dismissed EB-2 Case: Engineering

identifyingdatadeletedto
preventclearlyunwarranted
invasionofpersonalprivacy
PUBLICCOPY
U.S.Department of HomelandSecurity
U.S.CitizenshipandImmigrationServices
AdministrativeAppealsOffice(AAO)
20 MassachusettsAve.,N.W., MS 2090
Washington,DC 20529-2090
8 U.S.Citizenship
and Immigration
Services
DATE:0CT 2 6 2011OFFICE:NEBRASKASERVICECENTER
IN RE: Petitioner:
Beneficiary:
PETITION: ImmigrantPetitionfor Alien Workerasa Memberof theProfessionsHolding anAdvanced
Degreeor anAlien of ExceptionalAbility Pursuantto Section203(b)(2)of theImmigration
andNationalityAct, 8U.S.C.§ 1153(b)(2)
ONBEHALF OFPETITIONER:
INSTRUCTIONS:
Enclosedpleasefind thedecisionof theAdministrativeAppealsOfficein yourcase.All of thedocuments
relatedtothismatterhavebeenreturnedtotheofficethatoriginallydecidedyourcase.Pleasebeadvisedthat
anyfurtherinquirythatyoumighthaveconcerningyourcasemustbemadetothatoffice.
If you believethe law wasinappropriatelyappliedby us in reachingour decision,or you haveadditional
informationthatyou wishto haveconsidered,you mayfile 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,
with a fee of $630. Pleasebe awarethat 8 C.F.R.§ 103.5(a)(1)(i)requiresthat any motionmustbe filed
within 30daysof thedecisionthatthemotionseeksto reconsideror reopen.
Thankyou,
PerryRhew
Chief,AdministrativeAppealsOffice
www.uscis.gov
Page2
DISCUSSION: The Director,NebraskaServiceCenter,deniedthe employment-basedimmigrant
visapetition,which is nowbeforetheAdministrativeAppealsOffice (AAO) on appeal.Theappeal
will bedismissed.
Thepetitioneris an engineering,manufacturing,marketing,andsalesof semiconductorsanddisplay
devicesbusiness.It seeksto employthe beneficiarypermanentlyin the United Statesasa design
engineerpursuantto section203(b)(2)of the ImmigrationandNationalityAct (theAct), 8U.S.C.§
1153(b)(2). As required by statute,a Form ETA 750,1 Application for Alien Employment
Certification,which the Departmentof Labor (DOL) approved,accompaniedthe petition. Upon
reviewingthe petition,the directordeterminedthatthebeneficiarydid not meetthe specifiedjob
requirementsor qualify for theclassificationsought. Specifically,the directordeterminedthatthe
beneficiarydid notpossesstherequisiteeducation.
On appeal,counselsubmitsa letter, four educationalevaluations,and additionalevidence. The
AAO will dismissthe appealfinding thatthebeneficiarydid not possesstherequisiteeducationfor
theposition.
In pertinentpart,section203(b)(2)of theAct providesimmigrantclassificationto membersof the
professionsholding advanceddegreesor their equivalentand whoseservicesare soughtby an
employerin the United States. An advanceddegreeis a United Statesacademicor professional
degreeor a foreign equivalentdegreeabovethe baccalaureatelevel. 8 C.F.R. § 204.5(k)(2). The
regulationfurther states:"A United Statesbaccalaureatedegreeor a foreign equivalentdegree
followed by at leastfive yearsof progressiveexperiencein the specialtyshall be consideredthe
equivalentof a master'sdegree.If a doctoraldegreeis customarilyrequiredby the specialty,the
alienmusthaveaUnitedStatesdoctorateor aforeignequivalentdegree."Id.
Thebeneficiaryearneda foreignthree-yearBachelorof Sciencedegreein electronics,physics,and
mathematicsfrom theUniversityof Poonain Indiain 1993anda two-yearMasterof Sciencedegree
in electronic sciencefrom the sameuniversity in 1996. Thus, the issuesare whetherthose
credentialsqualify the beneficiaryfor the classificationsoughtand meet the specifiedjob
requirements.
