FI L ED U.S. COURT OF APPEAL S EL EVENTHCI RCUI T DECEMBER 28, 2011 J OHN L EY CL ERK [DO NOT PUBLISH] IN THE UN ITED STATES COURT OF APPEALS FOR THE ELE VENTH CIRCUIT

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CARLOS EDUARDO CABRERA-NORI EGA, MARIA J OSE BOTERO DE CABRERA, JUAN ESTEBAN CABRERA-B OTERO, ANA SOL BOTE RO, NATALIA REMOLINA-BOTERO, ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll Pet it io ne rs , vers us U.S. ATTO RNEY GENERAL, ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll ll Res po nd en t.

__ __ __ __ __ __ __ __ __ __ __ __ Pet it io n fo r Rev ie w of aDeci si on of t he Bo ardof I m

m ig rat io n Ap pe al s

__ __ __ __ __ __ __ __ __ __ __ __ (Dece m be r 28 , 20 11 )Befo re MAR CUS, MARTIN, an d F AY, Circ ui t J ud ge s.

PER CURI AM: Carl os Cab rera -No rie ga , a na ti ve an d c it iz enof C ol om bi a, pe ti ti on s fo r rev ie w of t he Bo ardof I m m ig rat io n Ap pe al s’s (“ BIA”) de ni al of h is m ot io n t o reo pe n h is rem ov al pro ceed in gs un de r Imm ig rat io n a ndNati on al it y Act § 2 40 (c)( 7) (i) , (ii ), 8 U.S.C. § 12 29 a(c) (7 )(i ), (ii ). He arg ue s t ha t t he BIA ab us ed it s d is cret io n i n d en y in g h is m ot io n, wh ic h h e d oe s n otdi sp ut e is un ti m el y , be cau se he sh owe d t ha t t he co nd it io ns in Co lo m bi a h adch an ge d. Fo r th e rea so ns se t fo rth be lo w, we den y

Cab rera -No rie ga ’s pet it io n fo r rev ie w.

I. In19 99 , Cab rera -No rie gaserve d a s a l ia is onbe twee n t he Nati on al Lib erat io n Army

(“ ELN”) an d t he fam il y

of a n ELN ki dn ap in g v ic ti m , Ali st ai r Tay lo r. Cab rera -No rie gaan d t he ELN m et11 ti m es , andth e ELN ul ti m at el y de m an de d a$2 m il li onran so m , bu t Taylor ’s fam il y co ul d o nl y

pa y $6 00 ,00 0. Ups etth atCab rera -No rie gaco ul d n otsec ur e $ 2 m il li on fro m Tay lo r’s fam il y , th e ELN kid nape d h im

an d s ub jecte d h im

to ps y ch ol og ic al ab us e. He was r el eas ed an d o rd eredto m eetwith t he ELN w it h t he $2 m il li on in ran so m . Cab rera -No rie ga di d n otatt en d t he m eet in g, an d t he ELN beg ancal li ng hi m at h om e an d wo rk . The ELN inf orm edhi m

th athe was am il it ary ta rg et . In Se pt em be r 20 00 , 2Cab rera -No rie galef t Co lo m bi a an d e nt eredth e Uni te d S ta te s. Cab rera -No rie gaap pl ie d fo r as y lu m , withh ol di ng of r em ov al , and Co nv en ti on Agai ns t To rtu re (“ CAT”) rel ie f ba se d o n h is po li ti cal op in io n. Th e Im m ig rat io n J ud ge de ni edth is ap pl ic at io n a ndord eredhi m rem ov edon Sep te m

