Interpretation of Convention Refugee and Person in Need of Protection in the Case Law

​​​​​​​​​​​​​​​December 31, 2020

​​​​​​​​​​​​​ Printable version (PDF, 3 MB)

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Table of Contents

Chapter 1 - Introduction

  1. 1.1. Foreword
  2. 1.2. Explanatory notes
  3. 1.3. Convention refugee definition
    1. 1.3.1 Immigration and Refugee Protection Act, s. 96 - meaning of "Convention refugee"
    2. 1.3.2 Immigration and Refugee Protection Act, Section 108(1) and (4)- rejection and cessation
    3. 1.3.3 Immigration and Refugee Protection Act, s. 98 - exclusion clauses
    4. 1.3.4 Schedule to the Immigration and Refugee Protection Act - exclusion clauses
    5. 1.3.5 What the paper covers
  4. 1.4. General rules of interpretation
    1. 1.4.1. Surrogate protection
    2. 1.4.2. Fear of persecution for a convention reason
    3. 1.4.3. Two presumptions at play in refugee determination
    4. 1.4.4. State complicity not required
    5. 1.4.5. Existence of fear of persecution
    6. 1.4.6. Use of underlying anti-discrimination law in interpreting particular social group
    7. 1.4.7. Broad and general interpretation of political opinion and perception of persecutor
    8. 1.4.8. Examiner to consider the relevant grounds
    9. 1.4.9. Section 7 Of the Charter
    10. 1.4.10. All elements of the definition must be met
    11. 1.4.11. Personal targeting not required
    12. 1.4.12. Applicable test: “Reasonable or serious possibility”
    13. 1.4.13. Exclusion clauses
    14. 1.4.14. International human rights instruments
  5. 1.5. Definition of person in need of protection
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Chapter 2 - Country of persecution

  1. 2.1. Introduction
  2. 2.2. Country of nationality
    1. 2.2.1. Multiple nationalities
    2. 2.2.2. Establishing nationality
    3. 2.2.3. Right to citizenship
      1. 2.2.3.1. Israel’s law of return
    4. 2.2.4. Effectiveness of nationality
    5. 2.2.5. Failure to access possible protection in a third country
  3. 2.3. Former habitual residence - Stateless persons
    1. 2.3.1. Principles and criteria for establishing country of former habitual residence
    2. 2.3.2. Multiple countries of former habitual residence
    3. 2.3.3. Nature of ties to the country
    4. 2.3.4. Subsisting well-founded fear of persecution
    5. 2.3.5. Evidence of persecution for a convention reason
    6. 2.3​.6. State protection
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Chapter 3 - Persecution

  1. 3.1. Generally
    1. 3.1.1. Definition and Ggeneral principles
      1. 3.1.1.1. Serious harm
      2. 3.1.1.2. Repetition and persistence
      3. 3.1.1.3. Nexus
      4. 3.1.1.4. Common crime or persecution
      5. 3.1.1.5. Agent of persecution
    2. 3.1.2. Cumulative acts of discrimination and/or harassment
    3. 3.1.3. Forms of persecution
      1. 3.1.3.1. Some judicial observations​
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Chapter 4 - Grounds of persecution - Nexus

  1. 4.1. Generally
  2. 4.2. Race
  3. 4.3. Nationality
  4. 4.4. Religion
  5. 4.5. Particular social group
  6. 4.6. Political opinion
  7. 4.7. Victims of criminality and nexus to grounds
  8. 4.8. Civil war and other prevalent conflicts
    1. ​4.8.1. Generally
    2. 4.8.2. Two approaches: Comparative and non-comparative
  9. 4.9. Indirect persecution and family unity
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Chapter 5 - Well-founded fear

