dismissed H-1B Case: Software Development
Decision Summary
The appeal was dismissed because the petitioner failed to establish that the proffered position qualified as a specialty occupation. The petitioner did not provide a complete contractual chain of documents to the end-client, and the provided Statement of Work was created after the petition was filed and lacked specific details about the project or duties. This lack of evidence made it impossible to determine the true nature of the beneficiary's work and whether it required a bachelor's degree in a specific specialty.
Criteria Discussed
Sign up free to download the original PDF
Downloaded the case? Use it in your next draft →View Full Decision Text
U.S. Citizenship and Immigration Services In Re : 8138673 Appeal of California Service Center Decision Form 1-129, Petition for Nonimmigrant Worker Non-Precedent Decision of the Administrative Appeals Office Date : MAR . 25, 2020 The Petitioner seeks to temporarily employ the Beneficiary under the H-IB nonimmigrant classification for specialty occupations. See Immigration and Nationality Act (the Act) section 10l(a)(l5)(H)(i)(b), 8 U.S.C. § l 10l(a)(l5)(H)(i)(b). The Director of the California Service Center denied the petition, concluding that the Petitioner had not established that (1) it would have the requisite employer-employee relationship with the Beneficiary; and (2) the Beneficiary would be employed in a specialty occupation position. In these proceedings , it is the Petitioner's burden to establish eligibility for the requested benefit. Section 291 of the Act, 8 U.S.C. § 1361. Upon de nova review, we will dismiss the appeal. 1 I. SPECIALTY OCCUPATION We will fust address the issue of whether the Beneficiary will be performing services in a specialty occupation . A. 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: 1 We follow the preponderance of the evidence standard . Matter of Chawathe, 25 I&N Dec. 369, 375-76 (AAO 20 I 0). ( 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). 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 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). B. Proffered Position In the Form I-129, Petition for a Nonimmigrant Worker, the Petitioner stated that the Beneficiary will serve as a 'java developer." Although the Petitioner's address is inl I North Carolina, the Petitioner stated that the Beneficiary would work for its end-client at.__ _______ ___, inl I Colorado through an agreement between the Petitioner, its client, and a managed services provider (MSP). The record indicates that the contractual path of the Beneficiary's assignment is as follows: Petitioner ~ ~--~1~ (Vendor) (MSP) (End-Client) On the labor condition application (LCA)2 submitted in support of the H-lB petition, the Petitioner designated the proffered position under the occupational category "Software Developers, Applications" corresponding to the Standard Occupational Classification code 15-1132. C. 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. 2 A petitioner submits the LCA to the U.S. Department of Labor (DOL) 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 duties, experience, and qualifications. Section 212(n)(l) of the Act; 20 C.F.R. § 655.73 l(a). 2 Specifically, the record does not establish that the job duties require an educational background, or its equivalent, commensurate with a specialty occupation. 3 As recognized by the court in Defensor, where the work is to be performed for entities other than the petitioner, evidence of the client companies' job requirements is critical. See Defensor, 201 F.3d at 387-388. The court held that the former Immigration and Naturalization Service had reasonably interpreted the statute and regulations as requiring the petitioner to produce evidence that a proffered position qualifies as a specialty occupation on the basis of the requirements imposed by the entities using the beneficiary's services. Id. at 384. Such evidence must be sufficiently detailed to demonstrate the type and educational level of highly specialized knowledge in a specific discipline that is necessary to perform that particular work. The Petitioner submitted a copy of its subcontractor agreement with the vendor, dated June 14, 201 7. The agreement indicates that the Petitioner will provide subcontractor personnel to perform information technology services at work sites of the vendor's clients pursuant to a master agreement 4 between the parties. Specifically, the agreement indicates that the Petitioner will provide "programming, systems analysis, engineering, technical writing and other specialized information technology related services and staffing for or on behalf of [the vendor's] client as an independent contractor under the terms of this agreement and accompanying Statement of Work as attached hereto as consecutively numbered Statement(s) of Work (i.e. 'Statement of Work No. __ ')." The original agreement between the Petitioner and the vendor submitted in support of the petition was accompanied by a Statement of Work (SOW) dated May 23, 2016, which, in addition to pre-dating both the subcontractor agreement and the filing of the instant petition, identified an individual (not the Beneficiary) who would work as a java developer for the end-client. On appeal, the Petitioner resubmitted the subcontractor agreement accompanied by a new SOW, which identified the Beneficiary as the java developer to work at the end-client's site. This SOW, dated April 29, 2019, was executed nearly one month after the instant petition was filed. Moreover, aside from the Beneficiary's hourly rate, no other details, such as the name of the project, its duration, the duties to be performed, or the worksite of the Beneficiary, were included. With regard to the vendor's relationship with the end-client, the Petitioner submitted a Supplier Master Service Agreement (SMSA) between the vendor and the MSP, effective December 4, 2014. According to this agreement, the vendor will perform recruitment services for the MSP, who in tum will provide "foll time employee recruitment management services" to the end-client pursuant to an "MSP agreement," a copy of which was not submitted. The record contains no documentation pertaining to the contractual relationship of the MSP to the end-client. 