Eligibility for theClassificationSought
As notedabove,the DOL certifiedtheETA 750 in this matter. DOL determineswhetherthereare
sufficientworkerswho areable,willing, qualified,andavailableandwhethertheemploymentof the
alienwill adverselyaffectthewagesandworkingconditionsof workersin theUnitedStatessimilarly
employed.Section212(a)(5)(A)(i)of theAct; 20C.F.R.§656.1(a).
It is significantthatnoneof theaboveinquiriesCongressassignedto DOL,or theremainingregulations
implementingthesedutiesunder20C.F.R.§656,involveadeterminationasto whetheror notthealien
After March 28, 2005,the correctform to apply for alien employmentcertificationis the Form
ETA 9089.
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is qualifiedfor aspecificimmigrantclassificationor eventhejob offered.Rather,U.S.Citizenshipand
ImmigrationServices(USCIS)determineswhetherthealienis qualifiedunderthealienemployment
certificationrequirements.Matter of Wing'sTeaHouse,16 I&N Dec. 160(Acting Reg'l Comm'r
1977). Federalcourtshaverecognizedthisdivisionof authority.SeeTongatapuWoodcraftHawaii,
Ltd. v. Feldman,736F. 2d 1305,1309(9* Cir. 1984);Madanyv.Smith,696F.2d1008,1012-1013
(D.C.Cir. 1983).
A UnitedStatesbaccalaureatedegreegenerallyrequiresfour yearsof education.Matter of Shah,17
I&N Dec. 244 (Reg'l. Comm'r. 1977). This decisioninvolveda petition filed under8U.S.C.
§1153(a)(3)asamendedin 1976.At thattime,thissectionprovided:
Visasshallnextbe madeavailable. . . to qualifiedimmigrantswho aremembersof
theprofessions. . . .
TheAct addedsection203(b)(2)(A)of theAct, 8 U.S.C.§1153(b)(2)(A),whichprovides:
Visas shallbe madeavailable. . . to qualifiedimmigrantswho aremembersof the
professionsholdingadvanceddegreesor theirequivalent. . . .
Significantly,thestatutorylanguageusedpriorto Matterof Shah,17I&N Dec.at244is identicalto
the statutorylanguageusedsubsequentto that decisionbut for the requirementthat the immigrant
hold an advanceddegreeor its equivalent. The Joint ExplanatoryStatementof the Committeeof
Conference,publishedas part of the Houseof RepresentativesConferenceReport on the Act,
providesthat"[in] consideringequivalencyin category2 advanceddegrees,it is anticipatedthatthe
alien must have a bachelor's degreewith at least five years progressiveexperiencein the
professions."H.R.Conf.Rep.No.955,101"Cong.,2"4Sess.1990,1990U.S.C.C.A.N.6784,1990
WL 201613at*6786(Oct.26,1990).
At thetime of enactmentof section203(b)(2)of theAct in 1990,it hadbeenalmostthirteenyears
sinceMatterof Shahwasissued.Congressis presumedto haveintendedafour-yeardegreewhenit
statedthat an alien "must havea bachelor'sdegree"whenconsideringequivalencyfor second
preference immigrant visas. The AAO must assumethat Congresswas aware of the agency's
previoustreatmentof a "bachelor'sdegree"undertheAct whenthenewclassificationwasenacted
anddid not intendto altertheagency'sinterpretationof thatterm. SeeLorillard v. Pons,434U.S.
575,580-81(1978)(Congressis presumedto beawareof administrativeandjudicial interpretations
where it adoptsa new law incorporatingsectionsof a prior law). In fact, the SenateConference
Report for the Act presumesthat a baccalaureateis a "4-year courseof undergraduatestudy."
S.Rep.No. 101-55at 20 (1989). Seealso56Fed.Reg.60897,60900(Nov.29, 1991)(analien
musthaveatleastabachelor'sdegree).
