[2025] FCA 1586
General information, not legal advice.
Federal Court of Australia
2025-11-13
Mr J, Logan J
Original judgment source is linked above.
The Second Respondent submitted a notice of appearance, save as to costs
MINISTER FOR IMMIGRATION, CITIZENSHIP, MIGRANT SERVICES AND MULTICULTURAL AFFAIRS
Note: Entry of orders is dealt with in Rule 39.32 of the Federal Court Rules 2011.
[24] Consistently with well-established authority in different statutory contexts, there can be no doubt that a decision-maker must read, identify, understand and evaluate the representations. Adopting and adapting what Kiefel J (as her Honour then was) said in Tickner v Chapman, the decision-maker must have regard to what is said in the representations, bring their mind to bear upon the facts stated in them and the arguments or opinions put forward, and appreciate who is making them. From that point, the decision-maker might sift them, attributing whatever weight or persuasive quality is thought appropriate. The weight to be afforded to the representations is a matter for the decision-maker. And the decisionmaker is not obliged "to make actual findings of fact as an adjudication of all material claims" made by a former visa holder.
[25] It is also well-established that the requisite level of engagement by the decision-maker with the representations must occur within the bounds of rationality and reasonableness. What is necessary to comply with the statutory requirement for a valid exercise of power will necessarily depend on the nature, form and content of the representations. The requisite level of engagement - the degree of effort needed by the decision-maker - will vary, among other things, according to the length, clarity and degree of relevance of the representations. The decision-maker is not required to consider claims that are not clearly articulated or which do not clearly arise on the materials before them.
[26] Labels like "active intellectual process" and "proper, genuine and realistic consideration" must be understood in their proper context. These formulas have the danger of creating "a kind of general warrant, invoking language of indefinite and subjective application, in which the procedural and substantive merits of any [decision-maker's] decision can be scrutinised".51 That is not the correct approach. As Mason J stated in Minister for Aboriginal Affairs v Peko-Wallsend Ltd, "[t]he limited role of a court reviewing the exercise of an administrative discretion must constantly be borne in mind". The court does not substitute its decision for that of an administrative decision-maker.
[footnote references omitted]
Applicant's claims for protection
- The applicant's claims can be summarised as follows. In his SHEV application and at the interview with the delegate on 9 August 2017 (the interview) he claimed:
- He is a Tamil Hindu who was born in Mullaitivu in the Northern Province of Sri Lanka.
- His parents remain in Sri Lanka but are living separately. He had a brother and a sister.
- His father operated a business with some of the applicant's uncles in the Vanni but was also forced to work for the LTTE. He worked as a border control agent from the 1990s until the ceasefire in 2002. He would report to the LTTE if the Sri Lankan Army (SLA) was encroaching on LTTE territory.
- Sometimes the LTTE would come to the house and tell the applicant's father to come and help with other tasks. This included digging bunkers and labouring jobs. His father was also trained in sending and receiving messages.
- After the ceasefire, his father moved to Colombo and ran a business with the applicant's uncles. The uncles were reasonably wealthy and could pay bribes to get released if they were arrested.
- The applicant stayed in the North with his mother. As a student, he would help with LTTE celebration days. He did not have to do this but did it because he wanted to.
- His problems started in 2008. His family was living in Karainagar in Jaffna, near a SLN base. Before they had come there, the SLN had issued passes to people living there but the applicant's family came later and did not get a pass.
- When the war started again, he came under suspicion because he did not have a SLN pass and his National Identity Card (NIC) showed that he was born in Mullaitivu. The authorities used to question him about this all the time and accuse him of being LTTE.
- On about 14 October 2008, in the evening, he was standing with some friends near the SLN base. Some SLN men asked them why they were so close to the base and said that they were not allowed to be there. The SLN beat the applicant, made him kneel down and take his shirt off and then blindfolded him with his shirt. He had to wait for senior officers to come.
- The senior officers asked him questions about who he was and why he was there. He pointed out his house and one of the officers said that he needed to come to the camp to sign in every day. The applicant said that he could not do that because he went to school and he was then told to sign in on Saturdays and Sundays. He was released after about six hours.
- The other boys had SLN permits but one of them, who was older, was also told to report every day.
- The first day that the applicant signed in, one of the officers went back to his house with him and searched it.
- In November or December 2008, he was standing outside his house with some friends. CID officers came and asked to see their NIC. When they saw that the applicant was from Mullaitivu they accused him of being LTTE.
