dismissed H-1B Case: Accounting
Decision Summary
The appeal was dismissed because the Petitioner failed to establish that the proffered "staff accountant" position qualifies as a specialty occupation. The AAO determined that many of the described duties, such as coding, reconciling accounts, and maintaining time and attendance, were akin to bookkeeping or clerical functions. The Petitioner did not prove that the position's duties were sufficiently specialized or complex to require the theoretical and practical application of knowledge associated with a bachelor's degree in a specific field.
Criteria Discussed
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Non-Precedent Decision of the Administrative Appeals Office MATTER OF K-C-&M- CORP DATE: DEC. 20, 2016 APPEAL OF CALIFORNIA SERVICE CENTER DECISION PETITION: FORM 1-129, PETITION FOR A NONIMMIGRANT WORKER The Petitioner, a hotel management and construction company, seeks to temporarily employ the Beneficiary as a "staff accountant" under the H-lB nonimmigrant classification for specialty occupations. See Immigration and Nationality Act (the Act) section 101(a)(15)(H)(i)(b), 8 U.S.C. § 1101(a)(15)(H)(i)(b). The H-lB program allows a U.S. employer to temporarily employ a qualified foreign worker in a position that requires both (a) the theoretical and practical application of a body of highly specialized knowledge and (b) the attainment of a bachelor's or higher degree in the specific specialty (or its equivalent) as a minimum prerequisite for entry into the position. The Director, California Service Center, denied the petition. The Director concluded that the Petitioner had not established the proffered position is a specialty occupation. The matter is now before us on appeal. In its appeal, the Petitioner submits a brief and asserts that the Director erred when determining the proffered position is not a specialty occupation. Upon de novo review, we will dismiss the appeal. I. LAW Section 214(i)(l) of the Act, 8 U.S.C. § 1184(i)(l), defines the term "specialty occupation" as an occupation that requires: (A) theoretical and practical application of a body of highly specialized knowledge, and (B) attainment of a bachelor's or higher degree in the specific specialty (or its equivalent) as a minimum for entry into the occupation in the United States. The regulation at 8 C.F.R. § 214.2(h)(4)(ii) largely restates this statutory definition, but adds a non-exhaustive list of fields of endeavor. In addition, the regulations provide that the proffered position must meet one of the following criteria to qualify as a specialty occupation: Matter of K-C-&M- Corp. (1) A baccalaureate or higher degree or its equivalent is normally the minimum requirement for entry into the particular position; (2) The degree requirement is common to the industry in· parallel positions among similar organizations or, in the alternative, an employer may show that its particular position is so complex or unique that it can be performed only by an individual with a degree; (3) The employer normally requires a degree or its equivalent for the position; or ( 4) The nature of the specific duties [is] so specialized and complex that knowledge required to perform the duties is usually associated with the attainment of a baccalaureate or higher degree. 8 C.P.R. § 214.2(h)(4)(iii)(A). U.S. Citizenship and Immigration Services (USCIS) has consistently interpreted the term "degree" in the criteria at 8 C.P.R. § 214.2(h)(4)(iii)(A) to mean not just any baccalaureate or higher degree, but one in a specific specialty that is directly related to the proposed position. See Royal Siam Corp. v. Chertoff, 484 F.3d 139, 147 (1st Cir. 2007) (describing "a degree requirement in a specific specialty" as "one that relates directly to the duties and responsibilities of a particular position"); Defensor v. Meissner, 201 F.3d 384, 387 (5th Cir. 2000). II. PROFFERED POSITION In the H-lB petition, the Petitioner stated that the Beneficiary will serve as its "staff accountant." In a letter submitted in support of the petition, the Petitioner listed the Beneficiary's duties as follows: 1 • Reports directly to the Director of Finance and personally handles the accounting tasks of hotel. 10% • Provide expert and detailed reconciliations of several bank and other cash accounts-all discrepancies verified and reconciled. 10% • Prepare and complete monthly financial statements for multiple properties. 20% • Ensure proper coding according to budget and hotel accounting guidelines. 10% • Maintain group billing credit card information and check house and group accounts daily for exception postings. • Reconcile [ c ]orporate credit card with proper support documents/receipts. 