Date: 20070503
Docket: IMM-5524-06
Citation: 2007 FC 471
OTTAWA, Ontario, May 3, 2007
PRESENT: The Honourable Maurice E. Lagacé
BETWEEN:
SEGUN
OGUNFOWORA & LAIDE OGUNFOWORA
Applicants
and
THE
MINISTER OF CITIZENSHIP AND IMMIGRATION
Respondent
REASONS FOR JUDGMENT AND JUDGMENT
[1]
This
is an application for judicial review of a decision of a visa officer (officer)
in Lagos,
Nigeria denying the
applicants a temporary resident visa. The officer stated that he was not
convinced the applicants would return to Nigeria at the end of the period
authorized by their stay, as mandated by paragraph 20(1)(b) of the Immigration
and Refugee Protection Act, S.C. 2001, c. 27 (IRPA).
FACTS
[2]
The
applicants are citizens of Nigeria and are husband and
wife. They have three children aged nine years, six years, and eleven months.
The principal applicant, Mr. Segun Ogunfowora, has a brother, Mr. Oluwatoyin
Ogunfowora, who is a Canadian citizen. Mr. Oluwatoyin Ogunfowora was scheduled
to be married December 31, 2006 in Montréal and invited the applicants to
attend. The applicants applied for temporary resident visas at the Canadian
High Commission in Lagos, Nigeria for themselves and
their youngest child to allow them to visit Canada for three
weeks in order to attend the wedding. They did not intend for their other two
children to accompany them.
[3]
The
officer refused the application on September 17, 2006 on the grounds that he
was not convinced the applicants would return to Nigeria at the end
of the period authorized by their stay. The officer did not request the applicants
to attend an interview or examination prior to refusing their application.
[4]
The
decision is recorded on a standard-form template. In rejecting the application,
the officer checked off a box stating that he was not satisfied that the applicants
would return to their country of origin if granted temporary resident visas.
The form notes that the officer considered the applicants’ ties to their
country of residence/citizenship balanced against factors which might motivate
them to stay in Canada. The applicants state in their Reply that the
wedding has been postponed until the Court renders a decision. They attempted
to file an affidavit attesting to the postponement but the Prothonotary issued
a Direction that the affidavit be sent back and taken out of the file because
no affidavits are allowed to be filed in reply.
[5]
The
reasons for the decision are provided for in the Computer Assisted Immigration
Processing System (CAIPS) notes. The officer notes that the principal applicant
is married, with three children, and would be travelling with his wife and one
daughter. He notes that the applicants wanted to attend their brother’s
wedding. He states that none of them have any previous travel and concluded
that it was “too risky to let three family members travel together even if the
principal applicant has a good job in Nigeria”. Also, he stated that
he doubted their intentions and their return.
ISSUES
[6]
The
submissions of the applicant and respondent raise essentially four issues
a. Is the
application for judicial review moot?
b. Did the officer
err in denying the applicants’ temporary resident visa?
c. Was the
failure to provide an opportunity for an interview or a right to respond to
concerns of the officer a violation of procedural fairness?
d. Were the
reasons sufficient to satisfy the requirements of procedural fairness?
RELEVANT
LEGISLATION
[7]
The
burden is on the foreign national to establish that he or she will leave Canada at the end
of the authorized period, according to paragraph 20(1)(b) of IRPA.
20(1) Every foreign national, other than a foreign
national referred to in section 19, who seeks to enter or remain in Canada must establish,
[…]
(b) to become a temporary resident,
that they hold the visa or other document required under the regulations and
will leave Canada by the end of the period
authorized for their stay.
|
20.(1) L’étranger non visé à l’article
19 qui cherche à entrer au Canada ou à y sojourner est tenu de prouver:
[…]
b) pour devenir un résident temporaire,
qu’il détient les visa ou autres documents requis par règlement et aura
quitté le Canada à la fin de la période de séjour autorisée.