- He became scared of the harassment and so in 2009 he went to Kurunegala in the North West Province. He had to get permission from the police to go there. About two months after he left, CID came to the house and asked his mother where he was. His mother told them that the applicant was working in Kurunegala and provided the address.
- About a month later, CID went to his employer in Kurunegala to confirm if the applicant was working there.
- The applicant was scared and called his uncle in Colombo. His uncle told him that he could not come to Colombo because the uncle was sheltering a number of other people but the applicant was scared and went to Colombo in August 2010. He stayed in hiding in Colombo, did not leave his uncle's house and did not register with the authorities. He worked in his uncle's wholesale business as a cashier and storekeeper.
- He sometimes went back to Karainagar to visit his family. In May 2011, he was questioned by the CID in Karainagar. He recognised one of the officers from the previous questioning in 2008.
- In May 2012, he returned to Karainagar for a religious festival. The police stopped him and accused him of speeding. The police asked for money but he did not have any so the police took his licence from him.
- He was scared of further harassment and so he left Sri Lanka and came to Australia.
- After he arrived in Australia, his mother received a letter saying that he had to pay a fine and go to court about the traffic offence. His mother knew someone who worked at the court and paid them a bribe so that they would get his licence back and resolve the matter.
- In Australia he had two Facebook accounts and used one to post comments and articles that were pro-Tamil/LTTE and critical of the Sri Lankan government. A person from Karainagar who is a member of the UNP saw the posts and obtained the applicant's telephone number. He told the delegate that this "political" account separate to his personal account. This person ("T") called the applicant and threatened to harm him if he did not stop making these posts. The applicant told his mother and she told him to shut down this account. He did so but still operates his personal Facebook account.
- He has attended pro-Tamil activities, protests, celebrations, Martyr's Days and other activities while he has been in Australia. He supports Tamil separatism.
- On 18 June 2016, his sister committed suicide in Sri Lanka. After the suicide, T began making hateful and vile comments about her on Facebook and the applicant thinks T may have been involved in some sort of sexual violence that led to the suicide.
- The applicant's brother was also claiming protection in Australia but he could not cope with the suicide of the sister or the distressing Facebook posts. The applicant's brother began drinking alcohol and in November 2016, he committed suicide.
- The applicant is suffering from depression, grief and loss. He has been prescribed medication and has been referred for counselling. If he goes back to Sri Lanka, everyone will question him about the suicides and he will not survive these questions. Everyone in the village looks at the family differently because of what happened.
- In a supplementary statement dated 15 May 2017 (the supplementary statement) provided prior to the interview he claimed:
- He had been afraid to admit the full extent of his father's activities when he prepared the statement in his SHEV application. He had been afraid to detail his own support of the LTTE in case the Australian government put him in immigration detention.
- His father was actually a member of the LTTE, specifically the "Ellai Paddai" unit. This was a territorial control unit of the LTTE.
- His father dug bunkers and distributed food. His father also monitored the area for any suspicious activities and reported these activities to senior LTTE members. This meant that his father knew where the LTTE stored food and supplies, where their military groups for stationed, and the names and identities of senior LTTE personnel. His father also had to visit battle sites.
- His father had to be available for service whenever required, sometimes for two or three days at a time. When he was not working with the LTTE, he ran a medium sized grocery shop. The applicant's mother looked after this shop whenever his father was with the LTTE.
- In about 2002, the LTTE called on his father more frequently. His father had to attend dangerous areas such as battle sites which were being targeted by the government and the applicant's mother was afraid that he would be caught in shelling. The applicant's father left the area secretly and went to work in Colombo with the applicant's uncle, who was also a supporter of the LTTE. The uncle was a financial supporter of the LTTE and was very rich. In 2008 and 2009, this uncle was arrested by the CID and was "extorted".
- When the 2002 ceasefire was brokered, his father returned and took the applicant's mother and siblings to Jaffna where they had a house. The applicant stayed in the Vanni for a few months with relatives to continue his school. He joined his family in Karainagar, Jaffna in about October 2002.
- There was an LTTE propaganda committee in Karainagar and this committee asked Tamil boys to come to events to show their support. The applicant had to go to families of people who had lost children fighting in the war and asked for photographs of the deceased. He carried these photographs at commemoration events. He used to help build and decorate stages, handout sweets and programs, and decorate the streets with LTTE banners and slogans.
