Damaize-Job v. I.N.S.

• Decision Date: 21 April 1986
• Docket Number: No. 83-7898,DAMAIZE-JO,P,83-7898
• Citation: 787 F.2d 1332
• Parties: Albertoetitioner, v. IMMIGRATION AND NATURALIZATION SERVICE, Respondent.
• Court: U.S. Court of Appeals — Ninth Circuit

Page 1332

787 F.2d 1332

83 A.L.R.Fed. 1

Alberto DAMAIZE-JOB, Petitioner, v. IMMIGRATION AND NATURALIZATION SERVICE, Respondent.

No. 83-7898.

United States Court of Appeals, Ninth Circuit.

Argued and Submitted June 5, 1985.

Decided April 21, 1986.

Eliseo Sisneros and Paula D. Pearlman, El Centro, Cal., for petitioner.

David V. Bernal and James A. Hunolt, Washington, D.C., for respondent.

Appeal from the Board of Immigration Appeals.

Before SCHROEDER and FLETCHER, Circuit Judges, and BURNS, ^* District Judge.

FLETCHER, Circuit Judge:

Alberto Damaize-Job appeals from the Board of Immigration Appeals's (BIA's) denial of his application for withholding of deportation under section 243(h) of the Immigration and Nationality Act, 8 U.S.C. Sec. 1253(h) (1982), and for political asylum under section 208(a) of the Refugee Act of 1980, 8 U.S.C. Sec. 1158(a) (1982). We find that the BIA's decision is not supported by substantial evidence, and that Damaize satisfies both the "clear probability of persecution" standard of section 243(h) and the "well-founded fear of persecution" standard of section 208(a). We therefore reverse the BIA on Damaize's section 243(h) claim and reverse and remand on his section 208(a) claim so that the Attorney General can exercise his discretion and determine whether to grant Damaize asylum.

FACTUAL BACKGROUND

Damaize is a native and citizen of Nicaragua who entered the United States in 1982 by evading inspection at the Mexican border. The INS began deportation proceedings against him later that year, alleging in an order to show cause that he had violated section 241(a)(2) of the Immigration and Nationality Act, 8 U.S.C. Sec. 1251(a)(2) (1982).

Damaize conceded deportability, but filed an application for asylum under section 208 of the Refugee Act, 8 U.S.C. Sec. 1158. ¹ In his application and at his deportation hearing, Damaize indicated that he was a Somocista, or a supporter of the Somoza regime, which preceded Nicaragua's current Sandinista government, and that he is also a Miskito Indian. ² Damaize testified that in 1979, the Sandinistas falsely accused him of being a Somocista National Guardsman, and arrested and imprisoned him for three months. He testified that while he was in prison, the Sandinistas beat him and tortured him, kept him tied for seven or eight days at a time without any food, and only provided him with water by throwing it on the floor of his cell, so that he had to lick it up. Damaize testified that his captors threatened him with death several times, and when they released him, warned that he would be killed if he were seen again. He also testified that his uncle and sister were accused of helping the Somocistas (a charge frequently made against Miskitos), were taken away, and are now believed dead. To support his claims, Damaize submitted copies of newspaper articles detailing the persecution of the Miskitos by the Sandinistas in Nicaragua.

Damaize testified that he left Nicaragua a month after his release by the Sandinistas and traveled to Costa Rica, where he remained for one year. He testified that he returned to Nicaragua in 1980 because his uncle and sister had been arrested, but was later told by a Sandinista soldier, who was also a Miskito, that they had been killed by the Sandinistas. Damaize testified that after receiving this news, he obtained a Nicaraguan passport through a friend, and eventually came to the United States in 1982, because he was told he could qualify as a refugee in this country.

The immigration judge (IJ) found Damaize deportable and denied his application for asylum and withholding of deportation. The IJ questioned Damaize's credibility based on three separate grounds: (1) there were discrepancies between Damaize's oral testimony and his asylum application concerning Damaize appealed the IJ's decision to the BIA, which dismissed his appeal. The BIA affirmed the IJ's decision, based on the fact that Damaize was able to remain in Nicaragua between 1980 and 1982 without incident and was issued a passport by the government, and based on the fact that the governmental persecution of Miskitos detailed in the record is primarily limited to the Atlantic Coast of Nicaragua, far from Managua, where Damaize lived since 1976.

