[Federal Register Volume 63, Number 21 (Monday, February 2, 1998)]
[Proposed Rules]
[Pages 5287-5314]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-2124]
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DEPARTMENT OF JUSTICE
Immigration and Naturalization Service
8 CFR Parts 274a and 299
[INS No. 1890-97]
RIN 1115-AE94
Reduction in the Number of Acceptable Documents and Other Changes
to Employment Verification Requirements
agency: Immigration and Naturalization Service, Justice.
action: Proposed rule.
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summary: The Illegal Immigration Reform and Immigrant Responsibility
Act of 1996 (IIRIRA) amended existing law by eliminating certain
documents currently used in the employment eligibility verification
(Form I-9) process. This rule proposes to shorten the list of documents
acceptable for verification. Currently, newly hired individuals may
choose from among 29 documents to establish their identity and
eligibility to work in the United States. The proposed rule cuts that
number approximately in half. In addition, the proposed rule clarifies
and expands the receipt rule, under which individuals may present a
receipt instead of a required document in certain circumstances. It
also explains that employers may complete the Form I-9 before the time
of hire or at the time of hire, so long as they have made a commitment
to hire and provided that the employer completes the Form I-9 at the
same point in the employment process for all employees. The proposed
rule also details reverification requirements and includes a proposal
for a new employment eligibility reverification form (Form I-9A), adds
the Federal Government to the definition of ``entity,'' and clarifies
the Immigration and Naturalization Service's (Service or INS) subpoena
authority. In addition to making those changes, the Service proposes to
restructure the rule to make it easier to
[[Page 5288]]
understand, use, and cite. A copy of the draft Form I-9, which includes
the proposed Form I-9A and an expanded instruction sheet, is being
published as an attachment to this rule. This rule is intended to
simplify and clarify the verification requirements.
dates: Written comments must be submitted on or before April 3, 1998.
Comments received after this date will be considered if it is practical
to do so, but the Service is able to ensure consideration only for
comments received on or before this date.
addresses: Written comments: Please submit written comments, one
original and two copies, to the Director, Policy Directives and
Instructions Branch, Immigration and Naturalization Service, 425 I
Street, NW., Room 5307, Washington, DC 20536. To ensure proper
handling, please reference INS No. 1890-97 on your correspondence.
Comments are available for public inspection at the above address by
calling (202) 514-3048 to arrange for an appointment.
To assist reviewers, where possible, comments should reference the
specific section or paragraph which the comment addresses. Although
this is not required, it would assist reviewers if, in addition to the
requested copies, a copy of the comments is provided on a floppy disk
in plain text or WordPerfect 5.1 format. Written comments should be
specific, should be confined to issues pertinent to the rule, and
should explain the reason for any recommended change.
Electronic comments: With this proposed rule, the Service is
testing for the first time the possibility of accepting comments
electronically. Comments may be sent using electronic mail (email) to:
[email protected] The need to submit copies of the comments is waived
for comments submitted by email. Electronically filed comments that
conform to the guidelines of this paragraph will be considered part of
the record and accorded the same treatment as comments submitted on
paper. Comments should reference INS No. 1890-97 in the subject line
and the body of the message. The comments should appear either in the
body of the message or in a WordPerfect 5.1 attachment. The Service
cannot guarantee consideration of attachments submitted in other
formats. Comments submitted electronically must also contain the
sender's name, address, and telephone number for possible verification.
for further information contact: Marion Metcalf, Policy Analyst, HQIRT,
425 I Street NW., Washington, DC, 20536; (202) 514-2764; or email at
metcalfm@justice.usdoj.gov. Please note that the email address is for
further information only and may not be used for the submission of
comments.
supplementary information:
Why is the Service Proposing These Changes?
The Service is proposing these changes in response to recent
legislation, IIRIRA, and as a result of an ongoing review which was
triggered by the rule's having been in effect for 10 years. Many of the
proposed changes represent the culmination of a long-term effort to
reduce the number of documents acceptable for employment verification.
Which IIRIRA Provisions Does This Rule Implement?
IIRIRA, enacted on September 30, 1996, makes several amendments to
the employer sanctions provisions of section 274A of the Act. This rule
proposes to implement the amendments in:
(1) Section 412(a) of IIRIRA, which requires a reduction in the
number of documents that may be accepted in the employment verification
process;
(2) Section 412(d) of IIRIRA, which clarifies the applicability of
section 274A of the Act to the Federal Government; and
(3) Section 416 of IIRIRA, which clarifies the Service's authority
to compel by subpoena the appearance of witnesses and the production of
evidence prior to the filing of a complaint.
What About the Other Employment-Related IIRIRA Amendments?
This is one of four rules the Service is proposing to implement
IIRIRA amendments to section 274A of the Act. In addition to this rule,
the Service is developing and will publish proposed rules to:
(1) Implement changes to the application process for obtaining
employment authorization from the Service. The proposed rule will
include a revision to the Application for Employment Authorization,
Form I-765, revisions to Subpart B of Part 274a, and employment
verification requirements for F-1 students authorized to work on
campus;
(2) Implement section 411(a) of IIRIRA, which allows employers who
have made a good faith attempt to comply with a particular employment
verification requirement to correct technical or procedural failures
before such failures are deemed to be violations of the Act;
(3) Implement section 412(b) of IIRIRA, which applies to employers
that are members of an association of two or more employers. For an
individual who is a member of a collective bargaining unit and is
employed under a collective bargaining agreement between one or more
employee organizations and the multi-employer association, the employer
can use a Form I-9 completed by a prior employer that is a member of
the same association, within 3 years (or, if less, the period of time
that the individual is authorized to work in the United States).
What is the Ten-Year Review the Service Is Conducting?
Section 610 of the Regulatory Flexibility Act (RFA) requires
agencies to review rules which have a significant economic impact on a
substantial number of small entities every 10 years. Service
regulations at 8 CFR 274a, Subpart A--Employer Requirements, fall under
this review requirement.
Section 610 of the RCA requires a review of regulations ``to
minimize any significant economic impact of the rule on a substantial
number of small entities in a matter consistent with the stated
objectives of applicable statutes.'' The RFA requires consideration of
five factors: (1) Continued need for the rule; (2) nature of complaints
or comments received from the public; (3) complexity of the rule; (4)
extent to which the rule overlaps, duplicates, or conflicts with other
Federal rules and, to the extent feasible, with State and local
governmental rules; and (5) length of time since the rule has been
evaluated or the degree to which technology, economic conditions, or
other factors have changed in the area affected by the rule.
The Service concluded that it would be in the public interest to
conduct the required review in conjunction with implementing the IIRIRA
amendments. By coordinating the publication of this notice with the
publication of a proposed rule, the Service can give the public a
clearer indication of the kinds of changes under consideration and
provide an opportunity to submit a single set of comments. The Service
began by conducting an internal review of the regulations at 8 CFR part
274a. The Service reviewed past public comment, questions asked of the
Service's Office of Business Liaison, issues surfaced by field offices,
and similar sources. Through this process, the Service identified areas
in the regulations for reconsideration. The results of that internal
review are reflected in the proposed rule. This proposed rule,
therefore, reflects a
[[Page 5289]]
comprehensive reinvention effort, including a restructuring and other
changes intended to address concerns raised by the public during the 10
years that these requirements have been in effect.
How Does This Rule Relate to the Service's Earlier Document Reduction
Proposals?
The Immigration Reform and Control Act (IRCA), enacted in 1986,
amended the Act to require persons or entities to hire only persons who
are eligible to work in the United States. The Act, as amended,
requires persons or entities to verify the work-eligibility and
identity of all new hires. The Employment Eligibility Verification
form, Form I-9, was designated for that purpose. Newly hired
individuals must attest to the status that makes them eligible to work
and present documents that establish their identity and eligibility to
work. Employers, and recruiters or referrers for a fee (as defined in
section 274A(a)(1)(B)(ii) of the Act and 8 CFR 274a.2(a)), must examine
the documents and attest that they appear to be genuine and to relate
to the individual. They may not specify a document or combination of
documents that the individual must present. To do so may violate
section 274B of the Act.
The statutory framework, currently implemented by regulation at 8
CFR 274a.2, provides for three lists of documents: documents that
establish both identity and employment eligibility (List A documents),
documents that establish identity only (List B documents), and
documents that establish work eligibility only (List C documents).
When the law was new, a consensus emerged that a long, inclusive
list of documents would ensure that all persons who are eligible to
work could easily meet the requirements. When the Service first
published implementing regulations in 1987, the Supplementary
Information noted that List B, in particular, had been expanded in
response to public comment. As early as 1990, however, there was
evidence that some employers found the list confusing. In its third
review of the implementation of employer sanctions, the General
Accounting Office (GAO) reported that employer confusion over the
``multiplicity'' of acceptable documents contributed to discrimination
against authorized workers. See Immigration Reform: Employer Sanctions
and the Question of Discrimination, March 29, 1990, General Accounting
Office (GAO/GGD-90-62.
The first step the Service took to correct this problem was to
ensure that the complete list of documents appeared on the Form I-9
when the form was revised in 1991. In 1993, the Service published a
proposed rule to reduce the number of documents acceptable for
verification. That proposed rule eliminated numerous identity documents
from List B and two employment eligibility documents from List C.
Response to the proposed rule among the approximately 35 comments was
mixed. Some commenters expressed support for the changes. Others
questioned the need to reduce the lists, suggesting that confusion over
the lists had been addressed by listing all the documents on the Form
I-9.
In 1995, the Service published a supplement to the proposed rule.
The supplement proposed a few additional changes to the lists of
documents and responded to public comments concerning updating and
reverification procedures for the Form I-9. The supplement received
only five public comments.
The legislative history for IIRIRA indicates that Congress believed
that the changes proposed in the proposed rule and supplement did not
go far enough, stating:
The number of permissible documents has long been subject to
criticism. The INS published a proposed regulation in 1993 (with a
supplement published on June 22, 1995) to reduce the number of
documents from 29 to 16. This proposal, however, does not reflect
the consensus of opinion that documents should be reduced even
further, and that documents that are easily counterfeited should be
eliminated entirely. (See H.R. Rep. No. 104-469, at 404-05 (1996).)
Congress recognized that the Service's ability to reduce the list
of documents further was constrained by the number of documents listed
in the law. In IIRIRA, Congress eliminated several documents while
giving the Attorney General discretion to amend the list by regulation.
These changes are discussed in more detail in the sections pertaining
to the proposed lists of acceptable documents.
On September 4, 1996, the Service published a partial final rule at
61 FR 46534 which added the Employment Authorization Document, Form I-
766 (the I-766 EAD), a new, counterfeit-resistant card, to List A. The
Service began to issue the I-766 EAD in February 1997. The final rule
did not provide sunset dates for any existing List A documents. It did,
however, reinstate a provision at 8 CFR 274a.14, which had been stayed
and suspended, and that terminated miscellaneous employment
authorization documentation issued by the Service prior to June 1,
1987. The latter step was necessary because in the years prior to IRCA,
some of the temporary, non-standard employment authorization documents
issued by the Service did not bear an expiration date. Although the
Service believes that few, if any, individuals were still in 1996
relying upon pre-1987 temporary documents, this action ensures that
such documents are no longer valid.