- Shortly before he left Karainagar to go to Kurunegala, there was a third incident which he had not previously claimed. One evening, his sister was home alone when she noticed a group of six armed and uniformed SLN offices outside the house. Three of them came into the house and started to question her and she became afraid and called out. Some bus drivers came to find out what was happening and one who could speak Sinhalese heard that the SLN officers were asking where the applicant was. The bus driver told the officers that the applicant's sister did not know his whereabouts. After this incident, the applicant immediately made arrangements to leave.
- He left Karainagar to work in Kurunegala in 2009 and then went to Colombo in August 2010.
- In May 2011, he returned to Karainagar and showed his identity card to government officials at the checkpoint upon his arrival. About five days later he was approached by government officials, as he has explained in his earlier statement. This incident prompted him to flee back to Colombo.
- In May 2012, he returned to Karainagar for a religious festival. He was stopped by the police while riding his motorbike and accused of speeding and not wearing a helmet. He was told that he would have to pay a fine. He knew that he had not been speeding and so he returned to Colombo without paying the fine. Shortly after he left Sri Lanka, his mother received a notice stating that he had to present himself at court in 14 days. One of his cousins took the letter to the police station and the officers told the cousin that if he paid a bribe the situation would be resolved. The cousin paid the bribe and the applicant's licence was returned.
- Since coming to Australia he has made a number of posts on Facebook that are critical of the Sri Lankan government. He used an account separate to his personal account. He posted information about how Tamils are neglected by the government as well as photographs and videos showing atrocities committed by the government in the later stages of the war. He also posted photographs of himself attending Hero's Day celebrations in Australia on three occasions.
- On 18 June 2016, his sister committed suicide in Sri Lanka. Shortly after, he started to receive messages on Facebook accusing his sister of being an immoral woman. When he told his family they were traumatised. To be considered immoral in Sri Lanka is extremely shameful and because the posts had been public, many members of the family's community seen them.
- In September 2016, he started to receive threatening phone calls from T, a member of the UNP. T was born in Karainagar but now lives in Colombo and operates a shop opposite the one operated by the applicant's father and uncle. T accused the applicant of publishing adverse information on Facebook and warned him to consider his family still living in Sri Lanka. T also repeated the comments that had been posted about the applicant's sister and accused her of having relations with the applicant's uncle. The applicant has blocked this number and deactivated his political Facebook account.
- On 13 November 2016, his brother committed suicide in Australia. His brother had travelled to Australia shortly after the applicant but the applicant does not know why he chose to take his life.
The information referred to by the appellant corroborates that mental problems can carry some social stigma at a community level. However, the applicant has not provided any other evidence and the review material does not indicate that persons in the applicant's position have been subjected to harm by their local communities beyond this stigma. The submission that the appellant may react in a manner that could expose him to harm is speculative, and I take into account that if he does return to his village, he will be able to live in the family home with his mother and will not be living on his own within the community. If he returns to live with his father in Columbo, he will not be living within the community, in any event. While I accept that it will be distressing for the applicant if his community ignores him or avoids him, I do not consider this is conduct which arises to serious harm.
Overall, I am not satisfied that the applicant will face a real chance of harm arising from his mental health condition.
Apart from the reports from the mental health social worker noted above, there is no other medical or psychological evidence in the material. There is no information before me that the applicant received or continues to require any ongoing treatment, other than antidepressant medication. There is nothing in the information before me, including information provided by the applicant, that indicates that persons held in detention in Sri Lanka are denied access to medical treatment, including mental health treatment or medication. I am satisfied that the applicant does not face a real chance of harm on this basis if he was held in short detention.
Refugee: conclusion
- The applicant does not meet the requirements of the definition of refugee in s.5H(1). The applicant does not meet s.36(2)(a).
I have accepted that the applicant may be distressed and upset because of questions from his friends and community about the suicides in his family.
There is nothing in the review material which indicates that this distress or upset will include or lead to any conduct which would or could constitute significant harm as defined above. I am satisfied that the applicant does not face real risk of significant harm for this reason.
The limited role of a court reviewing the exercise of an administrative discretion must continually be borne in mind.
The court has no jurisdiction simply to cure administrative injustice or error. The merits of administrative action, to the extent that they can be distinguished from legality, are for the repository of the relevant power and subject to political control for the repository alone.
I certify that the preceding thirty-three (33) numbered paragraphs are a true copy of the Reasons for Judgment of the Honourable Justice Logan.
BWC18
Minister for Immigration, Citizenship, Migrant Services and Multicultural Affairs [2025] FCA 1586
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