FIL ED U.S. COURT OF APPEAL S EL EVENTHCI RCUI T NOV 18, 2008 THOMAS K. KAH

N CL ERK [DO NOT PUBLISH] IN THE UN ITED STATES COURT OF APPEALS FOR THE ELE VENTH CIRCUIT

__ __ __ __ __ __ __ __ __ __ __ __ No. 0 8- 12 22 9 Non -Arg um en t Ca le nd ar

__ __ __ __ __ __ __ __ __ __ __ __ Age nc y Nos . A98 -7 36 -4 32 A98 -7 36 -4 33 CARLOS VINCENZO DAMATO-SIFONTES, KATIUSKA JOSEFINA DAMATO-PUERTAS, KATHRYN AL EJANDRA DAMATO-PUERTAS, Pet it io ne rs , ve rs us U.S. ATTO RNEY GENERAL, 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

__ __ __ __ __ __ __ __ __ __ __ __ _ (No ve m ber 1 8, 2 00 8) Befo re WILSON, PRYOR an d KRAVITC H, Circ ui t Jud ge s. PER CURI AM: Carl os Dam at o- Si fo nt es an d h is fam il y , nat iv es an d c it iz en s o f Ven ezu el a,pe ti ti on th is Co urt fo r rev ie w of the de ci si on of t he Bo ardof I m m ig rat io n Ap pe al s th atde ni edDam at o- Si fo nt es ’s m ot io n t o re co ns id er. Dam at o- Si fo nt es arg ue s tha t th e Bo ardfai le d t o c on si de r th e st at em en ts inhi s wri tt enap pl ic at io n t ha t h e h ad be enpe rs ecu te d b ecau se he op po se d t he Hug o C ha ve z g ov ern m en t. We gran t the pe ti ti on to Dam at o- Si fo nt es , bu t d en y th e p et it io n t o h is wife an d d au gh te r, va cat e th e d en ia l o f th e m ot io n t o re co ns id er, an d re m an d fo r fu rth er p ro ceed in gs . I. BACK GROUND Dam at o- Si fo nt es , hi s wi fe, Kat iu sk a Dam at o- Pu ert as , andth ei r daug ht er, Kath ryn Dam at o- Pu ert as , were ad m it te d t o the Uni te d S tate s i n Dec em be r 20 03 as no ni m m ig ran t v is it or s. InApri l 2 00 5, Dam at o- Si fo nt es , onbe ha lf o f hi m se lf, h is wife , andth ei r m in ordaug ht er, fi le d a n app li cat io n fo r as y lu m an d wi th ho ld in g o f
rem ov al un de r th e Imm ig rat io n andNati on al ity Act an d t he Uni te d Nat io ns Co nv en ti on Agai ns t To rtu re an d Othe r Cru el , Inh um an , or Deg rad in g Tre atm en t orPuni sh m en t. The y

so ug htrel ie f ba se d o n the ir p ol it ic al op in io n a nd
m em be rs hi p i n apa rti cu lar so ci al gro up . Inanad de ndum

to th e ap pl ic at io n, Dam at o- Si fo nt es all eg edth athe was ha ras se d a ndlat er p ers ecu te d fo r hi s o pp os it io n t o t he Ch av ez g ov ern m en t. Dam at o- Si fo nt es all eg edth at , as asub- in sp ect orof t he Vene zu el anInt el li ge nc e an d P rev en ti on Serv ic es , he a ss is te d i n t he de featof aco up d’eta t b y Hug o C ha ve z in 19 92 . After C ha ve z was ele ct edpre si de ntin19 98 , Dam at o- Si fo nt es was 2in te rro ga te d, ca ll eda tr ai to r, an d fo rcedto ret ire . After r et ire m en t, the go ve rn m en t

fai le d t o d ep os ithi s p en si on an d re qu ire d h im to tra ve l t o C arac as to up da te hi s pe rs on al in fo rm at io n. Lat er, a p ol ic e o ffi ci al cal le d Dam at o- Si fo nt es an d t ol d h im he di d n otde se rv e to dra w a pe ns io n, b utth atin te rn al reg ul at io ns requi redth e po li ce t o p ay

th e b en efi ts . Dam at o- Si fo nt es all eg edth ataft er h is ret ire m en t, h e b ecame a “ m il it an t,” bu t n ota “ m em

be r,” o f a p ol it ic al org an iz at io n c al le d Dem oc rat ic Acti on th at op po se d t he Ch av ez re gi m e. He di st rib ut edpro pa gand a an d a tt en de d s ix or s ev en de m on st rat io ns in20 02 an d 2 00 3 t o o pp os e th e Ch av ez g ov ern m en t. Dam at oSi fo nt es pa rti ci pa te d i n t he de m on st rat io ns witho utin ci de nt . Dam at o- Si fo nt es all eg edth athi s s itua ti on ch an ge d a fte r he de m on st rat edat th e Alt am iraPla za i n C arac as on Feb ru ary 4, 2 00 3. Enrou te ho m e th e n ex t d ay , a jeep th atres em

