FI L ED

U.S. COURT OF APPEAL S

EL EVENTH CI RCUI T

J UL Y 12, 2010

J OHN L EY

CL ERK [ P U B L I S H ]

I N T H E U N I T E D S T A T E S C O U R T O F A P P E A L S

F O R T H E E L E V E N T H C I R C U I T

_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

N o

. 0 9

- 1 1 9 2 0

_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

A g e n c y N o

. A 0 9 7

- 1 9 2

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V I S C A I M E L D A

,

P e t i t i o n e r

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v e r s u s

U

. S

. A T T O R N 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 o n f o r R e v i e w o f a D e c i s i o n o f t h e

B o a r d o f I m m i g r a t i o n A p p e a l s

_ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

( J u l y 1 2

, 2 0 1 0 )

B e f o r e T J O F L A T

, W I L S O N a n d E B E L

, C i r c u i t J u d g e s : *

Honora ble David M. Ebe l, United States Circuit J udg e for the Tenth Circuit, sitting by *

desig nation.W I L S O N

, C i r c u i t J u d g e :

V i s c a I m e l d a

, a n e t h n i c C h i n e s e C h r i s t i a n a n d n a t i v e a n d c i t i z e n o f

I n d o n e s i a

, p e t i t i o n s f

o r r e v i e w o f t h e B o a r d o f I m m i g r a t i o n A p p e a l s ’ s ( “ B I A ” )

o r d e r a f f i r m i n g t h e i m m i g r a t i o n j u d g e ’ s ( “ I J ” ) d e c i s i o n d e n y i n g h e r a p p l i c a t i o n f o r

a s y l u m a n d w i t h h o l d i n g o f r e m o v a l u n d e r t h e I m m i g r a t i o n a n d N a t i o n a l i t y A c t

( “ I N A ” )

, a n d r e l i e f u n d e r t h e U n i t e d N a t i o n s C o n v e n t i o n A g a i n s t T o r t u r e a n d

O t h e r C r u e l

, I n h u m a n o r D e g r a d i n g T r e a t m e n t o r P u n i s h m e n t ( “ C A T ” )

. A f t e r

r e v i e w o f t h e p a r t i e s ’ b r i e f s a n d t h e r e c o r d

, a n d w i t h t h e b e n e f i t o f o r a l a r g u m e n t

,

w e g r a n t t h e p e t i t i o n f

o r r e v i e w

, v a c a t e t h e B I A ’ s d e c i s i o n

, a n d r e m a n d

.

I

. B A C K G R O U N D

I n A u g u s t 2 0 0 0

, I m e l d a w a s a d m i t t e d t o t h e U n i t e d S t a t e s a s a n o n

i m m i g r a n t B 2 v i s i t o r w i t h a u t h o r i z a t i o n t o r e m a i n u n t i l F e b r u a r y 2 0 0 1

. I n 2 0 0 3

,

I m e l d a s i g n e d a n a s y l u m a p p l i c a t i o n

, s e e k i n g a s y l u m o r w i t h h o l d i n g o f r e m o v a l o n

a c c o u n t o f r a c e a n d r e l i g i o n

, a n d a l s o s e e k i n g C A T r e l i e f

. I n D e c e m b e r 2 0 0 5

, t h e

D e p a r t m e n t o f H o m e l a n d S e c u r i t y i s s u e d I m e l d a a n o t i c e t o a p p e a r

, c h a r g i n g h e r

w i t h r e m o v a b i l i t y p u r s u a n t t o 8 U

. S

. C

. § 1 2 2 7 ( a ) ( 1 ) ( B ) a s a n a l i e n w h o r e m a i n e d

i n t h e U n i t e d S t a t e s f

o r a t i m e l o n g e r t h a n p e r m i t t e d

. O n J u n e 8

, 2 0 0 6

, I m e l d a

c o n c e d e d r e m o v a b i l i t y

.

2A t a n O c t o b e r 3 1

, 2 0 0 7 m e r i t s h e a r i n g b e f o r e t h e I J

, I m e l d a p r o v i d e d

e v i d e n c e t o s u p p o r t h e r c l a i m s f o r a s y l u m

, w i t h h o l d i n g o f r e m o v a l

, a n d C A T

r e l i e f

. I m e l d a

, a P r o t e s t a n t C h i n e s e I n d o n e s i a n f r o m t h e M i n a h a s a D i s t r i c t o f

N o r t h S u l a w e s i

, I n d o n e s i a

, t e s t i f i e d a b o u t t h r e e d i f

f e r e n t i n c i d e n t s o f p e r s e c u t i o n

.

F i r s t

, i n 1 9 8 8

, I m e l d a a n d h e r f r i e n d

, M a r i a

, w e r e s i n g i n g C h r i s t i a n w o r s h i p s o n g s

w h e n t h e y w e r e a t t a c k e d b y n a t i v e I n d o n e s i a n s

. T h e n a t i v e s t h r e w b o t t l e s a t M a r i a

a n d m o c k e d t h e g i r l s ’ C h i n e s e e t h n i c i t y

. A s t h e n a t i v e s p u s h e d t h e g i r l s

, I m e l d a ’ s

t e a c h e r

, a l s o a C h i n e s e I n d o n e s i a n

, a t t e m p t e d t o h e l p t h e m a n d w a s s t a b b e d i n t h e

s h o u l d e r

. A n o t h e r n a t i v e a s k e d I m e l d a

, “ H e y

, C h i n e s e

, d o y o u w a n t t o b e

r a p e d [ ? ] ” A

. R

. 8 8

. P o l i c e o f f i c e r s a r r i v e d a n d a s k e d t h e n a t i v e s t o l e a v e

, b u t

b l a m e d I m e l d a f

o r t h e i n c i d e n t a n d t o l d t h e t e a c h e r s t o r e f r a i n f r o m s i n g i n g

C h r i s t i a n s o n g s i n p u b l i c

. I d

.

T h e s e c o n d i n c i d e n t o c c u r r e d i n D e c e m b e r 1 9 9 5

, w h e n I m e l d a a t t e n d e d a

c h u r c h C h r i s t m a s p a r t y

. T h e h o u s e w h e r e t h e p a r t y w a s h e l d w a s r a n s a c k e d b y a

g r o u p o f M u s l i m m e n c a l l i n g t h e m s e l v e s t h e “ J i h a d y o u t h

. ” T h e y a c c u s e d I m e l d a

a n d h e r f r i e n d s o f h o l d i n g s e c r e t m e e t i n g s a n d p l a n n i n g t o b u i l d a c h u r c h

, a n d t h e y

p r e v e n t e d t h e m f

r o m l e a v i n g t h e h o m e

. I m e l d a w a s t a k e n t o a s e p a r a t e r o o m

w h e r e s h e w a s s t r i p p e d d o w n t o h e r u n d e r w e a r

, t i e d u p

, a n d l e f t f o r s e v e r a l h o u r s

.

T h e i n d i v i d u a l s t h e n b r o u g h t t w o o f I m e l d a ’ s f r i e n d s i n t o t h e r o o m

, u n d r e s s e d

t h e m

, a n d p r o c e e d e d t o t o u c h t h e g i r l s i n a p p r o p r i a t e l y

. B e f o r e d e p a r t i n g

, t h e

3g r o u p ’ s l e a d e r w a r n e d t h e C h r i s t i a n s t h a t M u s l i m s w o u l d t a k e o v e r t h e M i n a h a s a

D i s t r i c t a n d t h a t “ y o u C h r i s t i a n d o g s

. . . a l l w i l l d i e

. ” I d

. a t 9 1

.

