dismissed
EB-1A
dismissed EB-1A Case: Education
Decision Summary
The appeal was dismissed because the petitioner failed to demonstrate eligibility under the requisite three evidentiary criteria. The petitioner abandoned the 'awards' criterion on appeal. For the 'membership' criterion, the evidence of her appointment as a director did not prove that the position required outstanding achievements as an essential condition for all such appointees.
Criteria Discussed
Lesser Nationally Or Internationally Recognized Prizes Or Awards Membership In Associations Requiring Outstanding Achievement Judging The Work Of Others Leading Or Critical Role For Distinguished Organizations
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(b)(6)
Date:
JUN 2 0 2014
INRE: Petitioner:
Beneficiary:
Office: NEBRASKA SERVICE CENTER
U.S. Department of Homeland Security
U.S. Citizenship and Immi gration Services
Offi ce of Admin istra tive App eals
20 Massachusetts Ave. , N.W., MS 2090
Washington , DC 20529-2090
U.S. Citizenship
and Immigration
Services
FILE:
PETITION: Immigrant Petition for Alien Worker as an Alien of Extraordinary Ability Pursuant to Section
203(b)(l)(A) of the Immigration and Nationality Act, 8 U.S.C. § 1153(b)(l)(A)
ON BEHALF OF PETITIONER:
INSTRUCTIONS:
Enclosed please find the decision of the Administrative Appeals Office (AAO) in your case.
This is a non-precedent decision. The AAO does not announce new constructions of law nor establish agency
policy through non-precedent decisions. If you believe the AAO incorrectly applied current law or policy to
your case or if you seek to present new facts for consideration, you may file a motion to reconsider or a
motion to reopen, respectively. Any motion must be filed on a Notice of Appeal or Motion (Form I-290B)
within 33 days of the date of this decision. Please review the Form I-290B instructions at
http: //www.uscis.gov/forms for the latest information on fee, filing location, and other requirements.
See also 8 C.F.R. § 103.5. Do not file a motion directly with the AAO.
Thank you,
J1 !J.fj)_{/ ndv
(IRon Rosenberg
V Chief, Administrative Appeals Office
www.usds.gov
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DISCUSSION: The Director, Nebraska Service Center, denied the immigrant visa petition and the
matter is now before the Administrative Appeals Office (AAO) on appeal. The appeal will be
dismissed.
The petitioner seeks classification as an employment-based immigrant pursuant to section
203(b)(l)(A) of the Immigration and Nationality Act (the Act), 8 U.S.C. § 1153(b)(l)(A), as an alien
of extraordinary ability in education. The director determined that the petitioner had not met the
requisite criteria for classification as an alien of extraordinary ability.
On appeal, the petitioner submits a brief and additional evidence. In the brief, the petitioner asserts
that she meets the categories of evidence at 8 C.P.R. § 204.5(h)(3)(ii), (iv), and (viii).
I. lAW
Section 203(b) of the Act states, in pertinent part, that:
(1) Priority workers. --Visas shall first be made available ... to qualified immigrants who
are aliens described in any of the following subparagraphs (A) through (C):
(A) Aliens with extraordinary ability. -- An alien is described in this
subparagraph if --
(i) the alien has extraordinary ability in the sciences, arts,
education, business, or athletics which has been
demonstrated by sustained national or international acclaim
and whose achievements have been recognized in the field
through extensive documentation,
(ii) the alien seeks to enter the United States to continue
work in the area of extraordinary ability, and
(iii) the alien's entry into the United States will
substantially benefit prospectively the United States.
U.S. Citizenship and Immigration Services (USCIS) and legacy Immigration and Naturalization Service
(INS) have consistently recognized that Congress intended to set a very high standard for individuals
seeking immigrant visas as aliens of extraordinary ability. See H.R. 723 101
51
Cong., 2d Sess. 59
(1990); 56 Fed. Reg. 60897, 60898-99 (Nov. 29, 1991). The term "extraordinary ability" refers only to
those individuals in that small percentage who have risen to the very top of the field of endeavor. !d.;
8 C.P.R. § 204.5(h)(2).
The regulation at 8 C.F.R. § 204.5(h)(3) requires that the petitioner demonstrate the alien's sustained
acclaim and the recognition of his or her achievements in the field. Such acclaim must be established
either through evidence of a one-time achievement (that is, a major, international recognized award) or
(b)(6)
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through the submission of qualifying evidence under at least three of the ten categories of evidence
listed at 8 C.F.R. § 204.5(h)(3)(i)-(x).