bl edanoff

ic ia l v eh ic le of t he Vene zu el anpo li ce b eg anto pa ss hi s car. Dam at o- Si fo nt es saw ape rs on weari ng a ba la cl av a le an in g o utof t he jeep ho ld in g afir earm . Dam at o- Si fo nt es sl amm edon hi s b reak s an d m ad e a U-turn, th enhe ardgu nf

ire . He sp edaway

an d re st edat adi st an t g as st at io n fo r th e res t o f th e ev en in g. Dam at o- Si fo nt es su sp ect edin it ia ll y th atth e in ci de ntwas an at te m pt edrob be ry , bu t the ne xtda y he rece iv edanan on y

m ou s p ho ne cal l an d a
m ansai d, “ Youwere s av ed , damn ‘esc ua li do ’ . . . butne xtti m e we wil l b urn d own y ou r fam il y

an d you , if you k eep go in g t o Al ta m ira .” Dam at o- Si fo nt es expl ai ne d
3in th e ad de ndum th atth e te rm

“ es cu al id o” was “ a te rm

us edto all ud e [t o] th e en em ie s o f th e g ov ern m en t.” Dam at o- Si fo nt es all eg edth athe an d h is fam il y m ad e p rep arat io ns to lea ve th e co un try, butth e g ov ern m en t re fu se d t o g iv e Dam at o- Si fo nt es hi s p as sp ort. Dam at o- Si fo nt es tra ve le d t o C arac as an d h idinth e h om e o f hi s m ot he r-i n- law un ti l h e was ab le to ob ta in th e p as sp ort. Aft er Dam at o- Si fo nt es ob ta in eda vi sa fro m th e Am eri canEm

ba ss y , he a ndhi s fa m il y

fle d t o t he Uni te d S ta te s. Aft er th ei r arri va l, the Vene zu el ango ve rn m en t ce as edpa y in g Dam at o- Si fo nt es ’s pe ns io n. At the he ari ng , Dam at o- Si fo nt es di d n otex pl ai n t ha t the an on ym ou s ca ll er th reat en edhi m

be cau se of h is act iv it ie s atAlt am ira . Dam at o- Si fo nt es de sc rib ed th e sh oo ti ng an d h is esc ap e an d b la m edth e Ven ezu el anpo li ce. Whenqu es ti on ed ab ou t the tel ep ho ne cal l, Dam at o- Si fo nt es tes ti fie d t ha t h e rec ei ve d acal l tha t reg is te redon hi s ca ll er i de nt ifi cat io n a s “ res tri ct ed ” an d t ha t the m es sa ge co nt ai ne d d eath thr eat s. The imm ig rat io n ju dg e ru le d t ha t Dam at o- Si fo nt es ’s app li cat io n fo r as y lu m was un ti m el y

an d, i n t he alt ern at iv e, th e ap pl ic at io n fa il edon th e m eri ts . The jud ge di d n otm ak e anadve rs e fi nd in g abo utDam at o- Si fo nt es ’s cred ib il ity , bu t the jud ge st at edth ata m em o fr om th e Ven ezu el anMi ni stry of I nt eri orRel at io ns , whi chst at edth atDam at o- Si fo nt es was “ gi ve n t he be ne fitof r et ire m en t b y way of
4gr ace” an d c on ve y ed“ feel in gs of c on si de rat io n andest eem ” an d g rat itud e fo r hi s

“ in va lu ab le servi ces ,” su gg es te d t ha t Dam at o- Si fo nt es was n ot“pe rcei ve d of fic ia ll y as atra it or. . . .” The i m m ig rat io n ju dg e al so fou nd“ si gn ifi can t” th at Dam at o- Si fo nt es di d n ot“ m en ti on an y pro bl em s” durin g h is de m on st rat io ns in 20 02 an d 2 00 3. The i m m ig rat io n ju dg e cre di te d Dam at o- Si fo nt es ’s tes ti m on y th atsh ot s were fi redat h im

