### F I LE D U. S . COURT OF AP PE ALS E LEVE NTH CI RCUI T Januar y 5, 2006 T HOM AS K. KAHN C L E RK [ DO NO T P UB L I S H] I N THE UN I TE D STATE S C OU RT OF APPE ALS F O R T H E E L E V E N T H C IR C U IT

________________________ N o. 05- 12938 N on -A rgum entC al endar

________________________ A ge nc y N o. A 95- 897- 266 J E S U S A N T O N I O L L A N O S S O T O , P e titio n e r , v ersu s U .S . A T T O RN E Y G E N E R A L , R e s p o n d e n t.

________________________ P e t i t i on f orR e vi e w of

aD e c i s i on of

the B o a r d o f I m m ig r a tio n A p p e a ls

_________________________ ( Jan u ar y 5, 2006) B efo re T JO F L A T , D U B IN A an d C A RN E S , C i rcu i tJu d g es. P E R C U R I A M: J e s u s A n to n io L la n o s S o to ( “L la n o s ” ) , an a tiv e a n d c itiz e n o f C o lo m b iaLlano s So to’ s wif e , Paula Andre a Es trada Go ye s, wa s a ri der o n his a

pp lic atio n f

or a sylum , 1 withholding of removal, and CAT relief. She is not named a s a par ty on the petition f

or review, but Llano s So to’ s b ri e f doe s mentio n “his wif e .” Appe lla

nt’ s Br . at 10. Th eg ov ernment alsore fersto them c oll e c tiv e ly

a s “petition ers .”Appe lle e ’sB r. at 1. B e c a us eGo ye s’ c laimsareentire ly dependent on L lanos’, our discussion of and ruling on Llanos’ claims also apply to Goyes’ petition. 2 pr oc e e di ng pr o s e , pe t i t i ons f orr e vi e w of

the f i na l or de rof

the B oa r d of I m m i gr a t i on A ppe a l s , a f f i rm i ng w i thoutopi ni on the i m m i gr a t i on j udge ’ s de ni a l of as yl um and w i thh ol di ng of re m ov al un der the Im m i grat i on and N atural i za t i on A ct ( “ I N A ” ) , 8 U . S . C . §§ 1158, 1231, a nd de ni a l of r e l i e f unde rthe U ni t e d N a t i ons C onve nt i on A ga i ns tT ortur e ( “ C A T ” ) , 8 C . F . R . § 208. 16( c ) . W e de ny the 1 pe t i t i on. I. L l anos cont ends thatthe IJerre d i n d enyi ng hi s pet i t i on and i n m aki ng an a dve r s e c r e di bi l i ty de t e rm i na t i on. H e a r gue s tha the m e thi s bur de n of pr oof f or a s y lu m , f o rw ith h o ld in g o f

r e m o v a l, a n d f

o rC A T r e lie f

b y s h o w in g th a t a para m i l i t ary group , the U ni t ed A ut o-D ef ense F orce s of C ol um bi a ( “ A U C ”) , p e r s e c u t e d h i m b a s e d o n h i s i m p u t e d p o l i t i c a l o p i n i o n . He a s s e r t s th a tth e AU C bel i eved thathe supp ort ed ar eagu er i l l as because of hi s m em bers hi p i n a grou p that a s s i s t e d pe a s a ntf

a rm e r s a nd be c aus e he a s s i s t e d af r i e nd w ho w a s runni ng f or po l i t i ca l offi ce i n P al m i ra . H e a l l eges thatthe A U C threa t ened hi s l i fe on se vera l o c c a s io n s .3

L l a nos t e s t i f

i e d tha thi s f

i r s te nc ount e rw i th the A U C w a s on M a r c h 10, 2 0 0 0 f o llo w in g am e e tin g ab o u t ap r o je c t in v o lv in g f

is h ta n k s . F o u rm e n in f a t i g u e s a c c o s t e d h i m a n d a s k e d f o ri d e n t i f i c a t i o n . T h e s e m e n r e q u e s t e d two m illio n C o lu m b ia n p e s o s f r o m h im a n d to ld h im th e y w o u ld c o n ta c t h im la te r . L l anos di d n otno t i fythe po l i ce because he w as af ra i d thatthe A U C had i nfi l tra t ed th e g o v e rn m e n t f

