dismissed EB-2 Case: Computer Science
Decision Summary
The appeal was dismissed because the beneficiary did not possess a single foreign degree equivalent to a U.S. baccalaureate degree. Under the regulations for this visa category, possessing such a degree is a prerequisite to establishing the equivalency of an advanced degree through a combination of education and work experience. Furthermore, the petitioner submitted inconsistent educational evaluations and failed to resolve the discrepancies, thus failing to meet the burden of proof.
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identifYing data deletoo to prevent ch.;,r':' Irl"--"f d '. " "" r,UHe lnvaslOn o! ., .. -'n''','j , '''.J ,)f/vac)' ~UBLICCOPY FILE: INRE: Petitioner: Beneficiary: U.S. Department of Homeland Securit)' U.S. Citizenship and Immigration Services qfJice of Administrative Appeals, MS 2090 Washington, DC 20529-2090 u.s. Citizenship and Immigration Services Office: NEBRASKA SERVICE CENTER Date:NOV 1 S Z010 PETITION: Immigrant Petition for Alien Worker as a Member of the Professions Holding an Advanced Degree or an Alien of Exceptional Ability Pursuant to Section 203(b )(2) of the Immigration and Nationality Act, 8 U.S.c. § I I 53(b)(2) ON BEHALF OF PETITIONER: INSTRUCTIONS: Enclosed please find the decision of the Administrative Appeals Office in your case. All of the documents related to this matter have been returned to the office that originally decided your case. Please be advised that any further inquiry that you might have concerning your case must be made to that office. If you believe the law was inappropriately applied by us in reaching our decision, or you have additional information that you wish to have considered, you may file a motion to reconsider or a motion to reopen. The specific requirements for filing such a request can be found at 8 C.F.R. § 103.5. All motions must be submitted to the office that originally decided your case by filing a Form 1-290B, Notice of Appeal or Motion. The fee for a Form I-290B is currently $585, but will increase to $630 on November 23, 20 I O. Any appeal or motion filed on or after November 23, 20 I 0 must be filed with the $630 fee. Please be aware that 8 C.F.R. § 103.5(a)(1)(i) requires that any motion must be filed within 30 days of the decision that the motion seeks to reconsider or reopen. Thank you, crv Perry Rhew Chief, Administrative Appeals Office www.oscis.2:0V Page 4 alien must have a bachelor's degree with at least five years progressive experience in the professions." H.R. Conf. Rep. No. 955, 101st Cong., 2nd Sess. 1990, 1990 U.S.C.C.A.N. 6784, 1990 WL 201613 at *6786 (Oct. 26,1990). At the time of enactment of section 203(b )(2) of the Act in 1990, it had been almost thirteen years since Matter of Shah was issued. Congress is presumed to have intended a four-year degree when it stated that an alien "must have a bachelor's degree" when considering equivalency for second preference immigrant visas. We must assume that Congress was aware of the agency's previous treatment of a "bachelor's degree" under the Act when the new classification was enacted and did not intend to alter the agency's interpretation of that term. See Lorillard v. Pons, 434 U.S. 575, 580- 81 (1978) (Congress is presumed to be aware of administrative and judicial interpretations where it adopts a new law incorporating sections of a prior law). See also 56 Fed. Reg. 60897,60900 (Nov. 29, 1991) (an alien must have at least a bachelor's degree). In 1991, when the final rule for 8 C.F.R. § 204.5 was published in the Federal Register, the Immigration and Naturalization Service (the Service), responded to criticism that the regulation required an alien to have a bachelor's degree as a minimum and that the regulation did not allow for the substitution of experience for education. After reviewing section 121 of the Immigration Act of 1990, Pub. L. 101-649 (1990), and the Joint Explanatory Statement of the Committee of Conference, the Service specifically noted that both the Act and the legislative history indicate that an alien must have at least a bachelor's degree: The Act states that, in order to qualify under the second classification, alien members of the professions must hold "advanced degrees or their equivalent." As the legislative history ... indicates, the equivalent of an advanced degree is "a bachelor's degree with at least five years progressive experience in the professions." Because neither the Act nor its legislative history indicates that bachelor's or advanced degrees must be United States degrees, the Service will recognize foreign equivalent degrees. But both the Act and its legislative history make clear that, in order to qualify as a professional under the third classification or to have experience equating to an advanced degree under the second, an alien must have at least a bachelor's degree. 