Further to what Peter said, the reality is that in cases involving refugee claims, what constitutes legitimate persecution and what doesn't is often very subjective. If you make a nice little silo, you could say that you have to make it within the refugee claim. But the refugee decision-maker could say that really isn't persecution, it's really something else, and it should be decided within the context of the H and C.
We have many cases where people go forward with genuine refugee claims. Their stories are believed, but the refugee board member says that it's just not quite persecution, it's something else. That's why having these nice, neat silos just doesn't work.