Docket: IMM-8280-14
Citation:
2015 FC 1162
Ottawa, Ontario, October 14, 2015
PRESENT: The
Honourable Mr. Justice Fothergill
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BETWEEN:
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YASEMIN AKKAYA
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Applicant
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and
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THE MINISTER OF
IMMIGRATION AND CITIZENSHIP
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Respondent
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JUDGMENT AND REASONS
I.
Introduction
[1]
Yasemin Akkaya has brought an application for
judicial review pursuant to s 72(1) of the Immigration and Refugee
Protection Act, SC 2001, c 27 [the IRPA] of a decision of the
Refugee Protection Division of the Immigration and Refugee Board [the Board].
The Board held that there was no credible basis for her claim to be a
Convention refugee pursuant to s 96 of the IRPA, and that she was not a person
in need of protection pursuant to s 97 of the IRPA.
[2]
For the reasons that follow, I have concluded
that Ms. Akkaya received adequate, if not perfect, interpretation throughout
the hearing, and her right to an interpreter was therefore respected. The
Board’s rejection of her credibility and refusal of her sur place claim
were both reasonable. The application for judicial review is dismissed.
II.
Facts
[3]
Ms. Akkaya is a citizen of Turkey. Although she
indicated on her Basis of Claim Form [BOC] that she speaks both Turkish and
English, her English proficiency appears to be limited. She appeared before the
Board with the aid of an interpreter.
[4]
Ms. Akkaya testified before the Board that she
is a secular member of the Alevi religious minority and a supporter of the
leftist cause in Turkey. She indicated in her BOC that she was not a member of an
Alevi religious organisation or a member of a leftist group or party while she
lived in Turkey.
[5]
Ms. Akkaya alleged that her problems began in or
around February 2013, when she opened a travel agency and began to receive demands
of extortion from the “idealist mafia,” which
she also referred to as “right-wing gangs”. She
said that a Sunni store owner intervened on her behalf, and the demands stopped
for a time.
[6]
Ms. Akkaya testified that in May, 2013, she
attended Gezi Park demonstrations against the Turkish government. She took photographs
of the demonstrations, and noted that she was involved in an amateur
photography association.
[7]
According to Ms. Akkaya, during the second week
of July, 2013, the same Sunni store owner who had intervened on her behalf
raped her when she refused his advances. She decided to travel to the United
States of America after this incident because she “wanted
to get away”.
[8]
Upon her return to Turkey, Ms. Akkaya was allegedly
arrested at the airport because the police had been “tipped
off”. According to her BOC, she was detained for two days and accused of
supporting a radical left-wing group, and harbouring and aiding demonstrators
during the Gezi Park demonstrations. Ms. Akkaya said that, after her arrest,
the police searched her home and discovered the photographs she had taken
during the Gezi Park demonstrations. She was severely beaten and sexually
assaulted. The public prosecutor eventually dismissed the police allegations
and released her.
[9]
According to Ms. Akkaya, in September, 2013, the
idealist mafia began to harass her again. The Sunni store owner offered to
intervene a second time if Ms. Akkaya would go out to dinner with him. Ms.
Akkaya accepted his offer, but when she later refused his advances he raped her
a second time. She said that she complained to the police about the visits from
the idealist mafia and the Sunni store owner’s behaviour. The police summoned
the Sunni store owner to the station but did not charge him. The police would
do nothing about the idealist mafia because she was unable to identify them by name.
[10]
Ms. Akkaya received a Canadian visitor’s visa in
December, 2013. However, she did not leave Turkey immediately. She said that
she delayed her departure out of concern for her father, who had been under her
care since her mother’s death. She changed her mind when she found a note at
her workplace that read “you will be get killed [sic]”.
When she attempted to leave her workplace, the Sunni store owner tried to
abduct her but she screamed and was rescued by passers-by.
[11]
Ms. Akkaya left Turkey for Canada on January 29,
2014. She made an inland claim for refugee status on February 14, 2014. Following
her arrival in Canada, Ms. Akkaya published photographs in Yeni Hayat, a
Toronto-based newspaper that caters to expatriate Turkish minorities. These
included photographs that Ms. Akkaya says were taken during protests outside
the Turkish consulate in Toronto following the death of an Alevi youth. Ms.
Akkaya made a sur place claim based on these activities.
III.
The Board’s Decision
[12]
Ms. Akkaya’s claim was heard by the Board on
August 25, 2014. The following day, she requested a compact disc recording of
the hearing. On September 22, 2014, Ms. Akkaya formally notified the Board of
alleged errors in the interpretation during the hearing, and said that these gave
rise to a reasonable apprehension of bias that required the Board member to
recuse himself.
[13]
The Board issued its decision on November 26,
2014, finding that there was no credible basis for Ms. Akkaya’s refugee claim.