5% • Often requested to take over the accounting functions of hotels with complex, accounting problems that likely include out of balance GL accounts and other 1 In response to the Director's request for evidence (RFE), the Petitioner allocated the time the Beneficiary would spend on these duties as noted above, and added further narrative to describe the duties. Also in its description of duties in response to the Director's RFE, the Petitioner deleted the duties "[m]aintain group billing credit card information and check house and group accounts daily for exception postings," and "[t]imely cash and credit card accounts verification," without explanation. · 2 (b)(6) Matter of K-C-&M- Corp. accounting discrepancies. Problems that require meticulous analysis and the use of a multi skilled approach to resolve. 10% • Smooth and trouble-free monthly closings, profit/loss and balance statement preparation. 10% • Timely cash and credit card accounts verification. • Maintain Time and Attendance in Hotel Effectiveness. 5% • Working on ERP for specialty for Hotel Industries. 20% According to the Petitioner "to efficiently perform the job duties, the candidate must have Bachelor's degree in Accounting, Finance or Business Administration with concentration in Accounting or Finance and 2 years related experience or Masters in Accounting, Finance or Business Administration with concentration in Accounting or Finance and 1 year related experience.'-' III. ANALYSIS Upon review of the record in its totality and for the reasons set out below, we determine that the Petitioner has not demonstrated that the proffered position qualifies as a specialty occupation. Specifically, the record does not establish that the job duties require an educational background, or its equivalent, commensurate with a specialty occupation. 2 , On the labor condition application (LCAi submitted in support of the H-1B petition, the Petitioner designated the proffered position under the occupational category "Accountants and Auditors" corresponding to the Standard Occupational Classification code 13-2011.4 Upon review of the Petitioner's-broad description of the proposed duties we find that while some of the described duties may fall within the paratpeters of a junior accountant, the duties also include the duties of a bookkeeping or accounting clerk. 5 For example, ensuring proper coding, maintaining group billing 2 The Petitioner submitted documentation to support the H-lB petition, including evidence regarding the proffered position and its business operations. While we may not discuss every document submitted, we have reviewed and considered each one. 3 The Petitioner is required to submit a certified LCA to USCIS to demonstrate that it will pay an H-lB worker the higher of either the prevailing wage for the occupational classification in the "area of employment" or the actual wage paid by the employer to other employees with similar experience and qualifications who are performing the same services. See Matter of Simeio Solutions, LLC, 26 I&N Dec. 542, 545-546 (AAO 2015). 4 The Petitioner classified the proffered position at a Level I wage (the lowest of four assignable wage levels). We will consider this selection in our analysis of the position. The "Prevailing Wage Determination Policy Guidance" issued by the DOL provides a description of the wage levels. A Level I wage rate is generally appropriate for positions for which the Petitioner expects the Beneficiary to have a basic understanding of the occupation. This wage rate indicates: (1) that the Beneficiary will be expected to perform routine tasks that require limited, if any, exercise of judgment; (2) that he will be closely supervised and his work closely monitored and reviewed for ~ccuracy; and (3) that he will receive specific instructions on required tasks and expected results. U.S. Dep't of Labor, Emp't & Training Admin., Prevailing Wage Determination Policy Guidance, Nonagric. Immigration Programs (rev. Nov. 2009), available at http://flcdatacenter.com/download/NPWHC _Guidance_ Revised _11_ 2009.pdf. A prevailing wage determination starts with an entry level wage and progresses to a higher wage level after considering the experience, education, and skill requirements of the Petitioner's job opportunity. /d. 5 See the Handbook's report for an overview of the duties of bookkeeper and accounting clerk at U.S. Dep't of Labor, 3 Matter of K-C-&M- Corp. credit card information, checking accounts daily for exception postings, and reconciling bank and cash accounts and ·credit card documents and receipts are bookkeeping or clerical functions. Similarly, maintaining time and attendance and verifying cash and credit card accounts are clerical functions. The Petitioner has not established how these duties require the theoretical and practical application of a body of highly specialized knowledge and the attainment of a bachelor's or higher degree in the specific specialty (or its equivalent) as a minimum for entry into the occupation in the United States. The Petitioner asserts that preparing monthly financial statements and profit/loss and balance sheets statements are more than clerical or bookkeeping functions, however, it has not established that a bachelor's degree in a specific specialty, or its