dismissed EB-2 Case: Medicine

Mentifyingdatadeletedto
preventclearlyunwarranted
mvasionof personalprivacy
PUBLICCOPY
U.S.Departmentof HomelandSecurity
U.S.CitizenshipandImmigrationServices
AdministrativeAppealsOffice(AAO)
20 MassachusettsAve., N.W., MS 2090
Washington,DC 20529-2090
8 U.S.Citizenship
and Immigration
Services
DATE: OFFICE: TEXAS SERVICECENTER FILE:
tiOy1 4 2011
IN RE: Petitioner:
Beneficiary:
PETITION: ImmigrantPetitionfor Alien Worker asa Memberof the ProfessionsHolding an Advanced
Degreeor anAlien of ExceptionalAbility Pursuantto Section203(b)(2)of the Immigration
andNationalityAct, 8 U.S.C.§ 1153(b)(2)
ON BEHALF OFPETITIONER:
INSTRUCTIONS:
Enclosedpleasefind the decisionof the AdministrativeAppealsOffice in your case. All of the documents
relatedto this matterhavebeenreturnedto theoffice thatoriginally decidedyourcase. Pleasebeadvisedthat
anyfurther inquiry that you might haveconcerningyour casemustbemadeto thatoffice.
If you believe the law was inappropriately applied by us in reachingour decision, or you have additional
information that you wish to haveconsidered,you may file a motion to reconsideror a motion to reopen. The
specific requirementsfor filing such a requestcan be found at 8 C.F.R. § 103.5. All motions must be
submittedto theoffice thatoriginally decidedyour caseby filing aFormI-290B,Noticeof Appealor Motion,
with a fee of $630. Pleasebe awarethat 8 C.F.R. § 103.5(a)(1)(i)requiresthat any motion must be filed
within 30daysof thedecisionthatthemotionseeksto reconsideror reopen.
Thankyou,
PerryRhew
Chief,AdministrativeAppealsOffice
www.uscus.gov
Page2
DISCUSSION: The Director, TexasServiceCenter(director), denied the employment-based
immigrantvisa petition. The matteris now beforethe AdministrativeAppealsOffice (AAO) on
appeal.Theappealwill bedismissed.
Thepetitioneris a universityhealthcaresystem. It seeksto permanentlyemploythebeneficiaryin
the United Statesas a senior medical resident. The petitioner requestsclassificationof the
beneficiaryasanadvanceddegreeprofessionalpursuantto section203(b)(2)of theImmigrationand
NationalityAct (theAct), 8 U.S.C.§ 1153(b)(2).
The petition is accompaniedby an ETA Form 9089,Applicationfor PermanentEmployment
Certification(labor certification),certifiedby the U.S. Departmentof Labor (DOL). The priority
dateof thepetitionis November30,2007,which is thedatethelaborcertificationwasacceptedfor
processingby theDOL. See8 C.F.R.§204.5(d).
The directordeniedthepetition on October9, 2008. The decisionconcludesthat the beneficiary
doesnot possessan advanceddegree.TheAAO will alsoconsiderwhetherthepositionofferedto
thebeneficiaryconstitutespermanentemployment,andwhetherthe petitionercurrentlyintendsto
employthebeneficiary.1
Therecordshowsthattheappealis properlyfiled, timely,andmakesaspecificallegationof errorin
law or fact. Theproceduralhistoryin this caseis documentedby therecordandincorporatedinto
thedecision.Furtherelaborationof theproceduralhistorywill bemadeonly asnecessary.
TheAAO conductsappellatereviewon adenovobasis. SeeSoltanev.DOJ, 381F.3dat 145. The
AAO considersall pertinentevidencein therecord,includingnewevidenceproperlysubmittedupon
appeal.2
Section203(b)(2)of theActprovidesimmigrantclassificationto membersof theprofessionsholding
advanceddegreesor aliensof exceptionalability, whoseservicesaresoughtby anemployerin the
UnitedStates.3
1An applicationor petitionthatfails to complywith thetechnicalrequirementsof thelaw maybe
deniedby the AAO evenif the directordoesnot identify all of the groundsfor denial in the initial
decision.SeeSpencerEnterprises,Inc. v. UnitedStates,229 F. Supp.2d 1025,1043(E.D. Cal.
