Section 22(12) and (13) of the Refugees Act 130 of 1998 were presented
by the Refugees Amendment Act 11 of 2017, which came into force on 1
January 2020 (J Cassette, E Roos and AB Karjieker ‘Automatic abandonment
of asylum application: An analysis of the Scalabrini Centre of Cape
Town v Minister of Home Affairs judgment’ (www.cliffedekkerhofmeyr.com,
accessed 5-5-2024)).
Section 22(12) and (13), Regulation 9 and Form 3
of the Refugees Regulations provide that asylum seekers who fail to
(personally) renew their asylum visa within the period of 30 days on
expiry of their asylum are considered to have abandoned their asylum
application (Cassette et al (op cit)).
This creates a presumption of
automatic abandonment of the application, in an instance where an asylum
seeker has failed to renew their asylum within 30 days (Cassette et al
(op cit)). Moreover, the provisions place asylum seekers who hold
genuine claims at a disadvantage because their genuine claims may lead
to further persecution as a result of being deported to where they are
from (Cassette et al (op cit)). This perception gives rise to an
analysis of the principle of non-refoulement, which provides against one
being returned to a place where there is a possibility of facing
persecution (Cassette et al (op cit)).
In Scalabrini Centre of Cape
Town and Another v Minister of Home Affairs and Others (Consortium for
Refugees and Migrants in South Africa as Amicus Curiae) 2024 (4) BCLR
592 (CC), the Western Cape High Court found that the relevant provisions
of the Act are inconsistent with the Constitution and further sought
the Constitutional Court (CC) to confirm the order of invalidity (at
para 1). In the judgment (where it confirms the invalidity declared by
the High Court), the CC noted that, when read, the concerned sections of
the Act mean that asylum seekers who fail to apply for the renewal of
their asylum seeker visas are considered illegal foreigners for purposes
of s 32 of the Immigration Act 13 of 2002 and they may not re-apply for
asylum. In the light of the submissions made above, this research piece
seeks to assess the principle of non-refoulement in terms of s 22(12)
and 22(13) of the Refugees Act as read with Scalabrini Centre of Cape
Town.
An analysis of the principle of non-refoulment
Section 2 of
the Act gives birth to the principle of non-refoulment by asserting
that no person may be refused entry into the South African Republic,
extradited, expelled, or returned to another country if such return or
refusal will subject such person to persecution or threaten his or her
safety and security. This section basically affords non-South Africans a
claim against the state.
The Convention Relating to the Status of
Refugees (1951) defines a refugee as any person who, as a result of a
well-founded fear of persecution, is outside his or her country of
origin and fears the return to such country because of issues of race,
religion, political opinion etcetera (R Kapindu ‘No Return to
Persecution or Danger: Judicial Application of the Principle of
Non-Refoulement in Refugee Law in South Africa and Malawi’ (2020) CCR
107). In this instance, refugee means protection (from harm), so a
refugee is a person who desperately seeks protection from another state
against his or her country of origin.
Kapindu submits that the idea
of refugeehood is premised on the principle of surrogate protection, in
instances where a country fails to promote and protect human rights and
its citizens (Kapindu (op cit)). The author adds that the four major
challenges that refugees encounter include -
• gaining access into a state (in order to evade the difficulties of the country of origin);
• safeguarding the right not to be returned to the harmful jurisdiction (non-refoulement);
• arguing the entitlement to the refugee status in terms of the laws of the host state; and
•
the challenge of enjoying the basic human rights (that include the
right to dignity, equality and life) of such host state (Kapindu (op
cit) at 108).
Ultimately, it can be noted that refugees are vulnerable people.
The
United Nations High Commissioner for Refugees went as far as submitting
that the risk of non-refoulement can be curbed by efforts aimed at
ensuring that the host country understands the fact that it has a legal
obligation to protect refugees (Kapindu (op cit) at 109). The fact that
refugees are people who flee dangers to seek protection from other
countries creates an ethical obligation for the receiving countries to
protect such refugee seekers.
Kapindu concedes that the
non-refoulement principle applies erga omnes, hence the need to ensure
that it is duly protected and enhanced by the international community
(Kapindu (op cit) at 113). Additionally, the author submits that the
principle is not only limited to refugees but every person who is likely
to be exposed to danger when returned to his or her country of origin
(Kapindu (op cit) at 113).
