1930000 (Refugee)

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1930000 (REFUGEE) [2025] ARTA 753 (10 MARCH 2025)

DECISION AND  

REASONS FOR DECISION

Representative:  Mr Edward Von-Shoostov Nalbandian

Respondent:Minister for Immigration and Multicultural Affairs

Tribunal Number:  1930000

Tribunal:General Member R Guemy

Date:10 March 2025

Place:Sydney

Decision:The Tribunal affirms the decision under review.

Statement made on 10 March 2025 at 2:19pm

CATCHWORDS
REFUGEE – protection visa – Lebanon – socio-economic and internal and external security conditions and human rights – religion – Shia Muslim – no political affiliation – fear of forced recruitment by armed forces or Hezbollah – family home recently destroyed and family relocated – country information – possibility of harm in home area speculative – economic conditions not systematic and discriminatory – request for referral for ministerial consideration – strong compassionate circumstances – Australian citizen wife and child, and business employing Australian citizens – wife’s physical and mental health – matter referred – decision under review affirmed

LEGISLATION
Migration Act 1958 (Cth), ss 5AAA, 5H(1)(a), 5J(1), (4)(b), (c), (5), 36(2)(a), (aa), (b), (2A), 65
Migration Regulations 1994 (Cth), Schedule 2

CASES
Chan Yee Kin v MIEA [1989] HCA 62
Randhawa v MILGEA [1993] FCA 592
Selvadurai v MIEA [1994] 34 ALD 347
SZLJK v MIAC [2008] FMCA 694
SZNWA v MIAC [2010] FCA 470

Any references appearing in square brackets indicate that information has been omitted from this decision pursuant to section 369 of the Migration Act 1958 and replaced with generic information.

STATEMENT OF REASONS

BACKGROUND

  1. The applicant, a [Age]year old male and citizen of Lebanon. He last entered Australia [in] February 2016. He applied for a protection visa on 11 September 2017.

    CLAIMS AND EVIDENCE

    Evidence given to the Department

  2. The applicant provided a copy of the bio page of his Lebanese passport issued on [date].

  3. In his written protection visa application the applicant claimed that:

    i.He left Lebanon to escape from the all the war, inhumanity and lack of human rights;

    ii.He had experienced psychological harm from unjust people in Lebanon;

    iii.Lebanon is a corrupt country and nobody there can or is willing to help;

    iv.He did not have anywhere else to go;

    v.He would be mistreated by people in Lebanon who are inhuman and unjust and will not have any human rights or freedom there;

    vi.The authorities in Lebanon are corrupt and nobody could protect him; and

    vii.The entire country is the same and there is nowhere safe to go.

  4. The applicant’s former representative provided  written submissions outlining the applicant’s personal background and Australian visa history, and also referring to country information from Human Rights Watch, Al Jazeera and the Australian Government Smart Traveller website about the security situation in Lebanon. She also provided various links to online information about Lebanon.

  5. The applicant also provided a statement in support of his written claims which outlined the following:

    i.His personal background, including his previous relationship with an Australian citizen which was the subject of an unsuccessful partner visa application;

    ii.How his fear of returning to Lebanon led to the breakdown…

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Details
Case
[2025] ARTA 753
Decision Date

CaseChat Overview and Summary

The case involves a Lebanese national who applied for a protection visa in Australia, citing socio-economic conditions, internal and external security concerns, and human rights violations in Lebanon. The applicant claimed to be a Shia Muslim with no political affiliation but feared forced recruitment by armed forces or Hezbollah. He also stated that his family home was destroyed, and his family relocated. The matter was reviewed by the Australian Tribunal.

The legal issues the court had to address were whether the applicant met the criteria for a protection visa under the Migration Act 1958. Specifically, the court needed to determine if the applicant had a well-founded fear of persecution based on his religion, socio-economic conditions, or security concerns in Lebanon. The court also had to consider if there were effective protection measures available to the applicant in Lebanon.