2001),affd, 345F.3d683(9thCir. 2003);seealsoSoltanev.DOJ,381F.3d143,145(3dCir. 2004)
(notingthattheAAO conductsappellatereviewon adenovobasis).
2Thesubmissionof additionalevidenceon appealis allowedby theinstructionsto FormI-290B,
Noticeof Appealor Motion,whichareincorporatedinto theregulationsby 8 C.F.R.§ 103.2(a)(1).
Therecordin theinstantcaseprovidesno reasonto precludeconsiderationof anyof thedocuments
newlysubmittedonappeal.SeeMatter ofSoriano,19I&N Dec.764(BIA 1988).
3Thereis no evidencein therecordthatthebeneficiarypossessesexceptionalability in thesciences,
artsorbusiness.Accordingly,considerationof thepetitionwill belimitedtowhetherthebeneficiary
is eligiblefor classificationasamemberof theprofessionsholdinganadvanceddegree.
Page3
In orderfor thepetitionto beapproved,thepetitionermustestablishthatthebeneficiaryis amember
of theprofessionsholdinganadvanceddegree.8 C.F.R.§ 204.5(k)(3).To showthatthebeneficiary
holdsanadvanceddegree,thepetitionmustbeaccompaniedby:
(A) An official academicrecordshowingthatthealienhasa UnitedStatesadvanced
degreeor aforeignequivalentdegree;or
(B) An official academicrecord showing that the alien has a United States
baccalaureatedegreeor a foreign equivalentdegree,and evidencein the form of
lettersfrom currentor former employer(s)showingthat the alien hasat leastfive
yearsof progressivepost-baccalaureateexperiencein thespecialty.
8 C.F.R.§204.5(k)(3)(i).
Part J of ETA Form 9089, signedby the beneficiaryunder penalty of perjury, statesthat the
beneficiaryobtaineda medicaldegreein 2000from OsmaniaMedicalCollegeNTR Universityof
HealthSciences. The recordcontainsthe beneficiary'sdiplomafor a Bachelorof Medicineand
Bachelorof SurgeryfromNTRUniversityof HealthSciencesin AndhraPradesh,India.4Therecord
alsocontainsa copy of the beneficiary'sEducationalCommissionfor ForeignMedical Graduates
certificate,ScoreReportsdemonstratingthat thebeneficiarypassedSteps1, 2 and3 of theUnited
StatesMedical Licensing Examination,a GraduateMedical Trainee medical license from the
Commonwealthof Pennsylvania,and a letter from the petitionerconfirming that the beneficiary
completedtwelvemonthsof residencyin thefield of internalmedicine.
On appeal,thepetitionersubmitsanevaluationof thebeneficiary'smedicaldegreepreparedby
The evaluationconcludesthat the beneficiary's
medical degree"is fully equivalentto a U.S. Doctor of Medicine (MD) degree,a U.S. first
professionaladvanced(abovebaccalaureate)degreein medicine,from a regionally accredited
collegeor universityin theUnitedStates."5
4The Universityof HealthSciencesin AndhraPradeshis a recognizedstateuniversityby India's
University GrantsCommission. Seehttp://www.ugc.ac.in/inside/State_University_August2011.pdf
lastaccessedSeptember2, 2011).
U.S.CitizenshipandImmigrationServices(USCIS)may,in its discretion,useasadvisoryopinions
statementssubmittedasexperttestimony.SeeMatter of CaronInternational,19I&N Dec.791,795
(Comm.1988). However,USCISis ultimatelyresponsiblefor makingthe final determination
regardingan alien'seligibility for thebenefitsought. Id. The submissionof lettersfrom experts
supportingthepetitionis not presumptiveevidenceof eligibility. USCISmayevaluatethecontent
of thelettersasto whethertheysupportthealien'seligibility. Seeid. at 795. USCISmaygive less
weight to an opinion that is not corroborated,in accordwith otherinformationor is m any way
questionable.Id. at 795;seealsoMatterof Soffici,22I&N Dec.158,165(Comm.1998)(citing
Matterof TreasureCraft of California, 14I&N Dec.190(Reg.Comm.1972)).
