WPC, I nAh]gqAΰub:rV{XSc{ys--_@ rPLH. BGa~8jc%O6g&4>: ~r'TjmJs6?0v2.Gu39KYq{K1Tj>H1wgFc*2U x-L>d+eȓ@ݯe%~-gq9AMK5!& `Б.~,ցp[ Rjʎ)i #,hc#zb_w p^-K%8Q Զɍ{vGhְ8TY!*4VVS]W>&7gaш_#2 % 0 D 0(= U:e 0 UNe nT UF M ^ > wJ 4N b q ms E f a N N 1 72- 1u_ 72 0c 1i 72"^nFU8,UBb4(<Ndf B,I A?ce6R$'''''{ * * * * * *++++++++++++++++++++++++++++++++ D-++HP LaserJet 5/5M - Standard,,,,0X(#$  0  ($<6X9`("Courier NewTT(d:2q$ !    =D2XXdd=    0  vr Z6Times New Roman Regular<6X9`("Courier NewTTXXx6X@DQX@<6X9`(CourierTTXXw6X@QX@<4 9Z+.Courier New Regular q$  =XXXdd=    *    _OftheDistrictofNewHampshire,sittingbydesignation.Iw1s L=1?,}backup 3|x UTABLE A(5hCEKQW]cioAutoList1I.I.I.I.I.I.I.I.I.3#37=CIQYag1.a.i.(1)(a)(i)1)a)i)(;3$2#  0  .3  0  (EhCEKQW]cioAutoList2I.I.I.I.I.I.I.I.I.Level 1Level 2Level 3Level 4Level 5L:\JUDGES\Boudin\TEMPLATE\OPINIONS\ALDRICH.WPT<6X9`(*Courier 12pt10cpiXXx6X@JQX@*f9 `6Times New RomanItalicTT^*f9 xQX q`ScriptRomanItalicTTO @HxQX\  `*Times New RomanTTcTT^\  P6QP<4 9Z+ Courier New Level 1Level 2Level 3Level 4Level 5<6X9`(*Courier 12pt10cpi- -!Level 1Level 2Level 3Level 4Level 5 dLevel 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5^]&Draw Object =8C HKKKK    q$  =XXXdd=    1    _ԀTherelevantfunctionsoftheINSweretransferredtothe  DepartmentofHomelandSecurityandreorganizedintotheBureauof x ImmigrationandCustomsEnforcementinMarch2003.Becausethe @ relevanteventstookplacepriortothereorganization,wecontinue X torefertotheINS. 5 q$  =XXXdd=    2    _ԀCarcamostatesthatthisdeputypositionisroughly  equivalenttoamemberofCongressorasenatorinoursystem.  q$  =XXXdd=    4    _ԀAsmayor,Carcamowasassignedabodyguardatgovernment  expense. Y q$  =XXXdd=    5    _ԀTheprocuratorisahumanrightsombudspersonwhocan  investigateandreporthumanrightsabusesbutlackslaw x enforcementpower.  q$  =XXXdd=    6    _ XXXXXԀTrue,_Carcamo_Ԁallegedlylearnedthathewasonakidnaping  listshortlybeforeheleftthecountryin1997.Butthisevidence x doesnotcompelafindinginCarcamo'sfavor.Carcamo'scousin, @ whoallegedlytoldCarcamoaboutthelist,neversawithimself. X Moreover,Carcamopresentednoevidenceofwhocreatedthelist,   whenthelistwascreated,orwhenhisnamewasaddedtoit.  Perhapsmoreimportantly,Carcamopresentednoevidencethathewas `  addedtothelistonaccountofhispoliticalopinions.Indeed, ( x Carcamo'sconclusorytestimonythathewasonthelistbecauseof  @ hispoliticalopinionswasunderminedbyhisstatement,inhis    asylumapplication,thathefearedbeingonthelistbecausehe    wouldbeunabletopayaransomifheweretobekidnaped.This H   statementtendstosuggestthattheallegedwouldbekidnaperswere `  motivatedbytheprospectofeconomicgainandnotCarcamo's (  politicalbeliefs.#XXXX XXҮ# XXXXXX , q$  =XXXdd=    7    _Ԁ_Carcamo_'sexperttestifiedthatamayorwhohadangered  wellconnectedpersecutors"wouldbeinmorejeopardy"thanthe x mayor'sfamily,buthealsoadmittedthat"plenty...