[Federal Register Volume 60, Number 157 (Tuesday, August 15, 1995)]
[Rules and Regulations]
[Pages 42034-42037]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-20139]



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DEPARTMENT OF STATE

Bureau of Consular Affairs

22 CFR Part 41

[Public Notice 2238]


Visas: Documentation of Nonimmigrants Under the Immigration and 
Nationality Act, as Amended; Business and Media Visas

AGENCY: Bureau of Consular Affairs, DOS.

ACTION: Final rule.

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SUMMARY: This rule implements the provisions of section 209 of the 
Immigration Act of 1990. This section creates a new nonimmigrant 
classification under INA 101(a)(15)(R). The new nonimmigrant visa 
classification provides for the temporary admission into the United 
States of ``aliens in religious occupations.''

DATES: August 15, 1995.

FOR FURTHER INFORMATION CONTACT: Stephen K. Fischel, Chief, Legislation 
and Regulations Division, 202-663-1204.

SUPPLEMENTARY INFORMATION: On January 6, 1992, at 57 FR 341, the 
Department of State published an interim rule in the Federal Register 
and requested comments from interested parties by February 5, 1992. The 
Visa Office received six comments on the interim rule and considered 
each one of the comments in the preparation of the final rule.

General

    As explained in the preamble to the interim rule, the Immigration 
Act of 1990, Public Law 101-649, amended INA 101(a)(27)(C) and created 
INA 101(a)(15)(R). The substantive standards for the nonimmigrant and 
immigrant provisions are the same with the exception that the immigrant 
category requires that the immigrant alien must have been performing 
out one of the vocations and activities listed in INA 101(a)(27)(C) 
during the 2 years immediately preceding the petition for special 
immigrant status. A significant procedural difference between the 
nonimmigrant visa classification and the special immigrant category 
lies in the fact that a petition must be filed with and approved by the 
Immigration and Naturalization Service (INS) to accord special 
immigrant status. Although no petition is required to establish 
entitlement under the ``R'' visa classification, the applicable 
standards common to the two visas must be applied by the INS and the 
Department 

[[Page 42035]]
of State. It is essential, therefore, that the standards be the same. 
To ensure that the regulatory standards were indeed the same, the 
publication of the Department's interim rule was delayed until the 
publication on December 27, 1991 of INS' final rule relating to the 
``R'' visa. A comparison of the two regulations reveals that the 
language of the portions common to both agencies is almost identical.

