dismissed H-1B Case: Information Technology
Decision Summary
The appeal was dismissed because the petitioner did not demonstrate that the proffered 'systems analyst' position qualifies as a specialty occupation. The AAO referenced the Department of Labor's Occupational Outlook Handbook, which indicates that a bachelor's degree in a specific computer-related field, while common, is not always a minimum requirement for entry into the occupation, as analysts can have business or liberal arts degrees.
Criteria Discussed
Sign up free to download the original PDF
Downloaded the case? Use it in your next draft →View Full Decision Text
MATTER OF S-S-S-, LLC Non-Precedent Decision of the Administrative Appeals Office DATE: SEPT. 9, 2016 APPEAL OF CALIFORNIA SERVICE CENTER DECISION PETITION: FORM 1-129, PETITION FOR A NONIMMIGRANT WORKER The Petitioner, a software development and information technology consulting company seeks to temporarily employ the Beneficiary as a "systems analyst" under the H-1B 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, California Service Center, denied the petition. The Director concluded that the Petitioner had not demonstrated that the proffered position qualifies as a specialty occupation. The matter is now before us on appeal. In its appeal, the Petitioner submits additional evidence and asserts that it has satisfied all evidentiary requirements. Upon de novo review, we will dismiss the appeal. I. LEGAL FRAMEWORK 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 S-S-S-, LLC (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.F.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.F.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-1B petition, the Petitioner stated that the Beneficiary would serve as a "systems analyst." The Petitioner provided the following description of the duties of the proffered position: • Perform System Analysis and design phases of Software Development Life Cycle (SDLC/Waterfall) • Prepare High-level design, low-level design and breakdown Complex requirements into Technical Tasks. • Develop Enhancement requests · to develop the existing custom functionality (Product) using AS400 • Debugs & performs system level testing for the newly implemented functionality and Provide required documentation with includes program-level and user-level documentation. • Conduct usability testing in cloud platforms for remote, in house, face to face, develop high fidelity websites, applications, mobile apps usability testing and reporting. Subsequently, in response to a request for evidence (RFE), the Petitioner provided the following additional description (note: the original text has not been changed): 2 Matter of S-S-S-, LLC • Requirement analysis, design and development of web and mobile application to technical requirements for business solution interactive app development for the Mobile Claim Manager application development project 30% • Gathering the requirements and integrating point of interactive app development, to process the client data and outline the steps necessary to develop new and modified programs for application. 20% • Requirement analysis, design and development of web and mobile application to technical requirements for business solution. 15% • Design and architect test strategy for the project, which includes the proof of concept and evaluation of right tools required for conducting the testing specific. Work closely with the team to design and develop the project 5% • Analyze the business specification and testing the application, as per the project specification. 1 0% • Prepare documents, responsible for ensure quality of the customer's information systems and verify systems functionality and performance and will contribute to improve in testing strategy.! 0% According to the Petitioner, the proffered position requires, at minimum, a bachelor's degree in the occupational field of study, or the equivalent. 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 position.1 Specifically, the record does not establish that the job duties require an educational background, or its equivalent, commensurate with a specialty occupation? A. First Criterion We tum firstto 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 ofLabor'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.3 1 Although some aspects of the regulatory criteria may overlap, we will address each of the criteria individually. 2 The Petitioner submitted documentation to support the H-1 B 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 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 USC IS 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 3 Matter of S-S-S-, LLC On the labor condition application (LCA) submitted in support of the H-1B petition, the Petitioner designated the proffered position under the occupational category "Computer Systems Analysts" corresponding to the Standard Occupational Classification code 15-1121.4 The Handbook states the following with regard to the requirements of computer systems analyst positions: A bachelor's degree in a computer or information science field is common, although not always a requirement. Some firms hire analysts with business or liberal arts degrees who have skills in information technology or computer programming. Education Most computer systems analysts have a bachelor's degree in a computer-related field. Because these analysts also are heavily involved in the business side of a company, it may be helpful to take business courses or major in management information systems. Some employers prefer applicants who have a master's degree in business administration (MBA) with a concentration in~information systems. For more technically complex jobs, a master's degree in computer science may be more appropriate. Although many computer systems analysts have technical degrees, such a degree is not always a requirement. Many analysts have liberal arts degrees and have gained programming or technical expertise elsewhere. U.S. Dep't of Labor, Bureau of Labor Statistics, Occupational Outlook Handbook, 2016-17 ed., "Computer Systems Analysts," http://www.bls.gov/ooh/computer-and-information-technology/ computer-systems-analysts.htm#tab-4 (last visited Aug. 11, 20 16). 