Lead Opinion
ORDER
The panel’s opinion and dissent filed December 1, 2005 and appearing at
All pending Petitions for Panel Rehearing and for Rehearing En Banc are denied as moot.
OPINION
Xiaoguang Gu, a native and citizen of China, petitions for review of a decision of the Board of Immigration Appeals (“BIA”) affirming the Immigration Judge’s denial of Gu’s application for asylum.
We have jurisdiction pursuant to 8 U.S.C. § 1252. In view of our highly deferential review of the decisions of the Board of Immigration Appeals, we deny the petition.
I
Xiaoguang Gu entered the United States on May 9, 1998 on a business visa. His purported reason for entering the United States, and the reason American consular officials granted him a visa, was “to go on a business trip.” According to Gu, a friend completed Gu’s visa application and answered questions before American consular officials. Gu allowed his friend to fraudulently indicate that Gu wished to travel to the United States for a business purpose. Gu has since confessed that he actually never had any business to conduct in the United States, nor did he actually conduct any business in the United States. At his asylum hearing, Gu admitted that his true reason for coming to the United States was to more freely practice his religion. On March 23, 1999, only after overstaying his visa did Gu apply for asylum and reveal his true purpose for entering the United States.
Gu claims that he was persecuted by the Chinese government because he distributed Christian religious materials and attended an unofficial “house church” while living in China. At his asylum hearing, Gu testified that, in October 1997, he was arrested by Chinese authorities and detained at a police station for three days. He claimed that he was interrogated for two hours, asked where he obtained the
Gu testified that he was released after three days, upon signing a letter admitting that he had “done wrong.” Gu testified that he decided not to return to his home church because of fear of further police action, instead choosing to read his Bible at home. After his release, the police asked him to report to the police station once a week, but after four or five visits, the police lost interest and no longer required him to report. He was warned by his government employer that if he engaged in any additional illegal activities he would be fired, but he was allowed to return to his job as a manager for the government without any negative consequences. Gu suffered no additional problems from the government while in the country, and the Chinese government allowed him to obtain a passport to leave China.
Gu speculates that if he were to return to China, “the Chinese government will arrest me again.” He states that during a phone call home in March of 1999, a friend told him not to call his family any longer because “the public security people” came to his house to look for him. Gu believes that Chinese authorities looked for him because he had sent religious materials from the United States to China.
After the hearing, the Immigration Judge acknowledged that Gu “has had some difficulties practicing his religion,” but that he did “not believe the facts ... rise to the level of persecution as intended by the immigration laws.”
II
A
Our review of the BIA’s determination that an applicant has not established eligibility for asylum is highly deferential. We review the decision of the Board of Immigration Appeals for substantial evidence. INS v. Elias-Zacarias,
Because the BIA’s opinion denying Gu’s asylum petition attributed significant weight to the Immigration Judge’s findings, we “look to the IJ’s oral decision as a guide to what lay behind the BIA’s conclusion.” Avetova-Elisseva v. INS,
B
To prevail on his asylum claim, pursuant to the Immigration and Nationality Act (“Act”), Gu must establish that he is a refugee. A “refugee” is defined as an alien who is unable or unwilling to return to his home country “because of persecution or a well-founded fear of persecution on account of race, religion, nationality, membership in a particular social group, or political opinion.” 8 U.S.C. § 1101(a)(42)(A). Refugee status is available if the applicant demonstrates either past persecution or a well-founded fear of persecution. Cordon-Garcia v. INS,
A well-founded fear of future persecution must be both “subjectively genuine” and “objectively reasonable.” Nagoulko v. INS,
III
We turn to analyze whether Gu has established by compelling evidence either past persecution or a well-founded fear of persecution. We answer in the negative and conclude that the BIA’s decision to deny Gu’s asylum claim is supported by substantial evidence.
A
Persecution is an “extreme concept,” Ghaly v. INS,
We have recognized that, in some circumstances, detentions combined with physical attacks which occur on account of a protected ground can establish persecution. In Guo v. Ashcroft,
Less than two weeks later, Guo tried to stop a police officer from removing a cross
We arrived at a different conclusion in Prasad. Prasad was taken to a police station, placed in jail, where he was hit in the stomach and kicked from behind.