Comments

    One commenter objected to the rule being published as an interim 
rule rather than as a proposed rule. The commenter expressed concern 
that the interim rule was published prior to the solicitation of public 
comments rather than afterward. He saw this as a violation of the 
Administrative Procedure Act, 5 U.S.C. 551 et seq. Section 553(b)(3) of 
the Administrative Procedure Act exempts Federal agencies from the more 
extensive notice requirements of proposed rule making when such notice 
is ``impracticable * * * or contrary to the public interest.'' As the 
commenter correctly pointed out, however, where a Federal agency finds 
that proposed rule making is ``contrary to the public interest,'' 
section 553(b)(3)(B) requires the Federal agency to provide a statement 
of reasons for that finding. Although the Department failed to provide 
such a statement when it published the interim rule, the Department 
believes that the public interest standard was, in fact, met. The 
Department sought to publish a regulation governing the issuance of R 
visas as soon as possible as the INS final rule on R visas (upon which 
our regulations are dependent) had been published on December 27, 1991. 
The Department sought prompt publication of this rule to ensure 
consistency. This interim rule also called for public comment, 
soliciting comments for any possible amendments in the final rule.
    The Department received one comment concerning the definition of 
religious denomination at Sec. 41.58(b). The commenter made the point 
that the use of the word ``interdenominational'' may cause ambiguity. 
Consequently, it was suggested that either ``interdenominational'' be 
deleted or that the sentence be amended to read ``interdenominational 
as well as religious organizations.'' The purpose of the use of the 
term ``interdenominational'' is to be expansive and to include not just 
single religious groups, i.e., denominations, but also, those entities 
which consist of two or more religious groups. As the language of the 
interim rule conveys the intended meaning, it will be retained in the 
final rule.
    One commenter suggested that the definition of ``bona fide 
nonprofit religious organization in the United States'' is too narrow. 
The interim rule defines such organization as one which has been found 
to be tax exempt as described in section 501(c)(3) of the Internal 
Revenue Code of 1986, as it relates to religious organizations, or as 
an organization which would in the opinion of a consular officer be 
eligible for such tax exempt status had application been made. The 
commenter stated that the definition was overly restrictive for four 
reasons: first, the statute does not require that definitional 
standard; secondly, the rule conflicts with agency policy; thirdly, the 
rule conflicts with legislative history; and fourthly, the tax exempt 
status is not a viable means to determine nonprofit status. The 
Immigration Act of 1990 amended the definition of a religious 
organization by adding a specific reference to the tax exempt 
provisions of the Internal Revenue Code. Formerly, INA 101(a)(27)(C) 
required the applicant to submit proof of tax exempt status as accorded 
by the IRS. Practice has found that this is the most viable way to 
address the issue of qualifying organizations. The definition of 
religious organization in connection with the Internal Revenue Code is, 
therefore, entirely consistent with the plain language of INA 
101(a)(15)(R). Consequently, the regulation has not been amended in 
this regard.
    A commenter objected to language in the supplementary information 
preceding the interim rule that an affiliated organization to the 
religious organization, defined in Sec. 41.58(d), be ``subordinate or 
dependent.'' It should be noted that the language of the final rule is 
consistent with INS' final rule and does not include this requirement. 
The supplementary information inaccurately characterized the definition 
of an affiliated organization.
    One commenter objected to the requirement that a professional 
religious worker (Sec. 41.58(f)) possess at least a U.S. baccalaureate 
degree or its foreign equivalent. The commenter claimed that because 
there is no degree requirement in the Act, there can be no statutory 
basis for instituting such a requirement. The commenter also contended 
that the ``R'' classification encompasses credentials and experience 
that are less quantifiable than their counterparts in other 
nonimmigrant visa categories. The thrust of the argument is that degree 
equivalence in the form of experience, etc. should be permitted for 
religious workers. On the other hand, a commenter opined that the 
proposed definition of professional capacity was not restrictive 
enough.
    The INS addressed these same issues in the supplementary 
information to their final rule. We are in accord with that agency's 
reasoning and conclusion and retain the language in the final rule. 
This language is consistent with INS' regulations for the ``R'' visa as 
well as the immigrant religious worker visa category. In addition to 
ministers of religion the statute provides for two classes of religious 
workers; those working in a religious vocation or occupation and those 
working in a religious vocation or occupation in a professional 
capacity. The distinguishing feature between these two classes of 
religious workers lies obviously in the element of ``professional 
capacity''. By making this distinction, it is assumed that Congress 
intended that there be a difference in meaning. The only reasonable 
meaning lies in defining professional capacity in the manner that is 
reflected in the regulation. The statute has defined ``profession'' in 
INA 101(a)(32) and has defined ``professional'' at INA 203(b)(3)(A). In 
the latter provision the statute requires the professional to have a 
baccalaureate degree, thus shedding light on congressional intent in 
the religious worker context. To accept the proposal about equivalency 
would remove any meaningful distinction between these two classes of 
religious workers. Religious workers who have experience in lieu of a 
baccalaureate degree would qualify under the general class of religious 
workers involved in a religious vocation or occupation. It should be 
noted that foreign degrees equivalent to the U.S. baccalaureate are 
recognized and accepted.
    One commenter suggests that the ``traditional'' religious function 
should be liberally construed. The commenter is apparently referring to 
Sec. 41.58(g) and is not requesting any regulatory change but is merely 
expressing the view that in implementing this subsection the Department 
interpret this concept ``liberally.'' Consular officers will be 
instructed to interpret this term contextually. The occupational 
activity must be reviewed in the context of the particular religion to 
determine if it is a ``traditional'' activity for that religion. No 
change in the regulation is, therefore, necessary.
    The Department received a comment stating that the definition of 
``religious occupation'' (at Sec. 41.58(g)) was overly broad, 
specifically citing the list of the activities in subsection (g). It is 
crucial to note that the list of activities set forth in the regulation 
exactly mirrors the list 