Page4
The AAO also reviewedthe ElectronicDatabasefor GlobalEducation(EDGE) createdby the
AmericanAssociationof CollegiateRegistrarsandAdmissionsOfficers(AACRAO).6Accordingto
its website,www.aacrao.org,AACRAO "is a nonprofit,voluntary,professionalassociationof more
than 11,000highereducationadmissionsand registrationprofessionalswho representmore than
2,600institutionsand agenciesin the United Statesand in over 40 countriesaroundthe world."
Accordingto its registrationpage,EDGE is "a web-basedresourcefor the evaluationof foreign
educationalcredentials."http://aacraoedge.aacrao.org/register/index/php.Authorsfor EDGEarenot
merelyexpressingtheirpersonalopinions.Rather,theymustwork with apublicationconsultantand
a Council Liaison with AACRAO's NationalCouncil on the Evaluationof ForeignEducational
Credentials.7If placementrecommendationsare included,the Council Liaisonworks with the
authorto givefeedbackandthepublicationis subjectto final reviewby theentireCouncil.Id.
EDGE statesthat a Bachelor of Medicine/Bachelorof Surgery from India is awardedupon
completionof four anda half to five andahalf yearsof tertiarystudyplusoneyearof aninternship,
and "representsattainmentof a level of educationcomparableto a first professionaldegreein
medicinein theUnitedStates."8
In summary,the beneficiarypossessesa Bachelorof MedicineandBachelorof Surgeryfrom the
NTR Universityof HealthSciencesin AndhraPradesh,India;theuniversityis a recognizedstate
universityby India'sUniversity GrantsCommission;the recordcontainsan academiccredentials
evaluationconcludingthatthebeneficiary'sdegreeis fully equivalentto a degreein medicinefrom
an accredited university in the United States; and EDGE confirms that a Bachelor of
Medicine/Bachelorof Surgeryfrom India representsattainmentof a level of educationcomparable
to a degreein medicinein theUnitedStates.
6 In COnfluenCeIntern., InC. v. Holder, 2009 the District
Court in Minnesotadeterminedthat the AAO provideda rationalexplanationfor its relianceon
informationprovidedby theAACRAO to supportits decision. In TiscoGroup,Inc. v.Napolitano,
2010WL 3464314(E.D.Mich. August30, 2010),theEasternDistrict Court in Michigan found that
USCIShadproperlyweighedtheevaluationssubmittedandtheinformationobtainedfrom EDGEto
concludethat the alien'sthree-yearforeign "baccalaureate"and foreign "Master's"degreewere
comparableto a U.S. bachelor'sdegree. In SunshineRehabServices,Inc. 2010
(E.D.Mich.August20,2010),theEasternDistrict Courtin Michiganuphelda USCISdetermination
thatthealien'sthree-yearbachelor'sdegreewasnot a foreignequivalentdegreeto a U.S.bachelor's
degree. Specifically,the court concludedthat USCIS was entitled to prefer the information in
EDGEanddidnotabuseits discretionin reachingits conclusion.Thecourtalsonotedthatthelabor
certification itself requireda degreeand did not allow for the combinationof educationand
experience.
See An Author's Guide to Creating AACRAO International Publications available at
http://www.aacrao.org/publications/guide_to_creating_international_publications.pdf(last accessed
September2,2011).
8 See http://aacraoedge.aacrao.org/credentialsAdvice.php?countryId=99&credentialID=146(last
accessedSeptember2, 2011).
Page5
Therefore,it is concludedthat the beneficiarypossessesthe foreignequivalentof a United States
advanceddegree,andthedirector'sdecisionon this issueis withdrawn.