The Tribunal found that the applicant did not meet the criteria for a protection visa as he was unable to substantiate his claims of a well-founded fear of persecution. The Tribunal noted that the socio-economic conditions and internal and external security concerns in Lebanon were not systematic and discriminatory, and the possibility of harm in his home area was speculative. The Tribunal also found that the applicant could relocate to a safer area within Lebanon. However, the Tribunal decided to refer the matter to the Minister for Intervention due to strong compassionate circumstances, including the applicant's marriage to an Australian citizen, the impact on his Australian citizen wife and child, and his employment of Australian citizens.

The Tribunal affirmed the decision under review, denying the applicant's application for a protection visa. However, the matter was referred to the Minister for Intervention to consider substituting a more favourable decision for the applicant based on the strong compassionate circumstances.

Orders

Orders of the court

Full text does not contain this section.

Background

Background to the litigation

Full text does not contain this section.

Evidence

Evidence Before The Court

The applicant, a [Age]year old male and citizen of Lebanon. He last entered Australia [in] February 2016. He applied for a protection visa on 11 September 2017.CLAIMS AND EVIDENCEEvidence given to the Department The applicant provided a copy of the bio page of his Lebanese passport issued on [date]. In his written protection visa application the applicant claimed that:i.He left Lebanon to escape from the all the war, inhumanity and lack of human rights;ii.He had experienced psychological harm from unjust people in Lebanon;iii.Lebanon is a corrupt country and nobody there can or is willing to help;iv.He did not have anywhere else to go;v.He would be mistreated by people in Lebanon who are inhuman and unjust and will not have any human rights or freedom there;vi.The authorities in Lebanon are corrupt and nobody could protect him; andvii.The entire country is the same and there is nowhere safe to go. The applicant’s former representative provided written submissions outlining the applicant’s personal background and Australian visa history, and also referring to country information from Human Rights Watch, Al Jazeera and the Australian Government Smart Traveller website about the security situation in Lebanon. She also provided various links to online information about Lebanon. The applicant also provided a statement in support of his written claims which outlined the following:i.His personal background, including his previous relationship with an Australian citizen which was the subject of an unsuccessful partner visa application;ii.How his fear of returning to Lebanon led to the breakdown of this previous relationship and his referral to a psychologist;iii.Events that he purportedly witnessed in Lebanon when he last visited there in 2016, including people being randomly killed, people carrying weapons and children being forced to beg or being slaves, home invasions, shootings;iv.He did not sleep and was anxious and scared while in Lebanon in 2016, fearing that rocket blasts and being shot;v.The entirety of Lebanon is unsafe and violence can strike at any time with street violence in some areas and the risk of war between Lebanon and Israel in others;vi.The police and army in Lebanon are corrupt, working on bribes and power and do not care about normal civilians like the him;vii.He does not have anyone that could help him and that the only people who can survive in Lebanon are those with weapons;viii.He feared becoming a victim of war and being killed in a war between Hezbollah in Lebanon and Israel due to conflict between the two groups;ix.He would feared that he would be harmed on the basis of his mental health, that Lebanese authorities would pick on him because he is a simple person, and that people would be discriminatory and unjust. The Department’s delegate invited the applicant to attend an interview and rescheduled the date several times at the applicant’s request, but the applicant eventually requested that a decision be made based on his statement of claims.

