Docket: IMM-4212-16
Citation:
2017 FC 486
Ottawa, Ontario, May 10, 2017
PRESENT: The
Honourable Madam Justice McDonald
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BETWEEN:
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ZHUOHUI MAI
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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
[1]
The Applicant, Mr. Mai, is a citizen of China,
who claimed refugee protection in Canada based upon his fear of being
sterilized by the Chinese state authorities in relation to the country’s family
planning policies. The Refugee Appeal Division [RAD] of the Immigration and
Refugee Board of Canada [IRB] found that he failed to satisfy the burden of
establishing that there is a serious possibility of persecution on a Convention
ground, or that, on a balance of probabilities, he would be personally
subjected to a risk to his life, a risk of torture or a risk of cruel and
unusual treatment or punishment.
[2]
For the reasons that follow, I conclude that the
decision of the RAD is reasonable and therefore, this judicial review is
dismissed.
I.
Background
[3]
The Applicant and his wife have two children: a
daughter born in 1997 and a second daughter born in 2002. They were allowed to
have two children as the family is registered on a rural hukou, which
permits an exception to the usual one-child policy.
[4]
After the birth of their second daughter, the
Applicant’s wife had an intrauterine device [IUD] inserted. She also had
regular pregnancy and IUD check-ups. Eventually, the IUD was removed for
medical reasons, but the regular pregnancy check-ups continued.
[5]
In 2010, it was discovered during a check-up that
the Applicant’s wife was pregnant. She was forced to undergo an abortion and to
pay a fine. She was also required to wear another IUD and to submit to regular
IUD and pregnancy check-ups.
[6]
In October 2015, during another check-up, the Applicant’s
wife was discovered to be pregnant once again. She was forced to undergo
another abortion and pay a second fine. Due to complications caused by the
abortion, she was not sterilized. The Applicant and his wife then became
subject to a sterilization order.
[7]
According to the Applicant, they went into
hiding on October 10, 2015, because they were required to report for sterilization
on October 20, 2015. By October 20, 2015, family planning officials began to
search for them and expelled their daughters from school.
[8]
The Applicant obtained a United States [US]
travel visa on December 16, 2015. He applied for a Canadian visa on January 15,
2016, left China on February 12, 2016, and made a claim for refugee protection
upon arrival in Canada. According to the Applicant, his wife remains in hiding
in China.
[9]
On May 16, 2016, a hearing was held before the Refugee
Protection Division [RPD] of the IRB. The RPD refused the Applicant’s claim for
refugee protection, on the grounds of lack of credibility and subjective fear.
[10]
On September 7, 2016, the RAD confirmed the
RPD’s decision and dismissed the appeal pursuant to subsection 111(1)(a) of the
Immigration and Refugee Protection Act, SC 2001, c 27.
II.
The RAD Decision
[11]
The RAD addressed the Applicant’s four month
delay in leaving China, as well as the one month delay between obtaining the US
and the Canadian visas. The RAD disagreed with the RPD that the one month delay
between obtaining a US visa and applying for a Canadian visa was determinative
in establishing a lack of subjective fear; rather, the RAD found that the fact
the Applicant waited four (4) months, from the time he went into hiding until
his departure, was significant, given the fear of the consequences he alleged.
[12]
The RAD also considered the RPD’s finding with
respect to the Applicant’s explanation for not bringing his wife with him to
Canada. The Applicant testified that it would have taken twenty (20) days for
his wife to apply for a passport. The RPD found an absence of meaningful answer
or a reasonable explanation as to why he did not obtain a passport on behalf of
his wife during the four month period prior to his departure from China. The
RAD concurred with the RPD that the Applicant’s lack of explanation for his
wife not coming to Canada seriously undermined the material allegations of his
claim.
[13]
In considering the matter on appeal, the RAD did
not find that the RPD erred in its credibility findings regarding the
Applicant. It found that the Applicant’s credibility as to the reason he was
leaving China, i.e. forced sterilization, was questionable due to the lack of
explanation provided by the Applicant.
[14]
The RAD further noted that as of January 1,
2016, a two-child policy became law in China, and that this constituted one
more factor in considering the risk to the Applicant. Given the fact the
Applicant’s wife had been given permission to have two children and that the
new law states that requests for additional children will be granted in certain
instances, the RAD found it was less likely that a third child would result in the
payment of a penalty. If it did, nonetheless, the penalty would not be
sufficiently severe to constitute persecution.
[15]
Further, the RAD found there was insufficient
credible evidence to establish that the Applicant would face persecutory treatment
from the family planning authorities, should he return to his home province of
Guangdong. The RAD found that documentary evidence submitted regarding the
situation in Guangdong did not support the Applicant’s subjective fear of
persecution. The RAD therefore concluded that, on a balance of probabilities,
the Applicant is not at risk of forced sterilization by the family planning
officials upon his return to China.
III.
Issue
[16]
The central issue for consideration in this case
is whether the RAD’s decision is reasonable with respect to the negative credibility
findings and with respect to the risk of forced sterilization.
IV.
