Muharram Zubair v. Director of Immigration

HCAL 968/2025

[2025] HKCFI 3729

IN THE HIGH COURT OF THE

HONG KONG SPECIAL ADMINISTRATIVE REGION

COURT OF FIRST INSTANCE

CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST NO. 968 OF 2025

Application for Leave to Apply for Judicial Review
NOTIFICATION of the Judge’s decision (Ord. 53 r. 3)

Following:

	consideration of documents only;          or
	consideration of documents and Applicant being present in open court;

Order by Deputy High Court Judge K.W. Lung:

1.  Leave to apply for Judicial Review be refused; and

2.  A Restricted Proceedings Order (RPO) be made against the Applicant.

Observations for the Applicant:

THE APPLICATION

1.This is the applicant’s application for leave to apply for judicial review of the Director’s Decision dated 8 April 2025 (“the Director’s Decision”) refusing his claim on the applicable risks[1], which had been determined in his previous application under HCAL 1452 of 2018 (“the previous claim”).

2.The Court, upon its own motion, has called upon the applicant to appear before it to show cause why the Court should not make a restricted proceedings order (“RPO”) against him since there is evidence to show that if unrestricted, the applicant may take out further proceedings to assert his non-refoulement claim on the same facts of the case, thereby abusing the legal process.

3.The applicant appeared before the Court on 14 July 2025. He did not admit that he relied on the same reasons in his previous for this application because his enemies had killed his father, and he had married an Indonesian in Hong Kong and had a son.

The procedural history

4.The applicant is a national of Pakistan, an illegal immigrant. He was arrested by police and he lodged a non-refoulement claim on the basis that, if refouled, he will be harmed or killed by the supporters of Pakistan Muslim League (N) because they considered he was one of the murderers of Muhammad Raqeeb. He also fears that he may be arrested by the police in Pakistan if he returns to Pakistan and they may jail him on a false accusation.

5.The Director dismissed his claim for the reason that it was not substantiated. He appealed to Torture Claims Appeal Board/Non-refoulement Claims Petition Office (“the Board”). The Board found that his claim was unfounded and dismissed his appeal.

6.His application for leave for judicial review of the Board’s Decision was dismissed by the Court of the First Instance on 18 November 2019. He intended to appeal to the Court of Appeal, but he was out of time.

7.He applied to the Court of First Instance for extension of time. The Court of First Instance refused his application. He appealed to the Court of Appeal against this decision. The Court of Appeal dismissed his appeal.

8.He applied to the Court of Appeal by Notice of Motion for leave to appeal to the Court of Final Appeal. The Court of Appeal dismissed his application.

9.By letter dated 28 August 2024, the applicant applied to the Director for making a subsequent claim for non-refoulement protection. By the Director’s Decision, the Director refused his application.

The subsequent claim application

10.Under section 37ZO of the Ordinance, he has to satisfy the immigration officer that there has been a significant change of circumstances since the previous claim was finally determined and such change of circumstances, when taken together with the material previously submitted, would give the subsequent claim a realistic prospect of success.

11.Upon the immigration officer’s advice, he had submitted additional materials in support of his application.

12.The immigration officer considered his evidence and found that the applicant relied on the similar reasons in his previous claim. His enemies are the same enemies in his previous claim and they attacked his family members for the same reasons in his previous claim, which the Board had already considered and dismissed his appeal. Besides, the immigration officer also found that state protection would be available to him as the Pakistan judiciary system will give him a fair trial if he returns to Pakistan.

13.For those reasons, the immigration officer did not accept that the applicant’s subsequent claim application satisfied the conditions under section 37ZO of the Ordinance and he refused his application.

Application for leave to apply for judicial review of the Director’s Decision

14.The applicant filed Form 86 on 23 April 2025 for judicial review of the Director’s Decision.

15.In the affirmation in support of his application, the applicant complained that the Director’s Decision was unfair; that the Director had not read his case well and that he was not given an interview.

Discussion

16.The role of this Court is supervisory, meaning that it ensures that the Director complied with the public law requirements in coming to his Decision. The Court will not usurp his fact-finding power. See TK v Michael C Jenkins Esq and Director of Immigration [2013] 1 HKC 526, §40 and Nupur Mst v Director of Immigration [2018] HKCA 524 §14 (1).

17.The Court will bear in mind that the Director’s Decision should be examined with rigorous examination and anxious scrutiny. Before me, the applicant argued that the immigration officer had not considered his case well. He raised the issues that his father was killed and he now has a family in Hong Kong. However, he admitted that the enemies and the reasons for them to attack his family members are the same enemies in his previous claim.

18.In Re: Kartini [2019] HKCA 1022, 9 September 2019, the Court of Appeal held:

“13. (1) … …Assessment of evidence and COI materials and risk of harm, state protection and viability of internal relocation are primarily within the province of the Board (and the Director). The court will not intervene by way of judicial review unless there are errors of law or procedural unfairness or irrationality in the decision of the Board.”

