Nbgm v Minister for Immigration and Multicultural Affairs and Another

[2006] HCA 54
(2006) 81 ALJR 337
(2006) 231 ALR 380
(2006) 93 ALD 43
(2006) 231 CLR 52

Nbgm
vMinister for Immigration and Multicultural Affairs and Another

Court:
High Court of Australia

Judges: Gummow ACJ
Kirby J
Callinan J
Heydon J
Crennan J

Legislative References:
Migration Act 1958 (Cth) - s 36(3); s 91X
Border Protection Legislation Amendment Act 1999 (Cth) - The Act
Judiciary Act 1903 (Cth) - The Act
Migration Act 1958 (Cth) - The Act

Hearing date: 9 June 2006
Judgment date: 15 November 2006

Sydney

Orders

(1) Special leave to appeal from the whole of the judgment and orders of the Full Court of the Federal Court of Australia given on 12 May 2006 be granted.

(2) The appeal be treated as having been instituted and heard instanter and be dismissed with costs.

G C Lindsay SC and L J Karp instructed by the Legal Aid Commission of New South Wales for the applicant.

S J Gageler SC and S B Lloyd instructed by Sparke Helmore for the first respondent.

Submitting appearance for the second respondent..

[1]
(2006) 231 ALR 340 ; [2006] HCA 53 ( QAAH ).

[2]
Schedule 1, Pt 6, Item 65.

[3]
(2004) 219 CLR 664 at 669 [9], 672-3 [19]-[20] ; 208 ALR 201 at 204, 206-7 ; 79 ALD 310 at 313, 315 ; [2004] HCA 38 .

[4]
NBGM v Minister for Immigration and Multicultural and Indigenous Affairs (2006) 150 FCR 522 ; 228 ALR 623 ; 90 ALD 493 ; [2006] FCAFC 60 ( NBGM ).

[5]
(2005) 145 FCR 363 ; 223 ALR 494 ; [2005] FCAFC 136 ( QAAH (FCAFC)) (Wilcox and Madgwick JJ; Lander J dissenting). Two other appeals were heard by the Full Court of the Federal Court and were stood over pending the determination of the appeal in these proceedings. See NBGM at FCR 561 [153]; ALR 658-9;ALD 528-9.

[6]
Black CJ, Mansfield and Stone JJ; Marshall and Allsop JJ dissenting.

[7]
The name of the applicant is anonymised in accordance with s 91X of the Migration Act 1958 (Cth) (the Act).

[8]
(2003) 211 CLR 476 at 492 [28]-[29] ; 195 ALR 24 at 34 ; 72 ALD 1 at 11 ; [2003] HCA 2 . See also Shipping Corp of India Ltd v Gamlen Chemical Co (A'sia) Pty Ltd (1980) 147 CLR 142 at 159 ; 32 ALR 609 at 618; Coleman v Power (2004) 220 CLR 1 at 27-30 [17]-[24], 91-3 [240]-[242] ; 209 ALR 182 at 189-91, 241-2 ; [2004] HCA 39 ; NAGV and NAGW of 2002 v Minister for Immigration and Multicultural and Indigenous Affairs (2005) 222 CLR 161 at 189 [89] ; 213 ALR 668 at 687-8 ; [2005] HCA 6 ( NAGV ).

[9]
(1992) 176 CLR 1 at 38 ; 110 ALR 97 at 123 per Brennan, Deane and Dawson JJ.

[10]
(1995) 183 CLR 273 ; 128 ALR 353 ; 39 ALD 206 ; [1995] HCA 20 ( Teoh ).

[11]
Teoh at CLR 287; ALR 362;ALD 214 per Mason CJ and Deane J:
... [T]he fact that the Convention has not been incorporated into Australian law does not mean that its ratification holds no significance for Australian law. Where a statute or subordinate legislation is ambiguous, the courts should favour that construction which accords with Australia's obligations under a treaty or international convention to which Australia is a party ... That is because Parliament, prima facie, intends to give effect to Australia's obligations under international law.

