dismissed EB-2 Case: Finance

U.S.Departmentof HomelandSecurity
U.S.CitizenshipandImmigrationServices
AdministrativeAppealsOffice(AAO)
20MassachusettsAve.,N.W.,MS2090
Washington,DC20529-2090
8 U.S.Citizenship
andImmigration
Services
DATE: OFFICE:NEBRASKASERVICECENTER FILE:
DEC272012
IN RE:
PETITION: ImmigrantPetitionfor Alien Workerasa Memberof theProfessionsHoldinganAdvanced
Degreeor anAlien of ExceptionalAbility Pursuantto Section203(b)(2)of theImmigration
andNationalityAct, 8 U.S.C.§ 1153(b)(2)
ONBEHALFOFPETITIONER:
SELF-REPRESENTED
INSTRUCTIONS:
Enclosedpleasefind thedecisionof theAdministrativeAppealsOffice in yourcase.All of thedocuments
relatedto thismatterhavebeenreturnedtotheofficethatoriginallydecidedyourcase.Pleasebeadvisedthat
anyfurtherinquirythatyoumighthaveconcerningyourcasemustbemadetothatoffice.
If you believethe AAO inappropriatelyappliedthe law in reachingits decision,or you haveadditional
informationthatyouwishto haveconsidered,youmayfile a motionto reconsideror amotionto reopenin
accordancewith the instructionson FormI-290B,Notice of Appealor Motion,with a fee of $630. The
specificrequirementsfor filing sucha motioncanbe foundat 8 C.F.R.§ 103.5.Do not file any motion
directly with theAAO. Pleasebeawarethat8 C.F.R.§ 103.5(a)(1)(i)requiresanymotionto befiled within
30daysof thedecisionthatthemotionseeksto reconsiderorreopen.
anky ,
RonRosenberg
ActingChief,AdministrativeAppealsOffice
www.uscis.gov
Page2
DISCUSSION: The employment-basedimmigrant visa petition was denied by the Director,
NebraskaServiceCenter(NSC Director). It is now on appealbefore the Acting Chief,
AdministrativeAppealsOffice(AAO). Theappealwill bedismissed.
The petitioner is a global softwareconsultingbusiness. It seeksto permanentlyemploy the
beneficiaryin the United Statesas a financialmanagerpursuantto section203(b)(2)of the
ImmigrationandNationalityAct (theAct),8 U.S.C.§ 1153(b)(2).Thissectionof theAct provides
for immigrantclassificationtomembersof theprofessionsholdingadvanceddegreeswhoseservices
are soughtby employersin the United States. The regulationat 8 C.F.R. § 204.5(k)(2)defines
"advanceddegree"asfollows:
Advanceddegreemeansany United Statesacademicor professionaldegreeor a
foreignequivalentdegreeabovethatof baccalaureate.A UnitedStatesbaccalaureate
degreeor a foreignequivalentdegreefollowed by at leastfive yearsof progressive
experiencein thespecialtyshallbeconsideredtheequivalentof amaster'sdegree.If
a doctoraldegreeis customarilyrequiredby the specialty,the alien must havea
UnitedStatesdoctorateor aforeignequivalentdegree.
Casehistory
TheFormI-140,ImmigrantPetitionfor Alien Worker,wasfiled by MinecodeLLC (Minecode)on
March8, 2007. Thepetitionwasaccompaniedby aphotocopiedETA Form9089,Applicationfor
PermanentEmploymentCertification,whichhadbeenfiledby MinecodeLLC attheDepartmentof
Labor(DOL) on December21, 2005,andcertifiedby the DOL on January13, 2006.1 Also
accompanyingthe petition was a letter from MinecodeLLC requestingthat the priority dateof
December2, 2004,applicableto anotherFormI-140petition(LIN 07 11352043,alsofiled on
March8, 2007)seekingthird preferenceclassificationfor thebeneficiary,beretainedfor thesecond
preferencepetitionin accordancewith theregulationat8 C.F.R.§ 204.5(e).
OnJuly 22, 2010,theNSCDirectorissueda Noticeof Intentto Deny(NOID) thepetition. Among
severalevidentiarydeficienciescitedin the NOID, the NSCDirectorindicatedthatthebeneficiary
did not appearto havetherequisiteeducationalcredential(s)specifiedon thelaborcertification.
Counselrespondedwith a brief, datedAugust 19, 2010,andadditionaldocumentationaddressing
eachof thepointsraisedin theNOID.
1ThecertifiedETA Form9089underlaysanotherFormI-140petitionby MinecodeLLC (EAC06
08551279)thatlikewisesoughtsecondpreferenceclassificationfor thebeneficiaryasanadvanced
degreeprofessional. That petition was approvedby the Director, Vermont ServiceCenter,on
August29,2006.TheapprovalwassubsequentlyrevokedbytheDirector,NebraskaServiceCenter,
on February22, 2011. The revocationdecisionwasappealedto theAAO, which is affirming the
revocationand dismissingthe appealin a decisionbeing issuedsimultaneouslywith the instant
decision.