an d t ha t h e rec ei ve d atel ep ho ne cal l the ne xtda y fro m an un id en ti fie d c al le r, bu t the jud ge di d n otm en ti on th e al le ga ti on s m ad e b y Dam at oSi fo nt es inhi s ap pl ic at io n t ha t the cal le r at tri bu te d t he in ci de ntto th e p ol it ic al act iv it ie s atAlt am ira . The i m m ig rat io n ju dg e ru le d t ha t Dam at o- Si fo nt es ’s ret ire m en t an d p ro bl em s re ga rd in g h is pe ns io n p aym en ts co ns ti tu te d h aras sm en t. The im m ig rat io n ju dg e fo un d t ha t the re was “no ha rdev id en ce” t o e st ab li shth at Dam at o- Si fo nt es “ ev er h adan y pro bl em s i n Ven ezu el a fo r an y of t he fiv e pr ev io us ly enu m erat edgro un ds .” The ju dg e al so fou ndth ere was “ no co rro bo rat in g e vi de nc e to in di cat e th atan y of t he st at em en ts th at[Dam at oSi fo nt es ] m ad e h ap pe ne d.” In re ga rdto th e sh oo ti ng , th e co urt fo un d t ha t “ th ere [was ] no ev id en ce wh at so ev er tha t thi s h adan yth in g t o d o wi th on e o f th e fi ve pr ev io us ly enu m erat edgro un ds or o f who di d i t an d wh y .” The Bo ardof I m

m ig rat io n Ap pe al s d is m is se d t he ap pe al by D am at oSi fo nt es an d h is fam il y . The Bo ardaffi rm edth atth e ap pl ic at io n fo r as y lu m was 5un ti m el y

an d fo un d t ha t Dam at o- Si fo nt es an d h is fam il y fai le d t o e st ab li sh th at co nd it io ns ha d c ha ng edinVene zu el a to ex cu se th e unt im el y ap pl ic at io n. Th e Bo ardth enco ns id eredth e m eri ts of Da m at o- Si fo nt es ’s app li cat io n fo r withh ol di ng of r em ov al an d re li ef u nd er the Co nv en ti on . The Bo ard“ as su m e[d ] fo r pu rp os es of a dju di cat in g the ap pe al th at[Dam at o- Si fo nt es ] te st ifi edcred ib ly,
an d a ffi rm [ed ]” the co nc lu si on of t he imm ig rat io n ju dg e th atDam at o- Si fo nt es

“ fai le d t o m eethi s b ur de n o f pr oo f es tabl is hi ng th atitis m or e li ke ly than n otth at he wil l b e p ers ecu te d o n a cco un t o f a p ro te ct edgro un d i f he is returne d t o Ven ezu el a.” The Bo ardco ns id eredsep arat el y th e sh oo ti ng an d t he ph on e cal l. The Bo ard“ affi rm [ed ]” the co nc lu si on of t he imm ig rat io n ju dg e th atDam at o- Si fo nt es

“ fai le d t o e st ab li sh a ne xu s b etween[th e sh oo ti ng ] an d apro te ct edgro un d.” The Bo ardfou nd“ th ere [ was ] no ev id en ce atall to co nf irm [Dam at o- Si fo nt es ’s]
su sp ic io ns th atth e sh ot s wer e fi redby [go ve rn m en t] off ic ers ” o r th at“ th is ev en t was co nn ect edinany

way to th e d em on st rat io n t ha t [Da m at o- Si fo nt es ] at te nd edin Cara cas th e p rev io us da y .” The B oardfou ndth atDam at o- Si fo nt es refe rredto th e sh oo ti ng in ci de ntas a n “ at te m pt edrob be ry ” an d fo un d “ no ba si s upo n wh ic h t o di sturb t he Im

m ig rat io n J ud ge ’s con cl us io n t ha t ‘th ere i s n o e vi de nc e wha ts oe ve r th is ha d a nyth in g t o d o wi th on e o f th e fi ve pre vi ou sl y enum erat edgro un d[ s] or o f who di d i t o r why.’ ” Ina se pa rat e p arag rap h, the Bo ard“ ag ree[ d]” with t he
6imm ig rat io n ju dg e th atth e “ si ng le th reat en in g a no nym ou s p ho ne cal l” di d n ot

“ ris e[] to th e le ve l o f pr os ecu ti on .” Dam at o- Si fo nt es an d h is fam il y m ov edfor

reco ns id erat io n. Dam at oSi fo nt es arg ue d tha t h e was en ti tl edto anex cep ti on fro m th e fi li ng de ad li ne be cau se of c ha ng edco nd it io ns inVene zu el a. He als o a rg ue d tha t the Bo arderre d by fin di ng th athe pre se nt edno ev id en ce t o e st ab li shth athe was t arg et edforhi s po li ti cal act iv it ie s. Dam at o- Si fo nt es rep eat edth e st at em en t i n h is ap pl ic at io n tha t th e an on ym ou s ca ll er t ol d h im th at“ we wil l b urn d own y ou r fam il y an d you , if y ouke ep go in g t o Al ta m ira .” The B oa rdde ni edth e m ot io n a ndrul edth at Dam at o- Si fo nt es ha d “ no t i de nt ifi edan y m at eri al factua l o r le ga l erro rs inth e pr io r de ci si on th atare s up po rte d b y pe rti ne ntauth or ity .” II . STANDARD OF REVIEW W e rev ie w th e d en ia l o f a m ot io n t o re co ns id er fo r ab us e o f di sc ret io n. Cal le v. U.S. Att ’y

Gen., 5 04 F.3d13 24 , 13 28 (11 th Cir . 20 07 ).