[12]
Convention relating to the Status of Refugees, opened for signature 28 July 1951 , 189 UNTS 150 ; 1954 ATS 5 (entered into force 22 April 1954 ), read with the Protocol relating to the Status of Refugees, opened for signature 31 January 1967 , 606 UNTS 267 ; 1973 ATS 37 (entered into force 4 October 1967 ).

[13]
Applicant A v Minister for Immigration and Ethnic Affairs (1997) 190 CLR 225 at 230-1 ; 142 ALR 331 at 332 ; [1997] HCA 4 ( Applicant A ); cf Koowarta v Bjelke-Petersen (1982) 153 CLR 168 at 265 ; 39 ALR 417 at 492 per Brennan J.

[14]
To do so, as Allsop J did in the court below, fully conforms to the orthodox approach proposed in the joint reasons at [6], that is, first ascertaining the relevant Australian law; and then construing so much of the convention as Australian law requires.

[15]
Opened for signature 23 May 1969 , 1155 UNTS 331 (entered into force 27 January 1980 ), Art 32. See Applicant A at CLR 231; ALR 333 per Brennan CJ, CLR 240; ALR 339 per Dawson J, CLR 252; ALR 349 per McHugh J, CLR 277; ALR 369 per Gummow J and CLR 294; ALR 383 of my own reasons. See also Morrison v Peacock (2002) 210 CLR 274 at 279 [16] ; 192 ALR 173 at 176 ; 69 ALD 545 at 548 ; [2002] HCA 44 ; Minister for Immigration v Khawar (2002) 210 CLR 1 at 16 [45] ; 187 ALR 574 at 584 ; 67 ALD 577 at 587 ; [2002] HCA 14 ( Khawar ).

[16]
(1997) 190 CLR 225 ; 142 ALR 331 ; [1997] HCA 4 .

[17]
Applicant A at CLR 277; ALR 370.

[18]
Applicant A at CLR 277, fn 189; ALR 370, fn 161.

[19]
But contrast Minister for Immigration and Multicultural and Indiginous Affairs v QAAH of 2004 (2006) 231 ALR 340 at 348-50 [34] ; [2006] HCA 53 ( QAAH HCA) per Gummow ACJ, Callinan, Heydon and Crennan JJ.

[20]
(1990) 171 CLR 338 at 348-50, 356-7 ; 94 ALR 647 at 652-4, 658-9.

[21]
Applicant A at CLR 251-6; ALR 349-52.

[22]
Cf Minister for Immigration and Multicultural and Indigenous Affairs v B (2004) 219 CLR 365 at 414 [136] ; 206 ALR 130 at 164 ; 77 ALD 640 at 674 ; [2004] HCA 20 .

[23]
T v Secretary of State for the Home Department [1996] AC 742 ; [1996] 2 All ER 865 ; R (Hoxha) v Special Adjudicator [2005] 1 WLR 1063 ; [2005] 4 All ER 580 ( Hoxha ). The same principle is applied throughout the Commonwealth of Nations. For example, the position in India is explained in Vellore Citizens Welfare Forum v Union of India AIR 1996 SC 2715 at 2720, 2722; 1996 (5) SCC 647; Peoples' Union for Civil Liberties v Union of India AIR 2005 FC 2419 at 2426; cf G P Singh, Principles of Statutory Interpretation , 10th ed, Wadhwa & Co, Nagpur, 1996, pp 584-7; cf R v Chief Immigration Officer ; Ex parte Bibi [1976] 1 WLR 979 at 984.

[24]
See, for example, Khawar at CLR 15-16 [42]-[43], 37 [111]; ALR 583-4,601; ALD 586-7,603-4.

[25]
Joint reasons at [56]-[65], referring to NBGM at FCR 564 [165]; ALR 662;ALD 532 per Allsop J.

[26]
Joint reasons at [60].

[27]
Joint reasons at [69].

[28]
Joint reasons at [38].

[29]
NBGM at FCR 543 [78]; ALR 641;ALD 511.

[30]
NBGM at FCR 543 [78]; ALR 641;ALD 511.

[31]
NBGM at FCR 543 [79]; ALR 641;ALD 511.

