dismissed
H-1B
dismissed H-1B Case: Business Consulting
Decision Summary
The appeal was dismissed because the petitioner failed to establish that the proffered 'consultant' position qualifies as a specialty occupation. The duties were described in broad, generic terms, and the petitioner did not provide enough context to show that the position requires the theoretical and practical application of a body of highly specialized knowledge and a bachelor's degree in a specific specialty.
Criteria Discussed
Specialty Occupation
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U.S. Citizenship and Immigration Services In Re: 9452840 Appeal of Vermont Service Center Decision Form 1-129, Petition for a Nonimmigrant Worker (H-1B) Non-Precedent Decision of the Administrative Appeals Office Date : FEB. 17, 2021 The Petitioner seeks to temporarily employ the Beneficiary as a "consultant" 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-1B 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 of the Vermont Service Center denied the petition, concluding that the record did not establish that the proffered position qualifies as a specialty occupation. On appeal, the Petitioner asserts that the Director erred in the decision. The Petitioner bears the burden of proof to demonstrate eligibility by a preponderance of the evidence. 1 We review the questions in this matter de nova. 2 Upon de nova review, we will dismiss the appeal. I. SPECIAL TY OCCUPATION A. Legal Framework Section 101(a)(l5)(H)(i)(b) of the Act defines an H-lB nonimmigrant as a foreign national "who is coming temporarily to the United States to perform services ... in a specialty occupation described in section 214(i)( 1) ... " ( emphasis added). Section 214(i)(l) of the Act, 8 U.S.C. § 1 l 84(i)(l), defines the term "specialty occupation" as an occupation that requires "theoretical and practical application of a body of highly specialized knowledge, and 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 section 214(i)(l) of the Act but adds a non-exhaustive list of fields of endeavor. In addition, 8 C.F.R. § 214.2(h)(4)(iii)(A) provides that the 1 Matter ofChawathe, 25 I&N Dec. 369,375 (AAO 2010). 2 See Matter of Christo 's Inc., 26 I&N Dec. 537, 537 n.2 (AAO 2015) . proffered position must meet one of four criteria to qualify as a specialty occupation position. 3 Lastly, 8 C.F.R. § 214.2(h)(4)(i)(A)(]) states that an H-lB classification may be granted to a foreign national who "will perform services in a specialty occupation ... " ( emphasis added). Accordingly, to determine whether the Beneficiary will be employed in a specialty occupation, we look to the record to ascertain the services the Beneficiary will perform and whether such services require the theoretical and practical application of a body of highly specialized knowledge attained through at least a bachelor's degree or higher in a specific specialty or its equivalent. Without sufficient evidence regarding the duties the Beneficiary will perform, we are unable to determine whether the Beneficiary will be employed in an occupation that meets the statutory and regulatory definitions of a specialty occupation and a position that also satisfies at least one of the criteria at 8 C.F.R. § 2 l 4.2(h)( 4)(iii)(A). The services the Beneficiary will perform in the position determine: (1) the normal minimum educational requirement for entry into the particular position, which is the focus of criterion 1; (2) industry positions which are parallel to the proffered position and thus appropriate for review for a common degree requirement, under the first alternate prong of criterion 2; (3) the level of complexity or uniqueness of the proffered position, which is the focus of the second alternate prong of criterion 2; ( 4) the factual justification for a petitioner normally requiring a degree or its equivalent, when that is an issue under criterion 3; and ( 5) the degree of specialization and complexity of the specific duties, which is the focus of criterion 4. 8 C.F.R. § 214.2(h)(4)(iii)(A). By regulation, the Director is charged with determining whether the petition involves a specialty occupation as defined in section 214(i)(l) of the Act. 8 C.F.R. § 214.2(h)(4)(i)(B)(2). The Director may request additional evidence in the course of making this determination. 8 C.F.R. § 103.2(b)(8). In addition, a petitioner must establish eligibility at the time of filing the petition and must continue to be eligible through adjudication. 