Jurisprudential Guides - Decision TB7-01837 - Immigration and Refugee Board of Canada

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</li></ul> </div> </div> </nav> <nav role="navigation" id="wb-bc" property="breadcrumb"> <h2>You are here:</h2> <div class="container"> <div class="row"> <ol class="breadcrumb"><li><a href="/en/pages/index.aspx">Home</a></li> <li><a href="/en/decisions/pages/index.aspx">Decisions</a></li> <li>Jurisprudential Guides - Decision TB7-01837</li> </ol> </div> </div> </nav> <nav id="userInfo" ></nav> </header> <div id="main-wrapper"> <div class="container"> <div class="row"> <main id="ctl00_main" role="main" property="mainContentOfPage" class="container"> <h1 id="wb-cont" property="name"> Jurisprudential Guides - Decision TB7-01837 </h1> <section> <div>  <script type="text/javascript" src="/_layouts/15/IRB.WET4/theme-gcwu-fegc/js/wet-boew.min.js" defer></script> <script type="text/javascript" src="/_layouts/15/IRB.WET4/theme-gcwu-fegc/js/tooltip.js" defer></script> <script type="text/javascript" src="/_layouts/15/IRB.WET4/theme-gcwu-fegc/js/popover.js" defer></script> <script type="text/javascript" src="/_layouts/15/IRB.WET4/GC-SharePoint/JS/sticky-sidebar.js"></script>  <div id="ctl00_PlaceHolderMain_ctl01_ctl00_label" style='display:none'>Page Content</div><div id="ctl00_PlaceHolderMain_ctl01_ctl00__ControlWrapper_RichHtmlField" class="ms-rtestate-field" style="display:inline" aria-labelledby="ctl00_PlaceHolderMain_ctl01_ctl00_label"><p class="text-right"> <a href="/en/decisions/Pages/index.aspx#info">Private Proceeding</a></p><h2>Reasons and Decision</h2><div class="span-2 row-start"><p> <strong>Person(s) who is(are) the subject of the appeal:</strong></p></div><div class="span-4 row-end"><p>XXXX XXXX</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Appeal considered / heard at:</strong></p></div><div class="span-4 row-end"><p>Toronto, Ontario</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Date of decision:</strong> </p></div><div class="span-4 row-end"><p>May 8, 2017</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Panel:</strong> </p></div><div class="span-4 row-end"><p>Edward Bosveld</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Counsel for the person(s) who is(are) the subject of the appeal:</strong> </p></div><div class="span-4 row-end"><p>Elyse Korman</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Designated Representative(s):</strong> </p></div><div class="span-4 row-end"><p>N/A</p></div><div class="clear"> </div><div class="span-2 row-start"><p> <strong>Counsel for the Minister:</strong></p></div><div class="span-4 row-end"><p>N/A</p></div><div class="clear"> </div><hr /><h2>Reasons for Decision</h2><p> <span class="margin-right-medium">[1] </span>XXXX XXXX (the Appellant), a citizen of Pakistan, appeals a decision of the Refugee Protection Division (<abbr>RPD</abbr>) denying her claim for refugee protection. She has submitted no new evidence in support of her appeal. The Appellant asks the Refugee Appeal Division (<abbr>RAD</abbr>) to set aside the negative determination of the <abbr>RPD</abbr> and either find her to be a Convention refugee or refer the matter back to the <abbr>RPD</abbr> for redetermination. </p><h3>Determination</h3><p> <span class="margin-right-medium">[2] </span>Pursuant to section 111(1)(b) of the <em>Immigration and Refugee Protection Act</em> (<abbr>IRPA</abbr>), the <abbr>RAD</abbr> sets aside the determination of the <abbr>RPD</abbr> and substitutes its determination that the Appellant is a Convention refugee. This appeal is allowed.</p><h4>Background</h4><p> <span class="margin-right-medium">[3] </span>The Appellant alleged before the <abbr>RPD</abbr> that she is a devout member of the Ahmadi religious minority in Pakistan, and that she fears persecution in her country of origin because of her faith. </p><p> <span class="margin-right-medium">[4] </span>The Appellant’s application for refugee protection was heard on November 3, 2016. By a decision of December 20, 2016, the <abbr>RPD</abbr> rejected the claim. The panel accepted the Appellant’s national identity as a citizen of Pakistan and her religious identity as an Ahmadi. However, it cited a number of credibility concerns, found that the Appellant had no particular profile as an Ahmadi, and concluded that she also lacks subjective fear. The <abbr>RPD</abbr> acknowledged the existence of laws targeting the Ahmadi minority but found that “this does not necessarily give good grounds for fearing persecution. If that were the case every Ahmadi would be a refugee.”<sup id="fn1-rf"><a class="fn-lnk" href="#fn1"><span class="wb-inv">Footnote </span>1</a></sup></p><p> <span class="margin-right-medium">[5] </span>The Appellant submits that the <abbr>RPD</abbr> erred in finding that she can freely practice her religion in Pakistan, in making unsustainable credibility findings, in concluding that she lacks subjective fear or an objective basis for such fear, and in failing to conduct an analysis under section 97 of the <abbr>IRPA</abbr>. She also points out that the same <abbr>RPD</abbr> member has previously rendered very similar decisions which were overturned by the <abbr>RAD</abbr> in strongly-worded decisions.