II I. DI SCUSSI ON Dam at o- Si fo nt es an d h is fam il y ch al le ng e th e d en ia l o f th ei r m ot io n t o reco ns id er fa ctua l fi nd in gs by the Bo ard . The family do es no t ch al le ng e th e fin di ng th atth ei r ap pl ic at io n fo r as y lu m was u nt im el y , whi chwe lac k juris di ct io n to rev ie w. Men do za v . U.S. Att’y Gen., 3 27 F.3d12 83 , 12 87 (11 th Cir . 20 03 ). Bec au se on ly clai m s fo r withh ol di ng of r em ov al an d re li ef u nd er the Co nv en ti on 7rem ai n, an d t he se reg ul at io ns do no t p ro vi de for de riv at iv e b en efi ts , we den y th e pe ti ti on to Dam at o- Si fo nt es ’s wife a nddaug ht er. See 8 C.F .R. § 2 08 .16 (c); Delg ad o v . U.S. Att’y

Gen., 4 87 F.3d85 5, 8 62 (11 th Cir . 20 07 ) (p er cu riam). An al ie n m ay

fil e a m ot io n t o re co ns id er t o p oi ntou t fa ctua l erro rs inth e de ci si on of t he Bo ard . Thatm ot io n m us t “ sp eci fy [] the erro rs of f actor l aw in th e pr io r Bo ardde ci si on an d . . . be supp orte d b y pe rti ne ntau th or ity .” 8 C.F .R. § 10 03 .2(b )(1 ). The B oa rdab us es it s d is cret io n wh enit s d eci si onis arb itrary or cap ric io us . See Ab di v. U.S. Att ’y Gen., 4 30 F.3d11 48 , 11 49 (11 thCir . 20 05 ). The Bo ardab us edit s d is cret io n b y de nyin g Dam at o- Si fo nt es ’s m ot io n t o reco ns id er. Dam at o- Si fo nt es arg ue d t ha t the Bo arderre d b y fin di ng th atth ere was

“ no ev id en ce atall ” to su gg es t tha t the sh oo te r was m ot iv at edby D am at oSi fo nt es ’s po li ti cal act iv it ie s. Th e Bo ardcred it edDam at o- Si fo nt es ’s tes ti m on y th atth e sh oo ti ng oc cu rredaft er h e at te nd eda ral ly opp os in g t he Ch av ez go ve rn m en t an d t ha t h e rec ei ve d a n a no nym ou s ca ll th e n ex t d ay , bu t the Bo ard fai le d t o c on si de r Dam at o- Si fo nt es ’s st at em en t i n h is ap pl ic at io n t ha t the cal le r pr of es se d re sp on si bi li ty for the sh oo ti ng an d t hr eat en edto ki ll Dam at o- Si fo nt es an d h is fam il y

if h e p art ic ip at edinfurth er d em on st rat io ns at Al ta m iraPla za. The Bo ardals o fa il edto co ns id er wh ethe r th e cal le r rel at edth e sh oo ti ng an d t he pr ot es ts . W e v acat e th e d en ia l o f Dam at o- Si fo nt es ’s m ot io n. Whenth e Bo ardha s n ot
8ad dr es se d a n i ss ue of f actrai se d b y

a pe ti ti on er “ ‘the pro pe r co ur se . . . is to rem an d t o t he ag en cy

forad di ti on al in ve st ig at io n o r ex pl an at io n.’” Cal le , 50 4 F .3d at13 29 (qu ot in g INS v. Ven tu ra, 5 37 U.S. 12 , 16 , 12 3 S . Ct. 3 53 , 35 5 (2 00 2) (pe r cu ria m)). W e rem an d t o t he Bo ardto co ns id er wh ethe r th e sh oo ti ng an d Dam at oSi fo nt es ’s po li ti cal act iv ity were re late d a ndwhet he r Dam at o- Si fo nt es is en ti tl ed to withh ol di ng of r em ov al
. IV. CONCLUSI ON W e DENYth e p et it io n t o Dam at o- Si fo nt es ’s wife anddaug ht er. W e GRANT Dam at o- Si fo nt es ’s pet it io n, VACATE th e o rd er tha t d en ie d Dam at oSi fo nt es ’s m ot io n t o re co ns id er, an d REMAND for furth er p ro ceed in gs . PETI TI ON GRANTED I N PART AND DENIE D IN PART. VACATED AND REMANDED.

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