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[11] En janvier 1999, l’appelant, Rachidi Ekanza Ezokola, entreprenait sa carrière au gouvernement de la République démocratique du Congo (la « RDC ») à titre d’attaché financier du ministère des Finances affecté au ministère de l’Emploi, du Travail et de la Prévoyance sociale, à Kinshasa.

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[11] The appellant, Rachidi Ekanza Ezokola, began his career with the government of the Democratic Republic of Congo (“DRC”) in January 1999.  He was hired as a financial attaché at the Ministry of Finance and was assigned to the Ministry of Labour, Employment and Social Welfare in Kinshasa.  He later worked as a financial adviser to the Ministry of Human Rights and the Ministry of Foreign Affairs and International Cooperation.

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[14] Il affirme avoir finalement démissionné parce qu’il refusait de servir le gouvernement du président Kabila qu’il jugeait corrompu, antidémocratique et violent. Selon ses dires, sa démission serait considérée comme un acte de trahison par le gouvernement de la RDC.

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[14] The appellant says he ultimately resigned because he refused to serve the government of President Kabila which he considered to be corrupt, antidemocratic and violent.  He claims his resignation would be viewed as an act of treason by the DRC government.  He claims that the DRC’s intelligence service harassed, intimidated, and threatened him because it suspected he had links to Jean-Pierre Bemba, President Kabila’s opponent.  It was on this basis that he sought refugee protection for himself, his wife, and their eight children in Canada.

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1Fa) s’attache non seulement à la présence des éléments constitutifs de l’infraction, mais aussi à l’existence de raisons sérieuses de penser que la personne a commis un crime prévu en droit international. Comme nul ne conteste en l’espèce que les éléments des crimes sont imputables au gouvernement de la RDC, nous nous en tenons aux modes de perpétration.

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[43] In our view, international law is relevant both for the elements of the offences and their potential modes of commission.  As the appellant stated, art. 1F(a) is not concerned with simply identifying the substantive elements of the offence, but with whether there are serious reasons for considering that the individual has committed a crime as defined in international law.  Since there is no dispute in this appeal that the elements of the crimes have been carried out by the government of the DRC, we are concerned here with modes of commission.

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[12] En 2004, l’appelant a été affecté à la Mission permanente de la RDC auprès de l’Organisation des Nations Unies (l’« ONU »), à New York. À titre de deuxième conseiller d’ambassade, il a représenté la RDC à des réunions internationales et auprès d’organismes onusiens, dont le Conseil économique et social.

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[12] In 2004, the appellant was assigned to the Permanent Mission of the DRC to the United Nations (“UN”) in New York.  In his role as second counsellor of embassy, the appellant represented the DRC at international meetings and UN entities including the UN Economic and Social Council.  He also acted as a liaison between the Permanent Mission of the DRC and UN development agencies.  In 2007, the appellant served as acting chargé d’affaires.  In this capacity, he led the Permanent Mission of the DRC and spoke before the Security Council regarding natural resources and conflicts in the DRC.

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[12] En 2004, l’appelant a été affecté à la Mission permanente de la RDC auprès de l’Organisation des Nations Unies (l’« ONU »), à New York. À titre de deuxième conseiller d’ambassade, il a représenté la RDC à des réunions internationales et auprès d’organismes onusiens, dont le Conseil économique et social.

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[12] In 2004, the appellant was assigned to the Permanent Mission of the DRC to the United Nations (“UN”) in New York.  In his role as second counsellor of embassy, the appellant represented the DRC at international meetings and UN entities including the UN Economic and Social Council.  He also acted as a liaison between the Permanent Mission of the DRC and UN development agencies.  In 2007, the appellant served as acting chargé d’affaires.  In this capacity, he led the Permanent Mission of the DRC and spoke before the Security Council regarding natural resources and conflicts in the DRC.

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La Cour d’appel fédérale renvoie donc l’affaire à une formation différente de la Commission afin qu’elle rende une nouvelle décision sur la complicité de l’appelant dans des crimes commis par la RDC, et ce, en appliquant le critère de la participation personnelle et consciente.

