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Jeffrey S. Chase
Hon. Jeffrey S. Chase
Jeffrey S. Chase Blog
Coordinator & Chief Spokesperson, Round Table of Former Immigration Judges

 

https://www.jeffreyschase.com/blog/2020/8/13/follow-the-bouncing-ball-persecution-and-the-shifting-burden-of-proof

Follow the Bouncing Ball: Persecution and the Shifting Burden of Proof

On July 24, the U.S. Court of Appeals for the Third Circuit reversed the BIA as to what constitutes past persecution.  In Blanco v. Att’y Gen., the asylum-seeker had been abducted by police in his native Honduras because he had participated in marches in support of the LIBRE party.  Police officers there detained him for 12 hrs in an abandoned house, where he was subjected to multiple beatings lasting 40 to 60 minutes each.  The police also  threatened to kill him and his family if he continued to participate in LIBRE party marches, and further insulted him with racial slurs.  Learning that other LIBRE supporters had been killed by the police, the petitioner moved from city to city within Honduras over the next 14 months.  However, he received three letters and one phone call during that time threatening that he and his family would be killed if he did not leave the country.

The immigration judge believed the petitioner, but nevertheless denied asylum, finding the harm to have not been severe enough to constitute past persecution.  The B.I.A. agreed, saying that the treatment was “more akin to harassment” than persecution.  The B.I.A. also found that the petitioner had not even established a well-founded fear of future persecution, concluding that there wasn’t a ten percent chance that a mere supporter who had last participated in a demonstration almost 2 years earlier would be persecuted.

The 3d Circuit reversed.  It first quoted the oft-cited phrase that “persecution does not encompass all forms of unfair, unjust, or even unlawful treatment.”  But the court continued that it has found persecution to include “threats to life, confinement, torture, and economic restrictions so severe that they constitute a real threat to life or freedom.”  Of course, the facts described above include multiple threats to life, as well as confinement and torture.  So then how did the Board find what was obviously persecution several times over to be “more akin to harassment?”

As the Third Circuit explained, the BIA and the immigration judge committed three errors.  The first was in finding that the past harm was not severe enough.  But the court noted that persecution does not require severe injury; in fact, it requires no physical injury at all, as evidenced by the fact that a death threat alone may constitute past persecution.  Thus, the court corrected the Board in holding that “physical harm is not dispositive in establishing past persecution.”

The court next corrected the Board’s discrediting of the threats on the ground that it was not “imminent,” citing  the fact that the threat was not carried out in the 14 months until the petitioner’s departure.  The court observed that in order to constitute persecution, a threat must be concrete and menacing, but explained that neither term relates to its immediacy.  Rather, concrete and menacing go to the likelihood of the threatened harm, and excludes threats that are merely “abstract or ideal.”  The court rejected the idea that an asylum-seeker must wait “to see if his would-be executioners would go through with their threats” before qualifying for protection, which “would upend the fundamental humanitarian concerns of asylum law.”

The last error pointed to by the court was the Board’s failure to weigh the various harms cumulatively.  The court distinguished between the Board’s claim to have considered the harm cumulatively, and its actual analysis, which considered the individual instances of harm in isolation.

The court observed that, having shown past persecution, there was a presumption that the petitioner possessed a well-founded fear of persecution, which is what one must prove to merit asylum.  But as both the IJ and the Board erred in their conclusion regarding past persecution, no determination regarding whether ICE had rebutted the regulatory presumption was ever reached.

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Although Blanco did not reach the question of what happens following a showing of past persecution, I would like to continue the conversation in order to discuss this point.  I don’t believe that the shifting burden of proof that arises upon a showing of past persecution is properly taught by EOIR in its training.  For that reason, years ago, when I was still with EOIR, I conducted a training in which I tried to clarify the concept by using a tennis analogy.  I will attempt to recreate the lesson here.

Imagine the asylum applicant as serving in a tennis match.  In tennis, only the serve must go into one specific box on the court, as opposed to anywhere on the opponent’s side of the net.  Here, I have marked that service box “past persecution,” as it is only by “serving” into that specific box that the asylum-seeker can create a presumption of well-founded fear, and thus shift the burden of proof to the government.

 

In the above illustration, the respondent has served into the “past persecution” box by establishing facts that constitute past persecution.  This doesn’t require a showing of severe or extreme persecution; any harm rising to the level of what has been found to constitute persecution will suffice.  Examples includes multiple instances of lesser harm that cumulatively rise to the level of persecution (see, e.g. Matter of O-Z- & I-Z-, 22 I&N Dec. 23 (BIA 1998); a concrete and menacing threat (not accompanied by actual physical harm); or persecution in the guise of criminal prosecution or conscription.