Comments in response to both the 1993 and 1995 proposals asked the
Service to delay publication of a final rule, citing the potential for
congressional action. This proposed rule implements section 412(a) of
IIRIRA and is separate from the 1993 proposed rule and 1995 supplement.
The 1993 proposed rule and 1995 supplement will not be finalized.
On September 30, an interim rule was published in the Federal
Register at 62 FR 5100. The interim rule was a stopgap measure,
required by the effective date provision for section 412(a) of IIRIRA.
The amendments to the list of documents were to take effect ``with
respect to hiring (or recruitment or referral) occurring on or after
such date (not later than 12 months after the date of enactment of
[IIRIRA] as the Attorney General shall designate.'' Because 12 months
after the date of enactment of IIRIRA was September 30, 1997, the
interim rule designated September 30, 1997, as the effective date for
the amendments. The goal of the interim rule was to maintain the status
quo to the extent possible under the IIRIRA document provision. On
October 6, 1997, President Clinton signed legislation) Pub. L. 105-54)
extending the deadline for the designation of the effective date from
12 months to 18 months. Congress and the administration took this
action in the interest of minimizing disruption and confusion in the
business community. The Service considered withdrawing the interim
rule. It decided, however, that the goal of minimizing confusion was
better served by leaving the interim rule in place. The Service is
withholding enforcement of violations related to the changes while the
interim rule is in place.
What Changes are Made by This Proposed Rule?
This proposed rule contains provisions to implement three IIRIRA
sections and other amendments to subpart A of part 274a. It also
proposes to restructure the regulation to make it easier to use and
cite. The Provisions currently contained in subpart A are proposed to
be reorganized into the following sections.
[[Page 5290]]
Section 274a.1 Definitions.
Section 274a.2 Why is employment verification required and what
does it involve?
Section 274a.3 What documents are acceptable for employment
verification?
Section 274a.4 How long are employers and recruiters or
referrers required to retain the Form I-9 and what must be retained
with it?
Section 274a.5 Under what circumstances may employers and
recruiters or referrers rely on a Form I-9 that an individual
previously completed?
Section 274a.6 What happens when the Government asks to inspect
Forms I-9?
Section 274a.7 What is the prohibition on hiring or contracting
with unauthorized aliens and what defense can be claimed?
Section 274a.8 what are the requirements of state employment
agencies that choose to verify the identity and employment
eligibility of individuals referred for employment by the agency?
Section 274a.9 Can a person or entity require an individual to
provide a financial guarantee or indemnity against potential
liability related to the hiring, recruiting, or referring of the
individual?
Section 274a.10 How are investigations initiated and employers
notified of violations?
Section 274a.11 What penalties may be imposed for violations?
This reorganization is intended to make the regulation easier to
use, understand, and cite. For example, the paragraph that explains
that a parent or guardian may attest to the identity minor under 18 who
cannot present an identity document is currently found at 8 CFR
274a.2(b)(1)(v)(B)(3). The citation for this paragraph becomes 8 CFR
274a.3(b)(2) in the proposed reorganization, a much shorter citation. A
table providing a cross-reference from the new to the old sections
appears at the end of this supplementary information section for ease
of reference.
The Service welcomes comment on this restructuring and suggestions
for other ways to make the regulation easier to use and understand. The
Service recognizes the widespread impact of this regulation and is
committed to making the requirements as straightforward as possible.
The public is invited to submit alternative outlines for consideration
or to suggest other ways to approach the restructuring.
The Service has taken several steps to adopt a ``plain English''
approach to this regulation. This effort was focused more intensely on
the verification provisions currently at Sec. 274a.2 than on the
remainder of the regulation, and the Service is open to comments
concerning whether additional changes would be helpful. In addition,
the public is encouraged to comment on the practice of using question-
and-answer format in the regulation. The proposed rule states the
section headings in question form. The Service seeks comments on
whether this practice is useful to persons who use the regulation and
whether it should be extended to subheadings.
In addition, this proposal encompasses substantive changes intended
to:
(1) Include the Federal Government in the definition of ``entity;''
(2) Clarify the definition of ``recruit for a fee;''
(3) Clarify the timing permitted for completion of the Form I-9;
(4) Specify reverification requirements, in response to public
comment received on the 1993 proposed document reduction rule and 1995
supplement;
(5) Clarify and expand the receipt rule, under which work-eligible
individuals who are unable to present a required document may present a
receipt under certain circumstances;
(6) Shorten the list of documents acceptable for verification;
(7) Require the attachment and retention of copied documentation to
the Form I-9; and
(8) Add a reference to the Service's authority to compel by
subpoena the attendance of witnesses and production of evidence prior
to the filing of a complaint.
The remainder of this supplementary information describes the
changes in the order in which they appear in the proposed rule.
Section 274a.1--Definitions
Entity
The employer sanctions provisions apply to persons and entities.
Section 412(d) of IIRIRA includes any branch of the Federal Government
in the term ``entity.'' Accordingly, this proposed rule amends the
definition of ``entity'' currently in the regulations at 8 CFR
274a.1(b) to include the Federal Government.
Recruit for a Fee
The proposed rule amends the definition of the term ``recruit for a
fee'' at 8 CFR 274a.1(e) to remove overlap between the definitions of
``recruit for a fee'' and ``refer for a fee.'' Currently, the
definition of ``recruit for a fee'' includes the act of soliciting a
person, as well as the act of referring a person, with the intent of
obtaining employment for that person. Thus, for a person or entity to
be deemed to be recruiting, the person or entity must both solicit a
person and refer that person. This overlap clouds the distinction
between the two terms that is carefully maintained in the Act. The
amendment eliminates the overlap by limiting the definition of
``recruit for a fee'' to the act of soliciting a person for a fee with
the intent of obtaining employment for that person.
Recruiter or Referrer for a Fee
The proposed rule adds to 8 CFR 274a.1 a definition for the term
``recruiter or referrer for a fee.'' This language is being moved from
8 CFR 274a.2(a) and does not represent a substantive change.
Employer
The definition of ``employer'' at 8 CFR 274a.1(g) remains
unchanged. However, language from this definition pertaining to an
agent or anyone acting directly or indirectly in the interest of the
employer is currently repeated in Sec. 274a.2 in certain instances
where the term ``employer'' is used. This rule eliminates such language
because it is already a part of the definition of employer and,
therefore, unnecessary to repeat.
Section 274a.2--Why is Employment Verification Required and What Does
It Involve?
This section now contains a discussion of why verification must be
completed on Form I-9, an overview of the verification process,
specifications of the time for completing the Form I-9, and
reverification requirements.
This rule proposes to amend the general discussion in 8 CFR
274a.2(a) introducing the employment verification requirements in
several respects. As proposed, the rule:
(1) Adds references to a form proposed for reverification, the
Employment Eligibility Reverification form, Form I-9A. This proposal is
discussed in further detail in the reverification discussion;
(2) Adds the information that the Form I-9 may now be downloaded
from the Service World Wide Web site; and
(3) Updates the discussion of the beginning date for the
verification requirements in 1987.
Section 274a.2(b) previously covered all of the verification
process. It now contains only an overview of the process and sets forth
the basic requirements for completing Form I-9. It contains language
reinforcing that the employee has the choice of which of the acceptable
documents to present.
What Are the Requirements for Preparers and Translators?
The rule proposes to simplify the requirements for preparers and
translators who assist employees in completing section 1 of the Form I-
9.
[[Page 5291]]
Current regulations provide that preparers or translators must read the
Form I-9 to the individual. The rule proposes to amend the current
regulations by providing that the preparer or translator must provide
such assistance as is necessary for the individual to understand and
complete the form. This change provides needed flexibility for
preparers and translators to adequately assist individuals completing
section 1 of the Form I-9.
What Are the General Requirements for Documents That May Be Presented
in the Verification Process?
The proposed rule includes the statement that only original,
unexpired documents that appear on their face to be genuine and to
relate to the individual presenting the documents can be accepted by
employers and recruiters or referrers for a fee. These requirements
apply to all three lists of documents, as well as to acceptable
receipts. Currently, the regulations permit use of expired United
States passports and expired identity documents. The proposed rule will
require any document presented to be unexpired.
Why Is the Service Proposing To Permit Only Unexpired Documents in All
Cases?
The Service notes that many states have taken steps to improve the
integrity of their document-issuance procedures and the fraud-
resistance of the documents they issue. The United States Department of
State has taken similar steps with respect to passport issuance. If
individuals are allowed to present expired documents, the verification
process gains no benefit from those measures. The Service believes that
the integrity of the verification process will be improved by a
requirement that employees present only unexpired documents.
The Service recognizes that the requirement that individuals
present unexpired documents may impose a cost on persons seeking
employment. The Service anticipates and encourages public comment on
this point. The Service is especially interested in the views of
employers and recruiters or referrers for a fee concerning whether such
a requirement simplifies verification for them, and of persons involved
in assisting welfare recipients in transitioning to work concerning the
burden imposed by the requirement. To that end, what follows is some of
the analysis underlying our decision.
Replacing an expired United States passport is expensive ($55, plus
an additional $30 for expedited service). Because a passport remains
valid for 10 years, however, some employers have questioned whether an
expired passport is a reliable identification document. They note that
a person's appearance can change a great deal in 10 years. In addition,
the Service does not believe that continuing to permit employees to
present expired passports would be of help to most low income
individuals, those for whom the cost of replacement documents would be
the most serious issue, because they would be unlikely to have obtained
a passport in the first place. Finally, the Service believes that most
employers would prefer a simple requirement that documents be unexpired
to a list that included exceptions to the rule.
The Service also researched the cost of obtaining an identity
document in 10 states representing a wide range geographically and in
population size. The cost of an identification card was the primary
focus, because an individual who needs to drive must have an unexpired
driver's license for that purpose, and otherwise an individual would
not need to obtain a driver's license solely for verification purposes.
In all but one of the states contacted, the cost of an identification
card is lower than the cost of a driver's license. The charge for the
card in those states ranges from $4 to $15 and averages around $10. In
four states, the identification card does not expire, so it represents
a one-time cost and the requirement that documents be unexpired would
not be an issue.
Sec. 274a.2(c)--Time for Completing Form I-9
This section states when the Form I-9 must be completed, with
separate paragraphs discussing employers, hires for duration of less
than 3 days, recruiters and referrers, and receipts.
May an Employer Require Completion of Form I-9 Before an Employee
Starts To Work? Must an Employer Always Give Employees 3 Days To
Present Documentation?