be r 9, 2 00 8. Th e BIA d is m is se d C ab rera -No rie ga ’s app eal on Apri l 2 3, 2 00 9. Cab rera -No rie gafil eda pe ti ti on forrev ie w, whi chwe de ni ed . Ca br er a- No ri ega v . U.S. Att ’y Gen . , 36 9 F .App ’x 5, 7 (11 th Cir . 20 10 ). W e h el d th atCab rera -No rie gaha d n otest ab li sh eda ne xu s b etween th e p ers ecu ti on he al le ge d a ndhi s p ol it ic al op in io n. Id. at 1 0. Th e ev id en ce s ho wedth atth e ELN ha rm edCab rera -No rie gabe cau se he fai le d t o o bt ai n a$2 mil li on ran so m pa ym en t, no t b ecau se of h is po li ti cal be li efs . Id. at 1 1. Nex t, we h el d t ha t Cabr era- Nor ie ga ha d n otest ab li sh eda well -fo un de d fe ar o f fu tu re p ers ecu ti on as t he re was no ev id en ce tha t h e wou ldbe pe rs ecu te d b ecau se of h is po li ti cal op in io ns . Id. Fi na ll y , we exp la in edth atin ad di ti on to th e la ckof e vi de nc e co nn ect in g a ny po ss ib le ha rm

to hi s p ol it ic al op in io ns , th ere was no ev id en ce tha t t he ELN co nt in ue d t o l oo k fo r Cab rera -No rie ga . Id. On J ul y 1, 2 01 0, Cabr era- Nor ie gafil eda m ot io n t o re op en , arg ui ng th athe co ul d m eetth e ch an ge d c ou nt ry co nd it io ns ex cep ti onto th e fi li ng requi rem en ts . He as se rte d t ha t t he ELN hadrece nt ly gro wn s tro ng er. Co m m an de r Pab li to , th e 3le ad er i n t he ELN who ha d d es ig na te d h im as am il it ary ta rg et , hadbe encap tu red by the Co lo m

bi ango ve rn m en t, b utlat er es cap ed . Upo n h is esc ap e, Pab li to vo wed to eli m in at e th e ELN’ s en em ie s. Ba se d o n t he se de ve lo pm en ts , Cab rera -No rie ga arg ue d t ha t Pabl it o was st il l l oo ki ng to ki ll hi m an d n ow h adm or e res ou rces av ai labl e to carry

ou t t he ki ll in g. Acco rd in g t o a rti cl es Cab rera -No rie gasubm it te d wit h h is m ot io n t o re op en , Carl os Mari n Gu ari n, al so kn own as P ab li to , hadbe en arre st ed . Howev er, Pab li to lat er es cap edfro m cu st od y with t he he lp of ELN reb el s. On e art ic le st at edth atth e ELN hadbe ende cl in in g g radua ll y si nc e 1 99 9. It c al le d t he ELN “ analm os t-f or go tt enfor ce” c om

pa redto th e Rev ol ut io na ry Arm edFo rces of C ol om

bi a, bu t al so st at edth atPab li to ’s esc ap e wou ldli ke ly giv e th e ELN rene weden erg y . Cab rera -No rie gaals o s ub m it te d a ffi da vi ts fro m hi s br ot he r an d fr om

a fri en d. Bo thin di vi du al s b el ie ve d t ha t Cabr era- Nor ie gawou ld be ki ll edif h e returne d t o C ol om bi a. Add it io na ll y , Cab rera -No rie ga ’s bro th er st at edth at , si nc e Pab li to ’s esc ap e, th e ELN hadco nt act edhi m lo ok in g fo r Cab rera -No rie ga . The BIA d en ie d C ab rera -No rie ga ’s m ot io n t o re op en , fin di ng th atitwas un ti m el y an d t ha t Cabr era- Nor ie gaha d n otsh own ch an ge d c ou nt ry co nd it io ns to ex cu se th e u nt im el in es s. He h adfai le d t o s ho w th atth e ELN was b eco m in g m or e da ng ero us , as o ne of t he art ic le s h e subm it te d s ta te d t ha t the ELN w as gra du al ly 4de cl in in g. Nex t, the BIA fo un d t ha t Cabr era- Nor ie gaha d n otsh own th atPab li to ’s