[[Page 42036]]
of activities that the House Committee on the Judiciary deemed were 
activities falling within the ambit of religious occupation. in their 
legislative history at H.R. 101-723, p. 75. The legislative history 
emphasizes that these activities must ``relate to traditional religious 
functions.'' This qualifying element has, therefore, been incorporated 
into the regulation.
    A commenter asked that the rule expressly recognize any combination 
of religious workers' duties to satisfy the employment requirement. The 
commenter argued that since religious worker positions often involve a 
wide array of duties and responsibilities and such positions will not 
fall cleanly within the parameters of any of the three religious worker 
subcategories, recognition for ``hybrid'' vocations and occupations 
should be accorded generally under this classification. The 
Department's responsibility is to administer this section of the INA as 
written. Visa applicants must demonstrate that they qualify under one 
of the three subcategories. The language of the statute and regulations 
defining religious occupation and religious vocation appear to be 
sufficiently broad to encompass the type of occupations which appear to 
be contemplated by the commenter. Nothing in the regulations limits a 
``religious occupation'' to a single activity. The activities 
comprising the occupation must, however, ``relate to a traditional 
religious function.''
    A commenter objected to language in the supplementary information 
to the interim rule describing religious vocation. The supplementary 
information states that ``an alien who has taken vows or the equivalent 
and has made a lifetime commitment to a religion is presumed to be 
engaging in activities relating to a traditional religious function . . 
.''. As pointed out by the commenter, in its final rule INS stated that 
the calling to religious life is ``evidenced by the demonstration of 
commitment practiced in the religious denomination.'' The Department's 
interim rule and the final regulation use the same language and endorse 
this concept. The language in the supplementary information in the 
interim rule is much more restrictive and inconsistent with this 
regulatory language.
    Lastly, a commenter asserted that a petition is required to accord 
``R'' visa status. Because a petition is required to be filed with and 
approved by the INS as a condition precedent to visa application and 
issuance for certain nonimmigrant worker visa classifications, the 
commenter believed the petition requirement applied to this 
classification as well. The INA in section 214 specifically requires 
the filing of a petition with INS regarding H, L, O, P, and Q visa 
classifications. However, Congress did not impose such a requirement 
with respect to the ``R'' visa classification. Consequently, no 
petition requirement will be imposed for this visa classification under 
the current state of the law.

Final Rule

    This final rule provides the general requirements of this 
nonimmigrant classification in paragraph Sec. 41.58(a); defines terms 
for this classification in paragraphs (b) through (g); and, prohibits, 
in paragraph (h), the issuance of an ``R'' visa to an alien who has 
spent five years in the United States in the ``R'' classification 
unless the alien has been resident and physically present outside the 
United States for the immediate preceding year.
    This rule is not considered to be a major rule for purposes of E.O. 
12291 nor is it expected to have a significant impact on a substantial 
number of small entities under the criteria of the Regulatory 
Flexibility Act. This rule imposes no reporting or record-keeping 
action from the public requiring the approval of the Office of 
Management and Budget under the Paperwork Reduction Act requirements. 
This rule has been reviewed as required by E.O. 12778 and certified to 
be in compliance therewith, and reviewed in light of E.O. 12866 and 
found to be consistent therewith.

List of Subjects in 22 CFR Part 41

    Aliens in religious occupations, Nonimmigrants, Passports and 
visas, Religious organizations.

    In view of the legislative mandate of Public Law 101-649, Part 41 
to Title 22 is amended by adding new section 41.58.

PART 41--[AMENDED]

    1. The authority citation for Part 41 continues to read:

    Authority: 8 U.S.C. 1104.

    2. Part 41, Subpart F--Business and News Media, is amended by 
adding Sec. 41.58 to read as follows:


Sec. 41.58  Aliens in religious occupations.