This section contains one addition pertaining to when the Form I-9
must be completed. The regulations require section 1 of the Form I-9 to
be completed by the individual at the time of hire and section 2 of the
Form I-9 to be completed by the employer, or recruiter or referrer for
a fee, within 3 business days of the date of hire (unless the duration
of employment is less than 3 business days).
Current regulations are silent as to whether an employer, or
recruiter or referrer for a fee, may complete the Form I-9 prior to the
date that the individual is hired. in the past, employers have asked if
they are permitted to require individuals to present the necessary
documentation at the time of hire rather than within 3 business days of
the hire. Service policy has been stated in the Handbook for Employers,
the M-274. The Handbook for Employers states that an employer may
complete the Form I-9 before the day that an individual starts work,
but after the individual has been offered employment and has accepted
the job, provided that the employer completes the Form I-9 at the same
point in the employment process for all employees. The proposed rule
incorporates in the regulations this longstanding Service
interpretation of the employment verification requirements. The
proposed rule permits the employer, or recruiter or referrer for a fee,
to complete the Form I-9 prior to the date that an individual begins
work, so long as the Form I-9 is completed after the hiring commitment
is made and this practice is uniformly applied to all employees.
Section 274a.2(d)--Reverification of Employment Eligibility When
Employment Authorization Expires
Current regulations require employers and recruiters or referrers
for a fee to reverify on the Form I-9 if an individual's employment
authorization expires. Reverification on the Form I-9 must occur no
later than the date work authorization expires. The Service receives
numerous questions from the public concerning this requirement. In
response to questions and comments, the Service is attempting to
clarify the reverification requirements in this proposed rule.
What Is the Form I-9A?
The Service proposes creation of the Form I-9A as a supplement to
the Form I-9 which may be used for reverification. Form I-9A is
structured similarly to the Form I-9, in that it has a section to be
completed by the employee, a preparer/translator block, and a section
to be completed by the employer. Form I-9A is shorter, however,
containing only the information needed for reverification. The form
provides blocks for two reverifications and may be duplicated as
needed.
Why Is the Service Proposing Creation of Form I-9A?
The Service does not seek to impose an increased burden on the
public by proposing this supplemental form. Rather, the Service is
attempting to respond to earlier comments from employers. Currently,
the updating and
[[Page 5292]]
reverification section on the Form I-9 contains an attestation for the
employer only. In response to the 1993 proposed rule, several employers
expressed the belief that the employee also should be required to
attest to his or her continuing eligibility to be employed. This
suggestion was incorporated in the Service's 1995 supplement. Adding an
employee attestation to the updating and reverification section,
however, also made it necessary to add a preparer/translator block. The
result was a form that was crowded and difficult to complete. The
Service considered simply requiring employers to complete a new Form I-
9 when they reverified. Before doing so, however, the Service wished to
obtain suggestions from employers concerning whether a reverification
form would be more convenient. It seemed possible that a reverification
form would help employers better understand when reverification is--and
is not--required. For example, some employers apparently reverify
identity documents when they expire, even though this is not required.
Form I-9A provides no space for entering information about identity
documents, which helps to reinforce that they need not be reverified.
Although Form I-9A is intended to simplify reverification, the
Service seeks comment on whether employers would prefer to use the Form
I-9 for reverification as well as verification at the time of hire. The
proposed rule makes it clear that employers may elect to either use
Form I-9A or complete a new Form I-9 for verification. The Service
would appreciate comment on whether employers have a preference. If the
comments reveal a strong and clear preference to use Form I-9 for
reverification, and against creation of an additional form, the Service
will not promulgate Form I-9A.
Who Is Exempt From Reverification?
The proposed rule also makes it clear that reverification does not
apply to United States citizens or nationals or to lawful permanent
residents. There is one exception: lawful permanent residents who
present a foreign passport with a temporary I-551 stamp must present
the actual Form I-551 when the stamp expires. However, under no other
circumstance is reverification necessary for lawful permanent
residents, even if their Alien Registration Receipt Card or Permanent
Resident Card, Form I-551 expires or they naturalize.
How Does an Employer Know When Work Authorization Expires?
The proposed rule also states that an expiration date for work
authorization, triggering the reverification requirement, may appear in
either section 1 or section 2 of the Form I-9 or Form I-9A. Some
employers have expressed uncertainty about whether they are responsible
for information in both sections of the form.
Section 274a.3--What Documents Are Acceptable for Employment
Verification?
To implement section 412(a) of IIRIRA, and meet the Service's
longstanding document-reduction objectives, this rule proposes to amend
the current regulations governing the lists of documents acceptable in
the employment verification process.
Section 274a.3(a)--Documents That Establish Both Identity and
Employment Authorization (List A)
How Does IIRRA Affect List A Documents?
Section 412(a) of IIRIRA amends section 274A(b)(1)(B) of the Act,
which governs the documents that individuals may present to establish
both identity and employment eligibility (List A). Section 412(a) of
IIRIRA eliminates three documents from the statutory list: (1)
Certificate of United States citizenship; (2) certificate of
naturalization; and (3) an unexpired foreign passport with an
endorsement that indicates eligibility for employment. The documents
remaining on the list by statute are: a United States passport,
resident alien card, alien registration card, or other document
designated by the Attorney General.
What Conditions Must a Document Meet To Be Added to List A?
IIRIRA restricts the Attorney General's authority to add documents
to List A. Each document designated by the Attorney General must meet
three conditions. The document must:
(1) Bear a photograph and personal identification information;
(2) Constitute evidence of employment authorization, and
(3) Contain ``security features to make it resistant to tampering,
counterfeiting, and fraudulent use.''
What Documents Will Be on List A Under the Proposed Rule?
The Service proposes to amend the current regulations to limit the
documents that establish both identity and employment authorization to
the following documents. Documents preceded by an asterisk are proposed
to be added by regulation. The other documents are listed in the law,
as amended by IIRIRA. Documents proposed for List A are:
(1) A United States passport;
(2) An Alien Registration Receipt Card or Permanent Resident Card,
Form I-551;
*(3) A foreign passport with a Temporary I-551 stamp;
*(4) An employment authorization document issued by the Service
which contains a photograph (Form I-766, For I-688, For I-688A, or Form
I-688B); and,
*(5) In the case of a nonimmigrant alien authorized to work only
for a specific employer, a foreign passport with an Arrival-Departure
Record,--Form I-94, bearing the same name as the passport and
containing an endorsement of the alien's nonimmigrant status and the
name of the approved employer with whom employment is authorized, so
long as the period of endorsement has not yet expired and the proposed
employment is not in conflict with any restrictions or limitations
identified on the Form I-94.
What is the Service's Basis for including INS-Issued Employment
Authorization Documents?
This proposed rule designates an employment authorization document,
Forms I-766, I-688, I-688A, and I-688B, as an acceptable List A
document. Forms I-766, I-688, I-688A, and I-688B meet the three
statutory conditions that limit the Attorney General's authority to
designate additional List A documents. First, these Service-issued
forms all contain a photograph and additional identifying information
of the bearer, including a fingerprint of the bearer and the bearer's
date of birth. Second, the forms are evidence that the Service has
granted employment authorization to the bearer. Third, the Service has
designed each of the forms to contain security features that make them
resistant to tampering, counterfeiting, and fraudulent use.
What Is the Service's Basis for Including Foreign Passports?
The Service proposes in this rule to designate foreign passports as
acceptable evidence of identity and employment authorization, but
limited to two instances. The first relates to aliens lawfully admitted
for permanent residence under section 101(a)(20) of the Act. Persons
newly admitted for or adjusted to lawful permanent residence may
receive evidence of that status through a stamp in their passports. The
stamp serves as temporary evidence of
[[Page 5293]]
permanent resident status until the individual receives Form I-551 from
the Service. If the stamped endorsement includes an expiration date,
the document must be reverified
In the newest versions of the Form I-551, the cards also bear an
expiration date but need not be reverified when the card expires. Only
the stamp must be reverified when expired. (See the discussion of the
receipt rule, below, for discussion of the temporary I-551 stamp when
it is placed on Form I-94 instead of a foreign passport.)
The second instance in which a foreign passport is designated as a
List A document is when it is presented with Form I-94 indicating
authorization to work for a specific employer. This will be an
acceptable document only for persons whose employment is incident to
status and authorized with a specific employer, and may be accepted
only by the employer for whom the individual is authorized to work.
Aliens in classes identified in Sec. 274a.12(b) are authorized
employment incident to status with a specific employer. The Service
does not currently require aliens in these classes to obtain a List A
employment authorization document--i.e., an I-688B or I-766 EAD, and
does not plan to implement such a requirement at this time. The
proposed rule specifies the documentation the Service will issue to
nonimmigrant alien classes that will not be issued an I-766 EAD. This
documentation will be the Form I-94, with an endorsement that specifies
the employer with which work is authorized. The Service will modify its
procedures for endorsing the departure portion of nonimmigrants' Form
I-94, so that the name of the approved employer will appear on the
document. The employer's name will also be noted on the arrival portion
of the Form I-94 and entered into Service databases for verification
and record-keeping purposes.
The IIRIRA provides that the Attorney General ``may prohibit or
place conditions on'' a specific document if the Attorney General finds
that the document ``does not reliably establish [employment]
authorization of identity or is being used fraudulently to an
unacceptable degree.'' The Service finds that documentation issued to
or used by nonimmigrants in these classes does not reliably establish
work eligibility except for employment with a specific employer. The
proposed rule, therefore, restricts the foreign passport with an I-94
bearing employer-specific work authorization, stipulating that it may
be used only for purposes of establishing eligibility to work for the
approved employer. This restriction does not relieve employers of the
requirement to abide by any terms or conditions specified on any
documentation issued by the Service. Similarly, the restrictions do not
permit employers to require individuals to present a specific document.
The restrictions do mean that a Form I-94 endorsed to permit employment
with a specific employer may not be accepted as evidence of eligibility
to work for other employers.
The Service finds that, in those two instances, foreign passports
meet the three conditions that authorize the Attorney General to add
documents to List A. First, foreign passports bear a photograph and
identifying information (such as the birthdate and physical
characteristics of the bearer). Second, they are evidence of employment
authorization when they bear a temporary I-551 stamp or are presented
with a Form I-94 endorsed to authorize employment with a specific
employer. Finally, foreign passports contain security features to make
them resistant to tampering, counterfeiting, and fraudulent use.
Temporary I-551 stamps are made with secure ink and meet internal
Service standards. An I-94 is acceptable with a foreign passport only
in employer-specific situations in which the employer examining the I-
94 for employment verification purposes is the same employer named on
the I-94. The Service also notes that, in both these instances, the
employers are required to reverify the individual's eligibility to work
when the stamped authorization bears an expiration.
The proposed restrictions on Form I-94 pose special issues for two
categories of nonimmigrants, students (F-1) and exchange visitors (J-
1). Documentation for those categories will be addressed further in the
forthcoming proposed amendments to Part 274a, Subpart B.
If the Service Has a New Employment Authorization Document, Why Are the
Older Ones Still on This list?