The crucial difference between Guo and Prasad is whether the asylum applicant was able to demonstrate that the evidence compelled the conclusion that the BIA decision was incorrect. In Guo, the petitioner was able to show repeated, lengthy and severe harassment. In contrast, the BIA’s finding in Prasad was supported by substantial evidence because Prasad was unable to show more than a single, isolated encounter with the authorities.
The abuse that Gu encountered most closely mirrors the circumstances discussed in Prasad. Like Prasad, Gu was detained and beaten on only one occasion, Gu’s interrogation lasted only two hours, Gu did not require medical treatment and Gu did not have any adverse employment consequences.
The record also does not demonstrate that Gu was objectively unable to attend his household church.
On these facts, we conclude that the evidence does not compel a result contrary to the BIA’s finding that Gu fails to demonstrate past persecution.
B
Since Gu failed to establish that the record compels the conclusion that Gu was subject to past persecution, we turn to consider whether Gu has independently established a well-founded fear of persecution. We conclude that the BIA’s determination that Gu did not establish a well-founded fear of persecution is supported by substantial evidence.
Gu’s primary support for his argument that he has established a well-founded fear of persecution is his speculation that if he returns to China, the authorities will arrest him again. As evidence supporting this theory, Gu testified that after he returned to the United States, “the local police went to [his] home and asked [his] wife to ask [him] to go back to be questioned.” Apparently, Gu learned of this incident because a friend “told [him] not to eall[his] family anymore because the security people came to [his] house to look for [him].” Gu testified that he believed that the “security people” would come to look for him because he sent religious material from the United States to some of his friends and fellow church members in China, although it does not appear that Gu was informed directly by either his friends or family members why the authorities came to his former residence in China.
As a general rule, because the Immigration Judge did not render an adverse credibility finding, we must accept Gu’s factual testimony as true. Kataria,
The general principle requiring the factfinder and a court of appeals to accept a petitioner’s factual contentions as true in the absence of an adverse credibility finding does not prevent us from considering the relative probative value of hearsay and non-hearsay testimony. We hold that where an asylum applicant’s testimony consists of hearsay evidence, the statements by the out-of-court declarant may be accorded less weight by the trier of fact when weighed against non-hearsay evidence. See id.
Pursuant to this principle, we do not question the veracity of Gu’s understanding that his friend told him that members of China’s public security team came to question him. By the same token, we hold that the out-of-court hearsay statement of Gu’s friend is less “persuasive” or “specific,” Cardoza-Fonseca v. INS,
Even if we were to give full weight to the evidence that the authorities looked for Gu at his former home in China, Gu did not testify that the authorities either threatened him or his family in any way. The authorities simply came to interview him. Other than this visit by the authorities to interview Gu, the record is devoid of any evidence that the Chinese authorities have shown any interest or concern in Gu’s activities since shortly after his brief detention in 1997.
Gu’s testimony may be sufficient to satisfy the subjective component required to establish a well-founded fear of persecution. Gu has failed, however, to present compelling, objective evidence demonstrating a well-founded fear of persecution.
IV
A reasonable factfinder would not be compelled to conclude that Gu either suffered past persecution or has a well-founded fear of persecution.
REVIEW is DENIED.
Notes
. The Immigration Judge also denied Gu’s request for withholding of removal and protection under the Convention Against Torture. Gu did not appeal the denial of these claims to the BIA, and they are not before us.
. The Immigration Judge erroneously stated in his decision that Gu continued to attend his house church, which is at odds with Gu's testimony to the contrary. This isolated error of the Immigration Judge proves to be of little significance, however, because we are required to look at the “record considered as a whole” in assessing whether a petitioner established eligibility for asylum. Elias-Zacarias,
Dissenting Opinion
dissenting.
I believe that the record compels us to find that Gu has established past persecution on account of his Christian religious practices and is eligible for asylum under 8 U.S.C. § 1101(a)(42)(A). Accordingly, I dissent.
I. Factual Background
Gu testified that Chinese authorities persecuted him for expressing his Christian religious beliefs by attending an unregistered Christian church and by distributing Christian religious materials. According to his testimony, Gu first became interested in Christianity in October 1996, after his older sister, who resided in the United States, spoke to him about her conversion. A month later, Gu’s sister began sending religious materials to him in China. She sent him additional materials in January 1997 and February 1997.