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. 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: (l) 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 accuracy; 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 _II_ 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. 4 (b)(6) Matter of S-S-S-, LLC The Handbook does not support the assertion that at least a bachelor's degree in a specific specialty, or its equivalent, is normally the minimum requirement for these positions. This section of the narrative begins by stating that a bachelor's degree in a related field is not a requirement. The Handbook continues by stating that there is a wide-range of degrees that are acceptable for positions in this occupation, including general purpose degrees such as business and liberal arts. While the Handbook indicates that a bachelor's degree in a computer or information science field is common, it does not report that such a degree in normally a minimum requirement for entry. According to the Handbook, many systems analysts have liberal arts degrees and have gained programming or technical expertise elsewhere. It further reports that many analysts have technical degrees. We observe that the Handbook does not specify a degree level (e.g., associate's degree, baccalaureate) for these technical degrees. Moreover, it specifically states that such a degree is not always a requirement. Thus, the Handbook does not support the claim that the occupational category of computer systems analyst is one for which normally the minimum requirement for entry is a baccalaureate degree (or higher) in a specific specialty, or its equivalent. Even if it did, the record lacks sufficient evidence to support a finding that the particular position proffered here, an entry-level computer systems analyst position, would normally have such a minimum, specialty degree requirement or its equivalent. In support ofthe H-lB petition, the Petitioner also submitted an "Expert Opinion Letter" prepared by an associate professor in the at the The conclusion of that evaluation is that the proffered position requires a "Bachelor's Degree (or the equivalent) in Computer Science, Information Systems, Computer Engineering, or a related field." The evaluator states that "I have reviewed an in-depth description of the duties for [the proffered position]." He further states that the evaluation is "based on the complex nature of the programming, development, and testing duties [of the proffered position]." The record contains little indication as to whether the evaluator possesses any knowledge of the Petitioner's proffered position beyond the duty descriptions in the record of proceedings. Although he provided a description of the Petitioner's business,5 and stated that the evaluation is "based on the complex nature of the programming, development, and testing duties [of the proffered position]," there is no indication that the evaluator possesses an in-depth ,knowledge of the Petitioner's business operations or the. complexity of the proffered position as it would be performed in the context of the Petitioner's business. For instance, there is no evidence that the evaluator visited the Petitioner's business, observed tqe Petitioner's employees, interviewed them about the nature of their work, or documented the knowledge that they apply on the job. 5 The evaluator described the , Petitioner as "an information technology consulting firm, providing IT solution development and services in business consulting, product development, and application support for clients in the financial services, portfolio man~gement, transportation, healthcare, automobile, banking, and technology industries." 5 Matter of S-S-S-, LLC Furthermore, there is no indication that the Petitioner advised the evaluator that the Petitioner characterized the proffered position as a low, entry-level systems analyst position, for a beginning employee who has only a basic understanding of the occupation (as indicated by the wage-level on the LCA) relative to other positions within the occupational category. It appears that the evaluator would have found this information relevant for his opinion letter. Without this information, the Petitioner has not demonstrated that the evaluator possessed the requisite information necessary to adequately assess the nature of the Petitioner's position and appropriately determine parallel positions based upon job duties and responsibilities. We consider this a significant omission, in that it indicates an incomplete review of the proffered position. In any event, we find that the evaluator does not provide a substantive, analytical basis for his opinion and conclusion. He does not relate his conclusions to specific, concrete aspects of the Petitioner's business operations to demonstrate a sound factual basis for his conclusions about the educational requirements for the particular position here at issue. Accordingly, the very fact that he attributes a degree requirement to such a generalized treatment of the proffered position undermines his assertions, opinions, and conclusions. In summary, and for all of the reasons discussed above, we conclude that the evaluation of the proffered position does not establish the proffered position as a specialty occupation under any of the specialty-occupation criteria. The conclusions reached by the evaluator lack the requisite specificity and detail and are not supported by independent, objective evidence demonstrating the manner in which he reached such conclusions. There is an inadequate factual foundation established to support the opinion and we find that the opinion is not in accord with other information in the record. As such, neither the evaluator's findings nor his ultimate conclusions satisfy any criterion of the