T h e t h i r d i n c i d e n t o c c u r r e d i n 1 9 9 9

. I m e l d a a n d h e r h u s b a n d o p e n e d a

g r o c e r y s t o r e

, i n w h i c h t h e y h e l d c h u r c h s e r v i c e s e v e r y M o n d a y n i g h t

. A p o l i c e

o f f i c e r t o l d I m e l d a t h a t t h e y c o u l d n o t h o l d s u c h i l l e g a l s e r v i c e s

, a n d a s k e d f o r a

b r i b e t o “ s a f

e g u a r d ” t h e s t o r e

. D e s p i t e g i v i n g t h e o f f i c e r m o n e y

, t h e s t o r e w a s

r o b b e d i n A u g u s t 1 9 9 9

. A n i n d i v i d u a l a t a n I s l a m i c s c h o o l c a l l e d I m e l d a s e v e r a l

t i m e s

, a n d i n f

o r m e d h e r t h a t t h e r o b b e r y h a d o c c u r r e d i n r e s p o n s e t o t h e c h u r c h

s e r v i c e s a n d t h a t I m e l d a a n d h e r h u s b a n d w e r e b r e a k i n g M u s l i m l a w

.

S u b s e q u e n t l y

, a n o t h e r M u s l i m o f f e r e d t o p u r c h a s e t h e s t o r e

. I m e l d a t e s t i f i e d t h a t

s h e h a d t o s e l l t h e s t o r e b e c a u s e h e r v e n d o r s r e f u s e d t o s u p p l y h e r w i t h

m e r c h a n d i s e

. U p o n h e a r i n g I m e l d a ’ s o p e n i n g p r i c e

, t h e m a n a s k e d h e r i f s h e

w a n t e d t h e s t o r e t o b e b u r n e d a n d d e s t r o y e d

. U l t i m a t e l y

, I m e l d a s o l d t h e s t o r e f o r

m u c h l o w e r t h a n h e r o p e n i n g p r i c e

.

F i n a l l y

, I m e l d a t e s t i f

i e d t h a t w h i l e t h e s i t u a t i o n i n I n d o n e s i a s e e m e d t o b e

g e t t i n g b e t t e r f

r o m t h e o u t s i d e

, a t t a c k s o n C h r i s t i a n s a n d o t h e r a c t s o f v i o l e n c e s t i l l

o c c u r r e d

. I n a d d i t i o n t o I m e l d a ’ s t e s t i m o n y w e r e s e v e r a l d o c u m e n t a r y e x h i b i t s

.

O n e e x h i b i t

, p r e s e n t e d b y t h e g o v e r n m e n t

, w a s t h e 2 0 0 6 U n i t e d S t a t e s D e p a r t m e n t

o f S t a t e ’ s C o u n t r y R e p o r t f o r I n d o n e s i a ( “ 2 0 0 6 C o u n t r y R e p o r t ” o r “ R e p o r t ” )

. S e e

U

. S

. D e p ’ t o f S t a t e

, I n d o n e s i a

, 2 0 0 6 C o u n t r y R e p o r t s o n H u m a n R i g h t s P r a c t i c e s

4( M a r

. 6

, 2 0 0 7 )

, a v a i l a b l e a t h t t p : / / w w w

. s t a t e

. g o v / g / d r l / r l s / h r r p t / 2 0 0 6 / 7 8 7 7 4

. h t m

.

T h e o t h e r e x h i b i t s p r e

- d a t e d t h e C o u n t r y R e p o r t

, r a n g i n g f r o m 2 0 0 1 t o 2 0 0 5

.

I m e l d a p r o v i d e d a 2 0 0 2 l e t t e r f r o m h e r p a r e n t s s t a t i n g t h a t t h e c u r r e n t s a f e t y

s i t u a t i o n i n I m e l d a ’ s h o m e p r o v i n c e w a s g e t t i n g w o r s e a f t e r t h e a r r i v a l o f

t e r r o r i s t s

, t h a t a b o m b w a s f o u n d i n a c h u r c h

, t h a t h e r p a r e n t s ’ c h u r c h h a d r e c e i v e d

b o m b t h r e a t s

, a n d t h a t a p a s t o r f r o m I m e l d a ’ s h o m e t o w n h a d d i s a p p e a r e d

. I m e l d a

a l s o s u b m i t t e d n e w s p a p e r a r t i c l e s r e p o r t i n g t h e 2 0 0 5 a t t a c k s i n B a l i b y M u s l i m

s u i c i d e b o m b e r s

. O t h e r a r t i c l e s r e c o u n t e d t h e f o r c e f u l c l o s i n g o f a n u m b e r o f

c h u r c h e s b y M u s l i m g r o u p s

. F i n a l l y

, a r t i c l e s f r o m 2 0 0 1 a n d 2 0 0 2 r e p o r t e d t h a t o n

t h e i s l a n d s o f M a l u k u a n d S u l a w e s i i n e a s t e r n I n d o n e s i a

, t h e r e w a s o n g o i n g

f i g h t i n g b e t w e e n C h r i s t i a n s a n d M u s l i m s

, e x a c e r b a t e d i n 2 0 0 0 b y t h e a r r i v a l o f

L a s k a r J i h a d

, a r a d i c a l I s l a m i c m i l i t i a

.

A f t e r t h e h e a r i n g

, t h e I J d e n i e d I m e l d a ’ s c l a i m s f o r a s y l u m

, w i t h h o l d i n g o f

r e m o v a l

, a n d C A T r e l i e f

. B e c a u s e I m e l d a d i d n o t r a i s e h e r c l a i m s f o r a s y l u m a n d

C A T r e l i e f i n h e r a p p e l l a t e b r i e f

, t h o s e i s s u e s a r e d e e m e d a b a n d o n e d

, a n d w e

r e v i e w o n l y h e r w i t h h o l d i n g o f r e m o v a l c l a i m

. S e e S e p u l v e d a v

. U

. S

. A t t ’ y G e n

. , 1

4 0 1 F

. 3 d 1 2 2 6

, 1 2 2 8 n

. 2 ( 1 1 t h C i r

. 2 0 0 5 ) ( p e r c u r i a m )

. A s t o t h e w i t h h o l d i n g o f

The I J ruled that I melda wa s ineligible f or asy lum because she fa iled to file her a sy lum 1

application within one y ear afte r the da te of he r ar

rival in the United States. See 8 U.S.C. §

1158(a) (2)( B) . The I J also found that the she failed to de monstrate that she w ould be tortured

upon her r eturn to I ndonesia, pre cluding her f rom CAT relief

. See 8 C.F.R. § 208.16(c)

. 5r e m o v a l c l a i m

, t h e I J f o u n d t h a t I m e l d a h a d e s t a b l i s h e d n e i t h e r p a s t p e r s e c u t i o n

n o r t h a t i t w o u l d b e m o r e l i k e l y t h a n n o t t h a t s h e w o u l d s u f f e r a f u t u r e t h r e a t t o h e r

l i f e o r f r e e d o m o n a c c o u n t o f h e r r e l i g i o n o r r a c e

. T h e I J f o u n d t h a t t h e e v e n t s o f

w h i c h I m e l d a c o m p l a i n e d d i d n o t “ r i s e t o t h e l e v e l o f p e r s e c u t i o n

. ” A

. R

. 3 0

. 2

T h e B I A ’ s d e c i s i o n a s s u m e d p a s t p e r s e c u t i o n a n d s t a t e d t h a t e v e n i f I m e l d a

“ h a d e s t a b l i s h e d p a s t p e r s e c u t i o n

, . . . [ i t ] w o u l d f i n d t h a t t h e p r e s u m p t i o n o f f u t u r e

p e r s e c u t i o n i s r e b u t t e d ” b e c a u s e o f a “ f u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s

. ” I d

.

a t 3

. O n a p p e a l

, I m e l d a c h a l l e n g e s t h e B I A ’ s d e t e r m i n a t i o n t h a t t h e r e h a s b e e n a

f u n d a m e n t a l c h a n g e i n c o u n t r y c o n d i t i o n s s u f f i c i e n t t o r e b u t h e r p r e s u m p t i o n t h a t

h e r l i f e o r f r e e d o m w o u l d b e t h r e a t e n e d u p o n r e t u r n t o I n d o n e s i a b a s e d o n h e r

r e l i g i o n a n d r a c e

. I m e l d a a r g u e s t h a t t h e B I A e r r e d i n r e l y i n g o n t h e C o u n t r y

R e p o r t a l o n e i n m a k i n g i t s d e t e r m i n a t i o n

, t h a t i t d i d n o t m a k e a n i n d i v i d u a l i z e d

f i n d i n g i n r e l a t i o n t o I m e l d a ’ s s i t u a t i o n

, a n d t h a t t h e c h a n g e d c o n d i t i o n s d e s c r i b e d

i n t h e C o u n t r y R e p o r t a r e n o t f u n d a m e n t a l b e c a u s e p e r s e c u t i o n s t i l l e x i s t s f o r

C h r i s t i a n s a n d e t h n i c C h i n e s e i n I n d o n e s i a

.

