dismissed EB-1A Case: Visual Arts

U.S.Department of HomelandSecurity
U.S.CitizenshipandImmigrationServices
identifying data deleted to orice ofasminisir¤riveAgge¤zsMs 2090
fBVBnt Clearly unwarranted ""®"'"*'°", DC 20529-2090
invasionofpersonalpnvacy U.S.Citizenship
and Immigration
PUBLICCOPY services
)2-
FILE: Office:TEXASSERVICECENTER Date:
NOV2 9 2010
IN RE: Petitioner:
Beneficiary:
PETITION: ImmigrantPetitionfor Alien WorkerasanAlien of ExtraordinaryAbility Pursuantto Section
203(b)(1)(A)of theImmigrationandNationalityAct, 8U.S.C.§ 1153(b)(1)(A)
ONBEHALFOFPETITIONER:
INSTRUCTIONS:
Enclosedpleasefind the decisionof the AdministrativeAppealsOffice in your case. All of the documents
relatedto thismatterhavebeenreturnedto theofficethatoriginallydecidedyourcase.Pleasebeadvisedthat
anyfurtherinquirythatyoumighthaveconcerningyourcasemustbemadeto thatoffice.
If youbelievethelaw wasinappropriatelyappliedby us in reachingour decision,or you haveadditional
informationthatyou wishto haveconsidered,youmayfile a motionto reconsideror a motionto reopen.The
specific requirementsfor filing such a requestcan be found at 8 C.F.R. § 103.5. All motions must be
submittedto theofficethatoriginallydecidedyourcaseby filing aFormI-290B,Noticeof Appealor Motion.
Thefeefor aFormI-290B is currently$585,but will increaseto $630onNovember23,2010. Any appealor
motionfiled on or after November23, 2010mustbe filed with the $630fee. Pleasebe awarethat 8 C.F.R.
§ 103.5(a)(1)(i)requiresthatanymotionmustbefiled within 30daysof thedecisionthatthemotionseeksto
reconsideror reopen.
Thankyou,
P
Chief,AdministrativeAppealsOffice
www.users.gov
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DISCUSSION:The employment-basedimmigrantvisa petitionwasdeniedby the Director,Texas
ServiceCenter,andis nowbeforetheAdministrativeAppealsOffice(AAO) on appeal.Theappeal
will bedismissed.
The petitionerseeksclassificationasan"alien of extraordinaryability" in the arts,pursuantto section
203(b)(1)(A)of theImmigrationandNationalityAct (theAct),8U.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 internationalacclaimthroughevidenceof a one-timeachievementof a
major,internationallyrecognizedaward. Absentthereceiptof suchanaward,theregulationoutlines
tencategoriesof specificobjectiveevidence.8C.F.R.§204.5(h)(3)(i)through(x). Thepetitionermust
submitqualifyingevidenceunderatleastthreeof thetenregulatorycategoriesof evidenceto establish
thebasiceligibilityrequirements.
On appeal,counselarguesthatthepetitionermeetsat leastthreeof thetenregulatorycategoriesof
evidenceat 8 C.F.R.§ 204.5(h)(3).Forthereasonsdiscussedbelow,weupholdthedirector'sultimate
conclusionthatthepetitionerhasnotestablishedhereligibilityfor theexclusiveclassificationsought.
I. Law
Section203(b)of theAct states,in pertinentpart,that:
(1) Priorityworkers.- Visasshallfirst be madeavailable. . . to qualifiedimmigrantswho are
aliensdescribedin anyof thefollowingsubparagraphs(A) through(C):
(A) Aliens with extraordinaryability. -- An alien is describedin this subparagraphif --
(i) the alien has extraordinaryability in the sciences,arts, education,
business,or athleticswhichhasbeendemonstratedby sustainednationalor
intemationalacclaimandwhoseachievementshavebeenrecognizedin the
field throughextensivedocumentation,
(ii) thealienseeksto entertheUnitedStatesto continuework in theareaof
extraordinaryability,and
Therecordreflectsthatthepetitionerhasresidedin theUnitedStatessinceSeptember2001andwasin thecountryasa
G-4nonimmigrantemployeeof aninternationalorganizationattimeof filing theFormI-140petition.
Page3
(iii) the alien's entry into the United Stateswill substantiallybenefit
prospectivelytheUnitedStates.
U.S.CitizenshipandImmigrationServices(USCIS)andlegacyImmigrationandNaturalizationService
(INS)haveconsistentlyrecognizedthatCongressintendedto seta veryhigh standardfor individuals
seekingimmigrantvisasasaliensof 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. and8C.F.R.§204.5(h)(2).
Theregulationat 8 C.F.R.§ 204.5(h)(3)requiresthatanaliendemonstratehisor hersustainedacclaim
andtherecognitionof his or herachievementsin thefield. Suchacclaimandachievementsmustbe
establishedeitherthroughevidenceof aone-timeachievement(thatis,amajor,internationalrecognized
award)orthroughmeetingatleastthreeof thefollowingtencategoriesof evidence.
(i) Documentationof thealien'sreceiptof lessernationallyor internationallyrecognized
prizesor awardsfor excellencein thefield of endeavor;
(ii) Documentationof the alien's membershipin associationsin the field for which
classificationis sought,which requireoutstandingachievementsof their members,as
judgedbyrecognizednationalorinternationalexpertsintheirdisciplinesorfields;
(iii) Publishedmaterialaboutthe alienin professionalor majortradepublicationsor
othermajormedia,relatingto the alien'swork in thefield for which classificationis
sought.Suchevidenceshallincludethetitle,date,andauthorof thematerial,andany
necessarytranslation;
(iv) Evidenceof thealien'sparticipation,eitherindividuallyor onapanel,asajudgeof
theworkof othersin thesameor analliedfield of specializationfor whichclassification
is sought;
(v) Evidenceof the alien'soriginalscientific,scholarly,artistic,athletic,or business-
relatedcontributionsof majorsignificancein thefield;
(vi) Evidenceof thealien'sauthorshipof scholarlyarticlesinthefield,in professionalor
majortradepublicationsor othermajormedia;
(vii) Evidenceof thedisplayof thealien'swork in thefield at artisticexhibitionsor
showcases;
(viii) Evidencethatthealienhasperformedin aleadingor criticalrolefor organizations
or establishmentsthathaveadistinguishedreputation;
(ix) Evidencethatthe alienhascommandeda high salaryor othersignificantlyhigh
remunerationfor services,in relationto othersin thefield; or
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(x) Evidenceof commercialsuccessesin theperformingarts,asshownby box office
receiptsorrecord,cassette,compactdisk,or videosales.