56 Fed. Reg. 60897, 60900 (Nov. 29,1991) (emphasis added). There is no provision in the statute or the regulations that would allow a beneficiary to qualify under section 203(b)(2) of the Act as a member of the professions holding an advanced degree with anything less than a full baccalaureate degree. More specifically, a three-year bachelor's degree will not be considered to be the "foreign equivalent degree" to a United States baccalaureate degree. Matter of Shah, 17 I&N Dec. at 245. Where the analysis of the beneficiary's credentials relies on work experience alone or a combination of multiple lesser degrees, the result is the "equivalent" of a bachelor's degree rather than a "foreign equivalent degree.,,2 In order to have experience and , Compare 8 C.F.R. § 214.2(h)(4)(iii)(D)(5) (defining for purposes of a nonimmigrant visa classification, the "equivalence to completion of a college degree" as including, in certain cases, a specific combination of education and experience). The regulations pertaining to the immigrant Page 5 education equating to an advanced degree under section 203(b )(2) of the Act, the beneficiary must have a single degree that is the "foreign equivalent degree" to a United States baccalaureate degree. 8 C.F.R. § 204.5(k)(2). As explained in the preamble to the final rule, persons who claim to qualify for an immigrant visa by virtue of education or experience equating to a bachelor's degree may qualify for a visa pursuant to section 203(b)(3)(A)(i) of the Act as a skilled worker with more than two years of training and experience. 56 Fed. Reg. at 60900. For this classification, advanced degree professional, the regulation at 8 C.F.R. § 204.5(k)(3)(i)(B) requires the submission of an "official academic record showing that the alien has a United States baccalaureate degree or a foreign equivalent degree." For classification as a member of the professions, the regulation at 8 C.F.R. § 204.5(l)(3)(ii)(C) requires the submission of "an official college or university record showing the date the baccalaureate degree was awarded and the area of concentration of study." We cannot conclude that the evidence required to demonstrate that an alien is an advanced degree professional is any less than the evidence required to show that the alien is a professional. To do so would undermine the congressionally mandated classification scheme by allowing a lesser evidentiary standard for the more restrictive visa classification. Moreover, the commentary accompanying the proposed advanced degree professional regulation specifically states that a "baccalaureate means a bachelor's degree received from a college or university, or an equivalent degree." (Emphasis added.) 56 Fed. Reg. 30703, 30306 (July 5, 1991). Compare 8 c.F.R. § 204.5(k)(3)(ii)(A) (relating to aliens of exceptional ability requiring the submission of "an official academic record showing that the alien has a degree, diploma, certificate or similar award from a college, university, school or other institution of learning relating to the area of exceptional ability"). As noted above, the beneficiary possesses a three-year Bachelor of Science Degree from the University of Delhi and a Post-Graduate Diploma in Systems Management from the National Institute of Information Technology (NUT) in India. The record contains two evaluations of the beneficiary's credentials. The first was submitted with the Form 1-140 petition and was prepared by the The evaluation states that the beneficiary's Bachelor of Science degree from the University of Delhi is equivalent to three years of university-level credit from an accredited college of university in the United States. The evaluation further states that the beneficiary'S post-graduate diploma from NUT is equivalent to "professional training offered by private training centers in the United States." The evaluation concludes that the beneficiary "has the equivalent of three years of university level credit from an accredited college or university in the United States." The evaluation further concludes that the combination of the beneficiary's education and "employment experiences" are equivalent to a bachelor's degree in management information systems from an accredited college or university in the United States. Subsequently, in response to a Notice of Intent to Deny (NorD) issued by the director, the petitioner submitted an evaluation of the beneficiary's education prepared by of Pace University. The evaluation states that the beneficiary'S Bachelor of Science degree from the University of Delhi is equivalent to three years of studies at an accredited U.S. college or university. The evaluation further states that "the completion by the candidate of the post-secondary program at classification sought in this matter do not contain similar language. Page 6 the standing alone, represents the fulfillment of the equivalent of a Bachelor of Science Degree in Computer Science at an accredited US college or university." The evaluations in the record are therefore inconsistent. The submission of inconsistent evidence precludes approval unless those inconsistencies are overcome with objective credible evidence. More specifically, it is incumbent on the petitioner to resolve any inconsistencies in the record by independent objective evidence, and attempts to explain or reconcile such inconsistencies, absent