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At Risk, Debt Arrangement, Guaranteed Redemption: Important Distinctions

7/9/2018

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By: H. Ronald Klasko, Partner of William A. Stock, ABIL Lawyer
Klasko Immigration Law Partners, LLP

We have been counsel in various successful litigations where USCIS had challenged EB-5 petitions either based on an investment not being “at risk,” or based on the allegation that the investment was a “debt arrangement”, or based on a “guaranteed redemption”, or some combination of the three. Often USCIS uses the terms interchangeably as if they all relate to the same concept. They do not.

The purpose of this blog is to distinguish between the three concepts, distinguish between various scenarios in which these issues are raised and distinguish between USCIS policy and our view of the law, which we advocate both to USCIS and in federal court.

DISTINGUISHING BETWEEN THREE CONCEPTS

As mentioned, “at risk”, “debt arrangement” and “guaranteed redemption” are three separate issues. The first issue is whether the investment is a qualifying equity investment or instead a “contribution of capital in exchange for a debt arrangement” 8 CFR 204.6(e) defines whether the contribution of capital qualifies as an investment. If the investment is in return for a debt arrangement, there is no investment; and no other issue needs to be explored. Although USCIS has no standards for what constitutes a debt arrangement, such standards do exist both in tax law and in accounting principles (see below).

If the investment is an equity investment and not a debt arrangement, the next issue is whether the equity investment is “at risk”. This requirement does not exist in the statute but does exist in the I-526 regulations at 8 CFR 204.6(j)(2). Although not defined in any regulation, “at risk” has been defined in Matter of Izummi to require a chance of gain and a risk of loss.

The prohibition against a “guaranteed redemption” does not exist in either the statute or regulations, but rather is found in Matter of Izummi. The prohibition against a guaranteed redemption prohibits an unconditional promise to repay the investor at a fixed price and a fixed maturity date.

When responding to an RFE or an NOID, or when litigating a case in federal court, the first step is to determine which of these legal requirements are the source of USCIS’s concern.

DISTINGUISHING BETWEEN THE RELATIONSHIP BETWEEN THE INVESTOR AND THE NCE AND THE RELATIONSHIP BEWTEEN THE NCE AND THE JCE

The investor must make an equity investment in the new commercial enterprise (NCE), which is “at risk”. Since the investor is investing in the NCE, the issue of guaranteed redemption relates to the redemption by the NCE (the investment entity) of the investor’s interest. It does not relate to the relationship between the NCE and the job creating entity (JCE). A JCE is permitted to guarantee repayment of its loan from the NCE, and USCIS has stated that a third party can also guarantee the JCE’s payment of the loan to the NCE (without violation).

DISTINGUISHING WHETHER A GUARANTEED REPAYMENT IS AT THE OPTION OF THE INVESTOR OR THE INVESTMENT ENTITY

When the investment entity has an option to buy back an investor’s investment, it is called a “call” or “buy” option. Two recent federal court decisions, Chang and Doe, held that a call or buy option is not a provision that impacts the approvability of an EB-5 petition because it is solely an option exercisable by the NCE, may or may not be exercised and provides no rights to the investor. Our firm recently settled a case in federal court involving this issue, resulting in the approval of the plaintiff investors’ EB-5 petitions.

When the investor has an option to have his or investment money returned, that is called a “put” or a “sell” option. Whether such an option is violative of EB-5 law depends on whether it is a guaranteed or mandatory redemption option or whether there are contingencies that may prevent its exercise. Matter of Izummi prohibits a redemption that is effective “regardless of the success or failure of the business.” Arguably, if there is no guaranteed redemption, but rather a redemption that is in actuality contingent on the success or failure of the business, it should not be considered violative of the EB-5 requirements. 

DISTINGUISHING BETWEEN SUSTAINMENT AND SUSTAINMENT AT RISK

As explained above, the “at risk” requirement is an I-526 requirement and is contained only in the I‑526 regulations. It is not an I-829 requirement, and there is no reference to “at risk” in the I-829 regulations.

The most recent version of the USCIS Policy Manual agreed with our position, as advocated in numerous blogs, that the “sustainment” requirement only applies through the 2 years of conditional residence and not during the time that it takes USCIS to adjudicate the I-829 petition. However, the Policy Manual does not yet agree with the position we have advocated that the sustainment requirement during the 2 years of conditional residence does not also require that the investment remain at risk – – only that it be sustained and not returned to the investor. The language of the relevant regulations – –  8 C.F.R. 216.6(a)(4)(iii) and also 8 C.F.R. 216.6(c)(1)(iii) – – clearly requires sustainment for the 2 years of conditional residence but makes no mention whatsoever of a requirement that the investment remain at risk.

DISTINGUISHING BETWEEN “AT RISK” FOR INVESTMENT AND “AT RISK” FOR REDEPLOYMENT

Although one searches in vain for a definition of “at risk” in the regulations, the term is only defined in Matter of Izummi, which defines at risk as requiring a chance of gain or a risk of loss.

In many cases, especially given long quota waits, the sustainment requirement necessitates redeploying the investment money into a different project once it has been used for its original job-creating purpose as set forth in the I-526 business plan. Once the money is redeployed, it must remain at risk (at least through conditional residence). One might presume that the definition of “at risk” for redeployment purpose would mirror the definition applied for purposes of the “investment” requirement, but, according to the USCIS Policy Manual, one might be wrong. The Policy Manual creates many new requirements for an investment to be considered “at risk” in the event of redeployment, which are contained in neither the statute nor the regulations nor any precedent decision and, as such, have no basis in law. For a complete analysis of the “at risk” requirements set out in the USCIS Policy Manual for the redeployed investment, please see [http://www.klaskolaw.com/uncategorized/updated-standards-guidelines-redeployment-eb-5-investment-funds/].