8 C.F.R. § 103.2(b)(l). B. Analysis The Petitioner is a global business strategy consulting firm that provides services in corporate strategy and organization, cost & supply chain management, customer strategy & marketing, growth strategy, mergers & acquisitions, performance improvement, information & technology management, and private equity. It states that it helps make the big decisions on strategy, organization, operations, technology, and mergers & acquisitions, and that its job is to help executives make the best decisions about their most critical business issues, including corporate strategy, business unit strategy, and strategy across the organization, including sales and marketing, operations, IT, overall organizational effectiveness and change management. Upon review of the Petitioner's description of the proposed duties of the position the duties described are broad and described with minimal context. 4 Even when considering the details, the Petitioner included in its response to the Director's request for evidence (RFE), the record lacks sufficient 3 8 C.F.R. § 214.2(h)(4)(iii)(A) must be read with the statutory and regulatory definitions ofa specialty occupation under section 214(i)(l) of the Act and 8 C.F.R. § 214.2(h)(4)(ii). We construe the term "degree" 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 Co1p. 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 pmiicular position"). 4 We have reviewed the descriptions of duties in full but will not repeat them here for the sake of brevity. 2 information and context to understand what the Beneficiary will be expected to do in the position . For example, the Petitioner states the Beneficiary will "[t]ake ownership and responsibility for assigned work streams related to the development, design and implementation of corporate business strategies, functional capabilities and enhanced client performance" and will "[u]ilize expertise to formulate cost reduction; customer retention; process re-engineering; organizational design and effectiveness; market analysis, branding and definition; quality management; strategic acquisition and divestiture." The Petitioner does not detail particular projects /work streams and does not define "expertise ." The additional narrative does not clarify the tasks . It appears from the broadly stated duties that the Beneficiary needs at most a general business degree, 5 not a bachelor's degree in a specific specialty, to perform the duties described. These duties without specific context are generic that, while they may appear (in some instances) to comprise the duties of a specialty occupation, are not sufficiently described to demonstrate the actual services the Beneficiary will provide to the Petitioner on behalf of its clients . The Petitioner also indicates that the Beneficiary will spend 20 percent of his time traveling to client sites to establish needs and present recommendations but does not describe how a degree in a specific specialty would provide the knowledge required to perform these non-specific tasks . Without specific discussion of what the Beneficiary will be expected to do within the context of the services the Petitioner provides to its clients, the descriptions do not demonstrate that a bachelor's degree in a specific specialty , or its equivalent, would be required to perform the duties of the position . The descriptions are insufficient to satisfy the statutory and regulatory definitions of specialty occupation. As noted , both definitions require the Petitioner to demonstrate that the proffered position requires: (1) the theoretical and practical application of a body of highly specialized knowledge; and (2) the attainment of a bachelor's degree in the specific specialty. It is not possible to ascertain the body of highly specialized knowledge required to perform the duties and how such a body of highly specialized knowledge is directly related to the position and is attained through a specialized degree . Additionally , the Petitioner's minimum requirements to perform the position do not assist in establishing that the proffered position actually requires a bachelor's degree or higher in a specific specialty, or its equivalent. The Petitioner states that it requires the individual in the proffered position of "consultant" to possess a master's degree, or the equivalent, in business administration or a related field (MBA). The Petitioner then provides an alternative to this requirement, as it also indicates that it will accept "a substantially completed academic program towards [an MBA] plus a Bachelor's 5 The agency has longstanding concerns regarding general-purpose bachelor 's degrees in business administration with no additional specialization . For exampl e, in Matter of Ling , 13 I. & N. Dec. 35 (Reg'! Comm 'r 1968), the agency stated that attainment of a bachelor 's degree in business administration alone was insufficient to qualify a foreign national as a member of the professions pursuant to section 101(a)(32) of the Act, 8 U.S.C. § 1101(a)(32) . Twenty years later, the agency looked to the nature of the position itself and clarified that a requirement for a degree with a generali zed