19.For the reasons given under paragraph 12, the immigration is of the view that those incidents he mentioned do not constitute significant change of circumstances, which satisfy the conditions under section 37ZO of the Ordinance. The immigration officer further said that those people who allegedly killed his father were masked and their identities are still a mystery. The information came from his brother, which is hearsay evidence.

20.I agree with the immigration officer. There is no reason for the Court to interfere with his decisions. The fact that he had married in Hong Kong and had a son is not a valid reason in support of his non-refoulement claim. The law does not require the Director to give him an interview for his subsequent claim application.

21.There is no valid reason to challenge the Director’s Decision.

22.The applicant fails to show that he has any realistic chance of success in his intended judicial review of the Director’s Decision.

23.I dismiss his application for leave to apply for judicial review of the Director’s Decision.

The RPO

24.Because of the applicant’s attempt to abuse the process, the Court has to protect its process to be abused again. The Court has the inherent jurisdiction to prevent the applicant from abusing its process by making a RPO and the extended order against him. See paragraphs 7 & 8 of the judgment of the Court of Final Appeal in Ng Yat Chi v Max Share Limited and China Resources (Holdings) Company Limited (2005) 8 HKCFAR 1.

25.RPO is appropriate for the present case. See The Secretary for Justice v Yuen Oi Yee Lisa, alias Lisa Yuen, Lisa Lee and another [2006] 1 HKLRD 679, Re Wahyuni v Direcctor of Immigration [2021] HKCFI 1991, by Hon. Chow JA (sitting as an additional judge of the Court of First Instance), 6 July 2021, § 9 and Re Uddin Borhan v Director of Immigration [2021] HKCFI 2129, § 25.

26.For this reason, the Court has called upon the applicant to appear before it to show cause why RPO should not be made against him. The RPO was explained to the applicant before the hearing. When asked whether he had anything to say about the proposed RPO, he asked the Court to consider his situation.

27.I am satisfied that, if not restrained, it is likely that the applicant would proceed with this application and other proceedings for the sole purpose of remaining in Hong Kong only. I shall therefore make the RPO in terms below:

(1)  The Applicant be prohibited from commencing any fresh proceedings by whatever originating process, or continuing any existing legal proceedings, relating to any non-refoulement claim of the Applicant in the High Court and any appeal, including this Order, without leave of the Court of First Instance.

(2)  All applications for leave under paragraph (1) shall be made to the Deputy High Court Judge K.W. Lung or in his absence, the Judge in charge of the Constitutional and Administrative Law List or such other Judge as may be designated by the Chief Judge of the High Court to hear cases in the Constitutional and Administrative Law List.

(3)  At least 7 days before filing any application for leave under paragraph (1), the Applicant do notify in writing each intended defendant or respondent of her intention to make such application, enclosing a copy of the draft document by which the fresh proceedings are intended to be commenced, and if any response is received by the Applicant from any such intended defendant or respondent, that the Applicant do file a copy of each such response together with the said application for leave.

(4)  Any intended defendant or respondent having notice of such intended proceedings be entitled but under no obligation to place before the Court written representations regarding the same.

(5)  All applications made pursuant to this order and all ancillary matters be dealt with by the court on paper and without any oral hearing unless the Court should otherwise direct.

(6)  If the Applicant should issue fresh proceedings falling or which may fall within the terms of paragraph (1) without first seeking the Court’s leave, and if such fact should come to the notice of the Registrar of the High Court or any Master or Judge, such fresh proceedings be referred to the Court for a decision as to whether they should be permitted to continue or should be dismissed.

(7)  Notice of each decision by this Court or the designated Judge made pursuant to this order be given in writing to the Applicant and to each intended defendant or respondent named in the fresh proceedings.

(8)  Whether or not any fresh proceedings are brought to the notice of the Court, if a defendant or respondent is served with such proceedings without the relevant documents being accompanied by either an order granting leave to commence such proceedings or a direction that leave to commence such proceedings is not required, such defendant or respondent be entitled to make no response to such service pending notification of the court’s decision in relation to those proceedings; and that time for acknowledging service or for otherwise responding to such proceedings be deemed extended accordingly.

(9)  No more than one leave application under paragraph (1) may be made by the Applicant within any period of 3 months.

(10)  No appeal shall lie from a decision of the Judge granting or refusing leave within this Order unless leave to appeal has been granted by the Court.

(11)  This order shall cease to have effect at the end of 5 years from the date of this order.

(12)  A copy of this Order shall be sent to the Registrar of the High Court.

DISPOSITION

28.The applicant’s application is dismissed.

29.RPO in terms of paragraph 27 be made against the applicant.

Dated the 16^th day of September

Where leave to apply has been granted, Applicants and their legal advisers are reminded of their obligation to reconsider the merits of their application in the light of the Respondent’s evidence

Form CALL-1