The major requirement in the USCIS Policy Manual is the requirement that the money be “engaged in commerce”, which apparently means more than merely redeploying the money into an investment in which there may gain or loss. In an appropriate case, this may be the subject of litigation unless the USCIS policy is changed before that occurs.

DISTINGUISHING DEBT VERSUS EQUITY
USCIS has provided no definition of the type of “debt arrangement” that is prohibited by 8 C.F.R. 204.6(e). In litigation challenging any finding by USCIS that an apparent equity investment constitutes a “debt arrangement”, we reference three sources that do provide such definitions and distinctions. First, Black’s Law Dictionary states that debt requires an “obligation of a debtor to pay” and the “right of a creditor to receive and enforce payment.” Also, there is a complete body of statutory and case law under the Internal Revenue Code that distinguishes debt from equity. In addition, under generally accepted accounting principles, there are clear lines of demarcation between debt and equity. As a result, when this is an issue, we include an expert opinion from a CPA regarding the treatment of the investment as an equity investment under tax law and accounting principles. Generally, a federal district court will give little to no deference to a USCIS determination that an investment constitutes debt when it is able to cite to no standards and when the record contains expert opinions and citations to court decisions under the tax laws and generally accepted accounting principles.

DISTINGUISHING MATTER OF IZUMMI RELATING TO GUARANTEED REDEMPTIONS

Matter of Izummi provides three separate requirements for an impermissible guaranteed redemption: “an unconditional promise” to repay an investor at a “fixed price” and at a “fixed maturity date.” In parsing any USCIS decision, we focus on proving that any language in the offering documents regarding redemption does not include any of these elements.  However, there is an argument that we have raised in litigation that the language of Izummi only triggers a guaranteed redemption if all three elements are present. For example, an unconditional promise to repay that does not involve a fixed price or a fixed maturity date arguably should not be violative of Izummi. A promise subject to conditions to repay at a fixed price and/or at a fixed maturity date arguably should not be considered to be violative of Izummi. USCIS does not always agree with or understand this, which may necessitate litigation.

DISTINGUISHING MATTER OF IZUMMI FROM REALITY

Matter of Izummi analogizes an investment to a marriage. According to Matter of Izummi, just like a marriage cannot be entered into with the intention of dissolving the marriage, so too an investment cannot be entered into with the intention of liquidating the investment and seeking a redemption. The disconnect of that statement in Izummi from reality is very helpful in educating a federal district court judge regarding USCIS’ expertise to adjudicate investment cases. 


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E-2 Visa Issues for Chinese Clients

4/25/2018

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By: H. Ronald Klasko, ABIL Lawyer
​Klasko Immigration Law Partners, LLP Blog

My colleague, Oliver Yang, has been in China the last few weeks; and I am preparing for my next trip to China in May. The main focus of our meetings in China is to confer with agents and their clients interested in applying for E-2 visas based on acquisition of citizenship in Grenada.

Based upon our experience with our Chinese clients, the following are some of the questions that we are most frequently asked, together with our responses:
 
1. How much money do I have to invest to get an E-2 visa?
Although we have had success with E-2 visa applications based upon investments in the range of $100,000, we generally prefer to see investments in the $200,000 + range if possible. There are two reasons for this. One reason is that often the chances for the business being profitable increase as the investment amount increases. Also, although no exact amount of employees is required, a larger investment often is accompanied by an increase in the number of employees, which is helpful for the E-2 visa application process. Ultimately, the key issue is presenting a credible case that the amount of the investment is sufficient for the type of business in which the investment made to be successful.
 
2. Does the entire amount of the investment have to be made at the time of filing the visa application?
There are different answers to this question depending upon whether the application is based upon an investment in an existing business or in a new business. If the investment is being used to acquire part or all of an existing business, it is usually sufficient if the investment is deposited in an irrevocable escrow with the investment amount released from escrow upon approval of the E-2 visa application. If the investment is made in a new business, it is best if at least some of the investment has already been used to start up operations of the business. The remainder of the investment may be in irrevocable escrow. It is acceptable if the investment amount is refundable in the event that the E-2 visa application is not approved (some franchise agreements now include this provision). There is a difference among U.S. consulates around the world regarding the necessity that a new business actually has started operations, so it is often safer if the business is actually operating.
 
3. Does the Chinese identity of the E-2 visa applicant affect approvability?
In our experience, the answer to this is no. We have great experience with many E-2 visa applicants around the world who are dual citizens applying based on a second country citizenship. In the case of China, we have not seen any examples of applications for E-2 visas by citizens of Grenada (who also have Chinese passports) being denied for that reason. The U.S. recognizes dual citizenship and allows E-2 visa applications by citizens of a treaty country who are also citizens and residents of a non-treaty country.
 
4. Is it possible to convert an E-2 visa to a green card?
This is very possible, in most cases through the direct EB-5 process. The amount of the E-2 investment can be used as part of the direct EB-5 investment. In most cases, the direct EB-5 investment amount must be at least $500,000. If, for example, an E-2 visa applicant had already invested $250,000 for the E-2 visa, the direct EB-5 application could be based upon another $250,000 investment. Even though it is expected that the EB-5 investment amount is likely to increase in the coming months or years, the investor will likely be grandfathered at the $500,000 investment amount as long as the EB-5 petition is filed before the increase in investment amount becomes law. There are many issues involved in converting from E-2 to EB-5; we have extensive experience in dealing with these issues. It is best if we deal with these issues at the time of the E-2 visa application in order to prepare in advance.
 
5. Is it possible for two Chinese citizens to apply for E-2 visas in the same business?
Yes, it is possible, but it is more difficult. In most cases, when we are doing this, we have one of the applicants (who is a Grenada citizen) apply as the investor and the other applicant (who may or may not be a Grenada citizen) apply as the manager of the treaty investor company. If only one of the applicants is a citizen of Grenada, that applicant must own at least 50% of the business. It is best if that applicant invests most or all of the total investment.
 
