FILED U.S. COURT OF AP P EALS E LEVEN T HC IRC UIT FEB RUARY 7, 2007 THOMAS K. KAH

N CLERK [ 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. 06- 13406 N on -A rgum entC al endar

________________________ B I A N os . A 95- 897- 315 & A 95- 897- 316 J O R G E A R B E Y A R R O Y O , A N A M I L E D Y D O M I N G U E Z , S H A R O N J U L I E T H A R R O Y O , P e titio n e r s , 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

_________________________ ( F e b r u ar y 7, 2007) B efo re D U B IN A , C A RN E S an d K R A V IT C H , C i rcu i tJu d g es. P E R C U R I A M: J o r g e A rb e y A rr o y o ( “A rr o y o ” ) , o n b e h a lf o f h im s e lf , h is w if e , a n d th e ir2

d au g h ter, p etit io n s th is co u rt fo r r ev iew o f th e B o ar d o f I m m ig ra ti o n A p p ea ls’s a f f i rma n c e o f

th e I mmi g r a t i o n J u d g e ’ s o r d e ro f r e mo v a l a n d d e n i a l o f

a s y l u m, w i th h o l d i n g o f rem o v al , an d rel i ef u n d er th e U n i t ed N at i o n s C o n v en t i o n A g ai n st T ortur e ( “ C A T ” ) , 8 U . S . C . §§ 1158, 1231; 8 C . F . R . § 208. 16( c ) . A f t e rathor ough r e v i e w o f

th e r e c o r d , w e c o n c l u d e th a tw e l a c kj u r i s d i c t i o n o v e rth e CA T c l a i ms be c aus e the pe t i t i one r s f a i l e d t o e xhaus ta dm i ni s tr a t i ve r e m e di e s bynotappe a l i ng th is a d v e r s e d e te rm in a tio n to th e B I A . A c c o r d in g ly , w e d is m is s th e p e titio n a s to tha tc l a i m . W e f

urthe rc onc l ude tha tthe I Jpr ope r l yde ni e d a s y l um a nd w i thh ol di ng of re m ov al because the pet i t i on er s c ou l d n otshow thatthey s uffe re d p a s tp e r s e c u t i o n o n a c c o u n to f th e i ri m p u t e d p o l i t i c a l o p i n i o n . Ac c o r d i n g l y , we d e n y th e p e titio n o n th e s e g r o u n d s . I . Ba c k g r o und In 20 00 , A rr oyo, hi s w i fe A na D om i ng uez, and thei r daugh t erS haron w er e a dm i tt e d t o the U ni t e d S t a t e s a s non- i m m i gr a ntvi s i t or s . T he yr e m a i ne d be y ond th e e x p ir a tio n p e r io d s a n d th e I N S is s u e d n o tic e s to ap p e a rc h a r g in g th e m w ith r e m ovabi l i ty . A rr oy o, a s l e a d r e s ponde nt , f i l e d a n appl i c a t i on f

ora s y l um a nd w i thh ol di ng of re m ov al , al l egi ng thathe w as pers ec ut ed by R evol ut i on ary A rm ed F or c e s of

C ol om bi a( “ F A R C ” ) ba s e d upon pol i t i c a l opi ni on a nd m e m be r s hi p i n a p a rtic u la rs o c ia l g r o u p . I n h is ap p lic a tio n , A rr o y o r e p o rte d th a t h e s u c c e s s f u lly h a d f o u g h tg u e r i l l a s w h i l e s e rv i n g i n th e mi l i t a ryi n Co l o mb i a , th a tFA RC3

