[Federal Register Volume 63, Number 234 (Monday, December 7, 1998)]
[Proposed Rules]
[Pages 67431-67434]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-32396]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 63, No. 234 / Monday, December 7, 1998 /
Proposed Rules
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DEPARTMENT OF JUSTICE
Immigration and Naturalization Service
8 CFR Part 214
[INS No. 1946-98; AG Order No. 2194-98]
RIN 1115-AF29
Delegation of the Adjudication of Certain H-2A Petitions to the
Department of Labor
AGENCY: Immigration and Naturalization Service, Department of Justice.
ACTION: Proposed rule.
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SUMMARY: This rule proposes to amend the Immigration and Naturalization
Service's (Service) regulations by delegating to the United States
Department of Labor (DOL) the adjudication of certain petitions for
aliens coming temporarily to the United States to perform agricultural
labor or services (H-2A petition). The H-2A petitions affected by this
action would involve only petitions filed for initial H-2A employment
where the alien is not physically present in the United States and
petitions to replace H-2A workers who were terminated before the end of
their authorized stays with workers from outside the United States.
This rule would not affect the Service's authority to make
determinations at the port-of-entry of an alien's admissibility to the
United States or to adjudicate other petitions. The Service has
proposed these changes in order to streamline the existing H-2A
petitioning process for certain foreign agricultural workers, and the
proposals are intended to make it easier and less burdensome for United
States employers to file petitions for such workers.
DATES: Written comments must be submitted on or before February 5,
1999.
ADDRESSES: Please submit the original and two copies of written
comments to the Policy Directives and Instructions Branch, Immigration
and Naturalization Service, 425 I Street, N.W., Room 5307, Washington,
DC 20536. To ensure proper handling, please reference the INS No. 1946-
98 on your correspondence. Comments are available for public inspection
at the above address by calling (202) 514-3048 to arrange for an
appointment.
FOR FURTHER INFORMATION CONTACT:
John W. Brown, Adjudications Officer, Programs Division, Immigration
and Naturalization Service, 425 I Street, N.W., Room 3214, Washington,
DC 20536, telephone (202) 514-4754.
SUPPLEMENTARY INFORMATION:
Background
What Is an H-2A Agricultural Worker?
Section 101(a)(15)(H)(ii)(a) of the Immigration and Nationality Act
(Act) defines an H-2A worker as an alien ``having a residence in a
foreign country which he has no intention of abandoning who is coming
temporarily to the United States to perform agricultural labor or
services * * * of a temporary or seasonal nature.'' 8 U.S.C.
1101(a)(15)(H)(ii)(a), 1188(i)(2).
What Is the Current Procedure for Hiring an H-2A Agriculture Worker?
Section 218 of the Act provides the statutory framework for the H-
2A nonimmigrant program. 8 U.S.C. 1188. The current procedures for
filing an H-2A petition to hire an alien to perform temporary or
seasonal agricultural labor or services are described at 8 CFR
214.2(h)(5). A United States employer that desires to hire an H-2A
agricultural worker must first obtain a labor certification from the
DOL. The procedures for obtaining a labor certification are contained
in the DOL regulations at 20 CFR part 655, subpart B. Briefly, the
prospective United States employer must establish, among other things,
that there are not sufficient available United States workers for the
position and that the employer will pay the foreign worker in
accordance with the regulations of the DOL and the United States
Department of Agriculture (USDA). If the United States employer and the
proposed employment of the H-2A worker meet all of the DOL
requirements, the DOL will issue a labor certification. If the
application for a labor certification is denied, an employer may obtain
review of the denial by an administrative law judge within the DOL.
After obtaining a labor certification from the DOL, the employer is
required to file a Form I-129, Petition for nonimmigration Worker, with
the Service. The Service reviews the Form I-129 and supporting
documentation and, if approved, forwards notice of the approved
petition to a consular post or port-of-entry. The foreign workers are
then identified and either apply for a nonimmigrant visa at a United
States consular post or for admission to the United States if exempt
from the nonimmigrant visa requirements. If an H-2A petition is denied
by the Service, the employer may appeal the denial of the petition to
the Administrative Appeals Office (AAO). See 8 CFR 103.3, 214.2(h)(12).