6. What are the options for the child of an E-2 investor when the child is turning 21?
One option is for the child to change status to F-1, which can be done in the U.S. The other option is for the child to make his or her own investment and apply for his or her own E-2 visa.
 
7. Is it possible to obtain an E-2 visa if an EB-5 petition has already been filed or if some other permanent residence application has been filed?
It is possible, but there could be issues. A key issue is whether the EB-5 petition (or other immigrant petition) indicated that the applicant would be obtaining his or her immigrant visa at a U.S. consulate outside of the U.S. Whenever we file an EB-5 petition, we indicate this on the I-526 form. The reason that this is important is that the U.S. consular officer has to be satisfied that the applicant intends to leave the U.S. and apply for an immigrant visa (green card), if at all, outside of the U.S. We are very careful in preparing our clients for the consular interview on this issue, because the response to the consul on this issue is very important. Our success rate in these types of applications has been very high.
 
8. Is it necessary to apply for the E-2 visa at the U.S. Consulate in Barbados?
Most applications by Chinese applicants have been filed at the U.S. Consulate in Barbados, and the success rate has been high. However, it is not necessary to apply there. The application can be filed at the U.S. Consulate in Guangzhou (and has been done successfully), at the U.S. Consulate in any country where the applicant has a residence (such as Hong Kong or Singapore, for example) or at a third country consulate.  We have been working with a variety of U.S. Consulates around the world which accept third country E-2 visa applications. Part of our service to our E-2 visa clients is choosing the best consulate for the purposes of the individual client and then preparing the client for the issues that may arise at that consulate.
 
9. What problems have arisen for Chinese citizens applying for E-2 visas based on newly acquired Grenada citizenship?
Although, to our knowledge, a high percentage of these applications have been successful, the biggest issue that we have seen relates to Chinese citizens who acquire Grenada citizenship based on the donation option (rather than the acquisition of property option) and who do not establish any nexus (connection) with Grenada. Although this is not a legal requirement, it has been a requirement imposed by some U.S. Consulates, including the U.S. Consulate in Barbados. For our clients choosing the donation option, we suggest that the client at least have visited Barbados and have an address in Barbados (for example, based upon a lease of property for one year). It is possible, and best, for the client to obtain a Grenada residence card at the same time as acquiring citizenship.
 
10. Is it necessary for the Chinese/Grenadian E-2 visa applicant to actively manage the E-2 business?
It is possible, but not necessary, for the E-2 visa holder to actively manage the business. If he or she will not actively manage the business, we will want to make certain that the E-2 visa application package makes clear that the E-2 visa applicant will be in a position to “direct” the manager and participate in the successful development of the business. This is a key focus in our vetting process for E-2 investment vehicles that we present as options to our E-2 visa applicants when requested.
 
11. Is it possible for the E-2 visa business to have been established prior to acquisition of Grenada citizenship?
This is possible, although we need to review the documents carefully. There is no problem if the business has been in existence for some period of time. However, issues may arise if we are relying upon investments made before acquisition of Grenada citizenship. These issues can usually be handled successfully with advance planning.
 
12. Have Chinese applicants who obtain Grenada citizenship been successful in applying for E-2 visas?
Yes, many applicants have been successful. The issues for Chinese/Grenadian E-2 visa applicants are the same as the issues that we have been working with for clients applying for E-2 visas from over 80 countries around the world. These are not new issues, and we have significant experience in dealing with these issues worldwide. The only issues that we have seen that specifically involve Chinese nationals applying for E-2 visas after recent acquisition of Grenada citizenship involve the issue of lack of “nexus” with Grenada discussed in response to a previous question above.

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EB-5: The Best (and Only?) Option for Many Indian Nationals

4/19/2018

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By: H. Ronald Klasko, ABIL Lawyer
​Klasko Immigration Law Partners, LLP Blog

It is not easy being a citizen of India who wants to live and work in the U.S. and become a legal permanent resident and possibly a citizen of the U.S. We know – – we represent many of them.

Our Indian clients don’t just face a “double whammy”. They face a multi-front coordinated series of hurdles and roadblocks.

Let’s set out the problem, and then we’ll provide what, for many, is the only solution.

The present Administration in Washington has been no friend to Indian citizens. Here’s why:

  • Upon completion of studies, our Indian client is often eligible for practical training (“OPT”). The present Administration is actively attempting to restrict OPT, which has been the subject of federal court litigation.
  • If our Indian client wants to work in the U.S. after her student status expires, in most cases she will need to be sponsored for an H-1B visa. Unfortunately, that requires entering the H-1B lottery with about a 1 in 4 chance of being selected in the lottery unless she has obtained a master’s or higher degree in the U.S. (the chances go up to about 3 in 4 if she does have such a degree).
  • If our Indian client is lucky enough to have his petition selected in the lottery, the chances of having the H-1B petition approved have been significantly reduced by a combination of 3 separate new restrictive adjudication policies of USCIS relating to H-1B adjudications, especially focused on occupations which predominantly attract Indian nationals. These new interpretations include redefining an H-1B “specialty occupation” to preclude many IT and other positions that may have more than one possible major field of study for entry into the occupation. Another restrictive interpretation has produced denials of H-1B petitions that pay level 1 wages. A third restrictive new policy is to require H-1B employers to identify in advance the specific itinerary of all work locations at which the employee will work during the course of the 3-year H-1B approval period. This is often not possible.
  • Even if our Indian client is able to navigate through these new restrictions, there is no confidence that she will be able to get an extension of her H-1B status. Prior to the implementation of a new policy, USCIS always gave deference to its approval of an H-1B petition when it came time to filing an extension. Almost unfathomably, USCIS now states it will give no deference to its previous approval. As a result, any Indian national in the U.S. in H-1B status (and any employer of such an individual) has no assurance that she will be able to remain in the job going forward.
  • Assuming that our Indian client is lucky enough to have an employer that is willing to sponsor him for a green card through the PERM labor certification process, his application will go into the EB-2 or EB-3 quota. Although no one knows for sure how long the wait will be in those categories, a conservative estimate is in excess of 12 years. During those 12 years, if he leaves his employer, or even if he gets promoted to a new position, he would have to start the process all over again.
  • The silver lining that enables an Indian citizen to obtain H-1B extensions during the entire quota waiting period was provided in a law entitled AC21. There are rumblings that the present Administration is attempting to chip away at, or repeal, that legislation.
  • Until April 2018, the confluence of all of the above hurdles have led us to advise our Indian clients that the only way out is EB-1 (extraordinary ability) or EB-5 (investment). However, starting in April 2018, the Indian EB-1 quota is backlogged to 2012. While that cutoff date may move forward in the coming months, it is likely that the waiting list in the EB-1 category for Indian nationals will not be short lived.
That leaves one option for the Indian national seeking to obtain permanent resident status in the reasonably near future. That option is EB-5. While the minimum $500,000 investment amount means it is certainly not an option for all of our Indian clients, it is an option for some – – either through their own means or through gifts – – and it is an option that allows the Indian citizen to have flexibility in his employment, including the ability to be promoted or to switch employers without affecting her green card application.