The Service has been planning for several years to phase out use of
three documents: (1) Temporary Resident Card, Form I-688; (2)
Employment Authorization Card, Form I-688A; and (3) Employment
Authorization Document, Form I-688B. As noted, on September 4, 1996,
the Service published a final rule adding Form I-766 to List A and
began to issue the I-766 EAD in February 1997. Through forthcoming
proposed amendments to 8 CFR 274a, Subpart B, the Service will discuss
its plans to consolidate card production. This consolidation will allow
the Service to replace Forms I-688, I-688A, and I-688B with the I-766
EAD as the earlier documents expire. The Service anticipates phasing
out these documents through the normal card replacement process. No
document recall is planned. Based upon comments received in response to
the 1993 proposed rule and 1995 supplement, the Service is not
proposing a termination date for the validity of those documents at
this time. The documents remain on List A in this proposed rule. At the
appropriate time in the future, the Service will remove these documents
from List A through rulemaking and update the Form I-9.
What Documents Are Being Removed From List A and Why?
The proposed rule does not designate the certificate of United
States citizenship, certificate of naturalization, re-entry permit, and
refugee travel document as acceptable List A documents. These documents
were removed by the interim rule. The Service does not believe that
these documents meet the three conditions required for the Attorney
General to designate them as List A documents. Holders of these
documents can easily obtain other acceptable documents which are more
readily recognized by employers. Naturalized citizens are eligible for
the same documents as other United States citizens, such as a passport
and unrestricted social security card. Lawful permanent residents and
refugees are eligible for an unrestricted social security card and,
respectively, Form I-551 and Form I-688A or Form I-766.
What Happened to the Earliest Versions of the ``Green Card,'' Form I-
151?
The Service phased out Form I-151, Alien Registration Receipt Card,
as evidence of status as a lawful permanent resident effective March
20, 1996. Currently, Form I-551 is the only valid evidence of lawful
permanent resident status. Employers are not required to reverify
employees who were hired prior to March 20, 1996, and who presented
Form I-151. However, employers and recruiters or referrers for a fee
should not have accepted Form I-151 from employees hired after that
date.
Section 274a.3(b)--Documents That Establish Identity Only (List B)
Does IIRIRA Affect List B Documents?
The IIRIRA made no statutory changes to List B documents.
Section 274A(b)(1)(D) of the Act specifies the following documents
as acceptable documents for establishing identity:
[[Page 5294]]
(1) A driver's license or similar identification document issued by
a state that contains a photograph or other identifying information, or
(2) For individuals under the age of 16 or in a state that does not
issue an appropriate identification document, documentation of personal
identity found by the Attorney General to be reliable.
Despite this limited list, current regulations permit a wide range
of acceptable documents. List B currently is the longest of the three
lists, and many of the documents either are unfamiliar to many
employers or vary widely in appearance and the features they contain.
In this proposed rule, the Service is retaining documents previously
added to List B by regulation only in instances where there is an
identifiable class for which elimination of the document could leave
the class without an acceptable document to establish identity.
What Documents Will Be on List B Under the Proposed Rule?
The Service proposes to amend the regulations by reducing the list
to the following documents:
(1) A state-issued driver's license or identification card;
(2) A Native American tribal document; and
(3) In the case of a Canadian nonimmigrant authorized to work
incident to status with a specific employer, a Canadian driver's
license or provincial identification card.
What Documents Are Begin Retained on List B by Regulation and Why?
The Service identified two documents previously added to List B by
regulation for which there is an identifiable class that could be left
without an acceptable document to establish identity if the document
were removed from the list. The documents are: (1) A Native American
tribal document and (2) a Canadian driver's license or provincial
identification card.
Why Are Native American Tribal Documents Included on List B?
The proposed rule retains Native American tribal documents on both
List B and List C (documents evidencing work authorization only). The
removal of Native American tribal documents from the list of acceptable
documents would pose a particular problem for Canadian-born American
Indians who continue to reside in Canada, but who enter the United
States temporarily for employment purposes under the terms of section
289 of the Act. These individuals are not required to present a
passport for admission to the United States and would not necessarily
have other identification documents acceptable for employment
verification requirements.
Over the years, the Service has received many inquiries concerning
why these documents appear on both List B and List C instead of List A.
Until the enactment of IIRIRA, the Attorney General lacked the
authority to designate List A documents beyond those specifically
listed in the Act. Section 412(a) of IIRIRA extends this authority to
the Attorney General. However, as noted, documents added to List A must
meet three conditions, including that the document must contain
security features. The number of authorities issuing tribal documents
is too numerous, and the documentation too varied, for the Service to
make a finding that tribal documents, as a class, meet all three
conditions. Therefore, the Service is continuing the existing practice
of including those documents on both List B and List C.
Why are Canadian Driver's Licenses and Identification Documents
Included on List B?
The proposed rule includes on List B a driver's license or
identification card issued by a Canadian Government authority. This
rule proposes to make such documents acceptable only in the case of a
Canadian nonimmigrant authorized to work incident to status with a
specific employer. Through reciprocal international agreements and
under Service regulations at 8 CFR 212.1(a), a visa generally is not
required of Canadian nationals and aliens having a common nationality
with nationals of Canada, and a passport is required of these aliens
only when traveling from outside the Western Hemisphere. However, the
Service controls and documents the arrival of Canadian nationals and
aliens having a common nationality with nationals of Canada who
establish admissibility in a nonimmigrant classification which entitles
them to work with a specific employer (for example, as a professional
under the North American Free Trade Agreement [TN], or as an
intracompany transferee [L-1], or as a temporary worker [H-2B].) The
Service issues the Form I-94 to these aliens as a record of lawful
admission and as evidence of authorization to work in the United States
with a specific employer. The Service also issues the Form I-94 to
nationals of all other countries to document and control admission of
nonimmigrants. The Form I-94 is generally placed in the passport of the
nonimmigrant alien.
Because aliens of Canadian nationality are not required to present
a passport for admission to the United States except when traveling
from outside the Western Hemisphere, the Service is retaining on List B
identity documents issued by Canadian authorities. However, to avoid
confusion about the eligibility of Canadian nationals to engage in
employment in the United States, the Service is adding language to make
it clear that Canadian identification documents may be used only in the
limited instance of a Canadian national admitted as a nonimmigrant who
is authorized to work incident to nonimmigrant status with a specific
employer. In other situations, authorized Canadian nationals would have
other acceptable documentation. For instance, Canadian nationals who
are lawful permanent residents would have been issued a Form I-551.
Over the years, the Service has received many inquiries concerning
why Mexican driver's licenses are not included on List B. No reciprocal
agreements exist between the United States and Mexico which would
permit the use of Mexican driver's licenses or identification cards as
List B documents.
What Documents Are Being Removed From List B and Why?
The Service proposes to remove the following documents from List B:
(1) An identification card issued by Federal or local authorities;
(2) A school identification card with a photograph;
(3) A voter's registration card;
(4) A United States military card or draft record;
(5) A military dependent's identification card;
(6) A United States Coast Guard Merchant Mariner Card; and
(7) For individuals under age 18 who are unable to produce an
identity document, a school record or report card, clinic doctor or
hospital record, and daycare or nursery school record.
When the Service published the 1993 proposed rule and 1995
supplement, several comments expressed concern about the elimination of
specific documents and the special list for minors. Current
regulations, however, were developed when not all states issued a non-
driver's identification card. At present, all states do so. Therefore,
this justification for an expanded list no longer exists. The Service
believes that the proposed list will greatly reduce confusion for
employers while enabling all work-eligible individuals to establish
their identity for verification purposes.
[[Page 5295]]
Will It Still Be Possible for Someone Else To Attest to the Identity of
a Minor or Person With a Disability if They Cannot Present an
Acceptable Identity Document?
Yes. Current regulations permit employers, and recruiters or
referrers for a fee, to accept an attestation concerning the identity
of minors under the age of 18 and persons with disabilities who are
unable to produce one of the acceptable identity documents. The Service
is proposing no substantive changes to these provisions. Because the
provision for persons with disabilities was developed prior to passage
of the Americans with Disabilities Act (ADA), however, the proposed
rule replaces terminology that pre-dates the ADA with the terms and
definition used in the ADA.
Section 274a.3(c)--Documents That Establish Employment Authorization
Only (List C)
How Does IIRIRA Affect List C Documents?
Section 412(a) of IIRIRA amends section 274A(b)(1)(C) of the Act by
removing the certificate of birth in the United States (or other
certificate found acceptable by the Attorney General as establishing
United States nationality at birth) from the list of acceptable
documents that may be used to establish employment authorization for
compliance with the employment verification requirements. Acceptable
List C documents are: a social security account number card (other than
one which specifies on its face that the issuance of the card does not
authorize employment in the United States) or other documentation found
acceptable by the Attorney General that evidences employment
authorization.
What Documents Will Be on List C Under the Proposed Rule?
The Service proposes to limit acceptable List C documents to the
following:
(1) A social security account number care (other than such a card
which specifies on the face that the issuance of the card does not
authorize employment in the United States);
(2) A Native American tribal document; and
(3) In the case of a nonimmigrant alien authorized to work only for
a specific employer, an Arrival-Departure Record, Form I-94, containing
an endorsement of the alien's nonimmigrant status and the name of the
approved employer with whom employment is authorized, so long as the
period of endorsement has not yet expired and the proposed employment
is not in conflict with any restrictions or limitations identified on
the Form I-94.
Why Is the Service Changing the Language Describing an Acceptable
Social Security Card?
Current regulations designate the ``social security number card
other than one which has printed on its face `not valid for employment
purposes' '' as an acceptable List C document. In accordance with
section 412(a) of IIRIRA this proposed rule retains the social security
account number card on List C. The proposed rule, however, amends the
language in the regulations so that it mirrors the statutory language.
The proposed rule changes the term, ``social security number card,'' to
``social security account number card,'' as is stated in the Act and
IIRIRA. In addition, the proposed rule replaces the phrase, ``other
than one which has printed on its face `not valid for employment
purposes,''' with the statutory language, ``(other than such a card
which specifies on the face that the issuance of the card does not
authorize employment in the United States).''
The Social Security Administration (SSA) issues cards with the
legend stated in the regulations, ``not valid for employment
purposes,'' to individuals from other countries who are lawfully
admitted to the United States without work authorization, but who need
a number because of a Federal, state, or local law requiring a social
security number to get a benefit or service. In 1992, SSA began issuing
cards that bear the legend ``valid for work only with INS
authorization'' to people who are admitted to the United States on a
temporary basis with authorization to work. This proposed rule amends
the language in the regulations to mirror the language in the Act and
IIRIRA and to clarify that cards bearing either restrictive legend are
not acceptable List C documents.
What Documents Are Being Added to List C by Regulation and Why?
