USCIS regulates and governs the EB5 Program, which is a federal program. Accordingly USCIS would have the final word over any state regarding the definition of a TEA. For your information, the language below is from the USCIS website:
A targeted employment area is an area that, at the time of investment, is a rural area or an area experiencing unemployment of at least 150 percent of the national average rate.
A rural area is any area outside a metropolitan statistical area (as designated by the Office of Management and Budget) or outside the boundary of any city or town having a population of 20,000 or more according to the decennial census.