</p><h3>Analysis</h3><h4>The Role of the <abbr>RAD</abbr></h4><p> <span class="margin-right-medium">[6] </span>While the <abbr>IRPA</abbr> sets out grounds for appeal as well as possible remedies, it does not specify the standard by which the <abbr>RAD</abbr> is to review the decision of the lower tribunal.</p><p> <span class="margin-right-medium">[7] </span>The Appellant makes no specific submissions on the standard of review to be applied here. </p><p> <span class="margin-right-medium">[8] </span>The <abbr>RAD</abbr> is a creature of statute and so is the appeal before it; its role and jurisdiction are best determined by looking at the legislative provisions creating the <abbr>RAD</abbr> and the appeal.<sup id="fn2-rf"><a class="fn-lnk" href="#fn2"><span class="wb-inv">Footnote </span>2</a></sup>  Such an appeal  </p><p class="indent-xlarge margin-right-xlarge">(i) is directed at the decision of the <abbr>RPD</abbr>, (ii) unless new evidence is accepted, is to be entertained on the basis of the record as it was constituted at the time of the <abbr>RPD</abbr>’s decision, and (iii) is to be concerned solely with the errors of law, of fact or of mixed fact and law that, according to the appellant, the <abbr>RPD</abbr> made. This is the statutory configuration of an appeal before the <abbr>RAD</abbr>.<sup id="fn3-rf"><a class="fn-lnk" href="#fn3"><span class="wb-inv">Footnote </span>3</a></sup></p><p> <span class="margin-right-medium">[9] </span>According to the Federal Court of Appeal, the <abbr>RAD</abbr> is to carefully consider the <abbr>RPD</abbr>’s decision and then carry out its own analysis of the record to determine whether, as submitted by the Appellant, the <abbr>RPD</abbr> erred. It is then to provide a final determination, either confirming the <abbr>RPD</abbr>’s decision or setting it aside and substituting the <abbr>RAD</abbr>’s own determination of the refugee claim. If the <abbr>RAD</abbr> cannot provide such a final determination without hearing the oral evidence already presented to the <abbr>RPD</abbr>, the matter can be referred back to the <abbr>RPD</abbr>.<sup id="fn4-rf"><a class="fn-lnk" href="#fn4"><span class="wb-inv">Footnote </span>4</a></sup></p><p> <span class="margin-right-medium">[10] </span>The <abbr>RAD</abbr> will review the <abbr>RPD</abbr>’s decision on a standard of correctness, showing deference only where the <abbr>RPD</abbr> had a meaningful advantage in making a finding. Even where the <abbr>RAD</abbr> is to show deference to findings of the <abbr>RPD</abbr>, those findings must still be the result of a comprehensible reasoning process. The <abbr>RAD</abbr> must be able to read the <abbr>RPD</abbr>’s decision and understand how the <abbr>RPD</abbr>’s conclusions were reached. </p><h4>The <abbr>RPD</abbr>’s Findings</h4><p> <span class="margin-right-medium">[11] </span>The Appellant argues that the <abbr>RPD</abbr> made various errors in rejecting her claim.</p><h5>Credibility findings</h5><p> <span class="margin-right-medium">[12] </span>The <abbr>RPD</abbr> found credibility to be a key issue, and considered the Appellant’s evidence about being harassed at school when she was a child. The <abbr>RPD</abbr> member questioned the Appellant at some length about the proportion of Ahmadis and non-Ahmadis in her elementary classes or those of her children. The <abbr>RPD</abbr> cited objective evidence that non-Ahmadi children were not allowed in area schools while the Appellant was in school, and concluded that the Appellant’s evidence was not trustworthy. The <abbr>RPD</abbr> also found that it “stretches the imagination that in every class for each of her children’s school years that all classes were half non-Ahmadi who harassed each of her children in each of their respective school years.”<sup id="fn5-rf"><a class="fn-lnk" href="#fn5"><span class="wb-inv">Footnote </span>5</a></sup></p><p> <span class="margin-right-medium">[13] </span>The Appellant submits on appeal that she never said half her classmates were non-Ahmadi; rather, she testified that in 1974, the Ahmadi-majority city of XXXX was declared open to non-Ahmadis, many of whom subsequently moved into the city. She argues that the only reference she made about the number of non-Ahmadi students was with respect to her son’s class during his last year of school. </p><p> <span class="margin-right-medium">[14] </span>While the <abbr>RPD</abbr> has a meaningful advantage over the <abbr>RAD</abbr> in assessing the credibility of oral testimony, the <abbr>RPD</abbr>’s findings must nevertheless be based on the evidence. The <abbr>RAD</abbr> has reviewed the audio recording of the <abbr>RPD</abbr> hearing as well as the transcript provided by the Appellant. There is nothing in the evidence to indicate that the Appellant testified about half of her classmates being non-Ahmadi; when pressed by the <abbr>RPD</abbr> member, she estimated that about half of her son’s classmates were non-Ahmadi in his last year of school.