As his interest in Christianity developed, Gu began attending a government-controlled Christian church in January 1997 and was baptized there on March 16, 1997. Gu became disenchanted with the government-controlled church because it presented political opinions and did not adhere to the Christian gospel. Gu then began to attend a small unregistered Christian church that held services in a member’s house. Gu attended services at this house church once a week and distributed copies of his sister’s Christian religious materials to his fellow church members. He also distributed these materials to his co-workers at his government job.
In October 1997, Gu was arrested by public security officers and taken to the Shen Yang City Police Branch. At the police station, Gu was placed in a small interrogation room. On its walls, whips and other “things police use” were displayed. The officers interrogated Gu for
Gu was imprisoned for three days. He was conditionally released after his family posted bail. As a condition of release, Gu was required to report to the local police once a week for questioning regarding his religious activities.
After he was released from prison, Gu stopped attending his house church and ceased distributing religious materials because he feared that he would be arrested, detained, and beaten. He felt that the only way he could safely practice his religion was to read his Bible alone at home. During Gu’s weekly visits to the local public security police, he was questioned on whether he had distributed Christian religious materials or knew anyone who had. Gu made three such visits before the police told him that he no longer needed to comply with this condition of his release. Gu also returned to his government work unit, where he was put on probation and threatened with termination if he again committed similar acts.
With the help of a friend, Le Hai Hu, Gu fled to the United States on May 9, 1998. Safe in the United States, Gu began attending Christian religious services once a week. Twice he sent religious materials back to China. In March 1999, a friend living in China warned Gu to stop telephoning his family because public security officers — apparently believing Gu had returned from the United States — had visited the Gu family’s home seeking to question him about the religious materials he sent to China from the United States. This warning, coupled with his earlier experiences, served as the basis for Gu’s fear that he would be arrested and harshly treated by Chinese public security officers if he were forced to return to China.
After a hearing, the IJ concluded that Gu failed to establish that he was eligible for asylum. The IJ found that after his initial arrest Gu did not experience any adverse consequences at his job. Furthermore, the IJ found that Gu continued to attend his house church, receive religious materials from his sister, and practice Christianity. As discussed below, these findings are contradicted by the record. The IJ also found it important that Gu was able to obtain a passport to travel to the United States without difficulties from the Chinese government. Ultimately, the IJ concluded that the abuse Gu endured did not rise to the level of persecution. Thus, the IJ denied Gu’s request for asylum, withholding of removal, and protection under the Convention Against Torture.
II. Treatment of Hearsay in Asylum Proceedings
I first discuss what I believe to be the most disturbing aspect of the majority’s holding — its treatment of hearsay in asylum proceedings. Gu testified that Chinese security officials — believing that Gu had returned from the United States— visited Gu’s family’s home in China on at least one occasion since his departure. On that occasion, they were looking for Gu to question him about religious materials he sent to China from the United States. Gu received this information during a telephone conversation with a friend living in China. The majority’s sole reason for according Gu’s friend’s statement less evi-dentiary weight is that as hearsay, it is necessarily “less ‘persuasive’ or ‘specific’ than a first hand account of the incident would have been.” Maj. Op. at 1021 (citation omitted).
I am troubled by the majority’s improper treatment of this testimony. By according Gu’s friend’s statement less evi-dentiary weight simply because it is hearsay, the majority contravenes the well-established law of this circuit and usurps the role of the fact finder in immigration proceedings.
It is well-settled that hearsay testimony is admissible in immigration proceedings unless its use is fundamentally unfair to the alien. See Cordon-Garcia v. INS,
Once hearsay testimony is admitted, it may be considered and relied on by the finder of fact, even if it is contradicted by direct evidence. See Richardson v. Perales,
In this case, Gu’s testimony must be taken as true. The IJ admitted Gu’s testimony into evidence. We regard testimony as reliable and credible where neither the IJ nor the BIA makes an adverse credibility finding, as was the case here. See Smolniakova v. Gonzales,
The fact that a particular piece of evidence is hearsay has never before played a role in this court’s review of BIA decisions. See, e.g., Ge v. Ashcroft,
Furthermore, “this court recognizes the serious difficulty with which asylum applicants are faced in their attempts to prove persecution, and has adjusted the eviden-tiary requirements accordingly.” Ladha v. INS,
The majority faults Gu for failing to provide a “first hand account” of the incident. Maj. Op. at 1021. But direct evidence that the security officials had been looking for Gu would not be “easily available” to Gu. See Guo v. Ashcroft,
The majority fails to explain why Gu’s friend’s hearsay statement, admitted into evidence, was unreliable or implausible. Moreover, the majority points to no evidence in the record that contradicts Gu’s testimony. And neither the IJ nor the BIA questioned Gu’s credibility or inquired about the whereabouts of Gu’s friend, who was likely still in China.