regulation at 8 C.F.R. § 214.2(h)(4)(iii)(A). We mfiy, in our discretion, use as advisory opmwn statements submitted as expert testimony. However, where an opinion is not in accord with other information or is in any way questionable, we are not required to accept or may give less weight to that evidence. Matter of Caron International, 19 I&N Dec. 791 (Comm'r 1988). Further, we find that, to the extent that they are described in the record of proceedings, the numerous duties that the Petitioner ascribes to the proffered position indicate a need for a range of technical knowledge in the computer/IT field, but do not establish any particular level of formal, postsecondary/ education leading to a bachelor's or higher degree in a specific specialty as minimally . necessary to attain such knowledge. Thus, the Petitioner has not satisfied the criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A)(l). 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 6 Matter of S-S-S-, LLC 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 casts its gaze 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 include: 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 and recruit only degreed individuals." See Shanti, Inc. v. Reno, 36 F. Supp. 2d 1151, 1165 (D. Minn. 1999) (quotingHird/BlakerCorp. v. Sava, 712F. Supp. 1095,1102 (S.D.N.Y. 1989)). Here and as already discussed, the Petitioner has not established that its proffered position is one for which the Handbook (or other independent, authoritative source) 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. Furthermore, the Petitioner did not submit any letters or affidavits from similar firms or individuals in the Petitioner's industry attesting that such firms "routinely employ and recruit only degreed individuals." The Petitioner did provide two vacancy announcements placed by other companies to satisfy this criterion. They were placed for positions entitled "Computer Systems Analyst" and "Systems Analyst." However, they do not establish that the claimed degree requirement is common to the industry in parallel positions among siml.lar organizations. First, we note that the Petitioner did not provide any independent evidence of how representative these vacancy announcements are of the particular advertising employers' recruiting history for the type of jobs advertised. Further, as they are only solicitations for hire, they. are not evidence of the employers' actual hiring practices. Second, upon review of the vacancy announcements, we find that they do not provide sufficient information about the advertising organizations to establish that those organizations are similar to the Petitioner. Without such evidence, job vacancy announcements are generally outside the scope of consideration for this criterion, which encompasses only organizations that are similar to the Petitioner. Further, by classifying the proffered position at a Level I wage, the Petitioner indicated that it is an entry-level position. However, one of the vacancy announcements states that the advertised 7 Matter of S-S-S-, LLC position requi~es at a minimum of three years of experience. The advertised position, therefore, does not appear to be entry-level. Therefore, they have not been shown to be positions parallel to the proffered position, and as such the job vacancy announcements have not been shown to be directly relevant to the requirements described at the first prong of 8 C.F.R. § 214.2(h)(4)(iii)(A)(2). Finally, even if both of the vacancy announcements involved parallel positions at organizations similar to the Petitioner, the organizations placing them conducted business in the Petitioner's industry, and the advertised positions required a minimum of a bachelor's degree in a specific specialty or its equivalent, we would still find that the Petitioner had not demonstrated what statistically valid inferences, if any, could be drawn from two announcements with regard to the common educational requirements for entry into parallel positions in similar organizations.6 Thus, the evidence of record does not establish 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 ofthe first alternative prong of8 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. The Petitioner claims that the Beneficiary is well qualified for the position, and references his qualifications. 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. Even considering the Petitioner's general descriptions of the proffered position's duties, we still find that the evidence of record does not establish why a few related courses or industry experience alone would be insufficient preparation for the proffered position. While a few related courses may be beneficial, or even required, 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 6 USCIS "must examine each piece of evidence for relevance, probative value, and credibility, both individually and within the context of the totality of the evidence, to determine whether the fact to be proven is probably true." Matter of Chawathe, 25 I&N Dec. 369, 376 (AAO 20 I 0). As just discussed, the Petitioner has not established the relevance of the job advertisements submitted to the position proffered in this case. Even if their relevance had been established, the Petitioner still would not have demonstrated what inferences, if any, can be drawn from these few job postings with regard to determining the common educational requirements for entry into parallel positions in similar organizations in the same industry. See generally Earl Babbie, The Practice of Social Research 186-228 (1995). Matter of S-S-S-, LLC position. The description of the duties does not specifically identify any tasks that are so complex or unique that only a specifically degreed individual could perform them. This is further evidenced by the LCA submitted by the Petitioner in support of the instant petition. As noted above, the Petitioner attested on the submitted LCA that the wage level for the proffered position is a Level I (entry-level) wage. Such a wage level is for a position which only requires a basic understanding of the occupation; the performance of routine tasks that require limited, if any, exercise of judgment; close supervision and work closely monitored and reviewed for accuracy; and the receipt of specific instructions on required tasks and expected results, is contrary to a position that requires the performance of complex duties. 