competent objective evidence pointing to where the truth, in fact, lies, will not suffice. Matter of Ho, 19 I&N Dec. 582, 591-592 (BIA 1988). The petitioner has failed to resolve the inconsistencies in the evaluations and has thus failed to establish that the beneficiary possesses a U.S. bachelor's degree or foreign equivalent degree. Despite counsel's claims to the contrary on appeal, there is no evidence in the record that the beneficiary's Bachelor of Science Degree from the University of Delhi is a foreign equivalent degree to a U.S. bachelor's degree. As noted above, both evaluations in the record state that the beneficiary'S three-year Bachelor of Science degree is equivalent to three years of study at a U.S. institution of higher education. Further, there is no evidence that NIIT is a college or university. Instead, the evaluation by •••• ••• states that NIIT is a "private institution" which offers classes that are "comparable to classes offered by universities in the United States." As noted above, a degree from a college or university is required for classification as an advanced degree professional. 8 C.F.R. § 204.5(k)(3)(i)(B). Because the beneficiary does not have a "United States baccalaureate degree or a foreign equivalent degree," the beneficiary does not qualify for preference visa classification under section 203(b )(2) of the Act as he does not have the minimum level of education required for the equivalent of an advanced degree. Qualifications for the Job Offered Relying in part on Madany, 696 F.2d at 1008, the U.S. Federal Court of Appeals for the Ninth Circuit (Ninth Circuit) stated: [Ilt appears that the DOL is responsible only for determining the availability of suitable American workers for a job and the impact of alien employment upon the domestic labor market. It does not appear that the DOL's role extends to determining if the alien is qualified for the job for which he seeks sixth preference status. That determination appears to be delegated to the INS under section 204(b), 8 U .S.c. § 1154(b), as one of the determinations incident to the INS's decision whether the alien is entitled to sixth preference status. K.R.K. irvine, inc. v. Landon, 699 F.2d 1006, 1008 (9th Cir. 1983). The court relied on an amicus brief from DOL that stated the following: The labor certification made by the Secretary of Labor ... pursuant to section 212(a)[(5)1 of the ... [Actl ... is binding as to the findings of whether there are able, Page 7 willing, qualified, and available United States workers for the job offered to the alien, and whether employment of the alien under the terms set by the employer would adversely affect the wages and working conditions of similarly employed United States workers. The labor certification in no way indicates that the alien offered the certified job opportunity is qualified (or not qualified) to peljorm the duties of that job. (Emphasis added.) /d. at 1009. The Ninth Circuit, citing 699 F.2d at 1006, revisited this issue, stating: 'The INS, therefore, may make a de novo determination of whether the alien is in fact qualified to fill the certified job offer." Tongatapu, 736 F. 2d at 1309. The key to determining the job qualifications is found on Form ETA-750 Part A. This section of the application for alien labor certification, "Offer of Employment," describes the terms and conditions of the job offered. It is important that the ETA-7S0 be read as a whole. The instructions for the Form ETA 750A, item 14, provide: Minimum Education, Training, and Experience Required to Perform the Job Duties. Do not duplicate the time requirements. For example, time required in training should not also be listed in education or experience. Indicate whether months or years are required. Do not include restrictive requirements which are not actual business necessities for performance on the job and which would limit consideration of otherwise qualified U.S. workers. Moreover, when determining whether a beneficiary is eligible for a preference immigrant visa, USCIS may not ignore a term of the labor certification, nor may it impose additional requirements. See Madany, 696 F.2d at 1015. USCIS must examine "the language of the labor certification job requirements" in order to determine what the job requires. [d. The only rational manner by which USCIS can be expected to interpret the meaning of terms used to describe the requirements of a job in a labor certification is to examine the certified job offer exactly as it is completed by the prospective employer. See Rosedale Linden Park Company v. Smith, 595 F. Supp. 829, 833 (D.D.C. 1984) (emphasis added). users's interpretation of the job's requirements, as stated on the labor certification must involve reading and applying the plain language of the alien employment certification application form. See id. at 834. USCIS cannot and should not reasonably be expected to look beyond the plain language of the labor certification that DOL has formally issued or otherwise attempt to divine the employer's intentions through some sort of reverse engineering of the labor certification. The minimum level of