V, L and H-1 (including H-1b, but excluding H-1b1) nonimmigrant visas are explicitly, by statute, excluded from the rule requiring nonimmigrant visa holders to lack immigrant intent; Immigration and Nationality Act Sec. 214(b), as amended, codified at US Code Title 8, Sec. 1184(b).
"Dual intent" isn't an administrative fiction, its a term of art for the nonimmigrant visa categories excluded from the generally applicable requirement for having (and demonstrating) the absence of immigrant intent. Its true that there are some visa categories where "dual intent" is applied adminstratively rather than from a clear statutory rule, but V, L, and H-1 (except H-1b1) visas have explicit statutory allowance for dual intent.
> If Congress had designed H-1B to be a pathway to permanent residency, it would say that in the statute.
But...it does say that in the statute.
> Instead what happened is that for 40 years the executive branch abused the H-1 program to turn a temporary immigration visa into a de facto permanent immigration system.
Whether or not H-1 may have been abused that way between 1980 and 1990 (the first 10 years of your "40 year period") [See EDIT below], the exemption of H-1 and L visas from the no-immigration-intent requirement has been express in statute since the Immigration Act of 1990, so for the last 30 years the behavior you complain about has been strictly as directed by statute.
References:
Summary: http://www.americanlaw.com/dintent.html
Current codification and history: https://www.law.cornell.edu/uscode/text/8/1184 [history of amendments, including text added by the 1990 amendment at issue, by clicking "Notes"]
[EDIT: The H-1B can't have been abused between 1980 and 1990, while I checked when the H-1B was added to the exception from the no-immigration-intent rule, I didn't check when the visa category itself as added, which was at the same time in the INA of 1990. So, no, it was never abused as a route to immigration, it has always explicitly allowed that use in the statute. Conceivably, the unsplit H-1 could have been abused between 1980 and 1990, though.]
> (b) Presumption of status; written waiver Every alien (other than a nonimmigrant described in subparagraph (L) or (V) of section 1101(a)(15) of this title, and other than a nonimmigrant described in any provision of section 1101(a)(15)(H)(i) of this title except subclause (b1) of such section) shall be presumed to be an immigrant until he establishes to the satisfaction of the consular officer, at the time of application for a visa, and the immigration officers, at the time of application for admission, that he is entitled to a nonimmigrant status under section 1101(a)(15) of this title.
This creates a rebuttable presumption that an alien has immigrant intent, and excludes H-1B holders from that presumption.
But the H-1B is still a non-immigrant visa. 8 USC 1101(a)(15) clearly distinguishes "immigrants" from "nonimmigrant aliens." An H-1B is classified as a "nonimmigrant alien." Subsection (H)(1)(b) still applies to those who will work "temporarily" in the U.S. H-1Bs are still governed by 8 USC 1184 ("admission of nonimmigrants") and not 8 USC 1181 ("admission of immigrants").
> "Dual intent" isn't an administrative fiction, its a term of art for the nonimmigrant visa categories excluded from the generally applicable requirement for having (and demonstrating) the absence of immigrant intent.
It's a term of art that refers to an administrative fiction. That fiction allows a visa that is by its terms a nonimmigrant visa for temporary workers to be treated in practice as the first step in the path to permanent immigration. The 1990 INA doesn't change that in substance--it merely excludes H-1Bs from a presumption to avoid blowing up the fiction. This is the result of H-1B being a statutory kludge in response to the executive branch's longstanding abuse of the H-1 visa created in the 1952 INA.
Other countries have real skilled immigrants visas that are designed to be such. They work very differently, and make much more sense because they were designed for that purpose. E.g. https://www.canada.ca/en/immigration-refugees-citizenship/se...
The US Code Title 8, Sec. 1184(b) has nothing to do with the "dual intent" thing. What happens there is that people on visas like B2 are _presumed_ to be immigrants, and need to actually argue that they are not in front of consular officers in the embassy and the immigration officers at the border. The holders of V, L and H visas are exempt from this, and they are presumed non-immigrant by default. However, contrary to what you say here, L and H visa holders are still required to lack immigration intent.
The dual intent rule stems from completely different piece o US code, see the section 205 of Immigration Act of 1990:
> (h) The fact that an alien is the beneficiary of an application for a preference status filed under section 204 or has otherwise sought permanent residence in the United States shall not constitute evidence of an intention to abandon a foreign residence for purposes of obtaining a visa as a nonimmigrant described in subparagraph (H)(i) or (L) of section 101(a)(15) or otherwise obtaining or maintaining the status of a nonimmigrant described in such subparagraph, if the alien had obtained a change of status under section 248 to a classification as such a nonimmigrant before the alien's most recent departure from the United States.'.
This is the source of the dual intent doctrine. Note what it says: it says that application for permanent residency shall not constitute evidence of an intention to abandon a foreign residence. The reason it says so is because prior to that, such application has in fact been used by Department of State to presume immigrant intent on behalf of H1 visa holders, and to deny them entry. This is the "legal fiction" rayiner is talking about: H1B visa holders are still required to have no immigration intent, and while the US Code Title 8, Sec. 1184(b) frees them from the presumption that they do have one and requirement to prove that they do not have it, the dual intent doctrine was still necessary in order to bar government agencies from concluding that they intend to immigrate based on their application explicitly saying that they intend to immigrate.
> But...it does say that in the statute.
No, H1B is still a non-immigrant visa, see section 1101(a)(15) which defines the non-immigrant visas.
> the exemption of H-1 and L visas from the no-immigration-intent requirement has been express in statute since the Immigration Act of 1990, so for the last 30 years the behavior you complain about has been strictly as directed by statute.
Right, the amended statute doesn't make it actually illegal, but still the whole procedure is based on legal fiction of not concluding immigrant intent where there obviously is one.
Rayiner did not reference a “legal fiction” based in statute, he referenced an “administrative fiction” that he specifically claimed was unsupported by the statute and a product of abuse by the executive over the last 40 years.
This is clearly false. It is expressly the statutory policy directed by Congress.
Yes, that's what makes the fiction legal. However, the "fiction" part is about prohibiting government agencies from concluding immigration intent based on the application for permanent residency which clearly does show immigration intent. The H1B holders are still technically required to not have immigration intent, and it still technically is a non-immigrant visa, but it's all a fiction in practice.
The statute doesn’t say anything about “dual intent.” That’s an administrative fiction. Under the actual law, the H-1B is a “nonimmigrant” visa status for temporary workers.
The status is defined in Section 1101(a)(15), which describes various “classes of nonimmigrant aliens.” See: https://www.law.cornell.edu/uscode/text/8/1101
In that same provision, subsection (H)(1)(b) defines the status as a worker “who is coming temporarily to the United States to perform services” in a “speciality occupation.”
The provision you quote doesn’t create some concept of “dual intent.” It simply says that someone shall not be presumed to have immigrant intent just because they file an adjustment of status petition. Why would that even matter? Because H-1B still requires nonimmigrant intent!
If Congress had designed H-1B to be a pathway to permanent residency, it would say that in the statute. Instead what happened is that for 40 years the executive branch abused the H-1 program to turn a temporary immigration visa into a de facto permanent immigration system. Congress didn’t want to blow up the status quo, but also couldn’t get the vote to create a real system for permanent immigration of skilled workers. The 1990 INA doesn’t even use the words “dual intent” or anything like it. Congress did the minimum it needed to address the situation where State Department was barring H-1 holders who has filed an immigration petition from re-entering, because that’s all they could get the votes for.