o r c e s . I n r e s p o n s e to th is e n c o u n te r , L la n o s e n d e d h is in v o lv e m e n t in th e f

is h ta n kp r o

je c t, a n d o n J u n e 3 0 , 2 0 0 0 , h e s o ld th e b ic y c le b u s in e s s th a t h e o w n e d . L l anos tra vel ed t o the U ni t ed S t at es se vera l t i m es af t erthi s i ni t i al encoun t er w i th the A U C bu tdi d n otse ek as yl um because he di d n otw antt o l ea ve hi s c ou ntry a tth a tt i m e . L l a n o s a l l e g e s two s u b s e q u e n te n c o u n t e r s wi th th e AU C . On F e brua ry 25, 2002, agr oup of m e n gotoutof

ac ara nd t ol d hi m tha tthe y w oul d be i n t ouc h w i th hi m l a t e r . T he n on A pr i l 7, 2002, agr oup of m e n f or c e d hi m i nt o a c a r , bl i ndf

ol de d hi m , a nd m a de hi m ge ton the f l oorof the c a r . T he y dr ove f

or ab o u t a n h o u rin to w h a t h e p e r c e iv e d to b e am o u n ta in o u s r e g io n . W he n the y a rr i ve d a tthe i rde s t i na t i on, s om e one i de nt i f i e d hi m s e l f

a s the “C h ie f o f th e P a c if

ic Z o n e ” a n d to o kL la n o s ’ w a lle t a n d I D c a r d . T h e C h ie f to ld hi m thatthey knew abou thi s i nv ol vem entw i th the peas antfarm er s and thatthey be l i e ve d he w a s l i nke d t o the gue r i l l a s . H e w a s a s ke d t o pa r t i c i pa t e i n the4

pa r a m i l i t a ry gr oup a nd the n w a s t a ke n ba c k t o P a l m i r aa nd w a s r e l e a s e d w i thout be i ng phy s i c a l l y ha rm e d. L la n o s to ld af

r ie n d , w h o w a s ad is tr ic t a tto rn e y , ab o u t th e in c id e n t. T h is f r ie n d to ld L la n o s th a t h e c o u ld n o t o f f e ra n y p r o te c tio n a n d th a t L la n o s s h o u ld m ak e a fo rm al d en o u n cem en tw i th th e m i l i t ary d i stri ct . L l an o s d i d n o td o so b e c au s e h e w a s a f

r a id th a t p e o p le in th e A U C w e r e lin k e d to th e a rm e d f o r c e s . H is d is tr ic t a tto rn e y f

r ie n d d id n o t p r o v id e h im w ith a n y d o c u m e n ta tio n c o n c e rn in g th is in c id e n t. L la n o s d e c id e d to le a v e C o lu m b ia . H e c a m e to th e U n ite d S ta te s o n A p r il 1 2 , 2 0 0 2 a s an o n - im m ig r a n t v is ito rf o rb u s in e s s a n d w a s au th o r iz e d to s ta y u n til J u ly 1 1 , 2 0 0 2 , b u t h e s ta y e d b e y o n d th a t d a te . H e d id n o t g o to th e e m b a s s y to s e e ka s y lu m a n d d id n o t ap p ly f o ra s y lu m u n til A u g u s t 2 0 0 2 . H e d id n o t s e ll h is h o u s e in C o lu m b iab e c au s e h is m o th e rw a s s till liv in g th e r e . N e ith e rh e n o rh is b r o th e ra n d m o th e r , w h o s till liv e in C o lu m b ia , h a v e h a d a n y f u r th e rc o n ta c t w ith th e p a r a m ilita ry g r o u p . A f t e rL l a nos a nd hi s w i f

e ha d s t a y e d i n the U ni t e d S t a t e s be y ond the autho ri ze d t i m e, they w er e i ss ued N ot i ce s t o A pp ear thatst at ed thatthey w er e r e m o v ab le . A t ah e a r in g b e f o r e th e I J , th e y c o n c e d e d th a t th e y w e r e r e m o v ab le a n d s o u g h t a s y lu m , w ith h o ld in g o f r e m o v a l, a n d C A T r e lie f .5