Under section 274A(b)(1)(C)(ii) of the Act, as amended, it is
within the Attorney General's authority to designate ``other
documentation evidencing authorization of employment in the United
States which the Attorney General finds, by regulation, to be
acceptable for purposes of this section.'' Exercising that authority,
the Service finds that the Native American tribal document and Form I-
94 with endorsement of employment authorization are acceptable List C
documents. As noted in the discussion of Native American tribal
documents under List B, elimination of the documents from List C could
leave certain Native Americans without an acceptable document to
establish their eligibility to work. As noted in the discussion of Form
I-94 under List A, Form I-94 will be the document issued to
nonimmigrant aliens who are authorized to work only for a specific
employer. Only the employer for whom the work is authorized will be
permitted to accept the document.
What Documents Are Being Removed From List C and Why?
The Service proposes to eliminate the following documents as
acceptable for establishing employment authorization:
(1) A Certification of Birth Abroad issued by the Department of
State, Form FS-545;
(2) A Certification of Birth Abroad issued by the Department of
State, Form DS-1350;
(3) A birth certificate issued by a State, county, municipal
authority or outlaying possession of the United States bearing an
official seal;
(4) A United States citizen Identification Card, INS Form I-197;
(5) An Identification card for use of a resident citizen in the
United States, INS Form I-179; and
(6) An unexpired employment authorization document issued by the
Service.
The IIRIRA provides for additions to List C by regulation of
``other documentation found acceptable by the Attorney General that
evidences employment authorization.'' The Service recognizes that
elimination of the birth certificate, in particular, may generate
public comment.
The Service notes, however, that Congress specifically eliminated
this document from the list, based on its concern that, ``Birth
certificates, even if issued by lawful authority, may be fraudulent in
that they do not belong to the person who has requested that one be
issued. This problem is exacerbated by the large number of
authorities--numbering in the thousands--that issued birth
certificates.'' (See H.R. Rep. No. 104-469, at 404-05 (1996).)
In addition to believing that eliminating the birth certificate is
consistent with Congressional intent, the Service has additional
reasons for taking this action. Service officers have expressed concern
by the lack of uniform controls among the states over the issuance of
replacement birth certificates.
Officers are encountering situations in which unauthorized aliens
have used fraudulently obtained birth certificates
[[Page 5296]]
to falsely claim United States citizenship and gain employment.
The other documents proposed for removal also pose burdens to
employers because it can be difficult for employers to assess whether
they appear genuine on their face. The certifications of birth abroad,
issued by the State Department, are not commonly recognized documents
with which the general public is familiar. The Service no longer issues
the citizen identification cards which were on the list. Legitimate
holders of the documents being removed are all eligible for an
unrestricted social security card, which allows them to establish their
eligibility to work in the United States. The Service believes that
employers will find a shorter list of documents easier to work with.
In this proposed rule, the existing general category of documents
characterized as ``employment authorization documents issued by the
Service'' is no longer designated as an acceptable List C document.
This general category was included in the current regulations while the
Service was taking steps to standardize the employment authorization
documents that it issues. The Service has taken several steps to issue
uniform documentation. The Service introduced the I-688B EAD in 1989.
The I-766 EAD, introduced in February of 1997, represents further
improvement because the centralized process is more secure and
efficient. These documents are List A documents which establish both
identity and eligibility to work. Moreover, with his proposed rule, the
Service announces additional steps, such as the endorsement of Form I-
94 when it is issued to a nonimmigrant who is authorized to work for a
specific employer. The Service believes that a general category for
Service-issued employment authorization documents is no longer
necessary.
Section 274a.3(d)--Receipts
Current regulations permit individuals to present a receipt showing
that they have applied for a replacement document if the individual is
unable to provide a required document or documents at the time of hire.
This provision provides flexibility in situations where, for example,
an individual has lost a document. The Service has received numerous
questions about the applicability of this provision to various
situations. The proposed rule attempt to clarify the circumstances in
which a receipt may be accepted.
The interim rule amended the receipt rule to designate three
instances in which receipts are acceptable and extended the receipt
rule to reverification. The proposed rule restructures the receipt rule
and moves this provision to the section of the regulations containing
the lists of acceptable documents.
Employers have asked whether they must accept a receipt if an
employee presents one. In the new structure, receipts are discussed in
the same section as Lists A, B, and C to emphazie that the same
standards that apply to List A, B, and C documents also apply to
receipts. Further, the rule indicates that an employee has the choice
of which documents to present. Just as with List A, B, and C documents,
if the receipt appears to be genuine and to relate to the individual
presenting it, the employer cannot ask for more or different documents
and must accept the receipt. Otherwise, the employer may be engaging in
an unfair immigration-related employment practice in violation of
section 274B of the Act. The receipt presented, however, is only
acceptable if it is one that is listed in the regulations.
Like the interim rule, the proposed rule also extends the receipt
rule to reverification and identifies circumstances where a receipt is
not acceptable.
In What Circumstances are Receipts Acceptable?
The proposed rule permits the use of receipts in three instances:
(1) a receipt for an application for a replacement document,
(2) A temporary I-551 stamp on a Form I-94, and
(3) A refugee admission stamp on a Form I-94.
Receipt for Application for a Replacement Document
The first instance in which a receipt is acceptable is when the
individual presents a receipt for the application for a replacement
document. An application for an initial or extension List A or C
document, however, is not acceptable, except for nonimmigrants as
provided under 8 CFR 274a.12(b)(20). The latter provision permits
continued employment for a temporary period of certain nonimmigrants
authorized to work for a specific employer incident to status, in
situations where a timely application has been filed with the Service
and has not been timely adjudicated.
Temporary Evidence of Permanent Resident Status on Form I-94
The second instance is the use of Form I-94 as temporary evidence
of permanent resident status. If an alien is not in possession of his
or her passport, and requires evidence of lawful permanent resident
status, the Service may issue the alien the arrival portion of a Form
I-94 with a temporary I-551 stamp and the alien's picture affixed.
Although this document provides temporary evidence of permanent
resident status, it does not contain security features and, therefore,
does not meet the statutory requirements for inclusion on List A. The
Services, therefore, proposes to designate Form I-94 with a temporary
I-551 stamp as a receipt for Form I-551 for 180 days.
Special Rule for Refugees
The third instance is when the departure portion of Form I-94
contains a refugee admission stamp. The Service recognizes the
importance of newly admitted refugees being able to seek employment
promptly upon arrival in the United States. The Service has been
working with SSA to ensure prompt issuance to refugees of social
security cards which carry no employment restrictions. In most
instances, the Service believes that refugees will receive social
security cards timely and will be able to present them to employers.
The Service also intends to give refugees the option of obtaining an I-
766 EAD, but recognizes that in most instances refugees will be able to
obtain a social security card faster. Refugees may wish to obtain an I-
766 EAD so that they will have a Service-issued document with a
photograph. In order to ensure that refugees are still able to work if
they encounter delays in obtaining cards from either SSA or the
Service, the Service proposes a special receipt rule. Under this rule,
a Form I-94 with a refugee admission stamp will be a receipt evidencing
eligibility to work valid for 90 days from the date of hire. It will
not be a receipt for a specific document. The refugees will be
permitted to present either an unrestricted social security card or an
I-766 EAD at the end of the 90-day receipt period. If the refugee
presents a social security card, the refugee will also need to present
a List B document. If the refugee presents an I-766 EAD, he or she does
not need to present another document.
Are There Circumstances Where a Receipt is not Acceptable?
The proposed rule notes two exceptions in which the special rules
for receipts do not apply. These are if:
(1) The individual indicates or the employer, or recruiter or
referrer for a fee, has actual or constructive
[[Page 5297]]
knowledge that the individual is not authorized to work; or
(2) The employment is for a duration of less than 3 business days.
The Services considered changing the term ``receipt'' in light of
the expanded definition contained in this proposed rule. The Service's
impression, however, is that employers are familiar with this term as
it is used in the verification context. The Service seeks comment on
whether other terminology would be clearer or the current term is
preferred.
Section 274a.4 How long are Employers and Recruiters or Referrers
Required to Retain the Form I-9 and What Must be Retained With it?
The proposed rule breaks what was formerly Sec. 274a.2 into two
sections, pertaining to retention (Sec. 274a.4) and inspection
(Sec. 274a.6). The retention section addresses general requirements for
employers and recruiters or referrers for a fee, reverification,
copying of documentation, and limitations on the use of the Form I-9.
Most of these provisions remain unchanged in content with the current
rule. One change is to specify that a form used for reverification must
be attached to the initial Form I-9 relating to the individual.
Another change relates to photocopies of documents. Employers and
recruiters or referrers for a fee may, but are not required to, copy a
document presented by an individual solely for the purpose of complying
with the verification requirements. Current regulations state both that
employers and recruiters or referrers for a fee should retain the
copies with the Form I-9 and that the retention requirements do not
apply to copies. The proposed rule removes this apparent inconsistency
by providing that employers and recruiters or referrers for a fee who
elect to photocopy documentation must attach the photocopies to the I-9
and I-9A form and present them with the forms upon inspection. This
change is necessary to clarify the retention requirements for
photocopies of documentation in response to investigation issues that
have confronted the Service and the Office of Special Counsel for
Immigration-Related Unfair Employment Practices (OSC).
Section 274a.5 Under What Circumstances may Employers and Recruiters
or Referrers Rely on a Form I-9 That an Individual Previously
Completed?
This section addresses requirements in the cases of continuing
employment (formerly Sec. 274a.2(b)(1)(viii)), hiring an individual who
was previously employed (formerly Sec. 274a.2(c)), and recruiting or
referring for a fee an individual who was previously recruited or
referred (formerly Sec. 274a.2(d)). The only substantive change the
Service proposes is to eliminate language that could be construed as
requiring recruiters and referrers to reverify all referred individuals
whose work authorization expires. The proposed rule requires
reverification only in the instance of an individual who was previously
recruited or referred.
Section 274a.6 What Happens When the Government Asks to Inspect Forms
I-9?
This section addresses the 3-day notice of inspection, the
obligation to make records available, standards for microfilm and
microfiche, and the consequences of failure to comply with an
inspection. Most of these paragraphs were previously contained in
Sec. 274a.2(b)(2).
What Changes are Made in the Proposed Rule?
Section 416 of IIRIRA clarifies the Service's subpoena authority by
stating that, ``immigration officers designated by the Commissioner may
compel by subpoena the attendance of witnesses and the production of
evidence at any designated place prior to the filing of a complaint * *
*.'' The current regulations at Sec. 274a.2(b)(2)(ii) include a
reference to the Service's subpoena authority, but they refer to the
production of documents rather than the production of evidence and do
not include a reference to the attendance of witnesses. This rule
proposes to amend the current regulations to include a reference to the
attendance of witnesses, replace the phrase, ``production of
documents,'' with the phrase, ``production of evidence,'' and include a
reference to the exercise of the subpoena authority prior to the filing
of a complaint with the Office of the Chief Administrative Hearing
Officer based upon a request for a hearing made by the employer, or
recruiter or referrer for a fee, following service of the Notice of
Intent to Fine. The proposed rule also simplifies the statement in the
regulations regarding the Service's subpoena authority so that it is
clear that the Service has the authority to compel by subpoena: Forms
I-9 that a person or entity refuses to produce upon inspection; Forms
I-9 that are the subject of an inspection whether or not the person or
entity refuses to produce them; the production of any evidence; and the
attendance of witnesses.