In 1991,whenthefinal rule for 8 C.F.R.§ 204.5appearedin theFederalRegister,the Immigration
andNaturalizationService(theService)(now USCIS),respondedto criticismthat the regulation
requiredanaliento haveabachelor'sdegreeasa minimumandthattheregulationdid not allowfor
thesubstitutionof experiencefor education.After reviewingsection121of theImmigrationAct of
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1990,Pub.L. 101-649(1990),andtheJoint ExplanatoryStatementof theCommitteeof Conference,
theServicespecificallynotedthatboththeAct andthelegislativehistoryindicatethatanalienmust
haveatleastabachelor'sdegree:
TheAct statesthat,in orderto qualifyunderthesecondclassification,alienmembers
of the professionsmust hold "advanceddegreesor their equivalent." As the
legislativehistory. . . indicates,theequivalentof anadvanceddegreeis "a bachelor's
degreewith at leastfive yearsprogressiveexperiencein the professions." Because
neithertheAct norits legislativehistoryindicatesthatbachelor'sor advanceddegrees
mustbeUnitedStatesdegrees,theServicewill recognizeforeignequivalentdegrees.
But both the Act andits legislativehistory makeclearthat, in orderto qualify asa
professionalunder the third classificationor to have experienceequatingto an
advanceddegreeunderthesecond,analienmusthaveat leasta bachelor'sdegree.
56Fed.Reg.60897,60900(Nov.29,1991)(emphasisadded).
Thereis no provisionin thestatuteor theregulationsthatwouldallow abeneficiaryto qualifyunder
section203(b)(2)of the Act as a memberof the professionsholding an advanceddegreewith
anythinglessthanafull baccalaureatedegree(plustherequisitefive yearsof progressiveexperience
in the specialty). More specifically,USCISwill not considera three-yearbachelor'sdegreeasa
"foreignequivalentdegree"to aUnitedStatesbaccalaureatedegree.Matterof Shah,17I&N Dec.at
245. Where the analysisof the beneficiary'scredentialsrelies on work experiencealoneor a
combinationof multiple lesserdegrees,theresult is the "equivalent"of a bachelor'sdegreerather
than a "foreign equivalentdegree."2 In order to have experienceand educationequatingto an
advanceddegreeundersection203(b)(2)of the Act, the beneficiarymusthavea singlefour-year
degreethat is the "foreign equivalentdegree"to a United Statesbaccalaureatedegree(plus the
requisitefive yearsof progressiveexperiencein the specialty). 8 C.F.R.§204.5(k)(2). Seealso
RegalInternational,Inc. v.Napolitano,No. 10C 5347(N.D.Ill. E.D. Sept.29,2011).
The petitioner submittedfour evaluationsfrom
concludesthatthebeneficiarypossessestheequivalentto ectronics
in theUnited States. Shedoesnot go into detailasto how shereachedher conclusion.
2 Compare 8 C.F.R. §214.2(h)(4)(iii)(D)(5) (defining for purposesof a nonimmigrant visa
classification,the "equivalenceto completionof a collegedegree"asincluding,in certaincases,a
specificcombinationof educationandexperience). The regulationspertainingto the immigrant
classificationsoughtin thismatterdonotcontainsimilarlanguage.
3TheAAO wasunableto verify thatthe"doctorates"claimedby were
basedoneducationatanaccreditedinstitution. TheAAO alsonotesthatmembershipin associations
thatrequireonly thepaymentof feesis notpersuasiveevidenceof expertise.
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Appel concludesthat the beneficiarycompletedthe equivalentto a Masterof Sciencedegreein
electronicsin theUnitedStates.Hefindsthatthebeneficiarycompleted96 creditsfor hisbachelor's
degreeprogramand 64 creditsfor his master'sdegreeprogram. statesthat the
beneficiary's master's degreeprogram required the completion of a bachelor's degree and
competitiveentranceexaminations.Goingon recordwithout supportingdocumentaryevidenceis
notsufficientfor purposesof meetingtheburdenof proofin theseproceedings.Matter of Soffici,22
I&N Dec.158,165(Comm'r1998)(citingMatterof TreasureCraftof Canfornia,14I&N Dec.190
(Reg'lComm'r1972)).
