and Affidavit simply
provided further details regarding these same risks that had already been
litigated.
[30]
The RPD’s finding that the Applicant’s family
had not been threatened by the EPDP and the army flowed out of its finding that
the Applicant had not been extorted or detained in the past. Thus, to rebut the
Board’s conclusion on the threats, the evidence would have had to have been
sufficient to rebut the Board’s credibility finding or its finding that the
Applicant had not been extorted by the EPDP and the army. The Board’s
credibility findings were based on a number of factors, including that it found
the Applicant to be evasive and lacking in credibility when he was examined at
the airport, and that there were several material omissions and inconsistencies
between the Applicant’s PIF narrative and what he told Immigration authorities
regarding his fears and alleged experiences in Sri Lanka. In order for the
Officer to have found the documents compelling (or sufficient) enough to
overcome the RPD findings, in my view they would have had to have show
something more compelling than simply another visit from paramilitary forces,
or belief that the Applicant would be at risk at the airport upon
re-entry.
[31]
It fell short of this, according to the Officer.
The role of this court is not to reweigh the evidence – but rather to determine
whether the Officer’s decision was one that could reasonably have been arrived
at. I find that it was.
[32]
This Court considered a similar situation in Ponniah,
above, in that the claimant alleged he had been kidnapped and beaten by a
paramilitary group, and was to be at risk from the LTTE should he return to Sri Lanka. The RPD rejected the claims, raising credibility concerns and instances of
inconsistent testimony of the Applicant. The Applicant produced new evidence –
both of a personal nature and objective country documentation. The new evidence,
like in this case, included his own sworn statement, as well as letters from
family members (spouse and sister). Justice de Montigny wrote:
[31] Finally, the Applicant’s personal
affidavit and the letters from his sister and spouse referred to the same
alleged risk that was before the RPD and that had not been found to be
credible. Of course, the Applicant rightly points out that new evidence cannot
be rejected solely on the basis that it relates to the same risk. That being
said, Raza made it clear that such evidence can be properly rejected “if
it cannot prove that the relevant facts as of the date of the PRRA application
are materially different from the facts as found by the RPD” (at para
17). This is precisely why the PRRA Officer rejected the Applicant’s affidavit
and the letters from his sister and spouse.
[32] The Applicant submits that his
affidavit and the letters pertain to new developments in the forward-looking
risk he will face if returned to Sri Lanka and that they corroborate his prior
evidence of risk. In particular, the letters indicate that the Applicant
continued to be pursued and threatened, and that his wife was threatened and
had her jewellery forcefully snatched from her body as part of the extortion,
all of which allegedly shows that he was truthful with respect to his ordeal.
[33] It is improbable, however, that
the Applicant’s refugee claim would have succeeded even if the letters and the
Applicant’s sworn statement had been made available to the RPD. The RPD found
that the Applicant had not been consistent on dates and locations of various
significant events or the content of the telephone calls with the alleged
extortionists, and that the Applicant’s actions were not always consistent with
his alleged subjective fear. To accept that he continued to be threatened by
the Karuna group, the RPD would have had to conclude that he had already been
threatened. This is not the case. As my colleague Justice Barnes stated in
similar circumstances, Raza does not open “the PRRA process to a
re-examination of evidence that was already before the IRB or that could have
been put to the IRB but was not. A PRRA is not an appeal from the IRB and it
does not afford an opportunity to argue that the IRB misinterpreted the
evidence before it”: Kadjo v Canada (Minister of Citizenship and
Immigration), 2010 FC 1050 [Kadjo] at para 12.
[Emphasis added]
[33]
In other words, the evidence was simply more of
the same, even though it related to new events. One must be reminded of the
words of Justice Mosley on this point in the lower Court’s decision in Raza
v Canada (Citizenship and Immigration), 2006 FC 1385 at para 22, that in
assessing new evidence, “it is not just the date of the
document that is important, but whether the information is significant or significantly
different than the information previously provided” [Emphasis added].
[34]
In Perez
v Canada (Minister of Citizenship and Immigration), 2006 FC 1379
at para 5, Justice Judith Snider held:
It is well-established that a PRRA is not intended
to be an appeal of a decision of the RPD [...].The purpose of the PRRA
is not to reargue the facts that were before the RPD. The decision of the
RPD is to be considered as final with respect to the issue of protection under
s. 96 or s. 97, subject only to the possibility that new evidence
demonstrates that the applicant would be exposed to a new, different or
additional risk that could not have been contemplated at the time of the RPD
decision.
[Emphasis added]
[35]
On the basis of the record before me, the
Officer’s finding that the statutory declaration and letters were insufficient
to overcome the negative credibility findings of the Board, on the basis of the
Raza criteria, was reasonable.
[36]
Finally, with respect to this first issue of “new evidence”, the Applicant states that the 1400 pages
of country documentation submitted with the PRRA, were also unreasonably
rejected. Again, in my view, the Officer reasonably found that they were not
indicative of a new risk development in either the country conditions, or the
Applicant’s personal circumstances.