T he I J de t e rm i ne d tha tL l a nos ’ t e s t i m ony w a s nots uf f i c i e nt l y de t a i l e d, c ons i s t e nt , orbe l i e vabl e t o pr ovi de apl aus i bl e a nd c ohe r e nta c c ountof the ba s i s of h is f e a ro f p e r s e c u tio n . T h e I J c o n c lu d e d th a t th e e v id e n c e w a s in s u f f ic ie n t to e s tab lis h L la n o s ’ e lig ib ility f o ra s y lu m , w ith h o ld in g o f r e m o v a l, o rC A T r e lie f . T he I J w a s pa rt i c ul a r l y c onc e rne d abouti nc ons i s t e nc i e s i n L l a nos ’ t e s t i m ony , the i nf orm a t i on he pr ovi de d i n hi s a s y l um appl i c a t i on, a nd hi s t e s t i m ony a tthe a s y l um i nt ervi ew . F or exam pl e, L l anos t es t i fi ed thathe fi rs tencoun t er ed the parami l i t ar i es o n M a r c h 1 0 , 2 0 0 0 , a f

te rh is m e e tin g ab o u t th e p r o je c t in v o lv in g f

is h ta n k s . O n h is as yl um appl i ca t i on , ho w ever , he st at ed thatthe m ee t i ng on the fi sh t ank p roj ec t oc c urr e d on M a r c h 10, 2000, buthi s f i r s tc ont a c tw i th pa r a m i l i t a r i e s oc c urr e d on A p ri l 1 3 , 2 0 0 0 . In h i s asyl u m i n t erv i ew , h e t o l d th e asyl u m o ffi cer th ath i s fi rst c ont a c tw i th pa r a m i l i t a r i e s oc c urr e d on A pr i l 3, 2000. T he s e di s c r e pa nc i e s l e d the I J to m a k e a n a d v e r s e c r e d ib ility d e te rm in a tio n . T he I J a l s o not e d tha tL l a nos ’ c a s e w a s notdoc um e nt e d i n am a nne rtha tone m i g h treaso n ab l y ex p ecti tt o b e. L l an o s m ad e n o p o l i ce rep o rt s aft er th e fi rst threa ti n 2 00 0, and h e di d n otcont ac tthe autho ri t i es af t erthe i nci dentthatoccurre d on F ebruary25 , 20 02 . H e di d n otm ake aform al deno un ce m entw i th the m i l i t ary di stri ctas hi s f

ri end i n the di stri ctatt orney’ s off i ce t ol d h i m t o d o, and h e provi ded n o v e r if ic a tio n o rd o c u m e n ta tio n f r o m th e d is tr ic t a tto rn e y ’s o f f ic e .6

T h e I J d e te rm in e d th a t L la n o s ’ a c tio n s d id n o t s u g g e s t th a t h e w a s g e n u in e ly fl ee i ng pers ec ut i on and thathi s tri ps t o the U ni t ed S t at es appeare d t o b e des i gn ed t o e s t abl i s h c ont a c t s a nd t o c ons i de rw he the rt o r e l oc a t e on am or e pe rm a ne nt ba s i s . T he I J f

ound tha ta l though L l a nos s t a t e d tha the c ol l abor a t e d w i th the C o n serv at i v e P arty an d assi st ed a fri en d i n co n d u ct i n g so m e v acci n at i o n p ro g ram s, L l anos w as no tverypo l i t i ca l l y a ct i ve i n C ol um bi a. T he IJal so foun d that a l th o u g h th e p a r a mi l i t a r i e s w a n t e d t o r e c ru i tLl a n o s a n d w a n t e d mo n e y f r o m h i m, th atco n d u ctd i d n o tri se t o th e l ev el o f p ersecu t i o n . L l an o s fai l ed t o est ab l i sh c o u n try w id e p e r s e c u tio n , a c c o r d in g to th e I J , b e c au s e h e s p e n t a t le a s t am o n th in B o g o taa n d n o th in g h ap p e n e d to h im th e r e . M o r e o v e r , n o th in g h ap p e n e d to h is f a m ily in P a lm ir ae v e n th o u g h h is m o th e ra n d b r o th e rs till liv e in th e a r e a , a n d h is m o th e rs till liv e s in th e s a m e h o u s e w h e r e L la n o s f o rm e r ly r e s id e d . B ec ause L l anos coul d n otsa t i sf y the bu rden of proo f f