[32]
NBGM v Minister for Immigration and Multicultural and Indigenous Affairs (2004) 84 ALD 40 ; [2004] FCA 1373 . In the Full Court, Allsop J noted that the primary judge did not have access to this court's decision in NAGV or the decision of the House of Lords in Hoxha .

[33]
(2006) 150 FCR 522 ; 228 ALR 623 ; 90 ALD 493 ; [2006] FCAFC 60 .

[34]
Joint reasons at [44]-[48].

[35]
QAAH (HCA) at 344 [14] per Kirby J.

[36]
QAAH (HCA) at 353 [50].

[37]
Wilcox and Madgwick JJ. See QAAH (FCAFC) at FCR 386 [88]; ALR 516.

[38]
NBGM at FCR 562 [156]; ALR 660;ALD 530 per Allsop J, FCR 530 [26]; ALR 629;ALD 499 per Marshall J agreeing.

[39]
NBGM at FCR 526 [2]; ALR 624;ALD 494.

[40]
QAAH (HCA) at 357-9 [65]-[72].

[41]
Such as Hoxha .

[42]
NBGM at FCR 575 [215]; ALR 673;ALD 543.

[43]
NBGM at FCR 575 [215]; ALR 673;ALD 543.

[44]
NBGM at FCR 576 [216]; ALR 673-4;ALD 543-4.

[45]
NBGM at FCR 577 [220]; ALR 675;ALD 545.

[46]
QAAH (FCAFC) at FCR 376 [41]; ALR 505-6 per Wilcox J, FCR 392 [110]; ALR 521 per Madgwick J.

[47]
QAAH (HCA) at 369-72 [110]-[122].

[48]
As incorporated by s 36(2) of the Act. See NAGV at CLR 176 [42]; ALR 677, where "the adjectival phrase" in the subsection "to whom Australia has protection obligations under [the convention]" was held to describe "no more than a person who is a refugee within the meaning of Art 1 of the Convention". The inter-position of the opinion of the minister cannot inject subjective or personal factors without restoring the discredited doctrine of the majority in Liversidge v Anderson [1942] AC 206 . On this, see George v Rockett (1990) 170 CLR 104 at 112 ; 93 ALR 483 at 488 and Inland Revenue Commissioners v Rossminster Ltd [1980] AC 952 at 1011.

[49]
See QAAH (HCA) at 369-72 [110]-[122] per Kirby J.

[50]
(2006) 231 ALR 340 ; [2006] HCA 53 ( QAAH ).

[51]
Done at Geneva on 28 July 1951 .

[52]
Done at New York on 31 January 1967 .

[53]
NBGM v Minister for Immigration and Multicultural and Indigenous Affairs (2004) 84 ALD 40 ; [2004] FCA 1373 ( NBGM (FCA)).

[54]
NBGM (FCA) at 48 [34].

[55]
NBGM (FCA) at 48 [36]-[37],49 [39]-[40].

[56]
Department of Immigration and Multicultural Affairs, Canberra, 2002.

[57]
NBGM (FCA) at 53 [54].

[58]
NBGM (FCA) at 53-4 [56].

[59]
Border Protection Legislation Amendment Act 1999 (Cth).

[60]
NBGM (FCA) at 54 [58].

[61]
NBGM (FCA) at 54-5 [60]-[64].

[62]
NBGM v Minister for Immigration and Multicultural and Indigenous Affairs (2006) 150 FCR 522 ; 228 ALR 623 ; 90 ALD 493 ; [2006] FCAFC 60 ( NBGM ).

[63]
(2005) 145 FCR 363 ; 223 ALR 494 ; [2005] FCAFC 136 .

[64]
NBGM at FCR 528 [12]; ALR 627;ALD 497 per Black CJ, FCR 536 [54]; ALR 634-5;ALD 504-5 per Mansfield J.

[65]
NBGM at FCR 529 [18]; ALR 628;ALD 498.

[66]
NBGM at FCR 530 [22]; ALR 629;ALD 499 per Black CJ, FCR 534 [42]; ALR 633;ALD 503 per Mansfield J.

