dismissed
EB-1C
dismissed EB-1C Case: Computer Software
Decision Summary
The appeal was dismissed because the petitioner failed to establish that the beneficiary would be employed in the United States in a primarily managerial or executive capacity. The initial job description was too broad, and a subsequent, more detailed breakdown of duties was flawed and failed to provide a meaningful understanding of how the beneficiary would spend his time on qualifying tasks.
Criteria Discussed
Managerial Capacity Executive Capacity Job Duties Qualifying Employment Abroad
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U.S. Citizenship and Immigration Services MATTER OF N-1-, LC APPEAL OF TEXAS SERVICE CENTER DECISION Non-Precedent Decision of the Administrative Appeals Office DATE: NOV. 15,2017 PETITION: FORM I-140, IMMIGRANT PETITION FOR ALIEN WORKER The Petitioner, a computer software distributor, seeks to permanently employ the Beneficiary as its "Managing Director" under the first preference immigrant classification for multinational executives or managers. See Immigration and Nationality Act (the Act) section 203(b)(1)(C). 8 U.S.C. § 1153(b)(1)(C). This classification allows a U.S. employer to pem1anently transfer a qualified foreign employee to the United States to work in an executive or managerial capacity. The Director of the Texas Service Center revoked the approval of the petition concluding that the Petitioner did not resolve previously noted inconsistencies regarding the Beneficiary's proposed U.S. employment 1 or establish, as required, that the Beneficiary would be employed in the United States in a managerial or executive capacity. The matter is now before us on appeal. In its appeal brief: the Petitioner provides a chart detailing the immigrant and nonimmigrant petitions that it and one other entity had tiled on the Beneficiary's behalf. The Petitioner contends that it did not materially misrepresent facts pertaining to the Beneficiary's past or current employment. The Petitioner properly points out that the Form G-325, Biographic Information, and labor certification are both retrospective in that they ask for information about the Beneficiary's prior job experience. On the other hand, the Petitioner points out that the instant petition is prospective with regard to the Beneficiary's proposed employment in that it seeks to determine future job duties that do not need to be performed until sometime in the future if and when the visa petition is approved and the Beneficiary changes his status to that of a permanent resident. The Petitioner does not offer additional infonnation about the Beneficiary's proposed employment, stating only that it would sutTer significant loss and possibly have to close down if the Beneficiary is not permitted to assume his proposed position. Upon de novo review, we will affirm the revocation and dismiss the appeal based on the finding that the Petitioner did not establish that the Beneficiary will be employed in the United States in a managerial or executive capacity. We will withdraw the Director's finding that the information the 1 Although the Director determined that "the pattern appears to be one of misrepresentation," when comparing the Beneficiary's employment as a computer software engineer and his proposed employment as the Petitioner·s managing director, he did not make a formal finding of material misrepresentation. Therefore, the issue of material misrepresentation will not be addressed in this decision. Matter qf N-1-, LC Petitioner offered about the Beneficiary's proposed employment is inconsistent with information that was previously offered in a labor certification filed by an unrelated entity in support of a different immigrant petition. I. LEGAL FRAMEWORK An immigrant visa is available to a beneficiary who. in the three years preceding the filing of the petition, has been employed outside the United States for at least one year in a managerial or executive capacity, and who seeks to enter the United States in order to continue to render managerial or executive services to the same employer or to its subsidiary or affiliate. Section 203(b )(1 )(C) of the Act. A United States employer may file Fom1 1-140, Immigrant Petition for Alien Worker, to classify a beneficiary under section 203(b )(1 )(C) of the Act as a multinational executive or manager. This classification does not require a labor certification. The petition must include a statement from an authorized otlicial of the petitioning United States employer which demonstrates that: the beneficiary has been employed abroad in a managerial or executive capacity for at least one year in the three years preceding the tiling of the petition, that the beneficiary is coming to work in the United States for the same employer or a subsidiary or affiliate of the foreign employer, and that the prospective U.S. employer has been doing business f()r at least one year. See 8 C.F.R. § 204.5(j)(3). In addition, with regard to the revocation of a previously approved petition, section 205 of the Act. 8 U.S.C. § 1155, states: ''The Attorney General may, at any time. tor what he deems to be good and sufficient cause, revoke the approval of any petition