Typically, a petition in the employment-based second-preference immigrant visa category must be accompanied by a certified labor certification from the U.S. Department of Labor and a job offer. However, the law allows these to be waived if it would be in the national interest of the U.S. to do so.
Other comparable evidence of eligibility is also acceptable.
Note: “job creation” is a concept that is arguably broad enough to still fit within the general idea of what is in the national interest. But, NIW is highly discretionary and subject to considerable arbitrariness in any event, so caution is recommended.