  1. 5.1. Generally
  2. 5.2. Subjective fear
    1. 5.2.1. Subjective fear is an essential element
    2. 5.2.2. Establishing a subjective fear
  3. 5.3. Delay in seeking protection
    1. 5.3.1. Summary of governing principles
  4. 5.4. Types of delay
    1. 5.4.1. Delay in leaving the country of persecution
    2. 5.4.2. Failure to seek protection in other countries
      1. 5.4.2.1.​ Explanations for not seeking protection in other countries
    3. 5.4.3​. Delay in making a claim upon arrival in Canada
  5. 5.5. Return to country of persecution - reavailment
  6. 5.6. Objective basis for the claimant’s fear
    1. 5.6.1. Standard of proof for factual findings
    2. 5.6.2. Legal test to establish a risk of persecution
    3. 5.6.3. Relationship between the standard of proof and the legal test
  7. 5.7. Sur place claims
    1. 5.7.1. No good faith requirement for a sur place claim
    2. 5.7.2. Claimant’s activities abroad
    3. 5.7.3. Claimant’s motivation may be relevant to risk assessment
    4. 5.7.4. Credibility
    5. 5.7.5. Events in the claimant’s home country

Chapter 6 - State protection

  1. 6.1. Introduction - General principles
    1. 6.1.1. Surrogate protection
    2. 6.1.2. Multiple nationalities
    3. 6.1.3. Timing of analysis
    4. 6.1.4. Unable or unwilling - A blurred distinction - No requirement for state complicity
    5. 6.1.5. Presumptions
    6. 6.1.6. Nexus
    7. 6.1.7. Burden and standard of proof and rebutting the presumption
      1. 6.1.7.1 Burden of proof and obligation to approach the state
        1. 6.1.7.1.1. More than one authority in the country
      2. 6.1.7.2 Standard of proof
      3. 6.1.7.3  Rebutting the presumption of p​rotection
        1. 6.1.7.3.1 The evidentiary burden of “clear and convincing”
        2. 6.1.7.3.2. Standard of protection
    8. 6.1.8. Source of protection
  2. 6.2. Stateless claimants

Chapter 7 - Change of circumstances and compelling reasons​

  1. 7.1. Change of circumstances
    1. 7.1.1. Notice requirements
    2. 7.1.2. Standard of Proof
    3. 7.1.3. No special test for changes in country conditions
    4. 7.1.4. Assessing changes in country conditions
    5. 7.1.5. Post-hearing evidence may be considered by the panel
    6. 7.1.6. Duty to provide sufficient reasons and consider all relevant evidence
  2. 7.2. Compelling reasons
    1. 7.2.1. Introduction
    2. 7.2.2. Applicability
    3. 7.2.3. Duty to consider section 108(4)
    4. 7.2.4. Meaning of “compelling reasons”
    5. 7.2.5. Level or severity of harm
    6. 7.2.6. Psychological evidence and psychological after-effects
    7. 7.2.7. Persecution of others
    8. 7.2.8. Generalized persecution
    9. 7.2.9. Return to the country of persecution and persecutory incidents across multiple states
    10. 7.2.10. Adequacy of reasons
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Chapter 8 - Internal flight a​lternative (IFA)

  1. 8.1. The two-prong test and general principles
  2. 8.2. Notice - Burden of proof
  3. 8.3. Interpretation and application of the two-pronged test
    1. 8.3.1. Fear of persecution
    2. 8.3.2. Reasonable in all the circumstances
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Chapter 9 - Prosecution versus persecution​

  1. 9​.1. Introduction
  2. 9.2. Prosecution, or persecution for a convention reason
    1. 9.2.1. Limits to acceptable legislation and enforcement
    2. 9.2.2. Laws of general application
    3. 9.2.3. Policing methods, national security and preservation of social order
    4. 9.2.4. Enforcement and serious possibility
    5. 9.2.5. Exit laws
    6. 9.2.6. Military service: Conscientious objection, evasion, desertion
    7. 9.2.7. One-child/two-child policy of China
    8. 9.2.8. Religious or cultural mores
      1. 9.2.8.1. Restrictions upon women
      2. 9.2.8.2. Ahmadis from Pakistan
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Chapter 10 - Exclusion clauses - Article 1E

