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ŠĢņņŌ_ŌP.S.S.Ō_Ō€v.€CanadaóóŠ |Ģ ŠĢCommunication€No€66/1997Š H˜ ŠĢ13€November€1998Š  d ŠĢCAT/C/21/D/66/1997Š ą 0 ŠĢĢADMISSIBILITYó óŠ ’ā  ŠĢĢņņņņSubmitted€byóó:ņņ€óóŌ_ŌP.S.S.Ō_Ō€(name€withheld)€[represented€by€counsel]€Š D”  ŠĢņņAlleged€victimóó:€The€author€Š ` ŠĢņņState€partyóó:€Canada€Š Ü, ŠĢņņDate€of€communicationóó:€5€May€1997óó€Š Øų ŠĢĢņņÓ  ÓÓ  ÓThe€Committee€against€Tortureóó,€established€under€article€17€of€the€Convention€againstŠ ZŖ ŠTorture€and€Other€Cruel,€Inhuman€or€Degrading€Treatment€or€Punishment,€Š @ ŠĢņņMeetingóó€on€13€November€1998,€Š  \ ŠĢņņAdoptsóó€the€following:€Š Ų( ŠĢÓ&ÓŠ Šņņņ ņDecision€on€admissibilityó óóóŠ Š Ś ŠÓÓĢĢ1.€The€author€of€the€communication€is€P.S.S.,€an€Indian€citizen€currently€residing€in€CanadaŠ <#Œ" Šwhere€he€is€seeking€asylum.€He€claims€that€his€forced€return€to€India€would€constitute€aŠ "$r# Šviolation€by€Canada€of€article€3€of€the€Convention€against€Torture.€He€is€represented€byŠ %X $ Šcounsel.€Š ī%>!% ŠĢņņFacts€as€presented€by€the€authoróó€Š ŗ' #' ŠĢ2.1€P.S.S.€was€born€in€1963€in€Chandigarh,€India.€In€1982,€he€became€a€member€of€the€AllŠ †)Ö$) ŠIndia€Sikh€Students€Federation€(AISSF).€On€an€unspecified€date,€P.S.S.€and€other€men€ofŠ l*¼%* Šthat€group€were€pointed€out€to€hijack€an€aircraft,€divert€it€to€another€country€and€hold€a€pressŠ R+¢&+ Šconference€in€order€to€highlight€the€situation€of€the€Sikh€population€in€Punjab,€India.€TheŠ 8,ˆ', Šhijacking€was€planned€in€reaction€to€an€assault€by€the€Indian€Government€launched€in€JuneŠ -n(- Š1984€upon€Darbar€Sahib,€also€known€as€the€Golden€Temple€in€Amritsar,€Punjab.€On€5€JulyŠ ° Š1984,€P.S.S.€and€the€other€men€hijacked€an€Air€India€aircraft€in€Srinigar€which€carried€aboutŠ –ę Š250€passengers€and€diverted€it€to€Lahore€in€Pakistan,€where€they€held€a€press€conference.Š |Ģ ŠThereafter€the€hijackers€released€all€the€persons€on€board€the€aircraft€and€surrenderedŠ b² Šthemselves€to€the€Pakistani€authorities.€According€to€the€author,€with€the€exception€of€twoŠ H˜ Šminor€injuries,€no€one€was€harmed€or€seriously€injured€in€the€course€of€the€hijacking.€Š . ~ ŠĢ2.2€In€January€1986€the€author€was€convicted€of€hijacking€and€sentenced€to€death€by€aŠ ś J ŠPakistani€court.€In€1989,€the€death€sentence€was€commuted€to€life€imprisonment.€On€21Š ą 0 ŠMarch€1994€the€author€was€released€from€prison€on€medical€grounds.€He€remained€inŠ Ę   ŠPakistan€until€21€January€1995,€when€he€was€granted€full€parole.€He€and€the€other€hijackersŠ ¬ ü  Šwere€given€three€months€to€leave€the€country.€Š ’ā  ŠĢ2.3€In€January€1995€the€author€applied€to€the€Canadian€immigration€authorities€for€entry€intoŠ ^®  Šthe€country€but€his€application€was€rejected.€Later€on€he€travelled€to€Canada€with€a€falseŠ D”  ŠAfghan€passport€and€under€the€false€name€of€B.S.€In€a€form€which€he€was€required€to€fill€inŠ *z  Šwhen€entering€the€country€he€denied€having€been€convicted€of€a€crime.€In€September€1995Š ` Šhe€was€arrested€by€the€Canadian€Immigration€Service€and€placed€in€custody.