Once the respondent establishes past persecution, the ball is then in the DHS’s “court.”  The only way DHS can “return the serve” to the respondent’s side of the net (i.e. shift the burden of proof back to the asylum applicant) is to demonstrate either (1) changed circumstances such that the respondent no longer has a well-founded fear of persecution on account of a protected ground; or (2) that the respondent could reasonably safely relocate to another part of the home country.  If DHS can’t prove either of the above, the respondent has “won the point” of establishing persecution.

Only if DHS succeeds in establishing one of those two points is the ball returned to the respondent.  But just as in tennis, after the serve is returned, the respondent is no longer limited to hitting into the service box only.  The respondent now has a wider court in which to win the point:

Just as there are three boxes on each side of a tennis court (i.e. the two service boxes and the backcourt), the respondent now has three options for meeting the burden of proof.

The two service boxes (closest to the net)  represent the two ways in which one who has suffered past persecution can still merit a grant of “humanitarian asylum” even where there is no longer a basis to fear future persecution.

The first of these is where a humanitarian grant is merited based on the severity of the past persecution.  This is the only time that the severity of the past persecution matters.  (I believe that errors such as those committed in Blanco arise because the immigration judge remembers learning something about the severity of the past persecution, but isn’t quite clear on the context in which it arises.)

This rule is a codification of the BIA’s holding in a 1989 precedent decision, Matter of Chen.  In a concurring opinion in that decision, former Board Member Michael Heilman pointed out that our asylum laws are designed to conform to our international law obligations.  He continued that the source of those obligations, the 1951 Convention, came into effect years after the majority of those refugees it was meant to protect, i.e. those who had suffered past persecution during WW II, were clearly no longer at risk from the same persecutors following the defeat of the Axis powers

From this history, Heilman concluded that “the historical underpinnings of the Convention, from which the Refugee Act of 1980 receives its genesis, would have to be totally ignored if one were inclined to adopt the position that present likelihood of persecution is also required where past persecution has been established.”

The majority of the Board adopted this position only where it deemed the past persecution sufficiently severe, and it was that view that the regulations codified in 1990.

Years later, a second basis for humanitarian asylum was added to the regulations for those who suffered past persecution but had their presumption of well-founded fear rebutted by the government.  This second category (represented by the second service box in the third illustration) applies to those who might reasonably suffer “other serious harm” in their country of origin.  This rule (which became effective in January 2001) looks to whether the asylum applicant might suffer harm as severe as persecution, but unrelated to any specific ground or motive.  Thus, an asylum-seeker who suffered past persecution but whose original basis for asylum has dissipated due to changed conditions may merit a humanitarian grant where their return might give rise to mental anguish, put their health at risk due to the unavailability of necessary medical treatment or medication, or subject them to abject poverty or severe criminal extortion, to provide a few examples.

Lastly, an asylum applicant who no longer has a well-founded fear due to changed conditions in their country of origin may still “win the point” by establishing a different well-founded fear of persecution under the new conditions.

Copyright 2020 Jeffrey S. Chase.  All rights reserved. Reprinted With Permission.

 

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You’ll have to go to the original at the above link to see all of Jeffrey’s great “tennis court illustrations!”

Reminded me of my own, less than illustrious, career on the tennis court. Here’s the anecdote I shared with Jeffrey:

I loved it, Jeffrey, even though in my life many of my shots and serves “went over the fence.” Indeed, I once ended an inter-fraternity tennis match with a forfeit after hitting all of my opponent’s tennis balls into the Fox River which at that time bordered the LU Tennis Courts in Appleton. It was kind of like a “mercy killing” since I was being totally creamed anyway, and it was a hot day. I found Immigration Court a much more comfortable fit for my skill set.

I also appreciate Jeff’s citation of Matter of O-Z- & I-Z-, 23 I&N Dec. 22 (BIA 1998). I was on that panel, along with my colleagues Judge Lory Rosenberg and Judge Jerry Hurwitz, who wrote the opinion. The record will show that it was one of the few published BIA precedents where the three of us, members of the “Notorious Panel IV,” agreed. Perhaps that’s why it got published. Our colleagues probably figured that any time the three of us were in harmony, it must be an auspicious occasion worth preserving for the future!

In any event, of all of the more than 100 published decisions in which I participated during my tenure on the BIA, O-Z- & I-Z- on the issue of “cumulative harm” proved to be one of the most useful during my tenure at the Arlington Immigration Court. Attorneys on both sides, knowing my tendencies, liked to frame their arguments in many cases in terms of “it is” or “it isn’t” O-Z- & I-Z-.

I think that “cumulative harm” is one of the most important, and these days most overlooked or wrongly ignored, concepts in modern asylum law. It was really one of the keys to favorable resolution of many asylum cases based on “past persecution.” But, that goes back to a time when the law was applied to protect worthy asylum seekers, rather than to reject them, often on specious grounds as happens on today’s “deportation railroad.”

