dismissed EB-1A Case: Athletics

%dentifying data deleted to U.s.nepartmentorHomei..d security
U.S.CitizenshipandImmigrationServices
prevent clearly unwarranted ot/tce oradministrativeAggea/sus 2090
IDVaSiOD d pCr v3Cy washington.DC 20529-2090
U.S.Citizenship
and Immigration
ygBLIC COPlr services
FILE: Office:NEBRASKASERVICECENTER Da6tT 04 2010
IN RE: Petitioner:
Beneficiary:
PETITION: ImmigrantPetitionfor AlienWorkerasanAlienof ExtraordinaryAbility Pursuantto Section
203(b)(1)(A)of theImmigrationandNationalityAct,8 U.S.C.§ 1153(b)(l)(A)
ON BEHALFOFPETITIONER:
INSTRUCTIONS:
Enclosedpleasefind thedecisionof theAdministrativeAppealsOffice in yourcase. All of thedocuments
relatedtothismatterhavebeenreturnedtotheofficethatoriginallydecidedyourcase.Pleasebeadvisedthat
anyfurtherinquirythatyoumighthaveconcerningyourcasemustbemadetothatoffice.
If you believethe law wasinappropriatelyappliedby us in reachingour decision,or you haveadditional
informationthatyouwishto haveconsidered,youmayfile amotionto reconsideroramotiontoreopen.The
specificrequirementsfor filing sucha requestcan be foundat 8 C.F.R.§ 103.5. All motionsmustbe
submittedto theofficethatoriginallydecidedyourcasebyfiling aFormI-290B,Noticeof Appealor Motion.
with a feeof $585. Pleasebeawarethat 8 C.F.R.§ 103.5(a)(1)(i)requiresthatanymotionmustbefiled
within30daysof thedecisionthatthemotionseeksto reconsideror reopen.
Thankyou,
PerryRhew
Chief,AdministrativeAppealsOffice
www.uscus.gov
Page2
DISCUSSION: The employment-basedimmigrant visa petition was denied by the Director,
NebraskaServiceCenter,andis nowbeforetheAdministrativeAppealsOffice(AAO) onappeal.The
appealwill bedismissed.
Thepetitionerseeksclassificationasan"alienof extraordinaryability" in athletics,pursuantto section
203(b)(1)(A)of theImmigrationandNationalityAct(theAct),8 U.S.C.§ 1153(b)(1)(A).'Thedirector
determinedthatthepetitionerhadnot establishedtherequisiteextraordinaryability throughextensive
documentationandsustainednationalor internationalacclaim.
Congressseta veryhighbenchmarkfor aliensof extraordinaryability by requiringthroughthestatute
that the petitionerdemonstratethe alien's"sustainednationalor internationalacclaim"andpresent
"extensivedocumentation"of the alien'sachievements.Seesection203(b)(1)(A)(i)of the Act and
8C.F.R.§204.5(h)(3).Theimplementingregulationat 8 C.F.R.§204.5(h)(3)statesthatanaliencan
establishsustainednationalor intemationalacclaimthroughevidenceof a one-timeachievementof a
major,internationallyrecognizedaward. Absentthereceiptof suchanaward,theregulationoutlines
tencategoriesof specificobjectiveevidence.8 C.F.R.§204.5(h)(3)(i)through(x). Thepetitionermust
submitqualifyingevidenceunderatleastthreeof thetenregulatorycategoriesof evidenceto establish
thebasiceligibility requirements.
On appeal,counselarguesthatthe petitionermeetsat leastthreeof the ten regulatorycategoriesof
evidenceat 8 C.F.R. § 204.5(h)(3). For the reasonsdiscussedbelow. we uphold the director's
decision.
I. Law
Section203(b)of theAct states,inpertinentpart,that:
(1) Priorityworkers.-- Visasshallfirst bemadeavailable. . . to qualifiedimmigrantswhoare
aliensdescribedin anyof thefollowingsubparagraphs(A) through(C):
(A) Alienswithextraordinaryability.--Analienisdescribedinthissubparagraphif --
(i) the alien has extraordinaryability in the sciences,arts, education,
business,or athleticswhichhasbeendemonstratedby sustainednationalor
internationalacclaimandwhoseachievementshavebeenrecognizedin the
fieldthroughextensivedocumentation,
(ii) thealienseeksto entertheUnitedStatesto continuework in theareaof
extraordinaryability,and
Accordingto informationontheFormI-140petition,thepetitionerwaslastadmittedto theUnitedStatesin 2007asa
B-l nonimmigrantvisitor.
Page3
(iii) the alien's entry into the United Stateswill substantiallybenefit
prospectivelytheUnitedStates.
U.S.CitizenshipandImmigrationServices(USCIS)andlegacyImmigrationandNaturalizationService
(INS) haveconsistentlyrecognizedthatCongressintendedto seta veryhigh standardfor individuals
seekingimmigrantvisasas aliensof extraordinaryability. SeeH.R. 723 101"Cong.,2d Sess.59
(1990);56Fed.Reg.60897,60898-99(Nov.29,1991).Theterm"extraordinaryability" refersonly
to thoseindividualsin thatsmallpercentagewhohaverisento theverytop of thefield of endeavor.
Id and8 C.F.R.§204.5(h)(2).
Theregulationat 8 C.F.R.§ 204.5(h)(3)requiresthatanaliendemonstratehisor hersustainedacclaim
and the recognitionof his or her achievementsin the field. Suchacclaimand achievementsmustbe
establishedeitherthroughevidenceof aone-timeachievement(thatis,amajor,intemationalrecognized
award)or throughmeetingatleastthreeof thefollowingtencategoriesof evidence.