€On€27€OctoberŠ öF Š1995,€a€conditional€deportation€order€was€issued€by€the€Immigration€and€Refugee€Board.€HeŠ Ü, Šwas€also€given€notice€under€section€46.01€(e)€of€the€Immigration€Act€that€the€Minister€ofŠ Ā ŠCitizenship€and€Immigration€intended€to€certify€the€author€as€being€a€danger€to€the€publicŠ Øų Šin€Canada.€Such€certification€would€render€the€author€ineligible€to€make€a€refugee€claim€inŠ ŽŽ ŠCanada.€Š tÄ ŠĢ2.4€The€author€was€certified€as€a€danger€to€the€public€in€June€1996.€He€then€challenged€theŠ @ Šcertification€by€judicial€review€on€the€basis€of€procedural€unfairness.€The€Federal€CourtŠ &v Šrescinded€the€certification€on€those€grounds.€In€October€1996€a€new€certification€processŠ  \ Šstarted€as€a€result€of€which€the€Minister€certified,€by€decision€of€30€April€1997,€that€theŠ ņB Šauthor€was€a€danger€and€an€order€was€issued€to€remove€him€from€Canada€on€5€May€1997.€Š Ų( ŠĢņņThe€complaintóó€Š ¤ō ŠĢ3.1€The€author€argues€that€he€would€be€in€serious€danger€of€being€subjected€to€torture€if€heŠ p!Ą  Šwas€deported€to€India.€He€submits€that€those€persons€who€are€known€to€have€acted€for€SikhŠ V"¦! Šnationalists€are€persecuted€by€the€authorities€in€Punjab€and€that€although€violence€in€PunjabŠ <#Œ" Šis€said€to€be€reduced,€members€of€the€AISSF€and€their€families€continue€to€be€harassed€inŠ "$r# ŠPunjab.€He€asserts€that€two€of€the€hijackers€who€were€released€from€custody€and€attemptedŠ %X $ Što€return€to€India€were€killed€by€the€Indian€Border€Security€Forces€after€they€crossed€theŠ ī%>!% Šborder.€On€27€June€1996,€K.S.S.,€a€member€of€the€AISSF€who€was€involved€in€a€secondŠ Ō&$"& Šhijacking€in€August€1994€was€found€dead€in€a€canal€in€Rajastan.€Presumably€K.S.S.€eitherŠ ŗ' #' Šwas€extrajudicially€executed€or€died€as€a€result€of€torture€by€the€Punjab€police.€Š  (š#( ŠĢ3.2€He€states€that€because€of€his€involvement€in€the€hijacking€the€author's€family€has€beenŠ l*¼%* Špersecuted€by€the€Punjab€police.€They€were€arrested€after€the€hijacking€took€place€and€hisŠ R+¢&+ Šmother€has€repeatedly€been€harassed€by€the€Punjab€police€who€questioned€her€about€otherŠ 8,ˆ', ŠSikh€nationalists€and€threatened€her€with€detention€and€disappearance.€In€October€1988€sheŠ -n(- Šflew€to€Canada€where€she€was€granted€refugee€status€in€1992.€The€author€also€submits€thatŠ ° Šhis€brother,€T.S.S.,€was€held€in€illegal€detention€and€subjected€to€gross€ill„treatment€by€theŠ –ę ŠPunjab€police€between€26€March€and€2€May€1988.€During€that€time€he€was€questioned€aboutŠ |Ģ Šhis€brother€and€the€latter's€friends.€He€was€released€without€charge€and€granted€politicalŠ b² Šasylum€in€Canada€in€1992.€Š H˜ ŠĢ3.3€The€author€further€argues€that€there€are€grounds€for€assuming€that€he€is€wanted€in€India.Š  d ŠHe€reports€that€the€names€of€those€persons€who€have€come€to€the€attention€of€the€authoritiesŠ ś J Šare€contained€in€a€list€which€circulates€among€the€police€forces€in€India.€Persons€who€appearŠ ą 0 Šon€that€list€are€routinely€taken€into€custody€and€are€targets€for€illegal€detention,€torture€andŠ Ę   Šextortion€if€they€are€believed€to€have€worked€for€armed€Sikh€nationalists.