[37]
Again, the Officer’s findings in this regard
were consistent with Raza and the case law regarding relevancy and
materiality of “new evidence”. As with the
Officer’s conclusion regarding the personal documentation, his finding that the
documentation did not raise new risks or risk developments from those
considered by the RPD, was a conclusion open to the Officer, and meets the
legal test set out in Dunsmuir. This included a consideration of the
risk that the Applicant would face as (a) a failed Canadian asylum seeker, and
(b) a perceived supporter of the LTTE.
B.
Was the Decision reasonable?
[38]
I now turn to the overall reasonableness of the
Decision.
[39]
The officer concluded that, “Overall, the applicant has provided insufficient objective
evidence that would be indicative of new risk developments in either country
conditions or personal circumstances which have arisen since the date of the
RPD decision” (Decision, p 3).
[40]
Similar to my conclusion on the Officer’s
treatment of the documents submitted with the PRRA, I find the Officer’s
overall conclusion to be within the acceptable range of outcomes, and
consistent with PRRA jurisprudence: See, for instance, Aboud, above; Santheesan
v Canada (Minister of Citizenship and Immigration), 2012 FC 1196; Khatun
v Canada (Citizenship and Immigration), 2012 FC 997.
[41]
Contrary to the Applicant’s assertion, I find
that the Officer did not disregard the country condition documents submitted by
the Applicant. The Officer specifically addressed the Applicant’s claimed fear
on the basis of being a failed asylum seeker from Canada. The Officer noted the
country condition documentation in this regard, acknowledging that: screening
protocols are in place at airports for returnees; returnees with certain profiles
may be subject to harassment by Sri Lankan authorities; and returnees with
suspected ties to the LTTE are at a higher risk of increased scrutiny upon
arrival. The Officer found, however, that the Applicant had not established
that he has ever had an affiliation with the LTTE.
[42]
As country condition documents are insufficient
on their own to establish a personalized risk (Ponniah, above, at para
43), it was reasonable for the Officer to find that since the Applicant had not
established an affiliation with the LTTE, his profile did not bring him within
the group of failed asylum seekers that would attract the adverse interest of
authorities upon their return.
[43]
Finally, I disagree with the Applicant’s
assertion that the Officer failed to properly assess his risk profile. The
Officer assessed the risk to the Applicant as a failed asylum seeker from Canada (with any perceptions of wealth that brings), just as the RPD had already assessed
this issue at the Board level. It would certainly not be the first case where
the Board has decided that it is no longer enough to
fit the profile of a young male Tamil from the north or east of Sri Lanka to be accorded refugee status. Numerous decisions of this Court have so found. See, for instance, Velummayilum
v Canada (Minister of Citizenship and Immigration), 2013 FC 742 at para 8.
[44]
I quoted Justice Snider in Perez above.
In another leading decision of hers the following year, she wrote in Cupid v Canada (Minister of Citizenship
and Immigration), 2007 FC 176:
[4] […] Canada has taken steps to ensure that a
claimant is provided with a process whereby changed conditions and
circumstances may be assessed. It follows that, if country conditions or the
personal situation of the claimant have not changed since the date of the RPD decision,
a finding of the RPD on the issue of state protection - as a final, binding
decision of a quasi-judicial process - should continue to apply to the
claimant. In other words, a claimant who has been rejected as a refugee
claimant bears the onus of demonstrating that country conditions or personal
circumstances have changed since the RPD decision such that the claimant, who
was held not to be at risk by the RPD, is now at risk. If the applicant for a
PRRA fails to meet that burden, the PRRA application will (and should) fail.
[Emphasis added]
[45]
Here, the Officer’s conclusions that the new
evidence was insufficient to overcome the findings of the Board and that the
Applicant had not established a risk by virtue of being a failed asylum
claimant from Canada, were reasonable.
C.
Did the Officer err by failing to conduct an
oral hearing?
[46]
The Applicant submits that the Officer breached
his right to procedural fairness by failing to hold an oral hearing, since the
Officer effectively challenged the credibility of the Applicant’s evidence. I
disagree.
[47]
First, I cannot agree with the Applicant that
the Officer’s decision was effectively one of credibility. His decision was
based on insufficiency of evidence, as he stated in his concluding paragraph
cited above. I do not find the Officer to have made veiled credibility
findings. He simply stated that certain evidence was not new evidence, based on
materiality, and found that the other (country condition) evidence did not
provide a linkage to the Applicant’s personal circumstances and was
insufficient to show new risk developments in country conditions or personal
circumstances.
IX.
Conclusions
[48]
I find that the Officer’s conclusions lay within
a range of acceptable outcomes, and the Decision was justifiable. It therefore
fell within the purview of reasonability. It is not the role of this Court to
reweigh evidence to arrive at a conclusion different from that which was
legitimately open to the administrative decision-maker. Furthermore, I find
that an oral hearing was not required in this case. The application is
dismissed.
X.
Judgment
[49]
The Application is dismissed.
[50]
The parties have not proposed a question for
certification, and none arises.
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