[of]family @ membershavebeenharmed"andthat,inthecaseofaparticularly X highprofilepolitician,thefamilyisamorelikelytarget.   Carcamohasrepeatedlyarguedthathewasahighprofile  politician,whowas"nationallyrenowned"as"thefaceoftax `  reforms."Pet.Br.at4,14.   .) ' Turner0Turner .    q q$  =XXXdd=    3    _ԀTheDepartmentofJalapaisthelargeareaaroundthecity  ofJalapathatisroughlyequivalenttoacongressionaldistrictor x stateintheUnitedStates. )!dxdxLevel 1Level 2Level 3Level 4Level 5 !  _TRY,3'X3' Letter 3' Letter3'T ? * !XrXXX XXr     UnitedStatesCourtofAppeals   FortheFirstCircuit  ! XXX ! @ A') ` dE<` A L No.032428   @DAVIDA._CARCAMO_Ԅ_RECINOS_, + {  @XX%Petitioner,   @tt)v. K  @$ $ JOHNASHCROFT,UNITEDSTATESATTORNEYGENERAL, +  @XX%Respondent. k  A') ` dE<` A K @ PETITIONFORREVIEWOFANORDEROF " @l l THEBOARDOFIMMIGRATIONAPPEALS@@*  A') ` dE<)` A *z @'Before Q   @@((TorruellaandHoward,CircuitJudges,  _DiClerico_,  #  *      ׀DistrictJudge. !q A') ` dE<x` A y!       RebeccaO'Brien_Radford_withwhom_Goulston_Ԁ&_Storrs_wason P# brief,forpetitioner. h$   JonathanF.PotterwithwhomPeterD._Keisler_,Assistant 0% AttorneyGeneral,CivilDivision,MichaelP._Lindemann_,Assistant  & Director,OfficeofImmigrationLitigationandDouglasE._Ginsburg_, p!' SeniorLitigationCounsel,OfficeofImmigrationLitigation,Civil 8"( Division,wereonbrief,forrespondent. #P)    `     h      p   *'ddd Xdd Xdd X(#(#,( dd ,( dd ,( dd +  X% ,X%   SI% !-  @38313 @SNovember23,2004 &!/  RHCL'"0"  @38313  @ R(% !1  (   D(#1? _  8"X"XXdd8#*,X` XX*",US ,  (:!&),  +OY ` *! HOWARD,CircuitJudge .DavidCarcamoRecinos,anative  ofGuatemala,petitionsforreview؀ofanorderoftheBoardof D ImmigrationAppeals("BIA")affirminganimmigrationjudge's $ ("IJ's")denialofhisrequestforasylumandwithholdingof d  removal.Thepertinentbackgroundfollows.  D   ` OnMay22,1998,theImmigrationandNaturalization    Service, #  1      ׀("INS")issuedaNoticetoAppeartoCarcamo,alleging d  thathewasanalienremovableforstayingbeyondthetermofhis   visitor'svisa.See8U.S.C.1227(a)(1)(B).Carcamoadmitted 4  thathewasremovable,buthesoughtasylumandwithholdingof  removalonthegroundthathehadbeenpersecutedbecauseofhis T politicalviews.Athishearing,Carcamopresenteddocumentary 4 evidence,hisowntestimony,andthetestimonyofanexpert t witness.Wesummarizethisevidence,notingambiguitiesor T inconsistencieswherenecessaryandreservingdetaileddiscussion  ofsomefactsforouranalysis. $t  ` CarcamoservedasmayorofthetownofJalapa,Guatemala   fromJanuary16,1991toJanuary16,1996.Hewaselectedasa D" memberoftheUniondeCentroNational(NationalCenterUnion)  $$ party("UCN"),andheadvancedaplatformoftaxreform(which d"& includedcollectingdelinquenttaxes),providingservicestothe #D( poor,andpromotinggreaterfinancialautonomyformunicipalities. % * InApril1993,Carcamobeganaoneyeartermaspresidentofthe  NationalAssociationofMayors(Spanishacronym"ANAM"),an @ organizationthatrepresentstheinterestsofGuatemalanmayorsand   seeksincreasedmunicipalautonomyfromthecentralgovernment. `  ThepresidencyofANAMprovidedCarcamowithgreaternotorietyand  @ mediaattentionandenabledhimtoadvancehisreforms.     ` Carcamomaintainedthathisactionsasanationally `  renownedcrusaderforcontroversialreformsbroughthiminto   conflictwithpowerfuleconomicinterests,includingbusinessesand 0  largelandowners,thatsoughttopreservethestatusquoby  ruthlesslypersecutingpoliticalenemies.Carcamoassertedthat P theseentitiesaresoinfluentialwiththenationalgovernment, 0 thearmy,andthenationalpolicethattheyoperateoutsidethelaw p andgovernmentcontrol.Carcamonotedthatthepreviousmayorand P deputy- #  2      ׀fortheDepartmentofJalapa7  #  3      ׀hadbeenmurderedin1990.   ` Carcamotestifiedthathereceivedawrittenthreatin  p April1991,whichstatedthathewouldbekilledbecausehe"was   pursuingthingsinpoliticsthat[he]shouldnotdo."Heexplained @" thathedestroyedthenotebecausehewasafraid;however,inhis  $ asylumapplication,Carcamostatedthathedestroyeditbecausehe `"& didnottakeitseriously.Carcamoalsotestifiedtoreceiving #@( frequenttelephonicdeaththreatsathishomeandoffice. % * Generally,thethreatsstatedthathewouldbekilledbecausehe  "wasintothingsthat[he]shouldnotbein."Thefrequencyofthe @ threatspeakedduringhistenureasANAMpresidentin199394.In   hisasylumapplication,Carcamoindicatedthatthethreatswereof `  twotypes:(1)threatsrelatedtopoliticalactivity;and(2)  @ threatsbasedontheperceptionthathewaswealthyandtherefore    worthkidnaping. `   ` Duringthissameperiod,Carcamo'swifeandbodyguard. #  4         reportedthatarmedmenpassedhishomeonapproximatelyfour 0  occasions.Carcamoalsotestifiedtoanotherencounterwitharmed  menduringatriptoGuatemalaCitywiththetowntreasurerin P 1994.Onthereturntrip,thetwo(whohadtraveledinseparate 0 vehicles)switchedcars.WhileenroutebacktoJalapa,aredcar p fullofarmedmenpulledalongsidethetreasurer'scar.Oneman P thenpointedamachinegunoutthewindow.Noshotswerefired,  andtheredcarspedaway.Carcamomaintainedthattheindividuals  p abortedtheirattackwhentheyrealizedthathewasnotinthecar.   Carcamodidnotrecountthisincidentinhisasylumapplication. @" Ѐ ` Carcamoneverreportedthethreatstothenationalor  $ localpolice,becausehebelievedthattheywerecorruptand `"& possiblyinleaguewiththeindividualsthreateninghim,and #@( becauseotherpoliticianswhohadreportedthreatstothepolice % *  werekilledanyway.Hedid,however,reportthethreatsto '`", Guatemala'sHumanRightsProcurator,whoinvestigatedthecaseand  concludedthatthedangertoCarcamowasreal./ #  5       @   ` Whilemayor,Carcamomadeapproximatelyfifteenofficial   tripsabroad,includingseveraltotheUnitedStates.Healways `  returnedtoGuatemalaandhismayoraldutiesattheconclusionof  @ thesetrips.     ` In1995,Carcamosoughtnationalofficeasdeputyforthe `  DepartmentofJalapa,butwasdefeatedintheelection.Heleft   theofficeofmayoronJanuary16,1996.Afterleavingpublic 0  life,CarcamomovedtothesoutherncoastofGuatemalaandturned  todairyfarming.Atfirst,hefeltsafeinhisnewlocation. P However,inAugust1996orFebruary1997,hiscousininformedhim 0 thathehadheardthatCarcamowasonakidnaping/assassination p list.Carcamotestifiedthatanotherindividualonthesamelist P hadbeenkidnaped.Inhisasylumapplication,Carcamostatedthat  hebelievedkidnapingmeantcertaindeathforhimbecausehedid  p nothaveenoughmoneytosatisfyaransomdemand.    ` Afterthisincident,CarcamodecidedtoleaveGuatemala @" fortheUnitedStates.HearrivedintheUnitedStatesonMarch  $ 18,1997.Hemaintainsthatbecauseofhisnotoriety,thereisno `"& placeinGuatemalawherehecanlivesafely. #@(  ` ProfessorClarkE.Taylor,Carcamo'sexpertonconditions % * inGuatemala,testifiedthatCarcamowouldbeamarkedmanifhe '`", returnedtoGuatemalabecauseofhiseffortsatpoliticalreform. (#. Healsotestifiedthatcrusadingpoliticianswereatgreatrisk  fromvariousreactionaryforcesinGuatemalansociety,including @ largelandowners,andthattheseforcesactwithimpunitybecause   oftheirclosetiestothecentralgovernmentandthecorrupt `  nationalpolice.ProfessorTaylorstatedthatthegovernmentand  @ policeareunwillingorunabletoprotectindividualssuchas    Carcamo,manyofwhomcontinuetoseekreformdespitetheriskto `  themselves.ProfessorTayloralsotestifiedtorampantlawlessness   inGuatemalaandtotheregularityofpoliticalassassinations 0  there.  Ѐ ` TheIJdeniedrelief,concludingthatCarcamohadfailed P toproveeitherthatthethreatsthatheenduredconstituted 0 persecutionorthatCarcamoharboredareasonablefearoffuture p persecution.Astopastpersecution,theIJwaspersuadedbythe P factsthatCarcamowasneverharmedordirectlyconfronted,  maintainedanactivepoliticalcareer,traveledabroadandreturned  p onnumerousoccasions,anddidnotestablishalikelysourceofthe   threats.Astoafearoffuturepersecution,theIJemphasized @" Carcamo'stravelabroadandthatheandhisfamilywerenever  $ harmed.TheBIAsummarilyaffirmedtheIJ'sdecision. `"&  (Eh83! !  ` ThiscourtreviewsBIAdecisionsunderthedeferential #@( "substantialevidence"standard.Mihaylovv.Ashcroft,379F.3d % * 15,17(1stCir.2004).TheBIA'sdecisionwillbeupheld"if '`", supportedbyreasonable,substantial,andprobativeevidenceonthe (#. recordconsideredasawhole."Khalilv.Ashcroft,337F.3d50,55 0*%0 (1stCir.2003)(internalquoteomitted)."ToreversetheBIA +'2 findingwemustfindthattheevidencenotonlysupportsthat  conclusion,butcompelsit...."INSv.EliasZacarias,502U.S. @ 478,481n.1(1992)(emphasesinoriginal);seealsoAlbathaniv.   INS,318F.3d365,372(1stCir.2003)("Merelyidentifying `  alternativefindingsthatcouldbesupportedbysubstantial  @ evidenceisinsufficienttosupplanttheBIA'sfindings.").In    contrast,questionsoflawarerevieweddenovo.Romilusv. `  Ashcroft,385F.3d1,5(1stCir.2004).    ` WheretheBIAsummarilyaffirmstheIJ'sdecision,this 0  courtreviewstheIJ'sdecision.Id.;SamayoaCabrerav.Ashcroft,  367F.3d10,13(1stCir.2004). P   ` CarcamoarguesthattheIJmadethefollowingerrors:(1) 0 heimproperlyrequiredCarcamotoshowthatthegovernmentwashis p persecutor;(2)heimproperlyrequiredCarcamotospecifically P identifyhispersecutors;(3)heimproperlydeterminedthat  Carcamo'swillingnesstoriskhislifeforeclosedafindingofa  p wellfoundedfearofpersecution;(4)heimproperlydisregarded   Carcamo'scredibletestimonythathisfearwasgenuine;and(5)he @" improperlydisregardedcorroboratingevidencethatCarcamo'sfear  $ wasobjectivelyreasonable. `"&  ` WebeginouranalysisbyfocusingonCarcamo's #@( entitlementtoasylum,becauseCarcamocannotestablishan % * entitlementtowithholdingofremovalifheisineligiblefor '`", asylum.SeeNelsonv.INS,232F.3d258,261n.2(1stCir.2000). (#.  Thealienbearstheburdenofestablishingeligibilityforasylum 0*%0 +OY + +  byshowingthathequalifiesasa"refugee."Affulv.Ashcroft,  380F.3d1,3(1stCir.2004). @  8 ` Theterm'refugee'means(A)anypersonwhois   outsideanycountryofsuchperson's  nationality...andwhoisunableorunwilling `  toreturnto,andisunableorunwillingto ( x availhimselforherselfoftheprotectionof,  @ thatcountrybecauseofpersecutionorawell    foundedfearofpersecutiononaccountof    race,religion,nationality,membershipina H   particularsocialgroup,orpoliticalopinion `  ....( ` x` x ?8U.S.C.1101(a)(42)(A).Apetitionercanshowthatheisa h  refugeeentitledtoasyluminoneoftwoways:(1)demonstrating H  pastpersecution,whichcreatesapresumptionofawellfounded  fearofpersecution(whichthegovernmentmayrebut);or(2) h demonstratingawellfoundedfearoffuturepersecution.El  Moraghyv.Ashcroft,331F.3d195,202(1stCir.2003). 8  ` "Toprovepastpersecution,anapplicantmustprovide  'conclusiveevidence'thathehassufferedpersecutionononeof X thefiveprotectedgrounds:race,religion,nationality,membership 8 inaparticularsocialgroup,orpoliticalopinion."Romilus,385 x! F.3dat6.Todemonstrateawellfoundedfearoffuture  X# persecution,theapplicantmustprovethathisfearisbothgenuine !% andobjectivelyreasonable.SeeElMoraghy,331F.3dat203.The (#x' applicant'stestimonymaybesufficienttodemonstratethe $ ) objectivereasonablenessofhisfear,"but[thetestimony]must H&!+ constitutecredibleandspecificevidenceofareasonablefearof '(#- persecution."Afful,380F.3dat3. h)$/  ` Carcamo'sfirsttwoargumentsseektounderminetheIJ's *H&1 determinationthatCarcamodidnotsufferpastpersecution.But ,'3 theseargumentsonlyaddressoneaspectoftheIJ'sreasoning:that  theevidencedidnotestablishthelikelysourceofthethreatsand @ thusfailedtoestablishthattheyweremotivatedbyoneofthe   fivestatutorilyprotectedgrounds.SeeRomilus,385F.3dat6. `  Inotherwords,CarcamohasfailedtoquestiontheIJ'sindependent  @ determinationthattheharassmenthesuffereddoesnotrisetothe    levelof"persecution"withinthemeaningofourasylumlaws. `  Accordingly,Carcamocannotprevailinhisefforttosecurea   presumptionoflikelyfuturepersecutionbecausehepreviouslyhas 0  beenpersecuted.Cf.InrePublicServ.Co.ofN.H.,879F.2d987,  98990(1stCir.1989)(percuriam)(affirmingbecauseappellant P