5 3 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. 4 The Petitioner did not submit a copy of this master agreement. 5 The record also contains a document entitled ·I !Addendum, which refers to a "Standard Statement of Services for Staff Augmentation Workforce Management Services" f etween the vendor and the MSP, and states that this agreement has been assigned froml I I to its affiliate,_ I The document referred to was not submitted into the record, and the assignment raises further questions regarding the actual identity of the MSP and its relationship with the end-client. 3 While the record contains an agreement between the Petitioner and the vendor, and a copy of one agreement between the vendor and the MSP, there is no documentation establishing the contractual path between the MSP and the end-client. Although the Petitioner submits emails as evidence that contractual documentation to this effect could not be obtained, this void in the contractual path precludes us from determining the true nature of the Beneficiary's assignment with the end-client. The lack of contemporaneous documentation establishing an agreement for the Beneficiary's services between the MSP and the end-client, raise further questions regarding the exact nature of the Beneficiary's proposed assignment. The Petitioner also submitted letters from the vendor and the end-client in support of the claimed assignment of the Beneficiary and relies on their contents to establish the duties of the proffered position. The end-client letter submitted in support of the petition stated that the Beneficiary would work onsite at its offices on the 'I t' project pursuant to its agreement with the MSP, and pursuant to the MSP's agreement with the vendor. The end-client stated that the Beneficiary would work in the role of j ava developer "until December 31, 2019 or as long as the contract is renewed." The Petitioner also submitted a letter from the vendor, which provided a list of duties that the Beneficiary would perform. The vendor also stated that the duties of the proffered position usually required a minimum of a bachelor's degree or its equivalent in computer science, information systems, and/or a related field of study. In response to the Director's request for evidence, the Petitioner submitted updated letters from the end-client and the vendor. The end-client letter again stated that the Beneficiary would work on the I !project, but in this letter identified his position as java developer "III." The vendor identified the Beneficiary's position simply as java developer. Both the end-client and the vendor submitted an identical overview of the duties and requirements of the proffered position, which read more as a job vacancy announcement than a confirmation of the duties to be performed on a specific project. Specific details regarding those descriptions will be discussed further herein. On appeal, the Petitioner again submits new letters from the end-client and the vendor. The end-client letter states the essential functions of the assignment in bullet-point format, and states that the assignment will continue until March 31, 2020. The vendor letter contains the same list of duties it stated in its initial letter and, upon review, we note that the list of duties is identical to the duties set forth by the end-client on appeal. The only difference is that the end-client inserts one additional bullet point stating that a "[m]inimum of a bachelor's degree is required." The record contains insufficient evidence establishing the manner in which the Beneficiary will render his services at the offices of the end-client. As noted above, there is no documentation outlining the manner in which the Beneficiary will be assigned to the end-client via the MSP, and there is no contractual documentation between the end-client and the MSP. Moreover, the documentation between the vendor and the MSP lacks documentation specifically identifying existing projects to be staffed, and no documentation between those parties identifies the Beneficiary as a resource to be provided. Although the Petitioner submitted a SOW on appeal, this document merely identifies the Beneficiary as a java developer and states: "The following personnel of [the Petitioner] who will work on this project have been informed and understand their obligations under this SOW and the Subcontractor 4 Agreement." We note that the SOW provides no details regarding the nature of the proposed assignment or its associated duties, and although it refers to "this project," the name or requirements of such project are not identified. Finally, we note that this SOW was executed on April 29, 2019, nearly one month after the instant petition in this matter was filed. The Petitioner must establish eligibility at the time of filing the nonimmigrant visa petition and must continue to be eligible for the benefit through adjudication. 