In 2010,theU.S.Courtof Appealsfor theNinthCircuit(NinthCircuit)reviewedthedenialof apetition
filed underthisclassification.SeeKazarianv. USCIS,596F.3d1115(9* Cir. 2010). Althoughthe
courtupheldtheAAO's decisiontodenythepetition,thecourttookissuewith theAAO's evaluationof
evidencesubmittedto meet a given evidentiarycriterion.2 With respectto the criteria at 8C.F.R.
§204.5(h)(3)(iv)and(vi), thecourtconcludedthatwhile USCISmayhaveraisedlegitimateconcerns
aboutthesignificanceof theevidencesubmittedto meetthosetwo criteria,thoseconcernsshouldhave
beenraisedin asubsequent"final meritsdetermination."Id. at 1121-22.
The court statedthat the AAO's evaluationrestedon an improperunderstandingof the regulations.
Insteadof parsingthesignificanceof evidenceaspartof theinitial inquiry,thecourtstatedthat"the
properprocedureisto countthetypesof evidenceprovided(whichtheAAO did),"andif thepetitioner
failedto submitsufficientevidence,"theproperconclusionis thattheapplicanthasfailedto satisfythe
regulatoryrequirementof threetypesof evidence(asthe AAO concluded)."Id. at 1122(citing to
8C.F.R.§ 204.5(h)(3)).Thecourtalsoexplainedthe"final meritsdetermination"asthecorollaryto
thisprocedure:
If a petitionerhas submittedthe 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 achievementshave been recognizedin the field of expertise."
8C.F.R. § 204.5(h)(3).Only alienswhoseachievementshave garnered"sustained
national or internationalacclaim" are eligible for an "extraordinary ability" visa.
8U.S.C.§ 1153(b)(1)(A)(i).
Id. at 1119-1120.
Thus,Kazariansetsforthatwo-partapproachwheretheevidenceis first countedandthenconsidered
in the context of a final merits determination. In reviewing ServiceCenterdecisions,the AAO will
applythetestsetforth in Kazarian.As theAAO maintainsdenovoreview,theAAO will conducta
newanalysisif thedirectorreachedhis or herconclusionby usinga one-stepanalysisratherthanthe
two-step analysisdictatedby the Kazarian court. SeeSpencerEnterprises, Inc. v. United States,229
F. Supp.2d 1025,1043(E.D.Cal. 2001),affd, 345F.3d683(9thCir. 2003);seealsoSoltanev.
DOJ,381F.3d143,145(3dCir. 2004)(notingthattheAAO conductsappellatereviewonadenovo
basis).
II. Analysis
2Specifically,thecourt statedthattheAAO hadunilaterallyimposednovelsubstantiveor evidentiaryrequirements
beyondthosesetforthin theregulationsat8C.F.R.§204.5(h)(3)(iv)and8C.F.R.§204.5(h)(3)(vi).
•
Page5
A. EvidentiaryCriteria
This petition, filed on October 14, 2008, seeksto classify the petitioner as an alien with
extraordinaryability in the "visual arts,specificallypainting." At thetime of filing, the petitioner
was working as an AssistantCuratorfor the World Bank Art Programin Washington,D.C., a
positionshehasheld since2005. Thepetitionerhassubmittedevidencepertainingto thefollowing
categoriesof evidenceat 8 C.F.R.§204.5(h)(3).3
Documentationof thealien'sreceiptof lessernationally or internationallyrecognized
prizesor awardsfor excellencein thefield of endeavor.
The petitioner submitteda December26, 2000 designationfrom the Dean of the Visual Arts
Department,National University Art Institute (IUNA), National Schoolof Fine Art "Prilidiano
Pueyrredon,"BuenosAires,Argentina,appointingher "as authorizedad-honoremrepresentativein
Washington,D.C. of Cultural and Educational exchangeactivities of mutual benefit, with
prerogativeto processthembeforewhoevercorresponds."Thepetitioner'sresumeindicatesthatshe
attendedthe IUNA from 1993to 1997. Therecorddoesnot includeevidencefrom the university
indicatingthe significanceof the precedingdesignation. Thereis no evidenceshowingthat this
designationfrom thepetitioner'salmamaterequatesto a "nationallyor internationallyrecognized"
prize or awardfor excellencein thevisualarts. Rather,thesubmitteddocumentationindicatesthat
thedesignationis aninstitutionalappointment.
The petitionersubmittedan announcementpostedin the Cultural Sectionof the websiteof the
ArgentineEmbassystatingthat her work "Settlements"and work "Sudestada"
were selectedfor the "Migration" exhibition in the Associationof Ibero-AmericanCultural
Attaches'XVI Art Salon(December2007- January2008) at the Mexican Cultural Institutein
Washington,D.C. The petitioner also submittedthe exhibition book for the XVI Art Salon
indicatingthatherpaintingwasincludedamongthework of 27 artistsin the"Migration" exhibition
submits a September3, 2009 letter of support from stating: "I have exhibited her
work in our museum, and awarded her a prize in conjunction with a show I curated for the
Associationof Ibero-AmericanCulturalAttachesin Fall 2008."
Selectionof the petitioner's work "Settlements"for the XVI Art Salon"Migration" exhibition does
not equateto her receiptof a nationallyor internationallyrecognizedprize or awardfor excellence
in thevisualarts. Thereis no evidenceshowingthatthepetitionerreceiveda prize or an awardat
theXVI Art Salon"Migration" mber2007or early2008. Moreover,thereis no
documentaryevidenceto support claimthathe"awardedheraprize in conjunction
with a show [he] curatedfor the Associationof Ibero-AmericanCultural Attachesin Fall 2008."
[Emphasisadded.] Goingon recordwithout supportingdocumentaryevidenceis not sufficientfor
3Thepetitionerdoesnot claim to meetor submitevidencerelatingto thecategoriesof evidencenot discussedin this
decision.
Page6
purposesof meetingtheburdenof proof in theseproceedings.Matter of Soffici,22 I&N Dec. 158,
165(Comm.1998)(citing Matter of TreasureCraft of California, 14I&N Dec. 190(Reg.Comm.
1972)). A petition mustbe filed with any initial evidencerequiredby the regulation. 8 C.F.R.
§ 103.2(b)(1).Thenonexistenceor otherunavailabilityof primaryevidencecreatesa presumption
of ineligibility. 8 C.F.R.§ 103.2(b)(2)(i).Accordingto thesameregulation,onlywherethepetitioner
demonstratesthat primaryevidencedoesnot existor cannotbe obtainedmaythe petitionerrely on
secondaryevidenceandonly wheresecondaryevidenceis demonstratedto be unavailablemaythe
petitionerrely on affidavits. Wherea recorddoesnot exist,thepetitionermustsubmitanoriginal
written statementon letterheadfrom therelevantauthorityindicatingthereasontherecorddoesnot
existandwhethersimilarrecordsfor thetimeandplaceareavailable.8C.F.R.§ 103.2(b)(2)(ii).In
thiscase,thereis no evidencedemonstratingthatthepetitionerreceivedaprizeattheXVI Art Salon
"Migration" exhibition in 2008 or that such a prize is recognizedbeyondthe confinesof the
exhibitionandthereforecommensuratewith anationallyor internationallyrecognizedprizeor award
for excellencein thevisualartsfield.