Why Is the Service Making These Changes?
The Administration, including the Department of State (DOS), the
DOL, the USDA, and the Service, has, for some time, been considering
possible changes to the H-2A program to help streamline it, improve its
operation, and address complaints by some users of the program, without
weakening the program's worker protections. The General Accounting
Office and the DOL's Office of Inspector General have recently
completed in-depth reviews of the H-2A program, providing useful
analysis and findings and making several recommendations for program
changes, many of which have been accepted by the administering
agencies. This rulemaking represents an attempt by the Service to
simplify the petitioning process for United States employers seeking to
employ foreign agricultural workers. The DOL published corresponding,
proposed regulations in the Federal Register on October 2, 1998, 63 FR
53244-53249.
The Service's current role in the adjudication of H-2A petitions
generally is limited to reviewing the Form I-129 filed by the United
States employer to determine if the job offered to the foreign worker
is temporary and if the United States employer has obtained a labor
certification from the DOL. Moreover, the labor certification issued by
the DOL is normally accepted by the Service as evidence that the
position is temporary and that the United States employer has met all
of the DOL's requirements with respect to the H-2A classification.
Although the Service currently is authorized to approve a H-2A petition
in spite of the DOL's denial of a labor certificate, it can
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do so only if the petitioner overcomes the DOL's finding that qualified
domestic labor is available. 8 CFR 214.2(h)(5)(ii). The Service,
however, accords great weight to the DOL's findings and rarely
overturns them. In addition, most Form I-129 petitions are filed for
unnamed beneficiaries; the vast majority of United States employers,
due to the nature of the agricultural industry, identify only the
number of positions that they want to fill, not the names of the
specific foreign workers. The foreign workers are identified only after
the petition is approved by the Service and before visas are issued.
Thus, as a practical matter, the Service's role in the processing of H-
2A petitions for aliens outside of the United States generally is
limited to a review of the Form I-129 petition to determine if it is
accompanied by a labor certificate. Given its minimal role in this
process, the Service has determined that the interests in streamlining
the H-2A process outweigh those of retaining jurisdiction over the
adjudication of H-2A petitions filed on behalf of aliens outside of the
country.
Explanation of Changes
What Changes Are We Making to the Regulations?
The control of aliens admitted to the United States as
nonimmigrants is solely the responsibility of the Attorney General. 8
U.S.C. 1103(a). Under section 103(a)(6) of the Act, however, the
Attorney General has the authority ``to confer or impose upon any
employee of the United States * * * any of the powers, privileges, or
duties conferred or imposed by this Act or regulations issued
thereunder upon officers or employees of the Service.'' 8 U.S.C.
1103(a)(6). Pursuant to this section of the Act, the Attorney General
proposes to amend the Service's regulations by delegating to the
Secretary of Labor her authority to adjudicate H-2A petitions where the
beneficiary is not physically present in the United States.
This rule proposes to implement this delegation to the Secretary of
Labor by amending 8 CFR 214.2(h)(5)(i). The rule would further advise
potential United States employers to refer to the DOL regulations for
information regarding the filing requirements for petitions for H-2A
agricultural workers who are not physically present in the United
States.
This proposed rule also would amend 8 CFR 214.2(h)(5)(ix) to
delegate authority to the DOL to adjudicate a petition filed to replace
an H-2A worker whose employment has been terminated early with a worker
from outside of the United States. The Service, however, would retain
its authority to adjudicate petitions where the substitute worker is
physically present in the United States. The Service would also retain
authority to adjudicate extensions of stay and petitions filed in
connection with applications to change an alien's nonimmigrant status
to H-2A nonimmigrant status.
What Portions of the H-2A Program Are Not Being Changed by This Rule?
As noted above, the Service does not propose to delegate its
authority to adjudicate extensions of temporary stay and changes of
nonimmigrant status to an H-2A nonimmigrant. The Service proposes to
retain its authority in these two areas because the decisions to change
nonimmigrant status and to extend an alien's period of temporary stay
require complex determinations as to whether the alien is maintaining a
valid nonimmigrant status and is eligible for other benefits under the
Act. In addition, it would be burdensome on the DOL, whose mission does
not include direct control over aliens, to make these determinations.