The majority’s view that reviewing appellate courts may independently devalue hearsay evidence relative to non-hearsay evidence contravenes this circuit’s well-established rule regarding the treatment of hearsay in administrative proceedings. The majority also ignores the well-recognized difficulty that asylum applicants face when seeking to prove their cases. The majority expresses this view of hearsay testimony admitted into evidence without citation to any relevant legal authority, including Ninth Circuit or Supreme Court law.
I further note that neither in their briefs nor at oral argument did either party discuss hearsay testimony. Neither the IJ nor the BIA purported to give hearsay testimony less than full weight. In addition, as the majority indicates, its discussion of hearsay testimony is extraneous to its holding. Maj. Op. at 1022 (noting that “[e]ven if we were to give full weight to the evidence that the authorities looked for Gu at his former home in China,” the record does not “present compelling, objective evidence demonstrating a well-founded fear of persecution”) (emphasis added). Thus the majority implicitly acknowledges that its assertion that “where an asylum applicant’s testimony consists of hearsay evidence, the statements by the out-of-court declarant may be accorded less weight by the trier of fact when weighted against non-hearsay evidence,” is dicta.
III. Substantial Evidence and Erroneous Findings by the IJ
I disagree with the majority’s conclusion that the BIA’s decision is supported by substantial evidence. We must uphold the BIA’s determination that an alien is not eligible for asylum only if it is “supported by reasonable, substantial, and probative evidence on the record considered as a whole.” INS v. Elias-Zacarias,
The majority opinion correctly notes that in determining eligibility for asylum, we should look at the “record considered as a whole.” Id. at 481,
Contrary to the IJ’s oral decision, Gu did not “concede[] that he continued to attend his unregistered church ... without prohibition, without interruption or inter
In addition, in his oral decision, the IJ stated that Gu testified that after his arrest he continued to receive religious tracts from his sister without problems from the Chinese government. This finding is directly at odds with the testimony of both Gu and his sister that she sent him religious materials in November 1996, and in January and February 1997. Based on this testimony, the last time Gu’s sister sent him any religious materials was eight months before he was arrested and beaten by the Chinese public security police.
Finally, the IJ found it important that Gu was able to return to his government job and was not terminated after he was released from prison. This finding, however, is undercut by Gu’s testimony that after he returned to that job, he was placed on probation and threatened with termination if he again engaged in such religious activities.
These erroneous factual findings are compounded by the IJ’s conclusion that the public security police approved of Gu’s religious activities because he was told that he no longer needed to report to the police after three weekly meetings with them. This conclusion misunderstands the reason for Gu’s weekly reports, which was to confirm that Gu was complying with the police demand that he no longer participate in any illegal religious activities. And, as Gu testified, this is what he did: after his release from detention he stopped attending his Christian house church and stopped distributing religious materials. It is apparent, then, that the security police lost interest in Gu because he was no longer participating in the prohibited activities, as required by his “confession.”
Similarly, the record contradicts the BIA’s (and majority’s) conclusion that Gu suffered no further problems with the government after his arrest. That the government did not continue to harass Gu after he ceased participating in the prohibited religious activities only demonstrates the success of the government’s repression of Gu’s Christian religious activities. The government did not try to stop Gu from attending his house church because Gu
Because Gu ceased attending his house church and distributing religious materials, we cannot know whether the government would have interfered or stopped him had he continued to do so. What we do know is that when Gu was attending church and distributing religious materials he was arrested, beaten, and detained for three days. After he ceased his Christian religious activities he was not subjected to further punishment. Mere speculation that Gu would have suffered no repercussions had he continued to pursue his Christian religious activities is not substantial evidence. See Maini v. INS,
When the IJ’s erroneous factual findings are set aside, there remain only the IJ’s findings that Gu (1) was permitted to return to his government job — where he was put on probation and threatened with termination if he engaged in Christian religious activities again — and (2) was able to obtain a Chinese passport. Such meager findings do not constitute substantial evidence and are insufficient to support the BIA’s conclusion that Gu would suffer no further problems with the government if forced to return to China.