approved by him under section 204." Regarding the revocation on notice of an immigrant petition under section 205 of the Act. the Board of Immigration Appeals has stated: In Matter of Estime, ... this Board stated that a notice of intention to revoke a visa petition is properly issued for "good and sut1icient cause" where the evidence of record at the time the notice is issued, if unexplained and unrebutted, would warrant a denial of the visa petition based upon the petitioner's failure to meet his burden of proof. The decision to revoke will be sustained where the evidence of record at the time the decision is rendered, including any evidence or explanation submitted by the petitioner in rebuttal to the notice of intention to revoke, would warrant such denial. Matter ofHo, 19 I&N Dec. 582, 590 (BIA 1988) (citing Matter ofEstime. 19 I&N 450 (BIA 1987)). 2 Matter of N-1-. LC II. U.S. EMPLOYMENT IN A MANAGERIAL OR EXECUTIVE CAPACITY The Director revoked approval for the petition based, in part. on the finding that the Petitioner did not establish that it will employ the Beneficiary in a managerial or executive capacity. The statute defines managerial capacity as an assignment within an organization in which the employee primarily manages the organization, or a department, subdivision. function, or component of the organization, and exercises discretion over the day-to-day operations of the activity or function for which the employee has authority. Section 101(a)(44)(A) of the Act, 8 U.S.C. § 110l(a)(44)(A). The statute distinguishes between personnel managers. who supervise and control the work of other supervisory, professional. or managerial employees, and function managers. who need not directly supervise other employees. but must manage an essential function within the organization, or a department or subdivision of the organization, and function at a senior level within the organizational hierarchy or with respect to the function managed. !d. The statute defines executive capacity as an assignment within an organization in which the employee primarily directs the management of the organization or a major component or function of the organization; establishes the goals and policies of the organization, component or function: exercises wide latitude in discretionary decision-making; and receives only general supervision or direction from higher-level executives. the board of directors. or stockholders of the organization. Section 10l(a)(44)(B) ofthe Act. If staffing levels are used as a factor in determining whether an individual is acting in a managerial or executive capacity. U.S. Citizenship and Immigration Services (USCIS) must take into account the reasonable needs of the organization, in light of the overall purpose and stage of development of the organization. See section 10l(a)(44)(C) ofthe Act. A. Duties When examining the executive or managerial capacity of a given beneficiary. we will review the petitioner's description of the job duties. The Petitioner must submit a statement that clearly describes the duties to be performed by the Beneficiary and indicates that the Beneficiary is to be employed in the United States in a managerial or executive capacity. 8 C.F.R. § 204.5(j)(5). In support of the petition, the Petitioner provided a cover letter containing a description of the Beneficiary's proposed position. The job description is comprised of broad statements indicating that the Beneficiary would supervise the operation, set policies and objectives. ""determin[ e] profitability," and oversee and coordinate the Petitioner's sales, marketing, and finances. The Petitioner also stated that the Beneficiary would supervise its annual budget preparation. conduct quarterly performance reviews of the company within the scope of its budget and recommend budget changes, and oversee the Petitioner's vendor relationships by attending '"periodic business reviews'' and "partner conferences;' working with vendors on marketing strategies and pricing, and identifying new vendors. The Petitioner addressed the Beneficiary's role in managing its sales. Matter of N-1-, LC stating that he would conduct period reviews of the Petitioner's ·'sales pipeline:· set sales objectives for foreign-based contractors, travel for client meetings ·'from time[- ]to[-]time:· and oversee the Petitioner's finances by managing its cash t1ow, reviewing its financial statements and customer credit requests, and authorizing payments to vendors. In a request for evidence (RFE) the Petitioner was informed that the job description it originally provided was insufficient because it did not contain a specific list of the Beneficiary's proposed daily job duties and the percentage of time he would allocate to each duty. Therefore. the Petitioner was instructed to supplement the record with this critical information. The Petitioner's response contains a duty breakdown, which is comprised of 14 job duties and a corresponding percentage breakdown that accounted for 115% rather than 1 00% of the Beneficiary's time and thus did not etiectively provide a meaningful understanding of how the Beneficiary would distribute his time among the listed job duties. Further. the job description