Actually, the time is especially propitious for considering the EB-5 process for two reasons. The $500,000 investment amount has been in place since the program started in 1990. There is a good chance that it will be increased in the near future. An application filed before the increase will grandfather the Indian investor at the lower amount.

Secondly, there is no quota waiting list for Indian EB-5 investors… yet. The increasing demand for EB-5 in India will likely create a quota backlog in future years. Getting in line now may save a multi-year wait.

I will mention one other option, which may have a lower investment amount but does not lead to a green card. It does, however, lead to the ability to remain in the U.S., perhaps indefinitely. That is the option of obtaining citizenship by investment in Grenada (minimum investment amount of $150,000) and obtaining an E-2 treaty investor visa in the U.S. (no minimum investment amount, but many E-2 visas have been approved at the $100,000 to $200,000 investment level). Any reader interested in this option can refer to any of the numerous blogs that I have published on this subject.

So, while the immigration paths are being systematically blocked for many citizens of India who seek a long-term future in the U.S., for some, there is still a light at the end of the tunnel.


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EB-5 Project Restructuring and Priority Date Retention

4/13/2018

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By: Joseph Barnett, Partner of Bernard P. Wolfsdorf, ABIL Lawyer
​Wolfsdorf Immigration Blog

​EB-5 success stories often occur but are rarely publicized. On the other hand, news about “failing” EB-5 projects, or the involvement of the U.S. Securities and Exchange Commission (“SEC”), or lawsuits brought by EB-5 investors against project developers or Regional Centers attract readership and are aplenty.

Of course, the definition of a “failing” EB-5 project is subject to interpretation. Ideally, what most EB-5 investors seek is full green card status for the principal applicant and derivative beneficiaries, return of the principal investment, and a return (usually nominal) on that investment.

But if the principal goal of the EB-5 investment of permanent residency within the U.S., then is a project that creates sufficient jobs for I-829 approval a failure, even if the EB-5 investment is not returned? Is it in the interest of EB-5 investors if a new commercial enterprise agrees to subordinate its position, if it allows a senior lender to provide a job creating entity the necessary financing to complete construction on an EB-5 project? Here, the goal of obtaining full green card status may conflict with an EB-5 investor’s financial considerations. Or what if EB-5 investors are willing to input additional capital – and obtain equity in the EB-5 project – to prevent a receiver from selling undeveloped or partially developed land, if deemed by the receiver to be in the best interest of the receivership estate? In this case, a “white knight” in the form of an EB-5 investor group is willing to go the distance to save the EB-5 project from development delays and financial insolvency, with the goal of saving the immigration benefit as well.

“EB-5 Project Restructuring” is a general way of describing the modification of the corporate or financial structure of an EB-5 project, as indicated in an investor’s Form I-526 petition, during the EB-5 process to achieve an EB-5 investor’s immigration goals. It can occur because a job creating entity is underperforming and severely behind schedule, because market forces have increased projects costs or demand for goods and services, because job creation won’t support I-829 petition approval, or because of a federal receivership appointment after an SEC investigation, among other reasons.

Note, EB-5 investments are statutorily required to be “at risk,” and USCIS has previously indicated – though only in a draft policy guidance – that it’s possible to obtain full green card status even if the job creating entity is sorting through a bankruptcy proceeding.

EB-5 Project Restructuring can begin – and will likely become even more common – before conditional permanent residency is achieved due to incredibly long EB-5 visa backlogs for Chinese investors, but must be carefully handled to prevent the issuance of a Notice of Intent to Revoke (“NOIR”) a Form I-526 approval due to “material changes.” Moreover, because most EB-5 projects get a portion of capital from Chinese investors, it’s possible they have strength in numbers in voting rights to force a new commercial enterprise to act in a particular manner to achieve their respective immigration goals. EB-5 Project Restructuring will also become more common as EB-5 loans become due after job creation has occurred to ensure compliance with USCIS’ June 2017 policy guidance on redeployment.

Finally, USCIS’ proposed regulations include relief to allow an EB-5 immigrant petitioner to use the priority date of an approved EB-5 immigrant petition for a subsequently filed EB-5 immigrant petition. The stated reasons for this regulatory change relate to similar concerns as “EB-5 Project Restructuring”: (1) to address situations in which petitioners may become ineligible through circumstances beyond their control (e.g., the termination of a regional center) as they wait for their EB-5 visa priority date to become current; and (2) to provide investors with greater flexibility to deal with changes to business conditions. If this proposal becomes finalized, there will be even more opportunities for EB-5 investors to switch to better EB-5 projects to support green card eligibility.