(i) Documentationof thealien'sreceiptof lessernationallyor internationallyrecognized
prizesor awardsfor excellenceinthefieldof endeavor:
(ii) Documentationof the alien's membershipin associationsin the field for which
classificationis sought,which requireoutstandingachievementsof their members,as
judgedbyrecognizednationalor internationalexpertsin theirdisciplinesor fields;
(iii) Publishedmaterialaboutthe alienin professionalor majortradepublicationsor
othermajormedia,relatingto the alien'swork in the field for which classificationis
sought.Suchevidenceshallincludethetitle, date,andauthorof thematerialandany
necessarytranslation;
(iv) Evidenceof thealien'sparticipation,eitherindividuallyor onapanel asajudgeof
theworkof othersin thesameor analliedfieldof specializationfor whichclassification
is sought;
(v) Evidenceof the alien's original scientific, scholarly,artistic, athletic, or business-
relatedcontributionsof majorsignificancein thefield;
(vi) Evidenceof thealien'sauthorshipof scholarlyarticlesin thefield,in professionalor
majortradepublicationsor othermajormedia;
(vii) Evidenceof the displayof the alien'swork in the field at artisticexhibitionsor
showcases;
(viii) Evidencethatthealienhasperformedin aleadingorcriticalrolefororganizations
or establishmentsthathaveadistinguishedreputation;
(ix) Evidencethatthealienhascommandeda highsalaryor othersignificantlyhigh
remunerationfor services,in relationtoothersinthefield;or
Page4
(x) Evidenceof commercialsuccessesin theperformingarts.asshownby box office
receiptsorrecord,cassette,compactdisk,or videosales.
In 2010,theU.S.Courtof Appealsfor theNinthCircuit(NinthCircuit)reviewedthedenialof apetition
filed underthis classification,SeeKazarianv. USC/S,596 F.3d 1115(9* Cir. 2010). Althoughthe
courtupheldtheAAO's decisiontodenythepetition,thecourttookissuewith theAAO's evaluationof
evidencesubmittedto meet a given evidentiarycriterion.2 With respectto the criteria at 8 C.F.R.
§204.5(h)(3)(iv)and(vi), thecourtconcludedthatwhile USCISmayhaveraisedlegitimateconcerns
aboutthesignificanceof theevidencesubmittedto meetthosetwo criteria,thoseconcernsshouldhave
beenraisedin asubsequent"final meritsdetermination."Id.
The court statedthat the AAO's evaluationrestedon an improperunderstandingof the regulations.
Insteadof parsingthesignificanceof evidenceaspartof theinitial inquiry,thecourtstatedthat"the
properprocedureis to countthetypesof evidenceprovided(whichtheAAO did)," andif thepetitioner
failedto submitsufficientevidence,"theproperconclusionisthattheapplicanthasfailedto satisfythe
regulatoryrequirementof threetypesof evidence(asthe AAO concluded)."Id. at 1122(citing to
8 C.F.R.§ 204.5(h)(3)).Thecourtalsoexplainedthe"final meritsdetermination"asthecorollaryto
this procedure:
If a petitionerhassubmittedthe requisiteevidence,USCISdetermineswhetherthe
evidencedemonstratesbotha "levelof expertiseindicatingthattheindividualis oneof
that small percentagewho haverisento the very top of the[ir] field of endeavor,"
8 C.F.R.§ 204.5(h)(2),and"thatthealienhassustainednationalor internationalacclaim
and that his or her achievementshavebeenrecognizedin the field of expertise."
8 C.F.R. § 204.5(h)(3).Only aliens whoseachievementshave gamered"sustained
national or internationalacclaim" are eligible for an "extraordinaryability" visa.
8 U.S.C.§ 1153(b)(1)(A)(i).
Id.at 1119-1120.
Thus.Kazarian setsforth a two-partapproachwherethe evidenceis first countedandthenconsidered
in the contextof a final meritsdetermination.In reviewingServiceCenterdecisions,theAAO will
applythetestsetforth in Kazarian. As theAAO maintainsdenovoreview,theAAO will conducta
newanalysisif thedirectorreachedhis or herconclusionby usinga one-stepanalysisratherthanthe
two-stepanalysisdictatedby theKazariancourt. SeeSpencerEnterprises.Inc. v. UnitedStates,229
F. Supp.2d 1025,1043(E.D.Cal.2001),affd, 345F.3d683(9' Cir. 2003);seealsoSoltanev.
DOJ,381F.3d143,145(3dCir.2004)(notingthattheAAOconductsappellatereviewonadenovo
basis).
II. Analysis
Specifically,the court statedthat the AAO hadunilaterallyimposednovelsubstantiveor evidentiaryrequirements
beyondthosesetforth in theregulationsat8C.F.R.§204.5(h)(3)(iv)and8 C.F.R.§204.5(h)(3)(vi).
Page5
A. EvidentiaryCriteria
This petition,filed on June29, 2007,seeksto classifythe petitionerasan alienwith extraordinary
ability asakaratecompetitorandinstructor.Thepetitionerhassubmittedevidencepertainingto the
following categoriesof evidenceat 8 C.F.R.§204.5(h)(3)
(i) Documentationof the alien's receipt of lesser nationally or internationally
recognizedprizes or awardsfor excellencein thefield of endeavor.
