dismissed EB-2 Case: Consulting

identifyingdatadeletedto
preventclearlyunwarranted
mvasionofpersonalprivacy
U.S.Departmentof HomelandSecurity
RS. CitizenshipandImmigrationServices
AdministrativeAppeals00ice (AAO)
20 MassachusettsAve, N.W MS 2090
Washington.DC 20529-2090
U.S.Citizenship
and Immigration
Services
PUBUCCOPY
DATE: NOV 2 3 1013OFFICE:NEBRASKASERVICECENTER FILE:
IN RE: Petitioner:
Beneficiary:
PETITION: Immigrant Petition for Alien Worker as a Memberof the ProfessionsHolding an
AdvancedDegreeor anAlien of ExceptionalAbility Pursuantto Section203(b)(2)of the
ImmigrationandNationalityAct, 8 U.S.C.§ 1153(b)(2)
ON BEHALFOFPETITIONER:
INSTRUCTIONS:
Enclosedpleasefind the decision of the Administrative Appeals Office in your case. All of the
documentsrelatedto this matterhavebeenreturnedto theoffice thatoriginally decidedyour case. Please
beadvisedthatanyfurtherinquiry thatyou mighthaveconcerningyour casemustbemadeto thatoffice.
If you believethe law wasinappropriatelyappliedby usin reachingour decision,or you haveadditional
informationthatyouwishto haveconsidered,youmayfile amotionto reconsideror amotionto reopen.
Thespecificrequirementsfor filing sucharequestcanbefoundat8C.F.R.§ 103.5.All motionsmustbe
submittedto theofficethatoriginallydecidedyourcaseby filing a FormI-290B,Noticeof Appealor
Motion,with a feeof $630. Pleasebeawarethat8 C.F.R.§ 103.5(a)(1)(i)requiresthatanymotionmust
befiledwithin30daysof thedecisionthatthemotionseekstoreconsiderorreopen.
Thankyou,
PerryRhew
Chief,AdministraiveAppealsOffice
www.uscis.gov
Page2
DISCUSSION: The Director, Nebraska Service Center, denied the employment-based
immigrantvisa petition andthe AdministrativeAppealsOffice (AAO) dismisseda subsequent
appeal. TheAAO reopenedthematter. Theappealwill bedismissed.
The petitioneris a consultingbusiness.It seeksto employthe beneficiarypermanentlyin the
UnitedStatesasa consultantpursuantto section203(b)(2)of theImmigrationandNationalityAct
(theAct),8U.S.C.§ 1153(b)(2).As requiredby statute,anETA Form9089,Applicationfor
PermanentEmploymentCertification(ETA Form 9089),approvedby the United States
Departmentof Labor(DOL), accompaniedthe petition. Uponreviewingthe petition,the
directordeterminedthatthebeneficiarydidnotsatisfytheminimumlevelof educationstatedon
thelaborcertification. Specifically,thedirectordeterminedthatthebeneficiarydid notpossessa
four-yearbachelor'sdegreeas requiredon the ETA Form 9089. Accordingly, the director
deniedthepetitiononJuly5,2007.
Therecordshowsthattheappealis properlyfiled andtimelyandmakesa specificallegationof
error in law or fact. The proceduralhistory in this caseis documentedby the record and
incorporatedinto thedecision.Furtherelaborationof theproceduralhistorywill bemadeonly as
necessary.
OnFebruary2,2010,theAAOdismissedtheappeal.In thedecision,theAAOdisagreedwith
thedirector'sfinding,but dismissedtheappealbecausetheminimumrequirementsassetforth
on theETA Form9089do not satisfytherequirementsof thesecondpreferenceclassification.
On May 13,2011,the AAO reopenedthis matteron its own motionpursuantto 8 C.F.R.§
103.5(a)(5)(ii)andgrantedthepetitioner30daysto submitabrief. TheAAO receivedcounsel's
brief on May 31,2011. TheAAO is enteringanewdecisiononthismatter.