indicates that half of the Beneficiary's assigned job duties would be performed intermittently on a bi-weekly. monthly. or quarterly basis. Namely, the Petitioner indicated that the Beneficiary would intermittently do the following: ( 1) meet monthly with the regional managers of its "key vendors"; (2) conduct bi-weekly reviews of recruitment and training activities, ''purchases and logistics:' and billing and inventory issues; (3) meet quarterly with the company's accountant: (4) conduct monthly reviews of the Petitioner's financial statements; (5) conduct monthly reviews of marketing activities and strategies; (6) conduct monthly reviews of IT requirements abroad with a Colombia-based technology team: and (7) engage in yearly preparation of a business plan and profit and loss analysis and quarterly reviews of "each product line." As the Beneficiary would only intermittently perform these listed duties, they do not adequately address the RFE's request for a list of the job duties he would perform daily in the routine course of the Petitioner's business operation. The Director approved the petition. but upon further review he determined that the Petitioner had not established eligibility and therefore issued a notice of intent to revoke (NOIR) the approval in which he again addressed the lack of a detailed description of the Beneficiary's daily job duties. As in the RFE, the Director again instructed the Petitioner to provide a definitive statement listing the Beneficiary's specific daily job duties and the percentage of time he would allocate to each duty. In response, the Petitioner provided a new breakdown of the Beneficiary's job duties with corresponding time allocations showing the percentage of time the Beneficiary would spend performing each of his assigned functions. The Petitioner indicated that the Beneficiary would allocate his time as follows: • 20% to managing and guiding the IT manager to ensure that all IT requirements are met; • 2% to monthly reviews of IT requirements with a Colombia-based IT team; • 8% to managing and guiding a Colombia-based e-business manager and conducting periodic reviews of the company's online services; • 10% to meeting "at least monthly'' with the management of key vendors; • 3% to meeting with the management team for quarterly reviews of vendor perfonnances; 4 Matter of N-1-, LC • I 0% to attending vendor conferences; • 2% to meeting monthly with the finance and operations manager and the sales manager to evaluate sales incentive programs; • 5% to making quarterly objectives for the Colombia-based regional business manager and review his performance "at least twice a month": • 2% to engaging in negotiations with vendors: • 10% to leading a weekly sales review with the '·sales/territory manager and if necessary with product managers" to review business opportunities; • 5% to "[d]efin[ing] specific actions on the main business opportunities'' and communicating with resellers and customers to "ensure proper closing of the deals''; • 3% to overseeing a Colombia-based marketing team; • 5% to conducting reviews "at least twice a month'' with the finance and operations manager to address payment terms and "special discounts," purchasing details. billing issues, and inventory status; • 5% to conducting weekly reviews with the finance and operations manager to address cash flow and collections issues, approve specific credit requests, establish protocol for past due bills, and authorize payments to vendors and suppliers: • I% to quarterly meetings with an accountant to review yearly finances and tax return; • 3% to monthly review of financial statements and quatierly presentation of finances before the board of directors; • 3% to managing business planning and review through annual engagement with team managers to prepare a business plan and conduct a profit-loss analysis, review of each product line's business plan and budget, and quarterly sales review of each product line: • 2% to defining hiring projections based on introduction of new product lines and conducting bi annual evaluations of manager performances and ensure that they conduct similar evaluations of members of their respective teams; and • 1% to participating in business review meetings and recommending new business initiatives to the board of directors. As with the previously submitted job duty breakdown, this job description also allocates significant portions of the Beneficiary's time- approximately 40%- to job duties that the Beneficiary would perform intermittently on a bi-weekly, monthly, quarterly, and even yearly basis and thus are not accurate representations of duties that the Beneficiary would perform daily in the routine course of the Petitioner's business operation. Further. the duty breakdown contains several references to foreign-based staff and indicates that approximately 38% of the Beneficiary's time would be spent collaborating and working with an IT manager and IT team, an e-business manager, a business development manager, and a regional marketing team who are based in Colombia. These positions correspond with information provided in the Petitioner's 2017 organizational chati and therefore it does not appear that these listed positions were part of the Petitioner's organization at the time of filing or that the Beneficiary's updated job description is an accurate reflection of his proposed job duties during that time period. While we acknowledge that the Petitioner's organizational structure may have undergone some changes since the petition was first tiled and that the change in job duties may reflect those changes, the Petitioner must establish that all eligibility requirements for the Matter of N-1-, LC immigration benefit have been satisfied from the time of the tiling and continuing through adjudication. 