8 C.F.R. § 103.2(b)(l). A visa petition may not be approved at a future date after the Petitioner or Beneficiary becomes eligible under a new set of facts. See Matter of Michelin Tire Corp., 17 I&N Dec. 248,249 (Reg'l Comm'r 1978). Moreover, the duties to be performed by the Beneficiary are unclear. In its support letter, the Petitioner provided a chart that grouped the duties of the Beneficiary into five areas: Meetings (10%), Designing (20% ), Development ( 40% ), Validations (10% ), and Review (20% ). The duties as described are generalized and do not relate to the specific project to which it claims the Beneficiary will be assigned. The letters of the vendor and the end-client provided additional information. The initial letter from the end-client provided only a brief statement regarding the duties of the position, as follows: The project involves Full life-cycle development for JAVA/J2EE WEB application using RAD or R TC in an IBM W ebsphere environment. Working in a team environment to enhance and support corporate card banking systems. The candidates must have a strong Web application development background. Utilizing Java/J2EE and JDBC development experience, OOAD using UML, knowledge of Junit, and foll life-cycle system development. The generic overview is not particular to the Beneficiary or the claimed project and provides no details regarding what the Beneficiary will do in the context of the project and its timelines and deliverables. The end-client's statement that "[t]he candidates must have a strong Web application development background" undermines the credibility of the letter because it does not appear that the duties described pertain specifically to the Beneficiary. In response to the RFE, both the vendor and the end-client submitted an identical overview of "the project." However, the overview appears to be excerpted from a job advertisement. For example, the first sentence states: "[s]eeking a professionally experienced Programmer/Analyst," which is confusing as the Beneficiary's stated role is that of a java developer. Further, the overview contains statements such as "the candidate must have .... " and "the ideal candidate will have .... ". Finally, it outlines requirements such as a minimum of four years of experience in various areas. Neither of the letters describe the specific project upon which the Beneficiary will work. Rather, the identical statements in both letters appear to be directly taken from a job advertisement for a programmer/analyst. 6 The relevance of the contents of these letters, therefore, is afforded little weight. 6 We further note the submission ofjob vacancy announcements posted by the end-client. The Petitioner asserts that these job advertisements demonstrate the need for the Beneficiary's services at the end-client location. Upon review, those advertisements are for an agile software developer and an application developer, whereas the proffered position is that of a java developer. Moreover, the solicitations seek to hire the candidates on a full-time basis. We do not find the Petitioner's reliance on the vacancy announcements sufficient to establish the existence of specialty occupation work for the Beneficiary at the end-client's location. 5 Finally, on appeal the Petitioner submits updated letters from the vendor and the end-client which contain the same description of duties provided by the vendor in its first letter submitted in support of the petition. The bulleted duties provide a general list of tasks but provide no context in which the Beneficiary will perform them. For example, although the duties include "design and develop flow diagrams" and "develop JA V A/J2EE applications," the role of the Beneficiary is still largely undefined, as it is unclear how such duties relate to the named project. Most importantly, this is the third version of duties provided by the end-client, and none of the three versions are consistent in the record. Finally, the educational requirements of the position are unclear. The vendor states in its letter that the duties of the proffered position usually required a minimum of a bachelor's degree or its equivalent in computer science, information systems, and/or a related field of study. The end-client, however, merely states "minimum of a bachelor's degree is required." However, we note that the end-client is silent on whether a degree in a specific specialty is required. Again as recognized by the court in Defensor, where the work is to be performed for entities other than the petitioner, evidence of the client companies' job requirements is critical. See Defensor, 201 F.3d at 387-388. This omission, coupled with the lack of specific information pertaining to the project upon which the Beneficiary will allegedly work for the requested validity period (i.e., October 1, 2019, to September 10, 2022) raises further questions regarding the existence of the claimed assignment. We again note the SOW submitted on appeal, which was executed after the filing of the petition and thus is not sufficient to establish specialty occupation work at the time of filing. Moreover, while the end-client makes reference to the duration of the project, it states that the assignment of the Beneficiary will continue first through December 31, 2019, and later through March 31, 2020. Even if we accepted the letters from the end-client as sufficient evidence of the existence of a project for the Beneficiary, they nevertheless would only substantiate work for the Beneficiary for six months of the requested three-year validity period. 