[DO NOT PUBLISH]
IN THE UNITED STATES COURT OF APPEALS
FILED
FOR THE ELEVENTH CIRCUIT U.S. COURT OF APPEALS
________________________ ELEVENTH CIRCUIT
AUGUST 28, 2007
No. 06-16400 THOMAS K. KAHN
Non-Argument Calendar CLERK
________________________
BIA Nos. A79-471-018 & A79-086-616
GLORIA ISABEL SOLANO,
MAURICIO EDGARDO VELLOJIN,
Petitioners,
versus
U.S. ATTORNEY GENERAL,
Respondent.
________________________
Petition for Review of a Decision of the
Board of Immigration Appeals
_________________________
(August 28, 2007)
Before BIRCH, DUBINA and FAY, Circuit Judges.
PER CURIAM:
Gloria Isabel Solano, on behalf of herself and her husband (hereinafter
“petitioners”), petitions for review of the Board of Immigration Appeals’ (“BIA”)
decision affirming the immigration judge’s (“IJ”) denial of her applications for
asylum and withholding of removal under the Immigration and Nationality Act
(“INA”) and the United Nations Convention Against Torture and Other Cruel,
Inhuman, or Degrading Treatment or Punishment (“CAT”), 8 U.S.C. §§ 1158,
1231, 8 C.F.R. § 208.16(c). On appeal, the petitioners argue that substantial
evidence did not support the BIA’s finding that the petitioners failed to present a
credible claim for relief. For the reasons discussed more fully below, we dismiss
the petition in part and deny in part.
I. Background
Solano, a native and citizen of Colombia, entered the United States on
December 23, 2000, as a nonimmigrant visitor for pleasure, with authorization to
remain until June 22, 2001. Solano’s husband, Mauricio Edgardo Vellojin, also a
native and citizen of Colombia, arrived in the United States on August 2, 2001, as a
nonimmigrant visitor for pleasure, with authorization to remain until February 1,
2002. The petitioners remained beyond their authorized dates and the Immigration
and Naturalization Service (“INS”) 1 served them with notices to appear, charging
1
The INS was abolished on March 1, 2003, and replaced with the Department of
Homeland Security (“DHS”). See Homeland Security Act, Pub.L.No. 107-296 (Nov. 25, 2002),
116 Stat. 2135.
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them with removability pursuant to INA § 237(a)(1)(B), 8 U.S.C. § 1227(a)(1)(B).
A. Application and Removal Hearing
On April 11, 2001, Solano filed an application for asylum, withholding of
removal, and withholding of removal under the CAT based upon her political
opinion and membership in a particular social group. In a statement attached to her
application, Solano attested as follows. In Colombia, Solano had worked as the
Director of the Library at the Institute of Beauty Arts (“Institute”) and had been a
member of the Liberal Party. Her duties as Director included distributing and
receiving publicity notices, organizing meetings and cultural events, inviting
political candidates to visit the Institute, and collecting signatures and distributing
flyers for special causes. On October 9, 2000, while she was engaged in displaying
publicity notices around the Institute, she found a package of pamphlets from the
National Liberation Army (“ELN”), which included a letter that requested that
Solano distribute the pamphlets to students, collaborate with the ELN’s cause, and
stop promoting the Liberal Party’s ideas. Solano informed the Institute’s
committee members about the incident, who advised her to destroy the pamphlets
and not tell anyone else about the incident.
On November 17, 2000, a man approached Solano as she was talking with a
group of students and told her that, “we gave you a mission.” Solano was afraid
and she told her husband about the encounter, but he asked her to calm down and
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wait until the end of the academic semester, which was almost over, “to see what
happened.” On December 4, 2000, she received a phone call at her office in which
“they” told her that she had to collaborate with them and that they knew her steps.
The caller also asked her whether her job was more important than her life.
Because of her fear, Solano left work and later called the Institute, told them what
had happened, and informed them that she wanted to quit her job. The supervisors
at the Institute asked her to give them a resignation letter, “so [she] decided to
work until December 15.”