For these reasons, the Service will not remove itself entirely from the
H-2A program, but will retain a certain amount of control over the
program in order to ensure that both the employer and the foreign
agricultural worker remain in compliance with the Act.
Under the proposed regulation, extensions of stay would continue to
be filed with the Service in accordance with 8 CFR 214.1 and 8 CFR
214.2(h)(15)(ii)(C). In addition, requests for a change of nonimmigrant
status to H-2A nonimmigrant classification would continue to be filed
with the Service pursuant to 8 CFR part 248. The Service also would
retain its authority to adjudicate petitions filed for a change of
United States employers under this proposed regulation.
The Service also intends to retain its right to adjudicate appeals
of denied H-2A petitions. See 8 CFR 103.3, 214.2(h)(12). Petitions
denied by the DOL would, therefore, continue to be appealed to the AAO.
In this regard, the proposed regulation clarifies that, as a condition
to delegation of authority, the DOL has agreed to provide notice to the
petitioner of the reasons for denial and of the right to appeal to the
AAO. The Service's retention of its appeal authority ensures that
United States employers can obtain an independent, second-agency review
of a petition denied by the DOL. This is not to be confused with the
DOL's decision with respect to an application for a labor
certification. Under this proposed rule, the DOL will be rendering two
decisions, one on the application for a labor certification and one on
the H-2A petition itself. Appeals from the denial of a labor
certification will continue to be handled by the DOL.
The Service also intends to retain its authority, described in 8
CFR 214.2(h)(11), to revoke an H-2A petition approved by the DOL.
This proposed rule also would not alter the petitioner's
responsibilities, set forth in 8 CFR 214.2(h)(5)(vi), to notify the
Service if an H-2A alien absconds or the alien's employment ends more
than 5 days before the labor certification expires. Similarly, the
proposed rule would not change the provisions in 8 CFR 214.2(h)(5)(vi)
requiring the petitioner to pay liquidated damages for violating its
notification obligations. Further, this proposed rule would not alter 8
CFR 214.2(h)(5)(viii), which sets forth the period of an H-2A
nonimmigrant admission to the United States.
In addition, the delegation of the authority to adjudicate certain
H-2A petitions would not, in any way, affect the Service's
responsibilities with respect to the employer sanctions provisions
contained at 8 CFR part 274a, including the limitation that an H-2A
worker may be employed only by the petitioning employer, as described
at 8 CFR 274a.12(b)(9).
This rule also would not delegate authority to make determinations
of admissibility to the United States. The Service would retain sole
authority to make such determinations at the time an alien makes an
application for admission at a designated port-of-entry. The delegation
in this rule would only involve the approval of petitions for H-2A
nonimmigrant classification. The H-2A workers would still be required
to obtain a nonimmigrant visa abroad, where applicable, and make
application for admission to the United States.
Finally, the Service will continue to issue Form I-94, Arrival-
Departure Record, to the foreign worker at the time the alien is
admitted to the United States. The Service will also continue to issue
replacement Form I-94s.
What Is the Effect of These Proposed Changes?
These proposed changes will make it easier for United States
employers to file petitions for H-2A agricultural workers located
outside of the United States. Under this proposed rule, these employers
generally will be required to file petition-related documents with only
one agency--the DOL--instead of the current two agencies. This proposed
change should shorten the time required for these employers to obtain
the
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services of H-2A workers located outside of the United States because
it generally will remove the Service from the H-2A petition approval
process, thereby eliminating the time and mailing costs associated with
the submission of the petition package to the Service.
What Issues Will Remain After These Proposed Changes Are Made?