7 We further note the submission of photographs, emails, and two affidavits from claimed co-workers of the Beneficiary suggesting he is performing services at the end-client location. However, as discussed above, absent documentation establishing the nature and duration of the Beneficiary's assignment and his associated duties for the period from October 1, 2019 to September 10, 2022, these documents are not persuasive. The affidavits from the Beneficiary's co-workers are identical in their content, and they identify duties that once again differ from the other statements of duties contained in the record. While the photographs and emails suggest that the Beneficiary maintains a presence at the end-client worksite, we nevertheless cannot determine what he is actually doing at the worksite even if we could otherwise confirm his contractual obligations. Therefore, the record of proceedings does not contain sufficient documentary evidence that establishes the entire contractual path under which the Beneficiary's assignment will commence. This lack of documentation prohibits a determination that specialty occupation had been secured for the Beneficiary at the time of filing. Without documentary evidence that delineates the contractual terms between the 7 We note the submission of "project documents" on appeal, which the Petitioner claims substantiate the availability of work for the Beneficiary through 2022. A rview of the:e documen. ts reveals no specific project information or assignments specific to the Beneficiary and the I project, and we do not find them probative evidence of the existence of specialty occupation work for the Beneficiary under the conditions claimed by the Petitioner. 6 end-client, the MSP, and the vendor, including the true duties and the requirements for the position, we are unable determine the substantive nature of the proffered position. As discussed above, the assertions in the vendor and end-client letters regarding the Beneficiary's assignment are vague, do not outline the nature and duration of the claimed assignment, and are further not supported by contemporaneous contractual documentation between all parties. Absent such documentation, we are not able to ascertain what the Beneficiary would do, where the Beneficiary would work, or how this would impact circumstances of his relationship with the Petitioner. A petition must be filed for non-speculative work for the Beneficiary, for the entire period requested, that existed as of the time of the petition's filing. 8 The Petitioner has not demonstrated the substantive nature of the duties the Beneficiary would perform. The Petitioner's failure to establish the substantive nature of the work to be performed by the Beneficiary precludes a finding that the proffered position is a specialty occupation under any criterion at 8 C.F.R. § 214.2(h)(4)(iii)(A), because it is the substantive nature of that work that determines (1) the normal minimum educational requirement for 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. The Petitioner has not satisfied any of the criteria at 8 C.F.R. § 214.2(h) (4) (iii) (A) and, therefore, it cannot be found that the proffered position qualifies as a specialty occupation. II. EMPLOYER-EMPLOYEE As the Petitioner did not demonstrate that the proffered position is a specialty occupation, we need not fully address other issues evident in the record. Nevertheless, we concur with the Director's 8 The agency made clear long ago that speculative employment is not permitted in the H-1 B program. For example, a 1998 proposed rule documented this position as follows: Historically, the Service has not granted H-lB classification on the basis of speculative, or undetermined, prospective employment. The H-1 B classification is not intended as a vehicle for an individual to engage in a job search within the United States, or for employers to bring in temporary foreign workers to meet possible workforce needs arising from potential business expansions or the expectation of potential new customers or contracts. To determine whether an individual is properly classifiable as an H-lB nonimmigrant under the statute, the Service must first examine the duties of the position to be occupied to ascertain whether the duties of the position require the attainment of a specific bachelor's degree. See section 214(i) of the Immigration and Nationality Act (the "Act"). The Service must then determine whether the individual has the appropriate degree for the occupation. In the case of speculative employment, the Service is unable to perform either part of this two-prong analysis and, therefore, is unable to adjudicate properly a request for H-1 B classification. Moreover, there is no assurance that the individual will engage in a specialty occupation upon arrival in this country. Petitioning Requirements for the H Nonimmigrant Classification, 63 Fed. Reg. 30,419, 30,419-20 (proposed June 4, 1998) (to be codified at 8 C.F.R. pt. 214). 7 determination that the record as constituted does not establish that the Petitioner meets the regulatory definition of a United States employer under 8 C.F.R. § 214.2(h) (4) (ii) and will briefly address the issue below. The United States Supreme Court determined that where federal law fails to clearly define the term "employee," courts should conclude that the term was "intended to describe the conventional master servant relationship as understood by common-law agency doctrine." Nationwide Mut. Ins. Co. v. Darden, 503 U.S. 318, 322-23 (1992) ( quoting C,nty. for Creative Non-Violence v. Reid, 490 U.S. 730 (1989)). The Supreme Court stated: "In determining whether a hired party is an employee under the general common law of agency, we consider the hiring party's right to control the manner and means by which the product is accomplished. Among the other factors relevant to this inquiry are the skill required; the