CRS report

The Immigration and Nationality Act (INA) specifies a complex set of categories and numerical limits for admitting lawful permanent residents (LPRs) to the United States that includes economic priorities among the admission criteria.
These priorities are addressed primarily through the employment-based immigration system, which consists of five preference categories. Each preference category has specific eligibility criteria; numerical limits; and, in some cases, distinct application processes. The INA allocates 140,000 visas annually for all five employmentbased LPR categories, roughly 12% of the 1.1 million LPRs admitted in FY2017.

The INA further limits each immigrantsending country to an annual maximum of 7% of all employment-based LPR admissions, known as the per-country ceiling, or â€œcap.â€ Prospective employment-based immigrants follow two administrative processing trajectories depending on whether they apply from overseas as â€œnew arrivalsâ€ seeking LPR status or from within the United States seeking to adjust to LPR status from a temporary status that they currently possess.

While some prospective employment-based immigrants can self-petition, most require U.S. employers to petition on their behalf. In both cases, the Department of State (DOS) is responsible for allocating the correct number of employment-based immigrant â€œvisa numbersâ€ or slots, according to numerical limits and the per-country ceiling specified in the INA. This report reviews the employment-based immigration process by examining six pools of pending petitions and applications, representing prospective employment-based immigrants and any accompanying family members at different stages of the LPR process.

While four of these pools represent administrative processing queues, two result from the INAâ€™s numerical limitations on employment-based immigration and the per-country ceiling. These latter two pools of foreign nationals, who have been approved as employment-based immigrants but must wait for statutorily limited visa numbers, totaled in excess of 900,000 as of mid-2018. Most originate from India, followed by China and the Philippines.

Some employers maintain that they continue to need skilled foreign workers to remain internationally competitive and to keep their firms in the United States. Proponents of increasing employment-based immigration levels argue that it is vital for economic growth.

Opponents cite the lack of compelling evidence of labor shortages and argue that the presence of foreign workers can negatively impact wages and working conditions in the United States. With this statutory and economic backdrop, the policy option of revising or eliminating the per-country ceiling on employment-based LPRs has been proposed repeatedly in Congress.

Some argue that eliminating the per-country ceiling would increase the flow of high-skilled immigrants from countries such as India and China, who are often employed in the U.S. technology sector, without increasing the total annual admission of employment-based LPRs. Currently, nationals from India in particular, and to a lesser extent China and the Philippines, face lengthy queues and inordinately long waits to receive LPR status.

Many of those waiting for employment-based LPR status are already employed in the United States on temporary visas, a potentially exploitative situation that some argue incentivizes immigrant-sponsoring employers to continue to recruit foreign nationals primarily from these countries for temporary employment. Others counter that the statutory per-country ceiling restrains the dominance of a handful of employment-based immigrant-sending countries and preserves the diversity of immigrant flows.

see full report
https://crsreports.congress.gov/product/pdf/R/R45447

Permanent Employment-Based Immigration and the Per-country Ceiling