s upport e r s i n hi s t ow n of E l T a m bo thr e a t e ne d hi m unt i l he m ove d t o adi f f e r e nt ci ty, and thatF A R C m em bers beatand threa t ened hi m . T he pet i t i on er s s up po rt ed thei r a sy l um appl i ca t i on w i th d ocum ent ary e vi dence, i ncl ud i ng new s art i cl es desc ri bi ng att ac ks thatF A R C m ade on E l T am bo betw ee n 1 99 0 t o 1 99 8 and l ett er s co n firm in g A rr o yo ’s m il it ary s er v ice. T h ey also su b m itted a letter f ro m A rr o yo ’s b r o th e r , F r e d y A rr o y o ( “F r e d y ” ) , w h ic h r e p o rte d th a t F A R C f o r c e d A rr o y o to le a v e th e c o u n try a n d h a d s in c e b e e n th r e a te n in g F r e d y . A tthe r e m ova l he a r i ng, A rr oy o t e s t i f i e d a s f ol l ow s : A rr oy o ha d notbe e n a m em ber or s up po rt erof any pol i t i ca l party. P ri or t o 1 99 0, F A R C m em bers un succ es sf

ul l y a tt em pt ed t o rec rui tA rr oyo. Inst ea d, A rr oyo j oi ned the m i l i t ary a n d i n 1 9 9 0 h e w a s as o l d i e ri n ami l i t a ryb a tt l e a g a i n s tFA RC. A s ar e s u l t , FA RC c o n s id e r e d h im its e n e m y a n d A rr o y o w a s f o r c e d to m o v e f

r o m E l T a m b o to C a li. A f t e rthe m ove , he di d note xpe r i e nc e a nythr e a t s orpr obl e m s unt i l J ul y2000, w h e n F A R C m e m b e r s s to p p e d a n d s e a r c h e d ab u s o n w h ic h A rr o y o a n d h is f a m ily w ere trav el i n g . F A R C m em b ers i d en t i fi ed A rro yo as h av i n g serv ed i n th e m i l i t ary, b e a t h im , s a id o b s c e n e th in g s to h im , a n d to ld h im th a t h e h a d o n e m o n th to di sapp ear or they w ou l d m ake hi m di sapp ear. A rr oyo b el i eved thathe had b ee n abl e t o l i ve w i thouti nc i de ntf or10 y e a r s be c aus e F A R C di d notknow w he r e he w as. A ft er th i s i n ci d en ti n 2 0 0 0 , h o w ev er, F A R C cal l ed h i m tw i ce ath i s b u si n ess a n d o n c e a t h is h o m e . E a c h c a ll q u e s tio n e d w h yh e h a d n o t le f t a n d w a rn e d h im4

tha the “ kne w w ha tc oul d happe n. ” A rr oy o di d notr e portthe i nc i de nt s t o the p o lic e b e c au s e F A R C w o u ld h a v e le a rn e d ab o u t th e r e p o rt. A rro yo fu rth er t est i fi ed th atth e si tu at i o n i n E l T am b o w as v ery b ad b ecau se the gue r i l l a s w e r e e ve ry w he r e a nd pe opl e w ho di d notj oi n the gue r i l l a s c oul d not l i ve there . H ow ever , betw ee n 1 99 0 and 20 00 , he w as abl e t o v i si thi s m other afe w t i m es i n E l T am b o b y v i si t i n g o n l y atn i g h t . A rro yo al so t est i fi ed th ath i s b ro th ers, F r e d y a n d H a r o h a dto le a v e E l T a m b o b e c au s e o f th e g u e r illa s . A c c o r d in g to A rr oyo, he coul d n otre l ocat e t o ano ther partof C ol om bi a bec ause the gu er i l l as w e r e e v e ry w h e r e . A s r e c e n tlya s 2 0 0 4 , F A R C h a d b e e n lo o k in g f o rA rr o y o . T he I Jde ni e d the pe t i t i one r s ’ appl i c a t i on f ora s y l um , w i thhol di ng of re m o v al, an d C A T re li ef. A lth o u g h th e I J s tated th at sh e b eliev ed A rr o yo ’s t es t i m on y, she c on cl ud ed thatthe event s di d n otes t abl i sh pastpers ec ut i on . T he IJ a l s o s t a t e d tha tA rr oy o w a s notam e m be rof apr ot e c t e d c l a s s a nd w a s not p e r s e c u te d b e c au s e o f