source of the instrumentalities and tools; the location of the work; the duration of the relationship between the parties; whether the hiring party has the right to assign additional projects to the hired party; the extent of the hired party's discretion over when and how long to work; the method of payment; the hired party's role in hiring and paying assistants; whether the work is part of the regular business of the hiring party; whether the hiring party is in business; the provision of employee benefits; and the tax treatment of the hired party." Id.; see also Clackamas Gastroenterology Assocs., P.C. v. Wells, 538 U.S. 440, 445 (2003) (quoting Darden, 503 U.S. at 323). As the common-law test contains "no shorthand formula or magic phrase that can be applied to find the answer, ... all of the incidents of the relationship must be assessed and weighed with no one factor being decisive." Darden, 503 U.S. at 324 (quoting NLRB v. United Ins. Co. of Am., 390 U.S. 254,258 (1968)). In the instant case, the record contains insufficient evidence regarding where the Beneficiary will work, and who will supervise his work. The Petitioner provided copies of its employee evaluation form for the Beneficiary from the period from October 2018 to December 2018, which identifies the Beneficiary as a "Programmer Analyst" in the IT department and I I as the Beneficiary's supervisor. 9 It is unclear in what manner this individual would supervise the Beneficiary (i.e., remotely or onsite). While we acknowledge that remote supervision is certainly feasible, the record as constituted is unclear first, with regard to the existence of an assignment for the Beneficiary at the claimed end-client location and second, with regard tol l's role and level of familiarity in the project. As the actual existence of the claimed project has not been established, the claims of the Petitioner regarding the Beneficiary's supervision and the manner in which she will complete her duties cannot be verified. In addition, we note that the subcontractor agreement between the Petitioner and the vendor states, In Part 2, Section D, that "[the vendor] or [the vendor's client] may request the removal or the cancellation of the assignment of any [Petitioner] Personnel at any time and for any or no reason that 9 While the record contains documentation demonstrating that this individual has in fact conducted performance evaluations for the Beneficiary, the absence of evidence pertaining to the specific project upon which the Beneficiary will work and the particulars of that project, such as who will directly supervise and assign the Beneficiary's work. prohibits us from determining the manner in which the Petitioner will supervise and control the Beneficiary. 8 it lawful." It would appear, therefore, that the authority to hire and fire the Beneficiary does not lie with the Petitioner, but rather the vendor and the vendor's clients. Therefore, absent documentary evidence establishing the entire contractual path and outlining the nature and duration of the project, the expectations and responsibilities of the Beneficiary, and the manner in which work is assigned and supervised, we cannot satisfactorily determine who would supervise the Beneficiary's work and how that supervision would be exercised, given that the Petitioner's offices are in North Carolina and the Beneficiary will work in Colorado. Therefore, the record as currently constituted does not establish that the requisite employer-employee relationship exists. While social security contributions, worker's compensation contributions, unemployment insurance contributions, federal and state income tax withholdings, and other benefits are still relevant factors in determining who will control a beneficiary, other incidents of the relationship, e.g., who will oversee and direct the work of the Beneficiary, who will provide the instrumentalities and tools, where will the work be located, and who has the right or ability to affect the projects to which the Beneficiary is assigned, must also be assessed and weighed in order to make a determination as to who will be the Beneficiary's employer. 10 The evidence, therefore, is insufficient to establish that the Petitioner qualifies as a United States employer, as defined by 8 C.F.R. § 214.2(h)(4)(ii). Merely claiming in its letters that the Petitioner would exercise complete control over the Beneficiary does not establish eligibility in this matter. Therefore, the petition must be denied for this additional reason. III. CONCLUSION The appeal will be dismissed for the above stated reasons, with each considered an independent and alternative basis for the decision. 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. 1° Finally, we note a further discrepancy. The record contains documentation evidencing the current employment of the Beneficiary by the Petitioner. copies of the Beneficiary's timesheets and STEM/OPT employment documents indicate he worked no less than 40 hours per week, yet his pay stubs indicate 0.00 for hours worked despite him being paid what appears to be a full salary. A few errors or minor discrepancies are not reason to question the credibility of a beneficiary or a petitioner seeking immigration benefits. See, e.g., Spencer Enterprises, Inc. v. United States, 345 F.3d 683, 694 (9th Cir. 2003). However, anytime a petition includes numerous errors and discrepancies, and a petitioner does not resolve those errors and discrepancies after USCIS provides an opp01tunity to do so, those inconsistencies will raise serious concerns about the veracity of a petitioner's assertions. 9
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.