es cap e in crea se d the li ke li ho odof C ab rera -No rie gabe in g k il le d. Th e BIA d idno t be li ev e th atCab rera -No rie gawas i n a ny m or e d an ge r th anhe ha d b een be fo re Pab li to was c ap tu redan d e sc ap ed . Howev er, ev enif C ab rera -No rie gawas i n m or e da ng er, thi s C ou rt h adalr eady de te rm in edon rev ie w th athe ha d n otsh own a ne xu s b etweenan y

ha rm an d apro te ct edgro un d. Th e art ic le s an d a ffi da vi ts at ta ch edto th e m ot io n t o re op enals o d idno t s ho w a co nn ect io n b etween an y ha rm an d apro te ct edgro un d. Fi na ll y , Cab rera -No rie gaha d n otsh own th athe wou ld li ke ly face to rtu re b y

or wi thth e acqui es cen ce o f go ve rn m en t o ffi ci al s.

II. W e rev ie w th e BIA’s d en ia l o f a m ot io n t o re op enun de r “ a v ery de fere nt ia l ab us e o f di sc ret io n s tand ard .” Al Na jj ar v. Ash cr of

t , 25 7 F .3d12 62 , 13 02 (11 th Ci r. 20 01 ). Factua l fi nd in gs are re vi ewedforsubs tant ia l ev id en ce, wh ic h re qu ire s

“ reas on ab le , subs tant ia l, an d p ro ba ti ve ev id en ce.” Id. at 1 28 3- 84 (qu ot at io n om it te d) . An al ie n s ub

ject t o afin al ord er o f rem ov al m us t fi le a m ot io n t o re op en wit hi n 9 0 d ay s o f th e rem ov al ord er b ei ng ren de red . 8 C.F.R. § 10 03 .2(c )(2 ). The ti m e li m itdo es no t ap pl y if t he m ot io n t o re op enis ba se d o n c ha ng edco un try co nd it io ns , “ if s uc h e vi de nc e is m at eri al an d was no t av ai labl e an d c ou ldno t h av e 5be endi sc ov eredor p res en te d a t t he pre vi ou s h eari ng .” Id. § 1 00 3.2 (c)( 3) (ii ). The

BIA m ay de ny a m ot io n t o re op enforat l eas t thr ee re as on s: (1) th e p et it io ne r di d no t es tabl is h a pr ima fa ci e cas e; (2) th e p et it io ne r di d n otin tro du ce m at eri al an d pr ev io us ly una va il ab le ev id en ce; an d (3 ) th e BIA m ay de te rm in e “ th atde sp it e th e al ie n’s s ta tu to ry

eli gi bi li ty for rel ie f, he or s he is no t en ti tl edto a fav or ab le ex erci se of d is cret io n.” Al Na jj ar , 25 7 F .3dat 1 30 2. To est ab li sh a pr ima fa ci e cas e o f el ig ib il it y

forasylu m , th e p et it io ne r m us t s ho w pas t p ers ecu ti on du e to a st atut or il y

pro te ct edfact oror awell -fo un de d fe ar o f fu tu re p ers ecu ti ondu e to a st atut or il y

pro te ct edfact or . 8 C.F.R. § 20 8.1 3( b) . To es tabl is h a pr ima fa ci e cas e of eli gi bi li ty for wit hh ol di ng of r em ov al , th e p et it io ne r m us t “ sh ow t ha t h is li fe o r free do m wou ldbe th reat en edon acco un t o f” a s ta tu to ril y pro te ct edfact or . Delg ado v . U.S. Att ’y Gen ., 48 7 F .3d85 5, 8 60 -6 1 (1 1t h C ir. 2 00 7) (ci ta ti on om it te d) . Prot ect edfact or s i nc lu de “ race , rel ig io n, n at io na li ty, m em be rs hi p i n a pa rti cu la r so ci al gro up , or p ol it ic al op in io n.” 8 C.F.R . § 2 08 .13 (b ). The BIA d idno t ab us e it s d is cret io n i n d en y in g C ab rera -No rie ga ’s m ot io n to reo pe n b ecau se he fai le d t o e st ab li sh a pr ima fa ci ecas e o f el ig ib il ity forasylu m orwithh ol di ng of r em ov al . Se e Al Na jj ar , 25 7 F .3dat 1 30 2. Fi rs t, the BIA’s 1 Cabrer a-N orieg a has a