Decision

Reasons for decision

There is no suggestion that the applicant satisfies s 36(2)(b) or (c) on the basis of being a member of the same family unit as a person who satisfies s 36(2)(a) or (aa) and who holds a protection visa. Accordingly, the applicant does not satisfy the criterion in s 36(2).DECISION The Tribunal affirms the decision under review.REFERRAL TO MINISTER FOR INTERVENTION Although the Tribunal has affirmed the decision under review, it has decided to refer this matter to the Minister to consider substituting a more favourable decision for the applicant. The Tribunal has decided to refer the matter on the basis that the applicant is now married to an Australian citizen and has an Australian citizen child but cannot apply for a partner visa onshore as he has already had an onshore partner visa application refused. In addition to this, he has established a small [job task 1] business which employs a number of Australian citizens. While it would be possible for the applicant to continue to run this business to some degree even if he were required to go offshore, the Tribunal considers that having to go offshore to apply for a partner visa or some other visa and the associated uncertainty would have adverse impact on his Australian citizen wife and child. Medical evidence indicates that the applicant’s wife has experienced a miscarriage due to stress and anxiety associated with the uncertainty of the applicant’s migration status and which was heightened due to recent conflict between the IDF and Hezbollah, the destruction of the applicant’s family home in Southern Beirut and the relocation of his family as a result. The Tribunal refers the matter to the Minister on the basis that there are strong compassionate circumstances that if not recognised would result in serious, ongoing and irreversible harm and continuing hardship to the applicant’s Australian citizen wife and child.Hearing date: 31 January 2025ATTACHMENT - Extract from Migration Act 19585 (1) Interpretation…cruel or inhuman treatment or punishment means an act or omission by which:(a) severe pain or suffering, whether physical or mental, is intentionally inflicted on a person; or(b) pain or suffering, whether physical or mental, is intentionally inflicted on a person so long as, in all the circumstances, the act or omission could reasonably be regarded as cruel or inhuman in nature;but does not include an act or omission:(c) that is not inconsistent with Article 7 of the Covenant; or(d) arising only from, inherent in or incidental to, lawful sanctions that are not inconsistent with the Articles of the Covenant.…degrading treatment or punishment means an act or omission that causes, and is intended to cause, extreme humiliation which is unreasonable, but does not include an act or omission:(a) that is not inconsistent with Article 7 of the Covenant; or(b) that causes, and is intended to cause, extreme humiliation arising only from, inherent in or incidental to, lawful sanctions that are not inconsistent with the Articles of the Covenant.…torture means an act or omission by which severe pain or suffering, whether physical or mental, is intentionally inflicted on a person:(a) for the purpose of obtaining from the person or from a third person information or a confession; or(b) for the purpose of punishing the person for an act which that person or a third person has committed or is suspected of having committed; or(c) for the purpose of intimidating or coercing the person or a third person; or(d) for a purpose related to a purpose mentioned in paragraph (a), (b) or (c); or(e) for any reason based on discrimination that is inconsistent with the Articles of the Covenant;but does not include an act or omission arising only from, inherent in or incidental to, lawful sanctions that are not inconsistent with the Articles of the Covenant.…receiving country, in relation to a non-citizen, means:(a) a country of which the non-citizen is a national, to be determined solely by reference to the law of the relevant country; or(b) if the non-citizen has no country of nationality—a country of his or her former habitual residence, regardless of whether it would be possible to return the non-citizen to the country.…5H Meaning of refugee(1)For the purposes of the application of this Act and the regulations to a particular person in Australia, the person is a refugee if the person is:(a) in a case where the person has a nationality – is outside the country of his or her nationality and, owing to a well-founded fear of persecution, is unable or unwilling to avail himself or herself of the protection of that country; or(b) in a case where the person does not have a nationality – is outside the country of his or her former habitual residence and owing to a well-founded fear of persecution, is unable or unwilling to return to it.Note: For the meaning of well-founded fear of persecution, see section 5J.…5J Meaning of well-founded fear of persecution(1)For the purposes of the application of this Act and the regulations to a particular person, the person has a well-founded fear of persecution if:(a) the person fears being persecuted for reasons of race, religion, nationality, membership of a particular social group or political opinion; and(b) there is a real chance that, if the person returned to the receiving country, the person would be persecuted for one or more of the reasons mentioned in paragraph (a); and(c) the real chance of persecution relates to all areas of a receiving country.Note: For membership of a particular social group, see sections 5K and 5L.(2)A person does not have a well-founded fear of persecution if effective protection measures are available to the person in a receiving country.Note: For effective protection measures, see section 5LA.(3)A person does not have a well-founded fear of persecution if the person could take reasonable steps to modify his or her behaviour so as to avoid a real chance of persecution in a receiving country, other than a modification that would:(a) conflict with a characteristic that is fundamental to the person’s identity or conscience; or(b) conceal an innate or immutable characteristic of the person; or(c) without limiting paragraph (a) or (b), require the person to do any of the following:(i)alter his or her religious beliefs, including by renouncing a religious conversion, or conceal his or her true religious beliefs, or cease to be involved in the practice of his or her faith;(ii)conceal his or her true race, ethnicity, nationality or country of origin;(iii)alter his or her political beliefs or conceal his or her true political beliefs;(iv)conceal a physical, psychological or intellectual disability;(v)enter into or remain in a marriage to which that person is opposed, or accept the forced marriage of a child;(vi)alter his or her sexual orientation or gender identity or conceal his or her true sexual orientation, gender identity or intersex status.