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[27] The Federal Court of Appeal decided it was unnecessary to determine whether the conclusion of the Board was reasonable because it had applied the wrong test for complicity.  Instead of applying the “personal and knowing participation” test, the Board considered the appellant’s “personal and knowing awareness”: para. 75.  The Federal Court of Appeal therefore remitted the matter to a different panel of the Board to apply the personal and knowing participation test to determine whether the appellant was an accomplice in the crimes committed by the DRC.

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[14] Il affirme avoir finalement démissionné parce qu’il refusait de servir le gouvernement du président Kabila qu’il jugeait corrompu, antidémocratique et violent. Selon ses dires, sa démission serait considérée comme un acte de trahison par le gouvernement de la RDC.

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[14] The appellant says he ultimately resigned because he refused to serve the government of President Kabila which he considered to be corrupt, antidemocratic and violent.  He claims his resignation would be viewed as an act of treason by the DRC government.  He claims that the DRC’s intelligence service harassed, intimidated, and threatened him because it suspected he had links to Jean-Pierre Bemba, President Kabila’s opponent.  It was on this basis that he sought refugee protection for himself, his wife, and their eight children in Canada.

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[12] En 2004, l’appelant a été affecté à la Mission permanente de la RDC auprès de l’Organisation des Nations Unies (l’« ONU »), à New York. À titre de deuxième conseiller d’ambassade, il a représenté la RDC à des réunions internationales et auprès d’organismes onusiens, dont le Conseil économique et social.

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[12] In 2004, the appellant was assigned to the Permanent Mission of the DRC to the United Nations (“UN”) in New York.  In his role as second counsellor of embassy, the appellant represented the DRC at international meetings and UN entities including the UN Economic and Social Council.  He also acted as a liaison between the Permanent Mission of the DRC and UN development agencies.  In 2007, the appellant served as acting chargé d’affaires.  In this capacity, he led the Permanent Mission of the DRC and spoke before the Security Council regarding natural resources and conflicts in the DRC.

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En janvier 1999, E a entrepris sa carrière au gouvernement de la République démocratique du Congo (la « RDC ») à titre d’attaché financier, à Kinshasa. En 2007, il dirigeait la Mission permanente de la RDC aux Nations Unies, à New‑York.

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In January 1999, E began his career with the government of the Democratic Republic of Congo (“DRC”) as a financial attaché in Kinshasa.  By 2007, he was leading the Permanent Mission of the DRC at the United Nations in New York.  In January 2008, he resigned that post and fled to Canada.  He says that he could no longer work for the government of President Kabila, which he considered corrupt, antidemocratic and violent.  He claims that his resignation would be viewed as an act of treason by the DRC government, and that the DRC’s intelligence service had harassed, intimidated, and threatened him.  He sought refugee protection for himself and his family in Canada.

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En janvier 1999, E a entrepris sa carrière au gouvernement de la République démocratique du Congo (la « RDC ») à titre d’attaché financier, à Kinshasa. En 2007, il dirigeait la Mission permanente de la RDC aux Nations Unies, à New‑York.

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In January 1999, E began his career with the government of the Democratic Republic of Congo (“DRC”) as a financial attaché in Kinshasa.  By 2007, he was leading the Permanent Mission of the DRC at the United Nations in New York.  In January 2008, he resigned that post and fled to Canada.  He says that he could no longer work for the government of President Kabila, which he considered corrupt, antidemocratic and violent.  He claims that his resignation would be viewed as an act of treason by the DRC government, and that the DRC’s intelligence service had harassed, intimidated, and threatened him.  He sought refugee protection for himself and his family in Canada.

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En janvier 1999, E a entrepris sa carrière au gouvernement de la République démocratique du Congo (la « RDC ») à titre d’attaché financier, à Kinshasa. En 2007, il dirigeait la Mission permanente de la RDC aux Nations Unies, à New‑York.

