KASIRAH v. DIRECTOR OF IMMIGRATION

HCAL 296/2022

[2022] HKCFI 1941

IN THE HIGH COURT OF THE

HONG KONG SPECIAL ADMINISTRATIVE REGION

COURT OF FIRST INSTANCE

CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No. 296 of 2022

Application for Leave to Apply for Judicial Review

NOTIFICATION of the Judge’s decision (Ord. 53 r. 3)

Following:

	consideration of documents only;          or
	consideration of documents and oral submissions by the Applicant in open court;

1.  Leave to apply for Judicial Review be refused; and

2.  A Restricted Proceedings Order (RPO) be made against the applicant.

Observations for the Applicant:

THE APPLICATION

1.  This is the applicant’s application for leave to apply for judicial review of the decision of the Director of Immigration dated 31 December 2021 (the “Director’s Decision”) refusing her subsequent claim of HCAL 599 of 2017 (the “previous claim”) under section 37ZO of the Immigration Ordinance, Cap. 115 (the “Ordinance”).

2.  The Court, upon its own motion, has called upon the applicant to appear before it to show cause why the Court should not make a restricted proceedings order (“RPO”) against her since there is evidence to show that if unrestricted, the applicant may take out further proceedings to assert her non-refoulement claim on the same facts of the case, thereby abusing the legal process.

The procedural history

3.  The applicant is an illegal immigrant from Indonesia by overstaying. She raised non-refoulement claim with the Immigration Department by written representation dated 16 June 2016 on the grounds of Torture risk; BOR 2 risk, Right to Life under Article 2 of the Bill of Rights Ordinance; BOR 3 risk under Article 3 of the Bill of Rights Ordinance and Persecution risk under the Refugee Convention.

4.  Her claim was rejected by the Director by a Notice of Decision dated 31 October 2016.

5.  She appealed to the Torture Claims Appeal Board (the “Board”). By its Decision dated 4 August 2017 (the “Board’s Decision”), the Board dismissed her appeal.

6.  She applied for leave for judicial review of the Board’s Decision and the application was dismissed by the Court by its Order dated 25 June 2018 (the “Court’s Order”).

7.  Her application for extension of time to appeal against the Court’s Order to the Court of Appeal was dismissed by the Court of First Instance on 4 October 2019.

8.  Her application for appeal out of time to the Court of Appeal was dismissed by the Court of Appeal on 18 June 2020.

9.  Her notice of motion for leave to appeal the Court of Appeal’s decision to the Court of Final Appeal was dismissed by the Court of Appeal on 25 September 2020.

10.  Her appeal to the Court of Final Appeal against the Court of Appeal’s decision was dismissed on 28 September 2021.

11.  She applied to the Director for making a subsequent claim for non-refoulement protection under the unified screening mechanism by letter of 15 October 2021.

12.  By the Director’s Decision, the Director refused her application.

The subsequent claim application

13.  The factual basis of her previous claim is that if refouled, she will be harmed or killed by her husband due to domestic violence.

14.  The Director found that her claim was not substantiated. He found that the ill-treatment from her husband did not attain pain or suffering under BOR3 risk; that the domestic violence did not involve the state and state protection would be available to her; that from her evidence, she did not come to Hong Kong for protection from domestic violence and that internal relocation was an option open to her.

15.  The Board affirmed the Director’s Decision. It further found that her evidence was not believable.

16.  Under section 37ZO of the Ordinance, she has to satisfy the immigration officer that there has been a significant change of circumstances since the previous claim was finally determined and such change of circumstances, when taken together with the material previously submitted, would give the subsequent claim a realistic prospect of success.

17.  In support of her subsequent claim, the applicant said that the following new circumstances would be significant for consideration of her subsequent claim. She has a boyfriend in Hong Kong. She has also married him in Hong Kong in 2019. Her husband in Indonesia threatened to kill her.

18.  The immigration officer had considered the above circumstances and took the view that they did not constitute significant change of circumstances as her enemy is still her husband. The issues had been considered by the Director and the Board in her previous claim. According to the applicant, she had lost contact with her husband since she had moved away from home in 2006. Her husband had only managed to contact her over the phone as late as 2021. The Director believed that her husband only meant to air his anger against her conduct that caused dishonor to him and both families. Her fear is not imminent but merely speculation that she would be harmed or killed after her return to Indonesia, if refouled. State protection is available to her and internal relocation is also an option open to her.

The application for leave to apply for judicial review application

19.  The applicant has filed an affirmation in support of her application and enclosed a copy of the Director’s Decision without setting out any specific ground.

20.  The role of this Court is supervisory, meaning that it ensures that the Director complied with the public law requirements in coming to his Decision. The Court will not usurp his fact finding power. See TK v Michael C Jenkins Esq and Director of Immigration [2013] 1 HKC 526, §40 and Nupur Mst v Director of Immigration [2018] HKCA 524 §14 (1).