<sup id="fn6-rf"><a class="fn-lnk" href="#fn6"><span class="wb-inv">Footnote </span>6</a></sup> The <abbr>RPD</abbr>’s credibility finding here is not supported by the evidence and is therefore wrong.</p><p> <span class="margin-right-medium">[15] </span>The <abbr>RPD</abbr> also considered the Appellant’s testimony about one of her sons, a XXXX and XXXX, and found it “not credible that [he]… would be able to restrict his movements to seldom going out and only at night.”<sup id="fn7-rf"><a class="fn-lnk" href="#fn7"><span class="wb-inv">Footnote </span>7</a></sup> With respect, this is not a matter of credibility but rather a finding of implausibility, to which the <abbr>RAD</abbr> owes no deference. In any event, this finding too is based on misconstrued evidence. In fact, the Appellant testified that her son did <em>not </em>go out at night, though the transcript indicates that the <abbr>RPD</abbr> member may have misunderstood this:</p><p class="indent-xlarge margin-right-xlarge"> <strong>Appellant:</strong> The situation in XXXX is pretty bad because the mullahs they take out processions against Ahmadis. They come and chant slogans against Ahmadis. The situation is not very safe in XXXX. So therefore, my son avoids going during the night.</p><p class="indent-xlarge margin-right-xlarge"> <strong> <abbr>RPD</abbr> Member:</strong> Going out during the night?</p><p class="indent-xlarge margin-right-xlarge"> <strong>Appellant:</strong> Yes.</p><p class="indent-xlarge margin-right-xlarge"> <strong> <abbr>RPD</abbr> Member:</strong> How can he go out during the night when he is XXXX?</p><p class="indent-xlarge margin-right-xlarge"> <strong>Appellant:</strong> He XXXX during the day but the danger is people coming from outside XXXX, so he avoids going out when it is dark.<sup id="fn8-rf"><a class="fn-lnk" href="#fn8"><span class="wb-inv">Footnote </span>8</a></sup></p><p> <span class="margin-right-medium">[16] </span>The <abbr>RPD</abbr>’s implausibility finding here is based on a misapprehension of the evidence and is therefore wrong.</p><p> <span class="margin-right-medium">[17] </span>The Appellant alleged in her Basis of Claim (<abbr>BOC</abbr>) narrative that she feared being charged under Pakistan’s blasphemy laws. The <abbr>RPD</abbr> found, however, that “at no point during the hearing did the claimant volunteer such fear.”<sup id="fn9-rf"><a class="fn-lnk" href="#fn9"><span class="wb-inv">Footnote </span>9</a></sup> In fact, the Appellant was asked by her counsel, “What could happen if the wrong person were to find out that you are Ahmadi?” The Appellant replied, “Anything could happen if such person would come to know about it and they can falsely put allegations of blasphemy on us.”<sup id="fn10-rf"><a class="fn-lnk" href="#fn10"><span class="wb-inv">Footnote </span>10</a></sup> The <abbr>RPD</abbr>’s analysis here is again not based on the evidence.</p><p> <span class="margin-right-medium">[18] </span>The <abbr>RPD</abbr> identified credibility as a “key issue in this claim,” and “found much of the claimant’s testimony to be implausible, giving rise to enough reason to rebut the presumption of truthfulness on her part.”<sup id="fn11-rf"><a class="fn-lnk" href="#fn11"><span class="wb-inv">Footnote </span>11</a></sup> However, the credibility findings are simply wrong, and the <abbr>RPD</abbr> has not provided any explanation of why it found much of the testimony to be implausible.</p><h5>Subjective Fear</h5><p> <span class="margin-right-medium">[19] </span> The <abbr>RPD</abbr> noted that the Appellant left Pakistan on more than one occasion to live with relatives in India, which is not a signatory to the refugee Convention. The <abbr>RPD</abbr> faulted the Appellant for failing to make inquiries about remaining in India. Further, she did not attempt to come to Canada until after two of her sons had arrived and been granted refugee status. The <abbr>RPD</abbr> found the Appellant to be lacking in subjective fear: she did not attempt to stay in India, she repeatedly returned to Pakistan, and when she arrived in Canada, she delayed in making a refugee claim for some months. Her explanation for the delay was that she did not want to jeopardize the visa application of her daughter-in-law’s mother, who also sought to flee Pakistan. The <abbr>RPD</abbr> considered this an attempt to “manipulate the system” in Canada,<sup id="fn12-rf"><a class="fn-lnk" href="#fn12"><span class="wb-inv">Footnote </span>12</a></sup> and further concluded that the Appellant was engaged in a “blatant abuse of the refugee protection system and must be dealt with under immigration law and not refugee law.”