(4)If a person fears persecution for one or more of the reasons mentioned in paragraph (1)(a):(a) that reason must be the essential and significant reason, or those reasons must be the essential and significant reasons, for the persecution; and(b) the persecution must involve serious harm to the person; and(c) the persecution must involve systematic and discriminatory conduct.(5)Without limiting what is serious harm for the purposes of paragraph (4)(b), the following are instances of serious harm for the purposes of that paragraph:(a) a threat to the person’s life or liberty;(b) significant physical harassment of the person;(c) significant physical ill‑treatment of the person;(d) significant economic hardship that threatens the person’s capacity to subsist;(e) denial of access to basic services, where the denial threatens the person’s capacity to subsist;(f) denial of capacity to earn a livelihood of any kind, where the denial threatens the person’s capacity to subsist.(6)In determining whether the person has a well‑founded fear of persecution for one or more of the reasons mentioned in paragraph (1)(a), any conduct engaged in by the person in Australia is to be disregarded unless the person satisfies the Minister that the person engaged in the conduct otherwise than for the purpose of strengthening the person’s claim to be a refugee.5K Membership of a particular social group consisting of familyFor the purposes of the application of this Act and the regulations to a particular person (the first person), in determining whether the first person has a well‑founded fear of persecution for the reason of membership of a particular social group that consists of the first person’s family:(a) disregard any fear of persecution, or any persecution, that any other member or former member (whether alive or dead) of the family has ever experienced, where the reason for the fear or persecution is not a reason mentioned in paragraph 5J(1)(a); and(b) disregard any fear of persecution, or any persecution, that:(i)the first person has ever experienced; or(ii)any other member or former member (whether alive or dead) of the family has ever experienced;where it is reasonable to conclude that the fear or persecution would not exist if it were assumed that the fear or persecution mentioned in paragraph (a) had never existed.Note: Section 5G may be relevant for determining family relationships for the purposes of this section.5L Membership of a particular social group other than familyFor the purposes of the application of this Act and the regulations to a particular person, the person is to be treated as a member of a particular social group (other than the person’s family) if:(a) a characteristic is shared by each member of the group; and(b) the person shares, or is perceived as sharing, the characteristic; and(c) any of the following apply:(i)the characteristic is an innate or immutable characteristic;(ii)the characteristic is so fundamental to a member’s identity or conscience, the member should not be forced to renounce it;(iii)the characteristic distinguishes the group from society; and(d) the characteristic is not a fear of persecution.5LA Effective protection measures(1)For the purposes of the application of this Act and the regulations to a particular person, effective protection measures are available to the person in a receiving country if:(a) protection against persecution could be provided to the person by:(i)the relevant State; or(ii)a party or organisation, including an international organisation, that controls the relevant State or a substantial part of the territory of the relevant State; and(b) the relevant State, party or organisation mentioned in paragraph (a) is willing and able to offer such protection.(2)A relevant State, party or organisation mentioned in paragraph (1)(a) is taken to be able to offer protection against persecution to a person if:(a) the person can access the protection; and(b) the protection is durable; and(c) in the case of protection provided by the relevant State—the protection consists of an appropriate criminal law, a reasonably effective police force and an impartial judicial system.…36 Protection visas – criteria provided for by this Act…(2)A criterion for a protection visa is that the applicant for the visa is:(a) a non-citizen in Australia in respect of whom the Minister is satisfied Australia has protection obligations because the person is a refugee; or(aa) a non-citizen in Australia (other than a non-citizen mentioned in paragraph (a)) in respect of whom the Minister is satisfied Australia has protection obligations because the Minister has substantial grounds for believing that, as a necessary and foreseeable consequence of the non-citizen being removed from Australia to a receiving country, there is a real risk that the non-citizen will suffer significant harm; or(b) a non-citizen in Australia who is a member of the same family unit as a non-citizen who:(i)is mentioned in paragraph (a); and(ii)holds a protection visa of the same class as that applied for by the applicant; or(c) a non-citizen in Australia who is a member of the same family unit as a non-citizen who:(i)is mentioned in paragraph (aa); and(ii)holds a protection visa of the same class as that applied for by the applicant.(2A)A non‑citizen will suffer significant harm if:(a) the non‑citizen will be arbitrarily deprived of his or her life; or(b) the death penalty will be carried out on the non‑citizen; or(c) the non‑citizen will be subjected to torture; or(d) the non‑citizen will be subjected to cruel or inhuman treatment or punishment; or(e) the non‑citizen will be subjected to degrading treatment or punishment.(2B)However, there is taken not to be a real risk that a non‑citizen will suffer significant harm in a country if the Minister is satisfied that:(a) it would be reasonable for the non‑citizen to relocate to an area of the country where there would not be a real risk that the non‑citizen will suffer significant harm; or(b) the non‑citizen could obtain, from an authority of the country, protection such that there would not be a real risk that the non‑citizen will suffer significant harm; or(c) the real risk is one faced by the population of the country generally and is not faced by the non‑citizen personally.…

