Source: https://law.justia.com/cases/federal/appellate-courts/F2/749/1354/359900/
Timestamp: 2019-08-18 00:42:22
Document Index: 354797497

Matched Legal Cases: ['§ 1253', '§ 1158', '§ 1253', '§ 1251', '§ 1253', '§ 1158', '§ 1253']

Gustavo A. Saballo-cortez, Petitioner, v. Immigration and Naturalization Service, Respondent, 749 F.2d 1354 (9th Cir. 1984) :: Justia
Justia › US Law › Case Law › Federal Courts › Courts of Appeals › Ninth Circuit › 1984 › Gustavo A. Saballo-cortez, Petitioner, v. Immigration and Naturalization Service, Respondent
Gustavo A. Saballo-cortez, Petitioner, v. Immigration and Naturalization Service, Respondent, 749 F.2d 1354 (9th Cir. 1984)
U.S. Court of Appeals for the Ninth Circuit - 749 F.2d 1354 (9th Cir. 1984)
Argued and Submitted June 8, 1984. Decided Dec. 21, 1984
Gustavo A. Saballo-Cortez (Saballo-Cortez) appeals from the order of the Board of Immigration Appeals (BIA) denying his application for withholding of deportation under 8 U.S.C. § 1253(h) and for asylum under 8 U.S.C. § 1158(a).1
One. The immigration judge and the BIA should have applied the burden of proof set forth in Stevic v. Sava, 678 F.2d 401 (2d Cir. 1982), rev'd, INS v. Stevic, U.S. ----, 104 S. Ct. 2489, 81 L. Ed. 2d 321 (1984).
Saballo-Cortez argued in his brief that the immigration judge and the BIA should have applied the standard of proof adopted in Stevic v. Sava, 678 F.2d 401 (2d Cir. 1982), rev'd, INS v. Stevic, --- U.S. ----, 104 S. Ct. 2489, 81 L. Ed. 2d 321 (1984), in reviewing his "subjective evidence" of a well-founded fear of persecution. In Stevic, the petitioner filed a motion to reopen his deportation proceedings based on a claim of persecution under section 243(h) of the Immigration and Nationality Act of 1952, 8 U.S.C. § 1253(h). The BIA denied the motion on the ground that Stevic had failed to present a claim containing a prima facie showing of "a clear probability of persecution directed at the individual respondent." Stevic v. Sava, 678 F.2d at 403-04. The court of appeals in Stevic reversed the BIA's denial of the motion holding that it was based on a legal test which was no longer the law. Id. at 409.
After the briefs were filed in the present matter, the Supreme Court issued its opinion reversing the Second Circuit's decision in Stevic v. Sava. INS v. Stevic, --- U.S. ----, 104 S. Ct. 2489, 81 L. Ed. 2d 321 (1984). The Court held that "an alien must establish a clear probability of persecution to avoid deportation under Sec. 243(h)" --- U.S. at ----, 104 S. Ct. at 2489. The Court concluded that the clear probability standard "requires that an application be supported by evidence establishing that it is more likely than not that the alien would be subject to persecution on one of the specified grounds." --- U.S. at ----, 104 S. Ct. at 2501. Thus, Saballo-Cortez's contention that the immigration judge and the BIA were required to follow Stevic v. Sava is no longer tenable with respect to his application for withholding of deportation in light of the Supreme Court's express holding in INS v. Stevic. To the extent that the clear probability of persecution test was applied in this matter to the application for withholding of deportation, no error occurred.
The Supreme Court declined to decide the meaning of the phrase "well-founded fear of persecution" which is made applicable by the terms of the Immigration and Nationality Act and regulations to requests for discretionary asylum since that issue was not presented in INS v. Stevic, --- U.S. at ----, 104 S. Ct. at 2501. Because the instant case turns on whether Saballo-Cortez met his burden of persuading the immigration judge and the BIA that his testimony was credible, we need not determine the proper standard of proof necessary to make a prima facie showing of a well-founded fear of persecution under Saballo-Cortez's claim for asylum. We note that the BIA found that Saballo-Cortez failed to meet his burden of proof "whether his claim is assessed in terms of whether he has demonstrated 'clear probability,' 'good reason,' or 'realistic likelihood' of persecution." Thus, we cannot say on this record that the BIA improperly applied the clear probability of persecution standard, as claimed by Saballo-Cortez.