In pertinentpart, section203(b)(2)of theAct providesimmigrantclassificationto membersof
theprofessionsholdingadvanceddegreesor theirequivalentandwhoseservicesaresoughtby
an employerin the United States. An advanceddegreeis a United Statesacademicor
professionaldegreeor a foreignequivalentdegreeabovethe baccalaureatelevel. 8 C.F.R.§
204.5(k)(2). Theregulationfurtherstates:"A UnitedStatesbaccalaureatedegreeor a foreign
equivalentdegreefollowedby at leastfive yearsof progressiveexperiencein thespecialtyshall
beconsideredtheequivalentof amaster'sdegree.If adoctoraldegreeis customarilyrequiredby
thespecialty,thealienmusthavea UnitedStatesdoctorateor a foreignequivalentdegree."Id.
TheAAO conductsappellatereviewon a denovobasis.SeeSoltanev. DOJ, 381F.3d 143,145
(3d Cir. 2004). TheAAO considersall pertinentevidencein therecord,includingnewevidence
properlysubmitteduponappealandin responseto theAAO's suaspontemotion.1
Thesubmissionof additionalevidenceon appealis allowedby theinstructionsto theFormI-
290B,which areincorporatedinto the regulationsby the regulationat 8 C.F.R.§ 103.2(a)(1).
The recordin the instantcaseprovidesno reasonto precludeconsiderationof any of the
documentsnewlysubmittedonappeal.SeeMatterofSoriano,19I&N Dec.764(BIA 1988).
Page3
In this matter,PartH, lines4 and7, of the laborcertificationreflectthat a bachelor'sdegreein
accounting,computerscience,engineeringor businessadministrationis the minimumlevel of
educationrequired. Line 8 reflectsthatno combinationof educationor experienceis acceptable
in the alternative. Line 9 reflectsthat a foreigneducationalequivalentis acceptable.Line 10
reflectsthattheprofferedpositionalsorequires66 months(five anda half years)of experience
in thealternateoccupationof SAPFICOconsultantor relatedoccupation.
The beneficiary possessesa foreign three-yearbachelor's degreeof commercefrom the
University of Madrasin India and certificateof membershipwith the Institute of Chartered
Accountantsof India (ICAI). Thus, the issuesare whether the degreeor certificate of
membershipwith ICAI is a single sourcefreign degreeequivalentto a U.S. baccalaureate
degreeor, if not, whetherit is appropriateto considerthecombinationof thebeneficiary'sthree-
yeardegreeandthe certificateof membershipwith ICAI asa foreignequivalentdegree. We
mustalsoconsiderwhetherthe beneficiarymeetsthejob requirementsassetforth on the labor
certification.
Eligibility for the ClassificationSought
As notedabove,theETA Form9089in thismatteris certifiedby DOL. DOL's role is limitedto
determiningwhethertherearesufficientworkerswhoareable,willing, qualifiedandavailableand
whethertheemploymentof thealienwill adverselyaffectthewagesandworkingconditionsof
workersin the UnitedStatessimilarlyemployed. Section212(a)(5)(A)(i)of the Act; 20 C.F.R.
§656.1(a).
It is significantthat noneof the aboveinquiriesassignedto DOL, or the remainingregulations
implementingthesedutiesunder20 C.F.R.§656,involvea determinationasto whetheror notthe
alienis qualifiedfor a specificimmigrantclassificationor eventhejob offered.Thisfacthasnot
goneunnoticedby federalcircuit courts. SeeTongatapuWoodcraftHawaii, Ltd. v. Feldman,736
F.2d 1305,1309(9thCir. 1984);Madanyv.Smith,696F.2d1008,1012-1013(D.C.Cir. 1983).
The AAO is bound by the Act, agencyregulations,precedentdecisionsof the agencyand
publisheddecisionsfrom thecircuit courtof appealsfrom whatevercircuit thattheactionarose.
SeeN.L.R.B.v. AshkenazyPropertyManagementCorp.,817F.2d74, 75 (9'hCir. 1987)
(administrativeagenciesarenotfreeto refuseto follow precedentin casesoriginatingwithin the
circuit);R.L.Inv.Ltd.Partnersv.INS,86F.Supp.2d1014,1022(D.Haw.2000),aff'd273F.3d
874(9thCir. 2001)(unpublishedagencydecisionsandagencylegalmemorandaarenot binding
undertheAPA, evenwhentheyarepublishedin privatepublicationsor widely circulated).
A United Statesbaccalaureatedegreeis generallyfound to requirefour yearsof education.
MatterofShah,17I&N Dec.244(Reg'l.Comm'r.1977).Thisdecisioninvolvedapetitionfiled
under8 U.S.C.§1153(a)(3)asamendedin 1976.At thattime,thissectionprovided:
Visasshallnextbemadeavailable. . .toqualifiedimmigrantswhoaremembers
of theprofessions. . . .