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In January 1999, E began his career with the government of the Democratic Republic of Congo (“DRC”) as a financial attaché in Kinshasa.  By 2007, he was leading the Permanent Mission of the DRC at the United Nations in New York.  In January 2008, he resigned that post and fled to Canada.  He says that he could no longer work for the government of President Kabila, which he considered corrupt, antidemocratic and violent.  He claims that his resignation would be viewed as an act of treason by the DRC government, and that the DRC’s intelligence service had harassed, intimidated, and threatened him.  He sought refugee protection for himself and his family in Canada.

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En janvier 1999, E a entrepris sa carrière au gouvernement de la République démocratique du Congo (la « RDC ») à titre d’attaché financier, à Kinshasa. En 2007, il dirigeait la Mission permanente de la RDC aux Nations Unies, à New‑York.

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In January 1999, E began his career with the government of the Democratic Republic of Congo (“DRC”) as a financial attaché in Kinshasa.  By 2007, he was leading the Permanent Mission of the DRC at the United Nations in New York.  In January 2008, he resigned that post and fled to Canada.  He says that he could no longer work for the government of President Kabila, which he considered corrupt, antidemocratic and violent.  He claims that his resignation would be viewed as an act of treason by the DRC government, and that the DRC’s intelligence service had harassed, intimidated, and threatened him.  He sought refugee protection for himself and his family in Canada.

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La Commission a eu tort, selon elle, de conclure à la responsabilité de l’appelant sur le seul fondement du poste occupé au sein du gouvernement malgré l’absence de lien personnel entre ce poste et l’armée ou la police de la RDC.

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[22] In the court’s view, the required nexus between the claimant and the crimes “may be established by presumption if the claimant held a senior position in the public service, where there are serious reasons for considering that the position in question made it possible for the refugee claimant to commit, incite or conceal the crimes, or to participate or collaborate in the crimes”: para. 4.  However, in this case there was “no evidence that tend[ed] to show direct or indirect personal participation by the applicant in the crimes alleged, and there [was] no evidence of incitement or active support by the applicant for those crimes”: para. 104.  It was an error to assign responsibility to the appellant solely on the basis of his position within the government, absent a personal nexus between his role and the army or police of the DRC.

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1Fa) de la Convention des Nations Unies relative au statut des réfugiés (la « Convention relative aux réfugiés ») parce qu’il avait été complice de crimes contre l’humanité perpétrés par le gouvernement de la RDC.

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The Refugee Protection Division of the Immigration and Refugee Board excluded E from the definition of “refugee” under art. 1F(a) of the United Nations Convention Relating to the Status of Refugees (“Refugee Convention”), finding that he was complicit in crimes against humanity committed by the government of the DRC.  The Federal Court allowed E’s application for judicial review, but certified a question concerning the nature of complicity under art. 1F(a).  The Federal Court of Appeal held that a senior official in a government could demonstrate personal and knowing participation and be complicit in the crimes of the government by remaining in his or her position without protest and continuing to defend the interests of his or her government while being aware of the crimes committed by the government.  It remitted the matter to a different panel of the Refugee Protection Division to apply that test to the facts of this case.

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Elle conclut que même si le gouvernement de la RDC ne constitue pas une organisation animée d’un dessein circonscrit et brutal, il a commis des crimes contre l’humanité au sens du Statut de Rome de la Cour pénale internationale, Doc.

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[15] The issue for the Board in determining the appellant’s application for refugee protection was whether the appellant should be excluded from Canada on the basis of s. 98 of the Immigration and Refugee Protection Act, S.C. 2001, c. 27 (“IRPA”).  This provision directly incorporates art. 1F(a) of the Refugee Convention into Canadian law.  The Board excluded the appellant from the definition of “refugee” under art. 1F(a).  It held that, although the government of the DRC was not an organization with a limited and brutal purpose, it had committed crimes against humanity as defined by the Rome Statute of the International Criminal Court, U.N. Doc. A/CONF.183/9, July 17, 1998 (“Rome Statute”), and Canadian jurisprudence: paras. 31 and 43.  The Board concluded that the government’s crimes continued even as the government itself changed: para. 33.