I I

. S T A N D A R D O F R E V I E W

W e r e v i e w o n l y t h e B I A ’ s d e c i s i o n b e c a u s e i t d i d n o t e x p r e s s l y a d o p t t h e

I J ’ s o p i n i o n o r r e a s o n i n g

. A l N a j j a r v

. A s h c r o

f t

, 2 5 7 F

. 3 d 1 2 6 2

, 1 2 8 4 ( 1 1 t h C i r

.

The I J did not make any

finding as to whethe r, assuming past perse cution, there had bee n 2

fundame ntal chang es in country conditions such that I melda’s life or fr eedom would not be

threa tened upon r eturn to I ndonesia. The BI A made this dete rmination in the first instance.

62 0 0 1 )

. W e r e v i e w a f a c t u a l d e t e r m i n a t i o n t h a t a n a l i e n i s s t a t u t o r i l y i n e l i g i b l e f o r

w i t h h o l d i n g o f r e m o v a l u n d e r t h e s u b s t a n t i a l e v i d e n c e t e s t

, w h i c h r e q u i r e s

a f f i r m a n c e i f t h e B I A ’ s d e c i s i o n “ i s s u p p o r t e d b y r e a s o n a b l e

, s u b s t a n t i a l

, a n d

p r o b a t i v e e v i d e n c e o n t h e r e c o r d c o n s i d e r e d a s a w h o l e

. ” I d

. a t 1 2 8 3

– 8 4 ( i n t e r n a l

q u o t a t i o n s a n d c i t a t i o n s o m i t t e d )

. T h e f a c t t h a t e v i d e n c e i n t h e r e c o r d m a y s u p p o r t

a c o n c l u s i o n c o n t r a r y t o t h e a d m i n i s t r a t i v e f i n d i n g s i s n o t e n o u g h t o j u s t i f y a

r e v e r s a l

. A d e

f e m i v

. A s h c r o

f t

, 3 8 6 F

. 3 d 1 0 2 2

, 1 0 2 7 ( 1 1 t h C i r

. 2 0 0 4 ) ( e n b a n c )

( c i t a t i o n o m i t t e d )

. U n d e r t h e s u b s t a n t i a l e v i d e n c e s t a n d a r d

, “ w e m u s t f i n d t h a t t h e

r e c o r d n o t o n l y s u p p o r t s r e v e r s a l

, b u t c o m p e l s i t

. ” M e n d o z a v

. U

. S

. A t t ’ y G e n

. ,

3 2 7 F

. 3 d 1 2 8 3

, 1 2 8 7 ( 1 1 t h C i r

. 2 0 0 3 ) ( c i t a t i o n o m i t t e d )

.

I I I

. D I S C U S S I O N

T o s e e k w i t h h o l d i n g o f r e m o v a l

, a n a l i e n m u s t d e m o n s t r a t e t h a t h e r “ l i f e o r

f r e e d o m w o u l d b e t h r e a t e n e d i n t h a t c o u n t r y b e c a u s e o f t h e a l i e n ’ s r a c e

, r e l i g i o n

,

n a t i o n a l i t y

, m e m b e r s h i p i n a p a r t i c u l a r s o c i a l g r o u p

, o r p o l i t i c a l o p i n i o n

. ” 8

U

. S

. C

. § 1 2 3 1 ( b ) ( 3 ) ( A )

. A n a l i e n b e a r s t h e b u r d e n o f s h o w i n g t h a t s h e “ m o r e

l i k e l y

- t h a n

- n o t w o u l d b e p e r s e c u t e d o r t o r t u r e d u p o n [ h e r ] r e t u r n t o t h e c o u n t r y i n

q u e s t i o n

. ” M e n d o z a

, 3 2 7 F

. 3 d a t 1 2 8 7

.

I f t h e a l i e n d e m o n s t r a t e s p a s t p e r s e c u t i o n

, t h e r e i s a p r e s u m p t i o n t h a t h e r

“ l i f e o r f r e e d o m w o u l d b e t h r e a t e n e d u p o n r e t u r n t o [ h e r ] c o u n t r y

. ” I d

. ; 8 C

. F

. R

. §

2 0 8

. 1 6 ( b ) ( 1 ) ( i )

. H o w e v e r

, t h i s p r e s u m p t i o n c a n b e r e b u t t e d i f t h e g o v e r n m e n t

7s h o w s

, b y a p r e p o n d e r a n c e o f t h e e v i d e n c e

, t h a t ( 1 ) “ [ t ] h e r e h a s b e e n a

f u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s s u c h t h a t t h e a p p l i c a n t ’ s l i f e o r f r e e d o m

w o u l d n o t b e t h r e a t e n e d o n a c c o u n t o f [ r a c e

, r e l i g i o n

, n a t i o n a l i t y

, m e m b e r s h i p i n a

p a r t i c u l a r s o c i a l g r o u p

, o r p o l i t i c a l o p i n i o n ] u p o n t h e a p p l i c a n t ’ s r e m o v a l t o t h a t

c o u n t r y ; ” o r ( 2 ) “ [ t ] h e a p p l i c a n t c o u l d a v o i d a f u t u r e t h r e a t t o

. . . h e r l i f e o r

f r e e d o m b y r e l o c a t i n g t o a n o t h e r p a r t o f t h e p r o p o s e d c o u n t r y o f r e m o v a l a n d

,

u n d e r a l l t h e c i r c u m s t a n c e s

, i t w o u l d b e r e a s o n a b l e t o e x p e c t t h e a p p l i c a n t t o d o

s o

. ” 8 C

. F

. R

. § 2 0 8

. 1 6 ( b ) ( 1 ) ( i )

– ( i i )

. 3

A

. S t a n d a r d A p

p l i e d b y t h e B I A

A s a n i n i t i a l m a t t e r

, i t i s u n c l e a r f r o m t h e B I A ’ s o p i n i o n w h e t h e r i t r e l i e d o n

t h e s t a n d a r d f

o r a s y l u m

, r a t h e r t h a n t h e m o r e s t r i n g e n t s t a n d a r d f o r w i t h h o l d i n g o f

r e m o v a l

, i n d e t e r m i n i n g w h a t p r e s u m p t i o n w a s a t i s s u e

. T h e a p p r o p r i a t e s t a n d a r d

f o r w i t h h o l d i n g o f r e m o v a l i s w h e t h e r t h e r e a r e f u n d a m e n t a l c h a n g e s s u c h t h a t t h e

a p p l i c a n t ’ s “ l i f

e o r f r e e d o m w o u l d n o t b e t h r e a t e n e d

. ” 8 C

. F

. R

. §

2 0 8

. 1 6 ( b ) ( 1 ) ( i ) ( A )

. A t f i r s t

, t h e B I A ’ s o p i n i o n s t a t e s t h a t I m e l d a “ n o l o n g e r h a s a

There is a distinction between e stablishing future perse cution as a se para te claim and r ebutting 3

the pre sumption of future per secution. Onc e past pe rsec ution, and conseque ntly a pre sumption

of future perse cution, is established, the burde n is on the g overnme nt to rebut the pre sumption.

Howeve r, if the pe titioner has not established past pe rsec ution, there is no pre sumption t o

overc ome, and the bur den is on the petitioner to demonstra te a f uture thre at to her life or

fre edom on a pr otected g round. Mendoza , 327 F.3d a t 1287; Molina-Estrada v. INS , 293 F.3d

1089, 1096 (9th Cir. 2002). Her e, the B I A assumed pa st persec ution and discussed whe ther the

presumption of future perse cution had bee n adequately rebutted by

the g overnme nt.