|
[8]
There
are several factors that guide a visa officer’s determination that a person
meets the requirements of section 20(1)(b), which are provided for by the Immigration
and Refugee Protection Regulations, SOR/2002-227 (Regulations). One
of these is section 179 of the Regulations:
179 An officer shall issue a temporary resident visa to a
foreign national if, following an examination, it is established that the
foreign national
[…]
(b) will leave Canada
by the end of the period authorized for their stay under Division 2;
[…]
|
179. L’agent délivre un visa de résident
temporaire à l’étranger si, à l’issue d’un contrôle, les éléments suivants
sont établis :
[…]
b) il quittera le Canada à la fin de la
période de séjour autorisée qui lui est applicable au titre de la section 2;
[…]
|
[9]
According
to subsection 22(2), an intent by a foreign national to become a permanent
resident does not preclude them receiving a temporary resident permit:
22(2) An intention by a foreign
national to become a permanent resident does not preclude them from becoming
a temporary resident if the officer is satisfied that they will leave Canada by the end of the period
authorized by their stay.
|
22.(2) L’intention qu’il a de s’établir
au Canada n’empêche pas l’étranger de devenir résident temporaire sur preuve
qu’il aura quitté le Canada à la fin de la période de séjour autorisée.
|
APPLICANTS’
SUBMISSIONS
[10]
The
applicants submit that several of the officer’s findings of fact were patently
unreasonable. First, it was patently unreasonable to conclude that because this
was a first journey, the applicants would not return. Second, although the officer
recognizes the purpose of travel is for the wedding, he later doubts the applicants’
intentions. Furthermore, since the applicants have three children, and are only
travelling with one, it is patently unreasonable that they would not return.
[11]
The
applicants submit that the officer should not be supplementing his reasons in
his affidavit before the Court and also states that the reasons provided in the
affidavit are also patently unreasonable. The principal applicant notes that he
is not on talking terms with his siblings, that they live in a different area
of Nigeria where he
would not send his children, so the officer’s assumption they would keep the
children is unreasonable.
[12]
They
submit also that the presence of an outstanding permanent residence application
does not operate as a bar to temporary resident visa under section 22(2) of
IRPA and that the permanent residence visa was not properly before the visa
officer as decided in Moghaddam v. Canada (M.C.I.), 2004 FC 680.
Finally, the officer’s assertion in his affidavit that financially the applicants
would be better off in Canada does not accord with the cost-of-living
comparison. The applicants submit that they offered overwhelming evidence of
ties to their country.
[13]
And
they rely on the decision in Yip v. Canada (M.E.I.) (1993), 70 F.T.R.
175 and Kandiah v. Canada (M.E.I.) (1994), 75 F.T.R. 166 (T.D.) to
support their assertion that where a panel applies the wrong test in assessing
evidence before it, the resulting decision will be fatally affected.
[14]
They
also submit that in the face of evidence to the contrary, if the visa officer
had issues with the credibility of the applicant, he should have asked for
further particulars or explanations, or even held an interview. The applicants
insist that an interview is appropriate where it might lead to a different
solution if the applicants could respond to findings, such as with respect to
the leaving behind of the children: see Wang v. Canada (M.C.I), 2003 FCT
258.
[15]
They
finally argue that the one page decision and the reasons in the CAIPS notes do
not constitute adequate reasons. According to the Federal Court of Appeal in Armson
(1989), 9 Imm. L.R. (2d) 150 (F.C.A.) the reasons must relate clearly to
the finding of credibility and some recitation of the facts do not amount to
adequate reasons. Reasons were requested pursuant to Rule 9 of the
Immigration and Refugee Protection Rules. The applicants rely on several cases,
including Baker v. Canada (M.C.I.), [1999] 2 S.C.R. 817 and Aleman
v. Canada (M.C.I.), 2004 FC 272, in support of the supposition that there
is a statutory obligation on immigration officers to give reasons and such
reasons must be sufficient or be invalid.
[16]
In
reply, the applicants note that the wedding was postponed until the Court
disposes of this matter, so the issue is not moot. Also, it is not moot because
the applicants would face future difficulties visiting their brother. In their
further submissions, the applicants also note that any other application for
international travel requires recording where an application for a visa was
denied.
[17]
The
applicant submits that the standard of review should be governed by Baker.