Thepetitionersubmitteda copyof a 2001pressreleasepreparedby The StageGalleryin Merrick,
NewYork stating:
"In Here," a mixed mediawork by Wshington[sic], DC artist [the petitioner],hasbeen
chosenasoneof only thirty-sevenpiecesthat wereselectedout of 2,015slidesof worksof
art submittedby 528 artistsfrom throughoutthe world, to be exhibitedat the third annual
"Faceto Face"exhibitionat Thework will beon
view from May 18to June24.
Thepetitioneralsosubmitteda June7, 2001articlein MerrickLife (a communitynewspaperserving
Merrick,NewYork) entitled"InternationalartatTheStage."Thelocalarticlepromotestheupcoming
exhibitionandliststhepetitioner'snameamongmorethanthreedozenotherartistsparticipatingin the
"Faceto Face"exhibition.Onceagain,havingone'sworkselectedto appearin anexhibitiondoesnot
constitutereceiptof a"prize" or an"award"for excellence(suchasaprizefor Bestof Show). There
is no documentaryevidencedemonstratingthat the petitionerreceiveda prize or an awardat the
"Faceto Face" exhibition or that participating in the exhibition is commensuratewith receivinga
nationallyor internationallyrecognizedprizeor awardfor excellencein thevisualartsfield.
The petitioner submitted a July 3, 2008 letter of support from ,
e Inter-AmericanDevelopmentBankin Washington,D.C.
es that sheservedas a consultantfor the Inter-American
DevelopmentBankfrom 2005to 2007. sletterstates:
Oneof theprogramsfor which I amresponsibleis the organizationof art exhibitionsfrom
Latin-Americanartists. We annuallyreceivedaround50/70portfoliosto select8 artistswho
will exhibittheirwork attheatriumof theInter-AmericanDevelopmentBank.
In 2007,[thepetitioner]participatedin theannualcontestandhasbeenselectedto exhibither
work. Our committeefound [the petitioner's]work original andvaluable. Her seriesof
Page7
work consistedof 60 paintings. Thesepieceswhere[sic] installedin one large wall (12
meters)attheentrancehall of thebuilding.
Wecannotconcludethathavingone'swork selectedfor displayin theatriumof abuildingalongwith
sevenotherartistsequatesto receiptof a nationallyor internationallyrecognizedprize or awardfor
excellencein thefield. Thereis no evidenceshowingthatselectionof thepetitioner'swork by the
institution that employedher as a consultantis commensuratewith receiving a nationally or
internationallyrecognizedprizeor awardfor excellencein thevisualartsfield.
In light of theabove,thepetitionerhasnotestablishedthatshemeetsthiscriterion.
Documentationof the alien's membershipin associationsin the field for which
classificationis sought,which requireoutstandingachievementsof their members,as
judged by recognizednational or internationalexpertsin their disciplinesorfields.
In orderto demonstratethat membershipin an associationmeetsthis criterion, a petitionermust
showthattheassociationrequiresoutstandingachievementasanessentialconditionfor admissionto
membership.Membershiprequirementsbasedon employmentor activity in a givenfield, minimum
educationor experience,standardizedtest scores,grade point average,recommendationsby
colleaguesor currentmembers,or paymentof dues,donot satisfythiscriterionassuchrequirements
do not constituteoutstandingachievements.Further,the overallprestigeof a given associationis
not determinative;the issuehereis membershiprequirementsratherthanthe association'soverall
reputation.
As previouslymentioned,thepetitionersubmitteda December26,2000designationfrom theDean
of the Visual Arts Department,IUNA, National School of Fine Arts "Prilidiano Pueyrredon,"
BuenosAires, Argentina,appointingher "as authorizedad-honoremrepresentativein Washington,
D.C.of CulturalandEducationalexchangeactivitiesof mutualbenefit,with prerogativeto process
thembeforewhoevercorresponds."On appeal,the petitionersubmitsa letter of supportfrom
stating:
I met [the petitioner] in 1995during her studiesat the Fine Arts Academy(part of the
IUNA). Sinceshewasoneof my studentsI've beencloseto her professionalcareerasan
artist and professor. She was always one of the most outstanding studentswith a great
commitmentwith thearts.
As a result of her aptitudesandtalent shewas appointedby the IUNA . . . as the only
representativefrom theUniversityin theUnitedStateswith authorityto manageanybilateral
agreement.
* * *
Weare. . . proudsheis representingourUniversityandourCountryin theUnitedStates....
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DeanFloresdoesnot specifythebilateralexchangeagreementsmanagedby thebeneficiaryfor the
IUNA while in theUnitedStates.Nevertheless,the petitioner'sappomtmentasa representativeof
her almamaterin the United Statesdoesnot equateto her "membership"in an associationin the
field requiringoutstandingachievementsof its members. Further,"aptitudesand talent" arenot
tantamountoutstandingachievementsin thevisualartsfield.
In responseto thedirector'srequestfor evidence,thepetitionersubmittedaSeptember3, 2009letter
fromDanielChuburu,Ambassadorof Argentinain Kenya,stating:
I met [thepetitioner]in 2003while I wastheDeputyChiefof Missionin theEmbassyof
Argentinain Washington,D.C.
* * *
While I was in Washington,D.C., amongmy regular duties I supervisedthe cultural
activities of the ArgentineanEmbassy. As part of thoseactivities we had an exhibition
programopento all Argentineartists.
* * *
[Thepetitioner)is not only anartistwith a greatcommitmentto thecommunitybut shewas
alwaysapartof ourculturalactivitiesandpartof anArgentineanCulturalCommitteecreated
by including top personalitiesof the ArgentineanCulture in
Washington,D.C.
[The petitioner] was also in chargeof the permanentArt Collection of the Argentinean
Embassy,ConsulateandAmbassador'sResidenceasa designed"ad honorem"professional
curator.
tatesthat thepetitionerwas"part of an ArgentineanCulturalCommitteecreatedby
m assa or ose Bordon," but there is no evidence demonstrating that her participation with the
committeeequatedto "membership"in anassociationin thevisualartsfield or thatbecomingapart
of thecommitteerequiredoutstandingachievements.
In this case,thereis no evidence(suchasbylawsor official rulesof admission)showingthat the
petitioner holds membershipin arts associationswhich require outstandingachievementsof their
members,asjudgedby recognizednationalor internationalexpertsin her field. Accordingly,the
petitionerhasnotestablishedthatshemeetsthiscriterion.
Publishedmaterialaboutthealien in professionalor major tradepublicationsor other
major media,relating to thealien'swork in thefield for whichclassificationis sought.