    (a) Requirements for ``R'' classification. An alien shall be 
classifiable under the provisions of INA 101(a)(15)(R) if:
    (1) The consular officer is satisfied that the alien qualifies 
under the provisions of that section; and
    (2) The alien, for the 2 years immediately preceding the time of 
application for admission, has been a member of a religious 
denomination having a bona fide nonprofit, religious organization in 
the United States; and
    (3) The alien seeks to enter the United States solely for the 
purpose of
    (i) Carrying on the vocation of a minister of that religious 
denomination, or
    (ii) At the request of the organization, working in a professional 
capacity in a religious vocation or occupation for that organization, 
or
    (iii) At the request of the organization, working in a religious 
vocation or occupation for the organization, or for a bona fide 
organization which is affiliated with the religious denomination 
described in section 501(c)(3) of the Internal Revenue Code of 1986; 
and
    (4) The alien is seeking to enter the United States for a period 
not to exceed 5 years to perform the activities described in paragraph 
(3) of this section; or
    (5) The alien is the spouse or child of an alien so classified and 
is accompanying or following to join the principal alien.
    (b) Religious denomination. A religious denomination is a religious 
group or community of believers. Among the factors that may be 
considered in determining whether a group constitutes a bona fide 
religious denomination are the presence of some form of ecclesiastical 
government, a recognized creed and form of worship, a formal code of 
doctrine and discipline, religious services and ceremonies, established 
places of religious worship, and religious congregations. For purposes 
of this definition, an interdenominational religious organization which 
is exempt from taxation pursuant to section 501(c)(3) of the Internal 
Revenue Code of 1986 will be treated as a religious denomination.
    (c) Bona fide nonprofit religious organization in the United 
States. For purposes of this section, a bona fide nonprofit religious 
organization is an organization exempt from taxation as described in 
section 501(c)(3) of the Internal Revenue Code of 1986, as it relates 
to religious organizations, or one that has never sought such exemption 
but establishes to the satisfaction of the consular officer that it 
would be eligible therefore if it had applied for tax exempt status.
    (d) Bona fide organization which is affiliated with the religious 
denomination. A bona fide organization affiliated with the religious 
denomination is an organization which is both closely associated with 
the religious denomination and exempt 

[[Page 42037]]
from taxation as described in section 501(c)(3) of the Internal Revenue 
Code of 1986, as it relates to religious organizations.
    (e) Minister of religion. A minister is an individual who is duly 
authorized by a recognized religious denomination to conduct religious 
worship and to perform other duties usually performed by authorized 
members of the clergy of that religion. A minister does not include a 
lay preacher who is not authorized to perform such duties. In all 
cases, there must be a reasonable connection between the activities 
performed and the religious calling of a minister.
    (f) Professional capacity. Working in a professional capacity means 
engaging in an activity in a religious vocation or occupation which is 
defined by INA 101(a)(32) or for which the minimum of a United States 
baccalaureate degree or a foreign equivalent degree is required for 
entry into that field of endeavor.
    (g) Religious occupation. A religious occupation is the habitual 
employment or engagement in an activity which relates to a traditional 
religious function. Examples of individuals in religious occupations 
include, but are not limited to liturgical workers, religious 
instructors, religious counselors, cantors, catechists, workers in 
religious hospitals or religious health care facilities, missionaries, 
religious translators, or religious broadcasters. This group does not 
include janitors, maintenance workers, clerks, fund raisers, or persons 
solely involved in the solicitation of donations.
    (h) Religious vocation. A religious vocation is a calling to 
religious life evidenced by the demonstration of commitment practiced 
in the religious denomination, such as the taking of vows. Examples of 
individuals with a religious vocation include, but are not limited to 
nuns, monks, and religious brothers and sisters.
    (i) Alien not entitled to classification under INA 101(a)(15)(R). 
An alien who has spent 5 years in the United States under INA 
101(a)(15)(R) is not entitled to classification and visa issuance under 
that section unless the alien has resided and been physically present 
outside the United States, except for brief visits to the United States 
for business or pleasure, for the immediate prior year.

    Dated: August 9, 1995.
Diane Dillard,
Acting Assistant Secretary for Consular Affairs.
[FR Doc. 95-20139 Filed 8-14-95; 8:45 am]
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