€NotwithstandingŠ ¬ ü  Šthe€fact€that€he€almost€served€10€years€in€jail,€the€author€believes€that€his€name€will€appearŠ ’ā  Šon€such€a€list.€The€author€also€notes€that€apparently€Indian€authorities€monitor€the€return€toŠ xČ  ŠIndia€of€those€persons€who€failed€to€obtain€political€asylum€in€other€countries.€Š ^®  ŠĢ3.4€The€author€argues€that€he€could€not€escape€the€danger€of€being€subjected€to€torture€byŠ *z  Šfleeing€to€other€parts€of€India.€Reportedly€the€Punjab€police€has€made€several€forays€intoŠ ` Šother€Indian€States€in€order€to€pursue€their€targets.€It€is€further€stated€that€neither€in€PakistanŠ öF Šwould€he€be€safe.€Š Ü, ŠĢ3.5€The€author€claims€that€both€the€certification€of€his€being€a€danger€to€the€public€and€theŠ Øų Šdecision€on€his€removal€from€Canada€constitute€a€violation€of€article€3,€paragraph€1€of€theŠ ŽŽ ŠConvention€against€Torture€and€Other€Cruel,€Inhuman€or€Degrading€Treatment€orŠ tÄ ŠPunishment.€The€certification€renders€him€ineligible€to€make€an€application€to€the€panel€ofŠ ZŖ Šthe€Convention€Refugee€Determination€Division€of€the€Immigration€Review€Board€forŠ @ Šrefugee€status€under€the€United€Nations€Convention€on€Refugees€of€1951€and€as€a€resultŠ &v Šexposes€him€to€the€risk€of€removal€from€Canada.€He€further€submits€that€there€are€no€reasonsŠ  \ Šwhich€would€justify€the€certification€since€he€is€no€longer€a€member€of€the€AISSF€and,€apartŠ ņB Šfrom€the€1994€hijacking,€he€did€not€commit€any€other€crime€or€criminal€offence.€As€to€theŠ Ų( Šdecision€to€remove€him€from€Canada,€the€author€draws€attention€to€the€fact€that€India€has€notŠ ¾ Šratified€the€Convention€against€Torture€and,€therefore,€he€would€not€have€any€possibility€toŠ ¤ō Šapply€to€the€Committee€from€India.€He€notes€that€the€other€convicted€hijackers€have€beenŠ Š Ś Šgranted€temporary€residence€in€Switzerland,€one€was€granted€asylum€in€Germany€in€AprilŠ p!Ą  Š1997€and€another€one€who€went€to€Canada€was€not€held€in€detention€and€certified€as€aŠ V"¦! Šdanger€to€the€public.€Š <#Œ" ŠĢņņState€party's€observations€on€admissibilityóó€Š %X $ ŠĢ4.1€On€5€May€1997€the€Committee,€acting€through€its€Special€Rapporteur€for€newŠ Ō&$"& Šcommunications,€transmitted€the€communication€to€the€State€party€for€comments€andŠ ŗ' #' Šrequested€the€State€party€not€to€expel€or€deport€the€author€to€India€while€his€communicationŠ  (š#( Šwas€under€consideration€by€the€Committee.€Š †)Ö$) ŠĢ4.2€In€its€response€of€15€October€1997€the€State€party€contested€the€admissibility€of€theŠ R+¢&+ Šcommunication.€It€states€that€the€author€entered€Canada€illegally.€He€misrepresented€himselfŠ 8,ˆ', Šat€the€port€of€entry€producing€an€Afghan€passport€and€claimed€refugee€status.€In€his€refugeeŠ -n(- Šclaim€form,€completed€with€his€counsel,€as€well€as€in€an€interview€with€an€ImmigrationŠ ° ŠExamining€Officer€on€3€February€1995€he€maintained€his€false€identity€and€indicated€havingŠ –ę Šno€criminal€convictions.€Nor€did€he€indicate€his€membership€in€any€terrorist€organization.€Š |Ģ ŠĢ4.3€The€author€was€arrested€by€immigration€authorities€on€13€September€1995,€when€his€trueŠ H˜ Šidentity€became€known.