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As a preliminarymatter,counselstatedthatIangtopInternationalLLC (Longtop)is thenewname
of the original petitioner,MinecodeLLC. CounselnotedthatIangtop continuedto usethesame
FederalEmployerIdentificationNumber(FEIN) asMinecodeandthatthebeneficiary'sFormsW-2,
WageandTax Statements,for theyears2006-2008identifiedhis employerasMinecodein 2006
followedby Iangtopin 2007and2008.A letterwassubmittedfromLongtop'svicepresident,dated
August16,2010,explainingthatMinecodewasacquiredin March2007by IangtopInternational
HoldingsLimited(LTI). Whileaportionof theMinecodebusinesswasspunoff intoanewentity-
MinecodeUSALLC- LTI wasspunoff toits shareholdersin July2007underthenameof Longtop
InternationalLLC, which retainedthe old Minecode'sFEIN and was registeredin the Stateof
Washingtonasthenewnamefor MinecodeLLC.
OnFebruary22,2011,theNSCDirectorissuedadecisiondenyingthepetition. Theprimaryground
for the denialwasthe petitioner'sfailure to establishthat the beneficiary'seducationalcredentials
from India- whichincludeathree-yearbachelorof commercedegreefrom anIndianuniversityand
certificatesfrom two accountantinstitutesin India - areequivalentto a U.S. bachelor'sdegreein
accounting,finance,or businessadministration,as requiredon the labor certification,ETA Form
9089,to qualify for the job. Therefore,the beneficiarywas not eligible for classificationas an
advanceddegreeprofessionalundersection203(b)(2)of the Act. In addition,the NSC Director
citedthenamechangefrom MinecodeLLC to LongtopInternationalLLC asan "unresolvedissue"
because"no changeof namedocumentationhasbeensubmitted"andthe documentationof record
"tendsto reflectanacquisitionof thepetitionerby LongtopInternational"ratherthana merename
change.
Thepetitionerfiled an appealon March9, 2011,followed by a brief from counselandsupporting
documentation.Counselreiterateshis claim that the beneficiarymeetsthe minimum educational
requirementsfor the profferedpositionandfor classificationasan advanceddegreeprofessional.
Counselassertsthat the NSCDirectordid not properlyconsiderpreviouslysubmittedevidence
regardingtheU.S.equivalencyof thebeneficiary'seducation.Counselalsocontendsthatpreviously
submittedevidenceof thepetitioner'snamechangewasnottakenintoconsideration.
TheissuesbeforetheAAO,therefore,arethefollowing:
m HasthepetitionerestablishedthatLongtopInternationalLLC is merelya changeof
name,andnotasuccessor-in-interest,vis-à-visMinecodeLLC?
m Doesthe beneficiaryhavethe requisiteeducationalcredential(s)to be eligible for
classificationasanadvanceddegreeprofessionalundersection203(b)(2)of theAct?
• Doesthebeneficiaryhavetherequisiteeducationalcredential(s)toqualifyfor thejob
of financialmanagerunderthetermsof thelaborcertification?
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Is LongtopInternationalLLC a changeof name,or successor-in-interest,vis-à-visMinecode
LLC?
Basedonthedocumentationof record- includingaphotocopiedcertificationon theletterheadof the
Stateof Washington,Secretaryof State,datedAugust30,2007,thatMinecodeLLC hadchangedits
nameto Ilmgtop InternationalLLC; andthe beneficiary'sFormsW-2, WageandTax Statements,
for the years2006-2008which identify his employeras MinecodeLLC in 2006andLongtop
InternationalLLC in 2007and2008,eachwith thesameFederalEmployerIdentificationNumber
(FEIN)- theAAO is persuadedthatLongtopis not thesuccessor-in-interestto Minecode,but rather
the same companywith a different name. Accordingly, Longtop InternationalLLC will be
recognizedastheproperandrightful petitionerin thisproceeding.
Is theBeneficiaryEligiblefor theClassificationSought?
As previouslydiscussed,theETA Form9089in thiscaseis certifiedby theDOL. TheDOL's roleis
limited to determiningwhetherthereare sufficient workerswho are able,willing, qualifiedand
availableand whetherthe employmentof the alien will adverselyaffect the wagesand working
conditionsof workersin theUnitedStatessimilarlyemployed.SeeSection212(a)(5)(A)(i)of theAct,
20C.F.R,§656.1(a).
It is significantthatnoneof the aboveinquiriesassignedto the DOL, or the remainingregulations
implementingthesedutiesunder20C.F.R.§656,involveadeterminationastowhetheror notthealien
is qualifiedfor a specificimmigrantclassificationor eventhejob offered. This fact hasnot gone
unnoticedby federalcircuit courts. SeeTongatapuWoodcraftHawaii, Ltd. v. Feldman,736F. 2d
1305,1309(9'hCir. 1984);Madanyv.Smith,696F.2d1008,1012-1013(D.C.Cir.1983).
A United Statesbaccalaureatedegreeis generallyfound to requirefour yearsof education. See
Matterof Shah,17l&N Dec.244(Reg'l.Comm'r.1977).2Thisdecisioninvolveda petitionfiled
under8 U.S.C.§1153(a)(3)of theAct,asamendedin 1976.At thattime,thissectionprovided:
Visasshallnext bemadeavailable. . . to qualifiedimmigrantswho aremembersof
theprofessions. . . .