equivalent, is required to perform even these functions. Likewise, migrating data from one system to a new system may require knowledge of the new system, but the Petitioner has not established that it requires more than a training certificate in the new technology. Upon review of the Petitioner's descriptions for the duties of the proffered position, including the narrative submitted in response to the Director's RFE, the record does not establish that the proffered position requires a bachelor's degree in a specific specialty. Even assuming that the Beneficiary will perform the duties of an accountant/auditor as designated on the LCA, at most these duties incorporate the duties of a junior accountant. We will further analyze the position and the evidence of record to determine whether the proffered position as described would qualify for classification as a specialty occupation. To that end and to make our determination as to whether the employment described above qualifies as a specialty occupation, we turn to the criteria at 8 C.P.R.§ 214.2(h)(4)(iii)(A). I A. First Criterion We turn first to the criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A)(l), which requires that a baccalaureate or higher degree in a specific specialty, or its equivalent, is normally the minimum requirement for entry into the particular position. To inform this inquiry, we recognize the U.S. Department of Labor's (DOL) Occupational Outlook Handbook (Handbook) as an authoritative source on the duties and educational requirements of the wide variety of occupations that it addresses.6 Bureau of Labor Statistics, Occupational Outlook Handbook, 2016-17 ed., "Bookkeeping, Accounting, and Auditing Clerks," http://www.bls.gov/ooh/office-and-administrative-support/bookkeeping-accounting-and-auditing clerks.htm#tab-2 (last visited Dec. 7, 2016). A bookkeeping position does not require a bachelor's degree, or higher in a specific field of study. Rather, according to the Handbook, employers generally require bookkeeping, accounting, and auditing clerks to have some postsecondary education, particularly coursework in accounting, but some candidates can be hired with just a high school diploma. See U.S. Dep't of Labor, Bureau of Labor Statistics, Occupational Outlook Handbook, 2016-17 ed., "Bookkeeping, Accounting, and Auditing Clerks," http://www.bls.gov/ooh/office-and administrative-support/bookkeeping-accounting-and-auditing-clerks.htm#tab-4 (last visited Dec. 7, 2016). 6 All of our references are to the 2016-2017 edition of the Handbook, which may be accessed at the Internet site http://www.bls.gov/ooh/. We do not, however, maintain that the Handbook is the exclusive source of relevant information. That is, the occupational category designated by the Petitioner is considered as an aspect in establishing the general tasks and responsibilities of a proffered position, and USCIS regularly reviews the Handbook on the duties and educational requirements of the wide variety of occupations that it addresses. To satisfy the first criterion, however, the 4 Matter of K-C-&M- Corp. The subchapter of the Handbook entitled "How to Become an Accountant or Auditor" states, in relevant part, the following: Most accountants and auditors need at least a bachelor's degree in accounting or a related field. Certification within a specific field of accounting improves job prospects. For example, many accountants. become Certified Public Accountants (CPAs). Education Most accountant and auditor positions require at least a bachelor's degree in accounting or a related field. Some employers prefer to hire applicants who have a master's degree, either in accounting or in business administration with a concentration in accounting. A few universities and colleges offer specialized programs, such as a bachelor's degree in internal auditing. In some cases, those with associate's degrees, as well as bookkeepers and accounting clerks who meet the education and experience requirements set by their employers, get junior accounting positions and advance to accountant positions by showing their accounting skills on the job. Many colleges help students gain practical experience through summer or part-time internships with public accounting or business firms. U.S. Dep't of Labor, Bureau of Labor Statistics, Occupational Outlook Handbook, 2016-17 ed., "Accountants and Auditors," http://www.bls.gov/ooh/business-and-financial/accountants-and auditors.htm#tab-4 (last visited Dec. 7, 2016). Upon review, the Handbook does not state a normal minimum requirement of a U.S. bachelor's or higher degree in a specific specialty, or its equivalent, for entry into the occupation. Rather, the Handbook outlines different paths to entering an acco-unting position, including entry into the profession with an associate's degree, as well as indicating that bookkeepers and accounting clerks, may "advance to accountant positions by showing their accounting skills on the job." !d. We have also reviewed the Petitioner's