Page4
TheAct addedsection203(b)(2)(A)of theAct,8U.S.C.§1153(b)(2)(A),whichprovides:
Visasshallbemadeavailable. . . to qualifiedimmigrantswho aremembersof the
professionsholdingadvanceddegreesor theirequivalent. . . .
Significantly,the statutorylanguageusedprior to Matter of Shah,17 I&N Dec. at 244 is
identicalto the statutorylanguageusedsubsequentto thatdecisionbut for therequirementthat
theimmigrantholdanadvanceddegreeor its equivalent.TheJointExplanatoryStatementof the
Committeeof Conference,publishedaspartof theHouseof RepresentativesConferenceReport
on the Act, providesthat "[in] consideringequivalencyin category2 advanceddegrees,it is
anticipatedthat the alien must havea bachelor'sdegreewith at leastfive yearsprogressive
experiencein the professions." H.R. Conf. Rep.No. 955, 101" Cong.,2"dSess.1990,1990
U.S.C.C.A.N.6784,1990WL201613at*6786(Oct.26,1990).
At the time of enactmentof section203(b)(2)of the Act in 1990,it hadbeenalmostthirteen
yearssinceMatterof Shahwasissued. Congressis presumedto haveintendeda four-year
degreewhen it statedthat an alien "must have a bachelor'sdegree"when considering
equivalencyfor secondpreferenceimmigrantvisas. WemustassumethatCongresswasaware
of the agency'sprevioustreatmentof a "bachelor'sdegree"under the Act when the new
classificationwasenactedanddid notintendto altertheagency'sinterpretationof thatterm. See
Lorillard v. Pons,434 U.S. 575, 580-81(1978)(Congressis presumedto be awareof
administrativeandjudicial interpretationswhereit adoptsa newlaw incorporatingsectionsof a
priorlaw). Seealso56Fed.Reg.60897,60900(Nov.29, 1991)(analienmusthaveat leasta
bachelor'sdegree).
In 1991,whenthefinal rulefor 8 C.F.R.§ 204.5waspublishedin theFederalRegister,the
ImmigrationandNaturalizationService(theService),respondedto criticismthattheregulation
requiredanaliento haveabachelor'sdegreeasaminimumandthattheregulationdid notallow
for thesubstitutionof experiencefor education.After reviewingsection121of theImmigration
Act of 1990,Pub.L. 101-649(1990),andtheJointExplanatoryStatementof the Committeeof
Conference,the Servicespecificallynotedthat boththeAct andthe legislativehistory indicate
thatanalienmusthaveat leastabachelor'sdegree:
The Act statesthat, in order to qualify underthe secondclassification,alien
membersof theprofessionsmusthold"advanceddegreesortheirequivalent."As
the legislativehistory . . . indicates,the equivalentof an advanceddegreeis "a
bachelor's degreewith at least five years progressiveexperiencein the
professions." Becauseneitherthe Act nor its legislativehistory indicatesthat
bachelor'sor advanceddegreesmustbe UnitedStatesdegrees,the Servicewill
recognizeforeignequivalentdegrees.But boththeAct andits legislativehistory
makeclearthat,in orderto qualifyasaprofessionalunderthethird classification
or to haveexperienceequatingto anadvanceddegreeunderthesecond,analien
musthaveat leasta bachelor'sdegree.
56Fed.Reg.60897,60900(Nov.29,1991)(emphasisadded).
Page5
Thereis no provisionin the statuteor the regulationsthatwould allow a beneficiaryto qualify
under section203(b)(2) of the Act as a memberof the professionsholding an advanceddegree
with anythinglessthana full baccalaureatedegree(plusthe requisitefive yearsof progressive
experiencein the specialty). More specifically,a three-yearbachelor'sdegreewill not be
consideredto bethe"foreignequivalentdegr=" to aUnitedStatesbaccalaureatedegree.Matter
ofShah, 17I&N Dec.at 245. Wheretheanalysisof thebeneficiary'scredentialsreliesonwork
experiencealoneor a combinationof multiplelesserdegrees,theresultis the"equivalent"of a
bachelor'sdegreeratherthana "foreignequivalentdegree."2In orderto haveexperienceand
educationequatingto an advanceddegreeundersection203(b)(2)of the Act, the beneficiary
musthavea singledegreethatis the"foreignequivalentdegree"to aUnitedStatesbaccalaureate
degree(plus the requisitefive yearsof progressiveexperiencein the specialty). 8 C.F.R.
