FILED U.S. COURT OF AP P EALS E LEVEN T HC IRC UIT JUNE 21, 2006 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. 05- 16240 N on -A rgum entC al endar

________________________ B I A N o. A 96- 114- 180 F .N .U . S U S A N T O , P et i t i on er , 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

_________________________ ( Ju n e 21, 2006) B efo re C A RN E S , P R Y O R an d R O N E Y , C i rcu i tJu d g es. P E R C U R I A M: F . N . U . S us a nt o, thr ough c ouns e l , pe t i t i ons f orr e vi e w of

the B oa r d of I m m ig r a tio n A p p e a ls ’ ( “B I A ” ) d e c is io n d e n y in g h is m o tio n to r e o p e n h is2

proceedi ng s r egar di ng hi s app l i ca t i on for a sy l um and w i thh ol di ng of re m ov al un der the Im m i grat i on and N at i on al i ty A ct(“ IN A ”) and rel i ef un der the U ni t ed N a t i ons C onve nt i on A ga i ns tT ortur e a nd O the rC rue l , I nhum a n a nd D e gr a di ng T r e a tm e n t o rP u n is h m e n t ( “C A T ” ) , I N A § § 2 0 8 , 2 4 1 , 8 U .S .C . § § 1 1 5 8 , 1 2 3 1 ; 8 C . F . R . § 2 08 . 16 (c ). W e grantthe pet i t i on for r evi ew and rem and t o the B IA so that it c a n d ir e c tlya d d r e s s th e “p a tte rn a n d p r a c tic e ” c la im f o rr e lie f f r o m r e m o v a l. O n N ov em ber 20, 20 01 , S usant o, a nat i ve and ci t i ze n o f I nd on es i a, w as a d m itte d to th e U n ite d S ta te s a s an o n - im m ig r a n t v is ito rf o rp le a s u r e w ith autho ri za t i on t o rem ai n i n the U ni t ed S t at es for at em po raryperi od no tt o exceed M a y 19, 2002. O n A pr i l 15, 2003, S us a nt o appe a r e d f orS pe c i a l R e gi s tr a t i on a nd w as i nt ervi ew ed by an i m m i grat i on offi ci al . H e a dm i tt ed un der oath thathe fa i l ed t o de pa rtthe U ni t e d S t a t e s on orbe f or e M ay19, 2002, a nd he w orke d w i thout author i z a t i on. S us ant o i ndi c a t e d tha the w i s he d t o appl yf ora s y l um be c aus e he feared th ath e w o u l d b e p h ysi cal l y h arm ed i n In d o n esi a o n acco u n to f h i s C h i n ese eth n i ci ty. A f t e rthe us ua l a dm i ni s tr a t i ve pr oc e e di ngs , w e l l know n t o the pa rt i e s , a nd de ni a l of r e l i e f by the B I A , S us a nt o f

i l e d am ot i on t o r e ope n hi s c a s e a nd r e m a nd t o the I m m i gr a t i on J udge t o r e c ons i de re l i gi bi l i tyf ora s y l um , w i thhol di ng of re m ov al , and rel i ef

un der C A T base d o n chang ed coun trycond i t i on s. H e a ss ert ed3

thatcoun trycond i t i on s i n Ind on es i a c hang ed i n O ct ob er20 04 , w hen a new P r e s id e n t a n d V ic e - P r e s id e n t w e r e e le c te d w ith th e s u p p o rt o f r a d ic a l I s la m ic g ro u p s, an d th ei r g o al w as t o co n v ertIn d o n esi a i n t o an Isl am i c st at e. S u san t o ’ s ne w a s y l um appl i c a t i on, de c l a r a t i on, a nd e xhi bi t s i n s upportof hi s appl i c a t i on a s s e rt e d tha tM us l i m vi ol e nc e a ga i ns tC hr i s t i a ns s i gni f i c a nt l yi nc r e a s e d a f