education required for the proffered position is set forth in part 14 of the Form ETA 750. Specifically, Part 14 states that the proffered position requires four years of college and a "B.S. or equiv. degree" in computer science, engineering, math or equivalent. On appeal, counsel states that an employer "is permitted to define its terms in the labor certification and the employer defines or equivalent to be education evaluated as equal to a U.S. Bachelor of Science Degree by a credential evaluating service taking only the beneficiary's education into consideration." However, in order to qualify for classification under section 203(b )(2) of the Act, the Page 8 position must require a member of the professions holding an advanced degree or equivalent. As stated above, in order to have experience and education equating to an advanced degree under section 203(b)(2) of the Act, the beneficiary must have a single degree that is the "foreign equivalent degree" to a United States baccalaureate degree. 8 C.F.R. § 204.5(k)(2). Thus, to the extent that counsel is suggesting that an employer may accept something less than a single degree that is the "foreign equivalent degree" to a United States baccalaureate degree, and still be eligible for classification under section 203(b )(2) of the Act, counsel is incorrect. Counsel also states on appeal that the director ignored the fact that the beneficiary's three-year Bachelor of Science degree required more classroom hours than a typical U.S. bachelor's degree. The record includes an affidavit from the beneficiary regarding the number of classroom hours which he completed in his three-year bachelor's degree program. However, there is nothing in the record establishing that a comparison of classroom hours is a legitimate way to compare a three-year Indian bachelor's degree and a U.S. bachelor's degree. For example, if the ratio of hours spent studying outside the classroom is different in the Indian and U.S. systems, comparing hours spent in the classroom would be misleading.] As discussed above, the evaluations submitted by the petitioner clearly state that the beneficiary's three-year bachelor's degree is only equivalent to three years of study at a U.S. college or university. Therefore, even assuming the beneficiary's bachelor's degree program required more classroom hours than a typical U.S. bachelor's degree program, it does not appear that this is an accurate measure for comparing such programs. Furthermore, as noted above, the beneficiary's NUT program cannot qualify the beneficiary for the classification sought because NUT is not a college or university. See 8 C.F.R. §204.5(k)(3)(i)(B). The petitioner has failed to establish that the beneficiary has a "United States baccalaureate degree or a foreign equivalent degree," and, thus, does not qualify for preference visa classification under section 203(b)(2) of the Act. In addition, the beneficiary does not meet the job requirements on the labor certification. For these reasons, considered both in sum and as separate grounds for denial, the petition may not be approved. Beyond the decision of the director, petitioner had not established that it had the continuing ability to pay the beneficiary the proffered wage beginning on the priority date of the visa petition. An application or petition that fails to comply with the technical requirements of the law may be denied by the AAO even if the Service Center does not identify all of the grounds for denial in the initial decision. See Spencer Enterprises, Inc. v. United States, 229 F. Supp. 2d 1025, 1043 (E.D. Cal. 2001), affd, 345 F.3d 683 (9th Cir. 2003); see also Soltane v. DOl, 381 F.3d 143,145 (3d Cir. 2004) (noting that the AAO conducts appellate review on a de novo basis). 3See e.g., Robert A. Watkins, The University of Texas at Austin, "Assigning Undergraduate Transfer Credit: It's Only an Arithmetical Exercise," at (accessed November 3, 2010)(stating that the Indian system is exam-based instead of credit-based, thus transfer credits from India are derived from the number of exams passed; and that, in India, six exams equates to 30 credit hours). Page 9 The regulation at 8 C.F.R. § 204.5(g)(2) states in pertinent part: Ability of prospective employer to pay wage. Any petItIon filed by or for an employment-based immigrant which requires an offer of employment must be accompanied by evidence that the prospective United States employer has the ability to pay the proffered wage. The petitioner must demonstrate this ability at the time the priority date is established and continuing until the beneficiary obtains lawful permanent residence. Evidence of this ability shall be either in the form of copies of annual reports, federal tax returns, or audited financial statements. The petitioner must demonstrate the continuing ability to pay the proffered wage beginning on the priority date, which is the date the Form ETA 750, was accepted for processing by any office within the employment system of the DOL. See 8 C.F.R. § 204.5(d). Here, the Form ETA 750 was accepted on October 29,2003. The proffered wage as stated on the Form ETA 