concludethatthebeneficiarypossessesthe
equivalentto a Masterof Sciencein electronics.However, both state
thatthebeneficiarycompleted40 credithoursfor this master'sdegreeratherthan64.
additionallyconcludesthatthebeneficiary'sBachelorof Sciencedegreeconstitutedthecompletion
of 120credits,whereas concludedthatthesamedegreeconstitutedthecompletion
of only96credits.MatterofHo, 19I&N Dec.582,591-592(BIA 1988),states:
It is incumbenton the petitionerto resolveany inconsistenciesin the record by
independentobjective evidence, and attempts to explain or reconcile such
inconsistencies,absentcompetentobjectiveevidencepointingto wherethe truth, in
fact,lies,will notsuffice.
tatesthatshebasesheranalysisonthecredibilityof thebeneficiary'suniversityandthe
natureof the coursework.The AAO notesthat sheclaimsto be evaluatingonly the beneficiary's
master'sdegree.However, courseby courseevaluationincludesat leasteightcourses
from the beneficiary'sbachelor'sdegreetranscript. Such a significant discrepancywithin her
evaluationsubstantiallyaffects overallcredibility asanevaluator.Matter of D-R-,25
I&N Dec.445,460n. 13(BIA 2011)(citingFed.R.Evid.702).
TheAAO notesthatnoneof theevaluatorshaveprovidedanypeerreviewedsourceto supporttheir
opinions. USCISmay, in its discretion,useas advisoryopinionsstatementssubmittedasexpert
testimony. However,wherean opinionis not in accordwith otherinformationor is in anyway
questionable,theServiceis not requiredto acceptor maygive lessweightto thatevidence.Matter of
CaronInternational,19I&N Dec.791,795(Comm'r 1988);Matter of Sea,Inc., 19I&N Dec.817,
820(Comm'r 1988).
The directornotedin his June20, 2008Requestfor Evidence(RFE)that he had consultedthe
ElectronicDatabasefor Global Education(EDGE) as a tool to help analyzethe beneficiary's
educationalbackground. According to its website, the American Association of Collegiate
RegistrarsandAdmissionsOfficers(AACRAO),which createdEDGEis "a nonprofit,voluntary,
professionalassociationof more than 11,000 higher education admissionsand registration
professionalswho representmorethan2,600institutionsandagenciesin the United Statesandin
over40 countriesaroundthe world." Seehttp://www.aacrao.org/About-AACRAO.aspx(accessed
October3, 2011 and incorporatedinto the record of proceeding). Its mission "is to provide
professionaldevelopment,guidelinesand voluntary standardsto be used by higher education
Page6
officials regardingthe bestpracticesin recordsmanagement,admissions,enrollmentmanagement,
administrativeinformation technologyand studentservices."Id. In ConfluenceIntern., Inc. v.
Holder,2009WL 825793(D.Minn.March27,2009),afederaldistrictcourtdeterminedthattheAAO
provideda rationalexplanationfor its relianceon informationprovidedby AACRAO to supportits
decision.
According to the login page, EDGE is "a web-basedresourcefor the evaluationof foreign
educationalcredentials"thatis continuallyupdatedandrevisedby staff andmembersof AACRAO.
'AACRAO EDGE Login,"
http://aacraoedge.aacrao.org/(accessedOctober 3, 2011 and incorporatedinto the record of
proceeding).In TiscoGroup,Inc.v.Napolitano,2010WL 3464314(E.D.Mich.August30,2010),a
federaldistrict court found that USCIShad properly weighedthe evaluationssubmittedandthe
informationobtainedfrom EDGEto concludethatthealien'sthree-yearforeign"baccalaureate"and
foreign "Master's" degreewere comparableto a U.S. bachelor'sdegree. In SunshineRehab
Services,Inc., 2010WL 3325442(E.D.Mich.August20, 2010),a federaldistrict courtuphelda
USCISconclusionthatthealien'sthree-yearbachelor'sdegreewasnot a foreignequivalentdegree
to a U.S.bachelor'sdegree.Specifically,thecourtconcludedthatUSCISwasentitledto preferthe
informationin EDGE anddid not abuseits discretionin reachingits conclusion. The court also
notedthat the alien employmentcertification itself requireda degreeand did not allow for the
combinationof educationandexperience.