<sup id="fn13-rf"><a class="fn-lnk" href="#fn13"><span class="wb-inv">Footnote </span>13</a></sup></p><p> <span class="margin-right-medium">[20] </span>The Appellant submits that delay in departure is not usually determinative of a claim for refugee protection. Where that claim is based on a number of persecutory acts that take place over a long period of time, delay in departure is not a reasonable basis to doubt subjective fear. The Appellant explained to the <abbr>RPD</abbr> that she does not have status in India, nor does she have rights to status through her parents; in addition, her husband and children were in Pakistan. After her husband died in 1988, she struggled to raise four sons alone, and had no choice but to wait for them to establish themselves abroad so that they could bring her to safety. Her five visa applications illustrate her determination to leave Pakistan, and her delay in claiming in Canada was reasonable as she did not want to jeopardize the ability of her daughter-in-law’s mother to flee Pakistan.</p><p> <span class="margin-right-medium">[21] </span>In the <abbr>RAD</abbr>’s view, the <abbr>RPD</abbr> was required to consider the cumulative and escalating nature of the feared persecution when assessing the Appellant’s subjective fear. The Appellant experienced discriminatory and persecutory incidents throughout her life in Pakistan; she notes in her <abbr>BOC</abbr> narrative that the situation deteriorated over the years, especially after large-scale attacks on Ahmadis in 2010. One son left in 2008, and another in  2012. The Appellant applied for visas in XXXX 2013, XXXX 2014, XXXX 2014, and XXXX  2015, before finally receiving a visa in XXXX of 2016.<sup id="fn14-rf"><a class="fn-lnk" href="#fn14"><span class="wb-inv">Footnote </span>14</a></sup> In <em>Ibrahimov</em>, the Federal Court wrote,</p><p class="indent-xlarge margin-right-xlarge">…when a claim is based on a number of discriminatory or harassing incidents which culminate in an event which forces a person to leave his country, then the issue of delay cannot be used as a significant factor to doubt that person's subjective fear of persecution. Cumulative acts which may amount to persecution will take time to occur. If a person's claim is actually based on several incidents which occur over time, the cumulative effects of which may amount to persecution, then looking to the beginning of such discriminatory or harassing treatment and comparing that to the date on which a person leaves the country to justify rejection of the claim on the basis of delay, undermines the very idea of cumulative persecution.<sup id="fn15-rf"><a class="fn-lnk" href="#fn15"><span class="wb-inv">Footnote </span>15</a></sup></p><p> <span class="margin-right-medium">[22] </span>It was therefore an error for the <abbr>RPD</abbr> to fault the Appellant for failing to remain in India – where she has no status, has no right to status, and which is not signatory to the refugee Convention – or for returning to Pakistan, or for failing to leave Pakistan at an earlier date.</p><p> <span class="margin-right-medium">[23] </span>The <abbr>RPD</abbr> also erred in rejecting the Appellant’s explanation for her delay in claiming. The Appellant had considerable difficulty in obtaining a Canadian visa; she was concerned that, if she immediately made a refugee claim, this would prevent another family member from obtaining a visa. While the <abbr>RPD</abbr> clearly disapproved of what it viewed as a manipulation of Canada’s asylum system, this does not change the fact that the Appellant was in status in Canada and that there was no risk to her in waiting a few months to claim. Conversely, she believed that there was a risk to another Ahmadi woman if the Appellant were to promptly file a refugee claim. While the <abbr>RPD</abbr> may have disapproved of the Appellant’s motives, her actions here simply do not indicate a lack of subjective fear.</p><p> <span class="margin-right-medium">[24] </span>The <abbr>RPD</abbr> erred when it found the Appellant to be lacking in subjective fear. </p><h5>Objective Basis and Religious Persecution</h5><p> <span class="margin-right-medium">[25] </span>In the <abbr>RAD</abbr>’s view, the key issue in the Appellant’s refugee claim was her risk of persecution as an Ahmadi. The <abbr>RPD</abbr>’s analysis of this issue is puzzling and problematic.</p><p> <span class="margin-right-medium">[26] </span>The <abbr>RPD</abbr> noted the Appellant’s testimony that “she would like to discuss openly or preach her Ahmadi religion but only discussed her religion with people she trusts, otherwise she hides her religion.” The panel correctly observed that “any person wishing to manifest their faith openly should be able to do so,” but then inexplicably concluded that “there is nothing in this claimant’s evidence that would persuade this panel that the claimant had any desire to proselytise or hold religious conversations with non-Ahmadis.”