However,beyondthedecisionof thedirector,thepetitioncannotbe approvedbecausetheposition
offeredto thebeneficiarydoesnotconstitutepermanentemployment,andbecausethepetitionerhas
informedtheAAO thatit nolongerintendsto employthebeneficiary.
The offeredposition is "SeniorMedical Resident." Medical residency,also known as graduate
medicaleducation,is a stageof medicaleducationand training following the completionof a
medicaldegree. Medical residentsreceivetraining andsupervisionby fully licensedphysicians.
Thepetitioner'smedicalresidencyprogramis accreditedby theAccreditationCouncilfor Graduate
MedicalEducation(ACGME).9ACGMEdefines"residency"asa "programaccreditedto providea
structurededucationalexperiencedesignedto conformto theProgramRequirementsof a particular
specialty."1° Completion of an ACGME-accreditedresidencytraining program precedesfull
licensureandboardcertification.
Accordingto thepetitioner'swebsite,its internalmedicineresidencyis athree-yearmedicaltraining
program.11A "SeniorMedicalResident"is a medicaltraineewho is in thesecondor third yearof
theresidencyprogram. Therefore,theofferedpositionis limited to two yearsof graduatemedical
educationin internalmedicine."
Although a medicalresidencyis an integralpart of a physician'seducationand training, it also
involvesemployment.The hybrid natureof a medicalresidencyis underscoredby the fact that a
medicalresidentis potentially eligible for classificationas a nonimmigrantworker in an H-1B
specialtyoccupationpursuantto section101(a)(15)(H)(i)(b)of theAct andasaJ-1exchangevisitor
for graduatemedicaleducationor trainingpursuantto section101(a)(15)(J)of theAct.13
9 According to its website, ACGME is "responsiblefor the accreditationof post-MD medical
training programs in the United States." http://www.acgme.org/acWebsite/home/home.asp(last
accessedSeptember2, 2011).
io http://www.acgme.org/acWebsite/about/ab_ACGMEglossary.pdf(last accessedSeptember2,
2011).
11 http://www.uphs.upenn.edu/medicine/education/resappinfo/program/index.html(last accessed
September2, 2011).
12Thereis no possibilityfor a meaningfulextensionof theofferedmedicalresidency,althoughan
internalmedicineresidentmay havethe option for a fourth yearof residencyas a chief resident.
http://www.acgme.org/acWebsite/about/abACGMEglossary.pdf(lastaccessedSeptember2,2011).
13The tensionbetweenthe educationaland employmentnatureof medicalresidencyis further
illustratedby thefactthatmedicalresidentsandtheiremployershavearguedto theInternalRevenue
Servicethatmedicalresidentsshouldbe categorizedasstudentsasopposedto ordinaryemployees
and therefore eligible for a FICA tax exception. See
http://www.irs.gov/charities/article/0,,id=219545,00.html(lastaccessedSeptember2,2011).
Page6
In Matter of Bronx Municipal Hospital, 12 I&N Dec. 768 (Reg. Comm'r 1968), the Regional
Commissionerheldthatanofferof medicalresidency"is notprimarily anoffer of trainingwithin the
meaningof section 101(a)(15)(H)(iii)of the Act, but on the contraryis essentiallyan offer of
productiveemploymentwhich ordinarily would be performedby a personliving in the United
States."
Further,in 1995,the legacy Immigrationand NaturalizationService(hereinafter"the Service")
issueda final rule thatconfirmedtheeligibility of medicalresidentsfor H-1B statusby recognizing
theemploymentnatureof medicalresidencyprograms.See60Fed.Reg.62021-23(Dec.4, 1995).