TheImmigrationAct of 1990Act addedsection203(b)(2)(A)to theAct, 8 U.S.C.§1153(b)(2)(A),
whichprovides:
Visasshallbemadeavailable. . . to qualifiedimmigrantswhoaremembersof the
professionsholdingadvanceddegreesor theirequivalent. . . .
2 InMatterofShahtheRegionalCommissionerdeclinedtoconsiderathree-yearBachelorof Science
degreefrom Indiaastheequivalentof a UnitedStatesbaccalaureatedegreebecausethedegreedidnot
requirefouryearsof study.Id. at245.
Page5
Significantly,thestatutorylanguageusedpriortoMatterofShah,17I&N Dec.at244,is identicalto
the statutorylanguageusedsubsequentto thatdecisionbut 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"dSess.1990,1990U.S.C.C.A.N.6784,1990
WL 201613at6786(Oct.26,1990).
At thetimeof enactmentof section203(b)(2)of theAct in 1990,it hadbeenalmostthirteenyears
sinceMatterofShahwasissued.Congressis presumedto haveintendedafour-yeardegreewhenit
statedthat an alien "must have a bachelor'sdegree"when consideringequivalencyfor second
preference(advanceddegreeprofessional)immigrantvisas. We mustassumethat Congresswas
awareof the agency'sprevioustreatmentof a "bachelor'sdegree"underthe Act when the new
classificationwasenactedanddid not intendto alter the agency'sinterpretationof that term. See
Lorillard v.Pons,434U.S.575,580-81(1978)(Congressis presumedto beawareof administrative
andjudicial interpretationswhereit adoptsa new law incorporatingsectionsof a prior law). See
also56Fed.Reg.60897,60900(Nov.29, 1991)(analienmusthaveatleastabachelor'sdegree).
In 1991,whenthefinal rulefor 8 C.F.R.§ 204.5waspublishedin theFederalRegister,theINS
respondedto criticismthattheregulationrequiredanaliento haveabachelor'sdegreeasaminimum
and that the regulationdid not allow for the substitutionof experiencefor education. After
reviewingsection121of the ImmigrationAct of 1990,Pub.L. 101-649(1990),andthe Joint
ExplanatoryStatementof theCommitteeof Conference,theServicespecificallynotedthatboththe
Act andthelegislativehistoryindicatethatanalienmusthaveatleastabachelor'sdegree:
TheAct statesthat,in orderto qualify underthesecondclassification,alienmembers
of the professionsmust hold "advanceddegreesor their equivalent." As the
legislativehistory. . . indicates,theequivalentof anadvanceddegreeis "a bachelor's
degreewith at least five yearsprogressiveexperiencein the professions" Because
neithertheAct nor its legislativehistory indicatesthat bachelor'sor advanceddegrees
mustbeUnitedStatesdegrees,theServicewill recognizeforeignequivalentdegrees.
But both the Act andits legislativehistorymakeclearthat,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 noprovisionin thestatuteor theregulationsthatwouldallowabeneficiaryto qualifyunder
section203(b)(2)of the Act as a memberof the professionsholdingan advanceddegreewith
anythingless than a full baccalaureatedegree(plus five yearsof progressiveexperiencein the
specialty). More specifically,a three-yearbachelor'sdegreewill not be consideredto be the
"foreign equivalentdegree"to a United Statesbaccalaureatedegree.SeeMatter of Shah,17 I&N
Dec.at245. Wheretheanalysisof thebeneficiary'scredentialsreliesonwork experiencealoneor a
Page6
combinationof multiple lesserdegrees,the resultis the "equivalent"of a bachelor'sdegreerather
than a "foreign equivalentdegree."3 In order to haveexperienceand educationequatingto an
advanceddegreeundersection203(b)(2)of theAct, thebeneficiarymusthaveasingledegreethatis
the "foreign equivalentdegree" to a United Statesbaccalaureatedegree(plus five years of
progressiveexperiencein thespecialty).See8 C.F.R.§204.5(k)(2).