§ 204.5(k)(2). Therefore,in the instantcase,thebeneficiary'sthree-yearbachelorof commerce
degreefrom theUniversityof Madrasin Indiais nota singlesourceforeigndegreeequivalentto
aU.S.baccalaureatedegree.
For this classification, advanced degree professional, the regulation at 8 C.F.R.
§204.5(k)(3)(i)(B)requiresthe submissionof an "official academicrecordshowingthat the
alienhasa United Statesbaccalaureatedegreeor a foreignequivalentdegree"(plusevidenceof
five yearsof progressiveexperiencein the specialty). For classificationasa memberof the
professions,theregulationat8 C.F.R.§204.5(1)(3)(ii)(C)requiresthesubmissionof "anofficial
collegeor universityrecordshowingthedatethebaccalaureatedegreewasawardedandthearea
of concentrationof study." We cannotconcludethatthe evidencerequiredto demonstratethat
an alien is an advanceddegreeprofessionalis anylessthanthe evidencerequiredto showthat
the alien is a professional. To do so would underminethe congressionallymandated
classificationschemeby allowing a lesserevidentiarystandardfor the more restrictive visa
classification. Moreover,the commentny accompanyingthe proposedadvanceddegree
professionalregulationspecificallystatesthat a "baccalaureatemeansa bachelor'sdegree
receivedfroma collegeor university,oranequivalentdegree."(Emphasisadded.)56Fed.Reg.
30703,30306(July 5, 1991). Compare8C.F.R.§204.5(k)(3)(ii)(A)(relatingto aliensof
exceptionalability requiringthe submissionof "an official academicrecordshowingthat the
alienhasa degree,diploma,certificateor similar awardfrom a college,university,schoolor
otherinstitutionoflearning relatingto theareaof exceptionalability").
It is notedthatthebeneficiarypossessedICAI associatemembershipuponpassingtheICAI final
examination. While the ElectronicDatabasefor Global Education(EDGE) createdby the
AmericanAssociationof CollegiateRegistrarsandAdmissionsOfficers(AACRAO)3confirms
2 Compare8 C.F.R.§214.2(h)(4)(iii)(D)(5)(definingfor purposesof a nonimmigrantvisa
classification,the"equivalenceto completionof acollegedegree"asincluding,in certaincases,
a specific combinationof educationand experience). The regulationspertainingto the
immigrantclassificationsoughtin thismatterdonotcontainsimilarlanguage.
3Accordingto its website,www.aacrao.org,AmericanAssociationof CollegiateRegistrarsand
AdmissionsOfficers (AACRAO) is "a nonprofit, voluntary,professionalassociationof more
Page6
thatICAI associatemembershipuponpassingtheICAI final examinationrepresentsattainment
of a level of educationcomparableto a bachelor'sdegreein theUnitedStates,http://aacraoedge.
aacrao.ora/credentialsAdvice.php?countryId=99&credentialID=137(accessedAugust 31, 2011),
ICAI associatemembershipisnotasinglesourcedegree.
Further,the professionalregulationcontainsa degreerequirementin the form of an official
college or university record. While ICAI may offer coursesand examinations,there is no
evidencethat ICAI is a college or university or that membershipis a "degree." See
Snapnames.com,Inc. v. Michael Chertof 2006WL 3491005*11 (D. Ore.Nov. 30, 2006)
(fmding USCISwasjustified in concludingthat ICAI membershipwas not a collegeor
university "degree"for purposesof classificationas a memberof the professionsholding an
advanceddegree). Moreover,a combinationof multiple degreesthat are eachless than
equivalentto afour-yeardegree,or athree-yeardegreeandadiplomaor membershipthatmight
beconsideredequivalentto a U.S.bachelor'sdegreedo notmeettherequirementsof thesecond
preferenceclassification. For advanceddegreeprofessionals,the regulationsrequirethat the
beneficiarypossessa singlesourceforeigndegreewhich is a singlesourceequivalentto a U.S.
bachelor'sdegree.
