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K.O., Petitioner, v. GARLAND (2021)

United States Court of Appeals, Second Circuit.2021-05-21No. 18-1083-ag

Summary

Holding. The petition for review is granted, the Board of Immigration Appeals' decision is vacated, and the case is remanded for new proceedings before the Immigration Judge consistent with applicable legal standards regarding competency determinations and credibility assessments.

K.O., a Nigerian citizen, challenged the denial of his asylum, withholding of removal, and Convention Against Torture protection claims. The Immigration Judge and Board of Immigration Appeals found K.O. not credible and denied relief. K.O. raised three main issues: whether he was competent to participate in his hearing given his documented mental health conditions, whether his asylum application was timely filed, and whether the adverse credibility findings were supported by substantial evidence.

The court found that the Immigration Judge failed to comply with required procedures when indicia of incompetency were present. Although K.O. had diagnoses of post-traumatic stress disorder, anxiety, and depression, and was taking medication while in custody, the judge did not make an explicit competency finding or adequately inquire into the nature and scope of his mental illness. The general question asked at the hearing's conclusion did not satisfy the legal standard for assessing competency under binding precedent.

Regarding credibility, the court identified multiple errors. The judge relied on a factual finding—that K.O. used a cousin's name at a consulate—that was contradicted by the actual record. The judge also failed to consider K.O.'s mental health conditions and past trauma when evaluating his credibility based on police interactions, and ignored a supplemental affidavit from K.O.'s mother that contained firsthand knowledge of relevant events. The court concluded that the adverse credibility determination was not supported by substantial evidence and that remand was warranted.

Summary generated by law.co from the public-domain opinion. The opinion text itself is public domain.

Key issues

  • Whether the Immigration Judge must make an explicit competency determination when a respondent has documented mental illness
  • Whether the Immigration Judge adequately inquired into a respondent's mental health history before determining removability
  • Whether credibility findings were supported by substantial evidence when based on mischaracterized documents and without considering mental illness and past trauma
  • Whether an affidavit from a witness with firsthand knowledge must be considered on remand

Procedural posture

The Court of Appeals reviewed the Board of Immigration Appeals' affirmance of the Immigration Judge's denial of asylum and related relief.

Authorities cited

No cited authorities resolved to law.co cases yet.

Opinion

SUMMARY ORDER

Petitioner K.O., a citizen of Nigeria, seeks review of an April 6, 2018 decision of the BIA affirming an October 20, 2017 decision of an Immigration Judge (IJ), which denied K.O.’s application for asylum, withholding of removal, and protection under the Convention Against Torture (CAT). In re K.O., No. A 209 449 517 (B.I.A. Apr. 6, 2018), affg No. A 209 449 517 (Immig. Ct. Batavia Oct. 20, 2017). We assume the parties’ familiarity with the underlying facts and procedural history, to which we refer only as necessary to explain our decision to grant K.O.’s petition.

We review the IJs decision as modified by the BIA. See Xue Hong Yang v. U.S. Dept of Justice, 426 F.3d 520, 522 (2d Cir. 2005). The standards of review are well established. See 8 U.S.C. § 1252(b)(4); Yanqin Weng v. Holder, 562 F.3d 510, 513 (2d Cir. 2009). K.O. principally asks us to review issues relating to his competency during his hearing before the IJ, the timeliness of his asylum application, and the IJs adverse credibility and corroboration determinations.

1. Competency and Timeliness

“Although [non-citizens] in immigration proceedings are presumed to be competent, when indicia of incompetency are present, an Immigration Judge must make a competency determination.” Matter of J-S-S-, 26 I. & N. Dec. 679, 681 (B.I.A. 2015). Indicia of incompetency can include “the inability to understand and respond to questions, the inability to stay on topic, or a high level of distraction,” as well as “evidence of mental illness.” Matter of M-A-M-, 25 I. & N. Dec. 474, 479 (B.I.A. 2011). When any of these indicia are present, the IJ must “assess” the non-citizens “competency, make a finding regarding his competency, apply safeguards as warranted, and articulate her reasoning.” Id. at 484.

The record evidence in this case shows that K.O. had been diagnosed with post-traumatic stress disorder (PTSD), anxiety, and depression, and was prescribed medication for PTSD while in immigration custody. Certified Administrative Record (CAR) 521–25; Appx 169. K.O. urged that the IJ consider his history of mental illness before deciding the issue of removability. The IJ responded by asking K.O. several questions regarding his ability to understand the nature of the proceedings, his right to present evidence, and his right to counsel. CAR 479–82. As the Government does not dispute, under these circumstances, the BIAs own precedent, Matter of M-A-M-, compelled the IJ to make a finding about K.O.’s competency. See Oral Arg. at 15:50–15:57, 20:23–20:42. But the IJ failed to do so.