7 It is, instead, a position for an employee who has only basic understanding of the occupation. In order to attempt to show that parallel positions require a minimum of a bachelor's degree in a specific specialty or its equivalent, the Petitioner would be obliged to demonstrate that other wage Level I systems analyst positions, entry-level positions requiring only a basic understanding of systems analysis, require a minimum of a bachelor's degree in a specific specialty or its equivalent, the proposition of which is not supported by the Handbook. Therefore, the evidence of record does not estaplish that this position is significantly different from other positions in the occupation such that it refutes the Handbook's information to the effect that there is a spectrum of degrees acceptable for such positions, including degrees not in a specific specialty. In other words, the record lacks sufficiently detailed information to distinguish the proffered position as unique from or more complex than positions that can be performed by persons without at least a bachelor's degree in a specific specialty, or its equivalent. As the Petitioner did not demonstrate how the proffered position is so complex or unique relative to other positions within the same occupational category that do not require at least a baccalaureate degree in a specific specialty or its equivalent for entry into the occupation in the United States, it cannot be concluded that the Petitioner has satisfied the second alternative prong of8 C.F.R. § 214.2(h)(4)(iii)(A)(2). C. Third Criterion The third criterion of 8 C.F: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. 7 The issue here is that 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, it is important to note that a Level I wage-designation does not preclude a proffered position from classification as a speCialty occupation. In certain occupations (doctors or lawyers, for example), an 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 consideration but is not a substitute for a determination of whether a proffered position meets the requirements of section 214(i)( I) of the Act. 9 Matter of S-S-S-, LLC To satisfy this criterion, the Petitioner provided a printout of a vacancy announcement it placed on a popular job search website. While placed for a computer systems analyst position, it is not clear that the position for which this vacancy announcement was placed is the one proffered in the H-IB petition. For example, it states that the advertised position requires a master's degree in computer science and a minimum of one year of experience. However, because the Petitioner classified the proffered position as a Level I, entry-level position, it is not clear that the advertised position and the proffered posit~on have the same requirements. In any event, the vacancy announcement does not demonstrate that the Petitioner normally requires a minimum of a bachelor's degree in a specific specialty or its equivalent for the proffered position. Further, we observe that the Petitioner was established in 2006 and has eleven employees. In addition, USC IS computer records indicate that it has submitted more than 100 employment-based visa petitions since 2011. That the Petitioner insisted, on one occasion, on a specialized degree does not indicate that it is a normal requirement. The Petitioner submitted insufficient evidence to show that it normally requires a minimum of a bachelor's degree in a specific specialty or its equivalent for the proffered position and has not satisfied the criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A)(3). D. Fourth Criterion The fourth criterion at 8 C.F.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. In the instant case, relative specialization and complexity have not been sufficiently developed by the Petitioner as an aspect of 'the proffered position. We again refer to our earlier comments and findings with regard to the implication of the Petitioner's designation of the proffered position in the LCA as a Level I (the lowest of four assignable levels) wage. That is, the Level I wage designation is indicative of a low, entry-l<;:vel position relative to others within the occupational category, and hence one not likely distinguishable by relatively specialized and complex duties. Upon review of the totality of the record, we find th~'t: the Petitioner has not established that the nature of the specific duties is so specialized and complex that the knowledge required to perform the duties is usually associated with the attainment of a baccalaureate or higher degree in a specific specialty, or its equivalent. For the reasons discussed above, the evidence of record does not satisfy the fourth criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A). 10 Matter of S-S-S-, LLC Because the Petitioner has not satisfied one of the criteria at 8 C.F.R. § 214.2(h)(4)(iii)(A), it has not demonstrated that the proffered position qualifies as a specialty occupation. 8 IV. CONCLUSION 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 ofS-S-S-, LLC, ID# 18015 (AAO Sept. 9, 2016) 8 Since the identified basis for denial is dispositive of the Petitioner's appeal, we will not address other grounds of ineligibility we. observe in the record of proceedings including whether the LCA corresponds to the petition. 11
Avoid the mistakes that led to this denial
MeritDraft learns from dismissed cases so your petition avoids the same pitfalls. Get arguments built on winning precedents.
Avoid This in My Petition →No credit card required. Generate your first petition draft in minutes.