Thedegreemustalsobefromacollegeoruniversity.Theregulationat8 C.F.R.§204.5(k)(3)(i)(B)
requiresthe submissionof an "official academicrecordshowingthatthe alien hasa United States
baccalaureatedegreeor a foreign equivalentdegree"(plus evidenceof five yearsof progressive
experiencein the specialty). For classificationas a memberof the professions,the regulationat
8 C.F.R. § 204.5(1)(3)(ii)(C)requiresthe submissionof "an official collegeor university record
showingthedatethebaccalaureatedegreewasawardedandtheareaof concentrationof study." The
AAO cannotconcludethattheevidencerequiredto demonstratethatanalienis anadvanceddegree
professionalis anylessthantheevidencerequiredto showthatthealienis aprofessional.To doso
would underminethe congressionallymandatedclassification schemeby allowing a lesser
evidentiarystandardfor themorerestrictivevisaclassification.SeeSilvermanv.EastrichMultiple
InvestorFund,L.P.,51 F. 3d 28,31 (3'dCir. 1995)per APWUv. Potter,343F.3d619,626(2"d
Cir. Sep 15, 2003) (the basic tenetof statutoryconstruction,to give effect to all provisions,is
equally applicableto regulatoryconstruction). Moreover,the commentaryaccompanyingthe
proposedadvanceddegreeprofessionalregulationspecificallystatesthata "baccalaureatemeansa
bachelor'sdegreereceivedfrom a collegeor university,or an equivalentdegree." (Emphasis
added.)56Fed.Reg.30703,30306(July5, 1991).4
Thedocumentationof recordshowsthatthebeneficiaryearnedthefollowing educationalcredentials
in India:
E aBachelorof Commercefrom theUniversityof Rajasthan(Jaipur)onJune29, 1995,
following completionof athree-yeardegreeprogram;
E a Certificate of Merit frorn The Institute of Cost and Works Accountantsof India
(ICWAI), dated March 17, 1998, following passageof the Final Examination in
December1997;
3 Compare8 C.F.R. §214.2(h)(4)(iii)(D)(5)(defining for purposesof a nonimmigrantvisa
classification,the "equivalenceto completionof a collegedegree"asincluding,in certaincases,a
specificcombinationof educationandexperience).The regulationspertainingto the immigrant
classificationsoughtin thismatterdonotcontainsimilarlanguage.
4Cf. 8 C.F.R.§ 204.5(k)(3)(ii)(A)(relatingto aliensof exceptionalability requiringthesubmission
of "an official academicrecordshowingthat the alienhasa degree,diploma,certificateor similar
award from a college,university,school or other institution of learning relating to the areaof
exceptionalability").
Page7
E aFinalExaminationCertificatefromTheInstituteof CharteredAccountantsof India
(ICAI), datedJanuary11, 1998,following passageof the Final Examinationin
November1997. Thereafter,thebeneficiarywasadmittedasan Associateof the
Instituteon January4, 2002,andwas awardeda Certificateof Membershipin the
ICAI, datedJanuary31,2002.
In his denialdecisionthe NSCDirectornotedthatthebeneficiary'sbachelorof commerceis only a
three-yeardegree.As such,it is notconsideredequivalentto a four-yearbachelor'sdegreein the
UnitedStates.SeeMatterofShah.Thisfindingaccordswithinformationin theElectronicDatabase
for Global Education(EDGE),createdby the AmericanAssociationof CollegiateRegistrarsand
AdmissionsOfficers(AACRAO), which USCISconsultsas a resourceto evaluatethe U.S.
equivalencyof foreigneducationalcredentials.Accordingto itswebsite,AACRAOis "a nonprofit,
voluntary,professionalassociationof morethan11,000highereducationadmissionsandregistration
professionalswho representmorethan2,600institutionsandagenciesin the United Statesandin
over 40 countries." http://www.aacrao.org/About-AACRAO.aspx.Its mission "is to serveand
advancehighereducationby providingleadershipin academicandenrollmentservices."Id. EDGE
is "a web-based resource for the evaluation of foreign educational credentials."
http://edge.aacrao.org/info.php.Authors for EDGE are not merely expressingtheir personal
opinions. Rather,they must work with a publication consultantand a Council Liaison with
AACRAO's NationalCouncilon theEvaluationof ForeignEducationalCredentials.5If placement
recommendationsareincluded,theCouncilLiaisonworkswith theauthorto givefeedbackandthe
publicationis subjectto final reviewby theentireCouncil.Id. USCISconsidersEDGEto bea
reliable,peer-reviewedsourceof informationaboutforeigncredentialsequivalencies.6
EDGEstatesthata Bachelorof Commercedegreein India is awardeduponcompletionof two to
threeyearsof tertiary studybeyondthe Higher SecondaryCertificate(comparableto a U.S.high
s See An Author's Guide to Creating AACRAO International Publications available at
http://www.aacrao.org/publications/guide_tocreating_international_publications.pdf.
6 In COnfluenceIntern., Inc. v. Holder, 2009 WL 825793(D.Minn. March 27, 2009),the court
determinedthattheAAO providedarationalexplanationfor its relianceon informationprovidedby
AACRAO to supportits decision. In Tisco Group,Inc. v. Napolitano,2010 WL M
(ED.Mich.August30, 2010),thecourtfoundthatUSCIShadproperlyweighedtheevaluations
submittedandthe informationobtainedfrom EDGEto concludethatthe alien'sthree-yearforeign
"baccalaureate"andforeign "Master's" degreewereonly comparableto a U.S. bachelor'sdegree.
In SunshineRehabServices,Inc. 2010WL M(E.D.Mich. August20,2010),thecourtupheld
a USCISdeterminationthat the alien's three-yearbachelor'sdegreewasnot a foreign equivalent
degreeto a U.S. bachelor'sdegree.Specifically,the court concludedthat USCISwasentitledto
prefer the informationin EDGE anddid not abuseits discretionin reachingits conclusion.The
court also noted that the labor certification itself requireda degreeand did not allow for the
combinationof educationandexperience.
Page8
schooldiploma),with the greatmajority being awardedafter threeyearsof tertiary study. The
Indiandegreeis comparableto studyat a U.S. collegeor universityfor the samenumberof years.