PWS

08-14-20

 

 

🏴‍☠️☠️🤮👎🏻ERROR SUPPLY: EOIR’s Anti-Asylum Bias, Failure To Apply Precedents, Earns Yet Another Rebuke From 3d Cir.  — Blanco v. AG

Dan Kowalski
Dan Kowalski
Online Editor of the LexisNexis Immigration Law Community (ILC)

Dan Kowalski reports for LexisNexis Immigration Community:

Immigration Law

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Daniel M. Kowalski

25 Jul 2020

CA3 on Persecution: Blanco v. Atty. Gen.

Blanco v. Atty. Gen.

“Ricardo Javier Blanco, a citizen of Honduras, is a member of Honduras’s Liberty and Refoundation (“LIBRE”) Party, an anti-corruption political party that opposes the current Honduran president. After participating in six political marches, he was abducted by the Honduran police and beaten, on and off, for twelve hours. He was let go but received death threats over the next several months until he fled to the United States. He applied for asylum, withholding of removal, and protection under the Convention Against Torture (“CAT”). The Immigration Judge (“IJ”) denied all relief, and the Board of Immigration Appeals (“BIA”) affirmed. Blanco now petitions for review of the agency’s decision, arguing that the BIA and IJ erred in denying his asylum and withholding of removal claims on the basis that his treatment did not rise to the level of persecution. He also argues that it was improper to require him to corroborate his testimony to prove his CAT claim. Because the agency misapplied our precedent when determining whether Blanco had established past persecution, and because it did not follow the three-part inquiry we established in Abdulai v. Ashcroft, 239 F.3d 542, 554 (3d Cir. 2001), before requiring Blanco to corroborate his CAT claim testimony, we will grant the petition, vacate the BIA’s decision, and remand for further proceedings.”

[Hats off to patent lawyers Gary H. Levin and Aaron B. Rabinowitz!]

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This should have been a “no brainer” asylum grant!

Instead, after two levels of disturbingly unprofessional administrative decision-making, now driven by racism and overt anti-immigrant bias, and one layer of “real court” review, the case is basically back to square one. No wonder this “Deadly Clown Court” ☠️🤡 is running a 1.4 million backlog, and counting!

Think we have the wrong folks on the “Immigration Bench?” You bet! Two smart patent lawyers from Baker Hostetler run legal circles around an IJ, the BIA, and OIL!

Interestingly, a significant number of students in my Georgetown Law Summer Semester Immigration Law & Policy (“ILP”) Class have been patent examiners and/or patent attorneys! They have all been amazing, both in class dialogue and on the final exam. I suspect it has something to do with analytical skills, meticulous research,  and attention to detail — always biggies in asylum litigation!

That’s why we must end a “built to fail” system that preys on unrepresented or underrepresented asylum seekers in illegal, intentionally inhumane and coercive, detention settings, where adequate preparation and documentation are impossible and where judges, too often lacking in asylum expertise, humanity, and/or the time to carefully research and deliberate, are pressured to engage in “assembly line denials.”

And, thanks to the racial dehumanization embraced by the Supremes’ majority many refugees, disproportionately those with brown or black skins, are completely denied fair access to the asylum hearing system. They are simply treated by our highest Court like human garbage — sent back to torture or potential death in unsafe foreign countries without any due process at all. So, the systemic failure is not by any means limited to the “Immigration Star Chambers.”

A simple rule of judging that appears “over the heads” of the current Supremes majority: If it wouldn’t be due process for you or your family in a death penalty case, than it’s not due process for any “person.”  Not “rocket science.” Just “Con Law 101” with doses of common sense and simple humanity thrown in. So why is it beyond the capabilities of our most powerful judges?

If there is any good news coming out of this mess, it’s that more talented litigators like Gary Levin and Aaron Rabinowitz from firms like Baker Hostetler are becoming involved in immigration and human rights litigation. They often run circles around Billy the Bigot’s ethically-challenged group of captive DOJ lawyers, who can no longer operate independently and ethically, even if they want to.

So, in a better future, after regime change, there are going to be lots of really great sources for better judges out there at all levels of the Federal Judiciary from the eventually independent Immigration Courts, to the U.S. District Courts and Magistrate Judges, to the Courts of Appeals, all the way to the Supremes.

At the latter, we need new and better Justices: Justices who understand immigration and human rights laws and the overriding human interests at stake, who will “lose” the White institutional racial bias and perverted right-wing ideologies that infect our current Court, and who are dedicated to making the vision of folks like Dr. King and Congressman John Lewis for “equal justice under law” and an end to dehumanization of persons of color a reality under our Constitution and within our system of justice!

There is no excuse for the current Supreme Court-enabled travesty unfolding in a biased, broken, and dysfunctional immigration system every day!

Due Process Forever!

This November, vote like our nation’s future existence depends on it! Because it does!

PWS

07-26-20