In Mohamed and Another v President of the
Republic of South Africa and Others (Society for the Abolition of the
Death Penalty in South Africa and Another Intervening) 2001 (3) SA 893
(CC), it was submitted that the non-refoulement principle ‘makes no
distinction between expulsion, return or extradition of a person to
another state to face an unacceptable form of punishment. All are
prohibited, and the right of a state to deport an illegal alien is
subject to that prohibition’ (Kapindu (op cit) at 115).
In Abdi and
Another v Minister of Home Affairs and Others 2011 (3) SA 37 (SCA), it
was held inter alia, that deporting a person to another country would
amount to the subjection of such person to degrading and cruel
punishment, which goes against the precepts of the Constitution.
Jurisprudence
teaches us that a person who flees their country of origin because of
fear of being persecuted, killed, or placed in inhumane situations, may
raise the principle of non-refoulement as a defence against being
returned to where they are from.
A legal analysis of Scalabrini Centre of Cape Town
During
March 2020, the Scalabrini Centre of Cape Town and the Trustees of the
Scalabrini Centre of Cape Town (the applicants) launched a two-part
application at the Western Cape High Court (at para 5). In Part B, the
applicants sought a declaratory order that the relevant provisions of
the Act are inconsistent with the Constitution and, therefore, invalid
(at para 5). In arguing for the order sought, the applicants submitted
that the respondents had created a system wherein asylum seekers who
have failed to renew their visas are deemed to have abandoned their
asylum applications (at para 6). Additionally, the applicants contended
that the sections violate the principle of non-refoulement in that they
allow the returning of asylum seekers to places that are considered to
pose threat to their lives, physical safety, freedom, and places that
are likely to subject the asylum seekers to persecution (at para 7). In
the court a quo, the respondents opposed the relief sought by arguing
that the relevant sections did not violate the non-refoulment principle
because they were justifiable under s 36 of the Constitution (at para
9). The respondents argued that the limitation relates to the backlog
that is created by the large number of inactive applications that were
made under s 22 of the Refugees Act. As a result of the backlog created,
it was submitted that the Department of Home Affairs had some 737 315
inactive applications (at para 9). According to the Auditor General, the
backlog referred to would take at least 68 years to deal with (at para
10).
The court held also that the impugned sections were introduced
as a way to try and curb the backlog of inactive cases and also, to try
and ensure that asylum seekers ‘pursue their applications’ to their end
(at para 11). Moreover, reference was made to Abore v Minister of Home
Affairs and Another 2022 (4) BCLR 387 (CC), where it was held that the
principle of non-refoulement applies for as long as a claim for refugee
status has not been rejected on a final basis, after following proper
procedures. The court expressed that this means that an application for
asylum cannot be deemed to have been abandoned for the failure to renew a
visa (at para 12).
As stated previously, the court a quo found that
the relevant provisions of the Act violate the non-refoulement principle
because they allow the return of refugees to the place from where they
fled - a place wherein they may face persecution, torture or death (at
para 34).
The CC also noted that the presumption of abandonment of
the asylum application violates the right to just administrative action
because once the impugned sections are invoked, the application is ‘not
considered, let alone determined’ (at para 40).
The mere fact that a
visa has not been renewed results in the violation of a number of rights
that define humanity. When an application has been abandoned for
purposes of the Act, it means that the asylum seekers are treated like
illegal foreigners, which results in detention, arrest, and deportation
(the rights to personal liberty and life are consequently threatened)
(at para 40). Refugeehood is, therefore, presented as a question of
international human rights.
At para 47, the court determined that the
impugned sections do not serve a legitimate government purpose because
they are arbitrary and irrational and, therefore, ought to be ‘struck
down as constitutionally bad’.
Conclusion
The High Court was
correct in its finding that s 22(12) and (13) of the Act are
inconsistent with the Constitution and, therefore, invalid. However, the
court a quo went too far by ordering Parliament to amend part of the
order in terms of
s 237 of the Constitution. This is because of the
limitation created by the separation of powers (trias politica). The
principle of non-refoulement serves as an international obligation, not
only an obligation for the Republic of South Africa. Jurisprudence
teaches us that refugee protection is of paramount importance because
international law includes the regulation of human rights on an
international scale. Failure by an asylum seeker to renew a visa or an
application for asylum does not amount to an abandonment of same.