In 2010, the U.S. Court of Appeals for the Ninth Circuit (Ninth Circuit) reviewed the denial of a petition
filed under this classification. Kazarian v. USCIS, 596 F.3d 1115 (9th Cir. 2010). Although the court
upheld our decision to deny the petition, the court took issue with our evaluation of evidence submitted
to meet a given evidentiary criterion.1 With respect to the criteria at 8 C.F.R. § 204.5(h)(3)(iv) and (vi),
the court concluded that while USCIS may have raised legitimate concerns about the significance of the
evidence submitted to meet those two criteria, those concerns should have been raised in a subsequent
"final merits determination." /d. at 1121-22.
The court stated that our evaluation rested on an improper understanding of the regulations. Instead of
parsing the significance of evidence as part of the initial inquiry, the court stated that "the proper
procedure is to count the types of evidence provided (which we did)," and if the petitioner failed to
submit sufficient evidence, "the proper conclusion is that the applicant has failed to satisfy the
regulatory requirement of three types of evidence (as we concluded)." /d. at 1122 (citing to 8 C.F.R.
§ 204.5(h)(3)).
Thus, Kazarian sets forth a two-part approach where the evidence is first counted and then considered
in the context of a final merits determination. In this matter, we will review the evidence under the
plain language requirements of each criterion claimed. As the petitioner did not submit qualifying
evidence under at least three criteria, the proper conclusion is that the petitioner has failed to satisfy the
regulatory requirement of three types of evidence. /d.
II. ANALYSIS
A. Evidentiary Criteria2
Documentation of the alien's receipt of lesser nationally or internationally recognized
prizes or awards for excellence in the field of endeavor.
The director discussed the evidence submitted for this regulatory criterion and found that the
petitioner failed to establish her eligibility. On appeal, the petitioner does not contest the director's
findings for this criterion or offer additional arguments. When .an appellant fails to offer argument
on an issue, that issue is abandoned. Sepulveda v. U.S. Att'y Gen., 401 F.3d 1226, 1228 n. 2 (11th
Cir. 2005); Hristov v. Roark, No. 09-CV-27312011, 2011 WL 4711885 at *1, *9 (E.D.N .Y. Sept.
30, 2011) (plaintiff's claims abandoned when not raised on appeal). Accordingly , the petitioner has
not established that she meets this regulatory criterion.
1 Specifically, the court stated that we had unilaterally imposed novel substantive or evidentiary requirem ents beyond
those set forth in the regulations at 8 C.F.R. § 204.5(h)(3)(iv) and 8 C.F.R. § 204.5(h)(3)(vi).
2 On appeal, the petitioner does not claim to meet any of the regulatory categories of evidenc e not discussed in this
decision . Therefore, no determination has been made regarding whether the petitioner meets the remaining categories of
evidenc e.
(b)(6)
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NON-PRECEDENT DECISION
Documentation of the alien's membership in assocwtwn s in the field for which
classification is sought, which require outstanding achievements of their members, as
judged by recognized national or international experts in their disciplines or fields.
The director determined that the petitioner did not establish eligibility for this criterion. The plain
language of the regulation at 8 C.F.R. § 204.5(h)(3)(ii) requires "[d]ocumentation of the alien's
membership in associations in the field for which is classification is sought, which require
outstanding achievements of their members, as judged by recognized national or international
experts in their disciplines or fields." In order to demonstrate that membership in an association
meets this criterion, a petitioner must show that the association requires outstanding achievement as
an essential condition for admission to membership. Membership requirements based on
employment or activity in a given field, minimum education or experience, standardized test scores,
grade point average, recommendations by colleagues or current members, or payment of dues do not
satisfy this criterion as such requirements do not constitute outstanding achievements. Further, the
overall prestige of a given association is not determinative; the issue here is membership
requirements rather than the association's overall reputation.
In the appeal brief, the petitioner asserts that she meets the requirements of this criterion through her
appointment as director of the The petitioner points
to the .Tune 26. 2013 lette of suooort from Deoutv Chief of
Beijing, China, that stated:
I oversee more than 400 [ s] in 110 countries including the 93
in the United States.