RESPONDENT’S
SUBMISSIONS
[18]
The
respondent argues the application is moot because the wedding was to take place
either in December 2006. The respondent relies on Skobrev v. Canada
(M.C.I.), 2004 FC 485 with respect to this point.
[19]
He
adds that the standard of review applicable to findings of fact of visa
officers is patent unreasonableness.
[20]
With
respect to the adequacy of reasons, the respondent notes that although the
reasons of the visa officer were succinct they clearly showed that the officer
considered the relevant issue of whether the applicants would leave Canada at the end
of the authorized stay. They fulfill the purpose of reasons which is to tell
the person concerned why a particular result was reached. The respondent relies
on the decision in Bhandal v. Canada (M.C.I.), 2006 FC 427.
[21]
Finally,
the respondent submits that the visa officer’s decision was reasonable and that
although the principal applicant argues that the officer did not explain in his
CAIPS notes why he thought it was too risky to let the family travel to Canada,
the respondent notes that the principal applicant did not state in his
Affidavit that he had previously applied to immigrate to Canada as a member of
the family class. The applicant also reapplied for an immigration visa in the
Economic Class. Consequently the visa officer’s affidavit as evidence to
support the assertion that he was aware of these previous applications and that
these applications indicated to him the applicant was serious about leaving
Nigeria to immigrate to Canada.
[22]
The
respondent mixes the arguments as to sufficiency of reasons with the arguments
that the decision itself was not patently unreasonable. The respondent argues
that the Court in De la Cruz v. Canada (M.E.I.) (1989), 26 F.T.R.
285 held that it is not an improper reason for the visa officer to
refuse temporary resident visas on the basis of an outstanding application for
permanent residence.
[23]
The
respondent also notes that the officer in his affidavit stated he was aware
that the principal applicant had a brother and sister in Nigeria to care for
the children left in Nigeria. The officer also
explains that previous travel is a relevant consideration because it can show
patterns of behaviour. Furthermore, the officer explains in his affidavit that
the applicant and his wife might be better off financially in Canada. In light of
the CAIPS notes and the affidavit and his decision, he considered relevant
factors, did not ignore evidence and his decision was reasonable.
[24]
Finally,
the respondent submits that there was no right to an interview, according to
the Immigration Manual, OP-11, “Temporary Residents”, where it is evident
through paper review that the applicant is ineligible and additional
information would not alter the decision. The Court has confirmed that there is
no statutory right to an interview where the concern arises directly from the
requirements of the legislation or related regulations and where no extrinsic
evidence was considered.
[25]
The
respondent submits in a further memorandum that the evidence as to the
postponement of the wedding and finally the impact of the officer’s decision on
his future job prospects was not before the officer and is therefore not
admissible. The respondent also further submits that no evidence has been
provided to support allegations of bias and bad faith.
ANALYSIS
STANDARD OF
REVIEW
[26]
Decisions
of visa officers are discretionary. The jurisprudence states that review of
discretionary decisions of visa officers is subject to considerable deference. The
leading case is Baker which applied a standard of reasonableness to a
decision of an immigration officer.
[27]
The
Federal Court of Appeal recognizes however, in Boni v. Canada (M.C.I.), 2006
FCA 68 at paras. 4-8, relying on the decision in Ouafae v. Canada (M.C.I.), 2005
FC 459, despite Baker, that there is no set standard of review for a
visa officer’s decision. The standard will be determined by nature of the
issue.
[28]
Where
a visa officer’s decision is based on an assessment of the facts, the decision
is reviewable on a standard of patent unreasonableness. Where it involves an
issue of mixed fact and law, it will be reviewed on a standard of
reasonableness. Thus, where the issue in this case involves a review of the officer’s
assessment of the evidence, it should be reviewable on a standard of patent
unreasonableness. Where the review involves examining the application of the
facts to the law, the appropriate standard should be reasonableness.
[29]
Furthermore,
according to Sketchley
v. Canada (Attorney General), 2005 FCA 404, questions of
procedural fairness are always reviewable on a standard of correctness.
Mootness of
the Application for Judicial Review
[30]
Although
there is no proof to support the assertion of the applicants that the wedding
has been postponed, it should be noted that the applicants attempted to submit
an affidavit attesting to the postponement but, by direction of the Court, were
prohibited from doing so because no affidavits are permitted during the reply
stage.