t e rthe O c t obe r2004 e l e c t i ons , r e s ul t i ng i n the c l os ur e of c hur c he s a nd a tt a c ks on C h ri st i an s. F u rth er, h e i n d i cat ed th ath e feared retu rn i n g t o In d o n esi a b ecau se V i ce -P re si dentY usuf K al l a ann ou nced thathe w ou l d i m pl em entst at e- spon sore d d is c r im in a to ry b u s in e s s p o lic ie s a g a in s t e th n ic C h in e s e I n d o n e s ia n s . S usant o ci t es re ce ntca se l aw , w hi ch i s notbi nd i ng on thi s c i rc ui t , t o sup po rt th is p r o p o s itio n . T h e N in th C ir c u it h e ld in M a r c h 2 0 0 5 th a t “[ w ]h ile a ll e th n ic C hi ne s e w ho r e m a i n i n I ndone s i af a c e s om e r i s k of

f utur e pe r s e c ut i on, tw o s ubg r o u p s a r e p a rtic u la r lya t r is k ,” in c lu d in g C h r is tia n s , L o lo n gv . A s h c r o ft , 400 F . 3d 1215, 1217 ( 9th C i r . 2005) . T ha tC ourthe l d tha ta n a s y l um appl i c a ntc a n m e e tthe bu rden of show i ng part i cul ar i ze d-ri sk of pers ec ut i on i n the future by s ho w i ng that he i s am e m be rof

as ub- gr oup tha tf

a c e s ahe i ght e ne d r i s k of f utur e pe r s e c ut i on. T h e C o u rt id e n tif

ie d e th n ic C h in e s e C h r is tia n s in I n d o n e s iaa s o n e s u c h s u b - g r o u p . P et i t i on erar gu es thathe i s am em ber of adi sf avored grou p as an ethn i c C hi nese , a n d o f ad is f a v o r e d s u b - g r o u p , a s aC h r is tia n . H e m a in ta in s th a t th e B I A e rr e d in4

ru lin g th a t h e h a d to p r e s e n t p a rtic u la r iz e d e v id e n c e c o n c e rn in g h im in d iv id u a llyto s u p p o rt c la im o f

e lig ib ilityf

o rr e lie f f r o m r e m o v a l. A n appl i c a ntc a n e s t abl i s h aw e l l - f ounde d f e a rof pe r s e c ut i on w i thout show i ng thathe w ou l d b e s i ng l ed ou tfor per se cut i on i f

( A ) T he appl i c a nte s t abl i s he s tha tthe r e i s apa tt e rn or p r a c tic e in h is o rh e rc o u n tryo f n a tio n a lityo r , if st at el es s, i n h i s or hercoun tryof l as thabi tual re si dence, o f p e r s e c u tio n o f

ag r o u p o f

p e r s o n s s im ila r lys itu a te d to th e ap p l i can to n acco u n to f race, rel i g i o n , n at i o n al i ty, m em bers hi p i n a part i cul arsoci al grou p, or po l i t i ca l opi ni on; a nd ( B ) T he appl i c a nte s t abl i s he s hi s orhe row n i nc l us i on i n, and i dent i fi ca t i on w i th, such grou p o f per sons such that hi s or herfe arof pers ec ut i on up on re turn i s r ea sonabl e. 8 C . F . R . § 208. 13( b) ( 2) ( i i i ) ( a s y l um ) ; 8 C . F . R . § 208. 16( b) ( 2) ( i ) , ( i i ) ( w i thhol di ng of re m ov al ). W e rev i ew th e B IA ’ s d en i al o f a m o t i o n t o reo p en o r reco n si d er fo r an ab u se o f d is c r e tio n . Se e A l N

a jja rv . A s h c r o

ft , 257 F . 3d 1262, 1302 ( 11th C i r . 2001) ( a d d r e s s in g m o tio n to r e o p e n ) ; A s s a’ ad v . U . S. A t torne