* * *
[The petitionerl has surpassed many of her peers by the quality and quantity of her work
leading the at the
* * *
[A]ll directors of including [the petitioner], are nominated and
recommended by their home institution and approved by the board of directors consisted of
senior academic or business leaders in the host institutions and their partner institutions in
China. directorship indicates an elite status of the appointed individuals.
[The petitioner] is appointed to be the founding director for her expertise knowledge [sic] of
Chinese and American education and culture and her extraordinary ability in leading
international education where she skillfully blends critical components together.
Although asserts that the petitioner was "appointed to be the founding director for her
expertise knowledge [sic] of Chinese and American education and culture and her extraordinary
ability in leading international education ," the personal qualifications of the petitioner are not
relevant to this criterion. Instead, the petitioner must show that the requires
(b)(6)
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outstanding achievements of its members, as judged by recognized national or international experts
in their disciplines or fields. Moreover, the petitioner has not established that possessing an expert
knowledge of Chinese and American education and culture, and demonstrating the ability to lead a
multi-component foreign education program constitute outstanding achievements .
's assertions are unsupported by primary evidence of the s specific
membership requirements from a reliable source such as the organization's bylaws or constitution .
Going on record without supporting documentary evidence is not sufficient for purposes of meeting
the burden of proof in these proceedings. Matter of Soffici, 22 I&N Dec. 158, 165 (eomm'r 1998)
(citing Matter ofTreasure Craft of California, 14 I&N Dec. 190 (Reg'l eomm'r 1972)). Further, if
testimonial evidence lacks specificity, detail, or credibility, there is a greater need for the petitioner
to submit corroborative evidence. Matter of Y-B-, 21 I&N Dec. 1136 (BrA 1998). Moreover,
users may, in its discretion , use as advisory opinions statements submitted as expert testimony.
See Matter of Caron International, 19 I&N Dec. 791, 795 (eomm'r. 1988). However, users is
ultimately responsible for making the final determination regarding an alien's eligibility for the
benefit sought. !d. The submission of reference letters supporting the petition is not presumptive
evidence of eligibility; users may evaluate the content of those letters as to . whether they support
the alien's eligibility. See id. at 795-796; see also Matter ofV-K-, 24 r&N Dec. 500, n.2 (BrA 2008)
(noting that expert opinion testimony does not purport to be evidence as ·to "fact"). Absent
documentation that primary and secondary evidence of the institution's specific membership
requirements are either not available or nonexistent, s letter cannot be relied upon as
evidence. 8 C.F.R. § 103.2(b)(2).
Furthermore, the petitioner has not established that serving as a director at an institution that hosts a
Confucius Institute constitutes membership in an association. Submitting documentary evidence
reflecting the petitioner's managerial role with a particular organization without evidence reflecting
that the petitioner is a member of an association that requires outstanding achievements of its
members, as judged by recognized national or international experts, is insufficient to meet the plain
language of the regulation. The plain language of the regulation at 8 C.F.R. § 204.5(h)(3)(ii)
requires the petitioner to show "membership in associations in the field" rather than the petitioner's
role as Director of the The regulations contain a
separate criterion for performing in a lea ing or critical role tor orgamzatwns or establishments with a
distinguished re utation. 8 C.F.R. § 204.5(h)(3)(viii). The petitioner's role as Director of the
appears more relevant to the category of evidence at
8 C.F.R. § 204.5(h)(3)(viii) and willbe further addressed there.
Finally, the plain language of the regulation requires "membership in associations" in the plural. The
use of the plural is consistent with the statutory requirement for extensive evidence. Section
203(b)(1)(A)(i) of the Act. Significantly, not all of the criteria at 8 C.F.R. § 204.5(h)(3) are worded
in the plural. Specifically, the regulations at 8 C.F.R. §§ 204.5(h)(3)(iv) and (ix) only require service
on a single judging panel or a single high salary. When a regulatory criterion wishes to include the
singular within the plural, it expressly does so as when it states at 8 e.F.R. § 204.5(k)(3)(ii)(B) that
evidence of experience must be in the form of "letter(s)." Thus, the plural in the remaining
regulatory criteria has meaning. In a different context, federal courts have upheld USers ' ability to
interpret significance from whether the singular or plural is used in a regulation. Cf Maramjaya v.