Suchevidenceshall includethetitle, date,andauthorof thematerial,andanynecessary
translation.
In general,in orderfor publishedmaterialto meetthiscriterion,it mustbeprimarilyaboutthepetitioner
and,asstatedin theregulations,beprintedin professionalor majortradepublicationsor othermajor
media. To qualify asmajormedia,the publicationshouldhavesignificantnationalor international
distribution.An alien would not earnacclaimat the nationallevel from a local publication. Some
newspapers,suchastheNew YorkTimes,nominallyservea particularlocalitybut would gualifyas
majormediabecauseof significantnationaldistribution,unlikesmalllocalcommunitypapers.
As previouslydiscussed,thepetitionersubmittedaJune7, 2001articlein MerrickLife (a community
newspaperservingMerrick,NewYork) entitled"Internationalart atTheStage,"but theauthorof the
articlewasnot identifiedasrequiredby theplainlanguageof thiscriterion. Thelocalarticleis about
theupcoming"Faceto Face"exhibitionratherthanthepetitioner.Theonlymentionof thepetitioneris
amongthelist of morethanthreedozenparticipatingartists.
Thepetitionersubmitteda January5, 2006articlepostedat www.clarin.comentitled"In a curious
show,theaudiencecreatesa giantpuzzlewith artworks." Theonlinearticleannouncestheopening
of the petitioner's "Fractions" exhibition at the BorgesCultural Centerin BuenosAires. The
petitioner states: "Publishing over 600,000copiesdaily Clarin is Argentina [sic] best selling
newspaper,and also the largestSpanishlanguagenewspaperin the world." The sourceof this
distributioninformationfor Clarin is not identifiedor documentedin the record. As previously
discussed,goingon recordwithout supportingdocumentaryevidenceis not sufficientfor purposes
of meetingthe burdenof proof in theseproceedings. Matter of Soffici, 22 I&N Dec. at 165.
Moreover,thereis noevidenceshowingthattheonlineeditionwheretheJanuary5, 2006articlewas
postedhas the samelevel of readershipas the newspaper'spublishededition or that the online
editionotherwisequalifiesasaform of majormedia.
ThepetitionersubmittedaJanuary4, 2008articlein WashingtonPostWeekend's"OnExhibit"section
entitled"'Migration': UniversalTruths." The articleannouncesthe Associationof Ibero-American
CulturalAttaches'16thannualartSalOn"Migration" at theMexicanCulturalInstitutein Washington,
D.C. Thearticleis aboutthe"Migration" exhibitionandonly briefly mentionsthepetitionerstating:
"But its alsotruein 'HumanSettlements,"a paintingby [thepetitioner](Argentina)thatfeaturesan
arrayof small,anonymousfiguresthathavebeenpositioned,like playingpiecesfrom the gameRick,
againstandabstractbackdropthatis partmap,partboardgame." Theprecedingarticleonly briefly
mentionsthepetitionerandis insteadaboutthe "Migration" exhibitionin generalin whichher work
appearedwith that of numerousotherartists. The plain languageof this regulatorycriterionrequires
"[plublishedmaterialaboutthealien." Articlesthatonly briefly mentionthepetitionerin passingdo
notmeettheplainlanguageof thisregulatorycriterion.5
4Evenwith nationally-circulatednewspapers,considerationmustbegivento theplacementof thearticle. Forexample,
anarticlethatappearsin the WashingtonPost,but in a sectionthat is distributedonly in FairfaxCounty,Virginia, for
instance,cannotserveto spreadanindividual'sreputationoutsideof thatcounty.
5See,e.g.,AccordNegro-Plumpev. Okin,2:07-CV-820-ECR-RJJat7 (D. Nev.Sept.8, 2008)(upholdinga fmdingthat
articlesaboutashowarenotabouttheactor).
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ThepetitionersubmittedanApril 14,2008letterfrom BenjaminJonas,StaffDirector,PersianNews
Network,Voice of America(VOA), Washington,D.C., stating: "[The petitioner)appearedon the
Voice of Americaon April 8, 2008. [The petitioner)was interviewedabouther artworkandher
paintingtechniquesonthePersianNewsNetwork'sdailyyouthtelevisionprogramLateEdition." The
petitioneralsosubmitteda transcriptfrom thetelevisedinterviewanddocumentationfrom theVOA's
internetsiteindicatingthatthetelevisionreportis availablefor downloadonline. Thereis no evidence
establishingthattheVOA's "PersianNewsNetwork'sdailyyouthtelevisionprogramLateEdition"isa
formof majormediain theUnitedStatesor anyothercountry.Further,atelevisioninterviewdoesnot
equateto "publishedmaterialaboutthealien." [Emphasisadded.]
ThepetitionersubmittedaJanuary20,2006articlepostedonthewebsiteof Milenium 106.7FM radio
entitled"Fractionsby [thepetitioner],"buttheauthorof thearticlewasnotidentifiedasrequiredby the
plain languageof this criterion. The petitioneralsosubmittedtwo Spanishlanguagearticlesabout
Milenium radio andMilenium 106.3FM, but the articleswerenot unaccompaniedby the required
Englishlanguagetranslations.Pursuantto theregulationat 8 C.F.R.§ 103.2(b)(3),anydocument
containingforeign languagesubmittedto USCISshallbe accompaniedby a full Englishlanguage
translationthat the translatorhas certified as completeand accurate,and by the translator's
certificationthatheor sheis competentto translatefrom theforeignlanguageinto English. Thereis
no evidence(suchas readershipstatistics)showingthat the websiteof Milenium 106.7FM radio
equatesto aformof majormediain Argentinaor anyothercountry.
ThepetitionersubmittedaJanuary2006articlepostedon thewebsiteof Arte al Día OnLine,butthe
authorof thearticlewasnot identifiedasrequiredby theplain languageof this criterion. Theonline
articleannouncestheopeningof thepetitioner's"Fractions"exhibitionattheBorgesCulturalCenter
in BuenosAires. Thereis no evidenceshowingthatArte al Día OnLineequatesto aprofessionalor
majortradepublicationor someotherform of majormedia.
Thepetitionersubmitteda January2006articleentitled"Vidriera" on page12of La Nacion,but the
Englishlanguagetranslationaccompanyingthe articlewasnot full andcompleteasrequiredby the
regulationat 8 C.F.R.§ 103.2(b)(3).Thearticleincludesonlyonesentenceaboutthepetitionerwhich
relates to her work. The petitioner also submitted a brief mention of her and three others in a January
2006articlein La Nacionentitled"En LaTrastienda,"buttheauthorof thearticlewasnotidentifiedas
requiredby theplainlanguageof thiscriterion.Further,thereisno evidenceshowingthatLa Nacion
equatesto aprofessionalor majortradepublicationor someotherformof majormedia.