designation of the proffered position at a Level I wage, demonstrating that the proffered position is a comparatively low, entry-level position relative to others within the occupation. That is, in accordance with the relevant DOL explanatory information on wage levels, this wage rate indicates that the Beneficiary is only required to have a basic understanding of the occupation and carries expectations that the Beneficiary perform routine tasks that require limited, if any, exercise of judgment; that he would be closely supervised; that his work would be closely monitored and reviewed for accuracy; and that he would receive specific burden of proof remains on the Petitioner to submit sufficient evidence to support a finding that its particular position would normally have a minimum, specialty degree requirement, or its equivalent, for entry. 5 Matter of K-C-&M- Corp. instructions on required tasks and expected results. Thus, even if the proffered position inq:Hporates some duties of an accounting position, the Petitioner's designation of the position as a Level I position confirms that the position is at most a junior or entry-level accounting position which according to the Handbook would not require a bachelor's degree iri the specific field 6f accounting or finance. When the Handbook does not support the proposition that a proffered position is one that meets the statutory and regulatory provisions of a specialty occupation, it is incumbent upon the Petitioner to provide persuasive evidence that the proffered position more likely than not satisfies this or one of the other three criteria, notwithstanding the absence of the Handbook's support on the issue. In such case, it is the Petitioner's responsibility to provide probative evidence (e.g., documentation from other objective, authoritative sources) that supports a finding that the particular position in question qualifies as a specialty occupation. Whenever more than one authoritative source exists, an adjudicator will consider and weigh all of the evidence presented to determine whether the particular position qualifies as a specialty occupation. We have reviewed the Petitioner's reference to the Occupational Information Network (O*NET). However, the O*NET reports are also insufficient to establish that the proffered position qualifies as a specialty occupation normally requiring at least a bachelor's degree in a specific specialty, or its equivalent. Rather, O*NET Online assigns this occupation a Job Zone "Four" rating, which groups it among occupations for which "most ... require a four-year bachelor's degree, but some do not." O*NET OnLine Summary Report for "13-2011.01 Accountants," http://www.onetonline.org/link/summary/13-2011.01 (last visited Dec. 7, 2016); O*NET OnLine Help- Job Zones, http://www.onetonline.org/help/online/zones (last visited Dec. 7, 2016). Further, O*NET OnLine does not indicate that four-year bachelor's degrees required by Job Zone Four occupations must be in a specific specialty directly related to the occupation. Therefore, O*NET OnLine information is not probative of the proffered position being a specialty occupation. In this case, the Petitioner has not established that the proffered position falls under an occupational category for which the Handbook, or other authoritative source, indicates that normally the minimum requirement for entry is at least a bachelor's degree in a specific specialty, or its equivalent. The record lacks sufficient evidence to support a finding that the particular position proffered here, an entry-level accountant position (as indicated on the LCA), would normally have such a minimum, specialty degree requirement or its equivalent. The duties and requirements of the position as described in the record of proceeding do not indicate that this particular position proffered by the Petitioner is one for which a baccalaureate or higher degree in a specific specialty, or its equivalent, is normally the minimum requirement for entry. The Petitioner has not satisfied the criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A)(l). 6 Matter of K-C-&M- Corp. B. Second Criterion The second criterion presents two, alternative prongs: "The degree requirement is common to the industry in parallel positions among similar organizations or, in the alternative, an employer may show that its particular position is so complex or unique that it can be performed only by an individual with a degree[.]" 8 C.F.R. § 214.2(h)(4)(iii)(A)(2) (emphasis added). The first prong focuses upon the common industry practice, while the alternative prong narrows its focus to the Petitioner's specific position. 