yG e n. , 332 F . 3d 1321, 1341 ( 11th C i r . 2003) ( a ddr e s s i ng m ot i on t o r e c ons i de r ) . “ J udi c i a l r e vi e w of de ni a l s of d is c r e tio n a ry r e lie f

in c id e n t to d e p o rta tio n p r o c e e d in g s . . . is lim ite d to de t e rm i ni ng ‘ w he the rthe r e ha s be e n a n e xe r c i s e of a dm i ni s tr a t i ve di s c r e t i on a nd w hether the m att erof exer ci se has bee n arbi traryor capri ci ou s. ’ ” Se e G a r c ia -Mir v . Sm ith , 766 F . 2d 1478, 1490 ( 11th C i r . 1985) ( c i t a t i on om i tt e d) ( a ddr e s s i ng a5

m ot i on t o r e ope n) . T he B I A abus e s i t s di s c r e t i on w he n i t s de c i s i on “ pr ovi de s no r a t i ona l e xpl a na t i on, i ne xpl i c abl y de pa rt s f r om e s t abl i s he d pol i c i e s , i s de voi d of any r ea soni ng , or cont ai ns on l y s um m ary or c on cl usory s t at em ent s. ” Mic ke v ic iu te v . I NS , 3 2 7 F .3 d 1 1 5 9 , 1 1 6 2 ( 1 0 th C ir . 2 0 0 3 ) ( q u o ta tio n o m itte d ) . A m o t i o n t o reo p en t o ap p l y o r reap p l y fo r asyl u m sh al l st at e “ n ew fact s” thatw ou l d b e proven ata new hear i ng , bu t“ shal l no tbe grant ed un l es s i tappears to th e B o a r d th a t e v id e n c e s o u g h t to b e o f f e r e d is m a te r ia l a n d w a s n o t a v a ilab le and cou l d n othave been di sc ov er ed or pres ent ed atthe form erhear i ng . . . . ” 8 C .F .R . § 1 0 0 3 .2 ( c ) ( 1 ) , ( c ) ( 3 ) ( ii) . T h e B IA ’ s d eci si o n d en yi n g S u san t o ’ s m o t i o n t o reo p en d o es n o tg i v e u s a prop erand suffi ci entbasi s f or re vi ew because i ti s uncl ear w hether the B IA p r o p e r lyc o n s id e r e d S u s a n to ’s “p a tte rn a n d p r a c tic e c la im ” f o rr e lie f f r o m r e m o v a l, a s i de f r om as how i ng tha the w oul d be s i ngl e d outf orpe r s e c ut i on. T he B IA st at ed, “ T he re spon denthas notes t abl i shed changed cou ntry c ondi t i ons i n I ndone s i af ora s y l um a nd w i thhol di ng of r e m ova l . . . T he i nform at i on the re spon denthas pre se nt ed consi st s of gener al new s art i cl es that have no thi ng i n them re l at ed t o h i m . ” T he j ux t aposi t i on of these se nt ence s s ugge s t s tha tthe B I A di d nota c know l e dge tha tS us a nt o c oul d ha ve e s t abl i s he d a p r im a fa c ie c a s e f

ora s y l um f

r om a rt i c l e s r e ga r di ng ge ne r a l i z e d c ountryc ondi t i ons6

u n d e rap a tte rn a n d p r a c tic e th e o ryo f a s y lu m e lig ib ility . A c c o r d in g ly , th e p e titio n f o rr e v ie w is g r a n te d a n d th e B I A ’s o r d e ris v a c a te d a n d r e m a n d e d s o th a t th e B I A c a n s p e c if ic a llyc o n s id e rth e m o tio n to r e o p e n b a s e d o n Su s a n t o ’ s p a tt e rn a n d p r a c t i c e c l a i m. P E T I T I ON GR AN T E D A ND CA S E RE MAND E D.