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HCAL 60/2023
[2023] HKCFI 635
IN THE HIGH COURT OF THE
HONG KONG SPECIAL ADMINISTRATIVE REGION
COURT OF FIRST INSTANCE
CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No. 60 of 2022
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BETWEEN
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Muhammad Asghar Shaikh |
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 28 June 2022 (the “Director’s Decision”) refusing his subsequent claim of HCAL 2872 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 appeared before the Court on 13 February 2023.
The procedural history
4. The applicant is a Pakistani national. He came to Hong Kong illegally on 24 October 2006 and was arrested. He lodged his non-refoulement claim on 5 July 2007.
5. The applicant had made a torture claim under the Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment and his application was rejected. He had appealed to the Chief Executive and his appeal was also rejected. Therefore, the Director considered his non-refoulement claim on BOR 2 risk, BOR 3 risk and Persecution risk.
6. By Notice of Decision dated 31 August 2015 and Notice of Further Decision dated 17 May 2017 (“the Director’s Decisions”), the Director rejected his claim for the reason that they were not substantiated.
7. The applicant appealed the Director’s Decisions to the Torture Claims Appeal Board. Having considered the applicant’s reasons, the Board dismissed his appeal by the Board’s Decision dated 18 October 2018 (the “Board’s Decision”).
8. His application for leave for judicial review of the Board’s Decision was dismissed by the Court of the First Instance by its Order dated 6 August 2020 (“the Court’s Order”).
9. His appeal against the Court’s Order was dismissed by the Court of Appeal on 15 March 2021.
10. His Notice of Motion for leave to appeal to the Court of Final Appeal was dismissed by the Court of Appeal on 13 July 2021.
11. His application for leave to appeal to the Court of Final Appeal was dismissed by the Court of Final Appeal on 11 March 2022.
12. He applied to the Director for making a subsequent claim for non-refoulement protection by letter dated 28 March 2022.
13. By the Director’s Decision, the Director refused his application.
The subsequent claim application
14. The applicant’s previous claim is on the basis that, if refouled, he would be harmed or killed by the members of the Pakistan Peoples’ Party (“PPP”). The incidents arose out of a cricket match between two teams where one of the players, who was a member of PPP was injured by him and he died subsequently.
15. The Director found that his previous claim was not substantiated.
16. The applicant appealed to the Board. The Board considered the applicant’s evidence and found that the applicant’s evidence was unreliable; that he did not suffer severe injury or serious harm; and that internal relocation was available to him.
17. 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 realistic prospect of success.
18. In support of his subsequent claim, the applicant had submitted his statement and some documents. In gist, he fears that he will be harmed or even killed by the PPP members if he returns to Pakistan. Some PPP members are still trying to locate him. They had verbally threatened that they will kill him if they locate him. This issue had been considered by the Board in his previous claim and was rejected by the Board. The Director does not believe that 17 years after the cricket match, the PPP members are still having interest in him. The incidents that his family members were harassed by the PPP members are hearsay information. That they fear that the PPP members have political influence so they fear to report to police is only the applicant’s speculation. The PPP’s political power had been considered by the Board in his previous claim. The documents submitted show that the applicant has two children in Hong Kong and they are receiving education here. To say that the children will be deprived their right of education if refouled is far-fetched. Furthermore, this issue had been considered by the Board in the previous claim.
19. The Director therefore found that the applicant relies upon the facts, which when considered together with his previous claim, will not give him a realistic chance of success in his subsequent claim. The Director dismissed the applicant’s subsequent claim application.
The application for leave to apply for judicial review
20. The applicant has filed an affirmation in support of his application. In his affirmation, he said that he has a life threat in Pakistan. He has 2 daughters in Hong Kong receiving education here.
DISCUSSION
21. 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).
22. The Court will bear in mind that the Director’s Decision should be examined with rigorous examination and anxious scrutiny. Before me, the applicant said he wants to stay in Hong Kong because his life in Pakistan is in danger.
23. 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.”
24. The applicant has raised no valid ground to challenge the Director’s Decision. There is no realistic prospect of success in his subsequent claim and I dismiss his application.
The RPO
25. 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.
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 his 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 him. Upon my enquiry of what comments he had on the intended RPO, he said he wants to stay here. His children were born here and he has no place to go. He needs time.
29. I am 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 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 his 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.
Dated the 9th day of March 2023.
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(C.S. FUNG (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 9 March 2023
Muhammad Asghar Shaikh
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 9 March 2023
Director of Immigration
Putative Respondent’s ref. no.:
L/M (25555) in ImmD RA 7/37/C
(formerly RBCZ/658/07, RBCZ/2000157/14 & RBCZ/9001264/17)
Department of Justice,
Senior Assistant Law Officer
(Civil Law)
(Civil Litigation Unit 2) |
Form CALL-1
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