h is p o litic a l o p in io n , b u t r a th e rh is r e f u s a l to a s s is t F A R C . T he I Js t a t e d tha t , a l though the pe t i t i one r s ’ f e a r s appe a r e d t o be w e l l - f ounde d due t o the “ ge ne r a l l y ha r s h c ondi t i ons ” i n C ol om bi a , thi s f e a rw a s nots uf

f i c i e ntt o be en t i t l ed t o p ro t ect i o n u n d er th e IN A . A d d i t i o n al l y, th e IJ d et erm i n ed th at , b ecau se the pet i t i on er s di d n otsa t i sf y thei r burden o f proof for as yl um , they c ou l d n otm ee t the hi gh erst andard of el i gi bi l i ty f or w i thh ol di ng of re m ov al . F i nal l y, the IJ d e te rm in e d th a t th e p e titio n e r s w e r e n o t e lig ib le f o rr e lie f u n d e rth e C A T .5

T he pet i t i on er s app ea l ed t o the B IA , ar gu i ng thatthey w er e m em bers of a p r o te c te d g r o u p a n d h a d b e e n p e r s e c u te d b a s e d o n a n im p u te d p o litic a l o p in io n . T he pet i t i on er s di d n otchal l enge the IJ ’ s deni al of C A T re l i ef . T he B IA s u m m a r i l y a f

f i rm e d th e I J ’ s o p i n i o n . Arr o y o n o w p e t i t i o n s th i s c o u rtf o rr e v i e w. II . P et i ti on for R evi ew Wh e r e , a s h e r e , th e B I A i s s u e s as u m m a rya f f i rm a n c e o f

th e I J ’ s o p i n i o n , we r e v ie w th e I J ’s o p in io n . M e n d o z av . U .S . A tt’yG e n ., 3 2 7 F .3 d 1 2 8 3 , 1 2 8 4 n .1 (11th C i r. 20 03 ). T o the ext entthatthe IJ ’ s dec i si on w as base d o n a l egal de t e rm i na t i on, i ti s r e vi e w e d de novo. M oha m m e d v. A s hc r of t , 261 F . 3d 1244, 1247- 48 ( 11th C i r . 2001) . F a c tua l de t e rm i na t i ons a r e r e vi e w e d unde rthe subst ant i al evi dence t es t , and w e “ m ustaf fi rm the [I J’ s] deci si on i f i ti s s up po rt ed b y reaso n ab l e, su b st an t i al , an d p ro b at i v e ev i d en ce o n th e reco rd co n si d ered as a w ho l e. ” A l N ajj arv. A shcr oft , 25 7 F . 3d 12 62 , 12 83 -84 (11 th C i r. 20 01 ) ( i nt ernal qu ot at i on s om i tt ed). “ T o revers e the IJ ’ s f ac tfi nd i ng s, w e m ustfi nd thatthe re cord n o t o n lys u p p o rts r e v e r s a l, b u t c o m p e ls it.” M e n d o z a , 3 2 7 F .3 d a t 1 2 8 7 . “[ O ]n ly i n ar a r e c a s e doe s the r e c or d c om pe l the c onc l us i on tha ta n appl i c a ntf ora s y l um s uf f e r e d pa s tpe r s e c ut i on orha s aw e l l - f ounde d f e a rof f utur e pe r s e c ut i on. ” S i l va v. U . S . A tt ’ y G en. , 44 8 F . 3d 12 29 , 12 39 (11th C i r. 20 06 ).

A . A sy l um and W i thh ol di ng of R em ov al T he pet i t i on er s argue thatthey e st abl i shed pers ec ut i on base d o n an i m pu t ed6

p o litic a l o p in io n a n d A rr o y o ’s m e m b e r s h ip in ap a rtic u la rs o c ia l g r o u p , “n a m e ly ru r a l p e a s a n ts w h o h a v e b e e n r e c o g n iz e d in th e irs m a ll c o m m u n itie s f o rv a lo rin b att l es ag ai n stF A R C g u eri l l as. ” T h ey arg u e th atF A R C si n g l ed o u tA rro yo because of hi s r ej ec t i on of F A R C , there by es t abl i shi ng a di re ctnexu s betw ee n A rr oyo’ s i m pu t ed po l i t i ca l op i ni on and h i s per se cut i on . T hey f urther argue that th e y h a v e e s tab lis h e d aw e ll- f o u n d e d f e a ro f f u tu r e p e r s e c u tio n b e c au s e F A R C w ill p u n is h A rr o y o f

o rh is d e f

ia n c e . T h e ya s s e rt th a t th e yc a n n o t s a f e lyr e lo c a te to a n o th e rp a rt o f