8 C.F.R. § 103.2(b)(1). Given the lack of evidence showing that the Petitioner employed an IT manager, an IT team, an e-business manager, a business development manager, or a regional marketing team at the time of filing, any job duty included in the updated job description that involves the Beneficiary's collaboration with or oversight of these listed positions would not be deemed relevant in this instance as these duties are not part of an accurate depiction of the Beneficiary's proposed job duties at the time of tiling. Only duties that the Beneficiary could have performed based on the facts and circumstances that existed at the time of tiling can be considered in determining eligibility. In the revocation decision, the Director concluded that the Petitioner did not establish that the Beneficiary would be employed in a managerial or executive capacity. He found that the job description was overly broad and did not convey an adequate understanding of the Beneficiary's proposed job duties. Based on our review of the record, we agree with the Director's determination. On appeal, the Petitioner addresses the perceived inconsistences between the instant petition and another visa petition filed by an unrelated entity as discussed in the Director's decision; however, it does not address the findings regarding the insutliciency of the submitted job descriptions. As properly noted in the Director's decision, specifics are critical to determining whether a beneficiary's duties are primarily executive or managerial in nature; otherwise, meeting the definitions would simply be a matter of reiterating the regulations. Fedin Bros. Co .. Ltd v. Sava, 724 F. Supp. 1103, 1108 (E.D.N.Y. 1989), affd, 905 F.2d 41 (2d. Cir. 1990). In the present matter, the Petitioner has not provided a job description that adequately lists the Beneficiary's proposed daily job duties in the course of the company's routine business operation. As noted above, the Beneficiary's most recent job description appears to apply to the Petitioner's current staffing arrangement that did not exist when this petition was tiled. While we acknowledge the Petitioner's prior submission of an earlier job description, as noted above, the time allocations totaled to more than I 00% and thus did not accurately establish how much time the Beneficiary would allocate to each of his assigned job duties. We further observed that 7 of the 14 listed job duties would be performed intermittently on a bi-weekly, monthly, or quarterly basis and thus did not provide an adequate understanding of the daily tasks the Beneficiary would perform in the course of the Petitioner's daily business operation. Despite being asked multiple times- first in an RFE and later in the NOIR - for the submission of a detailed job description delineating the Beneficiary's daily job duties, the Petitioner has not provided this relevant information and therefore we cannot determine the actual tasks that were part of the Beneficiary's proposed assignment at the time of filing, nor can we conclude that his time would have been primarily allocated to tasks of a managerial or executive nature. B. Staffing Beyond the required description of the job duties, USCIS reviews the totality of the record when examining the claimed managerial or executive capacity of a beneficiary, including the company's Matter of N-1-, LC organizational structure, the duties of a beneficiary's subordinate employees, the presence of other employees to relieve a beneficiary from performing operational duties, the nature of the business, and any other factors that will contribute to understanding a beneficiary"s actual duties and role in a business. A beneficiary's control over the business does not necessarily establish eligibility for classification as a multinational manager or executive in a managerial or executive capacity within the meaning of section 101(a)(44) of the Act. By statute, eligibility for this classification requires that the duties of a position be "primarily" of a managerial or executive nature. Sections 10l(A)(44)(A) and (B) of the Act. While the Beneficiary may exercise discretion over the Petitioner's day-to-day operations and possesses the requisite level of authority with respect to discretionary decision-making, the Petitioner has not established that the Beneficiary's actual duties, as of the date of tiling, would be primarily managerial or executive in nature. The statutory definition of "managerial capacity" allows tor both '"personnel managers" and "function managers." See section 10l(a)(44)(A)(i) and (ii) of the Act. Personnel managers