Will the Service Allow Electronic Storage of the Form I-9?
In the last several years, the Service has been in dialogue with
the public over changes in information technology and their possible
applicability to the Form I-9. One result of these discussions was the
interim rule, published October 7, 1996, permitting electronic
generation of a blank Form I-9. Following publication of this rule, the
Service began to make the Form I-9 available for downloading from its
world wide web site on the Internet (www.ins.usdoj.gov).
Employers have also expressed interest in electronic storage of the
Form I-9. The Service is currently preparing to conduct a demonstration
project to assess electronic storage of Forms I-9. In reviewing this
technology, the Service is aware that many employers now scan and/or
electronically store many of their personnel records.
The Form I-9, however, raises special issues because it requires
two signatures. Fraudulent preparation of the form is a common issue in
the Service's investigations. For example, during an investigation an
unauthorized alien may claim that the employer did not complete a Form
I-9 at the time of hire, while the employer presents a Form I-9 for the
employee and claims that the employee lied about his unauthorized
status. The determination of whose account is true is central to the
question of liability for penalties. Investigations of such cases may
require forensic analysis to determine the authenticity of the
signatures. Scanned signatures provide adequate detail for such
analysis only at a rate of resolution higher than those used for most
records scanning systems. The Service is continuing to monitor
developments in scanning and other technology. At present, however, the
Service is considering scanned records for purposes of I-9 retention
only in the context of the demonstration project.
Sec. 274a.7 What is the Prohibition on Hiring or Contracting With
Unauthorized Aliens and What Defense can be Claimed?
This section contains the following three provisions pertaining to
hiring or contracting and unauthorized aliens:
(1) Prohibition on the hiring and continuing employment of
unauthorized aliens, currently at 8 CFR 274a.3;
(2) Use of labor through contract, currently at 8 CFR 274a.5; and
(3) Good faith defense to charge of knowingly hiring an
unauthorized alien, currently at 8 CFR 274a.4.
The proposed rule amends the paragraph currently at 8 CFR 274a.3 by
[[Page 5298]]
adding a reference to the prohibition on the hiring of unauthorized
aliens provided by section 274A(a) (1) (A) of the Act. It also
clarifies that an employer's ``knowledge'' that an employee is
unauthorized can be either actual or constructive for the provision
prohibiting the hiring or continued employment of an unauthorized alien
to be violated. Cross-references to the verification sections are
amended to reflect the changes proposed by the rule. No other
substantive changes were made.
Section 274a.8 What are the Requirements of State Employment Agencies
that Choose to Verify the Identity and Employment Eligibility of
Individuals Referred for Employment by the Agency?
This section contains the state agency certification requirements
currently contained at 8 CFR 274.6. The Service proposes no changes to
the contents of this section, in part because the Service is not aware
of any state agencies currently issuing certifications under this
provision. Under the Act, an employer may rely upon a state agency
certification instead of completing Form I-9. The requirements in this
section were developed during the first years that the verification
requirements were in effect. In light of recent welfare reform efforts,
the Service is prepared to revisit the requirements if there is new
interest among state agencies in performing verifications for
employers. The Service invites comment from state agencies concerning
changes to the regulations that would facilitate their ability to
provide this service.
Section 274a.9 Can a Person or Entity Require an Individual to Provide
a Financial Guarantee or Indemnity Against Potential Liability Related
to the Hiring, Recruiting, or Referring of the Individual?
This section contains the prohibition against indemnity bonds
currently found at 8 CFR 274.8. No substantive changes have been made
to this section.
Section 274a.10 How are Investigations Initiated and Employers
Notified of Violations?
This section contains the paragraphs discussing the filing of
complaints, investigations, notification of violations, and the
procedures for requesting a hearing, which are currently found at 8 CFR
274a.9. No substantive changes have been made to this section.
Section 274a.11 What Penalties may be Imposed for Violations?
This section contains the penalty provisions currently found at 8
CFR 274a.10. It also contains the pre-enactment provision, which
exempts employers from penalties for individuals hired prior to
November 7, 1987, currently found at 8 CFR 274a.7. Minor language
changes have been made to the latter for purposes of clarity. The
substance in this section remains unchanged.
How can the Service Best Inform the Public of Changes to the
Requirements?
Over the years, the Service has attempted to inform the public of
new forms and requirements by mailing information. Mailings were
conducted in 1987 to introduce the Form I-9; in 1989 to introduce the
Form I-688B Employment Authorization Document (EAD); in 1991 to
introduce the revised Form I-9; and in 1997 to introduce the new Form
I-766 EAD.
Employers and trade associations have, from time to time,
questioned the effectiveness of such mailings. Three of the mailings
were conducted with the assistance of the Internal Revenue Service
(IRS). Some of the feedback the Service received following those
mailings suggested that many employers have IRS mail directed to
attorneys or accountants, which meant that the Form I-9 information did
not reach its intended audience. For the 1997 mailing, the Service used
a commercial data base and indicated on the front that the material
should go to the human resources department. In talking to employers
who have called INS for information related to the Form I-9, the
Service has identified few instances where the people responsible for
Forms I-9 received the mailing.
The Service recognizes the impact that the Form I-9 has on the
business community and wants to ensure that the public has ready access
to the information it needs. The Service is developing a fax-back
capability for employer information and is making increased use of its
internet site. All materials related to changes in the requirements
will be made available through these channels as they become available.
The Service will also work through trade and professional associations
and similar organizations to inform the public.
The Service seeks suggestions from the public concerning the most
cost-effective means to reach and inform those affected by this rule.
Similarly, suggestions concerning the preferred format for
instructional materials, such as the M-274 Handbook for Employers or
suggested alternatives, would be welcome.
Cross-reference table
The following cross-reference table is provided to assist the
public in understanding how the Service proposes to restructure 8 CFR
274a, Subpart A.
Cross-Reference--Proposed Restructuring of 8 CFR 274A--Subpart A
------------------------------------------------------------------------
Proposed Current
------------------------------------------------------------------------
274a.1 Definitions. Definition of 274a.1 and 274a.2(a)
recruiters and referrers moved to this
section.
274a.2 Why is employment verification
required and what does it involve?
(a) Why employment verification is 274a.2(a)
required.
(1) Designation of Form I-9 and 274a.2(a)
Form I-9A.
(2) Obtaining and duplicating Form 274a.2(a)
I-9 and Form I-9A.
(3) Limitation on use of Form I-9 274a.2(b)(4)
and attachments.
(4) Beginning date for verification 274a.2(a)
requirements.
(b) How to complete the Form I-9... 274a.2(b)
(1) Employee information and 274a.2(a)(b)(1)(i)(A)--responsi
documentation. bility to complete section 1
of Form I-9
(2) Document review and 274a.2(b)(1)(i)(B)--responsibil
verification. ity to present documentation
274a.2(b)(1)(ii)(A)--responsibi
lity to review documentation
274a.2(b)(1)(ii)(B)--responsibi
lity to complete section 2 of
Form I-9
(3) Recruiters or referrers........ 274a.2(b)(1)(iv)--recruiter/
referrer responsibility to
complete Form I-9
[[Page 5299]]
(c) Time for completing Form I-9 274a.2(b)
(new heading).
(1) Section 1 of the Form I-9...... 274a.2(b)(1)(i)(A)--timing to
complete section 1
(2) Section 2 of the Form I-9...... ...............................
(i) Hires for a duration of 3 or 274a.2(b)(1)(ii)--timing to
more business days. complete section 2
274a.2(b)(1)(iv)--timing for
recruiters/referrers
(ii) Hires for a duration of less 274a.2(b)(1)(iii)--timing if
than 3 business days. hire is for less than 3
business days
(3) Receipts (new)................. ...............................
(d) Reverification of employment 274a.2(b)(1)(vii)
eligibility when employment
authorization expires.
(1) Procedures..................... ...............................
(2) Continuing obligation (new).... ...............................
(3) Exception to reverification ...............................
requirement (new).
274a.3 What documents are acceptable
for employment verification?
(a) Documents that establish both 274a.2(b)(1)(v)(A)
identity and employment
authorization (List A).
(b) Documents that establish 274a.2(b)(1)(v)(B)
identity only (List B).
(1) Acceptable List B documents.... 274a.2(b)(1)(v)(B)
(2) Special rule for minors........ 274a.2(b)(1)(v)(B)(3)
(3) Special rule for individuals 274a.2(b)(1)(v)(B)(4)
with disabilities.
(c) Documents that establish 274a.2(b)(1)(v)(C)
employment authorization only
(List C).
(d) Receipts....................... 274a.2(b)(1)(vi)
(1) Acceptable receipts and their 274a.2(b)(1)(vi)
validity periods (includes new
content).
(2) Exceptions (includes new 274a.2(b)(1)(iii)--prohibition
content). on receipts if hire is for
less than 3 business days
274a.4 How long are employers and 274a.2(b)(2)--retention of Form
recruiters or referrers required to I-9
retain the Form I-9 and what must be
retained with it?.
(a) Retention of Form I-9.......... ...............................
(1) Employers...................... 274a.2(b)(2)(i)(A)
(2) Recruiters or referrers........ 274a.2(b)(2)(i)(B)
(b) Retention of attachments (new). ...............................
(i) Reverification forms (new)..... ...............................
(ii) Copies of documentation....... 274a.2(b)(3)
274a.5 Under what circumstances may ...............................
employers and recruiters or referrers
rely on a Form I-9 that an individual
previously completed?
(a) Continuing employment.......... 274a.2(b)(1)(viii)
(b) Employment verification 274a.2(c)
requirements in the case of an
individual who was previously
employed.
(c) Employment verification 274a.2(d)
requirements in the case of
recruiting or referring for a fee
an individual who was previously
recruited or referred.
274a.6 What happens when the 274a.2(b)(2)--Inspection
Government asks to inspect Forms I-9?.
(a) Notice of inspection........... 274a.2(b)(2)(ii)
(b) Obligation to make records 274a.2(b)(2)(ii)
available.
(1) In general..................... ...............................
(2) Standards for submitting 274a.2(b)(2)(iii)
microfilm or microfiche.
(3) Recruiters or referrers........ 274a.2(b)(2)(ii)
(c) Compliance with inspection..... 274a.2(b)(2)(ii)
(d) Use of subpoena authority...... 274a.2(b)(2)(ii)
274a.7 What is the prohibition on
hiring or contracting with
unauthorized aliens and what defense
can be claimed?
(a) Prohibition on the hiring and 274a.3
continuing employment of
unauthorized aliens.