While increased minimum investment amounts and long visa backlogs may lower new demand, there will be no slowdown in assisting current EB-5 investors to achieve their immigration goals. Regional Centers, project developers, migration agents, and other professionals in the EB-5 industry must become educated on how to do this properly, in a corporate, immigration, securities, and communications perspective.

I will be speaking on this cutting-edge topic during a panel titled “Redeployment and Project Restructuring: How to Get It Right” on Tuesday, April 24, 2018 at IIUSA’s 11th Annual EB-5 Advocacy Conference in Washington D.C.
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Vietnam EB-5 Retrogression Now a Reality: 5 Things to Know

4/11/2018

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By: Bernard P. Wolfsdorf, ABIL Lawyer; Senior Associate Robert J. Blanco and Partner Joseph Barnett
​
Wolfsdorf Immigration Blog

As predicted in our previous blog, Vietnam retrogression has occurred in the May 2018 Visa Bulletin, and now, only Vietnamese EB-5 applicants who filed before July 22, 2014 will be eligible to receive an EB-5 immigrant visa.   Here are five things to know about this new development:
1.  Update in Visa Bulletin. The May 2018 Visa Bulletin indicates:
​
Continued heavy applicant demand will result in the Vietnam Employment Fifth preference (EB-5) category reaching the per-country annual limit during April.  As a result it has been necessary to impose a final action date on this preference for the month of May to control number use for the remainder of the fiscal year.   It can be expected that the Vietnam Employment Fifth preference category will remain subject to a final action date for the foreseeable future.
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2.  New Allotment of Visas in October 2018. Starting October 1, 2018, the beginning of Fiscal Year 2019, a new allocation of EB-5 visas will be provided.  The critical question is what the Final Action Date will be.  We expect it to be to be sometime in 2015 or 2016, which would result in a two to three year wait time for Vietnamese EB-5 cases.

3.  How “Rest of World” Filings Affect Vietnamese Waiting Line. When two countries have a Final Action Date for the same visa category, U.S. law requires any unused visa numbers to be allocated in order of priority date, regardless of country of origin.  Because there are a significant number of Chinese EB-5 visa applicants in front of more recent Vietnamese I-526 applicants, any additional filings by those from “rest of world” that reduces the number of visas available to Chinese will also increase the waiting line for Vietnamese.

4.  Should I-526s be Filed? With new regulations likely to be finalized soon, Vietnamese applicants are strongly urged to file now to secure their place in the waiting line.  Otherwise, they may have to pay the increased investment amount of over $1 million, and endure an even longer waiting line.

​5.  What Country is Next? The next big question is which country will be next –  India, Korea and Brazil?  All appear to be potential candidates for the establishment of a Final Action Date after their 696-annual visa quota is used (about 250 families each).  See our past blogs’ warning.
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Regulations v. Legislation – On the Brink of EB-5 Reform

4/9/2018

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By: Bernard P. Wolfsdorf, ABIL Lawyer and Partner Joseph Barnett
Wolfsdorf Immigration Blog


​Chinese Translation: 行政新规和立法改革 – EB-5 变革在即
Vietnamese Translation: Quy định và Pháp luật – Trên đường cải cách EB-5
Korean Translation: 이민규정 vs. 개정법안 – 눈 앞에 닥친 EB-5 투자이민법 개정


Recent tweets from U.S. Citizenship and Immigration Services (“USCIS”) indicate that administrative changes to the EB-5 Program are a priority in Fiscal Year 2018.  It now appears almost certain the proposed regulations from over one year ago will be finalized very soon.

EB-5 visas are intended to provide lawful permanent residence to foreign nationals who promote economic growth in the United States. We are working to reform and modernize the program and have proposed a rule to better reflect Congressional intent. https://t.co/NDUvSlAuVe

— USCIS (@USCIS) March 23, 2018

Our proposed rule would amend how targeted employment areas are designated to ensure that the reduced investment threshold is reserved for areas intended by Congress. https://t.co/NDUvSlAuVe

— USCIS (@USCIS) March 23, 2018

Our proposed EB-5 rule would increase investment levels and end gerrymandering. The changes would help true high unemployment and rural areas. https://t.co/NDUvSlAuVe

— USCIS (@USCIS) March 23, 2018
​The new USCIS Director Lee Francis Cissna (who previously was detailed to Senator Chuck Grassley’s staff on the Senate Judiciary Committee), has made it clear he wants new EB-5 regulations soon. Senator Grassley (R-IA) has attempted to reform the EB-5 Program with legislative changes, without success.  Last month, after legislative proposals to reform the EB-5 Program failed to reach consensus, Senator Grassley expressed his frustration at the “moneyed interests” proposals that blocked his reforms.

WAKE UP HOUSE&SENATE LEADER don’t extend EB5 in Omni Goodlatte and I worked compromise BUT Manhattan real estate moguls reject/ So r u yr after yr going to melt in front of these moneyed interests??

— ChuckGrassley (@ChuckGrassley) March 16, 2018
Last week, Senator Grassley sent a letter to the U.S. Department of Homeland Security (“DHS”) leadership, urging DHS to implement the regulations “without further delay.” Senator Grassley wrote:
​We are writing to urge your Department to take immediate steps to finalize proposed regulations published in the Federal Register on January 13, 2017, entitled “EB-5 Immigrant Investor Program Modernization.”1 As the Chairmen and a former Chairman of the committees with jurisdiction over the fifth preference employment-based immigrant visa program (the “EB-5 program”), we believe these regulations advance the national interest and should be implemented without further delay.
​

EB-5 reform will now almost certainly come by regulations (Regs), not legislation (Legs).  This distinction is critical, as regulatory reforms may cause some adversely affected parties to litigate against the regulations and seek judicial review under the Administrative Procedures Act.
​
The following are three important EB-5 reforms included in the “EB-5 Immigrant Investor Program Modernization” proposal:

1.  Increased Minimum Investment Amount.  DHS proposes to increase the minimum investment amount from $500,000 to $1.35 million for investments in a Targeted Employment Area (“TEA”) or from $1M to $1.8M for investments not located in a TEA.  In addition, DHS is proposing to make regular Consumer Price Index-based adjustments in the minimum investment amount every 5 years.