The adoption of the changes proposed in this rule will create a
number of issues to be resolved among the Service, the DOL, and the
DOS. These issues will require further discussion between the agencies
and, possibly, further rulemaking. An example of one such issue is
whether the DOL should use the Service's Form I-129 or create its own
form to capture the information required to determine eligibility for
the H-2A classification. Another issue is whether, if the DOL devises
its own form, it should gather the same information that the Service
currently captures on Form I-129. A further example is the issue of how
to notify consular posts and ports-of-entry after a petition is
approved. In this regard, the DOL could continue to use the Service's
Form I-797, Notice of Action, or devise another mechanism to notify the
appropriate parties of its actions. The Service, the DOL, and the DOS
will continue to discuss and to work collaboratively on these issues,
and others, as they arise in order to determine the best procedures to
implement the delegation described in this rule. Such procedures will
be addressed by the agencies in their respective regulations through
the rulemaking process.
What Types of Comments Does the Service Wish to Receive From the
Public?
In addition to comments directly addressing the changes proposed in
this rule, the Service would appreciate comments from the public on
other pertinent issues associated with this proposed delegation of
authority. The Service does not wish to adopt changes that would have
an adverse impact on the users of the H-2A program.
Regulatory Flexibility Act
The Attorney General, in accordance with the Regulatory Flexibility
Act (5 U.S.C. 605(b)), has reviewed this rule and, by approving it,
certifies that the rule will not have a significant economic impact on
a substantial number of small entities. The Service is issuing this
rule to reduce the impact on small entities that petition for
agricultural workers who are not physically present in the United
States. This change is intended to reduce the amount of time required
to petition for an H-2A worker and should ease the paperwork burden on
prospective United States employers.
Unfunded Mandates Reform Act of 1995
This rule will not result in the expenditure by State, local, and
tribal governments, in the aggregate, or by the private sector, of $100
million or more in any 1 year, and it will not significantly or
uniquely affect small governments. Therefore, no actions were deemed
necessary under the provisions of the Unfunded Mandates Reform Act of
1995.
Small Business Regulatory Enforcement Fairness Act of 1996
This rule is not a major rule as defined by the Small Business
Regulatory Enforcement Act of 1996. 5 U.S.C. 804. This rule will not
result in an annual effect on the economy of $100 million or more; a
major increase in costs or prices; or significant adverse effects on
competition, employment, investment, productivity, innovation, or on
the ability of United States-based companies to compete with foreign-
based companies in domestic and export markets.
Executive Order 12866
This rule is considered by the Department of Justice to be a
``significant regulatory action'' under section 3(f) of Executive Order
12866, Regulatory Planning and Review. Accordingly, this rule has been
submitted to the Office of Management and Budget for review.
Executive Order 12612
This rule will not have substantial, direct effects on the States,
on the relationship between the National Government and the States, or
on the distribution of power and responsibilities among the various
levels of government. Therefore, in accordance with Executive Order
12612, it is determined that this rule does not have sufficient
federalism implications to warrant the preparation of a Federalism
Assessment.
Executive Order 12988: Civil Justice Reform
This rule meets the applicable standards set forth in sections 3(a)
and 3(b)(2) of Executive Order 12988.
List of Subjects in 8 CFR Part 214
Administrative practice and procedures, Aliens, Employment,
Reporting and recordkeeping requirements.
Accordingly, part 214 of chapter I of title 8 of the Code of
Federal Regulations is proposed to be amended as follows:
PART 214--NONIMMIGRANT CLASSES
1. The authority citation for part 214 continues to read as
follows:
Authority: 8 U.S.C. 1101, 1103, 1182, 1184, 1186a, 1187, 1221,
1281, 1282; 8 CFR part 2.
2. Section 214.2 is amended by:
a. Removing the reference to ``H-2A,'' from the first sentence in
paragraph (h)(2)(i)(A);
b. Revising paragraph (h)(5)(i);
c. Revising paragraph (h)(5)(ix); and by
d. Revising paragraph (h)(10)(iii) to read as follows:
Sec. 214.2 Special requirements for admission, extension, and
maintenance of status.
* * * * *
(h) * * *
(5) * * *
(i) Petition for alien to perform agricultural labor or services of
a temporary or seasonal nature (H-2A)--(A) Filing a petition on behalf
of an alien who is not physically present in the United States.
Pursuant to section 103 of the Act, the Attorney General has delegated
the authority to adjudicate H-2A petitions where the beneficiary is
outside of the United States to the Secretary of Labor. Therefore, an
H-2A petition for a foreign agricultural worker who is not physically
present in the United States shall be filed with the United States
Department of Labor pursuant to its regulations at 20 CFR part 655,
subpart B.