<sup id="fn16-rf"><a class="fn-lnk" href="#fn16"><span class="wb-inv">Footnote </span>16</a></sup> The <abbr>RAD</abbr> simply cannot understand this analysis, which appears to be internally inconsistent: if the Appellant testified that she would like to openly preach her religion, how could the <abbr>RPD</abbr> find no evidence of any desire to proselytise or hold religious conversations?</p><p> <span class="margin-right-medium">[27] </span>The <abbr>RPD</abbr> considered the Appellant’s evidence that she stopped attending the main mosque in 2010 after two violent attacks on Ahmadi places of worship. It noted that her prayers were interfered with by abusive anti-Ahmadi messages broadcast over loudspeakers from the Sunni mosque. As discussed above, it was aware of her testimony that she wished to openly discuss her faith but could not. The <abbr>RPD</abbr> referred to objective evidence that religious minorities in Pakistan, including minorities, are “subject to societal abuses, discrimination and/or persecution at the hands of extremists and/or the authorities.” It also observed that “Ahmadi Muslims continue to be victimized, with the May 2014 murder of a Canadian-American Ahmadi conducting humanitarian work and the recent mob attack on an Ahmadi home serving as a graphic reminder of their vulnerability….”<sup id="fn17-rf"><a class="fn-lnk" href="#fn17"><span class="wb-inv">Footnote </span>17</a></sup> Despite all of this evidence, it somehow concluded that there is not a serious possibility that the Appellant will be persecuted for a Convention ground.</p><p> <span class="margin-right-medium">[28] </span>The <abbr>UNHCR</abbr> Handbook states, with respect to religion, that:</p><p class="indent-xlarge margin-right-xlarge">71. The Universal Declaration of Human Rights and the Human Rights Covenant proclaim the right to freedom of thought, conscience and religion, which right includes the freedom of a person to change his religion and his freedom to manifest it in public or private, in teaching, practice, worship and observance.</p><p class="indent-xlarge margin-right-xlarge">72. Persecution for “reasons of religion” may assume various forms, e.g. prohibition of membership of a religious community, of worship in private or in public, of religious instruction, or serious measures of discrimination imposed on persons because they practise their religion or belong to a particular religious community.<sup id="fn18-rf"><a class="fn-lnk" href="#fn18"><span class="wb-inv">Footnote </span>18</a></sup></p><p> <span class="margin-right-medium">[29] </span>The Handbook also speaks to the difference between discrimination and persecution:</p><p class="indent-xlarge margin-right-xlarge">It is only in certain circumstances that discrimination will amount to persecution. This would be so if measures of discrimination lead to consequences of a substantially prejudicial nature for the person concerned, e.g. serious restrictions on his right to earn his livelihood, his right to practise his religion, or his access to normally available educational facilities.<sup id="fn19-rf"><a class="fn-lnk" href="#fn19"><span class="wb-inv">Footnote </span>19</a></sup></p><p> <span class="margin-right-medium">[30] </span>In <em>Rajudeen,</em> the Federal Court of Appeal adopted this definition of religious persecution: “To harass or afflict with repeated acts of cruelty or annoyance; to afflict persistently, to afflict or punish because of particular opinions or adherence to a particular creed or mode of worship.”<sup id="fn20-rf"><a class="fn-lnk" href="#fn20"><span class="wb-inv">Footnote </span>20</a></sup></p><p> <span class="margin-right-medium">[31] </span>Having accepted that the Appellant is Ahmadi, the <abbr>RPD</abbr> was obligated to consider whether the treatment of Ahmadis in Pakistan, including the Appellant,  constitutes persecution on the basis of religion. </p><p> <span class="margin-right-medium">[32] </span>There is important evidence in the record with respect to Ahmadis which was not discussed by the <abbr>RPD</abbr>. The constitution of Pakistan was amended in 1974 to declare Ahmadis as “non-Muslim;” ten years later, the criminal code was amended to make it a crime for Ahmadis to refer to themselves as Muslims or to practice or propagate their faith as Muslims. When applying for an identification card or passport, all Pakistanis must sign an oath rejecting the founder of the Ahmadi religion and declaring that Ahmadis are non-Muslims. Ahmadis have faced prosecution under Pakistan’s blasphemy laws, and the mere accusation of blasphemy leads to mob attacks and lynchings. Ahmadis have been arrested for reading the Quran and for using Quranic verses on rings and wedding cards. Ahmadis face severe societal