Our Take: We believe an increase in the minimum investment level may be inevitable after 28 years with no change, however we are hopeful that DHS will not raise the amount this much suddenly as it may stifle the program. We need gradual staged price increases to give the market time to adapt.  On the other hand, an increase in the minimum investment amount may help shorten the waiting line for those already stuck, mainly Chinese investors. This will reduce the waiting line by ensuring unused visa can continue to be used by China. Rumor is the final amount will be something more moderate than that proposed.


2.  TEA Reforms. DHS proposes to eliminate state and local designation of high unemployment areas and to prevent TEA “gerrymandering” by only looking to the actual census tract or “directly adjacent” census tracts in which the new commercial enterprise is principally doing business.

Our Take: This proposal could dramatically shift where EB-5 capital will be used, as investors would likely prefer to pay less for the same immigration benefit, and the reforms will limit TEA designations.  We expect APA lawsuits on this proposal, although it does appear that 8 U.S.C. § 1153(b)(5) provides significant authority to DHS, through the U.S. Attorney General, to prescribe regulations in this regard.


3.  Priority Date Retention. DHS proposes to allow an EB-5 immigrant petitioner to use the priority date of an approved EB-5 immigrant petition for a subsequently filed EB-5 immigrant petition for which the petitioner qualifies.

Our Take: This is particularly important for applicants mainly from China who are waiting in the lengthy visa waiting line, as it provides some relief to those who may become ineligible for an EB-5 visa through circumstances beyond their control (e.g., the termination of a regional center or an underperforming or failing investment project). In the past manty could simply refile but now they must wait years for their EB-5 visa priority date to become current. Sadly, this does not appear to go far enough to protect derivative child beneficiaries, who could “age out” because of the long waiting times, but we can be hopeful. Chinese and Vietnamese applicants who may age-out should consider filing as principal applicants.

​Hopefully, Congress will overcome its dysfunctional bi-partisanship and fix the EB-5 program that has generated at least $20 billion in investment in the last 3-4 years. Since EB-5 is often about 1/3 of the capital; stack, it is estimated that over $50 billion worth of projects have got off the ground because of EB-5. This has created thousands of jobs and continues to be a viable avenue for high net worth immigrants, that massively benefits job creation and the U.S. economy.
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Five Things You Need to Know About EB-5 Visa Backlog

3/27/2018

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By: Bernard P. Wolfsdorf, ABIL Lawyer and Partner Joseph Barnett
Wolfsdorf Immigration Blog

There’s little doubt that long visa backlogs affect the demand of potential EB-5 investors and the supply of EB-5 capital to U.S. businesses.  The defeated “EB-5 Reform Act” didn’t address this important issue, which should be central to any meaningful changes to the EB-5 program, though they don’t appear in proposed regulatory reforms either.  Failure to provide relief threatens the continued viability of the EB-5 program.  Here are five things to know about the EB-5 visa backlogs.

1. Visa Bulletin Updates Every Month. Every month, the U.S. Department of State (“DOS”) releases a Visa Bulletin that indicates when immigrant visa applicants, based on the priority date listed in a Form I-526 approval notice, should be notified to assemble and submit required documentation to the National Visa Center. The Visa Bulletin for each month is usually released during the second week of the preceding month.

NOTE:    Unless the EB-5 Regional Center program continues to be authorized by Congress – it is currently authorized through September 30, 2018 – DOS is unable to issue immigrant visas to EB-5 investors who invested through regional centers, which is why the April 2018 Visa Bulletin indicates “unavailable” for the I5 and R5 categories.  However, this visa bulletin also states: “If there is legislative action extending them for FY-2018, the final action dates would immediately become “Current” for April for all countries except China-mainland born, which would be subject to a July 22, 2014 date.”

2. EB-5 Visa Backlog for Chinese Investors. We’ve written extensively on this, including the causes and some solutions.  The April 2018 Visa Bulletin indicates that only China-mainland born nationals who filed a Form I-526 before July 22, 2014 (the current “Final Action Date”) may move forward with the immigrant visa process.  This date – July 22, 2014 – has been the Final Action Date since October 2017.  For the thousands of China-mainland born nationals who filed after this date, keeping up with the monthly Visa Bulletin is critical.

Perhaps most troubling – and least understood – is that the Chinese Student Protection Act of 1992 reduces the number of EB-5 visas allocated to China-mainland born nationals by 700.  In effect, because a “per-country” limitation has been imposed for Chinese EB-5, this reduces the number of visas allocated to China-mainland born nationals at the beginning of each fiscal year to -4.  Only additional EB-5 visas unused by other countries in each fiscal year allow DOS to issue immigrant visas to EB-5 investors and their derivative beneficiaries.  As EB-5 from the rest of the world (“ROW”) grows, the number of immigrant visas issued to Chinese EB-5 families will decrease.

3. EB-5 Visa Backlog for Vietnamese Investors. Earlier this month, the U.S. Consulate in Ho Chi Minh City, Vietnam caused a small scare when it reported it would stop issuing immigrant visas to EB-5 investors until the Regional Center program was extended; for the reason stated in #1 above, this was expected.  The bigger issue is that demand for EB-5 in Vietnam has become so large that a Final Action Date will soon be imposed.  In January 2018, we blogged about this possibility, and the April 2018 Visa Bulletin confirms: “The oversubscription of this category will definitely occur for May.”  We anticipate this Final Action Date in May 2018 to be the same as it is for China – July 22, 2014.   In October 2018, when a new allotment of EB-5 visas are available, a new Final Action Date will be imposed, which we anticipate being at the end of 2015.  We should be hearing more from DOS on this in August 2018.