Thepetitionersubmittedevidenceof hisreceiptof first placein theKata- teamdivision,first placein
theKumite- individualdivision,second.lacein theKumite- teamdivision,andsecondplacein the
Kata - individual division at the first placein the
individualkataandkumiteeventsatth firstplacein
thekataandthird placein thekumitedivisionsatthe
secondplacein the Kataeventsat the
; andsecondplacein theSeniorKumitedivisionatthe
Thepetitioneralsosubmittedhiscertificatesof participationforthe
2005 FSKA Annual World KarateChampionships,the 2007 U.S.A. ShotokanKarateFederation
IntemationalMastersTrainingCampandKataBunkaiSeminar,andthe2008InternationalMartialArts
Association(IMAA) Conference,butthereis noevidenceshowingthatthesethreecertificatesequate
to nationally or internationallyrecognizedprizesor awardsfor excellencein karate,ratherthan
simplyacknowledgingthepetitioner'sparticipationin theprecedingevents.Wefurthernotethatthe
2008 IMAA Conferenceoccurredafter this petitionwas filed and thus cannotbe considered.A
petitionermustestablisheligibility at thetimeof filing. 8 C.F.R.§§ 103.2(b)(1),(12);Matterof
Katighak, 14 l&N Dec. 45, 49 (Regl. Commr. 1971). The petitioneralso submittedLettersof
Appreciationfrom the "SherpaSocietyServiceSindhupalchok.Kathmandu"and NepalShotokan
KarateAssociation(NSKA), anda photocopyof a May 20, 2006"Best Playerof the Year2005"
awardplaquefromtheNepalKarateFederation(NKF)andtheNationalSportsCouncil. TheseLetters
of Appreciationandawardplaquewerepresentedto the petitionerin honorof his aforementioned
first placein the kataandthird placein the kumitedivisionsat the
The AAO notedfrom the submittedphotocopythat the petitioner's
awardplaquemisspelled"Coi.mcil"as "Counail."On November17,2009,the AAO requestedthe
originalawardplaqueandinformation"identifyingspecificallyall awardrecipientswhoreceivedthe
'BestPlayerof theYear2005'designation."Thepetitionerrespondedby submittingtheoriginalaward
plaqueanda December16,2009letterfrom the Presidentof the NKF providingsomeinformation
3Thepetitionerdoesnotclaimto meetor submitevidencerelatingtothecriterianotdiscussedin thisdecision.
4Thepetitionersubmitteda letterfromtheNepalKarateFederation,"thenationalgoverningbodyfor thesportof Karate
in Nepal,"stating: "Thereare currentlysix differentnationalKarateassociations.Theyare NepalShotokanKarate
Association,Nepal Shito-RyuKarateAssociation,Nepal Goju-Ryu KarateAssociation.Nepal Wado-RyuKarate
Association,Nepal Reinbu-KaiKarateAssociationandNepal KwanmukanKarateAssociation." The petitioneris
affiliatedwith theNepalShotokanKarateAssociation.
Page6
abouttheaward,buttheresponsedid notspecificallyidentifyall "BestPlayerof theYear2005"award
recipientsas requestedby the AAO. The petitioner'sfailure to submit requestedevidencethat
precludesa material line of inquiry constitutesgroundsfor denying the petition. 8 C.F.R.
§ 103.2(b)(14).
Although documentationof the precedingawardsappearsin the record, informationabout the
significanceandnationalor internationalrecognitionof thepetitioner'sawardsis notablyabsent.The
petitioner submittedexcerptsfrom the "FunakoshiShotokanKarate AssociationVIII World
Championships19thAnnualProgramBookletandYearbook"which includesa photographfrom the
precedingyear'seventshowingthepetitioner,butthismaterialdoesnotestablishthathisawardsfrom
theeventarenationallyor intemationallyrecognized.Thepetitioner'sawardsareaccompaniedby no
informationabouthiscontests,includinghowthecontestswerenationallyor internationallyrecognized
in thefieldof karateor in thegeneralareaof martialarts. Thepetitionerdidnot submitevidencesuch
asthe numberof participantsin his competitivecategories,the standingor recognitionof the other
participantsin his categories,or anyotherindicationthat winninghis awardsconferrednationalor
internationalrecognitionfor excellencein karateor the martial arts. The plain languageof the
regulatorycriterionat 8 C.F.R.§204.5(h)(3)(i)specificallyrequiresthatthe petitioner'sawardsbe
nationallyor internationallyrecognizedin thefield of endeavorandit is hisburdento establishevery
elementof this criterion. In this case,thereis no evidenceestablishingthatthe petitioner'sawards
had a significant level of recognition beyondthe context of the eventswhere they were presented.
Moreover, a competition may be opento athletesfrom throughouta particular country or countries,
but this factor alone is not adequateto establish that an award or prize is "nationally or
internationallyrecognized."Theburdenis on the petitionerto demonstratethe level of recognition
and achievementassociatedwith his awards. Furthermore,with regardto awardswon by the
petitionerin obscurekaratecompetitionsnot demonstratedto havea significantpool of competitors,
we cannotconcludethat suchawardsdemonstratequalifying forms of nationalor international
recogmtion.
Thepetitionersubmittedadditionalcertificatesfor his successfulcompletionof trainingcoursesand
attainment of various belt rankings, but these certificates do not equate to nationally or
internationally recognizedprizesor awardsfor excellencein the field. The first and seconddegree
blackbelt certificatesreflectthat the petitionerearneda promotionin rankbasedon his successful
completionof akarateskills test. Suchpromotionsareinherentto themartialartsandtheyrepresent
standardizedprogressionto thenextskill level.
In lightof theabove,thepetitionerhasnotestablishedthathemeetsthiscriterion.
(ii) Documentationof the alien's membershipin associationsin thefield for which
classificationis sought,which requireoutstandingachievementsof their members,as
judgedbyrecognizednationalor internationalexpertsin theirdisciplinesorfields.
In orderto demonstratethat membershipin an associationmeetsthis criterion,a petitionermust
showthattheassociationrequiresoutstandingachievementasanessentialcondhionfor admissionto
membership.Membershiprequirementsbasedon employmentor activity in a giventield, minimum
Page7
educationor experience,proficiencycertifications,standardizedtest scores,gradepoint average,
recommendationsby colleaguesor currentmembers,or paymentof dues,donot satisfythiscriterion
assuchrequirementsdo not constituteoutstandingachievements.Further,the overallprestigeof a
given associationis not determinative;the issuehereis membershiprequirementsratherthan the
association'soverallreputation.
Thepetitionersubmittedevidenceof hismembershipin theKaratenomichiWorldFederation(KWF)
and the FSKA of Milpitas, California. In responseto the director's requestfor evidence,the
petitionersubmitteda letterfrorr stating:
FSKA is a worldwideorganizationthat offersbenefitsto enhanceyour personalaswell as
karatedevelopment.
Shouldyoudesireto becomeamember,pleasesendyourcashier[']scheckor moneyorderin
U.S. Dollarsto FSKA ($150.00)andincludea passportsizedphotoof yourselfassoonas
possibleto assurethatyouwill beincludedin thisyear'sFSKA InternationalYearbook.