discrimination, and societal attitudes have become increasingly hostile in the past decade. Some anti-Ahmadi groups have organized rallies where they described the killing of Ahmadis as a religious obligation. There have been numerous acts of violence against Ahmadis and the police have a poor track record of providing protection. </p><p> <span class="margin-right-medium">[33] </span>Ahmadis are marginalized and excluded from the political system because, in order to register as a voter, they are required to sign a declaration about the finality of the prophet Muhammad, with which they cannot agree. Students applying for university must, if identifying themselves as Muslim, sign a similar declaration, which excludes Ahmadis. University teachers have called for the killing of Ahmadis, and students who objected to this were expelled. The Pakistani government proactively victimizes Ahmadis socially, economically, and educationally, to the point where livelihoods become difficult.<sup id="fn21-rf"><a class="fn-lnk" href="#fn21"><span class="wb-inv">Footnote </span>21</a></sup></p><p> <span class="margin-right-medium">[34] </span>In this case, as in previous decisions, the <abbr>RPD</abbr> wrongly applied a too-narrow definition of persecution. The <abbr>RPD</abbr> focused on physical violence, and appeared to conclude that the Appellant will not be harmed or killed because of her religion. However, the <abbr>RPD</abbr> did not undertake a serious analysis of whether the restrictions faced by Ahmadis, including the Appellant, amount to a denial of the fundamental right to freedom of religion.</p><p> <span class="margin-right-medium">[35] </span>Freedom of religion includes the right to manifest one’s religion in practice, including in public, a freedom not enjoyed by Ahmadis in Pakistan. They face measures which lead to consequences of a substantially prejudicial nature, including the prohibition against describing themselves as Muslims, difficulty in applying for documents and for entrance to educational institutions, interference in mosque attendance and prayer, and a prohibition on proselytizing. Even if Ahmadis faced no threat of physical harm – and the evidence indicates that there is indeed such danger – there is considerable evidence to support the argument that they experience religious persecution. </p><p> <span class="margin-right-medium">[36] </span>The <abbr>RAD</abbr> finds that the Appellant faces serious restrictions on the practice of her religion. She  need not establish that she will be physically harmed. The evidence shows that she may not describe herself a Muslim; that she must deny her faith – choosing to either be Muslim or Ahmadi, but not both - to obtain documents or gain admission to government institutions; that she wishes to speak publicly of her faith, but is prohibited from doing so; that her prayers are deliberately interfered with by hate-spewing loudspeakers; that she could not attend a particular mosque because of the threat of violence; and that she risks prosecution under the blasphemy laws. </p><p> <span class="margin-right-medium">[37] </span>The <abbr>RPD</abbr> stated that “the mere existence of laws targeting a specific religious group in this case Ahmadi does not necessarily give good grounds for fearing persecution. If that were the case every Ahmadi would be a refugee.”<sup id="fn22-rf"><a class="fn-lnk" href="#fn22"><span class="wb-inv">Footnote </span>22</a></sup> While the mere existence of persecutory laws may not be enough to establish a refugee claim, the <abbr>RPD</abbr> is required to look beyond the existence of those laws and to consider whether and how they are implemented, and what other measures and practices may impact on a refugee claimant’s freedom of religion. </p><p> <span class="margin-right-medium">[38] </span>It is not for the <abbr>RPD</abbr>, or the <abbr>RAD</abbr>, to determine whether “every Ahmadi would be a refugee,” though it is not uncommon for an entire group to be considered at risk of persecution in a particular country due to their profile, whether that be for reasons of sexual orientation, ethnicity, or religion. However, in considering claims such as that of the Appellant, the <abbr>RPD</abbr> is obligated to correctly apply the definition of religious persecution to the evidence, and to avoid restricting that definition to physical harm.</p><p> <span class="margin-right-medium">[39] </span>Having considered the evidence, the <abbr>RAD</abbr> finds that the Appellant faces a serious possibility of persecution on account of her Ahmadi religion. As the state is one of the leading agents of persecution, the Appellant cannot expect adequate state protection. As the persecutory laws, measures, and practices exist in all areas of Pakistan, the Appellant cannot avail herself of a viable internal flight alternative.