[31]
However,
even if the wedding had already passed, the Court shares the applicants’
proposal that this is one of the situations in which the Court should hear the
case, despite the issue being moot, and this for the following reasons.
[32]
The
respondents raise the case of Skobrev as an illustration of a situation
in which an application for a temporary permanent visa was argued to be moot.
The applicant in that case requested a temporary resident visa to enter Canada to attend a
speed skating event. By the time of the application for judicial review, the
event had passed.
[33]
In
Skobrev the Court overviewed the general principles governing moot
applications as outlined in Borowski v. Canada (Attorney General), [1989] 1 S.C.R. 342. The Supreme Court states at paragraph 16 that “a
case is moot if it fails to meet the ‘live controversy’ test” and that courts
should decline to decide cases involving abstract or hypothetical cases, as
when the subject of the lis has disappeared. However, in Borowski,
the Supreme Court also recognizes that there is discretion to hear moot
cases and the Court
should consider several issues, including whether there remains a live
controversy.
Nevertheless in Skobrev, the Court exercised its
discretion to hear the application even though the lis had disappeared.
Doing so she held that it was unknown whether further efforts of the applicant
to seek entry into Canada would be adversely affected by the refusal.
[34]
The
same considerations arise in this case. First, the applicants wish to have the
opportunity to visit the principal applicant’s brother in the future. Furthermore,
the principal applicant submits that the fact he has been denied a temporary
residence visa to Canada will potentially affect his ability to gain
entry into other countries, a fact that might in the future pose problems for
employment-related travel.
[35]
The
respondent submits that several of the applicants’ statements regarding the
mootness of the application are inadmissible. The applicants replies to this
argument by demonstrating first, that the issue is not moot at all and further,
even if it was moot that there would still be a compelling reason for the Court
to decide the matter.
[36]
Thus,
it is entirely relevant for the applicants to point out that, if the issue went
before a different officer, there may still be an opportunity for the applicants
to attend the wedding. Obviously, this fact was not before the officer. The
wedding would never have been postponed had the decision of the officer been
different.
[37]
In
sum, and even if there is no evidence to support the applicants’ statement that
the wedding has been postponed, the Court concludes that there are still
compelling reasons to decide the case.
Reasonableness
of the Officer’s Decision
[38]
On
a simple review of the evidence submitted by the applicants, the decision of
the officer is patently unreasonable. The principal applicant submitted a
letter from his employer showing steady employment for a long period of time
(1992). Furthermore, the adult female applicant also has employment in Nigeria and received
also a strong recommendation from her employer. Both applicants have clearly
applied for and obtained their leave periods for their visit to Canada. They are
gainfully employed and their employment awaits them upon return to Nigeria.
[39]
Although
the parties argue over whether the applicants would be better off in Canada,
considering the amount of income of the applicants in Nigeria, the applicants’
arguments are more compelling. First, the officer did not consider the
comparative standard of living. Clearly they enjoy a very comfortable living by
all standards in Nigeria. They own a prime real estate landed property,
they pay to put their children through International School, they own a BMW, a
luxurious vehicle in Nigeria, and apart from a local currency Bank account the
principal applicant owns a US Bank account in a third world country. Second,
the officer did not consider the impact that an illegal status would have on
the ability of the applicants to earn income in Canada. The applicants
statement that it is better to wait the outcome of their permanent residence
application is persuasive.
[40]
The
applicants have also provided an itinerary, including details as to their
return trip home. The principal applicant’s brother and common-law wife have comfortable
steady income (brother shows a Canadian Income Tax Notice of Assessment of
$104,000 and his spouse of $46,057) and have expressed a willingness to host
the family members while in Canada. The applicant included the original copy
of the wedding invitation to substantiate the reason for their visit.
[41]
More
significantly, it was patently unreasonable for the officer to conclude that
the applicants were leaving their two other children behind to be cared for by
their relatives on a permanent basis without putting this theory to the applicants.
It is not reasonable to assume that parents would not return to care for their
two young children and to assume the children would be able to stay with their
aunt or uncle. This is discussed further below with respect to the right of the
applicants to respond to the officer’s concerns.