Theprecedinginformationindicatesthatmembershipin theFSKA is contingentuponpaymentof a
feeratherthanoutstandingachievementsin karate.Onappeal,thepetitionersubmitsa May 4, 2008
letter from statingthat the petitionerwas invited to join
FSKAandKWF "becauseof hisoutstandingskill asa Karateathlete,"buttheprecedingcommentin
letter doesnot establishthat the FSKA requiresoutstandingachievementsof its
members.With regardto the petitioner'sKWF membership,the recorddoesnot includeevidence
from the KWF (such as bylaws or rules of admission)showing that it requiresoutstanding
achievementsof its members,as judged by recognizednational or internationalexpertsin the
petitioner'sfield.
Thepetitionersubmitteda December17,2003
statingthatthepetitionerwasselectedasa memberof theRefereeCouncil. Thatlettercontainedno
indication as to how the petitionerwas chosento be a memberor what criteria were usedin
evaluatinghis applicationor nomination. In responseto the director'srequestfor evidence,the
petitionersubmitteda February3, 2008letterfrom
indicatingthatthe only prerequisitefor membershipis qualificationasa referee. letter
states:
The RefereeCouncil is a technicalcommitteeunderthe NKF which developsrules and
regulationsfor Karate,aspertheWKFguidelines.It alsoconductsvariouskarateactivities
and it is the sole arbitrator that recommendsthe National Karate Federation,as an
organization,to sanctionrefereepermitsto playersof differentkarateassociations.It also
collaborateswith existingnationalkarateassociationsto providerefereesfor any national
andinternationalleveltournamentsorganizedby them.
Page8
The RefereeCouncilis composedof qualifiedrefereesbelongingto differentstylenational
Karateassociations.Therearecurrentlysix differentnationalKarateassociations.Theyare
NepalShotokanKarateAssociation,NepalShito-RyuKarateAssociation,NepalGoju-Ryu
Karate Association, Nepal Wado-Ryu Karate Association, Nepal Reinbu-Kai Karate
AssociationandNepalKwanmukanKarateAssociation.Eachof thesesix Associationssend
at leasttwo members,who haverefereepermits,to be on the RefereeCouncil.Theseare
usually outstandingkarate players at a national level and who are instructorsin their
respectiveAssociations.
statesthat the NKF's RefereeCouncil is composedof "qualified referees"that "are
usuallyoutstandingkarateplayersata nationallevel" [emphasisadded],buthedoesnotindicatethat
outstandingachievementsare a prerequisitefor acceptanceto membership. Further,thereis no
evidenceshowingthat prospectivemembersarejudged by recognizednationalor international
expertsin thepetitioner'sfield.
The petitioner'sresponseto the director'srequestfor evidenceincludeda February1,2008letter
frorr stating:
This letteris to confirmthat[thepetitioner]hasbeenaninstructorof NepalShotokanKarate
Associationsince1999. To qualify asan instructorfor NSKA, the playermustpossessa
level aboveblack belt, receivevariousinstructorcoursesand mustbe someonewho has
demonstratedmasteryin Karateby winningvariouschampionshipsandtournaments.
letter doesnot specifythe level of expertiseof the competitionsor the geographic
scopeof the "championshipsand tournaments"in which a prospectiveNSKA instructormust
demonstratemasteryin karate. For instance,his statementsdo not precludethe winnerof a local
studenttournamentfrom qualifying. Nevertheless, commentsare unsupportedby
copiesof the regulations,bylaws,or official rulesof admissionfor the NSKA. Going on record
without supportingdocumentaryevidenceis not sufficientfor purposesof meetingthe burdenof
proofin theseproceedings.MatterofSoffici, 22I&N Dec.158,165(Comm.1998)(citingMatterof
TreasureCraft of California, 14I&N Dec.190(Reg.Comm.1972)). Further,thereis no evidence
showingthat prospectiveNSKA instructorsare judged by recognizednational or international
expertsin thepetitioner's field.
Thepetitioner'sresponsealsoincludedcertificatesfrom theIMAA appointinghim asanauthorized
instructoronJanuary26,2008and"asanofficial member"from January1,2008until December31,
2008. The petitioner's admissionto membershipin the IMAA post-datesthe petition's June29,
2007filing date. As previouslydiscussed,a petitionermustestablisheligibility atthetime of filing.
8 C.F.R.§§103.2(b)(1),(12);MatterofKatigbak,14I&N Dec.at49.
On appeal,the petitionersubmitshis membershipcardfor the USA NationalKarateDo Federation
(USA-NKF)with anexpirationdateof December31,2008. Thepetitioneralsosubmitsinformation
fromtheUSA-NKFwebsitestatingthatit is "thelargestKarateOrganizationin theUnitedStates"
andthat anyoneinterestedin the organizationshould"acquaintyourselfwith our Organizational
Page9
structureandthenpleasejoin us asa member."5The informationsubmittedfrom the USA-NKF
websitedoesnot establishthat the organizationrequiresoutstandingachievementsof its members.
Nevertheless,thereis no evidenceshowingthatthepetitionerwasa memberof theUSA-NKFatthe
timeof filing thepetition.8C.F.R.§§103.2(b)(1),(12);MatterofKatigbak,14I&N Dec.at49.
Noneof theevidencesubmittedby thepetitionerdemonstratesthatanyof theprecedingassociations
requireoutstandingachievementsof their members,asjudgedby recognizednationalor international
expertsin his field. Accordingly, thepetitionerhasnot establishedthat hemeetsthis criterion.
(iii) Publishedmaterial about the alien in professionalor major tradepublications or
other major media,relating to the alien's work in thefield for which classificationis
sought. Suchevidenceshall includethetitle, date,and author of thematerial,andany
necessarytranslation.