The immigration judge and the BIA were not persuaded that Saballo-Cortez was a credible witness. We must decide if that finding was substantially supported by the evidence in the record. McMullen v. INS, 658 F.2d 1312, 1316-1317 (9th Cir. 1981). If the record supports the BIA's finding that the testimony was not credible, then Saballo-Cortez has failed to present substantial evidence to compel a mandatory withholding of deportation. Where the facts presented are not credible, it is also not an abuse of discretion for the BIA to deny asylum.2
The immigration judge was not persuaded that Saballo-Cortez had been threatened to join the military, and noted that this testimony was not corroborated. See Sanchez v. INS, 707 F.2d 1523, 1527 (D.C. Cir. 1983) [petitioner failed to provide any other evidence to support his own conclusory statements that he would be persecuted upon his return to El Salvador].
The immigration judge found that while there was evidence that Saballo-Cortez had been suspected of gun-running, the incident occurred in 1981 and no guns were found. We note also that no further action appears to have been taken by Nicaraguan authorities with respect to this alleged offense, and that Saballo-Cortez was allowed to leave the country on a government passport. See Fleurinor v. INS, 585 F.2d 129, 134 (5th Cir. 1978) [petitioner was issued passport by Haitian government; court found it difficult to believe that Haiti would allow him to leave if it feared his loyalty, as asserted by petitioner]. We agree with the immigration judge that this incident does not support a finding of present danger to Saballo-Cortez.
In spite of Saballo-Cortez's stubborn defiance and repeated resistance to participation in his country's compulsory service requirements, he was permitted to work until the day he left without arrest or harm. He was also granted a passport and exit visa. These facts cast great doubt on Saballo-Cortez's claim that he fears persecution. The fact that he was denied such perquisites as discounts on food and a special work permit for some other type of employment does not establish persecution. See Raass v. INS, 692 F.2d 596 (9th Cir. 1982) [asylum relief in U.S. depends on something more than generalized economic disadvantage at the destination]. As noted by the BIA, these sanctions, i.e. denial of special privileges to purchase food or obtain more desirable employment may well be legitimate under Nicaraguan law. Saballo-Cortez's claim of grotesque threats against his life do not appear credible in light of the evidence that he remained free from arrest, fully employed, and received full governmental cooperation when he applied for permission to travel. The immigration judge and the BIA were free to infer that if he was subject to official persecution or death because of his draft resistance, he would not have been given a passport.
Saballo-Cortez argues that in McMullen v. INS, 658 F.2d 1312 (9th Cir. 1981), this court "strongly suggested that the absence of evidence contradicting an alien's assertions regarding asylum should lead to a granting of asylum." In support of this novel proposition, Saballo-Cortez relies on the following passage from McMullen: "The INS did not submit evidence of its own which indicated that any of McMullen's exhibits were inaccurate, nor did it submit independent evidence showing McMullen's lack of credibility." Id. at 1317. The quoted observation by this court directly follows a recitation of the BIA's finding that McMullen's testimony was not credible and that his reports of terrorism were not relevant because they were not directed at the petitioner.
In reviewing the record, we must defer to the immigration judge's express or implied determination concerning credibility where the record supports this finding. See Pereira-Diaz v. INS, 551 F.2d 1149, 1154 (9th Cir. 1977). The findings of the immigration judge and the BIA that Saballo-Cortez's uncorroborated beliefs were unbelievable is fully supported by the record. Thus, substantial evidence supports the BIA's decision under 1253(h) and there was no abuse of discretion under 1158(a).
We cannot consider the legal effect of facts not raised below. Tejeda-Mata v. INS, 626 F.2d 721, 726 (9th Cir. 1980), cert. denied, 456 U.S. 994, 102 S. Ct. 2280, 73 L. Ed. 2d 1291 (1982). Our affirmance on this matter is without prejudice to a motion to reopen based on the facts presented to us at oral argument.
Review under the substantial evidence standard is not to be superficial or cursory. Rather, the court's inquiry must be searching and careful, subjecting the agency's decision to close judicial scrutiny. Further, the court is not confined to those portions of the record, if any, which the agency cites in support of its conclusions. The court is charged to review the record as a whole. Packer Transportation Co. v. United States, 596 F.2d 891, 894 (9th Cir. 1979).
Memorial, Inc. v. Harris, 655 F.2d 905, 912 (9th Cir. 1980).