Solano further attested that, on December 20, 2000, she received a
threatening phone call in which “they” indicated that Solano would pay for her
treason. Due to her fear, she and her husband left their house that night, stayed at a
friend’s house, and decided to leave for the United States on December 23, 2000.
Her husband returned to Colombia on January 19, 2001, but did not return to their
house. She also indicated that she was aware that “mail” and “packets” had arrived
at her house and that “strange people” had asked her porter about her whereabouts.
In May 2003, Solano testified at a removal hearing before the IJ. According
to her testimony, she had informed the “head” of the Institute, her husband, and the
President of the Liberal Party about the first communication that she received from
the ELN. Solano further testified that she had obtained a visa in August 2000
because her husband previously had traveled to the United States to visit his aunt
4
and had told Solano how wonderful it was. After she and her husband had been in
the United States for one month, her husband returned to Colombia for treatment
of his chronic sinusitis because they did not have insurance in the United States.
Her husband received medicine from a clinic in Colombia and he also worked
while in Colombia, but did not go back to their house. Her husband returned to the
United States in August 2001, because it took him eight months to get his medical
problem under control. On cross-examination, Solano testified that her husband
received one threatening phone call while back in Colombia, but that he believed it
was a joke and the caller did not identify himself as a member of the ELN.
B. IJ’s and BIA’s Decisions
The IJ denied the petitioners’ applications for asylum, withholding of
removal, and CAT relief, finding that Solano’s claim was not credible. The
petitioners appealed to the BIA and the BIA affirmed the IJ’s decision on the
merits, but it did not address the IJ’s adverse credibility finding. On appeal to this
Court, the government moved to have the case remanded to the BIA to allow the
BIA the opportunity to address the IJ’s findings, as required by 8 C.F.R.
§ 1003.1(d)(3)(i). We granted that motion and remanded to the BIA.
On remand, the BIA issued a new decision on November 22, 2006. The BIA
found that the IJ’s adverse credibility determination was not clearly erroneous
because the IJ identified specific reasons for the determination that went to the
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heart of the petitioners’ claim. In particular, the BIA found that Solano’s written
statement was inconsistent with her testimony in that her written statement
indicated that she had told the members of the Institute’s committee about the
communication she had received from the ELN, but she testified that she told only
the head of the Institute. The BIA thus determined that the record remained
unclear as to the persons who may have informed the ELN about Solano’s
disclosure of the fact that she had received the communication from the ELN.
Secondly, the BIA found a material discrepancy with regard to whether the ELN
still continues to search for her in Colombia. The BIA noted that Solano’s written
application indicated that “mail” and “packets” had been sent to her house and that
strange people had inquired of her porter regarding her whereabouts, but that she
failed to mention those details in her testimony. The BIA concluded that the
petitioners had not meet their burden for establishing asylum, withholding of
removal, or CAT relief, and, thus, dismissed the petitioners’ appeal.
II. Discussion
The petitioners argue that the BIA erred in upholding the IJ’s adverse
credibility finding because the petitioners provided consistent and substantial
evidence in support of their claims. They assert that the IJ’s adverse credibility
determination was clearly erroneous for three reasons. First, the IJ’s decision was
based upon his personal and biased views regarding Colombian asylum applicants
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and his speculation concerning the severity of Solano’s husband’s medical
condition and the availability of treatment in the United States. Second, the IJ
failed to consider the other evidence in the record, namely, the letters from the
President of the Institute and the President of the Liberal Party in Bello. Lastly, the
petitioners assert that the IJ failed to follow required procedures for immigration
judges, specifically, the IJ ignored or overlooked evidence in the record and failed
to present specific, cogent reasons for the adverse credibility determination,
thereby depriving the petitioners of due process. The petitioners also contend that
the BIA affirmed the IJ’s decision based upon minor discrepancies between the
written application and Solano’s testimony, without considering the IJ’s error in
ignoring substantial evidence in the record.