€On€25€October€1995€an€immigration€officer,€pursuant€to€section€27Š . ~ Šof€the€Immigration€Act€prepared€a€report€alleging€that€the€author€was€inadmissible€in€CanadaŠ  d Šas€a€person€who€there€are€reasonable€grounds€to€believe€had€been€convicted€outside€CanadaŠ ś J Šof€an€offence€that,€if€committed€in€Canada€would€be€punishable€by€a€maximum€term€ofŠ ą 0 Šimprisonment€of€10€years€or€more.€After€a€hearing,€where€his€lawyer€and€an€interpreter€wereŠ Ę   Špresent,€an€adjudicator€concluded€that€the€report€was€well€founded€and€issued€a€conditionalŠ ¬ ü  Šdeportation€order.€Š ’ā  ŠĢ4.4€His€detention,€which€has€been€reviewed€on€a€regular€basis,€was€maintained€pursuant€toŠ ^®  Šthe€Immigration€Act,€according€to€which€a€person€can€be€detained€if€he/she€is€likely€to€poseŠ D”  Ša€danger€to€the€public€or€if€he/she€is€not€likely€to€appear€when€required€by€the€immigrationŠ *z  Šauthorities.€Š ` ŠĢ4.5€On€21€June€1996€the€Minister€of€Immigration€signed€the€opinion€that€the€author€was€aŠ Ü, Š"danger€to€the€public".€The€parties€agreed€to€review€that€decision.€Accordingly,€he€wasŠ Ā Šinvited€to€make€any€submissions€which€would€demonstrate€that€he€was€not€a€danger€to€theŠ Øų Špublic,€the€element€of€risk€of€return€to€India€or€that€there€were€compelling€humanitarian€andŠ ŽŽ Šcompassionate€considerations€which€would€warrant€his€remaining€in€Canada.€His€lawyerŠ tÄ Šsent€an€extensive€package€of€material€and€asserted€that€the€author€is€not€a€danger€to€theŠ ZŖ Špublic€and€that€there€are€compelling€reasons€why€he€should€be€allowed€to€remain€in€Canada.€Š @ ŠĢ4.6€On€16€April€1997€the€Minister€of€Immigration€issued€an€opinion,€based€on€theŠ  \ Šcircumstances€and€severity€of€the€crime€for€which€the€author€was€convicted,€that€heŠ ņB Šconstitutes€a€"danger€to€the€public"€in€Canada.€As€a€result,€the€author€is€not€eligible€to€haveŠ Ų( Šhis€refugee€claim€determined.€The€decision€was€made€with€due€consideration€for€the€possibleŠ ¾ Šrisk€the€author€might€face€if€returned€to€India,€a€risk€which€was€considered€to€be€minimal.€Š ¤ō ŠĢ4.7€The€author,€throughout€his€dealings€with€the€Canadian€authorities,€has€never€showed€anyŠ p!Ą  Šcontrition€for€his€past€action,€nor€any€remorse€for€the€harm€he€has€caused€to€the€victims€ofŠ V"¦! Šhis€hijacking.€He€still€refuses€to€acknowledge€that€he€used€violence€and€considers€that€he€wasŠ <#Œ" Šnot€the€aggressor.€Š "$r# ŠĢ4.8€The€author€filed€several€applications€for€leave€to€introduce€a€judicial€review€against€theŠ ī%>!% Šdecisions€rendered€in€his€case.€Two€substantive€applications€remain€pending.€First,€anŠ Ō&$"& Šapplication€dated€30€April€1997€to€review€the€Minister's€decision€of€16€April€1997€in€whichŠ ŗ' #' Šthe€Minister€determined€that€the€applicant€is€a€danger€to€the€public.€Secondly,€an€applicationŠ  (š#( Šdated€30€April€1997€to€review€the€Immigration's€decision€to€remove€the€author€to€India,€inŠ †)Ö$) Šwhich€the€author€raised€arguments€under€the€Canadian€Charter€of€Rights€and€Freedoms.€JointŠ l*¼%* Što€this€application€the€author€asked€the€Court€to€order€a€stay€of€his€removal€pending€theŠ R+¢&+ Šconsideration€of€the€application.