Thepreambleto thefinal rule notesthattheServiceremoveda provisionin theproposedrule that
would haveprohibitedmedicalresidentsfrom qualifyingfor H-1B classification.In describingthe
reversalof theService'sposition,thepreambleto thefinal regulationstates:
In proposingthis rule, the Serviceexpressedits opinionthatCongressdid not
intendthe H-1B nonimmigrantclassificationto be usedby graduatesof foreign
medicalschoolscoming to the United Statesto pursuemedicalresidenciesor
otherwisereceivegraduatemedical educationor training, and that, therefore,
thesealiensshouldseekclassificationasJ-1 nonimmigrantaliens.This opinion
wasbasedon the Service'sexaminationof therelevantlegislation,includingthe
HealthProfessionalsEducationAssistanceAct of 1976(HPEAA),Pub.L. 94-484
and MTINA. The Service took note that the HPEAA establishedthe J-1
classificationasthesolevehicle,with certainlimited exceptions,for graduatesof
medicalschoolsto obtaingraduatemedicaleducationor training in the United
States,includingmedicalresidencies.
After a carefulreviewof thecommentsreceivedin responseto theproposedrule
anda further reviewof the relevantlegislativehistory,the Servicehasoptedto
withdrawthisportionof theproposedrule.
The Service [will] continue its current practice of allowing graduatesof foreign
medicalschoolsto takeresidenciesundertheH-1B classification.In sodoing,the
Servicenotesfirst that nothingin the statuteor the relevantlegislativehistory
specifically precludesH-1B classificationfor aliens seekinggraduatemedical
training,andsecond,underthelanguageof section214(i) of theAct, a graduate
medicaleducationprogram,suchasa residency,could in somecasesmeetthe
definition of "specialtyoccupation"for H-1B purposes.See also 8 CFR
214.2(h)(4)(i).In addition,we note, as did somecommenters,that a medical
residencycan reasonablybe consideredto be either a training program or a
specialtyoccupation.Thispositionis consistentwith thattakenby theServicein
Matter of BronxMunicipalHospitalCenter,12I&N Dec.768(1968),wherethe
RegionalCommissionerheld that a medicalresidencyis primarily clinical in
natureand,therefore,doesnotqualify asanH-3 trainingprogram.
Page7
Therefore, a medical residencyposition involves a combination of education,training and
employment.However,theissuein theinstantcaseis notwhetheror notamedicalresidentengages
in employment.Instead,atissueis whetheror not anoffer of employmentasamedicalresidentcan
bethebasisof anemployment-basedimmigrantvisapetition.
Section101(a)(3)of theAct defines"alien" as "anypersonnot a citizenor nationalof the United
States." Section101(a)(15)of theAct defines"immigrant"as "everyalienexceptan alienwho is
within oneof thefollowing classesof nonimmigrantaliens."
Section203(b) of the Act providesfor the allocationof immigrantvisas to employment-based
immigrants. Theregulationat 8 C.F.R.§ 204.5(c)statesthatany "UnitedStatesemployerdesiring
and intendingto employan alien may file a petition for classificationof the alien undersection
203(b)(1)(B),203(b)(1)(C),203(b)(2),or203(b)(3)oftheAct."
In the instant case,the petitionerhas requestedclassificationof the beneficiaryas a qualified
immigrantwho is a memberof the professionsholding an advanceddegreepursuantto section
203(b)(2)(A)of theAct. Petitionsfor therequestedclassificationmustbeaccompaniedby anoffer
of employment.See8 C.F.R.§ 204.5(k).
A lawful permanentresidentis accordedtheprivilegeof residingpermanentlyin theUnitedStates.
Section101(a)(20)of theAct. It follows thatthe offeredpositionunderpinningan employment-
basedimmigrantvisapetitionbefor permanentemployment.14Black'sLaw Dictionary605(9thEd.
2009)defines"permanentemployment"as "[w]ork that,undercontract,is to continueindefinitely
until eitherpartywishesto terminateit for somelegitimatereason."