At his deportation hearing, Saballo-Cortez, a native of Nicaragua, conceded deportability under Sec. 241(a) (2) of the Immigration and Nationality Act (Act), 8 U.S.C. § 1251(2) (1982), because he entered the United States illegally. However, he requested political asylum under 8 C.F.R. Sec. 208.9 (1983).1
Amendments to the Immigration and Nationality Act in 1980 removed the granting of "withholding of deportation" from the BIA's discretion. "The Board must withhold deportation if certain facts exist" and such decisions are reviewed for substantial evidence. Chavez v. INS, 723 F.2d 1431, 1432 (9th Cir. 1984); McMullen v. INS, 658 F.2d 1312, 1316 (9th Cir. 1981). The BIA's decision relies upon three grounds. First, the BIA found that Saballo-Cortez did not allege that he would be persecuted because of his political opinion. Second, the BIA discounted his testimony because it lacked certain "corroboration." Third, the BIA cited other factors contributing to its decision, including the fact that Saballo-Cortez obtained a Nicaraguan passport and exit visa. Because none of these grounds can withstand close scrutiny, the BIA's decision is unsupported by substantial evidence.
The BIA found that, even assuming that Saballo-Cortez had been threatened, he did not assert that such threats were made because of his "race, religion, nationality, membership in a particular social group, or political opinion" as required by 8 U.S.C. § 1253(h). However, a perusal of the transcript of the hearing before the immigration judge yields several instances when Saballo-Cortez or his attorney indicated clearly that his refusals to join the militia or the Sandinista Committee were based on his political opinion. For example, his attorney flatly said that Saballo-Cortez was persecuted for his "political opinion." Administrative Record (AR) 64. In addition, other statements by Saballo-Cortez at the hearing indicate that his problems with Nicaraguan authorities stemmed from his refusal, for political reasons, to support the Sandinista effort. For example, he explained that he did not want to join the militia " [b]ecause of the system," AR 46, and that he had aroused the Sandinistas' ire because he did not want to work " [f]or the revolution." AR 48. His written application for asylum cites his adverse "political" views as a reason why he would be persecuted. AR 81. His aversion to the established political system is also indicated by his refusal to join the Sandinistas even in the face of their potential denial of a food ration card and work permit as well as in his refusal to produce propaganda for them. See, e.g., AR 51, 54.
This case should be remanded on this basis alone. It is impossible to discern the extent to which the BIA relied upon its erroneous finding that Saballo-Cortez had not alleged persecution based on his political opinion. See Zavala-Bonilla v. INS, 730 F.2d 562, 567 (9th Cir. 1984); cf. Santana-Figueroa v. INS, 644 F.2d 1354, 1356 (9th Cir. 1981) (case remanded because " [w]hen important aspects of the individual claim are distorted or disregarded, denial of relief is arbitrary.") (footnote omitted).
Moreover, there is no indication in the BIA's opinion that Saballo-Cortez gave false testimony. What the BIA did, however, was to consider only Saballo-Cortez's documentary evidence as "evidence" (alleged gun-smuggling incident) and to discount his oral testimony by suggesting that further corroboration is necessary. But this treatment is contrary to our decisions acknowledging the special difficulties encountered by refugees in obtaining corroboration. See Zavala-Bonilla, 730 F.2d at 567 (citing McMullen and a United Nations Handbook); cf. Reyes v. INS, 673 F.2d 1087, 1089-90 (9th Cir. 1982) (corroborating evidence not required in motion to reopen; Board abused its discretion when it discounted petitioner's affidavits without valid reason).
In any event, the BIA's assertions regarding the corroboration that Saballo-Cortez should have supplied do not undermine his testimony. For example, Saballo-Cortez testified that he was threatened with death in a field with his eyes filled with ants. In discounting that testimony the BIA asserted that the position and authority of the man who had made the threat was not made clear and that " [t]here is no evidence that the respondent will be killed by the unnamed security officer." BIA Opinion at 3. But the record shows that Saballo-Cortez did in fact name the security officer, Caypal. Second, the BIA does not explain why Saballo-Cortez should have known the exact rank of the man who threatened him. Finally, it asks too much to require Saballo-Cortez to present evidence to "prove" that Caypal would indeed have killed him. Such unobtainable evidence is not required to prove a clear probability of persecution. See Zavala-Bonilla, 730 F.2d at 565; cf. Matter of Dunar, 14 I. & N. Dec. at 319. To require such evidence would make the asylum offers embodied in Sec. 1158(a) and Sec. 1253(h) hollow gestures.