Accordingto EDGE,therefore,thebeneficiary'sthree-yearbachelor'sdegreefrom theUniversityof
Rajasthanis mostlikely comparableto threeyearsof studyataU.S.collegeor university.7As such,
it isnotequivalentto aU.S.bachelor'sdegree.
With regardto the beneficiary'sICWAI credential,EDGE statesthat an ICWAI Final Exam
certificateandmembershipin theAssociationis:
Awardedupon passingof Final Examinationof the Institute and obtainingfor a
periodof not lessthanthreeyearsof practicalexperiencecoveringdifferentbranches
of Costing or IndustrialAccounting. The practicalexperienceas abovemay be
acquiredprior to or afterpassingthe Final Examinationor partly beforeandpartly
afterpassingthe final examination.The AssociateMembershipof the ICWAI is a
professionalqualificationawardeduponpassingtheICWAl FinalExamandmeeting
therequirementsasstatedabove.
http://edge.aacrao.org/country/credential/institute-of-cost-works-accountants-of-india-icwai-final-
exam-award-of-association-membership?cid=single(accessedNovember26, 2012). EDGEstates
thatpassageof theICWAI FinalExamandAssociationMembership"representsattainmentof a
levelof educationcomparableto abachelor'sdegreein theUnitedStates."Id.
Thereis no evidencein the recordthat the beneficiaryobtainedAssociationmembershipafter
passingthe ICWAI final examination.Without membershipin the ICWAI, thebeneficiary'sfinal
examinationcertificatewould not be comparableto a U.S. bachelor'sdegreeaccordingto EDGE.
Furthermore,thefull ICWAI credential(FinalExaminationcertificateandAssociationmembership)
is not basedon a four-yeareducationalprogram,but insteadrelieson a combinationof instruction,
practicalexperience,and examinations. Therefore,even if the beneficiaryhad the full ICWAI
credential,it wouldnotmakehim eligiblefor professionalclassification.Thepertinentregulation
readsasfollows:
If thepetitionis for aprofessional,thepetitionmustbeaccompaniedby evidencethat
the alienholds a United Statesbaccalaureatedegreeor a foreign equivalentdegree
and by evidencethat the alien is a memberof the professions. Evidenceof a
baccalaureatedegreeshall bein theform of an official collegeor universityrecord
showing the date the baccalaureatedegree was awarded and the area of
concentrationof study. To showthat the alien is a memberof the professions,the
7 The EDGE-basedassessmentof the beneficiary'seducationis consistentwith an Evaluation
Reportsubmittedby thepetitionerfrom theFoundationfor InternationalServices,Inc. (FIS),dated
June 15, 2006. The FIS report evaluatedthe beneficiary'sthree-yeardegreefrom Rajasthan
Universityasequivalentto threeyearsof studyat anaccreditedcollegeor universityin the United
States.
Page9
petitioner must submit evidencethat the minimum of a baccalaureatedegreeis
requiredfor entryinto theoccupation.
8 C.F.R.§ 204.5(1)(3)(ii)(C)(emphasisadded).TheICWAI, asnotedby theNSCDirectorin his
revocationdecision, is a membershiporganization,not a degree-grantinginstitution, and the
ICWAI's final examinationcertificateis not a U.S. baccalaureateor foreign equivalentdegree.
Accordingly,thebeneficiary'sCertificateof MeritfromICWAIdoesnotentitlehimto classification
asanadvanceddegreeprofessionalundersection203(b)(2)of theAct.
With regardto the beneficiary'sICAI credential,EDGE statesthat an ICAI Final Examination
certificateandmembershipin theAssociationis:
Awardedupontwo yearsof studybeyondthe ICAI IntermediateExam[two yearsof
studyalsoprecedetheIntermediateExam]anduponpassingtheICAI FinalExam.
http://edge.aacrao.org/country/credential/institute-of-chartered-accountants-of-india-icai-final-exam-
and-award-of-association-membership?cid=single(accessedNovember26,2012). EDGEstatesthat
passageof the ICAI Final ExaminationandAssociationmembership"representsattainmentof a
levelof educationcomparableto abachelor'sdegreein theUnitedStates."Id.
As previouslydiscussed,however,theregulationat 8 C.F.R.§ 204.5(1)(3)(ii)(C)requiresthatthe
beneficiaryhavea U.S.baccalaureateor foreignequivalentdegreeandevidencethereofin theform
of anofficial collegeor universityrecordto beeligible for professionalclassification.TheICAI is
notanacademicinstitutionthatcanconferadegreewith anofficial collegeor universityrecord.See
Snapnames.com,Inc. v.MichaelChertoff,2006WL 3491005*11 (D. Ore.Nov. 30, 2006)(finding
USCISwasjustified in concludingthat ICAI membershipwasnot a collegeor university"degree"
for purposesof classificationasa memberof theprofessionsholdinganadvanceddegree).Like the
ICWAI, the ICAI is a membershiporganization,not a collegeor university,and its Final
ExaminationCertificateis not a degree.While thebeneficiary'sFinal ExaminationCertificateand
membershipin the ICAI may be "comparable" to a U.S. bachelor'sdegree,they are not, either
individually or together,a "foreign equivalent degree" to a U.S. baccalaureatedegreewithin the
meaningof 8 C.F.R.§ 204.5(k)(2). Accordingly, they do not entitle him to classificationas an
advanceddegreeprofessionalundersection203(b)(2)of theAct.