8w e l l

- f

o u n d e d f e a r o f p e r s e c u t i o n i n I n d o n e s i a

, ” t h e s t a n d a r d f o r a s y l u m

. A

. R

. 4 ;

s e e 8 C

. F

. R

. § 2 0 8

. 1 3 ( b ) ( 1 ) ( i ) ( A )

. H o w e v e r

, i t g o e s o n t o s a y t h a t “ t h e r e h a s b e e n

a f u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s s u c h t h a t t h e r e s p o n d e n t h a s n o t

e s t a b l i s h e d t h a t s h e i s m o r e l i k e l y t h a n n o t t o f a c e p e r s e c u t i o n i n I n d o n e s i a

, ” w h i c h

i s t h e s t a n d a r d f

o r w i t h h o l d i n g o f r e m o v a l

. I d

. ; s e e M e n d o z a

, 3 2 7 F

. 3 d a t 1 2 8 7

.

B

. F u n d a m e n t a l C h a n g e i n C i r c u m s t a n c e s

W e h a v e h e l d t h a t t h e B I A m a y r e l y h e a v i l y o n S t a t e D e p a r t m e n t r e p o r t s

a b o u t a c o u n t r y

. R e

y e s

- S a n c h e z v

. U

. S

. A t t ’ y G e n

. , 3 6 9 F

. 3 d 1 2 3 9

, 1 2 4 3 ( 1 1 t h C i r

.

2 0 0 4 ) ( a l l o w i n g t h e B I A t o u s e s u c h r e p o r t s t o d e t e r m i n e w h e t h e r t h e P e r u v i a n

g o v e r n m e n t p r e s e n t l y a c q u i e s c e d i n a c t i v i t i e s o f a P e r u v i a n t e r r o r i s t g r o u p

, a s

r e q u i r e d f

o r C A T r e l i e f

)

. H o w e v e r

, “ [ u ] s e o f c o u n t r y r e p o r t s c a n n o t s u b s t i t u t e f o r

a n a n a l y s i s o f t h e u n i q u e f a c t s o f e a c h a p p l i c a n t ’ s c a s e

. ” G i t i m u v

. H o l d e r

, 5 8 1

F

. 3 d 7 6 9

, 7 7 3 ( 8 t h C i r

. 2 0 0 9 ) ( c i t a t i o n o m i t t e d )

. W e a g r e e w i t h o u r s i s t e r c i r c u i t s

t h a t i n f o r m a t i o n a b o u t g e n e r a l c h a n g e s i n a c o u n t r y i s i n s u f f i c i e n t ; i n s t e a d

, t h e

d e t e r m i n a t i o n o f w h e t h e r t h e p r e s u m p t i o n i s r e b u t t e d “ r e q u i r e s a n i n d i v i d u a l i z e d

a n a l y s i s t h a t f

o c u s e s o n t h e s p e c i f

i c h a r m s u f

f e r e d a n d t h e r e l a t i o n s h i p t o i t o f t h e

p a r t i c u l a r i n f

o r m a t i o n c o n t a i n e d i n t h e r e l e v a n t c o u n t r y r e p o r t s

. ” C h a n d v

. I N S

,

2 2 2 F

. 3 d 1 0 6 6

, 1 0 7 9 ( 9 t h C i r

. 2 0 0 0 ) ; s e e a l s o G i t i m u

, 5 8 1 F

. 3 d a t 7 7 3 ; U r u c i v

.

H o l d e r

, 5 5 8 F

. 3 d 1 4

, 1 9

– 2 0 ( 1 s t C i r

. 2 0 0 9 ) ; A l i b a s i c v

. M u k a s e y

, 5 4 7 F

. 3 d 7 8

, 8 7

( 2 n d C i r

. 2 0 0 8 ) ( c i t a t i o n o m i t t e d ) ; P a l m a

- M a z a r i e g o s v

. G o n z a l e s

, 4 2 8 F

. 3 d 3 0

, 3 5

9( 1 s t C i r

. 2 0 0 5 ) ; C h e n v

. I N S

, 3 5 9 F

. 3 d 1 2 1

, 1 3 0 ( 2 d C i r

. 2 0 0 4 ) ; B e r i s h a j v

.

A s h c r o f t

, 3 7 8 F

. 3 d 3 1 4

, 3 2 7 ( 3 r d C i r

. 2 0 0 4 ) ( c i t a t i o n o m i t t e d ) ( n o t i n g t h a t t h e F i r s t

,

S e v e n t h

, N i n t h

, a n d T e n t h C i r c u i t s r e q u i r e a n i n d i v i d u a l i z e d a n a l y s i s a n d t h a t o t h e r

c i r c u i t s a p p a r e n t l y “ h a v e h a d n o o c c a s i o n t o c o n s i d e r t h e m a t t e r ” ) ; M o l i n a

E s t r a d a

, 2 9 3 F

. 3 d a t 1 0 9 6 ( c i t a t i o n o m i t t e d ) ; K r a s t e v v

. I N S

, 2 9 2 F

. 3 d 1 2 6 8

,

1 2 7 6

– 7 7 ( 1 0 t h C i r

. 2 0 0 2 ) ; K a c z m a r c z y k v

. I N S

, 9 3 3 F

. 2 d 5 8 8

, 5 9 4 ( 7 t h C i r

. 1 9 9 1 )

. 4

W h i l e t h e r e i s n o b r i g h t l i n e r u l e f o r w h a t c o n s t i t u t e s a “ f

u n d a m e n t a l

c h a n g e

, ” i t m u s t b e a c h a n g e s u f f i c i e n t t o r e b u t t h e p r e s u m p t i o n t h a t a n a l i e n ’ s l i f e

o r f r e e d o m w o u l d b e t h r e a t e n e d u p o n r e t u r n t o t h e c o u n t r y o f o r i g i n

. S e e 8 C

. F

. R

.

§ 2 0 8

. 1 6 ( b ) ( 1 ) ( i ) ( A )

. F o r i n s t a n c e

, t h i s C o u r t h a s f o u n d c h a n g e d c o u n t r y

c o n d i t i o n s w h e r e t h e g o v e r n m e n t e n t e r e d i n t o a p e a c e a c c o r d w i t h t h e g u e r i l l a

g r o u p s a c c u s e d o f p e r s e c u t i n g t h e p e t i t i o n e r

, a n d s u c h g r o u p s h a d b e e n d i s s o l v e d

b y l a w

. M e n d o z a

, 3 2 7 F

. 3 d a t 1 2 8 8

. O t h e r c i r c u i t s h a v e f o u n d t h a t s u b s t a n t i a l 5

e v i d e n c e h a s s u p p o r t e d a f u n d a m e n t a l c h a n g e w h e r e

, f o r e x a m p l e

, t h e r e h a s b e e n a

c h a n g e i n t h e g o v e r n m e n t t h a t p e r s e c u t e d t h e p e t i t i o n e r

, o r w h e r e t h e g r o u p t h a t

I n Shehu v. G onzales , the Fif th Circuit stated it has not decided “ what limitations shoul d be 4

place d on infere nces tha t can be draw n from g ener alized evidence of cha ng ed countr

y

conditions,” but that even if it did “r equire the g overnme nt to neg ate the a pplicant’s individual

fea r of pe rsec ution, the evidence eff ectively neg ates [her] individual fear of perse cution.” 443

F.3d 435, 437 ( 5th Cir. 2006).

We also summarily

held, in the asy lum context , that substantial evidence supported a f inding of 5

chang ed countr

y conditions in Albania. Mehm eti v. U.S. Att’y Gen. , 572 F.3d 1196, 1200 ( 11th

Cir. 2009) (per

curia m).

10p e r s e c u t e d t h e p e t i t i o n e r h a s b e e n t a k e n o u t o f p o w e r

, d i s s o l v e d

, o r a s s i m i l a t e d

i n t o t h e g o v e r n m e n t

. C o u r t s h a v e a l s o f o u n d a f u n d a m e n t a l c h a n g e w h e r e t h e 6

g o v e r n m e n t h a s u n d e r t a k e n s i g n i f i c a n t r e f o r m s t o r e d r e s s p a s t p r o b l e m s

, s u c h a s

p u n i s h i n g p e r s e c u t o r s o r e s t a b l i s h i n g c e r t a i n f r e e d o m s b y l a w

, o r w h e r e t h e

e v i d e n c e d e m o n s t r a t e s a s u b s t a n t i a l d e c l i n e i n v i o l e n c e a g a i n s t p e r s e c u t e d g r o u p s

. 7

See, e .g.