1. First Prong To satisfy this first prong of the second criterion, the Petitioner must establish that the "degree requirement" (i.e., a requirement of a bachelor's or higher degree in a specific specialty, or its equivalent) is common to the industry in parallel positions among similar organizations. ' In determining whether there is such a common degree requirement, factors often considered by USCIS jnclude: whether the Handbook reports that the industry requires a degree; whether the industry's professional association has made a degree a minimum entry requirement; and whether letters or affidavits from firms or individuals in the industry attest that such firms "routinely employ 1 and recruit only degreed individuals." See Shanti, Inc. v. Reno, 36 F. Supp. 2d 1151, 1165 (D. Minn. 1999) (quotingHird!Blaker Corp. v. Sava, 712 F. Supp. 1095, 1102 (S.D.N.Y. 1989)). Here and as already discussed, the Petitioner has not established that the proffered position is one for which the Handbook (or other independent, authoritative sources) reports an industry-wide requirement for at least a bachelor's degree in a specific specialty, or its equivalent. Thus, we incorporate by reference the previous discussion on the matter. Also, there are no submissions from the industry's professional association indicating that it has made a degree a minimum entry requirement. Nor has the Petitioner submitted other evidence to demonstrate that a requirement of a bachelor's or higher degree in a specific specialty, or its equivalent, is common to parallel positions with organizations that are in the Petitioner's industry and otherwise similar to the Petitioner. The Petitioner has not, therefore, satisfied the criterion of the first alternative prong of 8 C.F.R. § 214.2(h)(4)(iii)(A)(2). 2. Second Prong We will next consider the second alternative prong of 8 C.F.R. § 214.2(h)(4)(iii)(A)(2), which is satisfied if the Petitioner shows that its particular position is so complex or unique that it can be performed only by an individual with at least a bachelor's degree in a specific specialty, or its equivalent. In this matter, although the Petitioner claims that the proffered position's duties are so complex that a bachelor's degree is required, the Petitioner does not demonstrate how its staff accountant's duties require the theoretical and practical application of a body of highly specialized knowledge such that 7 (b)(6) Matter of K-C-&M- Corp. a bachelor's or higher degree in a specific specialty, or its equivalent, is required to perform them. We note the Petitioner's reference on appeal to the Beneficiary's academic and work experience as enabling him to carry out the duties of the proffered position. However, the test to establish a position as a specialty occupation is not the education or experience of a proposed beneficiary, but whether the position itself requires at least a bachelor's degree in a specific specialty, or its equivalent. Upon review of the totality of the record, the Petitioner has not included sufficient probative information relevant to a detailed course of study leading to a specialty degree and the Petitioner has not established how such a curriculum is necessary to perform the duties it claims are so complex. While a few related courses may be beneficial in performing certain. duties of the position, the Petitioner has not demonstrated how an: established curriculum of such courses leading to a baccalaureate or higher degree in a specific specialty, or its equivalent, is required to perform the duties of the proffered position. Consequently, it cannot be concluded that the petitioner has satisfied the second alternative prong of 8 C.P.R. § 214.2(h)(4)(iii)(A)(2). C. Third Criterion The third criterion of 8 C.P.R. § 214.2(h)(4)(iii)(A) entails an employer demonstrating that it normally requires a bachelor's degree in a specific specialty, or its equivalent, for the position. The Petitioner here noted that previously a management company provided its accounting functions, and that only in October 2015 did it determine that its accounting functions should be performed in-house. As such, the Petitioner does not submit evidence of personnel it previously employed in the proffered position. Accordingly, the Petitioner has not established the referenced criterion at 8 C.P.R.§ 214.2(h)(4)(iii)(A)(3) based on its normal hiring practices. D. Fourth Criterion The fourth criterion at 8 C.P.R. § 214.2(h)(4)(iii)(A) requires a petitioner to establish that the nature of the specific duties is so specialized and complex that the knowledge required to perform them is usually associated with the attainment of a baccalaureate or higher degree in a specific specialty, or its equivalent. On appeal, the Petitioner emphasizes that its hospitality management and construction company "generated annual revenues of $2,670,619 and $2,323,541 in 2015 and 2014, respectively" and refers to the tax returns previously submitted in support of this statement. The Petitioner also notes that it is a part of group of a number of hotels across the country and that its construction profile includes a and a The Petitioner also refers to its organizational chart and points out that the accounting position, the vice president developer, the vice president of operations, and the general manager are all part of its management team. The