(b)(6)
NON-PRECEDENT DECISION
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USCIS, Civ. Act. No. 06-2158, 2008 WL 9398947, *1, *6 (D.D.C. Mar. 2008); Snapnames.com inc .
v. Chertojf, No. CV06-65, 2006 WL 3491005, at *1, *10 (D. Or. Nov. 2006) (upholding an
interpretation that the regulatory requirement for "a" bachelor's degree or "a" foreign equivalent
degree at 8 C.P.R. § 204.5(1)(2) requires a single degree rather than a combination of academic
credentials). Therefore, even if the petitioner had established that her leadership role for the
meets the elements of this regulatory criterion, the plain language requires
evidence of the petitioner's membership in more than one association requiring outstanding
achievements of its members, as judged by recognized national or international experts.
In light of the above, the petitioner has not established that she meets this regulatory criterion.
Published material about the alien in professional or major trade publications or other
major media, relating to the alien's work in the field for which classification is sought.
Such evidence shall include the title, date, and author of the material, and any necessary
translation.
The director discussed the evidence submitted for this criterion and found that the petitioner failed to
establish her eligibility . On appeal, the petitioner does not contest the director's findings for this
criterion or offer additional arguments. The issue, therefore, is considered abandoned. Sepulveda,
401 F.3d at 1228 n.2; Hristov, 2011 WL 4711885, at *9. Accordingly, the petitioner has not
established that she meets this regulatory criterion.
Evidence of the alien 's participation, either individually or on a panel, as a judge ofthe
work of others in the same or an allied field of specification for which classification is
sought.
The director determined that the petitioner did not establish eligibility for this criterion.
The petitioner's appeal brief points to the June 21, 2013 letter written to her from
Interim Dean and Professor of Finance,
stated:
Ohio, that
I'm writing to once again thank you for your excellent work as an external reviewer of the
As part our university requirement for all programs
and in keeping with our signed agreements with and
we conducted a 5 year program review with input from experts f'~ro-:-m~t~n~s ~tde and outstde of the
university. The program review in which you participated last year played an important role
in our decision to continue our co-sponsorship of the Institute as well as a motivation for
making several significant changes in the direction of the Institute.
In my former role of Associate Provost and Associate Vice-President for Academic Affairs, I
was charged with organizing the program review including the selection of the internal and
external reviewers. I made the selection of external reviewers after considering dozens of
possibilities and selected from a roster of the directors of the very best run
in the U.S.
(b)(6)
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is of the one top ranked universities in the country in its level of
participation by its students in international programs. We value the as
an important part of our strategy of having a comprehensive approach to the
internationalization of our students. The program review process and your role in it are
essential components for the assurance of our successful implementation of this strategy.
In deciding the next best steps for the Institute, we relied heavily on the high quality report
that you and the other external reviewer, Dr. from the
produced. It's clear that you used the day-long visit interviewing faculty, staff and
administrators to excellent advantage. Your recommendations were both circumspect and
judicious. It was especially fortuitous that you were able to incorporate a meeting with
representatives from our partner school, as
part of the program review process.
In addition, the petitioner submitted a May 1-2, 2012" Program Review External
Reviewers' Schedule" that documented the petitioner's participation. The petitioner also submitted
an April 12, 2012 e-mail from Mr. requesting the petitioner's participation as an external
reviewer. The preceding evidence is sufficient to demonstrate that the petitioner meets the plain
language requirements of the regulation at 8 C.P.R. § 204.5(h)(3)(iv). Accordingly, the petitioner
has established that she meets this regulatory criterion.
Evidence of the alien's authorship of scholarly articles in the field, in professional or
major trade publications or other major media.
The director determined that the petitioner did not establish eligibility for this criterion.
The petitioner's "Self-Statement for EB 1 Appeal" asserts that the director's determination regarding
her published articles was inaccurate. The {Jetitioner points to her 2007 article in
entitled ' ts Published in
and her March 2013 article in
entitled Although we agree
with the petitioner that the preceding evidence constitutes scholarly articles in professional
publications, the March 2013 article was published subsequent to the petition's October 11, 2012
filing date. Eligibility must be established at the time of filing. 8 C.P.R. § 103.2(b )(1), (12); Matter
of Katigbak, 14 I&N Dec. 45, 49 (Reg'l Comm'r 1971). A petition cailnot be approved at a future
date after the petitioner becomes eligible under a new set of facts. Matter of Izummi, 22 I&N Dec.