In general,in orderfor publishedmaterialtomeetthiscriterion,it mustbeprimarilyaboutthepetitioner
and,asstatedin the regulations,beprintedin professionalor majortradepublicationsor othermajor
media. To qualify asmajor media,the publicationshouldhavesignificantnationalor international
distribution. Somenewspapers,suchastheNewYorkTimes,nominallyservea particularlocalitybut
wouldqualifyasmajormediabecauseof significantnationaldistribution,unlikesmalllocalcommunity
papers.0
Thepetitionersubmittedphotographsof him appearingin the FSKA VIII World Championships19'"
Annual ProgramBookletand Yearbook,the NSKA Bulletin for the 2005InternationalInvitational
ShotokanKarateChampionship,andthe NSKA ShotokanKarate"Souvenir- 2062"programbook.
Theplain languageof this regulatorycriterionrequiresthesubmissionof "[p]ublishedmaterialabout
thealienin professionalor majortradepublicationsor othermajormedia"including"thetitle,date,and
authorof thematerial."Theprecedingphotographsof thepetitionerdonotmeettheserequirements.
Thepetitionerinitially submittedthefollowingarticles:
1. " publishedinth
2. ' publishedin the
3. publishedinthe
4. publishedinthe
5.
6. publishedin the
5TheUSA-NKFswebsitestatesthattheorganizationissanctionedbytheU.S.OlympicCommitteeandis"theNational
GoverningBodyfor theSportof KarateintheUnitedStates."
Evenwith nationally-circulatednewspapers,considerationmustbegivento theplacementof thearticle. Forexample,
anarticlethatappearsin the WashingtonPost,but in a sectionthatis distributedonly in FairfaxCounty,Virginia,for
instance,cannotserveto spreadan individual's reputationoutsideof thatcounty.
Page10
With regardto articles1 - 6, their authorswerenot specificallyidentifiedasrequiredby the plain
languageof thisregulatorycriterion. Moreover,article1containedonly four sentencesdiscussingthe
petitioner;article2 containedonly a singlesentencementioninghim; articles4 and6 containedonly
two sentencesdiscussinghim; andarticle5 containedonlythreesentencesdiscussinghim. Theplain
languageof theregulatorycriterionat8 C.F.R.§ 204.5(h)(3)(iii)requiresthatthepublishedmaterialbe
"aboutthealien." Themajorityof theprecedingarticlesarenot aboutthepetitioner;instead,theyare
abouta tournamentasa wholeor abouthis teamasa wholewith his competitiveresultsonly being
briefly mentioned.Regardingarticle3, thereis no evidence(suchascirculationinformationfrom an
independentsource)showingthat4qualifies asprofessionalor majortradepublicationor some
otherformof majormedia.In responseto thedirector'srequestfor evidence,thepetitionersubmitteda
letterfrom "PressCouncilNepal"which providescirculationnumbersby regionfor
but the letterincludesno comparisonbetweenthesepublicationsand
otherpublicationsin Nepalshowingthatthey qualify asprofessionalor majortradepublicationsor
othermajormedia.
Thepetitioner'sresponsealsoincludedan onlinearticlefrom Martialartnews.comabouthim, dated
The petitionersubmittedgeneralinformationaboutMartialartnews.comfrom its
website,butthereisnoevidence(suchasreadershipstatistics)showingthatit qualifiesasaprofessional
or majortradepublicationor someotherformof "major"media.
In lightof theabove,thepetitionerhasnotestablishedthathemeetsthiscriterion.
(iv) Evidenceofthe alien'sparticipation,eitherindividuallyor onapanel,asajudge of
the work of othersin thesameor an alliedfield of specificationfor whichclassification
is sought.
Thepetitionersubmitteda December2003certificatefrom theNKF statingthathe"completedthe
NationalRefereeCourse"conductedby theNKF. Thepetitioneralsosubmittedan"Identity Card"
reflecting his participation in the NKF's "3'd National RefereeSeminar& Examination" in
November 2005. Neither of these documentsconstitutesevidenceof the petitioner's actual
participationasajudge. Rather,theevidenceis reflectiveof histrainingandcertificationto become
a referee.Thepetitioners initial evidencealsoincludedhis"Referee"credentialfrom the
The record does not include
informationregardingthe individualsherefereedor the specificcompetitivecategoriesto whichhe
wasassignedin the tournament.Moreover,thereis no evidencedemonstratingthat
karaterefereesactuallyjudgecompetitors,suchasassigningpointsor determiningwinners,ratherthan
merelyenforcingtherulesandmaintaininga senseof fair play. Therecordlacksofficial competition
rulesfor the tournamentshowingthatservingasa "referee"in this instanceequatesto participating
asa "judge" of thework of others.Accordingly,thepetitionerhasnotestablishedthathemeetsthis
criterion.
(v) Evidenceofthe alien's original scientific,scholarly, artistic, athletic, or business-
relatedcontributionsof majorsignificancein thefield.
Page11
In theoriginal submission,counselclaimsthatthepetitioneris eligible underthis criterionby virtue
of his participationat theFSKAVII AnnualWorldKarateChampionshipin 2005,the2007USA
ShotokanKarateFederationMastersTrainingCamp,andthe 2007OzawaCupInternationalKarate
Tournament.Counseldoesnot explainhowsuchparticipationwas"original" in the sportof karate.
There is no evidencedemonstratingthat the petitioner'sparticipationin theseeventsequatesto
originalathleticcontributionsof majorsignificancein thefield. We furthernotethatthepetitioner's
competitiveawards(suchasthosefrom have
alreadybeenaddressedundertheregulatorycriterionat 8 C.F.R.§ 204.5(h)(3)(i).Hereit shouldbe
emphasizedthattheregulatorycriteriaareseparateanddistinctfrom oneanother.Becauseseparate
criteriaexist for awardsandoriginalcontributionsof majorsignificancein the field, USCISclearly
doesnotview thesecriteriaasbeinginterchangeable.Toholdotherwisewouldrendermeaninglessthe
statutoryrequirementfor extensiveevidenceor theregulatoryrequirementthata petitionermeetat least
threeseparatecriteria.
Thepetitionersubmittedlettersof supportfrom hispersonalcontactsdiscussinghisachievementsas
a karatecompetitorandhis qualificationsasaninstructor. Successandqualificationsin one'ssport,
however,arenot necessarilyindicativeof originalcontributionsof majorsignificancein thefield. The
recordlacksevidenceshowingthat the petitionerhasmadeoriginal athleticcontributionsthathave
significantlyinfluencedor impactedhisfield.