€This€stay€was€granted€on€5€May€1997.€Š 8,ˆ', ŠŠ -n(- Š4.9€If€the€author€were€to€succeed€in€his€applications€for€leave€to€apply€for€judicial€review€theŠ ° Šdecision€of€the€Federal€Court€Trial€Division€could€be€further€appealed€to€the€Federal€CourtŠ –ę Šof€Appeal,€if€the€judge€of€the€Trial€Division€were€to€certify€that€the€case€raises€a€seriousŠ |Ģ Šquestion€of€general€importance.€A€decision€of€the€Federal€Court€of€Appeal€can€be€appealed,Š b² Šwith€leave,€to€the€Supreme€Court€of€Canada.€The€author€has€expressed€no€doubts€about€theŠ H˜ Šeffectiveness€and€availability€of€those€remedies.€Accordingly,€this€communication€shouldŠ . ~ Šbe€dismissed€for€failure€to€exhaust€domestic€remedies.€Š  d ŠĢ4.10€The€State€party€also€argues€that€the€communication€should€be€declared€inadmissibleŠ ą 0 Šbecause€the€author€did€not€establish€prima€facie€substantial€grounds€to€believe€that€hisŠ Ę   Šremoval€to€India€will€have€the€foreseeable€consequence€of€exposing€him€to€a€real€andŠ ¬ ü  Špersonal€risk€of€being€subjected€to€torture,€as€stated€in€previous€jurisprudence€of€theŠ ’ā  ŠCommittee.€A€mere€possibility€of€torture€is€not€in€itself€sufficient€to€give€rise€to€a€breach€ofŠ xČ  Šarticle€3.€While€Indian€authorities€advised€the€immigration€officials€of€the€author's€presenceŠ ^®  Šin€Canada€there€is€no€indication€that€they€are€particularly€interested€in€his€return€or€that€theyŠ D”  Šare€presently€looking€for€him.€The€Indian€authorities€could€have€requested€the€author'sŠ *z  Šextradition,€as€an€extradition€treaty€exists€between€Canada€and€India.€Their€decision€not€toŠ ` Šhave€recourse€to€that€possibility€indicates€that€the€author€is€not€of€particular€interest€for€them.Š öF ŠFurthermore,€the€document€of€the€Indian€authorities€„€Central€Bureau€of€Investigation,€IndiaŠ Ü, ŠInterpol€New€Delhi€„indicates€that€they€are€not€looking€for€him.€Š Ā ŠĢ4.11€The€author's€past€membership€to€the€AISSF€cannot€put€him€at€risk€today€since€thatŠ ŽŽ Šorganization,€in€recent€years,€denounced€the€use€of€violence€and€committed€itself€to€pursuingŠ tÄ Ša€peaceful€political€agenda.€Considering€that€members€of€the€AISSF,€including€a€convictedŠ ZŖ Šhijacker,€are€seeking€election€in€public€office,€it€is€unlikely€that€the€author€would€beŠ @ Šsubjected€to€persecution€for€his€past€membership€in€that€organization.€Š &v ŠĢ4.12€The€State€party€cites€the€United€States€Country€Reports€on€Human€Rights€Practices€forŠ ņB Š1995€and€1996.€These€reports€indicate€that€India€has€many€of€the€safeguards€to€preventŠ Ų( Šagainst€human€rights€abuses€and€recognizes€that€although€significant€human€rights€abusesŠ ¾ Šdo€take€place€their€severity€and€amount€has€diminished€in€recent€years.€Overall€terroristŠ ¤ō Šactivity€in€the€Punjab€is€now€much€reduced€as€are€the€number€of€disappearances€and€fatalŠ Š Ś Šencounters€between€Sikh€militants€and€police/security€forces.€Š p!Ą  ŠĢ4.13€According€to€the€State€party,€the€record€before€the€Committee€confirms€that€the€articleŠ <#Œ" Š3€standard€was€duly€and€properly€considered€in€Canadian€domestic€procedures.