Thepetitionersubmittedonesentenceaboutherundertheheading"TheExhibition"in theJanuary6,
2006issueof Infobae,buttheauthorof thematerialwasnotidentifiedasrequiredby theplainlanguage
of thiscriterion. Further,thereis no evidenceshowingthatInfobaeequatesto a professionalor major
tradepublicationor someotherformof majormedia.
Thepetitionersubmitteda brief pieceentitled"Fracciones,"butthedate,thenameof thepublication,
andthe authorwerenot identifiedasrequiredby the plain languageof this criterion. Further,the
submissionwasunaccompaniedby anEnglishlanguagetranslationasrequiredby theregulationat 8
C.F.R.§ 103.2(b)(3).
Page11
The petitionersubmittedmaterialabouther postedon the Noktambularteonline blog, "A self-
creationspace."TheEnglishlanguagetranslationaccompanyingthepostingwasnotcertifiedby the
translatorasrequiredby theregulationat 8 C.F.R.§ 103.2(b)(3).Thereis no evidenceshowingthat
Noktambularte'swebsiteequatesto a professionalor majortradepublicationor someotherform of
majormedia.
The petitionersubmittedadditionalarticlesfrom 2006postedon the websitesof Artesur, Cronica
Literaria, andLa Union,but the articleswereunaccompaniedby Englishlanguagetranslationsas
requiredby the regulationat 8 C.F.R.§ 103.2(b)(3). Further,the authorsof the articleswerenot
identifiedandthereis no evidenceshowingthatArtesur,CronicaLiteraria,andLa Unionequateto
professionalor majortradepublicationsor majormedia.
In light o.ftheabove,thepetitionerhasnotestablishedthatshemeetsthiscriterion.
Evidenceof thealien'sparticipation,eitherindividuallyor on apanel,asajudge of the
work of othersin thesameor an alliedfield of specificationfor whichclassificationis
sought.
The petitionersubmittedan April 23, 2008 letter addressedto her from MarkusRepnik,Country
Manager,WorldBankOfficeSkopje,Macedonia,stating:
We are very pleasedthat you acceptedour invitation to join the "World Bank Art and
DevelopmentProject"Art Committeeandto supportour initiative "Art anddevelopment."
The Art Committeewill consistof recognizedMacedonianart critics and World Bank
representatives.
* * *
In line with the draft proposalfor our "Art andDevelopmentProject"that we sharedwith
you, we plan to select 10 artists on an annual basis with about 3 piecesof art per artist. Those
would includeup to 5 very youngartistsfrom graduateclassof theFacultyfor Fine Arts and
about5 morewell-knowncontemporaryartistswith agelimit of 50years.
* * *
Theselectionof artistswouldbedonein 2 phases:first wouldbecreationof alonglist, while
thefinal selectionwill beby consensualagreement.
o Creationof the Long-list: TheFacultyof FineArts will proposeup to 15 graduate
students- themostpromisingones. We will asktheFacultyto maketheir proposal
by 18May. In addition,eachmemberof theArt Committeewould propose3 artists.
This wouldcreateaLong-listof about30artists.
Page12
o TheArt committeewill makefinal selectionof theartistsandrespectiveartworksby
June8, in orderto ensureprintingof thecatalogueby 30June.
The membersof the Art Committeeareinvited to help preparethe catalogue,e.g.prepare
shortbiographiesof theartistsandmakesuggestionsconcerningthelayoutof thecatalogue
andrespectivetext.
We very much look forward to our collaborationandto jointly supportyoungcontemporary
Macedonianartists.
ThepetitionersubmittedanAugust8, 2008letteraddressedto her from Volunteer&
AlumniProgramsManager,HispanicCollegeFund,stating:
Thank you for volunteering as an Art Competition Judge at the DC Hispanic Youth
Symposiumat Trinity University, July 25, 2008. The Art Competitionconsistedof 25
Hispanic high school studentswho enteredpieces consistingof drawings, sculpting,
architecturalmodelsandpaintings.The studentswere interviewedby a panelof judges on
theirtechniquesandpersonalexpression.
As an Art CompetitionJudge,you played a key role by lending your expertiseand
experiencein art to aspiring,talentedHispanic artists.in doing so, three studentswere
awardedscholarshipstotaling$3500(First place- $2000,Secondplace- $1000,andThird
place$500).
Onbehalfof theHispanicCollegeFund,weappreciategivingsogenerouslyof yourtimeand
talentto supportourmissionof developingHispanicyoungprofessionals.
Thepetitioneralsosubmittedinternetmaterialaboutthe2008DC HispanicYouthSymposiumstating:
"The HispanicCollegeFundis comingto DC this summer! More than 100local Hispanichigh
schoolstudentsand 100communityvolunteerswill cometogetherfor a life-changingeventthat
raises the college-going trajectories of Hispanic students in the community."
ThepetitionersubmittedanApril 2008letteraddressedtoherfromSuzanneCambria,DeputyDirector,
DC Action for Children,stating:
It is with much gratitudethat I write to thank you for your assistance.Your offer to judge
submissionsto the DC Action for Children/CapitalChampionsfor Children art contestwas
mostwelcome. And thenyourjudging! I dabblein quilting andothercraftsandto watch
you look at thework,think about,anddiscussit with theotherjudgeswasa sightto behold.
I wasin awe- andstill am.
* * *
All of usatDC ACT appreciateyourselflessnesswhenyoujudgedthechildren'sartcontest.
•
Page13
ThepetitioneralsosubmittedanOctober2007announcementfor the"DC Action for Children2008
Art Contest"stating:
DCActionfor Childrenwill hostits3rd Annual Capital Championsfor Children Awards
Luncheon on February 15,2008at theFour SeasonsHotel. As manyof you mayknow,
DC ACT is the city's only nonprofit, multi-issue advocacyorganizationdedicatedto
improving conditionsfor children,youth andtheir families.Our missionis to ensurethat
everychild in theDistrict is affordedtheopportunityto reachhis orherpotential.
Oneof the mostexcitingpartsof this eventis the art showhighlightingthe talentsof our
youngpeople.For thesecondtime,weare sponsoringan art contestfor childrenandyouth
in gradesPre-k through 12. An esteemedpanelof artexperts,artisansandchild advocates
will considertheentriesandwe will makethreeawardsin eachgradecategory. Winnerswill
receiveU.S.SavingsBondsandberecognizedonourWebsiteandattheluncheon.
We know this letter comesat a busy time of the year,but we hope you will consider
encouragingyour studentsto participatein this excitingcontestandhelp us showcasetheir
talent.