, states:
[The petitioner]is an internationallywell knownexpertin TraditionalJapaneseKarateand
frequentlyparticipatesin World LevelKarateevents.I haveknownhim personallyfor over
10 yearsand I can stronglyvouch for his outstandingcharacterandprofessionalismas a
sportsmanandhumanbeing. [The petitioner]is an internationallylicensedinstructorand
World level competitor.
Theletterfrom doesnot specifyexactlywhatthepetitioner'soriginalcontributions
in the sportof karatehavebeen,nor is thereanexplanationindicatinghow any suchcontributions
wereof major significancein his field. It is not enoughto betalentedandto haveothersattestto
that talent. An alien musthavedemonstrablyimpactedhis field in orderto meetthis regulatory
criterion.
In responseto the director'srequestfor evidence,thepetitionersubmitteda February1,2008letter
from ShantaThokarstating:
[Thepetitioner]is thefirst Nepalito mastertheKataandKumiteformsof ShotokanKarate
in NepalandhasmadesignificantcontributionstheNSKA [sic]. He openedthedoorfor
Nepal to enterinternationallevel of competitionin this field. Theseare combinationof
techniquesin fighting and demonstration,which are specializedforms. An instructorcan
conducttraining in thesespecializedforms of karateonly after havingreceivednumerous
Page12
championshipsand acquiring outstandingrecord. [The petitioner] is one of the few
instructorsteachingtheseformsof Karateto NSKA members.As aninstructor,hehasmade
significant contributionto our Associationin promotingShotokanKarate.
In addressingtheevidencesubmittedfor thiscriterion,thedirector'sdecisionstated:
While thepetitioneris claimingthis criterion,therecordlacksevidencethathehasmade. . .
original athleticcontributionsto the field. Specifically,while the original recordindicates
thatthe petitionerhasparticipatedin athleticcompetitionsandtrainedstudentsin the field,
neither is indicative of an original contributionto the field. Rather,the petitioner was
competingandteachinga well establishedmartialart. Thereis nothingto demonstratethat
the petitionermadespecificoriginal contributionsto the field, suchas a new methodof
instructionor modifiedkaratemoves.Thereis alsonothingto suggestthatanycontributions
made by the petitioner have had major significancein the field, such as through the
widespreadadoptionof a methodof instruction.
Therefore,the petitionerwasrequestedto submitobjectivedocumentationestablishinghis
specificoriginal contributionsto the field, andto submitdocumentationdemonstratingthe
importanceof suchcontributionsto thefield. Thepetitionerwasadvisedthatclaimsmadein
witnesslettersshouldbesupportedbydocumentaryevidence.
In response,the petitionerrelied solelyon a statementfrom the NSKA. While not without
merit,theopinionsof others,includingexpertsin thefield, cannotform thecornerstoneof a
successfulclaim. Evidencein existenceprior to thepreparationof thepetitioncarriesgreater
weightthannewmaterialspreparedespeciallyfor submissionwith thepetition.
Further,the statementsuggeststhatthepetitionerhasmadea significantcontributiondueto
his masteryof the Kata and Kumite forms of karate.The letter indicatesthat theseare
specializedforms,andthat the petitioner'smasteryand subsequentteachingof the forms
significantlyimpactedthe NSKA andtheir abilitiesto competeinternationally.However,it
doesnotappearthatthis representsanoriginalcontributionto thefield. TheKataandKumite
formsexistedprior to thepetitioner'strainingandexperience,andthereis nothingto suggest
that he significantly modified the forms or otherwisemade an original contribution.
Masteringandsubsequentlyteachinganexistingmartialart form is not demonstrativeof an
originalcontributionto thefield. Whilethis suggeststhatthepetitioneris skilledin thefield,
it hasnot beendemonstratedthatthepetitionerhasmadeanyoriginal athleticcontributions
of majorsignificance.
The petitioner'sappellatesubmissiondoesnot challengeany of the director's findings for this
regulatorycriterion. Uponreview,we find thedirectorproperlyconsideredthe evidencesubmitted,
thoroughlyaddressedthe petitioner's arguments,and appropriatelyaddressedthe evidenceand
argumentsin theApril 11,2008decision.
Page13
Accordingto the regulationat 8 C.F.R.§204.5(h)(3)(v),an alien'scontributionsmustbe not only
original but of major significance. We mustpresumethat the phrase"major significance"is not
superfluousand,thus.thatit hassomemeaning.While the petitionerhasearnedthe admirationof
hisreferences,thereis no evidencedemonstratingthathis impacton thesportis commensuratewith
anoriginalathleticcontributionof majorsignificancein thefield.
In this case,the lettersof supportsubmittedby thepetitionerarenot sufficientto meetthis criterion.
USCISmay, in its discretion,useas advisoryopinionsstatementssubmittedasexperttestimony.
SeeMatter of CaronInternational, 19 I&N Dec. 791, 795 (Commr. 1988). However,USCISis
ultimately responsiblefor making the final determinationregardingan alien's eligibility for the
benefitsought.Id Thesubmissionof lettersfromexpertssupportingthepetitionis notpresumptive
evidenceof eligibility; USCISmayevaluatethe contentof thoselettersasto whethertheysupport
the alien's eligibility. Seeid. at 795. Thus,the contentof the writers' statementsandhow they
becameawareof the petitioner'sreputationare importantconsiderations.Even when written by
independentexperts,letterssolicitedby an alien in supportof an immigrationpetitionareof less
weight than preexisting,independentevidencethat one would expectof a karatecompetitoror
instructor who has made original contributions of major significance. Without extensive
documentation showing that the petitioner's work equatesto original contributions of major
significancein hisfield, wecannotconcludethathemeetsthiscriterion.
(vii) Evidenceof the displayof the alien'swork in thefield at artistic exhibitionsor
showcases.