On appeal,thepetitionerreiteratesits previouscontentionthat thebeneficiarymeetstheminimum
requirementfor classificationasanadvanceddegreeprofessionalbasedon a bachelor'sdegreeand
five yearsof experience.8As evidenceof thebeneficiary'sbachelor'sdegreeequivalencycounsel
8 As evidenceof thebeneficiary'swork experience,therecordincludesaletterfrom theSeniorVice
President-Financeof SatyamComputerServicesLtd. in Parsippany,New Jersey,dated
September8, 2005,whichstatedthatthebeneficiarywasemployedfrom April 1998to November
2003,initially asaFinanceExecutiveandlaterasChiefFinanceManager,anddescribedin detailhis
job dutiesovertheyears.
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citesseveralpreviouslysubmittedevaluationsof thebeneficiary'seducationalcredentials.
The first evaluationis from the Foundationfor InternationalServices,Inc. (FIS), datedJune21,
2006. TheFIS evaluation,authoredbyM claimsthatthebeneficiary'sthree-year
Bachelorof Commercedegreefrom the Universityof Rajasthanand his Final Examination
CertificatefromtheICAI areequivalentto a bachelor'sdegreein accountingfromaU.S.collegeor
universit. The FIS evaluationprovidesno substantiveanalysisof the abovecredentials.
simply statesher conclusionas to their cumulativeequivalencyin the United States,
while ignoring the fact that the foregoingcredentials- a three-yearbachelor'sdegreeand Final
ExaminationCertificatefrom theICAI - do not includefour yearsof studyat a degree-granting
institution,the standardlengthof a U.S. baccalaureatedegree. SeeMatter of Shah. Nor do the
subjectcredentialsmeettheregulatorydefinitionof asingle"UnitedStatesbaccalaureatedegreeor a
foreignequivalentdegree"in 8 C.F.R.§204.5(k)(2).
A secondevaluation,datedAugust6, 2010,is from of CareerConsultingInternational
(CCI). The CCI evaluationclaimsthat the beneficiary'sCertificateof Merit from the ICWAI,
awardedafterhepassedtheICWAI's FinalExamination,is equivalentto a U.S.Bachelorof Science
degreewith a major in accountingfrom a U.S. collegeor university. The evaluationprovidesno
substantiveanalysisof theICWAIprogram, simplystatesthattheevaluationof theU.S.
equivalencyof thebeneficiary'scredentialis basedon "thecredibilityof [ICWAI], thenatureof the
coursework. andtherelatedareas."TheCCI evaluationdoesnot discusshowlong thebeneficiary
studiedat the ICWAI beforehis final examination.In particular,it doesnot confirmthat the
programcomprisedfour academicyears,the standardlengthof a bachelor'sdegreeprogramin the
UnitedStates.SeeMatter of Shah. Thus,evenif theICWAI werea degree-grantinginstitution,the
CCI evaluationprovidesno basisto concludethat the beneficiary'sCertificateof Merit would be
equivalentto aU.S.bachelor'sdegree.
A third evaluation,also datedAugust 6, 2010,is from of European-American
University(EAU). Like CCI,theEAU evaluationclaimsthatthebeneficiary'sCertificateof Merit
from the ICWAI, awardedafterhe passedthe ICWAI's Final Examination,is equivalentto a U.S.
Bachelorof Sciencedegreewith a majorin accountingfrom a U.S.collegeor university. .
citesa letterfrom theAssociationof IndianUniversities(AIU), datedApril 22,2008,stating
that a three-yearbachelor'sdegreeplus a Final Examinationcertificatefrom the ICWAI would be
assessedasamaster'sdegreeequivalentin India. thenassertsthatanIndianmaster'sdegree
is equivalentto a U.S.bachelor'sdegreeplusoneadditionalyearof universitystudy. TheAAO does
not agreewith this analysis. The AIU letter addressesthe educationalequivalenceof an Indian
bachelor'sdegreeandan ICWAI certificatefor thepurposeof highereducationin India,not the
United States. The AIU's conclusionthat the referencedcredentialsare equivalentto an Indian
master'sdegreehasno bearingon the equivalencyof thosecredentialsin the UnitedStatesas
determinedby U.S.CitizenshipandImmigrationServices(USCIS). evaluationdodges
the fact that the beneficiary'sIndian credentials- a three-yearbachelor'sdegreeand an ICWAI
certificate- do notincludefour yearsof studyata degree-grantinginstitution,thestandardlengthof
aU.S.baccalaureatedegree.SeeMatter ofShah. Nor dothesubjectcredentialsmeettheregulatory
Page11
definitionof asingle"UnitedStatesbaccalaureatedegreeor aforeignequivalentdegree"in 8 C.F.R.