[42]
If
there was nothing wrong with considering previous travel history as a factor
that does not assist the applicants, on the other hand, it also does not hurt
their application, since they have no negative travel history. Thus, this
factor alone could not have been strong enough to overweigh the strong evidence
to the contrary.
[43]
As
the applicants note, there are similarities between this case and the situation
in Yuan v. Canada (MCI), 2001 FCT 1356. In Yuan, when the Court reviewed
the file in full, and the brief reasons for dismissal, it concluded that the
visa officer had not addressed other relevant factors in determining to dismiss
the application, including such things as the fact the applicant was leaving
behind her husband and child. When the entire file was reviewed, the Court concluded
it was unreasonable for the visa officer to have concluded the person would not
return to her home.
[44]
As
further confirmation, part 9 of the OP-11 gives a list of questions and factors
to assist in determining if the person should be refused or granted a temporary
resident visa. Going through the list of questions and the corresponding
explanatory comments, the applicants have adduced evidence to satisfy the
relevant conditions.
[45]
The
officer also made errors applying the facts of the case to the law. First,
contrary to the assertion of the respondent, the applicants were completely
forthcoming with respect to the existence of their other applications for
permanent residence. They identified both applications for permanent residence
on their application for temporary residence form. The applicants even included
an explanatory letter providing further information as to these applications.
[46]
Legally,
an officer is obligated to consider each application on its own merits. The officer
was not entitled to use the fact that the applicants have an outstanding
application for permanent residence to deny them their temporary resident visas
and this is evident from the plain language of the legislation. Subsection
22(2) of IRPA explicitly precludes denying an application for temporary status
on the basis that there is an outstanding permanent resident application if the
decision maker believes the person will return. Thus, the legislation appears
to demand that a decision-maker determine on the basis of objective evidence
whether the person will return, irrespective of any outstanding permanent
resident applications. Most of the objective evidence here was disregarded for
no valid reason.
[47]
The
jurisprudence also supports the applicants’ position, although there is some
conflicting case law. In the case raised by the respondent, de la Cruz, a
visa officer refused to issue a visitor’s visa partially because the applicant
had a permanent resident application pending. Justice Jerome concluded that:
Pursuant
to ss. 2(1) and 8 of the Act, the onus is on the visitor to show that his entry
to Canada would not be contrary to the Act or
Regulations. This is reinforced by the fact that he will be presumed to be an
immigrant seeking permanent resident status, and this intent must be countered
by evidence of a temporary purpose. In such a situation, the intent of the
applicant is properly subject to examination by visa officers and factors which
may show non-temporary purpose will be taken into consideration. Viewed in this
context, it was not improper for the visa officer to refuse the visitor visas
on the basis of an outstanding application for permanent residence in Canada.
[48]
However,
more recent jurisprudence decided under the current legislation supports the applicants’
position. In Moghaddam v. Canada (M.C.I.), 2004 FC 680, the Court reviewed
a decision to refuse an applicant a student visa on the grounds the visa
officer did not believe that the student would return to her home country. In
making that decision, the visa officer relied on the fact that the applicant
and her family had an outstanding application for permanent residence. The
Court concluded that where an application for permanent residence is not before
the decision-maker, it cannot be relied on in the temporary resident application.
[49]
In
addition, the OP-11 manual that guides officers in decisions on temporary
resident applications discusses the principle of dual intent at paragraph 5.4
and concludes that “the person’s desire to work, study or visit in Canada
before or during the processing of an application for permanent residence may
be legitimate”. Thus, an
intention by a foreign national to become a permanent resident does not
preclude an individual from becoming a temporary resident unless the officer is
satisfied that the foreign national will not leave Canada by the end of the
period authorized by his or her stay. But in order to satisfy himself the officer
must look objectively at the request and all the supporting information; he
should not, as he obviously did here, decide subjectively, and ignore what
favors the applicants.
[50]
For
all of these reasons, the officer’s decision on the evidence available appears
to be patently unreasonable.