C o lo m b ia . T he S e c r e t a ry of

H om e l a nd S e c ur i tyorthe A tt orne yG e ne r a l ha s di s c r e t i on t o g r a n ta s y l u m i f

a n a l i e n m e e t s th e I NA ’ s d e f i n i t i o n o f a“ r e f u g e e . ” I NA § 2 0 8 (b )(1 ), 8 U . S . C . § 1 1 5 8 (b )(1 ). A “ refu g ee” i s: a n y p e r s o n w h o is o u ts id e a n yc o u n tryo f s u c h p e r s o n ’s n a tio n a lity. . . a nd w ho i s unabl e orunw i l l i ng t o r e turn t o, a nd i s unabl e orunw i l l i ng t o a va i l hi m s e l f

orhe r s e l f

of the pr ot e c t i on of

, tha tc ountrybe c aus e of pers ec ut 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 rt i c ul a rs oc i a l gr oup, or pol i t i c a l opi ni on. IN A § 1 0 1 (a)(4 2 )(A ), 8 U . S . C . § 1 1 0 1 (a)(4 2 )(A ). T o est ab l i sh asyl u m el i g i b i l i ty, the a l i e n m us t , w i th s pe c i f i c a nd c r e di bl e e vi de nc e , e s t abl i s h ( 1) pa s tpe r s e c ut i on on a c c ountof

as t a tut or i l y l i s t e d f

a c t or , or( 2) a“ w e l l - f

ounde d f e a r ” tha tthe st atut ori l y l i st ed fa ct or w i l l cause s uch future pers ec ut i on . 8 C . F . R . § 2 08 . 13 (a ), ( b) ; A l N a

jj a r , 257 F . 3d a t1287. “ D e m ons tr a t i ng s uc h ac onne c t i on r e qui r e s the7

a l i e n t o pr e s e nts pe c i f

i c , de t a i l e d 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

orpe r s e c ut i on on a c c ountof ” as t a tut oryf

a c t or . A l N a

jj a r , 257 F . 3d a t1287 ( i nt e rna l quot a t i ons om i tt e d) ( e m pha s i s i n or i gi na l ) . A n a s y l um appl i cantm ayno tshow m er el y thathe has apo l i t i ca l op i ni on , bu tm ustshow that he w a s pe r s e c ut e d be c aus e of tha topi ni on. I . N . S . v. E l i a s - Z a c a r i a s , 502 U . S . 478, 48 3, 11 2 S . C t . 81 2, 81 6, 11 7 L . E d. 2d 38 (199 2). A dd i t i on al l y, thi s c ou rthas s t at ed thatpers ec ut i on i s an “ extre m e c on ce pt , re qu i ri ng m ore than a few i sol at ed 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 ntdoe s not a m o u n t to p e r s e c u tio n .” S e p u lv e d av . U .S . A tt’yG 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 ) ( in te rn a l q u o ta tio n s a n d a lte r a tio n s o m itte d ) . A n a l i e n w ho ha s nots how n pa s tpe r s e c ut i on s t i l l m a ybe e nt i t l e d t o a s y l um if h e c a n d e m o n s tr a te af