The BIA in this case did not expressly adopt the IJ’s decision. As such, we
will review only the BIA’s decision. See Al Najjar v. Ashcroft, 257 F.3d 1262,
1284 (11th Cir. 2001) (noting that we review only the BIA’s decision; but
“[i]nsofar as the [BIA] adopts the IJ’s reasoning, we will review the IJ’s decision
as well”). We review de novo the legal determinations of the BIA. Id. Factual
determinations are reviewed under the substantial evidence test, and we will
“affirm the . . . decision if it is supported by reasonable, substantial, and probative
evidence on the record considered as a whole.” Forgue v. U.S. Att’y Gen., 401
F.3d 1282, 1286 (11th Cir. 2005) (quotation omitted). Therefore, we will reverse a
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finding of fact “only when the record compels a reversal; the mere fact that the
record may support a contrary conclusion is not enough to justify a reversal . . . .”
Adefemi v. Ashcroft, 386 F.3d 1022, 1027 (11th Cir. 2004) (en banc). “A
credibility determination, like any fact finding, may not be overturned unless the
record compels it.” Forgue, 401 F.3d at 1287 (quotations omitted).
As an initial matter, the government argues that we lack jurisdiction to
consider many of the petitioners’ arguments raised on appeal. We review our
subject matter jurisdiction de novo. Amaya-Artunduaga v. U.S. Att’y Gen., 463
F.3d 1247, 1250 (11th Cir. 2006). We lack jurisdiction to consider a challenge
raised in a petition for review that the petitioner did not exhaust before the BIA.
Id. Here, the petitioners enumerated three grounds for error in their notice of
appeal to the BIA: (1) the IJ incorrectly characterized the nature of Solano’s
written evidence; (2) the IJ attached too much weight to the fact that Solano’s
husband returned to Colombia for medical treatment; and (3) the IJ failed to
account for the fact that the petitioners fled Colombia with little time to gather
corroborative evidence in support of their claim. The petitioners also argued in
their statement in lieu of a brief that the IJ’s credibility finding was based upon
immaterial contradictions between Solano’s testimony and application and that the
IJ’s comment in his oral decision regarding the nature of Solano’s political
involvement was “out of place” and illustrated the IJ’s bias against the petitioners.
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It is clear, then, that the petitioners’ did not exhaust before the BIA the following
claims, which they now raise here on appeal: (1) the IJ improperly speculated
about the severity of Solano’s husband’s medical condition; (2) the IJ ignored or
failed to consider evidence in the record; and (3) the IJ failed to comply with
procedures applicable to immigration judges. Thus, we lack jurisdiction to
consider those claims, as the petitioners failed to exhaust them before the BIA.
However, with regard to the petitioners’ argument that the IJ’s decision was
based upon his personal views and bias against Colombian asylum applicants, the
question of whether the petitioners raised that argument before the BIA is not as
clear. As noted above, the petitioners did specify before the BIA that the IJ’s
comments regarding the nature of Solano’s political involvement illustrate bias
against the petitioners. Nonetheless, that argument is not the same as the argument
presented to this Court, namely, that the IJ’s entire decision was wrought with
inappropriate personal opinions, sarcasm, and bias by the IJ. Therefore, to the
extent that the petitioners now expand their argument to include facts and issues
that were not presented to the BIA, we lack jurisdiction to address those
arguments. See 8 C.F.R. § 1003.3(b) (explaining that the statement in a notice of
appeal to the BIA “must specifically identify the findings of fact, the conclusions
of law, or both, that are being challenged”).
Accordingly, we lack jurisdiction over the majority of the arguments the
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petitioners raise in their appellate brief. A careful reading of the petitioners’ brief
indicates that they also vaguely raise the issue of whether the BIA erred in
affirming the IJ’s credibility determination where the determination was based
upon minor discrepancies between Solano’s written application and testimony.
The petitioners also raised that issue before the BIA and, as such, we retain
jurisdiction to consider the merits of that claim.
The testimony of an applicant, if found credible, is alone sufficient to
establish eligibility for asylum. Yang v. U.S. Att’y Gen., 418 F.3d 1198, 1201
(11th Cir. 2005). “Indications of reliable testimony include consistency on direct
examination, consistency with the written application, and the absence of
embellishments.” Ruiz v. U.S. Att’y Gen., 440 F.3d 1247, 1255 (11th Cir. 2006).