title, such as busine ss administration , without further specification , was insufficient to qualify the position as one that is professional pursuant to section 10l(a)(32) of the Act. Michael Hertz Assocs., 19 I&N Dec. at 560. See also Matter of Caron Int '!, Inc., 19 I&N Dec. 791 (Comm 'r 1988) (vice president for manufacturing in a textile company was not a professional position because individual holding general degree in business , engin eering or science could perform its duties). The agency 's concerns regarding a general-purpose , non-specific degree in business, or business administration , continued under the revamped H-lB program . See, e.g., Shanti, Inc. v. Reno, 36 F. Supp. 2d 1151 (D. Minn. 1999); Royal Siam, 484 F.3d at 147; 2233 Paradis e Road, LLC v. Cissna, No. 17-cv- 01018- APG- VCF, 2018 WL 3312967 (D. Nev., July 3, 2018); XiaoTong Liu v. Baran , No. 18-00376-JVS , 2018 WL 7348851 (C.D. Cal., Dec. 21, 2018); Parzenn Partners v. Baran, No. 19-cv-11515-ADB , 2019 WL 6130678 (D. Mass., Nov . 19, 2019). 3 degree, or the equivalent, in a directly related field such as Economics or a related quantitatively analytical field." The Petitioner does not define the term "quantitatively analytical field" and does not provide examples of specific quantitative or analytical degrees that would be required to perform the position and are directly related to the position. Thus, we cannot ascertain the number of fields the Petitioner would find acceptable for the position and accordingly, cannot determine what specific body of highly specialized knowledge attained through such specialized degrees is directly related to the position. In response to the Director's RFE, the Petitioner adds that it will accept a bachelor's degree or equivalent "in a field that directly relates to our practice areas," plus a substantially completed academic program towards an MBA, in lieu of a completed MBA. The Petitioner adds farther that an "individual's academic program in Business Administration 6 must include specialized courses which directly relate to the management consulting services [it] provides." The Petitioner, however, does not define the practice areas to which the Beneficiary will be assigned and does not identify the specific specialized courses or specific concentration within a business administration degree that directly relate to the consulting services it provides. 7 These broad statements, without more, are insufficient to establish that the particular position proffered here requires a bachelor's degree, or higher, in a specific specialty. We also note that the Petitioner's apparent acceptance of this Beneficiary to perform the tasks of the proffered position casts farther doubt on the Petitioner's actual minimum requirements for the particular position. 8 Again, the lack of a focused description of the proposed duties within the context in which the Beneficiary will perform his duties does not establish that the particular position here requires anything more than a general bachelor's degree. Without such detail and context, the record does not include the requisite evidence to evaluate the Beneficiary's role and responsibility within the Petitioner's business operations and most importantly to evaluate the requirements to perform the duties described. On appeal, the Petitioner repeats the previously s~eneral requirements and refers to a 1 osition evaluation authored byl I, l__J College! 11 opines that "it would be impossible to handle the required job duties of the Consultant position with [the Petitioner] without at least a bachelor's degree in Economics or a related field and a partially completed 9 Master of Business Administration."~----~ also claims that the nature of the job duties of the proffered position requires a highly specialized degree in the technical areas of market 6 The Petitioner does not clarify if the academic program is in pursuit of a bachelor's degree or a master's degree. 7 For example, the position appears to broadly relate to corporate strategy and organization, customer strategy and marketing, however, the duties are not sufficiently developed to conclude that these are the practice areas to which the Beneficiary would be assigned, rather than for example, mergers and acquisitions or supply chain management which would appear to require a different set of courses. 8 The Beneficiary in this matter did not have a master's degree when the petition was filed and thus did not qualify under the Petitioner's first alternative requirement for employment. Notably, the Beneficiary's three-year foreign degree was evaluated to be three years of study toward a U.S. bachelor's degree in business administration, not economics, the Petitioner's stated preference for the underlying bachelor's degree. The record does not include evidence demonstrating that the Beneficiary's foreign general studies are the equivalent of a U.S. bachelor's degree in economics. Even a bachelor's degree in business administration, as opposed to three-years of study toward a bachelor's degree, is a degree in a field of general applicability. As noted above, a general business degree, without more, is insufficient to establish a P,Osition is a specialty occupation. 