Section204(b)of theAct states:
After an investigationof the facts in eachcase,andafter consultationwith the
Secretaryof Labor with respectto petitions to accorda statusunder section
203(b)(2)or 203(b)(3),the [Secretaryof HomelandSecurity]shall, if [s]he
This requirementis mirroredin theDOL regulationsandadministrativecaselaw. Thepermanent
labor certificationprogramsupportsthe filing of visa petitionsallowing immigrantsto engagein
"permanent"employmentwithin the United States. 20 C.F.R. §§ 656.1(a);656.10(c)(10). The
regulationsfor permanentlabor certifications at 20 C.F.R. § 656.3 define "employment"as
"[p]ermanent,full-time work by anemployeefor anemployerotherthanoneself." "Theemployer
bearsthe burdenof proving that a position is permanentand full-time. If the employer'sown
evidencedoesnotshowthatapositionis permanentandfull-time,certification[by theDOL] maybe
denied." In theMatter of ProfessionalStaffingServicesof America,2004-INA-00007(BALCA
March 7, 2005)(citing Gerata SystemsAmerica, Inc., 88-INA-344 (BALCA Dec. 16, 1988)).
Permanentemploymentis employmentthatcontinuesindefinitelyuntil a partywishesto terminate
it. In theMatterof ProfessionalStaffingServicesofAmerica,2007-INA-00012(BALCAJune5,
2008).
Page8
determinesthatthefactsstatedin thepetitionaretrueandthatthealienin behalf
of whomthepetitionis madeis animmediaterelativespecifiedin section201(b)
or is eligiblefor preferenceundersubsection(a)or (b) of section203,approvethe
petition andforwardonecopythereofto theDepartmentof State.The Secretary
of Stateshallthenauthorizetheconsularofficerconcernedto grantthepreference
status.
Therefore,if USCIS determinesthat the facts that were provided in the petition are not true (e.g.,
that thejob offeredin the labor certificationis not permanent),thenUSCISwill not approvethe
petition.
In Matter of M-S-H-,8 I&N Dec.460(Reg.Comm'r1959),theRegionalCommissionerheldthata
one-yearmedicalintern position did not qualify for classificationfor nonimmigrantstatusunder
section101(a)(15)(H)(i)of the Act becausethe petitionerhad apermanentneedfor the services
providedby medicalinterns.In thedecision,theRegionalCommissionerstates:
Thepetitioner'scounselstatesthat "Thesituationof an internis of necessitya
temporaryonesmce,aftera periodof internship,they areno longerinternsbut
mustgraduateinto thepositionof Residentsfollowing a programof residence."
Thisis unquestionablytrue insofarasa particularinternis concerned.However,
when an intern completeshis internship and movesinto a residencyor private
practice,thework hedid asaninternmuststill bedoneby someone.In this sense
theposition is of apermanentratherthana temporarynature.
Id. at461.(Emphasisadded).
At thetimeof theRegionalCommissioner'sdecision,in orderto obtainH-1B classification,boththe
offer of employmentandtheemployer'sneedfor thelaborhadto betemporary.Althoughthisis no
longer the case for H-1B classification,it remains true for H-2A and H-2B classification.
Specifically,for H-2Aclassification,theregulationat8 C.F.R.§214.2(h)(5)states:
(iv) Temporaryand seasonalemployment
(A) Eligibility requirements.An H-2A petitionermustestablishthatthe
employmentproposedin the certification is of a temporaryor seasonal
nature.Employmentis of a seasonalnaturewhereit is tied to a certain
timeof yearby aneventor pattern,suchasashortannualgrowingcycle
or a specificaspectof alongercycle,andrequireslaborlevelsfar above
thosenecessaryfor ongoingoperations.Employmentis of a temporary
naturewherethe employer'sneedto fill thepositionwith a temporary
workerwill, exceptin extraordinarycircumstances,lastno longerthan
oneyear.
ForH-2B classification,theregulationat8 C.F.R.§ 214.2(h)(ii)states:
Page9
(B) Nature ofpetitioner's need. Employmentis of a temporarynaturewhenthe
employer needsa worker for a limited period of time. The employermust
establishthat the needfor the employeewill end in the near, definablefuture.