The Right of
the Applicants to Respond to the Officer’s Concerns
[51]
There
is no statutory right to an interview: see Ali v. Canada (M.C.I.) (1998),
151 F.T.R. 1 at paragraph 28. However, procedural fairness requires that an
applicant at least be given an opportunity to respond to an officer’s concerns
under certain circumstances. In Ali the Court also held at paragraph 20
that a visa officer should inform the applicant of his concerns, despite the
lack of a statutory right, when the visa officer has obtained extrinsic
evidence. The Court in Ling v. Canada (M.C.I.), 2003 FC 1198 relied on Ali
when it concluded at paragraph 16 that “since the visa officer did not consider
extrinsic information and there is no general obligation on a visa officer to
put his or her concerns to an applicant, the applicant was not entitled to an
interview or an opportunity to respond”.
[52]
When
no extrinsic evidence is relied on, it is unclear when it is necessary to
afford an applicant an interview or a right to respond. However, the
jurisprudence suggests that there will be right to respond under certain
circumstances. In
the context of a Foreign Skilled Worker Class assessment in Hassani v.
Canada (M.C.I.), 2006 FC 1283, the Court reviews the case law and highlights
the uncertainty in the jurisprudence. In some cases, the officer was not
required to put before the applicant any tentative conclusions he might be
drawing from the material. Other cases have concluded that sometimes an
applicant must have an opportunity to respond to concerns even where it arises
out of the evidence tendered by the applicant. However, in Hassani the
Court concludes that there is no obligation on the part of a visa officer to
apprise an applicant of his or her concerns that arise directly from the
requirements of the former Act or Regulations.
[53]
Although
it is difficult in the present instance to fit the findings of the officer into
these categories, since his concerns arose from his belief that the applicants
would not return to Canada on the evidence provided,
as required by the Act. However, other cases have interpreted the right to
respond more broadly. In Yuan at paragraph 12, the Court recognizes
that there is a
requirement that the visa officer provides the applicant with an opportunity to
address a major concern. Similarly, in Wang, the Court concluded at
paragraph 13 that:
“Although
the case law instructs that the duty of fairness owed by a Visa Officer to a
student-visa Applicant is limited, it is my view that the particular
circumstances of this case are such that the Visa Officer ought to have advised
the Applicant about her concerns about the sincerity of his cousin's offer of
support, and his bona fides as a temporary visitor to Canada, and provided an
opportunity to respond. I arrive at this conclusion because the
evidence produced by the Applicant cannot be said to be
weak. Moreover, there is nothing contained in his application which
suggests that he intends to stay in Canada permanently. […]”
[54]
This
is similar to the matter in issue where the evidence provided by the applicants
is very strong. There is nothing in the applicants’ application, other than the
reference to his permanent resident applications, to suggest the applicants
intend to stay in Canada permanently.
[55]
Finally,
in Bonilla v. Canada (M.C.I.), 2007 FC 20, the Court concluded:
“This
is not a case in which the applicant's application itself was incomplete, but a
situation where the officer subjectively formed an opinion that the applicant
would not return to Colombia following the completion of her studies.
In my view, the officer in this situation should have allowed the applicant an
opportunity to respond to his concerns. The applicant had no way of knowing
that the visa officer would act upon his view that those in their
"formative years" may not study in Canada
for a four year period, since they would be unlikely to leave the country. The
visa officer's failure to give the applicant an opportunity to respond to his
concerns, on the facts of this case, amounted to a breach of the rules of
natural justice.”
[56]
In
the present case, the applicants had no way of knowing that the officer would
rely on several factors, including the fact that he believed they would leave
their children behind permanently because the children have an aunt and uncle
in Nigeria.
[57]
The
OP-11 manual at part 14 also sets out a different test. “A person
should never be requested to attend an interview if it is evident through a
review of the paper application that the applicant is ineligible and additional
information would not alter a refusal decision.” Here, additional information
might have altered the refusal decision, particularly with respect to the care
of the Applicants’ children left behind during their stay in Canada.
Adequacy of
Reasons
[58]
The
standard for sufficiency of reasons was outlined in Mendoza v. Canada
(M.C.I.), 2004 FC 687 at paragraph 4, relying on the decision of the
Federal Court of Appeal in Mehterian v. Canada (M.E.I.), [1992] F.C.J.