, Milanouic v. Holde r , 591 F.3d 566, 570 ( 7th Cir. 2010) (pre sumption from past 6

perse cution by

Slobodan Milosevic and the Socialist party was re butted by

remova l of Milosevic

from powe r); Gitimu , 581 F.3d a t 774 (presumption from pa st persec ution due to membership in

political party

rebutted w hen the lea der of that party

was e lected Pre sident of Keny a, ther e we re

no repor ts of political killi ng s or ar rests, and pe titioner’s family rema ined in Keny a without

perse cution); Lybesha v. H older , 569 F.3d 877, 881–82 ( 8th Cir. 2009) (pre sumption from past

perse cution due to member ship in Democra tic Party rebutted w here Democr atic Party assumed

power ); Uruci , 558 F.3d a t 18, 19 (same) ; Pascual v. M ukasey , 514 F.3d 483, 488 ( 6th Cir.

2007) (pr esumption from past per secution base d on conscr iption and treatment by civil patrol

and abduc tion by

g uerillas in Guate mala re butted beca use civil war

had ende d and civil patrol

had bee n disbanded); Chreng v. Gonzales , 471 F.3d 14, 22 ( 1st Cir. 2006) (presumption from

past perse cution based on how the People’s Par ty was tre ating members of opposition rebutted

when People’ s Party

was for ced to sha

re pow er w ith the oppositi on, there wer e no re ports of

politically

motivated disappea

ranc es or political prisoner s, and political parties w ere able to

conduct their

activities with relative f

ree dom); Shehu , 443 F.3d a t 439–40 (presumption from

past perse cution at the hands of the Serbian- dominated police or Serbian pa

ramilitary forc es

rebutted w here the Serbs we re no long er in c ontrol of the g overnme nt of Kosovo); PalmaMazariegos , 428 F.3d a t 35–36 (presumption from pa st persec ution from Guatema lan g uerillas

rebutted be cause g uerillas that per secute d petitioner we re a ssimil ated into the g overnme nt and so

did not need to eng ag e in militant activities, and no such ac tiviti es occ urre d); Mullai v. Ashcroft

, 385 F.3d 635, 639 ( 6th Cir. 2004) (pre sumption from past persec ution from Communi st and

Democr atic Party

g overnme nts rebutted bec ause Socia list P arty was in powe r); Y

atskin v. INS.

, 255 F.3d 5, 10 ( 1st Cir. 2001) (presumption from pa st persec ution by Communi st gove rnment

rebutted w ith the dismantli ng of the Soviet Union); W oldemesk el v. I NS. , 257 F.3d 1185, 1188,

1190 (10th Cir. 2001) (pre sumption from past persec ution by former g overnme nt rebutted with

chang e in g overnme nt that had per secute d petitioner and c oncomitant chang e in country

conditions).

See, e .g.

, Sowe v. Muk

asey , 538 F.3d 1281, 1286 ( 9th Cir. 2008) (pre sumption from past 7

perse cution by

members of

the Revolutionary

United Fr ont (“RUF ”) r ebutted whe re me mbers of

RUF ha d been tr ied bef

ore a war crimes tribuna l and wher e the g overnme nt was taking action

ag ainst the g roup); Bollanos v. Gonzales , 461 F.3d 82, 86 ( 1st Cir. 2006) (presumption from pa st

perse cution based on political e ffor ts to advance the rig hts of ethnic minorities rebutted w here

two State Depa

rtment repor

ts stated that that politically -motivated violence “dec rea sed

11F u n d a m e n t a l c h a n g e i s c e r t a i n l y n o t l i m i t e d t o t h e a b o v e e x a m p l e s

, n o r d o s u c h

s i t u a t i o n s a l w a y s r e f

l e c t f u n d a m e n t a l c h a n g e ; i n s t e a d

, i t i s a f a c t

- s p e c i f

i c i n q u i r y

t h a t m u s t b e t a i l o r e d t o t h e p e t i t i o n e r ’ s s i t u a t i o n

, a n d m u s t b e s u f f i c i e n t t o

d e m o n s t r a t e

, i n t h e w i t h h o l d i n g o f r e m o v a l c o n t e x t

, t h a t a p e t i t i o n e r ’ s l i f e o r

f r e e d o m w o u l d n o t b e t h r e a t e n e d i f h e o r s h e w a s r e t u r n e d t o h i s o r h e r c o u n t r y o f

o r i g i n

.

T o s u p p o r t i t s f

i n d i n g t h a t t h e r e h a s b e e n a f u n d a m e n t a l c h a n g e i n c o u n t r y

c o n d i t i o n s i n I n d o n e s i a

, t h e B I A r e l i e d s o l e l y o n t h e 2 0 0 6 C o u n t r y R e p o r t

, s t a t i n g

t h a t a l t h o u g h i t “ i d e n t i f i e s a f e w s p o r a d i c i n c i d e n t s o f t e n s i o n b e t w e e n r e l i g i o u s

g r o u p s

, [ i t ] a l s o i n d i c a t e s t h a t t h e r e h a v e b e e n i m p r o v e m e n t s i n t h e r e l a t i o n s

b e t w e e n r e l i g i o u s g r o u p s

. ” A

. R

. 4

. T h e o p i n i o n a s s e r t s t h a t t h e i n c i d e n t s o f

c o n f l i c t i n t h e R e p o r t d o n o t r i s e t o t h e l e v e l o f p e r s e c u t i o n

. F u r t h e r m o r e

, t h e B I A

f o u n d t h a t “ a l t h o u g h t h e r e i s o n g o i n g d i s c r i m i n a t i o n a g a i n s t I n d o n e s i a n s o f

C h i n e s e e t h n i c i t y

, ‘ [ i ] n s t a n c e s o f d i s c r i m i n a t i o n a n d h a r a s s m e n t o f e t h n i c C h i n e s e

c o n t i n u e d t o d e c l i n e c o m p a r e d w i t h p r e v i o u s y e a r s

. ’ ” I d

. ( a l t e r a t i o n i n o r i g i n a l )

( q u o t i n g 2 0 0 6 C o u n t r y R e p o r t )

. C o n s e q u e n t l y

, t h e B I A h e l d t h a t “ t h e r e h a s b e e n a

signific antly ,” ele ctions were conducte d under a new e lectora l code that a ddresse d many of the

problems from pr evious elec tions, elections wer e g ener ally fre e of violenc e with no police

interfe renc e, the c andidate r epre senting the Gre ek minority (petitioner’ s cousin) won e lections in

his hometown, and Gre eks par ticipated ac tively

in politi cs); Kharkhan v. Ashcroft , 336 F.3d 601,

603, 605 (7th Cir. 2003) (pre sumption from past persec ution because petitioner wa s not allowed

to go to c hurch w as re butted beca use Ukra ine has since permitted Catholic chur ches to ope rate in

the country , and its constitution was amended to g uara ntee r elig ious free dom to all).

12f

u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s s u c h t h a t t h e r e s p o n d e n t h a s n o t e s t a b l i s h e d

t h a t s h e i s m o r e l i k e l y t h a n n o t t o f a c e p e r s e c u t i o n i n I n d o n e s i a

. ” I d

.