IV. Persecution
Because I believe that the denial of Gu’s asylum claim is not supported by substantial evidence, the next step is to consider whether a reasonable fact finder would be compelled to conclude, based on the evidence in the record, that Gu has a well-founded fear of persecution. See Elias-Zacarias,
A. Past Persecution
The majority contends that the suffering endured by Gu is more closely aligned with that of the petitioner in Prasad v. INS,
Prasad was detained for four to six hours. During that time, he was hit and kicked. Like Prasad, Gu was also arrested and beaten. However, that is where the similarities end. Prasad was hit and kicked; Gu was beaten with a rod multiple times. Prasad was detained for a few hours; Gu was detained for a substantially longer time — three days. Prasad was questioned but not threatened explicitly; Gu was interrogated about his Christian religious activities in a room where instruments of torture were displayed. Other than the arrest and beating, there were no further allegations of governmental mistreatment by Prasad.
Additionally, the majority incorrectly states that Gu did not suffer any adverse employment consequences. Gu’s testimony established that after he returned to his government job, he was punished with threats of termination if he ever engaged in his Christian religious activities again. Finally, even though Gu was released from prison, his release was conditioned on his signing a “confession” promising not to engage in illegal Christian religious activities and reporting weekly to the security police.
The majority believes that Gu’s testimony is somehow conflicting and cites this as support for denying his petition for review. As the basis for this conclusion, the majority points to Gu’s testimony (1) that he “did not dare” attend his house church, but (2) that he was not prevented by authorities from attending the house church. Contrary to the majority’s reading, this testimony does not conflict. Rather, it is entirely consistent that Gu was never physically prevented from attending his house church precisely because he “did not dare” attend it. The cumulative effects of the detention, beating, threats, and coerced confession enabled the Chinese government to successfully dissuade Gu from practicing his religion. When he returned to his government job, he was put on probation and threatened with termination if he participated in any more Christian activities not authorized by the state. The majority would penalize Gu for his reasonable belief that those threats, delivered after days of detention and a beating, were genuine. What the testimony in fact established is that the government’s actions deterred him from attending the house church; its persecution of him was successful. No further action was necessary.
Accordingly, I believe that Gu’s credible testimony establishes that he suffered past persecution on account of his Christian religious practices. See Nagoulko,
B. Objectively Reasonable Fear of Future Persecution
I disagree with the majority’s conclusion that Gu does not have an objectively reasonable fear of future persecution. As I discussed above, because neither the BIA nor the IJ made an adverse credibility finding, we are required to accept Gu’s testimony as true, including the hearsay statement of Gu’s friend. See Smolniakova,
In conclusion, I believe that Gu has established that his fear of future persecution on account of his Christian religion is “subjectively genuine” and “objectively reasonable.” See Nagoulko,
For the foregoing reasons, I dissent.
. At the hearing before the Immigration Judge ("IJ”), government counsel asked Gu, "Were there any conditions on your release?” Gu responded, “They asked me to report to [the] local police station on a weekly basis.” The majority adheres to the literal translation of Gu's words when it says that the police "asked him to report to the police station once a week.” Maj. Op. at 1018. Reading the statement in context, however, Gu was not simply asked to report to the police station. Reporting to the police station was a condition of his release; Gu was required to report to the police station.
. The majority downplays the IJ’s blatant error by stating that the BIA "neither explicitly adopted this portion of the IJ's decision nor mentioned this reason as a factor in support of its denial of Gu’s petition.” Maj. Op. at 1020 n. 2. Under the law of this circuit, when the BIA incorporates the IJ’s decision as its own, we treat the IJ's reasons as the BIA’s. See He v. Ashcroft,
The record supports the Immigration Judge's conclusion that the respondent failed to demonstrate eligibility for asylum. Among the other issues cited in the Immigration Judge's decision, the respondent testified that he did not experience further problems, was able to return to his government job, and obtained a valid passport to leave China.
(emphasis added) (citation omitted). Thus, because the BIA did, in fact, explicitly incorporate the IJ’s reasons as its own, we must also review the IJ's oral decision for substantial evidence. See He,
. The government argues and the majority agrees that denial of asylum is appropriate because Gu "at most” "only” suffered three days of detention and a beating with rods that left no scars or permanent injuries. This argument suggests that a similar claim from a frailer petitioner would succeed. The government has pointed to no authority supporting the proposition that the strength of a petitioner’s application should be dependent upon his or her body’s ability to withstand a severe beating. See Mihalev v. Ashcroft,
