人道与同情理由（H&C）：哪些情形下部长不得审查请求

IRPA s.25 下可请求的豁免与永久居民身份

《移民及难民保护法》（IRPA）s.25 的第一句就把范围划完了：

25 (1) Subject to subsection (1.2), the Minister must, on request of a foreign national in Canada who applies for permanent resident status and who is inadmissible — other than under section 34, 35, 35.1 or 37 — or who does not meet the requirements of this Act, and may, on request of a foreign national outside Canada — other than a foreign national who is inadmissible under section 34, 35, 35.1 or 37 — who applies for a permanent resident visa, examine the circumstances concerning the foreign national and may grant the foreign national permanent resident status or an exemption from any applicable criteria or obligations of this Act if the Minister is of the opinion that it is justified by humanitarian and compassionate considerations relating to the foreign national, taking into account the best interests of a child directly affected.

里面有四层意思。

第一层，境内和境外用的词不一样。 人在加拿大境内、申请永久居民身份，并且属于不可入境（inadmissible，s.34、s.35、s.35.1、s.37 除外）或者达不到本法要求的，条文写 must，部长必须审查他的情况。人在境外、申请永久居民签证的，条文换成 may，可以审查。

第二层，「必须」到底必须什么。 must 后面接的动词是 examine，审查。给身份那一句换成 may grant，可以给予。审查是部长必须做的动作，做完之后给不给，条文没有承诺。这两个词的差别，最容易被高估。

第三层，能给的东西有两种。 一种是直接给永久居民身份。另一种是豁免本法项下任何适用的条件或义务（an exemption from any applicable criteria or obligations of this Act）。后一种在实务上用得更多：不少案子只是某一项具体要求达不到。

第四层，儿童利益必须纳入考量。 条文最后一句写明，直接受影响儿童的最佳利益（the best interests of a child directly affected）要纳入考量（taking into account）。

上面括号里的 s.34、s.35、s.35.1、s.37，是条文自己划出去的：因这几条被认定不可入境的人，境内境外都不在 s.25(1) 的适用范围里。这几条各自指什么，本页不展开。

关于费用，s.25(1.1) 另有一句：

The Minister is seized of a request referred to in subsection (1) only if the applicable fees in respect of that request have been paid.

适用费用没有缴清，这份请求就没有正式落到部长手里。

什么情况下部长不得审查

s.25(1) 开头那句 Subject to subsection (1.2)，指向的就是这一段：

(1.2) The Minister may not examine the request if
(a) the foreign national has already made such a request and the request is pending;
(a.1) the request is for an exemption from any of the criteria or obligations of Division 0.1;
(b) the foreign national has made a claim for refugee protection that is pending before the Refugee Protection Division or the Refugee Appeal Division;
(b.1) the foreign national made a claim for refugee protection that was determined to be ineligible to be referred to the Refugee Protection Division and they made an application for protection to the Minister that is pending; or
(c) subject to subsection (1.21), less than 12 months have passed since …

用的词是 may not examine，不得审查。落在这五种情况里，费用仍可缴纳、申请仍可提交，案件只是无法进入判断人道理由是否成立的那一步。

(a) 已经有一份在处理中，实务中最常遇到。 已经递了一份 H&C，那一份还在处理中，再递一份是不行的。等不到消息就再递一份，是很自然的反应，条文在这里已经排除。

(c) 是十二个月的等待期。 难民申请被拒、在实质证据被听取之后撤回、或者被视为放弃，从那之后不满十二个月，不能递 H&C。十二个月的起算点写得很细，单独放在下一节。

十二个月从哪一天开始算

条文把起算点分成两种情形：

(i) the day on which the foreign national's claim for refugee protection was rejected or determined to be withdrawn — after substantive evidence was heard — or abandoned by the Refugee Protection Division, in the case where no appeal was made and no application was made to the Federal Court for leave to commence an application for judicial review, or
(ii) in any other case, the latest of
(A) the day on which the … claim … was rejected or determined to be withdrawn — after substantive evidence was heard — or abandoned by the Refugee Protection Division or, if there was more than one such rejection or determination, the day on which the last one occurred,
(B) the day on which the … claim … was rejected or determined to be withdrawn — after substantive evidence was heard — or abandoned by the Refugee Appeal Division or, if there was more than one such rejection or determination, the day on which the last one occurred, and
(C) the day on which the Federal Court refused the … application for leave to commence an application for judicial review, or denied their application for judicial review, with respect to their claim for refugee protection.