Ratio Decidendi

Legal Principle Established

If a person is found not to meet the refugee criterion in s 36(2)(a), he or she may nevertheless meet the criteria for the grant of the visa if he or she is a non-citizen in Australia in respect of whom the Minister is satisfied Australia has protection obligations because the Minister has substantial grounds for believing that, as a necessary and foreseeable consequence of being removed from Australia to a receiving country, there is a real risk that he or she will suffer significant harm: s 36(2)(aa) (‘the complementary protection criterion’). The meaning of significant harm, and the circumstances in which a person will be taken not to face a real risk of significant harm, are set out in ss 36(2A) and (2B), which are extracted in the attachment to this decision.Mandatory considerations In accordance with Ministerial Direction No.84, made under s 499 of the Act, the Tribunal has taken account of the ‘Refugee Law Guidelines’ and ‘Complementary Protection Guidelines’ prepared by the Department of Home Affairs, and country information assessments prepared by the Department of Foreign Affairs and Trade expressly for protection status determination purposes, to the extent that they are relevant to the decision under consideration.CONSIDERATION OF CLAIMS AND EVIDENCE The Tribunal has considered the copy of the applicant’s passport and the applicant’s evidence given at hearing on 31 January 2025 and finds that he is a Lebanese national. The Tribunal finds that Lebanon is the applicant’s country of nationality for the purposes of s 5H of the Act and the receiving country for the purposes of s 36(2)(b) of the Act. The Tribunal has considered the applicant’s written claims, supporting documentary evidence and oral evidence given to the Tribunal at hearing on 31 January 2025. The Tribunal has had regard to relevant country information contained in the most recent DFAT Country Information Report on Lebanon dated 26 June 2023. The Tribunal has also considered written submissions and documentary evidence that his current representative has provided to the Tribunal in support of the applicant’s claims on . The Tribunal has also considered the country information provided by the applicant’s previously appointed representative. When determining whether an applicant is entitled to protection in Australia, a decision maker is required to make findings of fact on the applicant’s claims that he or she is owed protection obligations. This process may involve an assessment of the credibility of the applicant and his or her other claims. When assessing credibility, a decision maker must be sensitive to the difficulties often faced by asylum seekers and should give the benefit of the doubt to those applicants who are generally credible, but are unable to substantiate all of their claims. However, a decision maker is not required to accept uncritically any and all allegations made by an applicant,[1] nor is it necessary for a decision maker to have rebutting evidence before he or she can find that a particular factual assertion by an applicant has not been made out.[2] Nor is a decision-maker required to accept claims which are inconsistent with the independent evidence regarding the situation in an applicant's country of nationality.[3][1] Randhawa v Minister of Immigration, Local Government and Ethnic Affairs [1993] FCA 592[2] Selvadurai v Minister for Immigration and Ethnic Affairs [1994] 34 ALD 347[3] Chan Yee Kin v Minister for Immigration & Ethnic Affairs [1989] HCA 62