No. 545 (F.C.A.)(QL). The Court stated that reasons are required to be
sufficiently clear, precise and intelligible so that a claimant may know why
his or her claim has failed and be able to decide whether to seek leave for
judicial review. Furthermore, on the authority of Hussain v. Canada
(Minister of Employment and Immigration) (1994), 174 N.R. 76 at paragraph 3
(F.C.A.), another decision of the Federal Court of Appeal in the immigration
context, if the reasons for decision given by the Board are so inadequate that
they fail to provide a clear basis for the reasoning behind its decision, the
decision will be quashed. Finally, in Chen v. Canada (Minister of
Citizenship and Immigration), 2001 FCT 500, it was held that a panel must
clearly express itself on primary issues arising from a claim and that a
failure to do so will result in its decision being set aside.
[59]
With
respect specifically to a decision of a visa officer, the respondent relies on Bhandal.
In that case, and in Bonilla v. Canada (M.C.I.), (2001), 12
Imm. L.R. (3d) 83, it was held that a letter and CAIPS notes were sufficient
reasons. However, there was an interview involved in Bhandal and a
hearing in Bonilla. Neither of these cases involved temporary resident
visas.
[60]
Clearly
that CAIPS notes can constitute sufficient reasons, but only if they provide
sufficient details for the person to know the reason for which the application
was denied. On the basis of the tests outlined above, it would appear that the officer’s
CAIPS notes in this case do not meet the necessary requirements. Although the
notes state the basis for the decision, they do not provide in sufficient
detail an analysis of why the officer held that the applicants would not return
to Nigeria at the end
of their authorized stay. This is further emphasized by the fact the officer
thought it necessary to explain in more detail in his Affidavit to the Court
why he decided the way he did. This reasoning should have been provided at the
outset.
[61]
The
applicants did not request further reasons from the officer prior to commencing
their application for judicial review. In the application for judicial review,
the applicants noted they had not received written reasons from the officer.
This resulted in a request from the Court Registry for reasons pursuant to Rule
9 of the Immigration and Refugee Protection Rules. A request for reasons
under Rule 9 is simply a rule that forces an officer to produce any reasons
made. If there are no reasons for the decision, the officer is asked to provide
written notice as such. It is not a requirement for reasons to be created. This
request post-dated the institution of judicial review based solely on a very
vague and fluid letter to the applicants that did not explain why they did not
meet the requirements of Regulation 179 that they would leave Canada at the end
of the temporary period if authorized to stay.
CONCLUSION
[62]
In
the end result the Court finds the visa officer’s decision patently
unreasonable. Therefore, this application for judicial review will be allowed
and this matter will be referred back to the respondent for redetermination by
a different visa officer. In this case, the applicants are entitled to an
opportunity, either in person, in writing or by telephone, to respond to the
major concern identified herein. Neither counsel recommended certification of a
question. Accordingly, no question will be certified.
JUDGMENT
This application for judicial
review is allowed and this matter is referred back to the respondent for
redetermination by a different visa officer.
"Maurice
E. Lagacé"
FEDERAL COURT
SOLICITORS OF RECORD
DOCKET: IMM-5524-06
STYLE OF CAUSE: SEGUN
OGUNFOWORA & LAIDE OGUNFOWORA v. THE MINISTER OF CITIZENSHIP AND
IMMIGRATION
PLACE OF
HEARING: Montreal, Quebec
DATE OF
HEARING: April
25, 2007
REASONS FOR JUDGMENT: The
Honourable Maurice E. Lagacé, Deputy Judge
DATED: May
3, 2007
APPEARANCES:
Idorenyin E.
Amana
|
FOR THE APPLICANTS
|
Gretchen
Timmins
|
FOR THE RESPONDENT
|
SOLICITORS
OF RECORD:
Idorenyin E.
Amana
2015 Drummond
Street, Suite 649
Montreal,
Quebec H3G 1W7
|
FOR THE APPLICANTS
|
John H. Sims,
Q.C.
Deputy
Attorney General of Canada
|
FOR THE RESPONDENT
|