Generally,thatperiodof timewill belimited to oneyearor less,but in thecaseof
a one-timeeventcouldlastup to 3 years.Thepetitioner'sneedfor theservicesor
labor shall be a one-timeoccurrence,a seasonalneed,a peakload need,or an
intermittentneed.
(Emphasisadded).
TheRegionalCommissionerin Matter of M-S-H- concludesthatthepetitioner'sneedfor thelabor
performedby medical interns is permanent,thus disqualifying the position for the requested
nonimmigrantvisa. Again, this is becausethe law at thattime requiredboth thejob offer andthe
employer'sneedfor the labor to be temporary. The RegionalCommissionerdoesnot address
whether,in theemployment-basedimmigrantvisa petitioncontext,a medicalresidentpositioncan
constitutea permanentoffer of employment. This is a crucial distinction. The fact that an
employer'sneedis permanentdoesnot meanthat the offeredpositionis permanent. It doesnot
follow thatanofferedpositionis permanentin thecontextof anemployment-basedimmigrantvisa
petitionjust becausethepetitioner'sneedfor theservicesis permanent.If thatwerethecase,thenit
would be theoreticallypossiblefor a oneweek offer of employmentto serveas the basisof an
employment-basedimmigrantvisa. Thiswould be anabsurdresult.
Instead,in the employment-basedimmigrant visa context, both the offered position and the
petitioner'sneedfor thelabormustbepermanent.15
As is explained above, medical residents are potentially eligible for two nonimmigrant
classifications:H-1BandJ-1. AlthoughUSCIShasfollowedapolicyof permitting"dualintent"in
15Regardingthe requirementthat the employer'sneedbe permanentin the immigrant visa petition
context,the regulationsfor skilled workersandotherworkersspecify that the offered employment
cannot be temporary or seasonal. Although the regulations for the requested employment-based
categoryat 8 C.F.R.204.5(k)(2)do not containa similar provision,this doesnot meanthat a
temporaryor seasonaloffer of employmentcanbe the basisof a secondpreferenceemployment-
basedimmigrantpetition. Forexample,page48of the1990U.S.C.C.A.N6710HouseReport1001-
723,for theFamily Unity andEmploymentOpportunityImmigrationAct of 1990[IMMACT 90],
P.L.101-649states:
All otheraliensfor whomemployersseekimmigrantvisasmustbeenteringfor
the purposeof meetinga shortageof employableandwilling U.S.workersin
specifiedlaborthatis nottemporaryor seasonalin nature.
Therefore,in theinstantcase,theemployer'sneedfor thelaborcannotbe temporaryor seasonalin
nature.
Page10
the H-1B classification,J-1 statuscannotbe grantedto an intendingimmigrant. The fact that
medicalresidentsareeligiblefor J-1classificationis predicatedon thefact thata medicalresidency
is a temporaryposition andnot permanent.
It is acknowledgedthat the petitionerhasa permanentneedfor the servicesprovidedby medical
residents.However,this is notsufficientto establishthattheofferedpositionconstitutespermanent
employment,whichis necessaryfor theapprovalof anemployment-basedimmigrantvisapetition.
In summary,thepetitioneris sponsoringthebeneficiaryfor lawful permanentresidencebasedon an
offer of permanentemployment.A lawful permanentresidentis accordedtheprivilegeof residing
permanentlyin theUnitedStates.Medicalresidencyis a combinationof employmentandgraduate
medicaleducation.Thepositionofferedto thebeneficiaryis limited to a specific,finite andshort
period of time without the possibility of extension. Therefore,the offered position doesnot
constituteanoffer of permanentemployment.
In addition,duringtheadjudicationof theappeal,theAAO determinedthatit did notappearthatthe
petitionerstill intendedto employthebeneficiaryin theofferedposition.Theevidencein therecord
indicatesthat thejob offeredto thebeneficiaryhada startdateof July 1, 2007andan enddateof
June30,2009.