(b) Use of labor through contract.. 274a.5
(c) Good faith defense to charge of 274a.4
knowingly hiring an unauthorized
alien.
274a.8 What are the requirements of 274a.6
state employment agencies that choose
to verify the identity and employment
eligibility of individuals referred
for employment by the agency?.
274a.9 Can a person or entity provide 274a.8
a financial guarantee or indemnity
against potential liability related to
the hiring, recruiting, or referring
of the individual?.
274a.10 How are investigations 274a.9
initiated and employers notified of
violations?.
274a.11 What penalties may be imposed
for violations?
(a) Criminal penalties............. b274a.10(a)
(b) Civil penalties................ 274a.10(b)
(c) Enjoining pattern or practice 274a.10(c)
violations.
[[Page 5300]]
(d) Pre-enactment provisions for 274a.7
employees hired prior to November
7, 1986.
------------------------------------------------------------------------
Regulatory Flexibility Act
The Service has examined the impact of this proposed rule in light
of Executive Order 12866 and the Regulatory Flexibility Act (RFA) (5
U.S.C. 603, et seq.) and has drafted the rule to minimize its economic
impact on small businesses while meeting its intended objectives. The
obligations of employment verification have been imposed by Congress
since 1987 and for the most part remain unchanged after amendment by
IIRIRA. This rule is intended to reduce the burden on small entities by
simplifying the procedures for verifying employees' eligibility to work
in the United States.
What Are the Reasons for This Regulatory Action?
This rule is necessary to implement certain provisions of IIRIRA,
specifically provisions which: (1) Eliminate certain documents
currently used in the employment eligibility verification process; (2)
include any branch of the Federal Government in the definition of
``entity'' for employer sanctions purposes; and (3) clarify the
Service's authority to compel by subpoena the appearance of witnesses
and production of evidence when investigating possible violations of
section 274A of the Act. In conjunction with revising the regulations
to implement IIRIRA, the Service initiated a comprehensive review of
the rule to minimize its impact on small businesses. Through that
review, required by the RFA, the Service identified additional changes
which are intended to simplify and clarify the requirements.
What Are the Objectives and Legal Basis for the Rule?
The legal basis for the rule is section 274A of the Act. The major
objectives of the rule, with respect to its impact on small businesses,
include:
(1) Clarifying the timing permitted for completion of the Form I-9.
These changes respond to frequent questions from employers concerning
their authority to perform verification before an employee actually
starts to work, and whether employees must be given 3 days to present
documentation in all circumstances;
(2) Specify reverification requirements. These changes respond to
concerns expressed by employers and to their expressed preference that
both the employee and the employer should be required to complete an
attestation as part of reverification;
(3) Clarify and expand the receipt rule, under which work-eligible
individuals who are unable to present a required document may present a
receipt under certain circumstances. These changes respond to frequent
questions from employers. In addition to revising the receipt rule
itself, the Service has moved the discussion of receipts to the section
that identifies acceptable documents. The changes are intended to
retain the flexibility of the receipt rule, which helps to ensure that
work-eligible employees are not prevented from working because their
documents have been lost or stolen, while making the rule easier for
employers to understand;
(4) Shorten the list of documents acceptable for verification. This
is one of the most significant changes for small businesses. A shorter
list will mean that employers have to be familiar with fewer documents.
The Service has made a particular effort to limit the circumstances in
which employers will need to examine a Service-issued ``paper''
document (e.g., a Form I-94 with a stamped endorsement), because those
documents have been the subject of employer confusion; and
(5) Require the attachment to and retention with the Form I-9 of
copied documentation, if employers elect to photocopy the documents
presented. This is an area that is unclear in the current regulations.
In addition, the proposed rule proposes to restructure the
regulation to make it easier to use and cite. This should reduce the
need for small entities to rely on outside assistance to understand the
basic requirements of the law.
How Many and What Kind of Small Entities Will Be Affected by the
Proposed Rule?
The essential requirements in the proposed rule, which have been in
place for 10 years, apply to all entities which hire individuals to
perform services or labor in return for remuneration. The requirements
also apply to recruiters or referrers for a fee which are an
agricultural association, agricultural employer, or farm labor
contractor (as defined in section 3 of the Migrant and Seasonal
Agricultural Worker Protection Act, 29 U.S.C. 1802). Data obtained from
the Bureau of Labor Statistics show the following number of employers
in 1994, rounded to the nearest hundred (See Employment and Wages,
1994, Bureau of Labor Statistics):
Estimated Number of Businesses by Size, 1994
------------------------------------------------------------------------
Number of
Size of business (number of employees) employers
------------------------------------------------------------------------
< 5........................................................="" 3,614,800="" 5="" to="" 9.....................................................="" 1,200,800="" 10="" to="" 49...................................................="" 1,248,100="" 50="" to="" 499..................................................="" 293,700="" 500="" or="" more................................................="" 14,700="" ------------="" total................................................="" 6,372,100="" ------------------------------------------------------------------------="" although="" other="" data="" sources="" may="" provide="" different="" estimates="" of="" the="" actual="" number="" of="" small="" businesses,="" the="" distribution="" shown="" above="" indicates="" that="" the="" majority="" of="" businesses="" affected="" by="" these="" requirements="" are="" small="" businesses.="" what="" are="" the="" projected="" reporting,="" recordkeeping,="" and="" other="" compliance="" requirements="" of="" the="" proposed="" rule?="" the="" proposed="" rule="" continues="" the="" existing="" requirement,="" imposed="" by="" congress="" since="" 1987,="" for="" employers="" to="" complete="" the="" form="" i-9="" for="" all="" new="" hires="" and="" to="" retain="" the="" form="" for="" 3="" years="" or="" 1="" year="" after="" the="" employment="" terminates,="" whichever="" is="" longer.="" under="" the="" proposed="" rule,="" if="" the="" employer="" elects="" to="" make="" photocopies="" of="" documentation="" presented,="" the="" employer="" must="" attach="" the="" photocopies="" to="" and="" retain="" them="" with="" the="" form="" i-9.="" the="" requirement="" to="" attach="" and="" retain="" the="" photocopies="" is="" new,="" clarifying="" an="" area="" that="" is="" ambiguous="" under="" the="" existing="" regulation.="" if="" the="" employee's="" work="" authorization="" expires,="" the="" employer="" must="" reverify="" the="" employee's="" eligibility="" to="" work="" on="" form="" i-9="" or="" form="" i-9a="" and="" attach="" the="" reverification="" form="" to="" and="" retain="" it="" with="" the="" form="" i-9.="" reverification="" is="" not="" a="" new="" requirement,="" but="" the="" proposed="" rule="" seeks="" to="" clarify="" what="" is="" required.="" because="" employers="" are="" already="" completing="" and="" retaining="" forms="" i-9="" and="" conducting="" reverifications="" when="" employees'="" authorization="" expires,="" the="" rule="" is="" not="" expected="" to="" impose="" significant="" new="" costs="" on="" small="" entities.="" [[page="" 5301]]="" there="" will="" be="" some="" cost,="" however,="" associated="" with="" becoming="" familiar="" with="" the="" new="" requirements,="" obtaining="" new="" forms,="" and="" retraining="" employees="" who="" are="" familiar="" with="" the="" existing="" requirements.="" once="" the="" transition="" to="" the="" new="" forms="" and="" requirements="" is="" complete,="" the="" service="" anticipates="" that="" the="" costs="" of="" compliance="" for="" most="" businesses="" will="" be="" lower="" than="" under="" the="" existing="" rule="" and="" form="" i-9.="" based="" on="" informal="" discussions="" with="" a="" limited="" number="" of="" employers,="" the="" service="" believes="" that="" the="" smaller="" number="" of="" documents,="" simplified="" design="" of="" the="" form="" i-9,="" and="" more="" comprehensive="" instruction="" sheet="" provided="" with="" the="" form,="" all="" make="" the="" verification="" process="" faster="" and="" easier="" than="" it="" is="" now.="" additional="" information="" on="" the="" estimated="" paperwork="" burden="" for="" the="" form="" i-9="" is="" provided="" under="" the="" discussion="" of="" the="" paperwork="" reduction="" act.="" are="" there="" any="" federal="" rules="" that="" may="" duplicate,="" overlap,="" or="" conflict="" with="" the="" rule?="" the="" service="" is="" not="" aware="" of="" overlap,="" duplication,="" or="" conflict="" with="" other="" federal="" rules.="" the="" requirement="" for="" employers="" to="" verify="" the="" identity="" and="" eligibility="" to="" work="" is="" unique="" to="" section="" 274a="" of="" the="" act="" and="" its="" implementing="" regulations.="" the="" service="" has="" heard="" complaints="" on="" occasion="" from="" employers="" to="" the="" effect="" that="" section="" 274a="" of="" the="" act="" and="" its="" implementing="" regulations="" at="" subpart="" a="" conflict="" with="" section="" 274b="" of="" the="" act="" and="" its="" implementing="" regulations="" at="" 28="" cfr="" part="" 44,="" by="" on="" the="" one="" hand="" requiring="" employers="" to="" verify="" their="" employees'="" identity="" and="" work="" eligibility="" by="" examining="" documents,="" while="" on="" the="" other="" hand="" subjecting="" them="" to="" penalties="" for="" inquiring="" into="" the="" validity="" of="" those="" documents,="" particularly="" in="" light="" of="" the="" proliferation="" of="" false="" documentation.="" the="" service="" firmly="" supports="" section="" 274b="" of="" the="" act="" and="" its="" enforcement,="" and="" does="" not="" view="" it="" as="" conflicting="" with="" section="" 274a.="" the="" service's="" proposed="" rule="" includes="" changes="" intended="" to="" clarify="" how="" employers="" may="" comply="" with="" 274a="" while="" avoiding="" practices="" prohibited="" by="" 274b.="" the="" service="" invites="" the="" public="" to="" suggest="" other="" ways="" that="" the="" regulations="" could="" minimize="" any="" perceived="" inconsistency="" between="" these="" two="" provisions="" of="" law.