169, 175 (Comm'r 1998). That decision further provides, citing Matter of Bardouille, 18 I&N Dec.
114 (BIA 1981), that USCIS cannot "consider facts that come into being only subsequent to the
filing of a petition." !d. at 176. Accordingly, the petitioner's March 2013 article in
cannot be considered as evidence to establish her eligibility at the time of
filing.
Further, the plain language of this criterion requires the petitioner's "authorship of scholarly articles
in the field, in professional or major trade publications or other major media" in the plural. As the
(b)(6)
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submitted evidence shows that the petitioner had authored only one scholarly article in a single
professional publication at the time of filing, the petitioner has not established that she meets the
plain language requirements of the regulation at 8 C.F.R. § 204.5(h)(3)(vi). Cf Maramjaya v.
USCIS, 2008 WL 9398947 at *12; Snapnames.com Inc. v. Chertoff, 2006 WL 3491005 at *10.
In light of the above, the petitioner has not established that she meets this regulatory criterion.
Evidence that the alien has performed in a leading or critical role for organizations or
establishments that have a distinguished reputation.
The director determined that the petitioner established eligibility for this criterion. The plain
language of the regulation at 8 C.F.R. § 204.5(h)(3)(viii) requires "[ e ]vidence that the alien has
performed in a leading or critical role for organizations or establishments that have a distinguished
reputation." A review of the record of proceeding, however, does not reflect that the petitioner
submitted sufficient documentary evidence establishing that she meets the plain language of the
regulation at 8 C.P.R. § 204.5(h)(3)(viii) for the reasons outlined below.
The petitioner submitted an October 8, 2012 letter from Dr. Senior Vice Provost
and Dean of Academic Administration, statmg that he petitioner served as
Director of the. The petitioner's appellate submission
includes documentation that provides additional information regarding her role as Director of the
For instance, the petitioner submitted documents indicating that she prepared the
institute's 2012-2016 strategic plan, compiled the institute's Chinese Language and Culture Curriculum,
selected teachers, prepared institute reports, planned events, and offered guidance to students (such as
who received a Accordingly_, the submitted evidence
shows that the petitioner performed in a leading role for the
In addition, the petitioner submitted an October 5, 2012letter from Dr. Emeritus Professor,
stating that the petitioner served as Associate Director of the
Dr. s letter, however, does not identify the specific duties
performed by the petitioner as Associate Director or her responsibilities, or explain how the
petitioner's position fit within the overall hierarchy of the office. The "Associate Director" job title
alone does not establish the nature of the petitioner's role as either leading or critical. Dr. 's
letter falls short of specifying how the petitioner contributed to the in a
way that was significant to the office's outcome or what role she performed in the office's activities.
Again, if testimonial evidence lacks specificity, detail, or credibility, there is a greater need for the
petitioner to submit corroborative evidence. Matter ofY-B-, 21 I&N Dec. 1136 (BIA 1998).
Furthermore, the petitioner has not submitted sufficient documentary evidence showing that
and have a distinguished reputation. The
petitioner submitted an October 7, 2012 letter from Dr. Chinese Language Supervisor of the
stating:
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rThe petitioner] was first introduced to me by the educational consul in
in New York. I met [the petitioner] when she was invited to attend
in the United Nations in April2011.
Under [the petitioner 's] leadership, the ·s one of
best in North America and the world. The creative endeavors [the petitioner] engages in are
exciting and highly productive.
Dr. asserts that "the is one of best in North
America and the world," but does not point to any specific evidence to support his claim. users need
not accept primarily conclusory assertions. See 1756, Inc. v. U.S. Att 'y Gen., 745 F. Supp. 9, 15
(D.D.C. 1990) (holding that an agency need not credit conclusory assertions in immigration benefits
adjudications). In addition, going on record without supporting document ary evidence is not
sufficient for purposes of meeting the burden of proof in these proceedings. Soffici , 22 I&N Dec. at
165.
The petitioner also submitted a letter from Wire Editor, stating:
[The petitioner] and I have discussed her interest in writing a column for the newspaper
where I work - a reflection of how she seeks to bolster cultural understanding in the
community.