91 lcloes not explain what constitutes a "partially completed" MBA and how a partially completed degree is the equivalent of one that is substantially completed, as is required by the Petitioner. 4 analysis, statistical analysis, quantitative modeling, business strategy development, and project management. He reiterates that only individuals with post-secondary degrees with educational foundations in Economics or related fields could handle these technical areas and then states that "a bachelor's-level educational foundation in a highly analytical field is required to handle the varied and complex job duties of the proposed position; an individual who lacks at least a bachelor's degree in a suitable analytical, stratewc field would be unable to handle the requisite duties of the position." Althougbl does not clearly define what constitutes related fields, he appears to expand the acceptable degree fields to perform the position from an educational foundation in economics to those of other undefined suitable analytical, strategic fields. There are any number of degrees that are related only through general quantitative, analytical underpinnings. Such a wide variety of degree fields is not sufficiently finite to conclude that such a wide range of fields imparts a "body of highly specialized knowledge" attained by a bachelor's degree in a specific specialty, or its equivalent. We also considered the evaluation authored b~ I Professor of Finance at the College of Business Administration at the University I I I I finds that the proffered position emphasizes quantitative and analytical skills, problem solving ability, project planning/management capabilities, and computing knowledge. We note that these skills may be attained through study in a variety of disparate degrees. I I finds farther that the proffered position involves a heavy focus upon performing management analysis, applying analytical conclusions, meeting project requirements and requires in-depth knowledge of business administration. Again, there is insufficient analysis of these concepts to determine that they would require more than a general degree in business, or its equivalent. Also on appeal, the Petitioner refers to the hiring practices of its direct competitors as set out in a letter submitted in response to the Director's RFE. The author of that letter notes that on the basis of their understanding of the industry and the job duties of management consultants, it is common industry practice for top-tier management consulting firms to "require at least a bachelor's degree in business administration, economics, finance or a related field" and that an MBA is typically required for more senior consultants. However, if the common industry standard is to accept a bachelor's degree in business administration, a degree of general applicability, then the standard strongly suggests such a position is not a specialty occupation. 10 We have considered the Petitioner's arguments on appeal that courts "have routinely rejected the position that in order to qualify as a specialty occupation for H-lB visa purposes, the degree must be in only one specific academic major or have a specific title," and its citation to Residential Finance Corp. v. USCIS, 839 F. Supp. 2d 985 (S.D. Ohio 2012) in support of that proposition. 11 The court stated in Residential Finance that "[t]he knowledge and not the title of the degree is what is important. Diplomas rarely come bearing occupation-specific majors." Id. at 997. We agree with both the Petitioner and with this principle stated by the judge in Residential Finance. 12 Here, however, the Petitioner does not provide a comprehensive list of the underlying bachelor's 10 Royal Siam, 484 F.3d at 147. 11 The Petitioner also cites to Next Generation Tech., Inc. v. Johnson, 328 F. Supp. 3d 252, 267 (S.D.N.Y. 2017) and RELX, Inc. v. Baran, 397 F.Supp.3d 41 (D.D.C. Aug. 5, 2019) for similar propositions. 12 As the Petitioner acknowledges, provided the specialties are closely related, e.g., chemistry and biochemistry, a 5 degree-fields that meet its minimum requirements, it provides only the aforementioned degree in economics and fields that qualify under its "quantitative and analytical" standard. 13 Numerous unrelated specialties would appear to fall within the Petitioner's "quantitative and analytical" range: for example, it would appear as though a bachelor's degree in any non-humanities field might qualify an individual to perform the duties of the proffered position. 