or as yl um , the IJ c onc l ude d tha the c oul d nots a t i s f y the hi ghe rs t a nda r d r e qui r e d f orw i thhol di ng of re m ov al . T he IJal so det erm i ned thatL l anos pres ent ed no evi dence of pastt orture or even any pastph ys i ca l harm , thathe coul d rel ocat e t o ano ther partof C ol um bi a, a n d th a t th e p a r a m ilita r ie s w e r e n o t p a r t o f th e g o v e rn m e n t o f

C o lu m b ia . T h e r e f o r e , L la n o s h a d n o t m e t th e r e q u ir e m e n ts f o re lig ib ility f

o rC A T r e lie f

. II.7

T he B IA af

fi rm ed the IJ ’ s orderw i tho utop i ni on . B ec ause the B IA adop t ed the I J ’ s opi ni on, w e r e vi e w the I J ’ s de c i s i on a s i f i tw e r e the B I A ’ s . A l N a jj a rv. A shcr oft , 25 7 F . 3d 12 62 , 12 84 (11th C i r. 20 01 ). W e r evi ew the IJ ’ s l egal d e te rm in a tio n s d e n o v o . D - M u h u m e d v . U .S . A tt’y G e n ., 3 8 8 F .3 d 8 1 4 , 8 1 7 ( 1 1 th C i r . 2004) . W e e xa m i ne the I J ’ s f a c tua l f i ndi ngs , i nc l udi ng de t e rm i na t i ons of c r e di bi l i ty , unde rthe s ubs t a nt i a l e vi de nc e t e s t . F or gue v. U . S . A tt ’ y G e n. , 401 F .3 d 1 2 8 2 , 1 2 8 6 ( 1 1 th C ir . 2 0 0 5 ) . U n d e rth e s u b s ta n tia l e v id e n c e te s t, w e w ill “a f f irm th e I J ’s d e c is io n if

it is supp ort ed by re as on abl e, subst ant i al , and p robat i ve evi dence on the re cord c o n s id e r e d a s aw h o le .” I d . ( c ita tio n , q u o ta tio n m a rk s , a n d a lte r a tio n o m itte d ) . T he s ubs t a nt i a l e vi de nc e t e s ti s “ de f e r e nt i a l ” a nd doe s nota l l ow us t o “ r e - w e i gh the e vi de nc e f

r om s c r a t c h. ” M a z a r i e gos v. U . S . A tt ’ yG e n. , 241 F . 3d 1320, 1323 (11th C i r. 20 01 ) ( ci t at i on and q uo t at i on m arks om i tt ed). “ T o revers e the IJ ’ s f ac t fi nd i ng s, w e m ustfi nd thatthe re cord no ton l y s up po rt s r ever sa l , bu tcom pel s i t . ” M e ndoz av. U . S . A tt ’ y G e n. , 327 F . 3d 1283, 1287 ( 11th C i r . 2003) ( c i t a t i on om i tt ed). W here the IJenum er at es an appl i cant ’ s i ncon si st enci es and the re cord s u p p o rts th e s e f

in d in g s , “w e w ill n o t s u b s titu te o u rju d g m e n t f o rth a t o f th e I J w ith r e s p e c t to its c r e d ib ility f in d in g s .” D - M u h u m e d , 3 8 8 F .3 d a t 8 1 9 . A n a dve r s e c r e di bi l i ty de t e rm i na t i on a l one m a y be f a t a l t o a n a s y l um8

appl i ca t i on i f the appl i cantpres ent s no evi dence other than h i s t es t i m on y. F orgu e, 401 F . 3d a t1287. W he n the I J ha s m a de a n a dve r s e c r e di bi l i ty de t e rm i na t i on, the appl i c a ntha s the bur de n of s how i ng tha t“ the I J ’ s c r e di bi l i ty de c i s i on w a s not supp ort ed by spec i fi c, cogentre as on s or w as no tbase d o n sub st ant i al evi dence. ” I d . ( c ita tio n a n d q u o ta tio n m a rk s o m itte d ) . A n a l i e n w ho a rr i ve s i n ori s pr e s e nti n the U ni t e d S t a t e s m a y appl y f or as yl um . S ee 8 U . S . C . § 1 15 8(a) (1). T o q ual i fyfor a sy l um , the al i en m ustbe a