Standard of Review
[17]
Decisions of the RAD that involve questions of
mixed fact and law are reviewed on the reasonableness standard (Canada
(Citizenship and Immigration) v Huruglica, 2016 FCA 93 [Huruglica]
at para 35).
[18]
Likewise, the assessment of evidence and
determinations of credibility are also reviewed on the reasonableness standard
(Jin v Canada (Citizenship and Immigration), 2012 FC 595 at para 4).
[19]
This Court will only intervene if the decision
falls outside the range of possible, acceptable outcomes which are defensible
in respect of the facts and law (Dunsmuir v New Brunswick, 2008 SCC 9 at
para 47).
V.
Analysis
A.
Credibility
[20]
The Applicant argues that the RAD erred in its
assessment of evidence. Specifically, the Applicant points to the RAD’s statement
that he “was allegedly in hiding, yet he was able to
attend for two interviews with respect to his US visa”. The Applicant contends
that the RAD wrongfully equates the Applicant’s ability to attend at a US
governmental institution with the Applicant’s wife’s ability to attend a
People’s Republic of China governmental institution, thus inferring that she
could have come out of hiding to obtain a passport.
[21]
However, upon review of the decision in its full
context, it is clear that the RAD drew a negative credibility inference
regarding the Applicant’s wife not obtaining a passport, since the Applicant himself
testified that he did not obtain a passport namely because it would take
approximately twenty (20) days. No further explanation or evidence was provided
by the Applicant as to why he left China without his wife.
[22]
The RPD and RAD decisions are based on general
findings of credibility. Findings of fact and determinations of
credibility fall within the core of the expertise of the RPD, and by reason of
the RPD’s specialized knowledge and experience, determinations of credibility
are entitled to considerable deference (Khakimov v
Canada (Immigration, Refugees and Citizenship), 2017 FC 18 at para 23).
[23]
Based upon the evidence before it, the RAD conducted
an independent assessment of the facts and confirmed the RPD’s rejection of the
Applicant’s credibility. It is not the role of this Court to reweigh the
evidence and to substitute its conclusions for those of the RAD. Whether or not
this Court agrees with the RAD’s findings and inferences, as long as the
decision is reasonable, no interference by this Court is warranted.
[24]
I conclude that the RAD decision regarding the
Applicant’s credibility is reasonable. The RAD conducted an independent
assessment of the evidence and appropriately deferred to the credibility
determinations made by the RPD.
B.
Sterilization Risk
[25]
The Applicant argues that the RAD erred by
finding that the new two-child policy in China would address his concerns. The
Applicant states that the implementation of this policy does not correct his situation,
because it does not permit couples, even rural couples, to have a third child.
Since the Applicant and his wife already have two children, nothing has changed
in terms of the family planning officials seeking the Applicant for
sterilization. The Applicant claims that the documentation before the RAD
showed how government officials use heavy handed tactics to ensure its policies
are carried out (e.g. abortions, sterilizations, and even sometimes
imprisonment).
[26]
It was reasonable for the RAD to determine that there
was a strong likelihood that the Applicant would not be found in contravention
of the law, especially given the fact the Applicant and his wife had been given
permission to have two children in the past when the law was a one child
policy.
[27]
Finally, it was reasonable for the RAD to find
that any potential “penalty” would only amount
to a fine, rather than persecution, as the documentary evidence submitted
specific to the province of Guangdong (where the Applicant’s family resides)
showed that there is a comprehensive social maintenance fee system which is
applied to out of plan births.
[28]
The RAD’s findings are consistent with previous
decisions from this Court that have held that the imposition of a fine of
general application is insufficient to amount to persecution. In Li v Canada
(Citizenship and Immigration), 2011 FC 610 the Court states:
[17] This Court has determined that the
fines imposed for breaching China’s family planning policy are generally not
persecutory. The Respondent relies on Lin v Canada (Minister of Employment
and Immigration), (1993), 66 FTR 207, 24 Imm LR (2d) 208 (Fed TD), in which
Justice Paul Rouleau stated at paragraph 6 that “economic sanctions, as a means
to enforce compliance with the law, does [sic] not amount to persecution.”
[19] […] Although the fines levied against
unwed mothers are higher than those for married couples, there is no evidence
that this distinction is discriminatory, let alone persecutory. The sole basis
for the Applicant’s argument that the fine is persecutory appears to be the
amount. However, in the absence of any evidence or argument to this effect,
there is no basis for the Court to interfere with the Board’s finding that the
fine is not persecutory.
[29]
It is not the role of the RAD to prove that the
Applicant will not be persecuted. The burden is on the Applicant to establish
that he would face a serious possibility of persecution should he return to
China (Sanmugalingam v Canada (Citizenship and Immigration), 2016 FC 200
at para 10).
[30]
Overall, after conducting an independent
assessment of the record, the RAD found that the Applicant had failed to
satisfy his burden of establishing that there is a serious possibility of
persecution on a Convention ground, or that, on a balance of probabilities, he
would be personally subjected to a risk to his life, a risk of torture, or a
risk of cruel and unusual treatment or punishment.
[31]
This is a reasonable conclusion and is entitled
to deference.
VI.
Conclusion
[32]
Accordingly, this application for judicial
review is dismissed.
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