A c c o r d i n g t o t h e R e p o r t

, a c t s o f v i o l e n c e a n d d i s c r i m i n a t i o n a g a i n s t

C h r i s t i a n s h a s l e s s e n e d f r o m p r e v i o u s y e a r s

, w i t h s u p p o r t f r o m t h e g o v e r n m e n t

, i n

t h e p r o v i n c e s o f C e n t r a l S u l a w e s i a n d M a l u k u

. T h e R e p o r t r e l a t e s t h a t

“ [ r ] e l i g i o u s l y m o t i v a t e d v i o l e n c e

. . . i n C e n t r a l S u l a w e s i

, M a l u k u

, a n d N o r t h

M a l u k u o c c u r r e d l e s s f

r e q u e n t l y t h a n i n p r e v i o u s y e a r s

, ” t h a t “ [ r ] e l i g i o u s a n d

e t h n i c c o n f

l i c t i n C e n t r a l S u l a w e s i a b a t e d s o m e w h a t d u r i n g t h e y e a r

, ” a n d t h a t

“ M a l u k u P r o v i n c e s a w g r e a t l y r e d u c e d e t h n i c a n d r e l i g i o u s t e n s i o n s d u r i n g t h e

y e a r

, ” w i t h c o o p e r a t i o n a m o n g r e l i g i o u s l e a d e r s

. A

. R

. 1 1 6

, 1 1 7

, 1 2 8

– 2 9

. T h e

R e p o r t n o t e s t h a t t h e “ [ g ] o v e r n m e n t a n d p o l i c e c o n t i n u e d t o m a k e s o m e p r o g r e s s

i n h a n d l i n g c o n f

l i c t s i n C e n t r a l S u l a w e s i a n d M a l u k u ” b y c a p t u r i n g s u s p e c t s i n

c e r t a i n a t t a c k s o n C h r i s t i a n s

, a n d t h a t n o n

- g o v e r n m e n t a l o r g a n i z a t i o n s ( “ N G O s ” )

a i d e d i n e n c o u r a g i n g c o o p e r a t i o n b e t w e e n r e l i g i o u s g r o u p s

. I d

. a t 1 1 6

, 1 2 7

. T h e 8

R e p o r t r e c o r d s a d e c l i n e i n m u r d e r s i n C e n t r a l S u l a w e s i f r o m t h i r t y

- s e v e n i n 2 0 0 5

t o e i g h t

, a n d a d e c l i n e i n i n j u r i e s f r o m 1 0 4 t o t h r e e

, d u e i n p a r t t o i n c r e a s e d p o l i c e

p r e s e n c e i n t h e p r o v i n c e

. I d

. a t 1 1 6

. F i n a l l y

, t h e g o v e r n m e n t p a s s e d a l a w i n

r e s p o n s e t o a t t a c k s o n u n r e g i s t e r e d h o u s e s o f w o r s h i p

, a l l o w i n g a p e r m i t f o r a

The Repor

t also notes that overa ll, “police prof essionalism remained low, a s did their respe ct 8

for human r ights a

nd eff ectivene ss at investiga ting human r ights a buses.” A.R. 120.

13h o u s e o f w o r s h i p t o b e i s s u e d i f i t i s p e t i t i o n e d i n a s i g n e d s t a t e m e n t b y a t l e a s t

n i n e t y c o n g r e g a t i o n m e m b e r s a n d s i x t y o t h e r c o m m u n i t y m e m b e r s

. I d

. a t 1 2 7

.

H o w e v e r

, s o m e c r i t i c i z e d t h e n e w l a w f o r s t i l l r e q u i r i n g c o n s e n t b y c o m m u n i t y

m e m b e r s a n d f

o r t h e h i g h n u m b e r o f c o n g r e g a t i o n m e m b e r s r e q u i r e d t o s i g n t h e

p e t i t i o n

. I

d

.

B e s i d e s t h i s l a w

, t h e R e p o r t d o e s n o t m e n t i o n c h a n g e s f o r C h r i s t i a n s i n a n y

o t h e r p a r t s o f I n d o n e s i a

, s u c h a s w h e r e I m e l d a h a d l i v e d

, o r e v e n t h e c o u n t r y

g e n e r a l l y

. W h e n i t d o e s m e n t i o n I n d o n e s i a g e n e r a l l y

, t h e R e p o r t e x p l a i n s t h a t

9

a m o n g t h e “ h u m a n r i g h t s p r o b l e m s o c c u r r [ i n g ] d u r i n g t h e y e a r ” w a s “ i n t e r f e r e n c e

w i t h f r e e d o m o f r e l i g i o n b y p r i v a t e p a r t i e s

, s o m e t i m e s w i t h c o m p l i c i t y o f l o c a l

o f f i c i a l s ” a n d “ i n t e r c o m m u n a l r e l i g i o u s v i o l e n c e

. ” I d

. a t 1 1 4

. F u r t h e r m o r e

, t h e

I n d o n e s i a n g o v e r n m e n t p a s s e d a l a w r e a f f i r m i n g t h e l o n g s t a n d i n g r e q u i r e m e n t t h a t

t h e N a t i o n a l I d e n t i t y C a r d ( “ K T P ” )

, w h i c h a l l c i t i z e n s m u s t c a r r y

, i d e n t i f y t h e

h o l d e r ’ s r e l i g i o n

. A c c o r d i n g t o s o m e N G O s

, t h i s r e q u i r e m e n t “ e n d a n g e r e d

c a r d h o l d e r s w h o t r a v e l e d t h r o u g h a r e a s o f i n t e r r e l i g i o u s c o n f l i c t

. ” I d

. a t 1 2 3

. T h e

g o v e r n m e n t a l s o “ t o o k n o c o n c r e t e s t e p s t o i m p l e m e n t c o n t r o v e r s i a l p r o v i s i o n s ” o f

The Repor

t does state that in Marc h 2006, in South S ulawesi, 100 membe rs of the militant 9

I slamic g roup L askar

J undullah ransa cked the office of two for eig n university lecture rs and long

time residents bec ause the y translated the Bible into the loca l dialect. The local police dispe rsed

the cr owd af

ter a llowing them to sea

rch the office . A.R. 127. I n September 2005, a court in

West J ava se ntence d three women to three y ear s in prison for prose ly tiz ing be cause they

included Muslim children (with par ental per mission) in C hristian Sunday school ac tiviti es. Id.

I n Madura , a non-I ndonesian a nd a citizen wer e ar

rested f or cor rupting the Muslim communit y

. Id.

14a n e d u c a t i o n l a w t h a t w o u l d r e q u i r e r e l i g i o u s i n s t r u c t i o n t o s t u d e n t s i n t h e i r o w n

f a i t h

. I d

. a t 1 2 7

.

M o r e o v e r

, a l t h o u g h t h e R e p o r t i l l u s t r a t e s t h a t t e n s i o n s m a y h a v e “ a b a t e d

s o m e w h a t ” o r “ o c c u r r e d l e s s f r e q u e n t l y ” i n t h e C e n t r a l S u l a w e s i a n d M a l u k u

P r o v i n c e s

, i t a l s o m a k e s c l e a r t h a t a c t s o f v i o l e n c e d i r e c t e d a t C h r i s t i a n s s t i l l

o c c u r r e d i n t h o s e a r e a s

. F o r i n s t a n c e

, t h e R e p o r t e x p l a i n e d t h a t “ C e n t r a l S u l a w e s i

c o n t i n u e d t o e x p e r i e n c e s p o r a d i c b o m b i n g s

, s h o o t i n g s

, a n d o t h e r v i o l e n c e

. ” I d

. a t

1 2 9

. T h i s i n c l u d e d a b o m b d e t o n a t e d i n a n e m p t y c h u r c h i n P o s o a n d t h e k i l l i n g o f

a r e v e r e n d i n C e n t r a l S u l a w e s i

. I d

. a t 1 1 6

, 1 2 9

. A C h r i s t i a n w o m a n w a s s t a b b e d

a n d k i l l e d w h i l e r i d i n g p u b l i c t r a n s p o r t a t i o n t h r o u g h a p r e d o m i n a n t l y M u s l i m a r e a

o f P o s o C i t y

. I

d

. a t 1 1 6

. I n 2 0 0 5

, a b u s a t t a c k b y M u s l i m r e s i d e n t s k i l l e d f o u r a n d

i n j u r e d f o u r t e e n C h r i s t i a n p a s s e n g e r s i n t h e A m b o n d i s t r i c t

, a n d t h r e e C h r i s t i a n

s c h o o l g i r l s w e r e b e h e a d e d i n C e n t r a l S u l a w e s i

. I d

. a t 1 1 6

, 1 1 7

. I n 2 0 0 4

, t w o

c h u r c h e s w e r e b o m b e d

, t w o C h r i s t i a n p r i e s t s w e r e m u r d e r e d

, a n d a P e n t e c o s t a l

m i n i s t e r w a s a b d u c t e d i n M a l u k u P r o v i n c e

. I d

. a t 1 1 8

.