第一种情形简单：既没有上诉、也没有向联邦法院申请过司法复核许可的，从 RPD 拒绝、认定撤回或者视为放弃的那一天起算。

第二种情形是其他所有情况。条文在这里写 the latest of，取最晚的那一天。

三个日期并列，取其中最晚的一个起算。走过上诉、又去过联邦法院的人，最晚的那一天比 RPD 那一天晚，可能晚出很多。

这里读反了，后果很直接：按 RPD 那一天计满十二个月即递交，实际上尚未届满，落入 (1.2)(c)，部长不得审查。

十二个月等待期的两个例外

(1.21) Paragraph (1.2)(c) does not apply in respect of a foreign national
(a) who, in the case of removal, would be subjected to a risk to their life, caused by the inability of each of their countries of nationality or, if they do not have a country of nationality, their country of former habitual residence, to provide adequate health or medical care; or
(b) whose removal would have an adverse effect on the best interests of a child directly affected.

两个例外：一是在被遣返的情况下，会因为其每一个国籍国（没有国籍国的，则为其原惯常居住国）无法提供适当的健康或医疗照护，而使其生命面临风险；二是遣返会对直接受影响儿童的最佳利益产生不利影响。

(a) 里的措辞要逐字看：each of their countries of nationality，每一个国籍国。持有多个国籍的，条文要求每一个国籍国都无法提供；其中一个提供不了，不落在这个例外里面。

边界也要看清楚。这两个例外解除的只有 (1.2)(c) 的十二个月等待期。(1.2) 里的其他几项，包括「已经有一份在处理中」和难民程序待决的那几种，不因为这两个例外而解除。手上还有一份 H&C 在处理中的人，即便处境符合 (1.21)(a) 或者 (b)，第二份同样不能递交。

还有一层：例外只解除「不得审查」这一项限制。人道理由成不成立，仍然要另外判断。

审的时候什么算、什么不算

(1.3) In examining the request of a foreign national in Canada, the Minister may not consider the factors that are taken into account in the determination of whether a person is a Convention refugee under section 96 or a person in need of protection under subsection 97(1) but must consider elements related to the hardships that affect the foreign national.

s.25(1.3) 只针对境内申请人（a foreign national in Canada）。

一句禁止，一句要求：

• 不能考虑的：判断一个人是否属于 s.96 项下的公约难民、或者 s.97(1) 项下需要保护的人时，所考量的那些因素。
• 必须考虑的：与影响该申请人的困境（hardships）相关的要素。

条文就写到这里。两者之间的界线很细，具体到一份材料里哪一段落在哪一边，是个案判断，没有通用写法；套用通用写法既不准确，也容易使材料失焦。

最后还有一条限制写在 s.25(2)：

The Minister may not grant permanent resident status to a foreign national referred to in subsection 9(1) if the foreign national does not meet the province's selection criteria applicable to that foreign national.

这一句的意思是：属于 s.9(1) 情形的人，不符合适用于他的省甄选标准的，部长不得给予永久居民身份。s.9(1) 具体指哪一类情形，本页不展开。

难的地方在哪里

条文本身可以查到，五项禁止、两个例外、三个备选日期都有明文。难在把自己走过的程序对上条文中的哪一项。

几个地方特别容易出错。难民程序走到了哪一步、是否经过 RAD、有没有向联邦法院递交过许可申请，决定了十二个月按 (i) 起算还是按 (ii) 里最晚的那一天起算，这两个答案不是同一天。(1.21) 的两项例外是否适用，须逐字对照条文核对。

判断错误的代价并不对称：日期算晚，白等几个月；过早递交，部长不得审查，费用和时间都花掉了。

还有一层须在着手之前想清楚。条文开头写「必须审查」，结尾写「可以给予」。它没有列出哪些理由一定成立，也没有分数线，材料完整并不等于能够获准。

拒签之后还有哪些路，见拒签之后：复议、重新递、还是司法复核；身份已经过期的，见身份过期的 90 天恢复窗口。

把自己的时间线与走过的程序列出来，对照条文核对一遍，可参见咨询价目。

常见问题