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HCAL 911/2024
[2024] HKCFI 2280
IN THE HIGH COURT OF THE
HONG KONG SPECIAL ADMINISTRATIVE REGION
COURT OF FIRST INSTANCE
CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No. 911 of 2024
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BETWEEN
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Md Masud Rana |
Applicant |
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and |
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Director of Immigration |
Putative |
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Respondent |
Application for Leave to Apply for Judicial Review
NOTIFICATION of the Judge’s decision (Ord. 53 r. 3)
Following;
Order by Deputy High Court Judge K.W. Lung:
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 6 May 2024 (the “Director’s Decision”) refusing his subsequent claim of HCAL 1182 of 2018 (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 him since there is evidence to show that if unrestricted, the applicant may take out further proceedings to assert his non-refoulement claim on the same facts of the case, thereby abusing the legal process.
3. The applicant was absent at the hearing on 14 August 2024 without prior notice to the Court. I shall deal with his application on paper.
The procedural history
4. The applicant is a national of Bangladesh. He sneaked into Hong Kong illegally by boat in the end of 2012 and was arrested by police. He lodged a non-refoulement claim with the Director by written significations respectively dated 7 February 2013 and 4 March 2013.
5. His non-refoulement claim in his previous claim is on all applicable risks[1] for the reasons that if refouled, he will be harmed or killed by the Bangladesh Nationalist Party (“BNP”) members and the Awami League (“AL”) members as he refused to join their parties. He also alleged that he would be arrested by the Bangladeshi Police because of a murder case and a fraud case.
6. The Director rejected his application for the reason that his claim was not substantiated. His appeal to the Torture Claims Appeal Board/Non-refoulement Claims Petition Office (“the Board”) was dismissed by the Board. The Board did not accept that he would be harmed by the BNP or the AL members. It found that the alleged fraud case was private monetary disputes unrelated to the AL; that state protection would be available to him and internal relocation was a viable option.
7. The applicant appealed to the Board. It considered the merits of the applicant’s case and agreed with the Director that the dispute was a private monetary dispute; that state protection and internal relocation were available and viable option to him. It therefore dismissed his appeal.
8. He applied to the Court of the First Instance for leave for judicial review of the Board’s decision. However, he was absent on two occasions before the Court and his application was dismissed for want of prosecution. The applicant withdrew his application and was repatriated on 12 July 2019. The Court of the First Instance set aside the Order dismissing his application for want of prosecution. It then considered the merits of the applicant’s case and dismissed his application because it has no merit.
9. On 8 January 2024, the applicant was arrested by police and he was referred to the Immigration Department. By written signification dated 25 January 2024, the applicant applied for subsequent claim.
10. By the Director’s Decision, the Director refused his application.
The subsequent claim application
11. Under section 37ZO of the Ordinance, he 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 realist prospect of success.
12. Through his duty lawyer, he has submitted additional materials in support of his application to the immigration officer.
13. The immigration officer assessed his application on the available information and found that his allegation that he relied upon the same reasons in his previous claim in support of his subsequent claim application.
14. The immigration officer was not satisfied that there had been a change of circumstances since his previous claim was finally determined and such change, if any, when taken together with the previous claim, would give the subsequent claim a realistic prospect of success. The Director therefore rejected his application for subsequent claim.
The application for leave to apply for judicial review application
15. The applicant has filed Form 86 on 7 June 2024 to apply for leave for judicial review of the Director’s Decision.
16. In the affirmation in support of his application, the applicant did not raise any specific ground to challenge the Director’s Decision.
Discussion
17. 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).
18. The Court will bear in mind that the Director’s Decision should be examined with rigorous examination and anxious scrutiny.
19. The applicant has raised no valid ground to challenge the Director’s Decision.
20. There is no reasonable prospect of success in his intended application for leave for judicial review of the Director’s Decision.
21. I dismiss his application for leave to apply for judicial review of the Director’s Decision.
The RPO
22. The Director’s findings show that the applicant is attempting to re-litigate the facts in support of his 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 him. 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.
23. 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 Direcctor 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.
24. 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 his intention is clearly an abuse of the process. The application should be viewed together with the procedural history of the case.
25. For this reason, the Court has called upon the applicant to appear before it to show cause why RPO should not be made against him. Since the applicant was absent at the hearing, I shall treat it as his abandonment of his right to make submissions on the RPO.
26. I am therefore satisfied that, if not restrained, it is likely that the applicant would proceed with this application and other proceedings 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 the Deputy High Court 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 Court.
(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
27. The applicant’s application is dismissed.
28. RPO in terms of paragraph 26 be made against the applicant.
Dated the 12th day of September 2024
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(M.O. WONG)(Ms)
for Registrar, High Court
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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
Notes for the Applicant:
If leave has been granted, the Applicant or the Applicant’s solicitors must:
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a) serve on the respondent and such interested parties as may be directed by the Court the order granting leave and any directions given within 14 days after the leave was granted (Order 53, rule 4A);
b) issue the originating summons within 14 days after the grant of leave and serve it in accordance with Order 53, rule 5; and
c) supply to every other party copies of every affidavit which the Applicant proposes to use at the hearing, including the affidavit in support of the application for leave (Order 53, rule 6(5)).
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Sent to the Applicant
on 12/9/2024
Md Masud Rana
Applicant’s ref. no:
Nil |
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Sent to the Putative Respondent / the Putative Respondent’s solicitors / such Putative Interested Parties as may be directed by the Court / the Putative Interested Parties’ solicitors on 12/9/2024
Director of Immigration
Putative Respondent’s ref. no.:
L/M (30152) in ImmD RA 7/37/C (formerly RBCZ/164/13)
Department of Justice,
Senior Assistant Law Officer
(Civil Law)
(Civil Litigation Unit 2) |
Form CALL-1
[1] All applicable risks are:
a. risk of torture under Part VIIC of the Immigration Ordinance, Cap. 115, (“the Ordinance”) (“Torture risk”);
b. risk under Article 2 of Section 8 of the Hong Kong Bill of Rights Ordinance, Cap. 383 (Risk of violation of the right to life) (“BOR 2 risk”);
c. risk of torture or cruel, inhuman or degrading treatment or punishment (“CIDTP”) under Article 3 of Section 8 of the HKBOR (“BOR 3 risk”); and
d. risk by reference to the non-refoulement principle under Article 33 of the 1951 Convention relating to the Status of Refugees and its 1967 Protocol (“Refugee Convention”) (“Persecution risk”)
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