“ r e f uge e . ” S e e 8 U . S . C . § 1158( b) ( 1) . A “ r e f uge e ” i s a ny pe r s on w ho i s unw i l l i ng t o r e turn t o hi s hom e c ountry ort o a va i l hi m s e l f of tha tc ountry ’ s pr ot e c t i on

“ because of per se cut i on or a w el l -f ou nd ed fe arof pers ec ut i on on ac coun tof ra ce , r e l i gi on, na t i ona l i ty , m e m be r s hi p i n apa r t i c ul a rs oc i a l gr oup, orpol i t i c a l opi ni on . . . .” 8 U .S .C . § 1 1 0 1 ( a ) ( 4 2 ) ( A ) . T he as yl um appl i cantcarr i es the bu rden of prov i ng st atut ory “ re fugee” st atus. A l N ajj ar , 25 7 F . 3d at12 84 ; 8 C . F . R . § 2 08 . 13 (a ). T he appl i cantsa t i sf i es thi s bur de n by s how i ng, w i th s pe c i f i c a nd c r e di bl e e vi de nc e : ( 1) pa s tpe r s e c ut i on on ac coun tof on e of the fi ve ca t egori es l i st ed i n the st atut e, or (2) aw el l -f ou nd ed fe arthatfuture pers ec ut i on w i l l occur on account of one the st atut ori l y l i st edThe cate g ories are : rac e, relig ion, nationality , membership in a pa rticular soc ial group, or 2 political opinion. 8 U.S.C . § 1101(a) (42)(A). 9 c a t e gor i e s . 8 C . F . R . § 208. 13( b) . A w e l l - f ounde d f e a rof pe r s e c ut i on m a y be 2 e s t abl i s he d ba s e d on ( 1) pa s tpe r s e c ut i on, w hi c h c r e a t e s ar e butt abl e pr e s um pt i on of a w el l -f

ou nd ed fe ar ; (2) are as on abl e possi bi l i ty of s uffe ri ng pers ec ut i on that c a nnotbe a voi de d by r e l oc a t i ng w i thi n the s ubj e c tc ountry ; or( 3) apa tt e rn or prac t i ce i n the subj ec tcoun tryof pers ec ut i ng m em bers of a s t atut ori l y def i ned grou p t o w hi ch the al i en bel on gs. S ee 8 C . F . R § 2 08 . 13 (b)( 1), (2). T he pe t i t i one rm us te s t abl i s h ac aus a l c onne c t i on be tw e e n pe r s e c ut i on a nd a st atut ori l y l i st ed ca t egory s uch as pol i t i ca l op i ni on by “ pres ent i ng spec i fi c, det ai l ed f a c t s s how i ng agood r e a s on t o f e a rtha the ors he w i l l be s i ngl e d outf or p e r s e c u tio n o n a c c o u n t o f [ th is p o litic a l] o p in io n .” S e p u lv e d av . U .S . A tt’y G e n ., 4 0 1 F .3 d 1 2 2 6 , 1 2 3 1 ( 1 1 th C ir . 2 0 0 5 ) ( c ita tio n a n d q u o ta tio n s o m itte d ) ( e m p h a s is in o r ig in a l) . H a r a s s m e n t b a s e d o n f a ilu r e to c o o p e r a te w ith a n a lle g e d p e r s e c u to ris nots uf f i c i e ntt o s how thi s c aus a l c onne c t i on. S e e S a nc he z v. A tt ’ y G e n. , 392 F . 3d 434, 438 ( 11th C i r . 2004) ( a ddr e s s i ng w i thhol di ng of r e m ova l pol i t i c a l opi ni on c l a i m b a s e d o n F AR C ’ s a c t i o n s a g a i n s tth e p e t i t i o n e r ) . Al th o u g h n e i th e rth e I NA n o r th e reg u l at i o n s d efi n e “ p ersecu t i o n , ” w e h av e reco g n i zed o th er ci rcu i t s’ ho l di ng s that“ pers ec ut i on i s an extre m e c on ce pt , re qu i ri ng m ore than a few10