                the birthdates of his two children; 3 (2) Damaize never married the mother of his two children; 4  and (3) Damaize never applied for asylum in any other country through which he traveled on his way to the United States, or in any United States embassies in those countries.  Even assuming that Damaize's testimony was true, the IJ found the evidence presented by Damaize to be insufficient to justify relief under either section 243(h) or 208(a).  The IJ found that although the documentary evidence submitted by Damaize generally indicated the existence of a Sandinista campaign against the Miskito Indians, Damaize failed to demonstrate that he was ever singled out for persecution due to his political views or membership in the Miskito social group.  The IJ also found Damaize's evidence insufficient to establish conclusively that his uncle and sister had been killed.  Finally, the IJ found that Damaize's uneventful stay in Nicaragua between 1980 and 1982 undermined his claim that he would be persecuted if he returns now
                

Damaize now appeals to this court, contending that the IJ imposed a higher burden of proof than required, that the IJ's and BIA's findings are not supported by substantial evidence, and that the IJ's refusal to admit evidence of Damaize's religious beliefs and practices denied him due process of law. Because we conclude that the IJ's and BIA's denial of relief under sections 243(h) and 208(a) were not supported by substantial evidence, we need not reach Damaize's other points of appeal.

ANALYSIS

A. "Withholding of Deportation" Under Section 243(h).

In order to qualify for section 243(h)'s prohibition against deportation, Damaize must demonstrate a clear probability that his life or freedom will be threatened in Nicaragua if he returns, because of his race, religion, nationality, political opinion, or membership in a particular social group. 8 U.S.C. Sec. 1253(h). He must introduce some specific evidence showing that such persecution, if carried out, would be directed toward him as an individual. Espinoza-Martinez v. INS, 754 F.2d 1536, 1540 (9th Cir.1985); Bolanos-Hernandez v. INS., 767 F.2d 1277, 1284 (9th Cir.1984).

1. Standard of Review

The mandatory language of section 243(h) makes an abuse of discretion standard of review inappropriate. Bolanos-Hernandez, 767 F.2d at 1282 n. 8. Instead, we review the BIA's denial of Damaize's application for relief under section 243(h) under the substantial evidence standard. Id.; Zepeda-Melendez v. INS, 741 F.2d 285, 289 (9th Cir.1984).

2. Damaize's Evidence Concerning The Likelihood of Persecution.

To demonstrate that his life or freedom will be in jeopardy if he returns to Nicaragua, Damaize provided testimony concerning his 1979 arrest and imprisonment on charges of being a Somocista Guardsman, the explicit threats on his life, and the disappearance of his uncle and sister, whom the Sandinistas similarly accused of being Somocistas, and he also provided newspaper accounts of Sandinista persecution of the Miskitos. We held that similar evidence and testimony established a clear probability of persecution in Bolanos-Hernandez v. INS, 767 F.2d 1277 (9th Cir.1984). In that case, the petitioner, a native and citizen of El Salvador, testified that guerrillas had threatened to kill him if he did not join their forces. Id. at 1280. He also testified that the guerrillas had killed some of his friends and used similar coercive tactics on his brother. Id. We held that this testimony, supported by newspaper articles documenting a general climate of violence in El Salvador, was sufficient to entitle Bolanos-Hernandez to withholding of deportation under section 243(h). Id. at 1284-86.

Moreover, in Argueta v. INS, 759 F.2d 1395 (9th Cir.1985), we relied upon similar testimony in reversing the BIA's determination that the petitioner failed to establish either a clear probability or a well-founded fear of persecution. In Argueta, the petitioner, also a native and citizen of El Salvador, testified that because of his neutral political stance, his life had been threatened. According to the petitioner, the day after the threat was made, his brother-in-law was killed by the same men who threatened him. We concluded that Argueta's allegations, if true, were sufficient to establish that he would be subject to persecution if he were forced to return to El Salvador. Id. at 1397.

Damaize's situation, as revealed by the evidence and testimony he has presented, is much the same as that of Bolanos and Argueta. However, the BIA insisted that because Damaize was able to remain unharmed in Nicaragua between 1980 and 1982, and because he was able to obtain a Nicaraguan passport prior to his departure, he has neither a well-founded fear nor a clear probability of being persecuted. Yet these two facts do not, in the context of this record, constitute substantial evidence supporting the government's position. Damaize testified that he returned to Nicaragua in 1980 only because his uncle and sister had been arrested, and he thought they might need his help; he testified that throughout his stay, he feared for his life. Damaize also testified that he did not personally contact Nicaraguan authorities to obtain his passport, but instead, obtained it through a friend. It is clear that "the mere possession of a valid national passport [from one's country of origin] is no bar to refugee status," since "[p]ossession of a passport cannot ... always be considered as evidence of loyalty on the part of the holder, or ... of the absence of fear"; passports are often "issued to a person who is undesired in his country of origin [for] the sole purpose of securing his departure." United Nations High...