  1. 10.1. Introduction
  2. 10.2. Test
  3. 10.3. Nature of the residency rights
  4. 10.4. Rights and obligations of a national
  5. 10.5. Onus – Prima facie evidence
  6. 10.6. Onus to renew status
  7. 10.7. Access to obtain status substantially similar to nationals
  8. 10.8. Fear of persecution and state protection in the Article 1E country
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Chapter 11 - Article 1F

  1. 11.1.  Introduction
    1. 11.1.1. Standard of proof - Serious reasons to consider
    2. 11.1.2. Balancing and complicity generally
  2. 11.2.  Article 1F(a): Crimes against peace, war crimes and crimes against humanity
    1. 11.2.1. Crimes against peace
    2. 11.2.2. War crimes
    3. 11.2.3. Crimes against humanity
    4. 11.2.4. Defences
      1. 11.2.4.1. Duress
      2. 11.2.4.2. Superior orders
      3. 11.2.4.3. Military Nnecessity
      4. 11.2.4.4. Remorse
    5. 11.2.5. Complicity
      1. 11.2.5.1. The test for complicity
      2. 11.2.5.2. Applying the test
    6. 11.2.6. Responsibility of superiors
  3. 11.3.  Article 1 F(b):  Serious non-political crimes
    1. 11.3.1. Generally
    2. 11.3.2. No requirement for “equivalency”
    3. 11.3.3. Determination of whether a crime is serious
    4. 11.3.4. Determination of whether a crime is political
    5. 11.3.5. Prior to admission
    6. 11.3.6. “Serious reasons for considering”
  4. 11.4.  Article 1F(c):  Acts contrary to the purposes and principles of the United Nations
  5. 11.5.  Burden of proof and notice
  6. 11.6.  Consideration of inclusion where claimant is excluded
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Chapter 12 - Applications to cease refugee protection

  1. 12.1.  Introduction
  2. 12.2.  Legislative framework
    1. 12.2.1. Reforms to cessation regime - 2012
    2. 12.2.2. Overview of cessation provisions in IRPA
    1. 12.3. Jurisdiction to decide applications to cease - Refugee status conferred by s. 95(1)
    2. 12.4. Procedure
      1. 12.4.1. Responsible minister
      2. 12.4.2. How an spplication is made
      3. 12.4.3. Order of questioning
      4. 12.4.3. Language of proceedings
    3. 12.5. Interpretation of the grounds
      1. 12.5.1. Burden and standard of proof
      2. 12.5.2. General principles
      3. 12.5.3. Paragraph 108(1)(a) - Reavailment
        1. 12.5.3.1. Voluntariness
        2. 12.5.3.2. Intention
          1. 12.5.3.2.1. Minors
          2. 12.5.3.2.2. Presumption from obtaining a passport
          3. 12.5.3.2.3​. Application of the presumption in the case law
        3. 12.5.3.3. Actual reavailment
      4. 12.5.4. Paragraph 108(1)(b) - Voluntary acquisition of nationality
      5. 12.5.5. Paragraph 108(1)(c) - Acquisition of a new nationality
      6. 12.5.6. Paragraph 108(1)(d) - Re-establishment
      7. 12.5.7. Paragraph 108(1)(e) - Change of circumstances
    4. 12.6.  Other issues
      1. 12.6.1. Discretion to consider which grounds apply
      2. 12.6.2. Relevance of future risk
      3. 12.6.3. Relevance of humanitarian and compassionate considerations
      4. 12.6.4. Abuse of process and similar arguments
      5. 12.6.5. Constitutionality of cessation provisions