failedtochallengeoneoftwoalternativebasesforthelower 0 court'sdecision).WeconsequentlyconfineourfocustoCarcamo's p argumentsinsupportofhisclaimthattheIJerredinconcluding P thathelackedawellfoundedfearoffuturepersecution.Butin  doingso,wenoteinpassingthattheIJ'sunchallenged  p determinationthatthethreatsCarcamosuffereddidnotamountto   persecutionappearstoustohavebeenwithinhiswidediscretion. @" SeeEliasZacarias,502U.S.at481n.1(emphasizingthehigh  $ degreeofdeferencetobeaccordedadministrativefactualfindings `"& inimmigrationcases);Nelson,232F.3dat263("Toqualifyas #@( persecution,aperson'sexperiencemustriseaboveunpleasantness, % * harassment,andevenbasicsuffering."). '`",  ` Carcamodoesnotreallyarguethattheadministrative (#. recordlackssubstantialevidencetosupporttheIJ'sfuture 0*%0 persecutionfinding.Norcouldhe.Afterall,thereisevidence +'2 thatCarcamowillinglyreturnedtoGuatemalaonseveraloccasions  duringthetimeperiodwhenhewasbeingthreatened,see,e.g., @ Albathani,318F.3dat373;AguilarSolisv.INS,168F.3d565,574   n.7(1stCir.1999);thatCarcamoremainedinGuatemalaformore `  thantwoyearsaftertheallegedpersecutionpeaked,seeRavindran  @ v.INS,976F.2d754,760(1stCir.1992);0 #  6      ׀andthatCarcamo's    familyhasnotsufferedpersecutionsinceheleftGuatemala,see `  Romilus,385F.3dat8;AguilarSolis,168F.3dat573;Ravindran,   976F.2dat75960.1H  #  7      ׀Rather,asweunderstandhisargument, 0  CarcamocontendsthattheIJ'sfuturepersecutionfindingis  taintedbytworelatederrorsoflaw:(1)anerroneousbeliefthat P anindividualwhoisbraveenoughtoriskhislifebyreturningto 0 hishomelandinthefaceofpriorpersecutioncannotestablish_a p wellfoundedfearoffuturepersecution;and(2)afailureto  recognizethatthetestimonyofa"generally...credible @ witness"(asthe_IJ_Ԁfound_Carcamo_Ԁtobe)shouldbecredited   especiallywhenitiscorroborated.Theseerrors,_Carcamo_Ԁstates, `  ledthe_IJ_Ԁtogiveconclusiveweighttotheevidenceofhistravel  @ whilemayorandconcomitantlytodisregard_Carcamo_'stestimony    abouthisfearofassassinationwerehetoreturntoGuatemala. `   ` Weperceivenoerroroflaw.The_IJ_Ԁdidnot,as_Carcamo_   asserts,holdthat"onlycowardsareworthyofasylum."Pet.Br. 0  at33.Aswereadtherecord,the_IJ_Ԁmerelyconsidered_Carcamo_'s  frequentdeparturesfromandreturnstoGuatemalaasafactorin P hisanalysis,ashewaspermittedtodo.See_Albathani_,318F.3d 0 at373;_Aguilar_Ԅ_Solis_,168F.3dat574n.7.Moreover,thefinding p that_Carcamo_Ԁwas"generally...credible"doesnotseemtousto P beafindingthat_Carcamo_Ԁwascredibleinallrespects.Theword  "generally"oftenconnotesasignificantlimitationand,inlight  p ofthe_IJ_'sotherfindings,shouldbesounderstoodhere.Thereis   nothinginternallyinconsistentincrediting_Carcamo_'stestimony @" aboutwhathappenedwhenhewasmayorandyetconcluding,asthe_IJ_  $ did,thattheseeventsdidnotgroundawellfoundedfearoffuture `"& persecution. #@(  ` Forthereasonsstated,we deny _Carcamo_'spetitionfor % * review. 'd",  ` Soordered.  (#.