750 is $91,000.00 per year. The petitioner must establish that its job offer to the beneficiary is a realistic one. Because the filing of a Form ETA 750 labor certification application establishes a priority date for any immigrant petition later based on the Form ETA 750, the petitioner must establish that the job offer was realistic as of the priority date and that the offer remained realistic for each year thereafter, until the beneficiary obtains lawful permanent residence. The petitioner's ability to pay the proffered wage is an essential element in evaluating whether a job offer is realistic. See Matter of Great Wall, 16 I&N Dec. 142 (Acting Reg. Comm. 1977); see also 8 C.F.R. § 204.5(g)(2). In evaluating whether a job offer is realistic, USCIS requires the petitioner to demonstrate financial resources sufficient to pay the beneficiary's proffered wages, although the totality of the circumstances affecting the petitioning business will be considered if the evidence warrants such consideration. See Matter of Sonegawa, 12 I&N Dec. 612 (Reg. Comm. 1967). In determining the petitioner's ability to pay the proffered wage during a given period, USCIS will first examine whether the petitioner employed and paid the beneficiary during that period. If the petitioner establishes by documentary evidence that it employed the beneficiary at a salary equal to or greater than the proffered wage, the evidence will be considered prima facie proof of the petitioner's ability to pay the proffered wage. In the instant case, the petitioner submitted a copy of the Form W-2, Wage and Tax Statement, issued to the beneficiary for the year 2006. The Form W-2 shows that the beneficiary was paid $58,638.30 in 2006, which is $32,36l.70 less than the proffered wage. The petitioner must establish its ability to pay the difference between the proffered wage and wages paid to the beneficiary in 2006. The petitioner must also establish its ability to pay the beneficiary the full proffered wage in 2003, 2004 and 2005. If the petitioner does not establish that it employed and paid the beneficiary an amount at least equal to the proffered wage during that period, USCIS will next examine the net income figure reflected on the petitioner's federal income tax return, without consideration of depreciation or other expenses. River Street Donuts, LLC v. Napolitano, 558 F.3d III (151 Cir. 2009); Taco Especial v. Napolitano, --- F. Supp. 2d. ---, 2010 WL 956001, at *6 (E.D. Mich. 2010. Reliance on federal Page 10 income tax returns as a basis for determining a petitioner's ability to pay the proffered wage is well established by judicial precedent. Elatos Restaurant Corp. v. Sava, 632 F. Supp. 1049, 1054 (S.D.N.Y. 1986) (citing Tongatapu Woodcraft Hawaii, Ltd. v. Feldman, 736 F.2d 1305 (9th Cir. 1984»; see also Chi-Feng Chang v. Thornburgh, 719 F. Supp. 532 (N.D. Texas 1989); K.c.P. Food Co., Inc. v. Sava, 623 F. Supp. 1080 (S.D.N.Y. 1985); Ubeda v. Palmer, 539 F. Supp. 647 (N.D. Ill. 1982), ajf'd, 703 F.2d 571 (7th Cir. 1983). Reliance on the petitioner's gross sales and profits and wage expense is misplaced. Showing that the petitioner's gross sales and profits exceeded the proffered wage is insufficient. Similarly, showing that the petitioner paid wages in excess of the proffered wage is insufficient. In K.c.P. Food Co., Inc. v. Sava, 623 F. Supp. at 1084, the court held that the Immigration and Naturalization Service, now CIS, had properly relied on the petitioner's net income figure, as stated on the petitioner's corporate income tax returns, rather than the petitioner's gross income. The court specifically rejected the argument that the Service should have considered income before expenses were paid rather than net income. See Taco Especial v. Napolitano, --- F. Supp. 2d. at *6 (gross profits overstate an employer's ability to pay because it ignores other necessary expenses). With respect to depreciation, the court in River Street Donuts noted: The AAO recognized that a depreciation deduction is a systematic allocation of the cost of a tangible long-term asset and does not represent a specific cash expenditure during the year claimed. Furthermore, the AAO indicated that the allocation of the depreciation of a long-term asset could be spread out over the years or concentrated into a few depending on the petitioner's choice of accounting and depreciation methods. Nonetheless, the AAO explained that depreciation represents an actual cost of doing business, which could represent either the diminution in value of buildings and equipment or the accumulation of funds necessary to replace perishable equipment and buildings. Accordingly, the AAO stressed that even though amounts deducted for depreciation do not represent current use of cash, neither does it represent amounts available to pay wages. We find that the AAO has a rational explanation for its policy of not adding depreciation back to net income. Namely, that the amount spent on a long term tangible asset is a "real" expense. River Street Donuts at 118. "[USCIS] and judicial precedent support the use of tax returns and the net income figures in determining petitioner's ability to pay. Plaintiffs' argument that these figures should be revised by the court by adding back depreciation is without support." Chi-Feng Chang at 537 (emphasis added). Here, the petitioner has not submitted copies of tax returns, annual reports or audited financial statements for the years 2003, 2004, 2005 or 2006. Therefore, the petitioner has not established that it had sufficient net income to pay the proffered wage in those years. Although the petitioner Page II submitted a letter dated July 9, 2007 indicating that it has the ability to pay the proffered wage, this letter is not from a financial officer. Accordingly, the letter does not comply with the regulations and does not carry any evidentiary weight. 