The beneficiaryenteredinto a two-yearendocrinologyfellowshipat the StateUniversityof New
York, Buffalo Schoolof MedicineandBiomedicalSciencesfollowing thecompletionof hisinternal
medicine residency.16 Furthermore,the beneficiary appearsto have completed his board
certification in internal medicine." According to USCIS records,the beneficiary has been
sponsoredfor H-1Bemploymentby anotheremployerin Florida.
Therefore,it did not appearthat the petitioner currently intendsto employ the beneficiary in the
positionof "SeniorMedicalResident."In orderfor thepetitionto be approved,thepetitionermust
maintaina continuingintentto permanentlyemploythebeneficiaryin theofferedposition. Where
nolegitimatejob offer existsfor theofferedposition,therequestthataforeignworkerbeallowedto
fill theofferedpositionhasbecomemoot,andthepetitionmustbedenied.
Accordingly,on February18,2011,theAAO issueda Noticeof DerogatoryInformation,Request
for Evidenceand Notice of Intent to Deny (hereinafter,"NOID"). The NOID statesthat, if the
petitionerstill intendedto permanentlyemploythe beneficiaryasa "SeniorMedical Resident,"it
mustprovidean affidavit of an officer of thehospitalconfirmingthatthis is the case. The NOID
alsoaskedthepetitionerto explainhowit is possiblefor anindividualwhohasalreadycompletedan
16http://medicine.buffalo.edu/news_and_events/current_researchnews.host.html/content/shared/smbs
/news/2010/04/agent_orange.detail.html(lastaccessedSeptember2, 2011);seealso http://diabetes-
endocrinologycenterofwny.com/staff.html(lastaccessedSeptember2,2011).
17http://www.abim.org/services/verify-a-physician.aspx(lastaccessedSeptember2, 2011).
Page11
internal medicineresidencyand is board certified in internal medicinecan serve as a "Senior
MedicalResident."
TheNOID alsorequestedanaffidavit from thebeneficiaryconfirminghis intentto bepermanently
employedin thepositionof "SeniorMedicalResident"by thepetitioneruponthe issuanceof his
lawful permanentresidence.
Finally, theNOID informedthepetitionerthattheAAO intendedto dismissits appealbecausethe
offered position of "Senior Medical Resident" does not constitute an offer of permanent
employment.
Counselrespondedto the NOID in a letter datedMarch 14, 2011. The letter statesthat "the
Petitionernolongerintendsto employtheBeneficiaryin thepreviouslyofferedposition." Theletter
further states"given suchchangedintentions,the Petitioneris not submittingadditionalevidence
and respectfully requeststhat the instant appealbe dismissed." Counseldid not requestthat the
appealbewithdrawn.
Therefore,for the reasonsset forth above,director'sdecisiondenyingthe petition is withdrawn.
However,theappealis dismissedbecausethepetitionernolongerintendsto employthebeneficiary,
andbecausetheofferedpositiondoesnotconstitutepermanentemployment.
Thefailureto submitrequestedevidencethatprecludesa materialline of inquiryshallbegroundsfor
denyingthepetition.See8 C.F.R.§ 103.2(b)(14).
A petitionthatfailsto complywith thetechnicalrequirementsof thelawmaybedeniedby theAAO
evenif thedirectordoesnot identify all of thegroundsfor denialin theinitial decision. SeeSpencer
Enterprises,Inc.v. UnitedStates,229F.Supp.2dat1043;seealsoSoltanev.DOJ,381F.3dat145.
Thepetitionwill bedeniedfor theabovestatedreasons,with eachconsideredasanindependentand
alternativebasisfor denial. When the AAO deniesa petition on multiple alternativegrounds,a
plaintiff can succeedon a challenge only if it is shown that the AAO abusedits discretion with
respectto all of theAAO's enumeratedgrounds.SeeSpencerEnterprises,Inc. v. UnitedStates,229
F.Supp.2dat1043.
Theburdenof proof in theseproceedingsrestssolelywith thepetitioner. Section291of theAct, 8
U.S.C.§ 1361. Thepetitionerhasnot metthatburden.
ORDER:Theappealisdismissed.