“[T]he [BIA] must offer specific, cogent reasons for an adverse credibility
finding.” Forgue, 401 F.3d at 1287. “[A]n adverse credibility determination alone
may be sufficient to support the denial of an asylum application.” Id. However, an
adverse credibility determination does not alleviate the BIA’s duty to consider
other evidence produced by the asylum applicant. Id.
Here, the BIA found that the IJ’s ultimate credibility finding was supported
by the following specific reasons: that material discrepancies existed between
Solano’s written application and her testimony regarding (1) what persons she told
about the pamphlets and letter she received from the ELN, and (2) whether she had
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received mail, packets, and inquiries from strange persons at her home after she
and her husband had fled to the United States. With regard to the first reason, that
Solano’s written application indicated that she had told the Institute’s “committee”
about her communication from the ELN, but that she testified that she had told
only the head of the Institute, the evidence in the record establishes that
discrepancy, as demonstrated by a review of Solano’s written statement and her
testimony.
It is noteworthy, however, that this reason is minor and does not appear to
go to the heart of the petitioners’ claim that Solano suffered past persecution by the
ELN. Moreover, the government makes the conclusory statement that this
discrepancy was material, but it does not explain that nature of its materiality to the
petitioners’ claim of persecution. Other circuits have held that minor
inconsistencies will not support an adverse credibility finding, but inconsistencies
that go “to the heart of [the] asylum claim” are sufficient to support such a finding.
See e.g., Chebchoub v. I.N.S., 257 F.3d 1038, 1043 (9th Cir. 2001); Gao v.
Ashcroft, 299 F.3d 266, 272 (3d Cir. 2002). We have never adopted the “heart of
the claim” test.2 However, we need not resolve this issue here because the BIA’s
2
Congress recently amended the law regarding credibility determinations, but those
changes only apply to applications for asylum filed after May 11, 2005. See Section 101(h)(2)
of the REAL ID Act. Under the new law, the credibility determination is based on the totality of
the circumstances, which may include inaccuracies or falsehoods that do not go to the “heart of
the applicant’s claim.” Id. at § 101(a)(3)(B)(iii). Because the petitioners filed their application
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second reason supporting its adverse credibility finding relates to the petitioners’
fear of persecution, and, thus, goes to the heart of their asylum claim.
As to the BIA’s second reason in support of the adverse credibility finding,
that Solano did not testify that she received “mail” and “packets” at her house or
that “strange people” had inquired of her porter regarding her whereabouts, that
discrepancy is material to the question of whether the ELN is still searching for
Solano, such that she had a well-founded fear of future persecution if she returned
to Colombia. Furthermore, the record does indeed demonstrate that such a
discrepancy existed between her written application and her testimony. However,
as the petitioners argue, this reason is undermined by the fact that neither Solano’s
counsel nor the IJ ever asked Solano generally what had occurred, if anything,
since she left Colombia; rather, the IJ asked only whether her husband had
experienced any harm or threat during his eight-month return to Colombia. Yet, at
one point during the hearing, the IJ asked Solano what she thought would happen
to her if she returned to Colombia. Solano indicated that she would be killed and
that she had proof because a co-worker at the Institute had also worked for the
Liberal Party, had been threatened, and had sought asylum in Spain. Solano did
not mention that her “proof” included that she had received mail and packets at her
house or that strange people had inquired of her whereabouts. “[Solano] - not the
in 2001, their application is unaffected by this change.
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IJ - bears the burden of proving eligibility for asylum.” See Ruiz, 440 F.3d
at 1256.
III. Conclusion
Based upon the foregoing, the BIA presented two specific, cogent reasons in
support of its adverse credibility finding that were supported by substantial
evidence in the record. Moreover, at least one of the reasons was material to the
petitioners’ claim. Accordingly, we dismiss the petition in part, as it seeks review
of issues over which we lack jurisdiction, and we deny the petition in part, to the
extent that it challenges the BIA’s reasons in support of its adverse credibility
finding.
PETITION DISMISSED IN PART, DENIED IN PART.
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