u tu r e th r e a t to h is lif

e o rf r e e d o m o n ap r o te c te d g r o u n d in hi s c ou ntry . 8 C . F . R . § 2 08 . 13 (b)( 2). T o est abl i sh a “ w el l -f ou nd ed fe ar , ” an appl i cantm ustshow thathe has afe arof pers ec ut i on i n h i s hom e c ou ntryand that “th e r e is ar e a s o n ab le p o s s ib ilityo f s u f f e r in g s u c h p e r s e c u tio n if h e o rs h e w e r e to r e tu rn to th a t c o u n try .” 8 C .F .R . § 2 0 8 .1 3 ( b ) ( 2 ) ( i) . T o qua l i f y f orw i thhol di ng of

r e m ova l unde rthe I N A , a n a l i e n m us ts how tha t , i f r e turne d t o hi s c ountry , the a l i e n’ s l i f e orf r e e dom w oul d be thr e a t e ne d 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 apa rt i c ul a rs oc i a l gr oup, or po l i t i ca l op i ni on . IN A § 2 41 (b)( 3), 8 U . S . C . § 1 23 1(b)(3). G ener al l y, w here an8

a l i e n f a i l s t o m e e tthe “ w e l l - f

ounde d f e a r ” s t a nda r d f

ore s t abl i s hi ng a s y l um e lig ib ility , th e a lie n c a n n o t m e e t th e h ig h e rb u r d e n f o rw ith h o ld in g o f

r e m o v a l. 8 C . F . R . § 208. 16( b) ( 1) , ( 2) ; A l N a jj a r , 257 F . 3d a t1292- 93.

“ A n i m put e d pol i t i c a l opi ni on, w he the rc orr e c t l yori nc orr e c t l ya ttr i but e d, m a y c ons t i tut e agr ound f oraw e l l - f

ounde d f e a rof pol i t i c a l pe r s e c ut i on w i thi n the m e a n in g o f

th e I N A .” A l N a

jja r , 2 5 7 F .3 d a t 1 2 8 9 ( in te rn a l q u o ta tio n s o m itte d ) . I n or de rt o qua l i f

y f orr e l i e f f r om r e m ova l ba s e d on apol i t i c a l opi ni on, the p e titio n e r“m u s t e s tab lis h th a t th e g u e r illa s p e r s e c u te d h e ro rw ill s e e kto p e r s e c u te he ri n the f

utur e be c aus e of

he ra c tua l ori m put e d pol i t i c a l opi ni on. ” S a nc he z v. U .S . A tt’yG e n ., 3 9 2 F .3 d 4 3 4 , 4 3 8 ( 1 1 th C ir . 2 0 0 4 ) ( c ita tio n s o m itte d ) ( e m p h a s is i n or i gi na l ) . “ I ti s note nough t o s how tha ts he w a s orw i l l be pe r s e c ut e d or to rtu r e d d u e to h e rr e f

u s a l to c o o p e r a te w ith th e g u e r illa s .” I d . ( c ita tio n s o m itte d ) . H er e, the IJcorr ec t l y det erm i ned thatthe pet i t i on er s w er e notpers ec ut ed be c aus e of

a n i m put e d pol i t i c a l opi ni on. A rr oy o’ s r e f us a l t o j oi n the F A R C , by i t s e l f , doe s notc ons t i tut e apol i t i c a l opi ni on a nd “ i s note nough t o s how tha t[ the p e titio n e r s w e r e ] o rw ill b e p e r s e c u te d o rto rtu r e d d u e to [ th e ir ] r e f u s a l to c oope r a t e w i th the gue r i l l a s . ” S e e S a nc he z , 392 F . 3d a t438. T he r e f or e , the p et i t i o n ers h av e fai l ed t o est ab l i sh th atth ey w ere p ersecu t ed o r si n g l ed o u tb ecau se o f a n im p u te d p o litic a l o p in io n . S e e A l N a jja r , 2 5 7 F .3 d a t 1 2 8 7 . F urtherm ore, A rr oyo’ s argum entthathe bel on ged t o a part i cul arsoci al9

grou p al so fa i l s. A l tho ug h the IJdi d n otaddres s A rr oyo’ s argum entthat“ rura l peas ant s w ho have been rec og ni ze d i n thei r s m al l com m un i t i es for val or i n b att l es a g a in s t F A R C g u e r illa s ” c o n s titu te s ap a rtic u la rs o c ia l g r o u p , e v e n a s s u m in g th a t it d o e s , A rr o y o f

