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HCAL 3308/2019
[2025] HKCFI 3649
IN THE HIGH COURT OF THE
HONG KONG SPECIAL ADMINISTRATIVE REGION
COURT OF FIRST INSTANCE
CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No. 3308 of 2019
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BETWEEN
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Ikram Muhammad |
Applicant |
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and |
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Torture Claims Appeal Board/ |
Putative |
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Non-refoulement Claims Petition Office |
Respondent |
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and |
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Director of Immigration |
Putative |
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Interested Party |
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:
Leave to apply for Judicial Review be refused.
Observations for the Applicant:
THE APPLICATION
1. The applicant applies for leave to apply for judicial review of the Decision dated 25 October 2019 of the Torture Claims Appeal Board (“the Board’s Decision”), dismissing the appeal against the Director’s Decision as described below.
2. The applicant asked for a hearing. He appeared before the Court on 14 July 2025.
3. Pursuant to Order 20, rule 8 and Order 53, rule 3(6) of the Rules of the High Court, Form 86 is amended to the effect that the proposed respondent is the Board and the Director of Immigration is the interested party.
The applicant
4. The applicant is a national of Pakistan. On 18 February 2009, the applicant was arrested by police and he claimed that he entered Hong Kong illegally in September 2008.
5. The applicant lodged his torture claim on 28 May 2013, which was refused by the Director on 12 September 2013 and no appeal was made against that decision. In due course, the applicant lodged his non-refoulement claim.
6. The applicant’s claim was based on his fear of being harmed or killed by his two brothers and cousins (“Brothers and Cousins”) over a land dispute.
7. According to the applicant, there was a land dispute with his Brothers and Cousins which led to 4 assaults within a year from his Brothers and Cousins. However, the applicant claimed that since his home village was located in a remote area, he was not admitted to any hospital for medical treatment. Subsequently, he received threats from his Brothers and Cousins and the applicant eventually fled. Details of his claim are set out at paragraph 9 of the Notice of Decision dated 28 May 2018 by the Director (the “Director’s Decision”).
The Director’s Decision
8. The Director had dismissed the applicant’s torture claim. The Director considered the applicant’s claim in relation to the following risks:
a. risk of violation of the right to life under Article 2 of Section 8 of the Hong Kong Bill of Rights Ordinance, Cap. 383 (“HKBOR”) (“BOR 2 risk”);
b. 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
c. risk of persecution 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”).
9. By way of the Director’s Decision, the Director assessed the applicant’s claim and dismissed his claim. In summary, the Director found that: there were no substantial grounds to believe that there would be real or substantial risk, the harm suffered did not attain a minimum level of severity, the fear was not real, foreseeable and imminent as asserted by the applicant, and the delay in seeking protection was inconsistent with conduct of a person who genuinely feared for his life [15-20]; state protection was available [20-25]; and internal relocation alternatives were available and reasonable [26-28].
The Board’s Decision
10. The applicant appealed the Director’s Decision to the Board. On 27 September 2019, the Board conducted an oral hearing for his appeal. At the hearing, the applicant responded to the Board’s questions, which clarified the claims and was extensively documented in the Board’s Decision [40-88].
11. Having considered the evidence, the Board considered the facts and on the totality of the evidence, found that the applicant was not a witness of truth and that he fabricated his claims in relation to the land dispute [92, 97]. The Board further considered whether there were medical reasons as to why the applicant’s memory was so poor, but the applicant provided no particular reason [94]. The Board concluded that the applicant’s claim failed under all applicable grounds other than Torture risk. It therefore dismissed his appeal and confirmed the Director’s Decision. See hyperlink https://legalref.judiciary.hk/doc/judg/html/vetted/other/en/2019/HCAL003308_2019_files/the_Board's_Decision.pdf.
Application for leave to apply for judicial review of the Board’s Decision
12. The applicant has filed Form 86 dated 6 November 2019 for leave to apply for judicial review of the Board’s Decision.
13. In his affirmation in support of his application, the applicant did not raise any specific reason to challenge the Board’s Decision.
DISCUSSION
14. The role of this Court is supervisory, meaning that it ensures that the Board complied with the public law requirements in coming to the Board’s Decision on the applicant’s appeal. The Court will not usurp the fact-finding power vested in the Director and the Board. 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).
15. The Court will bear in mind that the Board’s Decision should be examined with rigorous examination and anxious scrutiny. Before me, the applicant said that he could not say that the Board’s Decision was wrong.
16. In Re: Kartini [2019] HKCA 1022, 9 September 2019, the Court of Appeal held:
“13. (1) … …Assessment of evidence and COI materials and risk of harm, state protection and viability of internal relocation are primarily within the province of the Board (and the Director). The court will not intervene by way of judicial review unless there are errors of law or procedural unfairness or irrationality in the decision of the Board.”
17. The applicant has raised no valid ground to challenge the Board’s findings.
18. The applicant fails to show that he has any realistic prospect of success in his proposed judicial review of the Board’s Decision.
DISPOSITION
19. I refuse to grant leave to the applicant to apply for judicial review of the Board’s Decision. Accordingly, I dismiss his application.
Dated the 28th day of August 2025
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(Klein Tse)
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 28/8/2025
Ikram Muhammad
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 28/8/2025
Torture Claims Appeal Board/Non-refoulement Claims Petition Office
Putative Respondent’s ref. no.:
USM 11896/18/6/75/P2314
Director of Immigration
Putative Interested Party’s ref. no.:
QA T/C 1372/18 (formerly RBCZ 2001194/14)[T3S130]
QA T/C 1130/09 (formerly RBCZ-493-09)
Department of Justice,
Senior Assistant Law Officer
(Civil Law)
(Civil Litigation Unit 2) |
Form CALL-1
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