[67]
NBGM at FCR 530 [23]; ALR 629;ALD 499 per Black CJ, FCR 534 [41]; ALR 632;ALD 502 per Mansfield J.

[68]
NBGM at FCR 549-54 [107]-[123]; ALR 648-52;ALD 518-22.

[69]
Simsek v Macphee (1982) 148 CLR 636 ; 40 ALR 61 ; Koowarta v Bjelke-Petersen (1982) 153 CLR 168 ; 39 ALR 417 ; Chu Kheng Lim v Minister for Immigration (1992) 176 CLR 1 ; 110 ALR 97 ; Minister for Immigration and Ethnic Affairs v Teoh (1995) 183 CLR 273 ; 128 ALR 353 ; 39 ALD 206 ; [1995] HCA 20 ; CIC Insurance Ltd v Bankstown Football Club Ltd (1997) 187 CLR 384 ; 141 ALR 618 ; [1997] HCA 2 ; Applicant A v Minister for Immigration and Ethnic Affairs (1997) 190 CLR 225 ; 142 ALR 331 ; [1997] HCA 4 ; Minister for Immigration and Multicultural Affairs v Haji Ibrahim (2000) 204 CLR 1 ; 175 ALR 585 ; 62 ALD 1 ; [2000] HCA 55 ; Minister for Immigration and Multicultural Affairs v Khawar (2002) 210 CLR 1 ; 187 ALR 574 ; 67 ALD 577 ; [2002] HCA 14 ; Morrison v Peacock (2002) 210 CLR 274 ; 192 ALR 173 ; 69 ALD 545 ; [2002] HCA 44 ; Plaintiff S157/2002 v Commonwealth (2003) 211 CLR 476 ; 195 ALR 24 ; 72 ALD 1 ; [2003] HCA 2 ; Network Ten Pty Ltd v TCN Channel Nine Pty Ltd (2004) 218 CLR 273 ; 205 ALR 1 ; 59 IPR 1 ; [2004] HCA 14 ; Coleman v Power (2004) 220 CLR 1 ; 209 ALR 182 ; [2004] HCA 39 ; NAGV and NAGW of 2002 v Minister for Immigration and Multicultural and Indigenous Affairs (2005) 222 CLR 161 ; 213 ALR 668 ; [2005] HCA 6 .

[70]
NBGM at FCR 558-9 [141]-[142]; ALR 656-7;ALD 526-7.

[71]
NBGM at FCR 562-4 [156]-[163]; ALR 660-2;ALD 530-2

[72]
NBGM at FCR 564 [165]; ALR 662;ALD 532.

[73]
NBGM at FCR 565 [168]; ALR 663;ALD 533.

[74]
[2005] 1 WLR 1063 at 1082 [60]; [2005] 4 All ER 580 at 600-1 ( Hoxha ).

[75]
NBGM at FCR 565-7 [169]-[173]; ALR 663-5;ALD 533-5.

[76]
NBGM at FCR 566 [171], 567 [174], 568 [181]; ALR 664,665,666; ALD 534,535,536.

[77]
Minister for Immigration and Ethnic Affairs v Mayer (1985) 157 CLR 290 ; 61 ALR 609 .

[78]
Simsek v Macphee (1982) 148 CLR 636 ; 40 ALR 61 .

[79]
NBGM at FCR 569 [182]; ALR 666-7;ALD 536.

[80]
NBGM at FCR 569-70 [186]; ALR 667;ALD 537.

[81]
NBGM at FCR 564 [164]-[165]; ALR 662;ALD 532.

[82]
NBGM at FCR 570 [188]; ALR 668;ALD 538.

[83]
NBGM at FCR 571 [196]; ALR 669;ALD 539.

[84]
NBGM at FCR 571 [197]-[198], 575 [212]; ALR 669,672;ALD 539,542.

[85]
NBGM at FCR 576 [216]; ALR 673-4;ALD 543-4.

[86]
NBGM at FCR 576 [216]; ALR 673-4;ALD 543-4.

[87]
NBGM at FCR 530 [26]; ALR 629;ALD 499.

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