a ile d to e s tab lis h th a t h e w a s p e r s e c u te d b e c au s e o f th is c h a r a c t e r i s t i c . Th e r e w a s n o th i n g i n th e r e c o r d t o c o mp e l af i n d i n g th a tFA RC to o kin te r e s t in A rr o y o f o ra n y r e a s o n o th e rth a n th e f a c t th a t h e r e f

u s e d to c oope r a t e w i th gue r i l l a s . S i l va , 448 F . 3d a t1239. A rr oy o hi m s e l f s t a t e d tha the tho ug htthathe w as beat en because hi s f orm erm i l i t ary s ervi ce w as vi ew ed as an a nt i - F A R C s t a nc e , w hi c h, a s di s c us s e d above , i s nots uf f i c i e ntt o e s t abl i s h a pr ot e c t e d gr ound. S e e A l N a jj a r , 257 F . 3d a t1287; S a nc he z , 392 F . 3d a t438. T he r e f or e , s ubs t a nt i a l e vi de nc e s upport s the I J ’ s c onc l us i on tha tthe p et i t i o n ers fai l ed t o est ab l i sh th atth ey h av e b een p ersecu t ed o r th atth ere i s a r e a s onabl e pos s i bi l i ty tha tthe y w i l l be pe r s e c ut e d be c aus e of the i rm e m be r s hi p i n a pa rt i c ul a rs oc i a l gr oup. A l N a jj a r , 257 F . 3d a t1284, 1287 ( i nt e rna l quot a t i ons a nd ci t at i on s om i tt ed). M oreover, because the pet i t i on er s have notshow n thatthey are e nt i t l e d t o a s y l um , the y c a nnotm e e tthe hi ghe rbur de n f ore l i gi bi l i tyf

or w ith h o ld in g o f

r e m o v a l. A l N a

jja r , 2 5 7 F .3 d a t 1 2 8 7 , 1 2 9 2 - 9 3 . B . C A T re l i ef

“ A courtm ayre vi ew a f i nal order of re m ov al on l y i f . . . the al i en has e x h au s t e d a l l a d m i n i s tr a t i v e r e m e d i e s a v a i l ab l e t o th e a l i e n a s o f r i g h t , . . . ” I NA10

§ 2 42 (d)( 1), 8 U . S . C . § 1 25 2(d)(1). T hi s r equi re m enti s j uri sdi ct i on al and b ar s r e vi e w of

c l a i m s notr a i s e d be f

or e the B I A . S unda rv. I . N . S . , 328 F . 3d 1320, 1323 ( 1 1 th C ir . 2 0 0 3 ) . T h e e x h au s tio n r e q u ir e m e n t g iv e s th e B I A th e o p p o rtu n ityto d is c o v e ra n d c o rr e c t its o w n e rr o ra n d e n s u r e s th a t th e B I A h a s af u ll o p p o rtu n ity to co n sid erth e p etit io n er ’s claim s. Id . at 1 3 2 5 ; A m ay a- A rtu n d u ag a v . U .S . A tt ’y G e n. , 463 F . 3d 1247, 1250 ( 11th C i r . 2006) ( i nt e rna l quot a t i ons a nd c i t a t i on o m itte d ) . H e r e , the pe t i t i one r s f

a i l e d t o c ha l l e nge the I J ’ s de ni a l of r e l i e f unde rthe C A T be f or e the B I A . A c c or di ngl y , w e l a c k j ur i s di c t i on t o r e vi e w the i rr e que s tf or w i thhol di ng of

r e m ova l unde rthe C A T . 8 U . S . C . § 1252( d) ( 1) ; S unda r , 328 F . 3d a t 1 3 2 3 . I I I . C on c l u s i on F or the foregoi ng re as on s, w e D I SM I SS the pe t i t i on i n pa rta nd DE NY the p e titio n in p a rt.