(B) H-2A petitions filed for an alien who is in the United States
or for a change of nonimmigrant status to an H-2A nonimmigrant alien.--
(1) General. An H-2A petition filed by a United States employer for an
alien currently in the United States, or an H-2A petition requesting a
change of an alien's nonimmigrant status to that of an H-2A
nonimmigrant alien, must be filed with the Service on Form I-129. The
petition must be filed with a single valid temporary agricultural labor
certification. However, if a certification is denied, domestic labor
subsequently fails to appear at the worksite, and the Department of
Labor denies an appeal under section 218(e)(2) of the Act, the written
denial of appeal shall be considered a certification for this purpose
if filed with evidence that establishes that qualified domestic labor
is unavailable. An H-2A petition may
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be filed by either the employer listed on the certification, the
employer's agent, or the association of United States agricultural
producers named as a joint employer on the certification.
(2) Multiple beneficiaries not present in the United States. The
total number of beneficiaries of a petition or series of petitions
based on the same certification may not exceed the number of workers
indicated on that document. A single petition can include more than one
beneficiary if the total number does not exceed the number of positions
indicated on the relating certification, and all beneficiaries will
obtain a visa at the same consulate or not required to have a visa and
will apply for admission at the same port-of-entry.
(3) Unnamed beneficiaries not present in the United States. The
sole beneficiary of an H-2A petition must be named in the petition. In
a petition for multiple beneficiaries, each beneficiary must be named
unless he or she is not named in the certification and is outside the
United States. Unnamed beneficiaries must be shown on the petition by
total number.
(4) Evidence supporting H-2A petitions filed with the Service. An
H-2A petitioner must show that the proposed employment qualifies as a
basis for H-2A status, and that any named beneficiary qualifies for
that employment. A petition will be automatically denied if filed
without the certification evidence required in paragraph
(h)(5)(i)(B)(1) of this section and, for each named beneficiary,
without the initial evidence required in paragraph (h)(5)(v) of this
section.
(5) Special filing requirements for H-2A petitions filed with the
Service. Where a certification shows joint employers, a petition must
be filed with an attachment showing that each employer has agreed to
the conditions of H-2A eligibility. A petition filed by an agent must
be filed with an attachment in which the employer has authorized the
agent to act on its behalf, has assumed full responsibility for all
representations made by the agent on its behalf, and has agreed to the
conditions of H-2A eligibility.
(C) Petitions for H-2A nonimmigrant aliens requesting an extension
of temporary stay. An H-2A petition requesting an extension of the
beneficiary's temporary stay shall be filed on Form I-129 with the
Service pursuant to paragraph (h)(15)(ii)(C) of this section.
* * * * *
(ix) Substitution of beneficiaries who are terminated prior to the
completion of their authorized stay in H-2A classification. An H-2A
petition may be filed to replace an H-2A worker whose employment has
been terminated prior to the completion of the alien's authorized stay.
In cases where the worker replacing the terminated H-2A worker is
located outside the United States, the authority to adjudicate the H-2A
petition is delegated to the Department of Labor. In such cases, the
petition must be filed pursuant to the Department of Labor's
regulations at 20 CFR part 655, subpart B. In cases where the worker
who will replace the terminated H-2A worker is physically present in
the United States, the H-2A petition for the substitute worker must be
filed with the Service.
* * * * *
(10 * * *
(iii) Notice of denial. The petitioner shall be notified of the
reasons for the denial and of his or her right to appeal the denial of
the petition under 8 CFR part 103. In cases where the Department of
Labor has adjudicated an H-2A petition, the Department of Labor will
notify the petitioner of the reasons for the denial and of his or her
right to file an appeal with the Administrative Appeals Office pursuant
to 8 CFR part 103. There is no appeal from a decision to deny an
extension of stay to the alien.
* * * * *
Dated: December 1, 1998.
Janet Reno,
Attorney General.
[FR Doc. 98-32396 Filed 12-4-98; 8:45 am]
BILLING CODE 4410-10-M