In responseto thedirector'srequestfor evidence,thepetitionersubmittedanAugust28, 2009letter
fromMarinaGalvani,HeadCuratorandManager,WorldBankArt Program,stating:
The World BankArt Programis part of theWorld BankGroup,amultinationaldevelopment
bankwith officesin morethanhundredcountries. Our headquartersis in WashingtonDC,
wheretheArt Programis housed.We carefor anextensivecollectionof contemporaryart,
aswell asorganizeartexhibitionstobepresentedbothattheWorldBank,aswell asin other
locationsaroundthe world. In my work I have to examineandjudge the artworksby
hundredsof artistsfrom all overtheworld. . . . I decidedto hire [thepetitioner]in 2005to
work as AssistantCurator for the Art Program. In this function, [the petitioner] is
responsible for both evaluating portfolios as well as curating art exhibition as well as
overseeing educational programs for the World Bank staff and the visitors to the World
Bank.
From her start with the Art Program,[the petitioner] hasdemonstratedmore and more her
accomplishmentsasajuror andan art critic. In our work, we haveto evaluatehundredsof
artists' portfolios from all over the world. Most of them are by accomplishedartists,for
whom exhibiting at the World Bank is a prestigiousevent. [The petitioner]hasbeenin
chargeof someof ourmoresuccessfulexhibitions,suchasA Passionto Paint: theColorful
World of Pacita Abad (contemporaryart from the Philippines,openingon December13,
2005);Eyesof the Soul(contemporaryart from Brazil with a specialinstallationfor blind
people,openedon March5, 2006),DramaandElegance(contemporaryart from Armenia,
September5, 2007); Silk Road (contemporaryphotographyfrom Asia and CentralAsia,
Page14
opening in Paris, December10, 2007); BorderlessCaptivity: Exploitation and Human
Trafficking(openingonMay7,2008).
Since2007 the Art Programhasstarteda cycle of cultural programswith regionalfocus.
Theseprogramsinclude large art exhibitions(over 300 works on show), symposia,and
lecturesandguidedtours. Our first programwasdedicatedto Sub-SaharanAfrica with the
title Africa Now! [The petitioner]has performedsincethe beginninga leadingrole in
identifying,judging andrecommendingartistsfor theartexhibitionsincludedin Africa Now!
program.
* * *
The final selectionwas performedby a restrictedcommittee,which included the Vice
Presidentfor the Africa Region,World Bank; the SecretaryGeneralfor the Biennial of
ContemporaryArt, Dakar,Senegal;[the petitioner)andmyself. The restrictedcommittee
had to perform a very sensitiverole to identify only little over hundredartistsout of an
alreadyselectedlist, which would be presentedfor severalmonthsat the World Bank
headquartersin WashingtonDC.
[Thepetitioner]pla[ye]da critical role in theselectionpanel,reviewingoversevenhundred
applicationsand portfolios during the early months of 2008 and convincing the other
membersof thepanelof thequalityof herselection.
* * *
[Thepetitioner]hasbeenassignedby meto startthe identificationandevaluationof artists
from Latin AmericaandtheCaribbean,for ournewcycleof artexhibitionsplannedfor 2010
and2011.This newcycleof exhibition,titled El Cambio,will presentoverfour hundred
artworksby artistsfrom all themembercountriesof theWorld Bankin theLatin American
andtheCaribbeanregion.
To that purpose, was sent on a selection mission to Brazil to identify andjudge artists to be
includedin the show.Thefinal selectionwill be performedin February2010by ajudging
panel,chairedby me.
Thepetitioner'sevaluationandselectionof artistsfrom Latin AmericaandtheCaribbeanfor theEl
Cambioexhibitionpost-datesthe petition'sOctober14,2008filing date.A petitioner,however,
mustestablisheligibility atthetimeof filing. 8 C.F.R.§§ 103.2(b)(1),(12);Matterof Katigbak,14
I&N Dec.45, 49 (Regl.Commr. 1971). Accordingly,the AAO will not considerthe petitioner's
involvementwith theEl Cambioexhibitionin 2009and2010in thisproceeding.
Thepetitioner'sresponsealsoincludedanAugust28,2009letterfrom Colin Smith,Professorof the
LoughboroughUniversitySchoolof Art andDesign,England,stating: "I haveworkedcloselywith
[thepetitioner]assheselectedandwasCuratorof arecentexhibitionof mineattheCentroCultural
Page15
Borgesin BuenosAires, Argentina." Mr. Smith'sletterdoesnot indicatethedateof his exhibition
at theCentroCulturalBorgesor provideanyspecificdetailsaboutthepetitioner'sparticipationasa
curator. If testimonialevidencelacksspecificity,detail,or credibility,thereis a greaterneedfor the
petitionerto submitcorroborativeevidence.Matter of Y-B-,21 I&N Dec. 1136(BIA 1998). In this
instance,Mr. Smith's letter lacksspecificityanddetails,andis unsupportedby any corroborative
evidencedemonstratingthepetitioner'sparticipationasajudgeof thework of others.
Nevertheless,the evidenceshowingthe petitioner'sinvolvementwith the "World Bank Art and
DevelopmentProject"Art Committee(2008),theDC HispanicYouth SymposiumArt Competition
(2008),theDC Action for Children2008Art Contest,andasacuratorevaluatingartistsfor theWorld
BankArt Program(2005-2008)meetstheplain languagerequirementsof the regulationat 8C.F.R.
§204.5(h)(3)(iv).However,certaindeficienciespertainingto this evidencewill be addressedbelow
in our final meritsdeterminationregardingwhetherthe submittedevidenceis commensuratewith
sustainednationalor internationalacclaim,or beingamongthatsmallpercentageattheverytopof the
field of endeavor.
Evidenceof thedisplayof thealien'sworkin thefield at artisticexhibitionsor showcases.
Thepetitionerhasdocumentedthe exhibitionof her work in BuenosAires at the BorgesCultural
Centerand in Washington,D.C. at the Inter-AmericanDevelopmentBank Staff AssociationArt
Gallery,the ArgentineEmbassy,the Cultural Instituteof Mexico, andNuevaVida's Annual Art
Exhibit. Accordingly,thepetitionerhasestablishedthatshemeetstheplainlanguagerequirementsof
theregulationat8C.F.R.§204.5(h)(3)(vii).However,certaindeficienciespertainingto thisevidence
will beaddressedbelowin our final meritsdeterminationregardingwhetherthesubmittedevidenceis
commensuratewith sustainednationalor internationalacclaim,orbeingamongthatsmallpercentageat
theverytopof thefield of endeavor.
Evidencethat the alien hasperformedin a leading or critical rolefor organizationsor
establishmentsthathavea distinguishedreputation.
Counsel argues that the petitioner "performs a critical role at the World Bank." The petitioner
initially submittedanApril 16,2008letterfrom tating:
The Art Programwasestablishedto managethe permanentcollectionof the World Bankas
well as to promote art from our membercountries.The collection consistsof over 5,000
artworksandis valuedat over ten million dollars. It includesboth establishedmastersas
well asemergingartistswho aremostly from developingcountries,andwhosequalitieshave
not yet beendiscoveredby the internationalart market. Partof the program'smissionfor
fighting poverty is promotingthe works of suchartistsand to makethem known in the
internationalartarena.