In the sectionrelatedto the Indianeducationalsystem,EDGEprovidesthat a Bachelorof Science
degreeis threeyearsin durationandrepresentsattainmentof a level of educationcomparableto
threeyearsof universitystudyin theUnitedStates.In addition,EDGEstatesthatamaster'sdegree
following a three-yeardegreeis comparableto a U.S. baccalaureate. This information is
inconsistentwith thecredentialsevaluationsthatcounselsubmitted.
On appeal,counselassertsthatthebeneficiarypossessesa degreeabovethatof abachelor'sdegree,
whichsheequatesto a Masterof Sciencedegreein electronics.Counselsubmitsmaterialsfrom the
Councilof GraduateSchoolsandthe EuropeanCentrefor HigherEducation,which both advocate
the acceptanceof three-yearbachelor's degrees. The Council of GraduateSchools consistsof
graduateschoolsin the United Statesand Canada. This organizationnotes that certain U.S.
universitiesacceptthree-yearbachelor'sdegreesas qualifying for entranceinto master'sdegree
programs. The EuropeanCentre for Higher Educationnotes similar practiceswithin certain
Europeanuniversities. The AAO notesthat the beneficiarydid not attenda graduateprogramin
eithertheUnitedStatesor Europe,socounsel'sargumentis notpersuasive.
Counseladditionallyreferencesa prior AAO unpublisheddecisionin whichabeneficiarypossessed
a three-yearbachelor'sdegreefollowedby a two-yearmaster'sdegree.While 8 C.F.R.§ 103.3(c)
providesthatprecedentdecisionsof USCISarebindingonall itsemployeesin theadministrationof the
Act, unpublisheddecisionsarenot similarlybinding. Precedentdecisionsmustbe designatedand
publishedin boundvolumesor asinterimdecisions.8C.F.R.§ 103.9(a).
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The petitionerhas not documentedthat the beneficiarypossessedfive yearsof post baccalaureate
experiencebeforethepriority dateof June17,2004. Becausethebeneficiaryhasneither(1) a U.S.
advanceddegreeor foreign equivalentdegree,nor (2) a U.S. baccalaureatedegreeor foreign
equivalentdegreeandfive yearsof progressiveexperiencein the specialty,he doesnot qualify for
preferencevisaclassificationasanadvanceddegreeprofessionalundersection203(b)(2)of theAct.
Qualificationsfor theJob Offered
Relyingin parton Madany,696F.2dat 1008,the U.S.FederalCourtof Appealsfor theNinth
Circuit (Ninth Circuit) stated:
[I]t appearsthat the DOL is responsibleonly for determiningthe availability of
suitableAmericanworkersfor a job andthe impactof alien employmentupon the
domestic labor market. It does not appearthat the DOL's role extendsto
determiningif the alien is qualifiedfor thejob for which he seekssixth preference
status. Thatdeterminationappearsto be delegatedto theINS undersection204(b),
8U.S.C. § 1154(b),as one of the determinationsincident to the INS's decision
whetherthealienis entitledto sixthpreferencestatus.
K.R.K.Irvine,Inc.v.Landon,699F.2d1006,1008(9* Cir. 1983).Thecourtreliedonanamicusbrief
fromDOLthatstatedthefollowing:
The labor certification made by the Secretaryof Labor ... pursuantto section
212(a)[(5)]of the ... [Act] ... is binding asto thefindingsof whetherthereareable,
willing, qualified,andavailableUnitedStatesworkersfor thejob offeredto thealien,
and whetheremploymentof the alien underthe termssetby the employerwould
adverselyaffect the wagesand working conditionsof similarly employedUnited
Statesworkers. Thelabor certification in no way indicatesthat thealien offeredthe
certifiedjob opportunity is qualified (or not qualified) to perform the duties of that
job.