A f t e r e x a m i n i n g t h e r e c o r d

, w e a r e c o m p e l l e d t o c o n c l u d e t h a t t h e

g o v e r n m e n t h a s n o t m e t i t s b u r d e n o f d e m o n s t r a t i n g a f u n d a m e n t a l c h a n g e i n

c o u n t r y c o n d i t i o n s s u c h t h a t I m e l d a ’ s l i f e o r f r e e d o m w o u l d n o t b e t h r e a t e n e d

u p o n r e m o v a l t o I n d o n e s i a b a s e d o n h e r r e l i g i o n

. T h e B I A d i d n o t e n g a g e i n a

s u f f i c i e n t

, i n d i v i d u a l i z e d a n a l y s i s

. W h i l e i t d i s c u s s e d t h e t r e a t m e n t o f C h r i s t i a n s

15a n d C h i n e s e i n I n d o n e s i a

, w h i c h i s t a i l o r e d t o I m e l d a ’ s c l a i m s o f p e r s e c u t i o n

, t h e

2 0 0 6 C o u n t r y R e p o r t o n l y r e c o r d s i m p r o v e m e n t s i n t h e p r o v i n c e s o f C e n t r a l

S u l a w e s i a n d M a l u k u

. I t m a k e s n o m e n t i o n o f I m e l d a ’ s h o m e p r o v i n c e

, t h e

M i n a h a s a D i s t r i c t o f N o r t h S u l a w e s i

, w h e r e h e r p a s t i n c i d e n t s o f p e r s e c u t i o n

o c c u r r e d

, n o r d o e s i t d i s c u s s i m p r o v e m e n t s f o r C h r i s t i a n s g e n e r a l l y i n I n d o n e s i a

.

F u r t h e r m o r e

, w h i l e t h e r e i s a n i n d i c a t i o n o f i m p r o v e m e n t i n t h o s e p r o v i n c e s

,

t h e R e p o r t m a k e s c l e a r t h a t r e l i g i o u s v i o l e n c e s t i l l o c c u r s

. S e e

, e

. g

. , C h a n d

, 2 2 2

F

. 3 d a t 1 0 7 9 ( “ I t i s n o t s u r p r i s i n g t h a t w h i l e r a c i a l o r r e l i g i o u s c o n d i t i o n s m a y h a v e

i m p r o v e d g e n e r a l l y

, a n u m b e r o f i n d i v i d u a l s m a y c o n t i n u e t o b e s u b j e c t e d t o a c t s

o f p e r s e c u t i o n o n a r e g u l a r b a s i s

. I t m a y b e t r u e t h a t i n s o m e r e g i o n s o f t h e c o u n t r y

c o n d i t i o n s a r e b e t t e r t h a n i n o t h e r s

, o r e v e n t h a t t h e r e a r e s o m e v i l l a g e s i n w h i c h

p e r s e c u t i o n r e i g n s a n d o t h e r s i n w h i c h i t i s e n t i r e l y a b s e n t

. ” ) ; A l i v

. A s h c r o f t

, 3 9 4

F

. 3 d 7 8 0

, 7 8 9 ( 9 t h C i r

. 2 0 0 5 ) ( “ W e h a v e r e p e a t e d l y f o u n d t h a t t h e D H S h a s n o t

r e b u t t e d t h e p r e s u m p t i o n o f a w e l l

- f o u n d e d f e a r o f p e r s e c u t i o n w h e n e v i d e n c e i n

c o u n t r y r e p o r t s i n d i c a t e s t h a t p e r s e c u t i o n s i m i l a r t o t h a t e x p e r i e n c e d b y t h e

p e t i t i o n e r s t i l l e x i s t s

. ” ) ; A w a l e v

. A s h c r o f t

, 3 8 4 F

. 3 d 5 2 7

, 5 3 1 ( 8 t h C i r

. 2 0 0 4 )

( n o t i n g t h a t w h i l e g e n e r a l c o n d i t i o n s m a y h a v e i m p r o v e d i n S o m a l i a

, i n h a b i t a n t s

o f t h e s p e c i f

i c a r e a i n w h i c h p e t i t i o n e r h a d l i v e d s t i l l e x p e r i e n c e d p e r s e c u t i o n )

.

W h i l e w e d o n o t r e q u i r e u n r e a l i s t i c s p e c i f i c i t y f r o m t h e g o v e r n m e n t i n

e s t a b l i s h i n g c h a n g e d c o n d i t i o n s

, i t i s i n s u f f i c i e n t t o p o i n t t o t w o r e g i o n s i n a

16c o u n t r y

— r e g i o n s i n w h i c h t h e p e t i t i o n e r d i d n o t l i v e

— a n d c o n c l u d e t h a t

f u n d a m e n t a l c h a n g e s h a v e o c c u r r e d b e c a u s e t h e r e w e r e s o m e i m p r o v e m e n t s i n

t h o s e r e g i o n s

.

I n i t s a n a l y s i s f

o r f u n d a m e n t a l c h a n g e s i n c i r c u m s t a n c e s f o r e t h n i c C h i n e s e

i n I n d o n e s i a

, t h e B I A a l s o r e l i e d o n t h e 2 0 0 6 C o u n t r y R e p o r t

. T h e R e p o r t s t a t e s

t h a t “ [ i ] n s t a n c e s o f d i s c r i m i n a t i o n a n d h a r a s s m e n t o f e t h n i c C h i n e s e c o n t i n u e d t o

d e c l i n e c o m p a r e d w i t h p r e v i o u s y e a r s

, ” a n d t h a t “ [ r ] e c e n t r e f o r m s i n c r e a s e d

r e l i g i o u s a n d c u l t u r a l f

r e e d o m s

. ” I

d

. a t 1 3 8

. T h e s t a t e m e n t t h a t h a r a s s m e n t

1 0

a g a i n s t C h i n e s e h a s “ c o n t i n u e d t o d e c l i n e ” f r o m p r e v i o u s y e a r s d o e s n o t i n d i c a t e

t h e e x t e n t t o w h i c h i t h a s d e c l i n e d

, a n d t h e g o v e r n m e n t f a i l e d t o p r o f

f e r a n y

e v i d e n c e i n t h e r e c o r d o f o t h e r S t a t e D e p a r t m e n t r e p o r t s t h a t c o u l d h a v e t r a c k e d

t h i s d e c l i n e

. T h e R e p o r t a l s o d o e s n o t m a k e a n y m e n t i o n o f t h e t r e a t m e n t o f e t h n i c

C h i n e s e w h o a r e a l s o C h r i s t i a n s

. 1 1

G i v e n o u r c o n s i d e r a t i o n o f t h e e v i d e n c e

, w e a r e c o m p e l l e d t o f i n d t h a t t h e

The re forms we re the revoc ation of a pr evious preside ntial decr ee r equiring specia l permits to 1 0

eng ag e in Chinese cultura l and re ligious ce lebra tions, and a newcitizenship l aw whic h states that

an I ndonesian c itiz enship ce rtificate , which had be en diffic ult for ethnic Chinese to obtain, wa s

no longe r re quired. A.R. 138. Howeve r, the Repor t also notes that public serva nts stil l

discriminated ag ainst some ethnic Chinese in issuing ma rriag e license s and other se rvice s. The

Report found fif

ty article s of law, r eg ulations, or decr ees tha t discriminated ag ainst Chinese

citizens. Id. Fur

thermore , the Report re counted two incide nts of threa ts and violent protests in

2006 ag ainst ethnic Chinese ba sed on suspec ted involvement of two e thnic Chinese in crimes

ag ainst their employ ees. Id.

I n her te stimony , I melda mentioned that those w ho hara ssed her in 1988 did not li ke 1 1

Christians, especia lly

those who ar e Chinese. She a lso stated that the police would not have

helped he r with the 1995 incident be cause she wa s Christian and Chinese.