[The petitioner]is employedby the Art Program,andsheworkswith me asthe Assistant
Curator. This is a positionthatrequiresnot only a deepappreciationandunderstandingof
thearts,but alsodiplomaticsensitivity,sinceour work includes,amongotherthings,dealing
Page16
daily with artistsfrom all over the world, identifying new talentsliving andworking in our
membercountries,as well as liaising with national governmentrepresentatives,seniors
officials from variousinternationalagencies,and interactingwith the World Bank Group
seniormanagement.Oneof our primaryrolesis to facilitatecommunicationbetweenartists
andthedevelopmentcommunityasameansof usingartto fostereconomicdevelopmentand
socialgrowth.
TheAugust28, 2009letterfrom MarinaGalvanisubmittedin responseto the director'srequestfor
evidencestates:
I decidedto hire [thepetitioner]in 2005to work asAssistantCuratorfor theArt Program.In
this function,[thepetitioner]is responsiblefor bothevaluatingportfoliosaswell ascurating
art exhibition aswell asoverseeingeducationalprogramsfor theWorld Bank staff andthe
visitorsto theWorld Bank.
* * *
[Thepetitioner]hasperformedsincethebeginninga leadingrole in identifying,judging and
recommendingartistsfor theartexhibitionsincludedin Africa Now!program.Theexhibition
componentof Africa Now! includedworks by over hundred-fifty artistsfrom thirty-four
different countriesandhasbeenon view at the World Bank in WashingtonDC andParis
until May2009.
* * *
[The petitioner's]commitmentto the exhibitionprojectsAfrica Now! and . . . her critical
skills in identifying artists, and her creativity as her working capacity in curating an
outstandingseriesof eventshavebeenimpressive.Duringherfour yearsat theWorld Bank
Art Program[thepetitioner]hassuccessfullycreatedaproductiveopennessandwidenedthe
networkin theinternationalartcommunityfor thebenefitof theBankandartists.
Asidefrom theself-servingassertionsof Ms. Galvani,thereis no supportingevidenceshowingthat
the World Bank hasa distinguishedreputationas an artsorganization. Going on recordwithout
supportingdocumentaryevidenceis not sufficient for purposesof meetingthe burdenof proof in
theseproceedings. Matter of Soffici, 22 I&N Dec. at 165. Further,while the petitionerhas
performedadmirablyon theprojectsto which shewasassigned,thereis no evidenceshowingthat
her subordinaterole asa curatorialassistantis leadingor critical for the World Bank. For example,
thereis no organizationalchartor otherevidencedocumentinghowthepetitioner'spositionfell within
the generalhierarchyof the World Bank. The documentationsubmittedby the petitionerdoesnot
establishthatshewasresponsiblefor thesuccessor standingof theWorldBankto a degreeconsistent
with themeaningof "leadingor criticalrole." Moreover,section203(b)(1)(A)(i)of theAct requiresthe
submissionof extensiveevidence.Consistentwith thatstatutoryrequirement,theregulationat8C.F.R.
§204.5(h)(3)(viii)expresslyrequiresevidencethatthealienhasperformedin a leadingor criticalrole
for "organizationsor establishments"in theplural. Therefore,evenif we foundthepetitioner'srole
Page17
with the World Bank to be qualifying, which we do not, a leading or critical role in a single
distinguishedorganizationdoesnot meetthe plain languageof the regulation. Accordingly,the
petitionerhasnotestablishedthatshemeetsthiscriterion.
Summary
In thiscase,weconcurwith thedirector'sdeterminationthatthepetitionerhasfailedto demonstrate
her receiptof a major, internationallyrecognizedaward,or that shemeetsat leastthreeof theten
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 theevidencein thecontextof whetheror not thepetitionerhasdemonstrated:(1) a
"level of expertiseindicatingthattheindividualis 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
1119-20. In the presentmatter,manyof the deficienciesin the documentationsubmittedby the
petitionerhave alreadybeenaddressedin our precedingdiscussionof the regulatorycriteria at
8C.F.R.§§204.5(h)(3)(i)- (iii) and(viii).
With regardto the documentationsubmitted.for 8 C.F.R. § 204.5(h)(iv),the petitioner has not
establishedthat her involvementwith the "World Bank Art and DevelopmentProject" Art
Committee,theDC HispanicYouthSymposiumArt Competition,theDC Action for Children2008
Art Contest,and as a curatorialassistantevaluatingartists for the World Bank Art Program
demonstratessustainednationalor internationalacclaimor a levelof expertiseindicatingthatsheis
amongthat smallpercentagewho haverisento the very top of the field of endeavor.Seesection
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)(2) and (3). For
example,theentrantsin theDC HispanicYouth SymposiumArt CompetitionandtheDC Action for
Children2008Art Contestwerelimitedto local"high schoolstudents"and"youthin gradesPre-k
through12" in Washington,D.C. We cannotconcludethatjudging a localcompetitionfor students
at theselevelsis indicativeof sustained"nationalor internationalacclaim"at the very top of the
visualartsfield. With regardto thepetitioner'sevaluationof artworkin herpositionasa curatorial
assistantfor the World Bank, we cannotconcludethat performingsuch duties inherentto the
subordinatepositionto which shewas.appointeddemonstratessustainednationalor international
acclaimandthatherachievementshavebeenrecognizedin thefield of expertisebeyondherimmediate
employer. The petitioner's selection for such assignmentsdemonstratesher employer's
acknowledgementof herprofessionalcompetenceasanartevaluator,butit doesnotequateto evidence
of hersustainednationalor internationalacclaimin thevisualartsfield.
Page18
Regardingthedocumentationsubmittedfor 8C.F.R.§204.5(h)(vii),it shouldbe emphasizedthata
visualartistdoesdistinguishherselfasamongthatsmallpercentagewhohaverisento theverytopof
thefield simply by arrangingfor her work to be displayed. Moreover,the statuteandregulations
requirethe petitionerto demonstrate"sustainednationalor internationalacclaim" in her field of
endeavor.Section203(b)(1)(A)of theAct; 8 C.F.R.§204.5(h)(3).Asidefrom thepetitioner'ssolo
exhibitionin 2006at theBorgesCulturalCenter,thepetitionerhasnot submittedevidenceshowing
thather workshaveregularlybeendisplayedat significantnationalor internationalartsvenues,as
opposed to exhibits in Washington, D.C. connected to her employment at Inter-American
DevelopmentBank,organizedto supportlocal charitablecauses,or intendedto promoteemerging
Latin Americanartists. Regardingthepetitioner'sexhibitsat theArgentineEmbassy,we noteMr.