The Board drew adverse inferences from what it considered to be material
omissions in Ms. Akkaya’s BOC. These included her failure to mention:
•
her frequent attendance at Cem houses, which are
places where Alevis gather and worship;
•
that conservatives and “rightists”
had always discriminated against her in school and in her neighbourhood as a
result of her Alevi faith;
•
her attempts to help injured protesters at the
Gezi Park demonstrations or that she opened her office to demonstrators;
•
her status as an “independent
woman” as the reason for her mistreatment by police; and
•
her belief that the idealist mafia, the store
owner and the police were conspiring against her.
[14]
The Board concluded that Ms. Akkaya was
generally not credible. The Board also rejected her sur place claim. In
addition, the Board found that Ms. Akkaya’s right to an interpreter had not
been breached, and that she had in any event waived her right to raise the
issue because she did not do so at the first opportunity.
IV.
Issues
[15]
This application for judicial review raises the
following issues:
A. Did the Board breach Ms. Akkaya’s right to an interpreter?
B. Was the Board’s rejection of Ms. Akkaya’s credibility reasonable?
C. Was the Board’s rejection of Ms. Akkaya’s sur place claim
reasonable?
V.
Analysis
[16]
Whether the right to an interpreter has been
breached is a question of procedural fairness, and is subject to review by this
Court against the standard of correctness (Bouanga v Canada (Citizenship and
Immigration), 2014 FC 1029 at para 4).
[17]
The Board’s findings of credibility are owed deference,
and are subject to review by this Court against the standard of reasonableness
(Tariq v Canada (Citizenship and Immigration), 2015 FC 692 at para 10).
[18]
The Board’s assessment of a sur place
claim is subject to review by this Court against the standard of
reasonableness. However, whether the Board applied the right legal test
is subject to review against the standard of correctness (Liu v Canada
(Citizenship and Immigration), 2013 FC 1123 at para 17).
A.
Did the Board breach Ms. Akkaya’s right to an interpreter?
[19]
An applicant must raise an alleged error of interpretation
at the first opportunity during a hearing or risk waiving her right to an
interpreter (Mohammadian v Canada (Citizenship and Immigration),
2001 FCA 191 at para 19). Waiver requires full knowledge of the right that is waived.
Where an applicant does not know the extent of the errors because they are not
readily apparent during the Board’s hearing, she cannot waive her right to an
interpreter simply by failing to raise the errors at that time (Mah v Canada
(Citizenship and Immigration), 2013 FC 853 [Mah] at para 15).
[20]
In this case, Ms. Akkaya and her former counsel did
not speak the same language. This made it difficult for either of them to assess
the quality of interpretation before the Board. The burden is on the Respondent
to demonstrate that Ms. Akkaya had full knowledge of the right that she is said
to have waived. I am not satisfied that the Respondent has discharged this
burden, and accordingly Ms. Akkaya did not waive her right to an interpreter
before the Board.
[21]
Section 14 of the Canadian Charter of
Rights and Freedoms, Part I of the Constitution Act, 1982, being
Schedule B to the Canada Act 1982 (UK), 1982, c 11 [the Charter] requires
that interpretation be “continuous, precise, competent,
impartial and contemporaneous” (Mohammadian at para 4). However, the
right guaranteed at section 14 of the Charter does not require that
interpretation be “perfect” (Mohammadian
at para 6, citing R v Tran, [1994] 2 S.C.R. 951 at para 57). Actual prejudice
need not be shown, but the error must be more than trifling. As Justice Gleason
explained in Mah at paras 23-24:
[23] […] an
applicant need not be prejudiced by a translation error for an award to be set
aside if the applicant establishes there were errors in the translation and has not waived his or her
right to complain about them. In my view, this holding establishes that an
error need not be central to a key portion of the Board’s decision to warrant a
decision’s being overturned. Thus, materiality of the sort asserted by the
respondent in this case is not required before a decision can be set aside due
to inadequate translation. It is, however, always incumbent on an applicant to
establish such inadequacy.
[24] In order to do so, the claimed error must
be more than trifling. As noted, in Mohammadian the Court of Appeal held
that it is only necessary that an adequate translation be provided and hence
trivial imperfections in translation do not violate section 14 of the Charter.
This Court has often applied this principle and held that trifling
inconsistencies do not amount to a failure of adequate translation.
[22]
Once an applicant establishes that there was a “real and significant translation error”, she is not
required to demonstrate that the error underpinned a key finding before the
Board’s decision can be set aside (Mah at para 26; Siddiqui v Canada
(Minister of Citizenship and Immigration), 2015 FC 1028 at para 68, citing Bidgoli
v. Canada (Minister of Citizenship and Immigration), 2015 FC 235 at para
13).
[23]
Many of the translation errors identified by Ms.
