Nur Fitrianingsih v. Torture Claims Appeal Board / Non-refoulement Claims Petition Office

HCAL 488/2021

[2026] HKCFI 211

IN THE HIGH COURT OF THE

HONG KONG SPECIAL ADMINISTRATIVE REGION

COURT OF FIRST INSTANCE

CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No 488 of 2021

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

Following;

Order by Deputy High Court Judge (Non-refoulement Claims) Jeffrey Chau:

1.  Form 86 be amended, naming only the Torture Claims Appeal Board/Non refoulement Claims Petition Office as the Putative Respondent, naming the Director of Immigration as the Putative Interested Party, and stating that the decision in respect of which relief is sought is the decision by the Torture Claims Appeal Board dated 31 March 2021.

2.  The application for leave to apply for judicial review be dismissed.

Observations for the Applicant:

Introduction

1.By a Form 86 dated 8 April 2021 (the “Form 86”), the Applicant applied for leave to apply for judicial review against the decision by the Torture Claims Appeal Board (the “TCAB”) dated 31 March 2021 (the “TCAB Decision”), which affirmed the decision of the Director of Immigration (the “DOI”) dated 21 November 2019.

2.The Applicant requested for a hearing of this application. She was absent from the hearing.  I see no irregularity in the notification of her attendance.

3.In the supporting affirmation, the Applicant sought leave for judicial review against the DOI Decision.  But the DOI Decision is superseded by the TCAB Decision (Re Moshin Ali [2018] HKCA 549 at [45]). It is unclear to which decision the Form 86 was referring.

4.Thus, I amend the Form 86 on my own motion to state that the decision in respect of which relief is sought is the TCAB Decision instead of the DOI Decision.  I further amend Form 86 on my own motion to name the TCAB as the putative respondent and the DOI as the putative interested party.

Background

5.The Applicant is a national of Indonesia.  In gist, she fears that if returned to Indonesia, she would be harmed or killed by her creditor who tried to rape her and force her to marry him.  The Applicant’s personal background, the relevant facts and relevant procedural history have been sufficiently set out in the TCAB Decision, which can be viewed through a hyperlink[1].  I shall therefore not repeat them.  Unless otherwise specified, TCAB’s abbreviations and descriptions are adopted herein.

Discussion

6.The leave application operates as a filtering process and there is no requirement or expectation to give elaborate reasons for my decision: Re Zunariyah [2018] HKCA 14 at [23].  It is sufficient to state my observations after considering the TCAB Decision and the materials adduced by the Applicant.

7.I remind myself that in a judicial review, this court does not provide a further avenue of appeal.  While I also remind myself that in non-refoulement cases, I would adopt an enhanced standard in scrutinizing the decision of the TCAB given the seriousness of the issue at hand, this court would not usurp the role of the TCAB, which together with the DOI are the primary decision-makers. A finding of fact is exclusively within the realm of the TCAB, and this 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 TCAB: Nupur Mst v Director of Immigration [2018] HKCA 524 at [14(1)].  There must be a reasonably arguable case with a realistic prospect of success before leave for judicial review will be granted: Peter Po Fun Chan v Winnie Cheung (2007) 10 HKCFAR 676. 

8.In a proper Form 86, an applicant is required to identify the grounds of judicial review clearly and succinctly: Ho Loy v Director of Environmental Protection (unreported, HCAL 21/2015, 22 December 2016) at [142], and further to make full and frank disclosure of all material facts to be verified by an affidavit.

9.The Applicant did not state any substantive grounds on which the relief is sought, and hence did not point to any error of law, procedural unfairness or irrationality of the TCAB Decision in the Form 86.

10.As can be seen from the TCAB Decision, the TCAB took into account all the evidence available and found that on the basis of the same, applying the correct legal principles in respect of all applicable grounds under the Unified Screening Mechanism, the Applicant’s allegations were insufficient to make out any of the applicable grounds [59-77].  I note in particular that the creditor (who was in fact a relative of the side of Applicant’s mother) was not acting in an official capacity.  The Applicant had no political affiliation and did not have a connection to a particular social group [67]. There was thus no evidence suggesting that reasonable state protection would not be available to the Applicant [64(f)].  It would also be reasonable for the Applicant to relocate, given that there was no suggestion that the creditor or his subordinates would be able to locate her in the large urban centres of Indonesia, and the fact that she had been working abroad independently for years [78-85]. 

11.All in all, I do not see any errors of law, procedural unfairness or irrationality in the TCAB Decision, despite rigorous examination and anxious scrutiny.  The Applicant’s intended challenge to the TCAB Decision is not reasonably arguable, and accordingly the application for leave to apply for judicial review is dismissed.

Dated the 13^th day of January 2026

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