§204.5(k)(2).
cites a documentof the United Nations Educational,Scientific, and Cultural
Organization(UNESCO) entitled "Recommendationon the Recognitionof Studies and
Qualifications"thatwasadoptedby the GeneralConferenceof UNESCOin 1993. Paragraph1(e)
definesrecognitionasfollows:
'Recognition"of a foreignqualificationin highereducationmeansits acceptanceby
thecompetentauthoritiesof theStateconcerned(whethertheybe governmentalor
nongovernmental)asentitlingits holderto beconsideredunderthesameconditions
as those holding a comparablequalification awardedin that State and deemed
comparable,for the purposesof accessto or further pursuit of higher education
studies,participationin research,thepracticeof a profession,if this doesnot require
the passingof examinationsor further specialpreparation,or all the foregoing,
accordingto thescopeof therecognition.
The UNESCOrecommendationrelatesto admissionto graduateschoolandtrainingprogramsand
eligibility to practicein a profession.Nowheredoesit suggestthata three-yeardegreemustbe
deemedequivalentto a four-yeardegreefor purposesof qualifying for inclusion in a classof
individuals defined by statute and regulation as eligible for immigration benefits. More
significantly,therecommendationdoesnotdefine"comparablequalification."At theheartof this
matteris whetherthebeneficiary'sdegreeis, in fact,theforeignequivalentof a U.S.baccalaureate.
TheUNESCOrecommendationdoesnotaddressthisissue.
Accordingto theUnitedStatesis boundby a UNESCO(UnitedNationsEducational
Scientific and Cultural Organization)conventionregardinginternationalrecognitionof foreign
educationalcredentials- specifically,theLisbonConvention. assertsthattheUnited
Statessigned and ratified the Lisbon Convention (officially called the Convention on the
Recognitionof QualificationsconcerningHigherEducationin theEuropeanRegion)andthatthe
Conventionenteredintoforcein theUnitedStatesonJuly1,2003.M is mistaken.While
theUnitedStatesdid signtheLisbonConventiononNovember4, 1997,theConventionhasnever
beenratified by the United Statesand it has not enteredinto force in the United States. See
http://conventions.coe.int/Treaty/Commun/ChercheSig.asp?NT=165&CM-8&CL-ENG(accessed
November27,2012). Moreover,theConventiondoesnot bind thesignatorystatesto anyparticular
outcomesin assessingthe equivalencyof foreign education. Rather,it commitsthe signatoriesto
certainstandardsandproceduresin evaluatingforeigneducationalcredentials,while reservingthe
ultimatedecision-makingpowerin the signatorystates. Seehttp://convenstions.coe.int/Treaty/en/
Treaties/Html/165.htm(accessedNovember29,2012).
For all of theabovereasons,theEAU evaluationis notpersuasiveevidencethatthebeneficiary's
three-yearbachelor'sdegreeandICWAI certificateareequivalentto aU.S.baccalaureatedegree.
Page12
Evaluationsof a person'sforeigneducationby credentialsevaluationorganizationsareutilizedby
USCISasadvisoryopinionsonly. Whereanopinionisnotin accordwith otherinformationor isin
anyway questionable,USCISis not requiredto acceptit or maygive it lessweight. SeeMatterof
CaronInternational,19I&N Dec.791 (Comm.1988);seealsoMatter of Sea,Inc., 19 I&N Dec.
817(Comm.1988).Basedontheforegoingdiscussion,theAAO determinesthattheevaluationsof
(FIS), (CCI),and (EAU)havelittle probativevalue. They
arenot persuasiveevidencethat the beneficiary'sIndiancredentials- in particular,his three-year
bachelorof commercedegreeandhisfinal examinationcertificatesfrom theICWAI andtheICAI -
areeitherindividually,collectively,or in anycombinationequivalentto a U.S.bachelor'sdegree.
For all of the reasonsdiscussedin this decision,the AAO concludesthat the beneficiarydoesnot
havea foreign equivalentdegreeto a U.S. baccalaureatedegreewithin the meaningof 8 C.F.R.
§ 204.5(k)(2). Therefore,he is not eligible for classificationas an advanceddegreeprofessional
undersection203(b)(2)of theAct. Accordingly,thepetitioncannotbeapproved.
2. Is theBeneficiaryQualifiedfor theJobOffered?
To be eligible for approvalas an advanceddegreeprofessional,the beneficiarymust haveall the
education,training,andexperiencespecifiedonthelaborcertificationasof thepetition'sprioritydate.
SeeMatterof Wing'sTeaHouseat 158.
Relyingin part on Madany,696F.2dat IOO8,the U.S. Courtof Appealsfor the Ninth Circuit
(Ninth Circuit) stated:
[I]t appearsthat the DOL is responsibleonly for determiningthe availability of
suitableAmericanworkersfor a job andthe impactof alien employmentuponthe
domestic labor market. It does not appearthat the DOL's role extendsto
determiningif the alien is qualifiedfor thejob for which he seekssixth preference
[visa category]status. Thatdeterminationappearsto be delegatedto theINS under
section204(b),8 U.S.C. § 1154(b),asoneof the determinationsincident to the INS's
decisionwhetherthealien is entitled to sixth preferencestatus.