€TheŠ "$r# ŠCommittee€should€not€substitute€its€own€findings€on€whether€there€were€substantial€groundsŠ %X $ Šfor€believing€that€the€communicant€would€be€in€personal€danger€of€being€subjected€to€tortureŠ ī%>!% Šupon€return,€since€the€national€proceedings€disclose€no€manifest€error€or€unreasonablenessŠ Ō&$"& Šand€were€not€tainted€by€abuse€of€process,€bad€faith,€manifest€bias€or€serious€irregularities.Š ŗ' #' ŠIt€is€for€the€national€courts€of€the€States€parties€to€the€Convention€to€evaluate€the€facts€andŠ  (š#( Ševidence€in€a€particular€case.€The€Committee€should€not€become€a€"fourth€instance"Š †)Ö$) Šcompetent€to€re„evaluate€findings€of€fact€or€to€review€the€application€of€domestic€legislation,Š l*¼%* Šparticularly€when€the€same€issue€is€pending€before€a€domestic€Court.€Š R+¢&+ ŠĢņņCounsel's€commentsóó€Š -n(- Ї5.1€In€his€comments€to€the€State€party's€submission€counsel€argues€that€the€author€sought€aŠ ° Šhearing€in€the€Federal€Court€to€obtain€a€stay€of€the€deportation€until€the€legality€of€theŠ –ę Šdeportation€order€and€its€execution€could€be€challenged.€At€the€same€time€the€author€wasŠ |Ģ Šadvised€that€his€removal€would€take€place€on€5€May€1997.€The€Federal€Court€only€providedŠ b² Ša€hearing€date€for€the€day€he€was€to€be€removed.€Under€these€circumstances€and€given€theŠ H˜ Šfact€that€it€would€not€be€possible€for€the€author€to€file€any€appeals€and€to€have€the€matterŠ . ~ Šbrought€before€a€judge€within€the€necessary€timeframes,€the€author€sought€interim€measuresŠ  d Šfrom€the€Committee.€At€the€time€the€Committee€assumed€jurisdiction€there€was€no€assuranceŠ ś J Šthat€an€effective€remedy€was€available.€Having€assumed€jurisdiction€the€Committee€oughtŠ ą 0 Što€continue€its€review€of€the€matter,€despite€the€fact€that€the€author€was€granted€stay.€Š Ę   ŠĢ5.2€The€author€sought€judicial€review€of€the€finding€that€he€was€a€danger€to€the€public€butŠ ’ā  Šthe€Federal€Court€dismissed€the€application€for€leave€on€19€January€1998.€The€refugee€claimŠ xČ  Šis€barred€from€proceeding€once€the€Minister€certifies€that€the€author€is€a€danger€to€the€public.Š ^®  ŠThere€is€absolutely€no€appeal€from€the€decision€of€the€Court€denying€leave.€Thus,€the€authorŠ D”  Šwill€not€be€able€to€have€his€refugee€claim€determined€and€hence€there€is€not€nor€will€thereŠ *z  Šever€be€a€refugee€determination€for€him.€As€a€result,€no€risk€assessment€will€be€made€sinceŠ ` Šthis€is€only€conducted€in€the€context€of€the€refugee€determination€process.€Š öF ŠĢ5.3€At€the€same€time€the€Federal€Court€„€Trial€Division,€by€decision€dated€29€June€1998Š Ā Šquashed€the€decision€of€the€immigration€officer€to€execute€the€removal€order.€However,€theŠ Øų ŠCourt€did€not€conclude€that€a€risk€assessment€had€to€be€done.€It€stated€that€removal€officersŠ ŽŽ Šdo€not€have€jurisdiction€to€conduct€risk€assessments€and€make€risk€determinations€in€theŠ tÄ Šcourse€of€making€destination€decisions.€However,€under€section€48€of€the€Immigration€ActŠ ZŖ Šremoval€officers€have€a€discretion€to€delay€the€execution€of€a€deportation€order.