Petitioner asserts that contrary to the Director's conclusion, this evidence shows that it is a business of sufficient scale and complexity to require the services of an accountant. The Petitioner further paraphrases the previously provided duties of the proffered position and asserts that these duties 8 Matter of K-C-&M- Corp. require analytical skills to conduct reviews and analysis of financial information and a working knowledge of GAAP (Generally Accepted Accounting Principles). We have reviewed the nature of the Petitioner's operations and have considered the Petitioner's assertion that USCIS placed undue influence on its size and the nature of its business. While we concur that USCIS should not limit its review to the size of a petitioner and must consider the actual responsibilities of the proffered position, we find that it is reasonable to assume that the size of an employer's business has or could have an impact on the claimed duties of a particular position. See EGEnters., Inc. v. Dep'tofHomelandSec., 467 F. Supp. 2d 728 (E.D. Mich. 2006). Thus, the size of a petitioner may be considered as a component of the nature of the petitioner's business. In that regard, we note that the record does not include probative evidence establishing that the Beneficiary will perform work for the Petitioner's related companies. That is, the record does not include evidence of management agreements or other evidence establishing that the individual in the proffered position will routinely perform work for other companies affiliated with the Petitioner. Moreover, even if the Petitioner itself requires the services of an accountant, the record does not support a finding that the duties to be performed by the Beneficiary in relation to the Petitioner's claimed operations are sufficiently complex and specialized to require the theoretical and practical application of a body of highly specialized knowledge, and the services of an individual with a bachelor's or higher degree in the specific specialty (or its equivalent) as a minimum for entry into the occupation in the United States. The record lacks sufficiently detailed information to distinguish the proffered position as more complex or specialized than positions that can be performed by persons without at least a bachelor's degree in a specific specialty or its equivalent. We again refer to the Petitioner's characterization of the proffered position as a Level I accounting position. Given that the LCA submitted in support of the petition was certified for a Level I wage, it must be concluded that the position is a low-level, entry position relative to other accounting positions and, thus, based on the findings of the Handbook, published by the Bureau of Labor Statistics, the proffered position is not a specialty occupation. 7 Upon review of the totality of the record, the Petitioner has not demonstrated that its proffered position is one with duties sufficiently specialized and complex to satisfy 8 C.F.R. § 214.2(h)(4)(iii)(A)(4). 7 The Petitioner's designation of this position as a Level I, entry-level position undermines its claim that the position is particularly complex, specialized, or unique compared to other positions within the same occupation. Nevertheless, a Level I wage-designation does not preclude a proffered position from classification as a specialty occupation, just as a Level IV wage-designation does not definitively establish such a classification. In certain occupations (e.g., doctors or lawyers), a Level I, entry-level position would still require a minimum of a bachelor's degree in a specific specialty, or its equivalent, for entry. Similarly, however, a Level IV wage-designation would not reflect that an occupation qualifies as a specialty occupation if that higher-level position does not have an entry requirement of at least a bachelor's degree in a specific specialty, or its equivalent. That is, a position's wage level designation may be a relevant factor but is not itself conclusive evidence that a proffered position meets the requirements of section 214(i)(l) of the Act. 9 Matter of K-C-&M- Corp. IV. CONCLUSION As the Petitioner emphasized on appeal, it must prove by a preponderance of evidence that the · Beneficiary is fully qualified for the benefit sought. Matter of Chawathe, 25 I&N Dec. 369, 376 (AAO 2010). In evaluating the evidence, eligibility is to be determined not by the quantity of evidence alone but by its quality. /d. Because the Petitioner has not satisfied one of the criteria at 8 C.P.R.§ 214.2(h)(4)(iii)(A), it has not demonstrated that the proffered position qualifies as a specialty occupation. The burden is on the Petitioner to show eligibility for the immigration benefit sought. Section 291 of the Act, 8 U.S.C. § 1361; Matter ofOtiende, 26 I&N Dec. 127, 128 (BIA 2013). Here, that burden has not been met. ORDER: The appeal is dismissed. Cite as Matter of K-C-&M- Corp., ID# 154552 (AAO Dec. 20, 2016) 10
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