</p><h3>Conclusion </h3><p> <span class="margin-right-medium">[40] </span>Pursuant to section 111(1)(b) of the <abbr>IRPA</abbr>, the <abbr>RAD</abbr> sets aside the determination of the <abbr>RPD</abbr> and substitutes its determination that the Appellant is a Convention refugee. This appeal is allowed. </p><div class="span-1 col-start margin-top-large"><p>Signed: </p></div><div class="span-4 col-end margin-top-large"><p>Edward Bosveld</p></div><div class="clear"> </div><div class="span-1 col-start"><p>Date: </p></div><div class="span-4 col-end"><p>May 8, 2017</p></div><div class="clear"> </div> <aside class="wb-fnote" role="note"> <h2 class="wb-inv" id="fn">Footnotes</h2> <dl><dt id="fn1-dt">Footnote 1</dt><dd id="fn1"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 12, <abbr title="paragraph">para.</abbr> 34.</p><p class="fn-rtn"> <a href="#fn1-rf"> <span class="wb-inv">Return to footnote </span>1<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn2-dt">Footnote 2</dt><dd id="fn2"><p> <em>Dhillon, Jatinder Singh</em> v. <em>M.C.I.</em> (<abbr>F.C.</abbr>, no. IMM-5156-14), LeBlanc, March 13, 2015,  2015 <abbr>FC</abbr> 321, <abbr title="paragraph">para.</abbr> 14; <em>M.C.I.</em> v. <em>Huruglica, Bujar</em> (<abbr>F.C.A.</abbr>, no. A-470-14), Gauthier, Webb, Near, March 29, 2016, 2016 <abbr>FCA</abbr> 93, <abbr title="paragraph">para.</abbr> 46.</p><p class="fn-rtn"> <a href="#fn2-rf"> <span class="wb-inv">Return to footnote </span>2<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn3-dt">Footnote 3</dt><dd id="fn3"><p> <em>Dhillon</em>, 2015 <abbr>FC</abbr> 321, <abbr title="paragraphs">para.</abbr> 14-18. </p><p class="fn-rtn"> <a href="#fn3-rf"> <span class="wb-inv">Return to footnote </span>3<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn4-dt">Footnote 4</dt><dd id="fn4"><p> <em>Huruglica</em>, 2016 <abbr>FCA</abbr> 93, <abbr title="paragraph">para.</abbr> 103. </p><p class="fn-rtn"> <a href="#fn4-rf"> <span class="wb-inv">Return to footnote </span>4<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn5-dt">Footnote 5</dt><dd id="fn5"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 7, <abbr title="paragraphs">para.</abbr> 15-16.</p><p class="fn-rtn"> <a href="#fn5-rf"> <span class="wb-inv">Return to footnote </span>5<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn6-dt">Footnote 6</dt><dd id="fn6"><p>Exhibit P-2, Appellant’s Record, <abbr title="page">p.</abbr> 53, Transcript, Audio Recording 1:40:44 to 1:50:55.</p><p class="fn-rtn"> <a href="#fn6-rf"> <span class="wb-inv">Return to footnote </span>6<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn7-dt">Footnote 7</dt><dd id="fn7"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="pages">pp.</abbr> 7-8, <abbr title="paragraph">para.</abbr> 18.</p><p class="fn-rtn"> <a href="#fn7-rf"> <span class="wb-inv">Return to footnote </span>7<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn8-dt">Footnote 8</dt><dd id="fn8"><p>Exhibit P-2, Appellant’s Record, <abbr title="page">p.</abbr> 52, Transcript, Audio Recording, 1:15:25 to 1:26:10.</p><p class="fn-rtn"> <a href="#fn8-rf"> <span class="wb-inv">Return to footnote </span>8<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn9-dt">Footnote 9</dt><dd id="fn9"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 9, <abbr title="paragraph">para.</abbr> 23.</p><p class="fn-rtn"> <a href="#fn9-rf"> <span class="wb-inv">Return to footnote </span>9<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn10-dt">Footnote 10</dt><dd id="fn10"><p>Exhibit P-2, Appellant’s Record, Transcript, <abbr title="page">p.</abbr> 54.</p><p class="fn-rtn"> <a href="#fn10-rf"> <span class="wb-inv">Return to footnote </span>10<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn11-dt">Footnote 11</dt><dd id="fn11"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 6, <abbr title="paragraph">para.</abbr> 11.</p><p class="fn-rtn"> <a href="#fn11-rf"> <span class="wb-inv">Return to footnote </span>11<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn12-dt">Footnote 12</dt><dd id="fn12"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="pages">pp.</abbr> 10-11, <abbr title="paragraph">para.</abbr> 26.</p><p class="fn-rtn"> <a href="#fn12-rf"> <span class="wb-inv">Return to footnote </span>12<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn13-dt">Footnote 13</dt><dd id="fn13"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 11, <abbr title="paragraph">para.</abbr> 29.</p><p class="fn-rtn"> <a href="#fn13-rf"> <span class="wb-inv">Return to footnote </span>13<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn14-dt">Footnote 14</dt><dd id="fn14"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, <abbr title="pages">pp.</abbr> 26-27, Basis of Claim Narrative.</p><p class="fn-rtn"> <a href="#fn14-rf"> <span class="wb-inv">Return to footnote </span>14<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn15-dt">Footnote 15</dt><dd id="fn15"><p> <em>Ibrahimov, Fikrat</em> v. <em>M.C.I.