21.  The Court will bear in mind that the Director’s Decision should be examined with rigorous examination and anxious scrutiny. Before me, the applicant asked for permission to stay in Hong Kong for a few years more.

22.  The applicant has therefore raised no valid ground to challenge the Director’s Decision.

23.  The Court does not find any error of law or procedural unfairness in the Director’s Decision. The Director’s finding of the facts is not in any respect open to challenge as Wednesbury unreasonable or irrational.

24.  Since there is no realistic chance of success in her intended judicial review of the Director’s Decision, I dismiss her application.

The RPO

25.  The Director’s findings show that the applicant is attempting to re-litigate the facts in support of her previous claim for a subsequent claim, which will amount to an abuse of the process. The Court has the inherent jurisdiction to prevent the applicant from abusing its process by making a RPO and the extended order against her. See paragraphs 7 & 8 of the judgment of the Court of Final Appeal in Ng Yat Chi v Max Share Limited and China Resources (Holdings) Company Limited (2005) 8 HKCFAR 1.

26.  RPO is appropriate for the present case. See The Secretary for Justice v Yuen Oi Yee Lisa, alias Lisa Yuen, Lisa Lee and another [2006] 1 HKLRD 679, Re Wahyuni v Director of Immigration [2021] HKCFI 1991, by Hon. Chow JA (sitting as an additional judge of the Court of First Instance), 6 July 2021, § 9 and Re Uddin Borhan v Director of Immigration [2021] HKCFI 2129, § 25.

27.  In my view, the fact that the applicant is entitled to apply for subsequent claim under section 37ZO of the Ordinance is irrelevant so far as her intention is clearly an abuse of the process. The application should be viewed together with the procedural history of the case.

28.  For this reason, the Court has called upon the applicant to appear before it to show cause why RPO should not be made against her. The applicant has been explained the proposed restricted proceedings order before this hearing. Before me, she said she was not ready to go back because her life was still in danger.

29.  I am satisfied that, if not restrained, it is likely that the applicant would proceed with this application and other proceedings on the same facts of the previous claim for the sole purpose of remaining in Hong Kong only. I shall therefore make the RPO in terms below:

(1)  The Applicant be prohibited from commencing any fresh proceedings by whatever originating process, or continuing any existing legal proceedings, relating to any non-refoulement claim of the Applicant in the High Court, and any appeal, including this Order, without leave of the Court of First Instance.

(2)  All applications for leave under paragraph (1) shall be made to Deputy Judge K. W. Lung or in his absence, the Judge in charge of the Constitutional and Administrative Law List or such other Judge as may be designated by the Chief Judge of the High Court to hear cases in the Constitutional and Administrative Law List.

(3)  At least 7 days before filing any application for leave under paragraph (1), the Applicant do notify in writing each intended defendant or respondent of her intention to make such application, enclosing a copy of the draft document by which the fresh proceedings are intended to be commenced, and if any response is received by the Applicant from any such intended defendant or respondent, that the Applicant do file a copy of each such response together with the said application for leave.

(4)  Any intended defendant or respondent having notice of such intended proceedings be entitled but under no obligation to place before the Court written representations regarding the same.

(5)  All applications made pursuant to this order and all ancillary matters be dealt with by the Court on paper and without any oral hearing unless the Court should otherwise direct.

(6)  If the Applicant should issue fresh proceedings falling or which may fall within the terms of paragraph (1) without first seeking the Court’s leave, and if such fact should come to the notice of the Registrar of the High Court or any Master or Judge, such fresh proceedings be referred to the Court for a decision as to whether they should be permitted to continue or should be dismissed.

(7)  Notice of each decision by this Court or the designated Judge made pursuant to this order be given in writing to the Applicant and to each intended defendant or respondent named in the fresh proceedings.

(8)  Whether or not any fresh proceedings are brought to the notice of the Court, if a defendant or respondent is served with such proceedings without the relevant documents being accompanied by either an order granting leave to commence such proceedings or a direction that leave to commence such proceedings is not required, such defendant or respondent be entitled to make no response to such service pending notification of the court’s decision in relation to those proceedings; and that time for acknowledging service or for otherwise responding to such proceedings be deemed extended accordingly.

(9)  No more than one leave application under paragraph (1) may be made by the Applicant within any period of 3 months.

(10)  No appeal shall lie from a decision of the Judge granting or refusing leave within this Order, unless leave to appeal has been granted by the Judge.

(11)  This order shall cease to have effect at the end of 5 years from the date of this order.

(12)  A copy of this Order shall be sent to the Registrar of the High Court.

DISPOSITION

30.  The applicant’s application is dismissed.

31.  RPO in terms of paragraph 29 be made against the applicant.

Where leave to apply has been granted, Applicants and their legal advisers are reminded of their obligation to reconsider the merits of their application in the light of the Respondent’s evidence

Form CALL-1