i s ol a t e d i nc i de nt s of

ve rba l ha r a s s m e ntori nt i m i da t i on, a nd tha tm e r e ha r a s s m e nt doe s nota m ountt o pe r s e c ut i on. ” S e pul ve da , 401 F . 3d a t1231( i nt e rna l quot a t i ons o m itte d ) ; G o n z a le s v . R e n o , 2 1 2 F .3 d 1 3 3 8 , 1 3 5 5 ( 1 1 th C ir . 2 0 0 0 ) . A n a l i e n s ha l l notbe r e m ove d t o ac ountry i f hi s l i f e orf r e e dom w oul d be thr e a t e ne d the r e on a c c ountof r a c e , r e l i gi on, na t i ona l i ty , m e m be r s hi p i n a pa rt i c ul a rs oc i a l gr oup, orpol i t i c a l opi ni on. S e e 8 U . S . C . § 1231( b) ( 3) ( A ) . T he st andard for w i thh ol di ng of re m ov al i s m ore s tri ng entthan the w el l -f ou nd ed fe ar s ta n d a r d f

o ra s y lu m . A l N a

jja r , 2 5 7 F .3 d a t 1 2 9 2

– 9 3 . I f a n ap p lic a n t is u n ab le to m ee tthe w el l -f

ou nd ed fe arst andard for as yl um , he general l y i s unabl e t o q ual i fy f o ra s y lu m o rw ith h o ld in g o f r e m o v a l. I d . T o q u a lif y f o rC A T r e lie f

, th e ap p lic a n t m u s t e s tab lis h th a t it is m o r e lik e ly th a n n o t th a t h e w o u ld b e to rtu r e d if r e tu rn e d to th e p r o p o s e d c o u n try o f r e m o v a l. 8 C . F . R . § 208. 16( c ) ( 2) ; R e y e s - S a nc he z v. U . S . A tt ’ y G e n. , 369 F . 3d 1239, 1242 (11th C i r. 20 04 ). T he bu rden of proo f f or an al i en se eki ng w i thh ol di ng of re m ov al un der the C A T , l i ke the bu rden for an al i en se eki ng w i thh ol di ng of re m ov al un der the I N A , i s hi ghe rtha n the w e l l - f ounde d f e a rs t a nda r d f

ora s y l um . A l N a

jj a r , 257 F . 3d a t1303. III. S u b s t a n t i a l e v i d e n c e s u p p o r t s th e I J ’ s d e t e rm i n a t i o n , a s a d o p t e d b y th e B I A,11

thatL l anos di d n otm ee tthe bu rden of proo f f or grant i ng of as yl um . L l anos fa i l ed t o d em on stra t e thathe had p re vi ou sl y bee n p er se cut ed or had a w el l -f ou nd ed fe ar of f utur e pe r s e c ut i on, a nd he f a i l e d t o s how ane xus be tw e e n the A U C ’ s a c t i ons t ow ar d h i m , hi s a ss oci at i on w i th p ea santfarm er s, and h i s i m pu t ed po l i t i ca l o p in io n . T h e I J p r o v id e d s p e c if ic , c o g e n t r e a s o n s f

o rh is a d v e r s e c r e d ib ility d et erm i n at i o n , an d th e reco rd su p p o rt s th ese fi n d i n g s. B e c au s e L la n o s c a n n o t s a tis f y th e b u r d e n o f

s h o w in g th a t h e h a s aw e llf ounde d f e a rof pe r s e c ut i on tha tw oul d m a ke hi m e l i gi bl e f ora s y l um , he c a nnot s a t i s f y the m or e s tr i nge ntbur de ns r e qui r e d t o e s t abl i s h e nt i t l e m e ntt o w i thhol di ng o f r e m o v a l u n d e rth e I N A o ru n d e rC A T . A l N a jja r , 2 5 7 F .3 d a t 1 2 9 2

– 9 3 , 1 3 0 3 . A c c or di ngl y , w e de ny L l a nos ’ pe t i t i on. P E T I T I ON DE NI E D.