</em> (<abbr>F.C.</abbr>, no. <abbr>IMM</abbr>-4258-02), Heneghan, October 10, 2003, 2003 <abbr>FC</abbr> 1185, <abbr title="paragraph">para.</abbr> 19.</p><p class="fn-rtn"> <a href="#fn15-rf"> <span class="wb-inv">Return to footnote </span>15<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn16-dt">Footnote 16</dt><dd id="fn16"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 9, <abbr title="paragraph">para.</abbr> 21.</p><p class="fn-rtn"> <a href="#fn16-rf"> <span class="wb-inv">Return to footnote </span>16<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn17-dt">Footnote 17</dt><dd id="fn17"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 12, <abbr title="paragraphs">para.</abbr> 31 and 33.</p><p class="fn-rtn"> <a href="#fn17-rf"> <span class="wb-inv">Return to footnote </span>17<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn18-dt">Footnote 18</dt><dd id="fn18"><p> <abbr>UNHCR</abbr> Handbook, <abbr title="paragraphs">para.</abbr> 71 and 72.</p><p class="fn-rtn"> <a href="#fn18-rf"> <span class="wb-inv">Return to footnote </span>18<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn19-dt">Footnote 19</dt><dd id="fn19"><p>Ibid, <abbr title="paragraph">para.</abbr> 54.</p><p class="fn-rtn"> <a href="#fn19-rf"> <span class="wb-inv">Return to footnote </span>19<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn20-dt">Footnote 20</dt><dd id="fn20"><p> <em>Rajudeen, Zahirdeen</em> v. <em>M.E.I.</em> (<abbr>F.C.A.</abbr>, no. A-1779-83), Heald, Hugessen, Stone (concurring), July 4, 1984. Reported: <em>Rajudeen</em> v. <em>Canada (Minister of Employment and Immigration)</em> (1984), 55 N.R. 129 (<abbr>F.C.A.</abbr>). </p><p class="fn-rtn"> <a href="#fn20-rf"> <span class="wb-inv">Return to footnote </span>20<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn21-dt">Footnote 21</dt><dd id="fn21"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, exhibit 3, National Documentation Package (<abbr>NDP</abbr>) for Pakistan (April 29, 2016), item 12.6, Situation of Ahmadis.</p><p class="fn-rtn"> <a href="#fn21-rf"> <span class="wb-inv">Return to footnote </span>21<span class="wb-inv"> referrer</span></a></p></dd><dt id="fn22-dt">Footnote 22</dt><dd id="fn22"><p>Exhibit <abbr>RPD</abbr>-1, <abbr>RPD</abbr>’s Record, Reasons and Decision, <abbr title="page">p.</abbr> 12, <abbr title="paragraph">para.</abbr> 34.</p><p class="fn-rtn"> <a href="#fn22-rf"> <span class="wb-inv">Return to footnote </span>22<span class="wb-inv"> referrer</span></a></p></dd></dl> </aside> </div> </div> </section> <div style='display:none' id='hidZone'><ul class="ms-hide"> <li id="MSOMenu_Help" style='background:url("/_layouts/15/images/HelpIcon.gif");display:none;' onclick="MSOWebPartPage_SetNewWindowLocation(MenuWebPart.getAttribute('helpLink'), MenuWebPart.getAttribute('helpMode'))" > </li> </ul></div> <div id="DeveloperDashboard" class="ms-developerdashboard"> </div> </main> </div> </div> </div> </div> <div id="bottom-fold-wrapper"> <div class="s4-notdlg">  <aside class="gc-nttvs container"> <h2>Features</h2 > <div id="gcwb_prts" class="wb-eqht row"><section class="col-lg-4 col-md-6 mrgn-bttm-md"><a rel ="external" href="https://irb-cisr.gc.ca/en/jobs/Pages/index.aspx"> <div class="mrgn-bttm-sm"> <div class="acFooterImage"> <img class="img-responsive" src="/WET4ActivitiesInitiatives/Jobs_feature-360x207.jpg" alt=""> </div> <h3 class="h5 lnkFeature">Careers at the IRB</h3> </div></a> <p>Grow your career with us and help shape the future of Canada</p> </section><section class="col-lg-4 col-md-6 mrgn-bttm-md"><a rel ="external" href="https://mycase-mondossier.irb-cisr.canada.ca/en-US/"> <div class="mrgn-bttm-sm"> <div class="acFooterImage"> <img class="img-responsive" src="/WET4ActivitiesInitiatives/My Case Feature-ext-360x207-en.jpg" alt=""> </div> <h3 class="h5 lnkFeature">My Case</h3> </div></a> <p>Secure online document exchange with our counsel community and contracted designated representatives.</p> </section><section class="col-lg-4 col-md-6 mrgn-bttm-md"><a rel ="external" href="https://irb-cisr.gc.ca/en/transparency/accessibility/pages/index.aspx"> <div class="mrgn-bttm-sm"> <div class="acFooterImage"> <img class="img-responsive" src="/WET4ActivitiesInitiatives/IRB-accessibility-plan-2023-2025-atlas_feature-360x207.jpg" alt=""> </div> <h3 class="h5 lnkFeature">IRB Accessibility Plan 2023 to 2025</h3> </div></a> <p>Our plan to identify, remove and prevent barriers to accessibility and contribute to an accessible and barrier-free Canada</p> </section></div> </aside>  </div> <div class="container s4-notdlg"> <div class="row pagedetails"> <script type="text/javascript"> //Constants /* reCaptcha start*/ // QC Invisible Recaptcha var captchaPublicKey = "6LfLJbIZAAAAALESCE4xE6U0FQlJka6tvYYIUoEE"; 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Jurisprudential Guides - Decision TB7-01837 - Immigration and Refugee Board of Canada