In theoriginalsubmission,counselclaimsthatphotographsof thepetitionercompetingin variouskarate
tournamentsmeetthiscriterion.Thepetitioner'sfield, however.is notin thearts. Theplainlanguage
of this regulatorycriterion indicatesthatit appliesto artistsratherthanto karatecompetitors.The
tencriteria in the regulationsaredesignedto coverdifferentareas;not everycriterionwill applyto
everyoccupation.Thepetitioner'sparticipationandsuccessin karatecompetitionshavealreadybeen
addressedundertheawardscriterionat8 C.F.R.§204.5(h)(3)(i).Virtuallyeveryathlete"displays"his
work in the senseof competingin front of an audience.Thepetitionerhasnot establishedthathis
participationin competitionscomparesto the artisticshowcasescontemplatedby this regulationfor
artists.Accordingly,thepetitionerhasnotestablishedthathemeetsthiscriterion.
(viii) Evidencethat the alien has performed in a leading or critical role for
organizationsor establishmentsthathavea distinguishedreputation.
Thepetitionerclaimseligibility underthiscriterionby virtueof hisparticipationwith the NSKA asa
competitor,teamcoach,andinstructor.TheinformationsubmittedabouttheNSKA wasgeneratedby
thatorganization.It statesthattheNSKA "is a nationalkarateorganizationin Nepal"and"is theonly
legalShotokanstylekarateorganizationthatis officially recognizedby theNationalSportsCouncilof
Nepalfor thepromotionof Karate." Thisself-servingmaterialdoesnotcontainanyinformationabout
theNSKA's reputationandthusdoesnot indicatethattheNSKA enjoysa distinguishedreputationin
thesportof karate.Further,thedocumentationsubmittedbythepetitionerdoesnotestablishthathis
rolefor theNSKA wasleadingor critical. TheFebruary1,2008letterfrom states:
Page14
[Thepetitioner]hasinstructedmorethanthousand[sic] studentsovertheyears. Thoughwe
havearound50instructors,[thepetitioner]isparticularly[sic]distinguishableinstructorbecause
he hasmasteredthe Kata andKumite formsof Karate.. . . As an instructor,he hasmade
significantcontribution[sic]to ourAssociationin promotingShotokanKarate.
The left side of letter identifies multiole aositionsin the NSKA such
andMembers.7The
letter from doesnot explain how the petitioner's ability to teachthe Kata and Kumite
karate forms specifically contributesto the overall mission of the NSKA, how this training
distinguishesthe petitioner from the organization'sexecutiveofficers or other instructorswho
presumablymay also have specialties,or otherwiseconstitutesa leadingor critical role. The
submittedevidencedoesnot establishthatthatthepetitionerhasbeenresponsiblefor thesuccessor
standingof theNSKA to a degreeconsistentwith themeaningof "leadingor critical role." Finally,
section203(b)(1)(A)(i)of theAct requiresthesubmissionof extensiveevidence.Consistentwith that
statutoryrequirement,theregulationat8 C.F.R.§204.5(h)(3)(viii)requiresthesubmissionof evidence
of a leadingor criticalrolefor morethanonedistinguishedorganizationor establishment.Therefore,
evenif we foundthepetitioner'srolewith theNSKA to bequalifying,whichwedo not,a leadingor
criticalrolein asingledistinguishedorganizationdoesnotmeettheplainlanguageof theregulation.
In lightof theabove,thepetitionerhasnotestablishedthathemeetsthiscriterion.
Summary
In this case,we concurwith thedirector'sdeterminationthatthepetitionerhasfailedto demonstrate
his receiptof a major, internationallyrecognizedaward,or that he meetsat leastthreeof the ten
categoriesof evidencethat must be satisfiedto establishthe minimum eligibility requirements
necessaryto qualify as an alien of extraordinaryability. 8 C.F.R. § 204.5(h)(3). A final merits
determinationthatconsidersall of theevidencefollows.
B. Final MeritsDetermination
In accordancewith the Kazarianopinion,we mustnext conducta final meritsdeterminationthat
considersall of the evidencein the contextof whetheror not the petitionerhasdemonstrated:(1) a
"level of expertiseindicatingthatthe individualis oneof thatsmallpercentagewhohaverisento the
very top of the[ir] field of endeavor,"8C.F.R.§204.5(h)(2);and (2) "that the alien hassustained
nationalor internationalacclaimandthathisor herachievementshavebeenrecognizedin thefield of
expertise."Section203(b)(1)(A)of theAct; 8 C.F.R.§204.5(h)(3).SeealsoKazarian,596F.3dat
1119-1120.In the presentmatter,manyof the deficienciesin the documentationsubmittedby the
petitioner have alreadybeenaddressedin our precedingdiscussionof the regulatorycriteria at
8C.F.R.§§204.5(h)(3)(i),(ii), (iii), (iv),(v),(vii), and(viii).
7l'he petitioner'snameisnotlistedamongtheexecutiveofficersorthesevenMembersof theNSKAidentifiedonthe
association'sletterhead.
Page15
Regardingtheawardssubmittedby thepetitionerfor 8 C.F.R.§§204.5(h)(3)(i),thereis no evidence
showingthathe facedtop nationalor internationalkaratecompetitorsin generalratherthanlimited
to thosecompetingin the Shotokankaratestyle. As previouslynoted,the petitionersubmitteda
letterfrom the NepalKarateFederationidentifyingsix differentnationalKarateassociationsin his
native country including the Nepal ShotokanKarate Association, Nepal Shito-Ryu Karate
Association,Nepal Goju-Ryu Karate Association,Nepal Wado-RyuKarate Association,Nepal
Reinbu-KaiKarateAssociation,and Nepal KwanmukanKarateAssociation. Without evidence
showingthat he faceda significantpool of top karatecompetitorsin Nepal,the United States,or
internationally, we cannotconcludethat his awardsdemonstratesustainednational or international
acclaim. Awardswonby thepetitionerin age-restrictedtournaments,in competitivedivisionswith
only a limited pool of entrants,or m competitionsnot shownto havea level of statureandscope
comparableto thoseidentifiedon thesubmittedUSA-NKFwebsitepagedo notestablishthathe"is
oneof thatsmallpercentagewho haverisento theverytop of thefield of endeavor."8See8 C.F.R.