The lack of a certified translation is of no great moment because the BIA employs many translators who could have easily translated the letter. See Zavala-Bonilla, 730 F.2d at 565. Second, it is unreasonable to require Saballo-Cortez to show that the Sandinista's refusal to issue a food ration card or work permit would result in his total inability to find food or work. Such refusal itself clearly indicates that the Sandinista authorities have made reprisals against him. Third, even if the alleged "gun-smuggling" accusation is remote in time, it is supported by documentary evidence.5 Finally, Saballo-Cortez's ability to obtain a Nicaraguan passport does not constitute substantial evidence, standing alone, to support the BIA's refusal to grant Saballo-Cortez withholding of deportation. The majority relies heavily on Saballo-Cortez's ability to get a passport. This isolated fact is insufficient to support a denial of withholding of deportation. See Zavala-Bonilla, 730 F.2d at 565 n. 4 (asylum applicant need not show that government of nation from which applicant seeks asylum is looking for him/her). To say that the authorities let Saballo-Cortez leave is a far cry from concluding that they would welcome his return.6 2. The Immigration Judge's Ex Parte Inquiry
Under 8 U.S.C. § 1158(a), an "alien may be granted asylum in the discretion of the attorney general if the attorney general determines that such alien is a refugee within the meaning of Section 1101(a) (42) (A) of this title." (Emphasis added). We thus must review the record in this case to discern whether the denial of the petitioner's asylum request was an abuse of that discretion. See Yiu Sing Chun v. Sava, 550 F. Supp. 90, 93-94 (E.D.N.Y. 1982), reversed on other grounds, 708 F.2d 869 (2d Cir. 1983). See also In re Lam, Interim Dec. No. 2857, p. 5 (BIA, Mar. 24, 1981) [it does not necessarily follow that an alien who has proven persecution sufficient to qualify for withholding of deportation will also be granted asylum]
Saballo-Cortez claims on appeal to "belong to the social class of young men who refuse to give service, military or otherwise to the Nicaraguan Comite de Sandinistas or Nicaraguan Military." In Chavez v. INS, 723 F.2d 1431 (9th Cir. 1984), this court, in rejecting petitioner's claim for asylum and withholding of deportation, held in part that the petitioner's status as a "young urban male neither in the military nor with the guerrillas" lacked sufficient specificity to trigger political asylum. 723 F.2d at 1433
Applications for asylum submitted during deportation hearings are considered both as asylum applications and applications for "withholding of deportation" under 8 U.S.C. § 1253(h). 8 C.F.R. Sec. 208.3(b) (1983). I disagree with the BIA's refusal to withhold deportation because my review of the record convinces me that its decision is not supported by substantial evidence. I, therefore, need not address the more difficult question whether the BIA's denial of asylum was an abuse of discretion. See INS v. Stevic, --- U.S. ----, 104 S. Ct. 2489, 2492-501, 81 L. Ed. 2d 321 (1984), for distinction between standards governing INS decisions denying asylum and INS decisions denying withholding of deportation
Saballo-Cortez contends that the BIA applied the incorrect burden of proof in dismissing his petition. I agree with the majority that we need not reach the issue of the appropriate burden of proof, but for a different reason. I would not reach that issue because, for the reasons stated in the text, the BIA's opinion lacks substantial evidence under any standard. See Zavala-Bonilla v. INS, 730 F.2d 562, 564 n. 2 (9th Cir. 1984) (burden of proof issue not considered because BIA's opinion lacked substantial evidence regardless of the applicable burden of proof)
The immigration judge's brief reference to the inconsistency regarding petitioner's travels merely indicates that the original application "was possibly in error." The immigration judge never relied on or even specifically made an adverse credibility determination based on that inconsistency or on anything else. The majority here, however, casts the immigration judge's decision as a credibility determination. At 1358-1359. The majority then holds that it "must defer to the immigration judge's express or implied" credibility determination, at 1361, concluding that " [t]he findings of the immigration judge and the BIA that Saballo-Cortez's uncorroborated beliefs were unbelievable is fully supported by the record." At 1361. Nowhere in the record do I find a ruling by the immigration judge that Saballo-Cortez was not a credible witness. Moreover, the majority opinion might be misread to place the burden of credibility directly on the asylum applicant. Of course, no such burden exists
Contrary to the majority, I do not think that McMullen is significant only where the immigration judge finds that a petitioner is credible and the BIA finds that he is not. Regardless of where the adverse credibility decision arises, to meet the substantial evidence standard, the BIA must logically explain its reasons for reaching its decision. Santana-Figueroa, 644 F.2d at 1356. See Contreras-Buenfil v. INS, 712 F.2d 401, 403 (9th Cir. 1983) (per curiam) (requiring same even where standard of review is more deferential than substantial evidence); Prapavat v. INS, 662 F.2d 561, 562 (9th Cir. 1981) (per curiam) (same)