K.R.K.Irvine,Inc. v.Landon,699F.2d1006,1008(9* Cir. 1983).Thecourtreliedonanamicusbrief
fromDOL thatstatedthefollowing:
The labor certification made by the Secretaryof Labor ... pursuantto section
212(a)[(5)]of the... [Act] ...is bindingasto thefindingsof whetherthereareable,
willing,qualified,andavailableUnitedStatesworkersfor thejob offeredtothealien,
and whetheremploymentof the alien under the termssetby the employerwould
adverselyaffect the wagesand working conditionsof similarly employedUnited
Statesworkers. Thelabor certificationin no wayindicatesthatthealien offeredthe
certißedjob opportunityis quahfied(or not qualified)toperform the dutiesof that
job.
Page13
(Emphasisadded.)Id. at1009.TheNinthCircuit,citingK.R.K.Irvine,Inc.,699F.2dat1006,revisited
thisissue,stating:"The INS, therefore,maymakeadenovodeterminationof whetherthealienis in
factqualifiedto fill thecertifiedjob offer." Tongatapu,736F.2dat1309.
Thekeyto determiningthejob qualificationsis foundin ETAForm9089,PartH. Thispartof the
applicationdescribesthe termsandconditionsof thejob offered. It is importantthattheapplication
bereadasawhole.
Whendeterminingwhetherabeneficiaryis eligiblefor apreferenceimmigrantvisa,USCISmaynot
ignorea termof the laborcertification,nor may it imposeadditionalrequirements.SeeMadanyv.
Smith, 696 F.2d at 1015. USCIS must examine"the languageof the labor certificationjob
requirements"in orderto determinewhatthejob requires.Id. Theonly rationalmannerby which
USCIScanbeexpectedto interpretthemeaningof termsusedto describetherequirementsof ajob
in a labor certification is to examinethe certified job offer exactly as it is completedby the
prospectiveemployer.SeeRosedaleLindenParkCompanyv.Smith,595F.Supp.829,833(D.D.C.
1984)(emphasisadded). USCIS'sinterpretationof thejob's requirements,asstatedon the labor
certification, must involve reading and applying the plain languageof the alien employment
certificationapplicationform. Id. at 834. USCIScannotandshouldnot reasonablybe expectedto
look beyondthe plain languageof the labor certification that the DOL hasformally issuedor
otherwiseattemptto divine the employer'sintentionsthroughsomesort of reverseengineeringof
thelaborcertification.
The petitionerspecifiedthe following educational,training, and experiencerequirementsfor the
financialmanagerposition:
E A master'sdegreeor a "foreign educationalequivalent"in accounting,business
administration,or finance,plus one yearof experiencein the job offeredor as an
accountmanageror financemanager(PartH, lines4,4-B,6, 9, 10,10-A,and10-B).
• Alternatively, a bachelor'sdegreeor a "foreign educationalequivalent"in one of the
above-namedfields, plus five yearsof progressiveexperience(Part H, lines 8, 8-A,
8-C,and9).
m No trainingis required.(PartH, line 5).
In Box 14 of the ETA Form 9089(Specificskills or otherrequirements),the petitionerdescribed
someparticularitemsof experiencerequiredfor theprofferedposition,andalsostatedthat"any
suitablecombinationof education,trainingor experienceareacceptable"to qualifyfor thejob.
The AAO doesnot interpretthe "any suitablecombination"languagein Box 14 asmodifying the
specificrequirementslistedin lines4 through10-B. Thegenerallanguagein Box 14mustyieldto
thespecificrequirementslistedabove.Box 14simplyconfirmsthattheemployerwill accepteither
amaster'sdegreeandoneyearof experienceor abachelor'sdegreeandfive yearsof experience.
Page14
Thepetitionerdoesnot claimthatthebeneficiaryhasa U.S.master'sdegreeor aforeignequivalent
degree.With respectto thealternativecombinationof educationandexperience,therecordappears
to indicate that the beneficiaryhas five years of qualifying experience,as previously noted.
However,the beneficiarydoesnot havea U.S. bachelor'sdegreeor a foreign equivalentdegree.
Therefore,the beneficiarydoesnot satisfy the minimum educationalrequirementof the labor
certificationto qualify for the profferedposition. For this reasonaswell, the petition cannotbe
approved.
Conclusion
Thepetitionis deniableontwo grounds:
1. Thebeneficiarydoesnot havethe requisiteeducationaldegree- specifically,a U.S.
bachelor'sdegreeora"foreignequivalentdegree"- tobeeligiblefor classificationas
anadvanceddegreeprofessionalundersection203(b)(2)of theAct.
2. Thebeneficiarydoesnotqualifyfor theprofferedpositionof financialmanagerunder
thetermsof thelaborcertificationbecausehedoesnot havetherequisiteeducational
degree- specifically,aU.S.bachelor'sdegreeor a"foreigneducationalequivalent."
Fortheabovestatedreasons,consideredbothin sumandasseparategroundsfor denial,thepetition
may not be approved. Accordingly,the NSC Director'sdecisionto denythe petitionwill be
affirmed.Theappealwill bedismissed.
Theburdenof proofin theseproceedingsrestssolelywith thepetitioner.Seesection291of theAct,
8U.S.C.§ 1361.Thepetitionerhasnotmetthatburden.
ORDER: TheDirector'sdecisionof February22,2011,denyingthepetition,is affirmed.
Theappealis dismissed.