§ 204.5(h)(2). USCIShaslong heldthatevenathletesperformingat the majorleaguelevel do not
automaticallymeetthe "extraordinaryability" standard.Matter of Price, 20 I&N Dec. 953, 954
(Assoc.Commr.1994);56Fed.Reg.at60899." Likewise,it doesnot follow thatanathletewhohas
hadsuccessin karatecompetitionslimited to a particularagegroupor in tournamenteventswith a
small pool of entrantsshould necessarilyqualify for an extraordinaryability employment-based
immigrant visa. To find otherwisewould contravenethe regulatory requirementat 8 C.F.R.
§ 204.5(h)(2)that this visacategorybereservedfor "that smallpercentageof individualsthathave
risento the very top of their field of endeavor."Further,regardingthe petitioner's"BestPlayerof
the Year2005"award,thereis no evidenceindicatingthatthisawardis commensuratewith sustained
nationalor internationalacclaimat the very top of the field. Despitethe nameof the award"Best
Player"implyingasinglewinner,it appearsthatmultipleawardsweregiven.
With regardto theevidencesubmittedfor theregulatorycriterionat 8 C.F.R.§ 204.5(h)(3)(iv),the
petitionersubmittedno evidencedemonstratingthe reputation,significance,or magnitudeof the
January2005"First All KarateOpenInternationalChampionships"or thelevelof expertiseof those
purportedly"refereed"by him. Moreover,we notethatthepetitionerhassubmittedevidenceof his
®The USA-NKF websitepagesubmittedby the petitioneridentifieskaratecompetitionssuchas the USA National
Championship,theWorldChampionships,ThePanAmericanGames,theWorldCup,andtheWorldGames.
9WhileweaCknoWledgethata districtcourt'sdecisionis notbindingprecedent,we notethatin Matterof Racine,1995
WL 153319at*4 (N.D. Ill. Feb.16,1995),thecourtstated:
[T]he plain readingof the statutesuggeststhat the appropriatefield of comparisonis not a comparisonof
Racine'sability with that of all the hockeyplayersat all levelsof play; but rather,Racine'sability as a
professionalhockeyplayerwithin theNHL. Thisinterpretationis consistentwith at leastoneothercourtin this
district,Grimsonv./NS.No.93C 3354,(N.D.111.September9, 1993),andthedefinitionof theterm8C.F.R.
6204.5(h)(2),andthediscussionsetforthin thepreambleat56Fed.Reg.60898-99.
Althoughthe presentcasearosewithin thejurisdictionof anotherfederaljudicial districtandcircuit,the court's
reasoningindicatesthatUSCIS'interpretationof theregulationat8C.F.R.§204.5(h)(2)isreasonable.
Page16
participationasa "referee"for only onecompetition.Thestatuteandregulations,however,require
"extensivedocumentation"andthepetitionerto demonstratehisnationalor internationalacclaimin the
sport of karate has been sustained. See section 203(b)(1)(A)(i) of the Act, 8 U.S.C.
§ 1153(b)(1)(A)(i),and 8 C.F.R. §204.5(h)(3). The documentationsubmittedfor 8C.F.R.
§ 204.5(h)(3)(iv)is not extensiveor consistentwith sustainednationalor internationalacclaim. On
appeal,counselassertsthatit is difficult to qualifyasa refereeasevidencedby the February1,2008
letter from indicatingthat only sevenof fifty NSKA instructorshavequalified.
states: "To get a licenseasreferee,the playermustbe an instructor;mustattendreferee
coursesorganizedby the person'saffiliated associationandRefereeCouncil;attendtraining from
Nepal KarateFederationand take both practicaland written examsadministeredby the Referee
Council." Thesequalificationsdo not supportcounsel'sargumentthat sustainedacclaim or
significantachievementsin karatearea prerequisitefor becominga referee,nor was information
providedasto why the 43 non-refereeshavenot acquiredtherefereecertificate(for example,they
mayhavechosennot to bearefereeandhavenottakentherequisitecourses).
While the petitionerhasearnedthe respectandadmirationof his references,theevidenceof record
falls shortof demonstratinghis sustainednationalor internationalacclaimasa karatecompetitoror
instructor. Theconclusionwe reachby consideringtheevidenceto meeteachcriterionat 8 C.F.R.
§ 204.5(h)(3)separatelyis consistentwith a reviewof the evidencein the aggregate.Evenin the
aggregate,the evidencedoesnot distinguishthe petitionerasoneof the smallpercentagewho has
risento theverytopof thefield of endeavor.8 C.F.R.§ 204.5(h)(2).
IIL Conclusion
Reviewof therecorddoesnot establishthatthepetitionerhasdistinguishedhimselfto suchanextent
thathemaybesaidto haveachievedsustainednationalor internationalacclaimandto bewithin the
small percentageat the very top of his field. The evidenceis not persuasivethat the petitioner's
achievementssethim significantlyabovealmostall othersin his field at a nationalor international
level. Therefore,thepetitionerhasnot establishedeligibility pursuantto section203(b)(1)(A)of the
Act andthepetitionmaynot beapproved.
An applicationor petition that fails to comply with the technicalrequirementsof the law may be
deniedby the AAO evenif the ServiceCenterdoesnot identify all of the groundsfor denialin the
initial decision.SeeSpencerEnterprises,Inc. v. UnitedStates,229 F. Supp.2d at 1043,affd, 345
F.3d at 683; seealso Soltanev. DOJ, 381 F.3d at 145(noting that the AAO conductsappellate
review on a de novobasis).
Thepetitionwill bedeniedfor theabovestatedreasons,witheachconsideredasanindependentand
alternativebasisfor denial. In visapetitionproceedings,theburdenof provingeligibility for the
benefitsoughtremainsentirelywith thepetitioner.Section291of theAct. 8 U.S.C.§ 1361.Here,
thatburdenhasnotbeenmet.
ORDER: Theappealisdismissed.