4.Backlogs Between Countries and Priority Dates. When Final Action Dates have been imposed on multiple countries (e.g., China and Vietnam), INA § 202 requires any unused visa numbers to be allocated in order of priority date, regardless of country of origin.  This means that DOS must first “clear out” the Chinese EB-5 backlog and issue thousands of immigrant visas to China-mainland EB-5 investors who filed Form I-526 petitions in the second half of 2014 and prior to September 30, 2015 prior to issuing immigrant visas to Vietnamese investors who filed Form I-526 petitions more recently.  The same would be true for nationals of any other country where a Final Action Date for the EB-5 category is imposed.

5. EB-5 Reforms. With the EB-5 Regional Center program now authorized to September 30, 2018, it is an appropriate time for stakeholders to educate Congress about this serious problem and to push for solutions to clear the EB-5 visa backlog and maintain demand for a viable and vibrant EB-5 Program.   It is time to bring the EB-5 Program into the 21st century and create reasonable immigration levels for EB-5 investors in a consistent, predictable manner that match our country’s immigration and economic priorities.

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Impact of Marriage (and Divorce) during the EB-5 Process

3/26/2018

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By: Bernard P. Wolfsdorf, ABIL Lawyer and Associates Eva Yang and Robert Blanco
Wolfsdorf Immigration Blog

​
EB-5 attorneys mainly deal with issues such as job creation, source of funds, financing, franchising, etc.  Once in a while, we get phone calls from clients of a more personal nature — “Hey, I’m getting married very soon.” (Congratulations.) “Hello, I’m considering divorcing.” (Ah, sorry to hear that.)

These events such as marriage or divorce can significantly impact your case. Since the EB-5 process is often a long journey, these questions seem to be coming up more often.

1. Three Stages of EB-5

The EB-5 process can be divided into three stages: 1) The I-526 has an estimated adjudication time of 25 to 32.5 months; Consular Processing/Adjustment of Status is 7 to 12 months; and the I-829 removal of conditions is 23 to 30 months.  Even without per country backlogs, the time spent on the adjudication and the two years of conditional permanent residency can easily go beyond 7 years (and a lot longer if the investor was born in Mainland China because of the waiting line).

Sadly some marriages do not survive the seven-year itch. Instead of asking “what if” questions in various hypothetical stages, it’s best to understand the important dates that matter.

2. Milestone dates that truly matter

The most critical day is when the principal EB-5 investor actually gets his/her green card.  If the investor goes through consular processing to acquire a green card, it is the date he/she is admitted to the U.S. as an immigrant. If the investor files a Form I-485 application to adjust his/her non-immigrant status to permanent resident status in the U.S., it is the date that the I-485 is approved. This date is printed on the green card and states, “resident since.”

If the marriage existed prior to this important date, the spouse automatically qualifies as a derivative dependent. The same applies to a child born of a marriage that existed before this date. No separate family-based petition is needed for such a spouse and children.

3. Accompanying or Following to Join

The qualified derivative dependents may accompany the investor to enter the U.S. at the same time, or within the validity of the immigrant visa. Afterwards, the qualified derivative dependents may “follow to join” the investor.

There is no time limitation for “follow to join” derivatives unless the child is born abroad. In that case, the child must return with the permanent parents within two years of the investor’s first entry as immigrant. If the investor has an approved I-829 by then, the derivatives can acquire full lawful permanent resident status without going through the conditional residence period.

4. Caution with Marriage Fraud Issue

Although the issue of marriage fraud comes up more in marriage-based petitions, EB-5 applicants also must prove the marriage is in good faith. This is especially true when the marriage is close to the date that the investor becomes a permanent resident. For example, the marriage occurs after the investor has already acquired an immigrant visa but before the investor has entered the U.S. or “landed” or if the marriage occurs when the investor‘s I-485 petition is still pending. In these cases, it is important to demonstrate the bona fide nature of the relationship.

The other side of this issue is divorce after the spouse has already acquired an immigrant visa stamp, but before the spouse has entered the U.S. as an immigrant; or the divorce occurs when the I-485 applications are pending. Note, the derivative spouse can only acquire immigrant status based on the existence of marital relationship to the principal investor. Here, divorce will disqualify the spouse from becoming a permanent resident.

5. Divorce After the Derivative Spouse has become Lawful Permanent Resident

Lastly, if the spouse has become a conditional permanent resident, but the marriage ended before the I-829 removal of condition, there is much less concern. The spouse may still be included in the investor’s I-829 petition or may file a separate petition. The same applies to the children who have reached the age of twenty-one or who have married during the period of conditional permanent residence.

The unhappy spouse might still want to dissolve the marriage in an amicable way so he/she will not have too much trouble in obtaining the necessary documentation for the I-829. Moreover, even though the spouse can file a separate petition, such petitions are not adjudicated independently from the principal investor’s I-829 petition. The investor does need to file an approvable I-829 so the dependents can remove their conditions successfully.  Should the principal investor not have his/her conditions removed, the derivative spouse and children would be unable to do so either.


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EB-5 Regional Center Program Expected to be Extended to September 30, 2018

3/22/2018

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By: Wolfsdorf Rosenthal LLP, Law Firm of Bernard P. Wolfsdorf, ABIL Lawyer
​Wolfsdorf Rosenthal Immigration Blog

​Wolfsdorf Rosenthal LLP is pleased to report that an extension of the EB-5 Regional Center Program to September 30, 2018 has been included in in the omnibus appropriations legislation which is expected to be signed into law by President Trump this week.
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EB-5 Program to Be Extended to September 30, 2018 – Regulations to Increase Investment Amount Likely Meanwhile USCIS Approves Minors as Principal EB-5 Investors

3/20/2018

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By: Wolfsdorf Rosenthal LLP, Law Firm of Bernard P. Wolfsdorf, ABIL Lawyer
​Wolfsdorf Rosenthal Immigration Blog

​Invest in the USA (“IIUSA), the national EB-5 Regional Center trade organization, announced today that the EB-5 Immigrant Investor Visa and Regional Center Program Comprehensive Reform Act (the “EB-5 Reform Act”) will not be included in the omnibus appropriations legislation this week. The legislation does however, include an extension of the current EB-5 Regional Center Program through September 30, 2018 with no changes in the minimum investment amount.