    Chapter 13 - Applications to vacate refugee decisions

    1. 13.1. Introduction
    2. 13.2. Legislative framework
      1. 13.2.1. Historical context
      2. 13.2.2. Current legislation
    3. 13.3. Jurisdiction of the Refugee Protection Division
    4. 13.4. Procedure
      1. 13.4.1. Responsible minister
      2. 13.4.2. How the application is made
      3. 13.4.3. Order of questioning
      4. 13.4.4. Language of proceedings
      5. 13.4.5. Protected person as witness
      6. 13.4.6. Member as witness
      7. 13.4.7. Rule requirements
    5. 13.5. Interpretation of Section 109
      1. 13.5.1. Burden and standard of proof
      2. 13.5.2. Overview of analytical framework – two-step analysis
      3. 13.5.3. What evidence is admissible at each step of the analysis?
      4. 13.5.4. Issues related to subsection 109(1) – misrepresentation
        1. 13.5.4.1. Materiality
        2. 13.5.4.2. Direct versus indirect misrepresentation or omission
        3. 13.5.4.3. Intention
        4. 13.5.4.4. Credibility and weighing evidence
      5. 13.5.5. Issues related to subsection 109(2) – other evidence considered at the first determination justifying protection
        1. 13.5.5.1. Assessing the remaing evidence
        2. 13.5.5.2. Exclusion
        3. 13.5.5.3. Which law should apply
    6. 13.6. Other issues
      1. 13.6.1. Section 7 of the Charter
      2. 13.6.2. Res Judicata/Second application
      3. 13.6.3. Abuse of process arguments

    ​Chapter 14 - Persons in need of protection

    1. 14.1. Introduction
    2. 14.2. Legislative framework
      1. Person in need of protection – IRPA, s. 97(1)(a) and (b)
    3. 14.3. s. 97(1) Elements that apply to both paragraphs (a) and (b)
      1. 14.3.1 Legal test for the degree of risk
      2. 14.3.2 Prospective risk
      3. 14.3.3 Claimant would be personally subject to the risk
      4. 14.3.4 No subjective fear component
    4. 14.4. Danger of torture – IRPA, s. 97(1)(A)
      1. 14.4.1. Harm feared – Torture
        1. 14.4.1.1 Intentional infliction of severe pain or suffering
        2. 14.4.1.2 Inflicted for a purpose
        3. 14.4.1.3 State involvement
        4. 14.4.1.4 Lawful sanctions exception
      2. 14.4.2. Torture claims often accepted under s. 96
      3. 14.4.3. Need to deal with s. 97(1)(a) if rejecting a claim
      4. 14.4.4. State protection may be relevant if state involvement is limited
      5. 14.4.5. Internal flight alternative
    5. 14.5. Risk to life, risk of cruel and unusual treatment or punishment – IRPA, s. 97(1)(b)
      1. 14.5.1. Harm feared – Risk to life, Cruel and unusual treatment or punishment
      2. 14.5.2. Conditions specifically applicable to s. 97(1)(b) risks
        1. 14.5.2.1. First condition - No state protection
        2. 14.5.2.2. Second condition – No IFA
        3. 14.5.2.3. Third condition - The risk is not faced generally
          1. 14.5.2.3.1. Confusion caused by imprecise wording
          2. 14.5.2.3.2. Two distinct, conjunctive elements
          3. 14.5.2.3.3. Assessing prospective risk before considering conditions
          4. 14.5.2.3.4. Individualized inquiry
          5. 14.5.2.3.5. Risk arising from criminal activity
          6. 14.5.2.3.6. Being “specifically” or “personally” targeted
          7. 14.5.2.3.7. The nature of a risk can change
          8. 14.5.2.3.8​. Comparing the claimant’s risk
        4. 14.5.2.4 Fourth condition - Lawful sanctions
          1. 14.5.2.4.1. Punishment
          2. 14.5.2.4.2. Prison Conditions
          3. 14.5.2.4.3. Exit Laws
          4. 14.5.2.4.4. Military Service
        5. 14.5.2.5 Fifth condition - Inability to provide adequate health or medical care
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