Is it the intend of the Congress in AC21 act?
Hi Rajiv,
Your help in this forum is great. Thank you for this wonderful service. This question is not for any personal help. It is general question for all Indian/Chinese nationals to understand the AC21 law that eliminated country quota in EB catagories. I have concern over the method followed by U.S DOS in allocating immigrant visas in EB2 category for India and China inline with section 202 of Immigration and Nationality Act.
I feel that they have misunderstood the law that governs the allocation of immigrant visas to foreign states (INA section 202) particularly section INA 202 (a) (5) (A) that was included through AC21 act in 2000.
Here are some facts..
1.EB2 India cutoff date just moved 7 days in last 10 months. It stuck in Jan 2003.
2.However the EB2 visas have been "current" for all nationals other than India and China. It never retrogressed since heavy retrogressin started 2 years back. It indicates lot of unused visas availble in EB2.
3. For last 10 months EB3-All other chargable country has seen considerable movement in visa cutoff dates.
There may be something wrong with U.S.DOS in allocating visa numbers in EB2 category, as per section 202 (a) of current INA. They may be issuing only 2800 (7% of 40,000) visas to India and China in EB2 category for a fiscal year and redirecting unused EB2 numbers to EB3 category for nationals other than India and China. They may be imposing hard country cap in EB2 (Suspending AC21 law as per their VB Nov 2005).
There is a large room for this speculation, due to the pattern of cutoff date movement in EB2 category. This is just a speculation. This argument/speculation is valid if DOS has issued less than 40,000 EB2 visas in FY 2006 as mandated by the law, and issued those remaining numbers in EB2(40,000 minus actually issued in EB2) to EB3. In my view, it violates section 203 (b) (2) of the INA. One has to wait till they release statistics for FY 2006, to see how many EB2 visas are issued in that FY.
We know that, section 202 prescribes that the per-country limit for preference immigrants is set at 7% of the total annual family-sponsored and employment-based preference limits, i.e., 25,620. The dependent area limit is set at 2%, or 7,320. This section also explains how to handle unused numbers with respect to country quota.
Even before AC21 law enacted in 2000, there was no "hard" country cap as per INA then. Here is the section of INA before year 2000, describes how to allocate unused visas, if overall/total demand for FB an EB visas are less than supply*.
INA 202 (a) (3)
"Exception if additional visas available. - If because of the application of paragraph (2) with respect to one or more foreign states or dependent areas, the total number of visas available under both subsections (a-Family category) and (b-Employment category) of section 203 for a calendar quarter exceeds the number of qualified immigrants who otherwise may be issued such a visa, paragraph (2) shall not apply to visas made available to such states or areas during the remainder of such calendar quarter".
Therefore, the 7% country cap had always been "soft" till year 2000.
After year 2000, AC21 has completely removed country cap in each employment category, if excess visas are available in each preference categories.
After 2000 (After AC21) the following law was added to INA in the section 202.
INA 202 (a) (5) (A)
EMPLOYMENT-BASED IMMIGRANTS NOT SUBJECT TO PER COUNTRY LIMITATION IF ADDITIONAL VISAS AVAILABLE- If the total number of visas available under paragraph (1), (2), (3), (4), or (5) of section 203(b) for a calendar quarter exceeds the number of qualified immigrants who may otherwise be issued such visas, the visas made available under that paragraph shall be issued without regard to the numerical limitation under paragraph (2) of this subsection during the remainder of the calendar quarter.
As per my simple interpretation of above AC21 rule, DOS should allocate unused visas by AOC – EB2 (All Other Courtiers - countries other than India and China in EB2 category) for the first two months of any calendar quarter to over-subscribed countries (India & China) at the third month of that calendar quarter. They should not allocate to lower Preference category (EB3), if demand is more in higher preference category (EB2) to consume all the visa numbers in that preference category. They should allocate visas to all the documentarily qualified applicants in that (EB2) preference category, irrespective of country of birth. If they followed this rule/law, there may be a considerable movement in cut-off dates for India and China in Dec 2005, Mar, June and Sep of 2006 in EB2 (last month of each calendar quarter in a fiscal year). We have not witnessed such movement in last 2 years. No one knows how DOS is allocating numbers. They may be allocating only 7% visas to India and China in EB2 category very strictly, every month, and allocating unused numbers to EB3 category, by suspending AC21 law as indicated in their Nov 2005 Visa Bulletin. If they do so, it is against the law, at least in my interpretation of AC21 rule that eliminates country quota in EB categories.
DOS can not interpret above AC21 rule that eliminates per country limit applies "totally" to all EB categories put together, not by individual preference categories. I.e. If they say they will issue more than 2,800 visas to EB2- India per year (more than 7% of 40,000), provided overall worldwide demand for EB visas are less than 140,000. If they interpret the law like this, then there is no need for section 202(a) (5) (A) due to AC21 law. The law before AC21 {i.e. section 202 (a) (3)} itself address the elimination of country quota in both FB and EB category*. Then, section 202(a) (5) (A) is a duplicate wording of section 202(a) (3). So, this section of AC21 law becomes a redundant/duplicate law.
Furthermore, if we take a close look of the section 202(a)(5)(A), it explicitly defines each preference categories exempted from country quota if excess visas are available in each category. They used "or" not "and" in the statue. Therefore overall demand will not come into the picture. If DOS interpret like this, there is no meaning of employment "preference" category if they interpret "totally or overall worldwide demand".
The following questions are bombarding my head.
"Is diversity is important that preference categories? In other words, a non-Indian/Chinese restaurant cook (EB3) is more preferred than a National Interest workers holding PhDs (EB2) from India or China?. Is it the intend of the congress when enacting AC21 law in removing per country limitation in EB category? Is it the American Competitiveness in 21st century? If diversity is important, then there is another category "green card lottery" available to all nationals in which Indians and Chinese not eligible to participate.
"My employer hired me not based on citizenship. They hired me based on their requirement for the job and my skills. They do not care, if I am male or female or Indian or Chinese or Iranian or Iraqi or Pakistani or European. I am penalized for just I am Indian not able to adjust/apply LPR even I have priority date in 2003 after a long wait for Labor certification and 140 approvals. However, if I am from other than India and China I would have got GC with in six months even if my PD in late 2006. I do not know how long it will take for me to adjust my status. If a person with a Priority Date 2007 can become LPR immediately in EB2 category even if he is from a state sponsoring terrorism (provided if his background check is cleared). However a person from India having priority date in 2003 can not become LPR and sitting in dark to hope to see the light at the end of tunnel. How fare it is? Is it not the discrimination by country of birth?"
Is my understating of law is right? Are my questions are valid? If so, What one can do in this situation?
* EB and FB categories will not mix in visa number allocation as per my understanding
Thank you for reading this lengthy post.