Chuburu'sstatementthatthepetitionerworkedthereasacurator.Further,thereis no indicationthat
the petitioner'sworkshaveoften beenexhibitedalongsidethoseof artistswho enjoy nationalor
internationalreputations.Theevidencesubmittedby thepetitionerfor 8 C.F.R.§ 204.5(h)(vii)is not
sufficientto demonstratea level of distinctionthatsetsher art exhibitionsapartfrom thoseof most
otherartistsin herfield nationallyor internationally.
Beyondthe categoriesof evidenceat 8 C.F.R. § 204.5(h)(3),the petitionersubmittedseveralletters
of support,manyof which havealreadybeenaddressed.While referenceletterscanprovideuseful
informationaboutanalien'squalificationsor helpin assigningweightto certainevidence,suchletters
do not equateto extensiveevidenceof the alien'sachievementsandrecognitionasrequiredby the
statuteandregulations.Thenonexistenceof requiredevidencecreatesa presumptionof ineligibility.
8C.F.R.§ 103.2(b)(2)(i).Theclassificationsoughtrequires"extensivedocumentation"of sustained
national or international acclaim. 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 commentaryfor the proposedregulations
implementingthestatuteprovidethatthe"intentof Congressthataveryhighstandardbesetfor aliens
of extraordinaryability is reflectedin this regulationby requiringthe petitionerto presentmore
extensivedocumentationthanthatrequired"for lesserclassifications.56Fed.Reg.30703,30704(July
5, 1991). Primaryevidenceof achievementsandrecognitionis of far greaterprobativevaluethan
opinionstatementsfrom individualsselectedby thepetitioner.
JackRasmussenstatesthat he hasworked with thepetitioner sinceMay 2008, "both asan artist andasa
curator of art." He further states: "[The petitioner] is an exceptionally gifted visual artist. . . . Not only
wouldshebenefitfrom continuingto createbeautyin theUnitedStates,but theUnitedStateswould
benefitfrom hercontinuedcontributionsto our culturallife. Thequalityandoriginality of hergifts are
notreplaceable."
hoolof Art, GeorgeMasonUniversity,states:
I camein contactwith the petitionerduringoneof her exhibitionsat the MexicanCultural
Institutein Washington,DC. I wasveryimpressedby herartpiece"HumanSettlement"where
I foundtheideaof Diaspora/Migrationperfectlypresented.. . . I found[thepetitioner's]work
originalandunique.. . . [Thepetitioner]is a skillful artistalwaysassociatedwith deeply[sic]
reflectiononthesubject.
Page19
* * *
In May2009I hadthepleasureto workwith [thepetitioner]whoplannedandcoordinatedone
of my exhibitionsat theWorld Bankin WashingtonDC. . . . I found[thepetitioner]to be a
talentedand professionalArtist and Curator with a great senseof aesthetic[sic] and
commitmentsto theartistsandthearts.
statesthathe workedwith thepetitionerduringhis tenureasResidentStageDirectorfor
MusicaAperta'smulti-mediapieceentitled"ThreePreludesto aFinale." Hefurtherstates:
Obviously,artistsareuniqueindividuals,eachwith avoiceveryspecificto them,eachmakinga
statementwith their work that is differentanddistinctfrom thework of otherartistsaround
them. [Thepetitioner]isjust sucha uniqueartist,whosewillingnessto challengeherselfand
pushthelimits of whatsheknowsis equaledby a skill-sethonedby yearsof rigoroustraining
anddedicatedwork.
The above letters are all from the petitioner's artistic collaboratorsin the Washington,D.C.
metropolitanarea.While suchlettersareimportantin providingdetailsaboutthepetitioner'srolein
variousprojects,they cannotby themselvesestablishthe petitioner'sacclaimbeyondher circle of
immediateacquaintances.
Theprecedingreferencesspeakadmirablyof thepetitioner'stalentsasanartistandcurator,buttheir
commentsdo not establishthatshehassustainednationalor internationalacclaimat theverytop of
herfield. The opinionsof expertsin thefield, while not without weight,cannotform thecornerstone
of a successfulextraordinaryability claim. USCISmay,in its discretion,useasadvisoryopinions
statementssubmittedasexperttestimony. SeeMatter of CaronInternational, 19I&N Dec.791,795
(Commr.1988). USCISis ultimatelyresponsiblefor makingthe final determinationregardingan
alien'seligibility for thebenefitsought. Id. Thesubmissionof lettersfrom expertssupportingthe
petitionis not presumptiveevidenceof eligibility; USCISmayevaluatethecontentof thoseletters
asto whethertheysupportthealien'seligibility. Seeid. at 795-796;seealsoMatter of V-K-,24
I&N Dec. 500, n.2 (BIA 2008) (noting that expert opinion testimony doesnot purport to be evidence
as to "fact"). Thus, the content of the experts' statementsand how they becameawareof the
petitioner'sreputationare importantconsiderations.Even when written by independentexperts,
letterssolicitedby analien in supportof an immigrationpetition areof lessweight thanpreexisting,
independentevidenceof achievementsandrecognitionthat onewould expectof a visual artist and
curatorwhohassustainednationalor internationalacclaim.
While thepetitionerhasearnedtherespectandadmirationof herreferences,theevidenceof record
falls short of demonstratingher sustainednational or internationalacclaimas a visual artist or
curator. The conclusionwe reachby consideringthe evidenceto meeteachcriterion at 8 C.F.R.
§ 204.5(h)(3)separatelyis consistentwith a review of 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).
Page20
III. Conclusion
Reviewof therecorddoesnotestablishthatthepetitionerhasdistinguishedherselfto suchanextent
thatshemaybesaidto haveachievedsustainednationalor internationalacclaimor to bewithin the
smallpercentageat the very top of her field. The evidenceis not persuasivethat the petitioner's
achievementssether significantlyabovealmostall othersin her field at a nationalor international
level. Therefore,thepetitionerhasnotestablishedeligibility pursuantto section203(b)(1)(A)of the
Act andthepetition maynot beapproved.
An applicationor petition that fails to comply with thetechnicalrequirementsof the law may be
deniedby theAAO evenif theServiceCenterdoesnot identify all of thegroundsfor denialin the
initial decision.SeeSpencerEnterprises,Inc. v. UnitedStates,229F. Supp.2d at 1043,aff'd,345
F.3d at 683; seealso Soltanev. DOJ, 381 F.3d at 145(noting that the AAO conductsappellate
reviewon adenovobasis).
Thepetitionwill bedeniedfor theabovestatedreasons,with eachconsideredasanindependentand
alternativebasisfor denial. In visa petition proceedings,the burdenof proving eligibility for the
benefitsoughtremainsentirelywith thepetitioner.Section291of theAct, 8 U.S.C.§ 1361. Here,
thatburdenhasnotbeenmet.
ORDER: Theappealisdismissed.