Wolfsdorf Rosenthal LLP is a strong proponent for reform and predictability to the EB-5 Regional Center Program, but only if it provides a fair deal to current EB-5 investors who are waiting their turn to immigrate. We also support future reform attempts which include meaningful provisions to increase the number of immigrant visas to EB-5 investors and reduce the backlog for Chinese and Vietnamese investors (and possibly in the future, for Indian and South Korean investors too) who are presently subject to the 7% per country allocation of only 696 visas per year, or 58 visas per month limitation for each country.

In our prior blog making predictions about the EB-5 program we stated: “Most likely we will get another short Continuing Resolution extension, followed by regulations designed to reform the program, or new legislation, or possibly even both.”

This appears to be accurate with a likely extension to September 30, 2018, and likely regulations in the next few months with a chance of legislation also.

The good news from USCIS that affects applicants for EB-5 from China, Vietnam and possibly other countries that may be backlogged in the next 1-2 years is there appears to be an option for relief to parents with children who would “age out” as derivative beneficiaries.

The USCIS has begun to approve the Form I-526 petitions of principal applicants who were minors at the time of signing the relevant EB-5 investment agreements. These cases have to be structured in a way to ensure they conform to USCIS guidelines for minors.

Here are four things to know about this important update.
1.  Significance of Approvals for Chinese Investors. By allowing Chinese minors to be the principal EB-5 applicant, the USCIS has opened the door for more opportunities to invest in U.S. companies and create jobs for qualifying U.S. workers through the EB-5 Program. The significance of these Form I-526 approvals cannot be understated. The USCIS Ombudsman estimated in its 2017 Annual Report that an EB-5 investor from China may need to wait 10 years to obtain a visa to enter the U.S. after making the investment in a U.S. company, though reform to the EB-5 Program can modify this. For many Chinese nationals, the purpose of EB-5 investment is to provide their children with educational opportunities in the U.S. that are not available in China. While we are hopeful Congress may fix this, the long EB-5 visa backlog could prevent some derivative children from obtaining an immigrant visa. This is because a derivative child must obtain a green card before turning 21 years of age. There is likelihood that many of these children will “age-out” and will not be issued green cards. The Child Status Protection Act (“CSPA”) only allows a derivative child to subtract the time the immigrant visa petition (Form I-526) was pending from his or her age, but this cannot be done until a visa is available based on the Filing Date. Wolfsdorf Rosenthal has now had approvals for people age 15 at the time of filing but the legal theory for this success applies equally to children even younger at the time of filing. USCIS’ approval of these cases will increase demand for EB-5 investments in China where the minor is filing as the principal applicant.

2.  What does USCIS Question? USCIS is questioning whether a minor may file as the principal EB-5 applicant, as opposed to being listed as a derivative beneficiary on a parent’s application. USCIS has previously confirmed that there is no minimum age requirement in the EB-5 regulations and that a minor principal applicant can sign the Form I-526 without a parent’s or guardian’s signature required[1]. USCIS has publicly stated that a minor must show adequate legal capacity to enter into contracts such that the investment contract is irrevocable and thus a “committed investment” within the meaning of regulations. USCIS has issued Requests for Evidence (“RFEs”) to minor petitioners, questioning whether the minor’s age renders the contract unenforceable (and thus, the capital not “at risk”) due to the availability of a “guaranteed return.” USCIS’ wants to make sure the minor cannot repudiate the investment and avoid liability under the relevant EB-5 investment agreements. The RFEs invite minors to submit additional evidence to persuasively argue compliance under their facts and under the applicable law.

3.  Uniform Transfer to Minors Act. USCIS has approved Form I-526 petitions in which a minor’s parent, acting as a custodian for the minor under a state’s Uniform Transfers to Minors Act (“UTMA”), transfers funds to the new commercial enterprise and signs the relevant EB-5 investment agreements on behalf of the minor. The custodial relationship between the parent and minor is created when the parent signs the subscription agreement and other relevant investment agreements using a form mandated by the state UTMA, which for a security is designated as “_________ (name of parent) as custodian for _________________ (name of minor) under the _____________ (name of state) Uniform Transfers to Minors” During the period of custodianship, the parent acts as a fiduciary for, and has control over, the investment in the new commercial enterprise, but the actual title in (ownership of) the investment is irrevocably vested in the minor. By using the correct UTMA language when signing the applicable investment contracts, the parent creates a binding, non-voidable commitment to investment on behalf of the minor that is enforceable under applicable state laws of the United States.

4.  Minors Traveling to or Living in the United States Without Their Parents. Despite the like waiting line for China-born EB-5 applicants, USCIS may still have concerns with minor EB-5 investors travelling alone to live in the United States without their parents. The minors will likely be over 18 by the time they are lawful permanent residents but in the interim, the waiting line issue could be resolved sooner resulting in the child principal becoming eligible eve earlier. The U.S. Customs and Border Protection (“CBP”) generally requires notarized written consent letter from both the minor’s parents. The parents may also appoint a U.S. resident or citizen as legal guardian for the minor when he/she receives the permanent residence.

​USCIS’ acceptance that a minor may file as the principal EB-5 applicant is a huge relief to current and future investors. It is important that sound legal arguments responding to RFEs specific questions are used. Obtaining independent legal opinions from respected U.S. and Chinese contract and securities attorneys are essential in convincing USCIS of the legal basis behind contractual capacity, formation, and enforceability.
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