14 The current record of proceeding does not establish how this wide, far-ranging, and divergent range of degrees could form either a body of highly specialized knowledge or a specific specialty. 15 We therefore cannot conclude that the proffered position requires anything more than a general bachelor's degree. The Petitioner has satisfied neither the statutory definition of a "specialty occupation" at section 214(i)(l)(B) of the Act nor the regulatory definition of a specialty occupation at 8 C.F.R. § 214.2(h)(4)(ii). As the Petitioner has not met the threshold requirement of satisfying the statutory and regulatory definitions of the term "specialty occupation," it cannot satisfy any of the supplemental specialty-occupation criteria enumerated at 8 C.F.R. § 214.2(h)(4)(iii)(A)(l)-(4) because, again, we must consider those criteria in harmony with the thrust of the related regulatory provisions and with the statute as a whole. In other words, we must construe those criteria' s references to the term "degree" as meaning not just any baccalaureate or higher degree, but one in a specific specialty that is directly related to the proffered position. 16 For example, the Petitioner cannot satisfy the supplemental specialty-occupation criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A)(]) because even if it establishes, in the words of this criterion, that "a baccalaureate or higher degree or its equivalent is normally the minimum requirement for entry into the particular position," we would still construe the term "degree" to mean not just any baccalaureate or higher degree, but one in a specific specialty that is directly related to the proffered position. And as discussed above, the Petitioner would not be able to make that demonstration. The same will be true of the remaining three criteria at 8 C.F.R. § 214.2(h)(4)(iii)(A)(2)-(4): because minimum of a bachelor's or higher degree in more than one specialty is recognized as satisfying the "degree in the specific specialty ( or its equivalent)" requirement of section 214(i)(l )(B) of the Act. In such a case, the required "body of highly specialized knowledge" would essentially be the same. Since there must be a close correlation between the required "body of highly specialized knowledge" and the position, however, a minimum entry requirement of a degree in two disparate fields, such as philosophy and engineering, would not meet the statutory requirement that the degree be "in the specific specialty ( or its equivalent)," unless the Petitioner establishes how each field is directly related to the duties and responsibilities of the particular position. Section 214(i)( I )(B) of the Act ( emphasis added). 13 The Petitioner refers to its recruitment at various ivy league universities and provides website information regarding its recruitment efforts. However, the Petitioner's standards for its consultant position is non-specific extending to "an ambitious business school graduate, advanced degree holder or working professional." As the Petitioner does not require any specific degree. then we question how the position involves a "highly specialized body of knowledge" or requires a bachelor's degree, or the equivalent, in a "specific specialty." The Petitioner has not adequately explained or supported its standards for determining what degree or degree fields are required for the consultant position or even this particular consultant position. 14 Moreover, depending upon the specific coursework undertaken while obtaining the degree, certain fields within the humanities might also fall within the Petitioner's stated range. 15 "A position that requires applicants to have any bachelor's degree, or a bachelor's degree in a large subset of fields, can hardly be considered specialized." Caremax, Inc. v. Holder, 40 F.Supp.3d 1182, 1187-88 (N.D. Cal. 2014) 16 Royal Siam, 484 F.3d at 147; Caremax, 40 F.Supp.3d at 1187-88; Innova Sols., Inc. v. Baran, 338 F. Supp. 3d 1009, 1017 (N.D. Cal. 2018) (USCTS did not abuse its discretion in reading the degree requirement together with the "specific specialty" language); Pa}joy v. Cuccinelli, No. l 9-cv-03977-HSG, 2019 WL 3207839 at *3 (N.D. Cal. July 17. 2019) (statutory and regulatory text appear to supp01i USCIS's interpretation that the degree requirement must be read in conjunction with the "specific specialty" requirement). 