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

HCAL 1477/2025

[2026] HKCFI 2213

IN THE HIGH COURT OF THE

HONG KONG SPECIAL ADMINISTRATIVE REGION

COURT OF FIRST INSTANCE

CONSTITUTIONAL AND ADMINISTRATIVE LAW LIST No. 1477 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 absent in open court;

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

1.   The extension of time for the application for Judicial Review be refused; and

2.   The application for leave to apply for Judicial Review be dismissed.

Observations for the Applicant:

THE APPLICATION

1.The applicant applies for leave to apply for judicial review of the Decision dated 27 September 2024 of the Torture Claims Appeal Board (“the Board’s Decision”). His application is late.  His application shall not be later than 3 months from the date of the Board’s Decision[1], which expired on 27 December 2024.  His application was filed on 26 June 2025, which is late for more than 5 months.  This issue will be dealt with below.

2.The applicant did not ask for a hearing.

The applicant

3.The applicant is a national of Indonesia.  He is an illegal immigrant.  He lodged a non-refoulement claim on the basis that, if refouled, he will be harmed or killed by the loan shark called Agus because he was unable to repay the debt owed to him.

4.Details of the applicant’s story can be found in the Board’s Decision.  See hyperlink https://legalref.judiciary.hk/doc/judg/html/vetted/other/en/2025/HCAL001477_2025_files/the_Board's_Decision.pdf.

The Director’s Decision

5.The Director considered the applicant’s claim in relation to the following risks:

a.   risk of torture under Part VIIC of the Immigration Ordinance, Cap. 115, (“the Ordinance”) (“Torture risk”);

b.   risk of violation of the right to life under Article 2 of Section 8 of the Hong Kong Bill of Rights Ordinance, Cap. 383 (“HKBOR”) (“BOR 2 risk”);

c.   risk of torture or cruel, inhuman or degrading treatment or punishment (“CIDTP”) under Article 3 of Section 8 of the HKBOR (“BOR 3 risk”); and

d.   risk of persecution by reference to the non-refoulement principle under Article 33 of the 1951 Convention relating to the Status of Refugees and its 1967 Protocol (“Refugee Convention”) (“Persecution risk”).

6.By Notice of Decision dated 6 June 2024 (“the Director’s Decision”), the Director refused the applicant’s claim on all applicable risks because it was unsubstantiated.

The Board’s Decision

7.The applicant appealed the Director’s Decision to the Board.  On 20 August 2024, the Board conducted an oral hearing.  He had given oral evidence and answered the Board’s questions.

8.Having considered the evidence, the Board made the findings below.

(1)   The Board accepted his evidence of a loan from Agus and he was unable to repay. [26]

(2)   According to the applicant, the loan shark did not have violence on him or his family members.  There were only verbal threats and nothing further. [28]

(3)   There will be no real risk of serious adverse action by Agus if he returns to Indonesia. [30]

(4)   The applicant stated that his parents took the debt and he was not the debtor.  His parents are living safely in Indonesia.  Therefore, he should not be under any real risk. [31]

(5)   State protection will be available to him if he returns to Indonesia. [32]

(6)   Internal relocation is viable. [33]

9.For the reasons above, the Board dismissed the applicant’s appeal and affirmed the Director’s Decision.

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

10.The applicant has filed Form 86 dated 26 June 2025 for leave to apply for judicial review of the Board’s Decision.

11.The applicant said the adjudicator did not give him true decision and he wants to talk to the adjudicator.

DISCUSSION

12.As mentioned in paragraph 1, this application is late.  In AW v. Director of Immigration and William Lam CACV 63 of 2015, 3 November 2015, §27 the Court of Appeal held that for extension of time for making the application for leave to apply for judicial review, the court has to consider, inter alia, the prospect of success of the intended application.  I shall consider the merits of the applicant’s case.

13.The Court will bear in mind that the Board’s Decision should be examined with rigorous examination and anxious scrutiny.      

14.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.”

15.The reasons under paragraph 11 are his bare assertion and his request is irrelevant to this application.  They are not valid to challenge the Board’s Decision.

16.The applicant fails to show that he has any realistic prospect of success in his proposed judicial review of the Board’s Decision.

DISPOSITION

17.I refuse to extend time for the applicant to apply for leave to apply for judicial review of the Board’s Decision.  Accordingly, I dismiss his application.

Dated the 30^th day of April 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