La categoría “quinta preferencia basada en el empleo” se creó cuando la Ley de Inmigración de 1990 (IMMACT 90, siglas en inglés) reformó la Ley de Inmigración y Nacionalidad (INA, siglas en inglés) en 1990. Poco tiempo después se iniciaron los centros regionales en 2003. Sin embargo, a mediados de la década de 1990 numerosas compañías no reunieron el capital invertido total necesario o no contrataron la cantidad requerida de empleados. El USCIS intentó detener el uso incorrecto del programa EB-5. En consecuencia, se realizaron varios procesos legales y enmiendas a la legislación. En 1998 se emitieron cuatro sentencias que sirvieron como precedente para los futuros programas EB-5: Asunto de Soffici, 22 I & N Dec. 158; Asunto de Izumii, 22 I & N Dec. 169; Asunto de Hsiung, 22 I & N Dec. 201; Asunto de Ho, 22 I & N Dec. 206.
Inicialmente, la agencia gubernamental deseaba implementar estos fallos de forma retroactiva a los participantes anteriores del programa EB-5, pero en mayo de 2001 el Tribunal del Distrito Federal en Chang c/ Estados Unidos determinó que la aplicación de las nuevas normas de adjudicación retroactiva en relación con las peticiones de EB-5 aprobadas es inapropiada. Asimismo, en 2003 el Tribunal de Apelaciones del Noveno Circuito dictó sentencia en Chang v. Estados Unidos, determinando también que la aplicación retroactiva de la decisión precedente de 1998 era inapropiada.
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