The IJs lack of any competency finding was compounded by her failure to properly understand, and make a sufficient inquiry regarding, the scope of K.O.’s history of mental illness. For example, the IJ stated at the hearing that she did not see in the record any diagnosis in the United States of K.O.’s PTSD, even though (as the Government concedes) medical records from Immigration and Customs Enforcement (ICE) explicitly reflect an “[a]ssessment[ ]” of “[p]osttraumatic stress disorder, chronic” and indicate that K.O. was taking medication for PTSD. Appx 149. Perhaps due to this misapprehension regarding the available documentation of K.O.’s mental illness, the IJ made no inquiry about the nature and scope of that illness (or the prescribed medication) other than to generally ask, “Sir, with respect to your psychological issues, have you understood everything today?” to which K.O. responded, “Yes, maam.” CAR 479. That general question, at the conclusion of the hearing, does not comply with the inquiry necessary under the BIAs own precedent to adequately explore the competency issue in this type of circumstance in order to make an informed competency determination. Matter of M-A-M-, 25 I. & N. Dec. at 483–84. Nor is the inquiry a substitute for making a finding about competency.

We therefore remand to the agency for a new hearing consistent with Matter of M-A-M-. We decline to address the issue of whether the asylum claim was untimely. On remand, however, K.O. may raise the issue of his PTSD diagnosis and the effect of that diagnosis on his ability to timely file his application before the IJ.

2. Credibility and Corroboration

We next review the agencys credibility and corroboration determinations for substantial evidence. See 8 U.S.C. § 1252(b)(4)(B); Hong Fei Gao v. Sessions, 891 F.3d 67, 76 (2d Cir. 2018) (credibility); Chuilu Liu v. Holder, 575 F.3d 193, 196 (2d Cir. 2009) (corroboration). In finding K.O. not credible, the IJ made several errors.

First, there is nothing in the record to support the IJs finding that K.O. used his cousins name at the consulate in Nigeria. Instead, as the Government does not dispute, the relevant document on which the IJ relied indicates that K.O. applied for a visa in Nigeria using his own identity. Appellees Br. 45; CAR 493–94. Second, in assessing K.O.’s credibility based on his past interactions with police officers, the IJ failed to consider K.O.’s allegations of past harm and mental illness. See Ming Shi Xue v. BIA, 439 F.3d 111, 123–25 (2d Cir. 2006). Third, the IJ failed to consider whether the summary of K.O.’s interview with the ICE officer was reliable in light of K.O.’s expressed fear of correctional officials based on his experience with Nigerian military officials. See Ming Zhang v. Holder, 585 F.3d 715, 723–25 (2d Cir. 2009).

The Government argues that an IJ may consider ancillary issues, such as the implausibility that correctional officers would falsely accuse K.O. of assault after he refused a strip search. Appellees Br. 42, 46. That may be so, but that finding alone is not substantial evidence for the adverse credibility determination. See Xiu Xia Lin v. Mukasey, 534 F.3d 162, 164, 167 (2d Cir. 2008) (requiring agency to consider “totality of the circumstances”). Absent the initial findings that called into question K.O.’s credibility, the absence of corroboration cannot be a basis for the adverse credibility determination. See Chuilu Liu, 575 F.3d at 198 n.5 (“[A] failure to corroborate cannot, without more, support an adverse credibility determination.”).

The agency also erred in ignoring a supplemental affidavit from K.O.’s mother, which described K.O.’s PTSD and the conduct of the Nigerian military officers who questioned her about K.O.’s whereabouts in September 2016. See Appx 2–3, 178. The Government does not dispute that the BIA ignored the affidavit but instead contends that “remand is not warranted because it would be futile.” Appellees Br. 52. We disagree. As the Government concedes, remand is warranted when there is a likelihood that the agency might have reached a different result. Id. at 53; see also Gurung v. Barr, 929 F.3d 56, 62 (2d Cir. 2019). The BIA acknowledged that K.O. submitted another supplemental affidavit from an uncle in the United States, but concluded that “[r]emand is not warranted for consideration of this evidence, as the respondents uncle does not claim to have first-hand knowledge of the respondents experiences in Nigeria and the evidence ․ is unlikely to change the result in this case.” Appx 2 n.1. The BIA had no similar reason that we can discern to ignore or reject the affidavit from K.O.’s mother, who claimed to have first-hand knowledge of K.O.’s experiences in Nigeria. See Appx 178–79. The BIAs failure to acknowledge the mothers affidavit warrants remand. See Tian-Yong Chen v. INS, 359 F.3d 121, 129 (2d Cir. 2004).

We have considered the Governments remaining arguments and conclude that they are without merit. For the foregoing reasons, the petition for review is GRANTED, the BIAs decision is VACATED, and the case is REMANDED for proceedings consistent with this order. All pending motions and applications are DENIED and stays VACATED.