[The petitioner] is the only director the _ has ever
known. During her nearly 4 years in that capacity, the institute has established Chinese
language/culture education programs in seven area schools and provided 10 teachers from
China. She also has coordinated visits from about 20 international delegation s in the last six
years, more than half from China.
* * *
On a personal note, I have attended some local activities associated with the
Thousands of people turn out each year for the Dragon Boat races - a very
successful fund-raiser for general education. Public speakers and music al perform ances
arranged by the institute and [the petitioner] have been popular as well.
Mr comments briefly on the activities of the but
the information provided is not sufficient to demonstrate that the institution has a distinguished
reputation relative to other academic institutions' foreign language and cultural education programs.
Additionally, the letters from Mr. and Mr. are insufficient to establish that the institute has
a distinguished reputation beyond those writers, who both had direct professional interactions with the
beneficiary.
In addition, the petitioner submitted an October 10, 2012 letter with the Form I -140, Immigrant
Petition for Alien Worker, that listed internet links for news stories posted on the website s of the
(the student-run newspaper for The
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, and the The petitioner, however, failed to submit copies of the news stories.
Again, going on record without supporting documentary evidence is not sufficient for purposes of
meeting the burden of proof in these proceedings. Soffici, 22 I&N Dec. at 165. Furthermore, the
self-serving nature of the news stories originating from the and its student
newspaper is not sufficient to demonstrate that the university's and
have a distinguished re utation. There is no objective documentary evidence
showing that the and have a
distinguished reputation.
In light of the above, the petitioner has not established that she meets this regulatory criterion.
B. Summary
The petitioner has failed to satisfy the antecedent regulatory requirement of three categories of
evidence.
IV. CONCLUSION
The documentation submitted in support of a claim of extraordinary ability must clearly demonstrate
that the alien has achieved sustained national or international acclaim and is one of the small percentage
who has risen to the very top of the field of endeavor.
Even if the petitioner had submitted the requisite evidence under at least three evidentiary categories, in
accordance with the Kazarian opinion, the next step would be a final merits determination that
considers all of the evidence in the context of whether or not the petitioner has demonstrated: (1) a
"level of expertise indicating that the individual is one of that small percentage who have risen to the
very top of the[ir] field of endeavor" and (2) "that the alien has sustained national or international
acclaim and that his or her achievements have been recognized in the field of expertise." 8 C.F.R.
§§ 204.5(h)(2) and (3); see also Kazarian, 596 F.3d at 1119-20. Although we conclude that the
evidence is not indicative of a level of expertise consistent with the small percentage at the very top of
the field or sustained national or international acclaim, we need not explain that conclusion in a final
merits determination. 3 Rather, the proper conclusion is that the petitioner has failed to satisfy the
antecedent regulatory requirement of three categories of evidence. !d. at 1122.
The petitioner has not established eligibility pursuant to section 203(b)(1)(A) of the Act and the petition
may not be approved.
3 The AAO conducts appellate review on a de novo basis. See Siddiqui v. Holder , 670 F.3d 736, 741 (7th Cir. 2012);
Soltane v. DOl, 381 F.3d 143, 145 (3d Cir. 2004); Dar v. INS, 891 F.2d 997, 1002 n. 9 (2d Cir. 1989). In any future
proceeding, the AAO maintains the jurisdiction to conduct a final merits determination as the office that made the last
decision in this matter. 8 C.F.R. § 103.5(a)(1)(ii). See also section 103(a)(1) of the Act; section 204(b) of the Act; DHS
Delegation Number 0150.1 (effective March 1, 2003); 8 C.F.R. § 2.1 (2003); 8 C.F.R. § 103.1(t)(3)(iii) (2003); Matter of
Aurelio, 19 I&N Dec. 458, 460 (BIA 1987) (holding that legacy INS, now USCIS, is the sole authority with the
jurisdiction to decide visa petitions).
(b)(6)
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In visa petition proceedings, it is the petitioner's burden to establish eligibility for the immigration
benefit sought. Section 291 of the Act, 8 U.S.C. § 1361; Matter of Otiende , 26 I&N Dec. 127, 128
(BIA 2013). Here, that burden has not been met.
ORDER: The appeal is dismissed. Avoid the mistakes that led to this denial
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