Akkaya were trivial: for example, “declaration”
was translated as “form” or “thing” (the BOC was placed in front of Ms. Akkaya); “we pray for those who were killed” was translated as “we pray for those who passed away”; “Cem houses and at the Alevi associations” was
translated as “at Cem house and other places Alevis
gather”; “hundreds of thousands of people”
was translated as “hundreds of people” or “hundreds, thousands of people”.
[24]
Other alleged errors appear to have more
substance: “Now we will talk about your leftist views”
was translated as “now we will talk about the mistreatment you received from
leftists”. Given the nature of Ms. Akkaya’s claim, this question would have seemed
nonsensical. However, a review of the transcript does not suggest that there
was any lasting confusion. The questions soon moved on to details of the demonstrations
that Ms. Akkaya allegedly attended.
[25]
There was confusion in the translation about
whether Ms. Akkaya had suffered “visible” or “permanent” injuries, but this was clarified in later
testimony. Similarly, the mistranslation of the police wanting to “sue” Ms. Akkaya was later clarified to mean that they
wanted to “charge” her. Any confusion was
resolved as the hearing progressed.
[26]
The hearing before the Board lasted over six
hours. Viewed in isolation or cumulatively, I am unable to find that the
alleged errors of interpretation were more than trifling. Ms. Akkaya has not
established that there was a “real and significant
translation error”. She received adequate, if not perfect,
interpretation throughout the hearing.
B.
Was the Board’s rejection of Ms. Akkaya’s
credibility reasonable?
[27]
Ms. Akkaya argues that the Board improperly
framed her claim “as being based on her leftist, Alevi
identity and her participation in the Gezi protests”. Instead, she
asserts that it “was in fact based on her problems with
the idealist mafia, the man who twice raped her, and the mistreatment she
suffered at the hands of the police, who were falsely tipped off about her”.
In other words, Ms. Akkaya argues that her political and religious profile were
“peripheral” to her claim.
[28]
The Respondent counters that Ms. Akkaya referred
in her BOC to her support of the leftist cause, and that she testified that she
was targeted by the police for being an “Alevi leftist
lady”. Ms. Akkaya also relied upon a document that described the
treatment of Alevis by Turkish authorities. Her claim was therefore based, at
least in part, on her Alevi and leftist identity.
[29]
I agree with the Respondent. The narrative
attached to Ms. Akkaya’s BOC identified her Alevi religious identity and
leftist political views as essential components of her refugee claim. This was
also apparent in her references to “Sunni competitors”
and the “Sunni store owner”. She linked the
false accusations that the Turkish police allegedly brought against her to her
leftist profile.
[30]
It was therefore reasonable for the Board to reject
Ms. Akkaya’s credibility based on the omission from her BOC of key details regarding
her persecution as both an Alevi and a leftist. When asked about these
omissions, Ms. Akkaya offered no explanation beyond her intention to provide
details of her claim at the hearing. The Board’s assessment of an applicant’s
credibility attracts a high degree of deference from this Court.
C.
Was the Board’s rejection of Ms. Akkaya’s sur place claim
reasonable?
[31]
Ms. Akkaya’s sur place claim was based on
a photograph credited to her in Yeni Hayat, a Toronto-based newspaper
that caters to Turkish minorities. The photograph depicted a young man, a
candle, and a loaf of bread, and was said to have been taken outside the
Turkish consulate in Toronto following the death of an Alevi youth.
[32]
Ms. Akkaya provided no evidence that the Turkish
authorities would be aware of photographs in a small overseas publication aimed
at expatriate Turkish minorities. However, she argues that the Board wrongly
considered “whether it is likely that the situation
will become known”, rather than what would happen if the situation were
to become known (Sheikh v Canada (Citizenship and Immigration), 2014 FC
264 at para 12).
[33]
The United Nations High Commission for Refugees’ Handbook and Guidelines on Procedures and
Criteria for Determining Refugee Status under the 1951 Convention and the 1967
Protocol Relating to the Status of Refugees (Reissued 2011) provides
as follows:
96. A person may
become a refugee “sur place” as a result of his own actions, such as
associating with refugees already recognized, or expressing his political views
in his country of residence. Whether such actions are sufficient to justify a
well-founded fear of persecution must be determined by a careful examination of
the circumstances. Regard should be had in particular to whether such
actions may have come to the notice of the authorities of the person’s country
of origin and how they are likely to be viewed by those authorities.
[Emphasis added.]
[34]
Furthermore, it appears that the Board did in
fact consider the consequences for Ms. Akkaya if the photographs came to the
attention of the Turkish authorities: “The panel finds
that the claimant has not established that involving herself in these
activities in Toronto would result in a reasonable possibility of persecution
...” I am therefore unable to conclude that the Board’s rejection of Ms.
Akkaya’s sur place claim was unreasonable or based upon the wrong legal
test.
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