8 C.F.R. §204.S(g)(2). Regardless, USC IS is not required to accept such letters in lieu of required evidence, especially when a petitioner has filed multiple petitions. See infra. If the net income the petitioner demonstrates it had available during that period, if any, added to the wages paid to the beneficiary during the period, if any, do not equal the amount of the proffered wage or more, USCIS will review the petitioner's assets. Net current assets are the difference between the petitioner's current assets and current liabilities.4 A corporation's year-end current assets are shown on Schedule L, lines 1 through 6 and include cash-on-hand. Its year-end current liabilities are shown on lines 16 through 18. If the total of a corporation's end-of-year net current assets and the wages paid to the beneficiary (if any) are equal to or greater than the proffered wage, the petitioner is expected to be able to pay the proffered wage using those net current assets. As noted above, the petitioner has not submitted copies of tax returns, annual reports or audited financial statements for the years 2003, 2004, 2005 or 2006. Therefore, the petitioner has not established that it had sufficient net current assets to pay the proffered wage in those years. Therefore, from the date the ETA Form 750 was accepted for processing by the DOL, the petitioner had not established that it had the continuing ability to pay the beneficiary the proffered wage as of the priority date through an examination of wages paid to the beneficiary, or its net income or net current assets. In addition, USCIS electronic records show that the petitioner filed several other 1-140 petitions which have been pending during the time period relevant to the instant petition. If the instant petition were the only petition filed by the petitioner, the petitioner would be required to produce evidence of its ability to pay the proffered wage to the single beneficiary of the instant petition. However, where a petitioner has filed multiple petitions for multiple beneficiaries which have been pending simultaneously, the petitioner must produce evidence that its job offers to each beneficiary are realistic, and therefore that it has the ability to pay the proffered wages to each of the beneficiaries of its pending petitions, as of the priority date of each petition and continuing until the beneficiary of each petition obtains lawful permanent residence. See Matter of Great Wall, 16 I&N Dec. 142, 144-145 (Acting Reg. Comm. 1977) (petitioner must establish ability to pay as of the date of the Form MA 7-S0B job offer, the predecessor to the Form ETA 750 and Form ETA 9089). See also 8 C.F.R. § 204.S(g)(2). The record in the instant case contains no information about the proffered wage for the beneficiaries of the other petitions filed by the petitioner, about the current immigration status of the beneficiaries, whether the beneficiaries have withdrawn from the visa petition process, or whether the petitioner has withdrawn its job offers to the beneficiaries. 4According to Barron's Dictionary of Accounting Terms 117 (yd ed. 2000), "current assets" consist of items having (in most cases) a life of one year or less, such as cash, marketable securities, inventory and prepaid expenses. "Current liabilities" are obligations payable (in most cases) within one year, such accounts payable, short-term notes payable, and accrued expenses (such as taxes and salaries). [d. at 118. Page 12 Furthermore, no information is provided about the current employment status of the beneficiaries, the date of any hiring and any current wages of the beneficiaries. Since the record in the instant petition fails to establish the petitioner's ability to pay the proffered wage to the single beneficiary of the instant petition, it is not necessary to consider further whether the evidence also establishes the petitioner's ability to pay the proffered wage to the beneficiaries of the other petitions filed by the petitioner, or to other beneficiaries for whom the petitioner might wish to submit 1-140 petitions based on the same approved ETA Form 750 labor certifications. The burden of proof in these proceedings rests solely with the petitioner. Section 291 of the Act, S U .S.C. § 1361. The petitioner has not met that burden. ORDER: The appeal is dismissed.
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