Therecordcontainsanevaluationreportpreparedby . on
July 9, 2007Muly 9, 2007evaluation).In herevaluation, cknowledgesthat
thebeneficiary'sbachelorof commercedegreeawardedin 1992by theUniversityof Madras
representstheacademicequivalentof threeyearsof universitystudyin businessadministration
at a regionallyaccreditedinstitution in the United States. Shefurther concludesthat the
beneficiary's"Certificateof Membership"(1998) issuedby ICAI representsthe academic
equivalentof a bachelor'sdegreein accountingfrom a re ionally accreditedinstitution in the
United States. In her ed July 9, 2007, refers to EDGE to supporther
conclusion. However, s July 9, 2007evaluationfailed to demonstratethat ICAI is a
collegeor universityor thatthemembershipfrom ICAI is adegree.As previouslydiscussed,we
note that an AAO decisionconcludingthat ICAI membershipwas not a collegeor university
"degree"for purposesof classificationas a memberof the professionsholding an advanced
degreewas upheld in federal court. Snapnames.com,Inc. v. Michael Chertoff, 2006 WL
3491005at 11. Further,whileEDGEconfirmsthatICAI associatemembershipuponpassingthe
ICAI final examinationrepresentsattainmentof a levelof educationcomparableto a bachelor's
than 11,000highereducationadmissionsandregistrationprofessionalswho representmorethan
2,600institutionsandagenciesin theUnitedStatesandin over40 countriesaroundtheworld."
Seehttp://www.aacrao.org/About-AACRAO.aspx.Its mission"is to serveandadvancehigher
educationby providingleadershipin academicandenrollmentservices."Id. Accordingto the
registrationpagefor the ElectronicDatabasefor GlobalEducation(EDGE),EDGE is "a web-
based resource for the evaluation of foreign educational credentials." See
http://aacraoedge.aacrao.org/register/(accessedAugust31, 2011). Authorsfor EDGEarenot
merelyexpressingtheirpersonalopinions.Rather,theymustworkwithapublicationconsultant
and a Council Liaison with AACRAO'sNationalCouncil on the Evaluationof Foreign
EducationalCredentials.If placementrecommendationsareincluded,theCouncilLiaisonworks
with the authorto givefeedbackandthepublicationis subjectto final reviewby the entire
Council.Id.
Page7
degreein the United States,EDGE doesnot concludethat it is a singlesourcedegreefrom a
collegeor universityor that the equivalencyappliesto the secondpreferenceclassificationfor
which theregulationsrequirea singlesourcedegreefrom a collegeor university.
U.S. Citizenshipand Immigration Services(USCIS) may, in its discretion,use as advisory
opinionsstatementssubmittedasexperttestimony.However,whereanopinionis notin accord
with otherinformationor is in anyway questionable,USCISis not requiredto acceptor may
give lessweight to that evidence.Matter of Caron International, 19I&N Dec. 791 (Comm.
1988).
Becausethebeneficiaryhasneither(1) a U.S.master'sdegreeor foreignequivalentdegree,nor
(2) a U.S. baccalaureatedegreeor foreignequivalentdegreein accounting,computerscience,
engineeringor businessadministrationandfin yearsof progressiveexperiencein the specialty,
he doesnot qualify for preferencevisa classificationasan advanceddegreeprofessionalunder
section203(b)(2)of theAct. Theportionof theAAO's February2, 2010decisionfindingthat
thebeneficiaryholdsanequivalentto aU.S.bachelor'sdegreein accountingis withdrawn.The
relevantportionof thedirector'sdecisionis affirmed.
Qualifications for the Job Offered
Relyingin partonMadany,696F.2dat 1008,theU.S.FederalCourtof Appealsfor theNinth
Circuit (Ninth Circuit) stated:
[I]t appearsthattheDOL is responsibleonly for determiningtheavailabilityof
suitableAmericanworkersfor ajob andtheimpactof alienemploymentuponthe
domesticlabor market. It doesnot appearthat the DOL's role extendsto
determiningif thealienis qualifiedfor thejob for whichheseekssixthpreference
status. That determinationappearsto be delegatedto the INS under section
204(b),8U.S.C.§ 1154(b),asoneof thedeterminationsincidentto theINS's
decisionwhetherthealienis entitledto sixthpreferencestatus.