bandoned a

ny argument reg ardingCAT relief beca use he f ailed to 1 make more than a pa ssing r efe renc e to such re lief in his brief. See Se pulveda v . U.S. Att’y Ge n. , 401 F.3d 1226, 1228 n.2 ( 11th Cir. 2005) (explaining that a pe titioner abandons a n issue wher e 6fin di ng th atCab rera -No rie gaha d n otsh ownth atth e ELN was b eco m in g m or e

da ng ero us was s up po rte d b y subs ta nt ia l ev id en ce. Se e id. at 1 28 3. Cab rera -No rie ga ’s ownsupp orti ng ev id en ce s ta te d t ha t, al th ou gh itwas p os si bl e th atPab li to ’s esc ap e wou ldre-e ne rg iz e th e ELN, the org an iz at io n h adbe en gr adua ll y de cl in in g s in ce 1 99 9, t he y ear i n wh ic h C ab rera -No rie gaact edas a li ai so n b etweenth e ELN andTay lo r’s fam il y . Nex t, ev enif C ab rera -No rie gaha d s ho wn ch an ge d c ou nt ry co nd it io ns , he ha s n otsh own th atth ey

are m at eri al . Se e8 C.F .R. § 1 00 3.2 (c)( 2) (ii ). Bo th as y lu m an d wi th ho ld in g o f rem ov al cla im s re qu ire th e p et it io ne r to sh ow tha t an y ha rm wou ldoc cu r on acco un t o f a s ta tu to ril y pro te ct edfact or , whi ch is Cab rera -No rie ga ’s po li ti cal op in io n i n t hi s ca se . Se e Delg ado , 48 7 F .3dat 8 60 -6 1; 8 C .F.R. § 2 08 .13 (b ). The arti cl es an d a ffi da vi ts th athe att ach edto hi s m ot io n m erel y est ab li sh edth atPab li to ha d e sc ap edfro m cu st ody , th e ELN m ig htbe gr adua ll y de cl in in g o r m ig htbe re-e ne rg iz edby Pabl it o’s es cap e, an d t he ELN had co nt act edCab rera -No rie ga ’s bro th er t o t ry to fin d h im . Even ass um in g ar gu en do th atth is ev id en ce was su ffi ci en t t o s ho w th e p ers ecu ti on an d h arm ele m en ts of a n as y lu m or wi th ho ld in g o f rem ov al cla im , itdi d n otest ab li sh th atPab li to wou ld se ekto ha rm

Cab rera -No rie gaba se d o n h is po li ti cal op in io n. Mo reo ve r, he only makes a passingref

ere nce to it in his brief).

7Cab rera -No rie gaco nc ed es on ap pe al th atth e ELN seek s t o h arm hi m be cau se he m ad e Pab li to lo okba d wh enhe di d n otco m pl y with t he ord er t o o bt ai n the ran so m m on ey . There fo re, the BIA d idno t ab us e it s d is cret io n i n d en y in g t he m ot io n t o reo pe n b ecau se Cab rera -No rie gafai le d t o e st ab li shch an ge d c ou nt ry co nd it io ns or th atan y ha rm he su ffer edor wo ul d s uf fer i n t he futur e was ba se d o n h is po li ti cal op in io n. Se e Al Na

jj ar , 25 7 F .3dat 1 30 2. Fo r th e fo reg oi ng reas on s, we d en y Cab rera -No rie ga ’s pet it io n fo r rev ie w. PETI TI ON FOR REVIE W DENI ED.

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