must primarily supervise and control the work of other supervisory, professional, or managerial employees. The statute plainly states that a "first line supervisor is not considered to be acting in a managerial capacity merely by virtue of the supervisor's supervisory duties unless the employees supervised are professional.'' Section 10l(a)(44)(A)(iv) of the Act; 8 C.F.R. § 204.5(j)(4)(i). The statutory definition of the term "executive capacity" focuses on a person's elevated position within a complex organizational hierarchy, including major components or functions of the organization, and that person's authority to direct the organization. Section 101 (a)( 44 )(B) of the Act. Under the statute, a beneficiary must have the ability to "direct the management" and "establish the goals and policies'' of that organization. Inherent to the definition, the organization must have a subordinate level of managerial employees for a beneficiary to direct and they must primarily focus on the broad goals and policies of the organization rather than the day-to-day operations of the enterprise. An individual will not be deemed an executive under the statute simply because they have an executive title or because they '"direct" the enterprise as the owner or sole managerial employee. A beneficiary must also exercise ·'wide latitude in discretionary decision making'' and receive only "general supervision or direction from higher level executives. the board of directors, or stockholders of the organization." !d. In the present matter, the Petitioner claimed seven employees at the time of tiling, but did not provide a separate organizational chart or list its employees by name and position title. In its response to an RFE, the Petitioner provided an organizational chart that depicted the Beneficiary at the top of the organizational hierarchy overseeing a corporate secretary and four managers - an accounting and administrative manager, a sales manager, a marketing and media manager, and an operations manager. The accounting and administrative manager is shown as overseeing an administrative assistant; the sales manager is depicted as overseeing a sales analyst; and the operations manager is depicted as overseeing tour foreign-based contractors, including three sales contractors in Colombia, Paraguay, and the Dominican Republic. respectively, and a technology .., . Matter of N-1-, LC contractor in Mexico. The marketing and media manager is not depicted as having any subordinate employees and the corresponding employee job description does not list any supervisory tasks as part of the marketing manager's position. The employee job description indicates that everyone except the administrative assistant is a full-time employee. The RFE response also included a 2010 Form W-3, Transmittal of Wage and Tax Statements, and seven IRS Form W-2s that the Petitioner issued to its employees in 2010. The Petitioner did not provide a Form W-2 for whom the organizational chart listed as the sales analyst subordinate to the sales manager; nor did it offer evidence to show that it paid compensation to the four foreign-based contractors who were listed as subordinates of the operations manager. Without subordinates we cannot conclude that the operations manager was truly working as a managerial or supervisory employee as his position title indicates. In the NOIR the Director instructed the Petitioner to provide its state quarterly reports from 2009 through 2016 as well as evidence of any contractors it used in the course of running its business. Although the response included quarterly tax returns for the requested time period, the Petitioner did not comply with the express instructions in the NOIR, which asked for state quarterly reports containing employee names and wages as well as evidence of any contract workers it used. Without the requested evidence, we cannot determine precisely whom the Petitioner employed during the 2010 third quarter when the instant petition was filed; nor can we verify that the Petitioner employed four foreign-based contracted workers as claimed. As such, the record does not support the claim that the Beneficiary allocated his time primarily to overseeing a managerial or supervisory support stafi. Failure to submit requested evidence that precludes a material line of inquiry shall be grounds for denying the petition. 8 C.F.R. § 103.2(b)(14). The lack of a state quarterly report for 2010 third quarter also precludes us from being able to reconcile information in the Petitioner's 2010 organizational chart, which identified as the Petitioner's full-time sales analyst, and the fact that the record lacks evidence to show that the Petitioner paid wages to a full-time sales analyst at the time the petition was filed. The Petitioner must resolve this discrepancy in the record with independent, objective evidence pointing to where the truth lies. Matter olHo, 19 I&N Dec. 582, 591-92 (BIA 1988). As indicated above, the lack of evidence to support the information claimed in the organizational chart raises the question of whether the sales manager and the operations manager were truly a managerial or supervisory positions as their respective position titles