€In€theŠ @ ŠCourt's€opinion€the€removal€officer's€failure€to€consider€whether€or€not€to€exercise€his€or€herŠ &v Šdiscretion€under€section€48€of€the€Immigration€Act,€pending€the€conducting€of€an€appropriateŠ  \ Šrisk€assessment€and€the€making€of€an€appropriate€risk€determination€constituted€a€reviewableŠ ņB Šerror.€An€appeal€against€that€decision€was€filed€by€the€Minister€before€the€Federal€Court€ofŠ Ų( ŠAppeal.€No€hearing€date€has€been€set€yet.€If€the€Minister€is€not€successful€in€the€appeal€theŠ ¾ Šmatter€is€merely€referred€back€to€the€expulsions€officer€for€his€determination€as€to€whetherŠ ¤ō Šor€not€the€author's€removal€should€be€deferred€pending€a€risk€assessment.€However,€sinceŠ Š Ś Šthe€author€has€already€been€certified€as€a€danger€to€the€public€there€is€no€statutoryŠ p!Ą  Šrequirement€for€a€risk€assessment.€Therefore,€this€remedy€cannot€be€considered€as€effective.Š V"¦! ŠIt€would€then€be€open€to€the€author€to€make€an€application€on€humanitarian€andŠ <#Œ" Šcompassionate€grounds.€Such€an€application€is€a€request€for€the€exercise€of€special€discretionŠ "$r# Šbefore€an€immigration€officer€who€can€nevertheless€consider€risk.€Š %X $ ŠĢ5.4€Although€the€author€was€held€in€detention€for€a€period€of€over€two€years€he€was€orderedŠ Ō&$"& Šreleased€by€an€immigration€adjudicator€in€July€1998.€Since€then€he€has€complied€with€allŠ ŗ' #' Šconditions€for€his€release,€has€not€committed€any€criminal€offence€and€has€not€posed€aŠ  (š#( Šdanger€to€the€public€in€any€way.€Š †)Ö$) ŠĢ5.5€With€respect€to€the€substantial€grounds€counsel€argues€that€section€46.01€(e)€(i)€of€theŠ R+¢&+ ŠImmigration€Act€allows€the€Minister€to€certify€a€person€as€a€"danger€to€the€public€inŠ 8,ˆ', ŠCanada".€However,€it€does€not€require€that€the€Minister€assess€risk.€Although€it€is€true€thatŠ -n(- Šthe€author€did€make€submissions€with€respect€to€risk€there€is€no€indication€in€any€of€theŠ ° Šmaterial€that€the€author€saw€from€the€Minister€that€risk€was€in€fact€assessed.€The€author€hasŠ –ę Šnot€seen€any€documentation€which€would€support€the€bare€assertion€by€the€Minister€thatŠ |Ģ Šthere€was€a€"minimal€risk".€If€this€is€in€fact€the€case€it€is€clearly€a€matter€that€was€notŠ b² Šrelevant€to€the€certification€process.€In€that€context€counsel€submits€that€it€is€extremelyŠ H˜ Šimportant€that€the€Committee€make€a€determination€as€to€whether€or€not€the€certificationŠ . ~ Šprocess€engaged€prior€to€the€decision€to€execute€the€removal€order€conforms€with€theŠ  d Šrequirements€of€international€law,€in€ensuring€that€persons€not€be€sent€back€to€situationsŠ ś J Šwhere€there€are€substantial€risks€of€torture.€Š ą 0 ŠĢ5.6€The€author€has€asserted€that€he€always€was€remorseful€for€any€harm€that€was€causedŠ ¬ ü  Šduring€the€hijacking€and€denies€that€he€himself€used€any€violence€in€the€attack.€He€submitsŠ ’ā  Šthat€he€voluntarily€surrendered€and€that€none€of€the€passengers€were€subjected€to€any€harmŠ xČ  Šother€than€minor€injuries€from€which€they€quickly€recovered.