6 the Petitioner does not require a bachelor's degree in a spec[fic specialty, or the equivalent, it will not be able to satisfy any of those criteria because we will interpret each reference to a "degree" to mean not just any baccalaureate or higher degree, but one in a specific specialty that is directly related to the proffered position. We therefore will not consider the Petitioner's arguments, and the evidence it submits, in support of its contention that it satisfies the supplemental specialty-occupation criteria enumerated at 8 C.F.R. § 214.2(h)(4)(iii)(A)(])-(4). The record of proceeding does not establish that the proffered position requires both: ( 1) the theoretical and practical application of a body of highly specialized knowledge; and (2) the attainment of a bachelor's degree in the specific specialty. The Petitioner, therefore, has satisfied neither the statutory definition of a "specialty occupation" at section 214(i)(l)(B) of the Act nor the regulatory definition of a specialty occupation at 8 C.F .R. § 214.2(h)( 4)(ii). As the Petitioner had not satisfied that threshold requirement, it cannot satisfy any of the supplemental specialty-occupation criteria enumerated at 8 C.F.R. § 214.2(h)(4)(iii)(A)(])-(4). The Petitioner, therefore, has not established that the proffered position is a specialty occupation. II. BENEFICIARY'S QUALIFICATIONS We also note that the record contains an additional basis for ineligibility that the Director did not address. As described above, the Petitioner in this matter identifies two acceptable ways to enter into the position proffered here. It requires a master's degree in business administration; or, a substantially completed academic program towards a master's degree in business administration plus a bachelor's degree, or the equivalent, in a directly related field such as economics or a related quantitatively analytical field. The Beneficiary here did not have a master's degree in business administration when the petition was filed. Accordingly, the Beneficiary did not qualify for the proffered position under the Petitioner's own first identifiable standard. The record also does not include evidence that the Beneficiary qualified to perform the position pursuant to the Petitioner's second standard to enter the proffered position. The Beneficiary in this matter has a three-year foreign degree that has been evaluated by a credential evaluation service as "the equivalent of three years of academic studies toward a Bachelor of Business Administration Degree at an accredited US college or university." The Beneficiary also had completed three semesters of academic study in business administration at a U.S. university when the petition was filed. The first year of study included 22 courses, all but 4 at the 400-course level, indicative of study at a senior or fourth year of study in a bachelor's degree program. The credential evaluation service determined that the Beneficiary's foreign degree and the academic studies completed at a U.S. university fulfilled the equivalent of at least a bachelor's-level degree in business administration. 17 The credential evaluation service states that it is "a credentials evaluation service and academic advisory firm specializing in the evaluation of foreign educational credentials." Thus, the record does not establish that they specialize in evaluating U.S. studies. Further, a credential evaluation service appears limited to evaluating foreign academic studies. 18 8 C.F.R. § 214.2(h)(4)(iii)(D). In this matter 17 Even ifwe accepted the credential evaluation service's evaluation of the U.S. academic studies, the Beneficiaiy would only have a education equivalent to a U.S. bachelor's degree in business administration when the petition was filed. 18 Moreover, the record also does not establish that the Beneficiary's qualifications met the Petitioner's own stated requirements when the petition was filed. The Petitioner claims that the bachelor's degree (underlying the master's degree 7 the record also does not include sufficient evidence so that U.S. Citizenship and Immigration Services may conclude through its own review that the Beneficiary had attained the equivalent of a bachelor's degree in a specific specialty when the petition was filed. 8 C.F.R. § 214.2(h)(4)(iii)(D)(5). The current record does not establish that the Beneficiary was qualified under the Petitioner's own standards when the petition was filed. III. CONCLUSION The appeal will be dismissed for the above stated reasons. In visa petition proceedings, it is the petitioner's burden to establish eligibility for the immigration benefit sought. Section 291 of the Act, 8 U.S.C. § 1361. The Petitioner has not met that burden. ORDER: The appeal is dismissed. in business administration) must be "in a directly related field such as Economics or a related quantitatively analytical field." However, the record does not include probative evidence that the Beneficiaiy has a bachelor's degree in economics or a related quantitatively analytical field. Rather he has a foreign degree that has been evaluated to be the U.S. equivalent of three years of study toward a general bachelor's degree in business administration. 8
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