K.R.K.Irvine,Inc.v.Landon,699F.2d1006,1008(9thCir. 1983).Thecourtreliedonanamicus
brieffromDOLthatstatedthefollowing:
The labor certificationmadeby the Secretaryof Labor ... pursuantto section
212(a)[(5)]of the... [Act] ... is bindingasto thefindingsof whetherthereare
able,willing, qualified,andavailableUnitedStatesworkersfor thejob offeredto
the alien, and whetheremploymentof the alien underthe terms set by the
employerwould adverselyaffectthe wagesandworking conditionsof similarly
employedUnitedStatesworkers. Thelabor certificationin nowayindicatesthat
the alien offeredthe certifiedjob opportunityis qualified (or not qualified) to
performthedutiesof thatjob.
Page8
(Emphasisadded.)Id. at 1009.TheNinthCircuit,citingK.R.K.Irvine,Inc.,699F.2dat 1006,
revisitedthis issue,stating: "The INS, therefore,maymakea denovodeterminationof whether
thealienis in factqualifiedto fill thecertifiedjob offer." Tongatapu,736F.2dat 1309.
Thekey to determiningthejob qualificationsis foundon ETA Form9089PartH. This section
of the applicationfor alienlaborcertification,"Job OpportunityInformation,"describesthe
termsandconditionsof thejob offered. It is importantthatthe ETA Form 9089be readasa
whole.
Moreover,whendeterminingwhethera beneficiaryis eligible for a preferenceimmigrantvisa,
USCIS may not ignore a term of the labor certification, nor may it impose additional
requirements.SeeMadany,696F.2dat 1015. USCISmustexamine"the languageof thelabor
certificationjob requirements"in orderto determinewhatthejob requires.Id. Theonly rational
mannerby which USCIScanbeexpectedto interpretthemeaningof termsusedto describethe
requirementsof ajob in a laborcertificationis to examinethecertifiedjob offer exactlyasit is
completedby theprospectiveemployer.SeeRosedaleLindenPark Companyv. Smith,595F.
Supp. 829, 833 (D.D.C. 1984)(emphasisadded). USCIS's interpretationof the job's
requirements,asstatedon the laborcertificationmustinvolvereadingandapplyingtheplain
languageof thealienemploymentcertificationapplicationform. Seeid. at 834. USCIScannot
and should not reasonablybe expectedto look beyond the plain languageof the labor
certification that DOL has formally issuedor otherwiseattemptto divine the employer's
intentionsthroughsomesortof reverseengineeringof thelaborcertification.
As previouslydiscussed,theregulationstates:An advanceddegreeis a United Statesacademic
or professionaldegreeor a foreignequivalentdegreeabovethebaccalaureatelevel,anda United
Statesbaccalaureatedegreeor a foreignequivalentdegreefollowedby at leastfive yearsof
progressiveexperiencein thespecialtyshallbeconsideredtheequivalentof a master'sdegree.
See8 C.F.R.§204.5(k)(2).Thejob offerportionof theETA Form9089in theinstantcasedoes
requireaprofessionalholdinganadvanceddegreeandthepetitionerrequestedclassificationasa
memberof the professionsholdingan advanceddegreeaccordingly. Therefore,the portion of
the AAO's decisionthat the ETA Form 9089 does not require a professionalholding an
advanceddegreeor theequivalentof analienof exceptionalability mustbewithdrawn.
Nonetheless,counsel'sassertionsandevidencesubmittedon appealcannotovercometheground
of thedirector'sdenialthatthepetitionerfaiW to demonstratethatthebeneficiarypossesseda
singlesourceforeigndegreeequivalentto a U.S. bachelor'sdegreein accounting,computer
science,engineeringor businessadministration.Thebeneficiarydoesnothavea "UnitedStates
baccalaureatedegreeor a foreignequivalentdegree,"and,thus,doesnot qualifyfor preference
visaclassificationundersection203(b)(2)of theAct. In addition,thebeneficiarydoesnotmeet
thejob requirementsonthelaborcertification.Forthesereasons,consideredbothin sumandas
separategroundsfor denial,thepetitionmaynotbeapproved.
Theburdenof proofin theseproceedingsrestssolelywith thepetitioner.Section291of theAct,
8 U.S.C.§ 1361.Thepetitionerhasnotmetthatburden.
Page9
ORDER: Theappealis dismissed.Thedecisionof thedirectoris affirmedandthepetition
remainsdenied.