€Š ^®  ŠĢ5.7€Counsel€insists€that€there€is€a€substantial€risk€that€the€author€would€be€exposed€to€tortureŠ *z  Šbased€upon€the€deplorable€human€rights€record€of€the€Indian€Government,€his€high€profileŠ ` Šas€someone€who€is€known€to€have€been€involved€in€an€organization€which€has€been€stronglyŠ öF Šsupportive€of€an€independent€Sikh€State,€the€fact€that€he€engaged€in€the€hijacking€as€a€meansŠ Ü, Šof€protest€and€the€fact€that€other€high€profile€persons€like€the€author€have€been€detained€andŠ Ā Šextrajudicially€killed€by€the€Indian€authorities.€The€mere€fact€that€the€Central€Bureau€ofŠ Øų ŠInvestigation€affirms€that€they€are€not€looking€for€him€does€not€provide€any€assurance€to€theŠ ŽŽ Šauthor€that€he€would€be€safe€upon€return.€Many€innocent€persons€have€been€arrested€andŠ tÄ Škilled€extrajudicially€based€upon€suspicion€of€past€connection€to€the€militant€movement.€Š ZŖ ŠĢ5.8€Finally,€it€is€not€possible€for€the€Government€of€India€to€request€the€extradition€of€theŠ &v Šauthor,€given€that€he€was€tried€and€convicted€of€the€offence€in€Pakistan€and€that€under€theŠ  \ ŠIndian€Constitution€he€cannot€be€tried€twice€for€the€same€offence.€Š ņB ŠĢņņIssues€and€proceedings€before€the€Committeeóó€Š ¾ ŠĢ6.1€Before€considering€any€claim€in€a€communication,€the€Committee€against€Torture€mustŠ Š Ś Šdecide€whether€or€not€it€is€admissible€under€article€22€of€the€Convention.€Š p!Ą  ŠĢ6.2€Article€22,€paragraph€5€(b),€of€the€Convention€precludes€the€Committee€from€consideringŠ <#Œ" Šany€communication,€unless€it€has€been€ascertained€that€all€available€domestic€remedies€haveŠ "$r# Šbeen€exhausted.€In€the€instant€case€the€Committee€notes€that€the€author€was€grantedŠ %X $ Štemporary€stay€and€that€the€Federal€Court€„€Trial€Division€quashed€the€decision€of€theŠ ī%>!% Šimmigration€officer€to€execute€the€removal€order.€The€Committee€also€notes€that€an€appealŠ Ō&$"& Šfiled€by€the€Minister€of€Immigration€against€that€decision€is€still€pending€before€the€FederalŠ ŗ' #' ŠCourt€of€Appeal.€If€not€successful€the€matter€would€be€referred€back€to€the€expulsions€officerŠ  (š#( Šand€the€possibility€of€an€application€on€humanitarian€and€compassionate€grounds€would€beŠ †)Ö$) Šopen€to€the€author.€There€is€nothing€to€indicate€that€the€procedures€still€pending€cannot€bringŠ l*¼%* Šeffective€relief€to€the€author.€The€Committee€is€therefore€of€the€opinion€that€theŠ R+¢&+ Šcommunication€is€at€present€inadmissible€for€failure€to€exhaust€domestic€remedies.€In€theŠ 8,ˆ', Šcircumstances€the€Committee€does€not€consider€Š -n(- Їit€necessary€to€deal€with€other€issues€raised€by€the€State€party€and€the€author.€That€will€beŠ ° Šdone,€if€required,€at€a€later€stage.€Š –ę ŠĢ7.€The€Committee€therefore€decides:€Š b² ŠĢ(a)€That€the€communication€is€inadmissible;€Š . ~ ŠĢ(b)€That€this€decision€may€be€reviewed€under€rule€109€of€the€Committee's€rules€of€procedureŠ ś J Šupon€receipt€of€a€request€by€or€on€behalf€of€the€author€containing€information€to€the€effectŠ ą 0 Šthat€the€reasons€for€inadmissibility€no€longer€apply;€Š Ę   ŠĢ(c)€That€this€decision€shall€be€communicated€to€the€State€party,€the€author€and€hisŠ ’ā  Šrepresentative.€Š xČ  ŠĢ[Done€in€English,€French,€Russian€and€Spanish,€the€English€text€being€the€original€version.]€Š D”  ŠÓæÓ