17g o v e r n m e n t f a i l e d t o m e e t i t s b u r d e n o f p r o o f t o s h o w

, b y a p r e p o n d e r a n c e o f t h e

e v i d e n c e

, t h a t t h e r e h a s b e e n a f u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s i n I n d o n e s i a

s u c h t h a t I m e l d a n o l o n g e r f a c e d a t h r e a t t o h e r l i f

e o r f r e e d o m b a s e d o n h e r

r e l i g i o n a n d r a c e

. A l t h o u g h t h e i m p r o v e m e n t s i n I n d o n e s i a a r e i m p o r t a n t

,

s u b s t a n t i a l e v i d e n c e d o e s n o t s u p p o r t t h e c o n c l u s i o n t h a t t h e i m p r o v e m e n t s

d i s c u s s e d i n t h e 2 0 0 6 C o u n t r y R e p o r t r e b u t t e d t h e p r e s u m p t i o n o f a f u t u r e t h r e a t t o

I m e l d a ’ s l i f

e o r f r e e d o m

. W e n o t e t h a t t h e 2 0 0 6 C o u n t r y R e p o r t w a s t h e m o s t

r e c e n t e v i d e n c e a n d t h e o n l y S t a t e D e p a r t m e n t r e p o r t i n t h e r e c o r d

. I t i s p o s s i b l e

t h a t m o r e e v i d e n c e

, s u c h a s p r i o r S t a t e D e p a r t m e n t r e p o r t s

, w o u l d d e m o n s t r a t e

c h a n g e d c o n d i t i o n s i n I n d o n e s i a

, b u t w e d e t e r m i n e t h i s c a s e o n t h e r e c o r d b e f o r e

u s

.

C

. R e l o c a t i o n

N e i t h e r t h e B I A n o r t h e I J c o n s i d e r e d w h e t h e r I m e l d a “ c o u l d a v o i d a f u t u r e

t h r e a t t o [ h e r ] l i f

e o r f r e e d o m b y r e l o c a t i n g t o a n o t h e r p a r t o f [ I n d o n e s i a ] a n d

,

u n d e r a l l t h e c i r c u m s t a n c e s

, i t w o u l d b e r e a s o n a b l e t o e x p e c t [ h e r ] t o d o s o

. ” 8

C

. F

. R

. § 2 0 8

. 1 6 ( b ) ( 1 ) ( i ) ( B )

. T h e r e f o r e

, w e r e m a n d f

o r c o n s i d e r a t i o n o f t h i s i s s u e

.

I V

. C O N C L U S I O N

B a s e d o n t h e f

o r e g o i n g

, w e G R A N T t h e p e t i t i o n

, V A C A T E t h e d e c i s i o n o f

t h e B I A

, a n d R E M A N D t o t h e B I A f o r f u r t h e r p r o c e e d i n g s c o n s i s t e n t w i t h t h i s

o p i n i o n

.

18T J O F L A T

, C i r c u i t J u d g e

, s p e c i a l l y c o n c u r r i n g :

G i v e n t h e c o n f

u s i o n t h e B o a r d o f I m m i g r a n t A p p e a l s ( “ B I A ” ) d e m o n s t r a t e d

i n s t a t i n g t h e s t a n d a r d u n d e r w h i c h i t r e v i e w e d t h e i m m i g r a t i o n j u d g e ’ s ( “ I J ” )

d e c i s i o n d e n y i n g I m e l d a ’ s a p p l i c a t i o n f o r r e l i e f u n d e r t h e I m m i g r a t i o n a n d

N a t i o n a l i t y A c t ( “ I N A ” )

, I w r i t e s e p a r a t e l y t o r e i t e r a t e t h e s t r a i g h t f o r w a r d 1

s t a n d a r d t h a t t h e B I A s h o u l d a p p l y o n r e m a n d

. I f t h e B I A d e c i d e s t h a t I m e l d a

s u f f e r e d p a s t p e r s e c u t i o n

, o r a s s u m e s t h a t s h e d i d

, t h e B I A m u s t i n q u i r e w h e t h e r

t h e G o v e r n m e n t h a s s h o w n b y a p r e p o n d e r a n c e o f t h e e v i d e n c e t h a t “ [ t ] h e r e h a s

b e e n a f u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s s u c h t h a t [ I m e l d a ’ s ] l i f e o r f r e e d o m

w o u l d n o t b e t h r e a t e n e d o n a c c o u n t o f ” h e r C h i n e s e e t h n i c i t y o r C h r i s t i a n r e l i g i o n

o r t h a t s h e “ c o u l d a v o i d a f u t u r e t h r e a t t o

. . . h e r l i f e o r f r e e d o m b y r e l o c a t i n g t o

a n o t h e r p a r t o f [ I n d o n e s i a ] a n d

, u n d e r a l l t h e c i r c u m s t a n c e s

, i t w o u l d b e r e a s o n a b l e

t o e x p e c t [ I m e l d a ] t o d o s o

. ” S e e 8 C

. F

. R

. § 2 0 8

. 1 6 ( b ) ( 1 ) ( i )

. I f t h e B I A

, h o w e v e r

,

a g r e e s w i t h t h e I J ’ s f

i n d i n g t h a t I m e l d a d i d n o t s u f f e r p a s t p e r s e c u t i o n

, t h e i n q u i r y

w o u l d b e w h e t h e r I m e l d a m e t h e r “ b u r d e n o f e s t a b l i s h i n g t h a t i t i s m o r e l i k e l y t h a n

n o t ” t h a t h e r l i f

e o r f r e e d o m w o u l d b e t h r e a t e n e d o n t h e b a s i s o f h e r e t h n i c i t y o r

The B I A beg an its discussion by assuming pa st persec ution. There a re two pr oblems with the 1

BI A’s stateme nt of the law. F irst, in reviewing I melda’s a

pplication for withholding of re moval,

it stated that there ha s been “ a funda mental cha

ng e in circ umstances suc h that [I melda] no longe r

has a w ell-founde d fea

r of pe rsec ution in I ndonesia,” which, as the court notes, is the standa rd

for g ranting an asy

lum application, not withholding of re moval. (Emphasis adde d). Second, in

concluding , it states that I melda ther efor e has “ not established that she is more likely than not to

fac e per secution.” The court c laims that this i s the standar d for withholding of re moval. As I

clar ify in the text , howeve r, that is not the corr ect standa rd if the B I A assumes pa st persec ution.

19r e l i g i o n

. I d

. § 2 0 8

. 1 6 ( b ) ( 1 ) ( i i i )

.

I a g r e e t h a t o n t h e c u r r e n t a p p e a l t h e B I A ’ s d e c i s i o n m u s t b e v a c a t e d ; I

w o u l d m a k e c l e a r t h a t t h i s d e c i s i o n s h o u l d b e r e a c h e d o n t h e n a r r o w g r o u n d t h a t

t h e S t a t e D e p a r t m e n t ’ s 2 0 0 6 C o u n t r y R e p o r t o n I n d o n e s i a

— t h e s o l e e v i d e n c e

r e l i e d u p o n b y t h e B I A

— d o e s n o t a t a l l a d d r e s s t h e s i t u a t i o n o f C h i n e s e o r

C h r i s t i a n p e r s o n s i n I m e l d a ’ s p r o v i n c e o f N o r t h S u l a w e s i

. T h e r e f o r e

, i f t h e B I A 2

f i n d s o n r e m a n d t h a t I m e l d a s u f f e r e d p a s t p e r s e c u t i o n ( o r a s s u m e s t h a t s h e d i d )

, t h e

2 0 0 6 C o u n t r y R e p o r t b y i t s e l f w o u l d b e i n s u f f i c i e n t f o r t h e G o v e r n m e n t t o m e e t i t s

b u r d e n o f s h o w i n g a f

u n d a m e n t a l c h a n g e i n c i r c u m s t a n c e s

.

There are 33 province s in I ndonesia, e ach w ith its own local g overnme nt. As the court notes, 2

the 2006 Country

Report desc ribes Centra l Sulawesi and Maluku as a rea s where tensions have

ease d. Central Sulawesi a nd Maluku are province s distinct from North Sulawesi; neither sha res

a borde r with North Sulawesi.

20