(Emphasisadded.)Id. at1009.TheNinthCircuit,citingK.R.K.Irvine,Inc.,699F.2dat1006,revisited
this issue,stating: "The INS, therefore,maymakea denovo determinationof whetherthe alienis in
factqualifiedto fill thecertifiedjob offer." Tongatapu,736F. 2d at 1309.SeealsoMatterof Wing's
TeaHouse,16I&N Dec.at160.
Thekeyto determiningthejob qualificationsis foundonFormETA-750PartA. Thissectionof the
applicationfor alien employmentcertification,"Offer of Employment,"describesthe terms and
conditionsof thejob offered. It is importantthattheETA-750bereadasa whole. Theinstructions
for theFormETA 750A,item14,provide:
Minimum Education, Training, and ExperienceRequired to Perform the Job
Duties. Do not duplicatethe time requirements. For example,time requiredin
trainingshouldnotalsobelistedin educationor experience.Indicatewhethermonths
Page8
or yearsarerequired. Do not includerestrictiverequirementswhich arenot actual
businessnecessitiesfor performanceon thejob andwhich would limit consideration
of otherwisequalifiedU.S.workers.
Moreover,when determiningwhethera beneficiaryis eligible for a preferenceimmigrant visa,
USCISmaynot ignorea termof the alien employmentcertification,nor may it imposeadditional
requirements.SeeMadany,696 F.2d at 1015. USCISmust examine"the languageof the labor
certificationjob requirements"in orderto determinewhat thejob requires. Id. The only rational
mannerby which USCIS canbe expectedto interpretthe meaningof termsusedto describethe
requirementsof a job in an alien employmentcertificationis to examinethe certifiedjob offer
exactlyas it is completedby the prospectiveemployer. SeeRosedaleLinden Park Companyv.
Smith,595F. Supp.829,833(D.D.C.1984)(emphasisadded).USCIS'sinterpretationof thejob's
requirements,asstatedon thealienemploymentcertificationmustinvolvereadingandapplyingthe
plain languageof the alien employmentcertification applicationform. Seeid. at 834. USCIS
cannotand shouldnot reasonablybe expectedto look beyondthe plain languageof the alien
employmentcertification that DOL has formally issued or otherwise attempt to divine the
employer's intentions through some sort of reverse engineeringof the alien employment
certification.
Regardingtheminimumlevelof educationandexperiencerequiredfor theprofferedpositionin this
matter,PartA of thealienemploymentcertificationreflectsthefollowing requirements:
Block 14:
Education: Masterof Science(or foreign degreeequivalent)in electrical
engineering, electronics, computer engineering, computer
science,or arelatedfield.
Experience: 3 years in the proffered position or 3 years in the related
occupationof ASIC design/verification
Thebeneficiaryearneda foreignthree-yearBachelorof Sciencedegreein electronics,physics,and
mathematicsfrom theUniversity of Poonain India in 1993andaforeigntwo-yearMasterof Science
degreein electronicsciencefrom the sameuniversity in 1996. The beneficiarypossessedthe
requisitethreeyearsof experienceasof thepriority date. However,thebeneficiarydoesnotpossess
a U.S. Master of Sciencedegreein electrical engineering,electronics,computerengineering,
computerscience,or arelatedfield or its foreignequivalent.
The beneficiary does not have a U.S. master'sdegreeor a foreign equivalentdegree. The
beneficiaryalsodoesnot havea U.S.baccalaureatedegreeor a foreignequivalentdegreefollowed
by five yearsof progressiveexperiencein the specialty. Thus,thebeneficiarydoesnot qualify for
preferencevisaclassificationundersection203(b)(2)of theAct. In addition,thebeneficiarydoes
not meetthejob requirementson thealienemploymentcertification. For thesereasons,considered
bothin sumandasseparategroundsfor denial,thepetitionmaynotbeapproved.
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Theburdenof proof in theseproceedingsrestssolelywith thepetitioner. Section291 of the Act,
8 U.S.C.§ 1361.Thepetitionerhasnotmetthatburden.
ORDER:Theappealisdismissed.