indicate. As only one of the Beneficiary's direct subordinates- the accounting and administration manager- actually had a subordinate of his own, it cannot be concluded that the Beneficiary was prepared to allocate his time primarily to overseeing managerial or supervisory employees when the instant petition was filed. The record also does not include sufficient evidence to show that three out of four of the Beneficiary's claimed subordinates were professional employees. In evaluating whether a beneficiary manages professional employees, we must evaluate whether the subordinate positions require a baccalaureate degree as a minimum for entry into the field of endeavor. Cl 8 C.F.R. § 204.5(k)(2) (defining "profession" to mean "any occupation for which a U.S. baccalaureate degree or its foreign equivalent is the minimum requirement for entry into the occupation''). Section Matter of N-1-, LC IOI(a)(32) ofthe Act, states that "[t]he term profession shall include but not be limited to architects, engineers, lawyers, physicians, surgeons, and teachers in elementary or secondary schools. colleges, academies, or seminaries." Therefore, we must focus on the level of education required by the position, rather than the degree held by subordinate employee. The possession of a bachelor's degree by a subordinate employee does not automatically lead to the conclusion that an employee is employed in a professional capacity. The Petitioner has not established that a bachelor's degree is actually necessary to perform the duties assigned to the Petitioner's sales manager. its marketing and media manager. or its operations manager. Likewise, the lack of managerial or supervisory employees indicates that the Petitioner Jacked the organizational complexity that would have allowed the Beneficiary to ''direct the management" and "establish the goals and policies" of the organization as required of someone employed in an executive capacity. See section IOI(a)(44)(B) ofthe Act. Further, as noted earlier in this decision, the Petitioner's 20 I 7 organizational chart which shows changes in the Petitioner's staffing, does not address the critical issue of the Petitioner's eligibility as of the date this petition was tiled. Likewise, a number of employee resumes provided with the NOIR response show hiring dates subsequent to the tiling of the instant petition and are similarly irrelevant for the purpose of determining the Petitioner's eligibility at the time of filing, as they depict staffing changes that had not yet occurred when the petition was tiled. See 8 C.F.R. § 103.2(b)(l). In the revocation decision, the Director found that the evidence provided showed that the Petitioner had few employees and that most were paid wages that were commensurate with those of part-time employees. Given that only one employee's salary ~ that of the administrative assistant ~ is commensurate with a part-time worker, a fact that the Petitioner readily admitted in the employee job description list, we disagree with the Director's assessment. However, we cannot disregard that the Petitioner did not provide requested evidence, including its state quarterly reports and evidence of wages paid to foreign contract workers showing precisely whom the Petitioner employed at the time of filing. The Petitioner must support its assertions with relevant, probative, and credible evidence. See Matter o(Chawathe, 25 I&N Dec. 369, 376 (AAO 201 0). The lack of sufficient supporting evidence leads us to question whether the Petitioner was adequately staffed at the time of filing such that it had the ability to relieve the Beneficiary from having to carry out its non-qualifying operational functions. While the Beneficiary is not required to allocate all of his time to performing managerial or executive job duties, the nonmanagerial or nonexecutive tasks he would perform should only be incidental to an otherwise managerial or executive position. An employee who "primarily'' performs the tasks necessary to produce a product or to provide services is not considered to be "primarily" employed in a managerial or executive capacity. See. e.g, sections 10l(a)(44)(A) and (B) of the Act (requiring that one ··primarily" perform the enumerated 9 Matter of N-1-, LC managerial or executive duties); Matter ofChurch Scientology Int'l, 19 I&N Dec. 593, 604 (Comm'r 1988). In the present matter, not only does the record contain deficient job descriptions that lack necessary information about the Beneficiary's proposed daily tasks at the time of tiling, but it also lacks sufficient evidence that would lead to the conclusion that the Petitioner's organizational hierarchy was sufficient to relieve him from having to primarily carry out the Petitioner's operational functions and to support him in a primarily managerial or executive position. III. CONCLUSION The approval of the petition will remain revoked and the appeal dismissed based on the lack of sufficient evidence establishing that the Beneficiary would be employed in the United States in a managerial or executive capacity. ORDER: The appeal is dismissed. Cite as Matter ofN-1-. LC, ID# 667967 (AAO Nov. 15, 2017) 10
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