="" are="" there="" any="" significant="" alternatives="" that="" would="" accomplish="" the="" objectives="" of="" the="" rule="" and="" minimize="" its="" economic="" impact?="" in="" enacting="" the="" immigration="" reform="" and="" control="" act="" of="" 1986,="" congress="" considered="" exempting="" employers="" with="" three="" or="" fewer="" employees="" from="" the="" requirements="" of="" the="" law.="" congress="" did="" not="" do="" so,="" however,="" because="" of="" evidence="" that="" a="" significant="" number="" of="" unauthorized="" aliens="" are="" employed="" by="" small="" businesses.="" the="" service="" believes="" that="" having="" a="" uniform="" set="" of="" requirements="" for="" all="" businesses,="" regardless="" of="" size,="" is="" consistent="" with="" congressional="" intent.="" what="" the="" service="" has="" attempted="" to="" do="" is="" to="" take="" into="" account="" the="" needs="" of="" a="" wide="" variety="" of="" businesses="" in="" formulating="" the="" proposed="" rule.="" executive="" order="" 12866="" this="" rule="" is="" considered="" by="" the="" department="" of="" justice,="" immigration="" and="" naturalization="" service,="" to="" be="" a="" ``significant="" regulatory="" action''="" under="" executive="" order="" 12866,="" section="" 3(f),="" regulatory="" planning="" and="" review.="" accordingly,="" it="" has="" been="" reviewed="" by="" the="" office="" of="" management="" and="" budget.="" executive="" order="" 12612="" the="" regulation="" adopted="" herein="" 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="" proposed="" rule="" meets="" the="" applicable="" standards="" set="" forth="" in="" sections="" 3(a)="" and="" 3(b)(2)="" of="" e.o.="" 12988.="" 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="" the="" impact="" of="" this="" rule="" on="" small="" businesses="" is="" discussed="" under="" the="" regulatory="" flexibility="" act.="" this="" preliminary="" analysis="" is="" the="" basis="" for="" the="" service's="" finding="" that="" this="" is="" not="" a="" major="" rule="" as="" defined="" by="" section="" 804="" of="" the="" small="" business="" regulatory="" enforcement="" act="" of="" 1996.="" 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.="" paperwork="" reduction="" act="" of="" 1995="" this="" proposed="" rule="" contains="" a="" revision="" to="" an="" information="" collection="" (form="" i-9,="" employment="" eligibility="" verification/form="" i-9a,="" employment="" eligibility="" reverification)="" which="" is="" subject="" to="" review="" by="" omb="" under="" the="" paperwork="" reductions="" act="" of="" 1995="" (pub.="" l.="" 104-13).="" therefore,="" the="" agency="" solicits="" public="" comments="" on="" the="" revised="" information="" collection="" requirements="" for="" 30="" days="" in="" order="" to:="" (1)="" evaluate="" whether="" the="" proposed="" collection="" of="" information="" is="" necessary="" for="" the="" proper="" performance="" of="" the="" functions="" of="" the="" agency,="" including="" whether="" the="" information="" will="" have="" practical="" utility;="" (2)="" evaluate="" the="" accuracy="" of="" the="" agency's="" estimate="" of="" the="" burden="" of="" the="" proposed="" collection="" of="" information,="" including="" the="" validity="" of="" the="" methodology="" and="" assumptions="" used;="" (3)="" enhance="" the="" quality,="" utility,="" and="" clarity="" of="" the="" information="" to="" be="" collected;="" and="" (4)="" minimize="" the="" burden="" of="" the="" collection="" of="" information="" on="" those="" who="" are="" to="" respond,="" including="" through="" the="" use="" of="" appropriate="" automated,="" electronic,="" mechanical,="" or="" other="" technological="" collection="" techniques="" or="" other="" forms="" of="" information="" technology,="" e.g.,="" permitting="" electronic="" submission="" of="" responses.="" the="" service="" estimates="" a="" total="" annual="" reporting="" burden="" of="" 13,153,500="" hours.="" this="" figure="" is="" based="" on="" the="" number="" of="" i-9="" and="" i-9a="" respondents="" (78,890,000)="" x="" 9="" minutes="" per="" response="" (.15)="" for="" the="" reporting="" requirements;="" of="" the="" 78,890,000="" respondents,="" 20,000,000="" are="" involved="" in="" record-keeping="" activities="" associated="" with="" the="" i-9="" and="" i-9a="" process.="" the="" computation="" of="" the="" annual="" burden="" estimate="" for="" record-keeping="" activities="" is="" based="" on="" 20,000,000="" x="" 4="" minutes="" per="" response="" (0.66)="" equating="" to="" 1,320,000.="" as="" required="" by="" section="" 3507(d)="" of="" the="" paperwork="" reduction="" act="" of="" 1995,="" the="" service="" has="" submitted="" a="" copy="" of="" this="" proposed="" rule="" to="" omb="" for="" its="" review="" of="" the="" revised="" information="" collection="" requirements.="" other="" organizations="" and="" individuals="" interested="" in="" submitting="" comments="" regarding="" this="" burden="" estimate="" or="" any="" aspect="" of="" these="" information="" collection="" requirements,="" including="" suggestions="" for="" reducing="" the="" burden,="" should="" direct="" them="" to:="" office="" of="" information="" and="" regulatory="" affairs="" [[page="" 5302]]="" (omb),="" 725="" 17th="" street,="" nw,="" washington,="" dc="" 20503,="" attn:="" doj/ins="" desk="" officer,="" room="" 10235.="" the="" comments="" or="" suggestions="" should="" be="" submitted="" within="" 30="" days="" of="" publication="" of="" this="" rulemaking.="" list="" of="" subjects="" 8="" cfr="" part="" 274a="" administrative="" practice="" and="" procedure,="" aliens,="" employment,="" penalties,="" reporting="" and="" recordkeeping="" requirements.="" 8="" cfr="" part="" 299="" immigration,="" reporting="" and="" recordkeeping="" requirements.="" accordingly,="" chapter="" i="" of="" title="" 8="" of="" the="" code="" of="" federal="" regulations="" is="" proposed="" to="" be="" amended="" as="" follows:="" part="" 274a--control="" of="" employment="" of="" aliens="" 1.="" the="" authority="" citation="" for="" part="" 274a="" continues="" to="" read="" as="" follows:="" authority:="" 8="" u.s.c.="" 1101,="" 1103,="" 1324a;="" 8="" cfr="" part="" 2.="" 2.="" section="" 274a.1="" is="" amended="" by="" revising="" paragraphs="" (b)="" and="" (e),="" and="" by="" adding="" a="" new="" paragraph="" (m),="" to="" read="" as="" follows:="" sec.="" 274a.1="" definitions.="" *="" *="" *="" *="" *="" (b)="" the="" term="" entity="" means="" any="" legal="" entity="" including,="" but="" not="" limited="" to,="" a="" corporation,="" partnership,="" joint="" venture,="" governmental="" body,="" agency,="" proprietorship,="" or="" association.="" for="" purposes="" of="" this="" part,="" the="" term="" entity="" includes="" an="" entity="" in="" any="" branch="" of="" the="" federal="" government;="" *="" *="" *="" *="" *="" (e)="" the="" term="" recruit="" for="" a="" fee="" means="" the="" act="" of="" soliciting="" a="" person,="" directly="" or="" indirectly,="" with="" the="" intent="" of="" obtaining="" employment="" for="" that="" person,="" for="" remuneration="" whether="" on="" a="" retainer="" or="" contingency="" basis;="" however,="" this="" term="" does="" not="" include="" union="" hiring="" halls="" that="" recruit="" union="" members,="" or="" non-union="" individuals="" who="" pay="" membership="" dues;="" *="" *="" *="" *="" *="" (m)="" the="" term="" recruiter="" or="" referrer="" for="" a="" fee="" means="" a="" person="" or="" entity="" who="" is="" either="" an="" agricultural="" association,="" agricultural="" employer,="" or="" farm="" labor="" contractor="" (as="" defined="" in="" section="" 3="" of="" the="" migrant="" and="" seasonal="" agricultural="" worker="" protection="" act,="" 29="" u.s.c.="" 1802).="" 3.="" section="" 274a.2="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.2="" why="" is="" employment="" verification="" required="" and="" what="" does="" it="" involve?="" (a)="" why="" employment="" verification="" is="" required.="" it="" is="" unlawful="" for="" a="" person="" or="" entity="" to="" hire="" or="" to="" recruit="" or="" refer="" for="" a="" fee="" an="" individual="" for="" employment="" in="" the="" united="" states="" without="" complying="" with="" section="" 274a="" of="" the="" act="" and="" secs.="" 274a.2="" through="" 274a.5.="" the="" act="" requires="" the="" person="" or="" entity="" to="" verify="" on="" a="" designated="" form="" that="" the="" individual="" is="" not="" an="" unauthorized="" alien.="" (1)="" designation="" of="" form="" i-9="" and="" form="" i-9a.="" the="" employment="" eligibility="" verification="" form,="" form="" i-9,="" has="" been="" designated="" by="" the="" service="" as="" the="" form="" to="" be="" used="" in="" complying="" with="" the="" employment="" verification="" requirements.="" the="" employment="" eligibility="" reverification="" form,="" form="" i-9a,="" is="" an="" optional="" supplement="" to="" the="" form="" i-9="" which="" may="" be="" used="" instead="" of="" form="" i-9="" when="" a="" person="" or="" entity="" must="" reverify="" an="" individual's="" eligibility="" to="" work="" under="" paragraph="" (d)="" of="" this="" section.="" (2)="" obtaining="" and="" duplicating="" form="" i-9="" and="" form="" i-9a.="" forms="" i-9="" and="" i-9a="" may="" be="" obtained="" in="" limited="" quantities="" from="" the="" service="" forms="" centers="" or="" district="" offices,="" downloaded="" from="" the="" service="" world="" wide="" web="" site,="" or="" ordered="" from="" the="" superintendent="" of="" documents,="" washington,="" dc="" 20402.="" employers,="" or="" recruiters="" or="" referrers="" for="" a="" fee,="" may="" electronically="" generate="" blank="" forms="" i-9="" or="" i-9a,="" provided="" that:="" the="" resulting="" form="" is="" legible;="" there="" is="" no="" change="" to="" the="" name,="" content,="" or="" sequence="" of="" the="" data="" elements="" and="" instructions;="" no="" additional="" data="" elements="" or="" language="" are="" inserted;="" and="" the="" paper="" used="" meets="" the="" standards="" for="" retention="" and="" production="" for="" inspection="" specified="" under="" secs.="" 274a.4="" through="" 274a.6.="" when="" copying="" or="" printing="" form="" i-9,="" form="" i-="" 9a,="" or="" the="" instruction="" sheet,="" the="" text="" may="" be="" reproduced="" by="" making="" either="" double-sided="" or="" single-sided="" copies.="" (3)="" limitation="" on="" use="" of="" form="" i-9="" and="" attachments.="" any="" information="" contained="" in="" the="" form="" i-9,="" and="" on="" any="" attachments,="" described="" in="" sec.="" 274a.4(b),="" may="" be="" used="" only="" for="" enforcement="" of="" the="" act="" and="" 18="" u.s.c.="" 1001,="" 1028,="" 1546,="" or="" 1621.="" (4)="" beginning="" date="" for="" verification="" requirements.="" employers="" need="" to="" complete="" a="" form="" i-9="" only="" for="" individuals="" hired="" after="" november="" 6,="" 1986,="" who="" continue="" to="" be="" employed="" after="" may="" 31,="" 1987.="" recruiters="" or="" referrers="" for="" a="" fee="" need="" to="" complete="" a="" form="" i-9="" only="" for="" individuals="" recruited="" or="" referred="" and="" hired="" after="" may="" 31,="" 1987.="" (b)="" how="" to="" complete="" the="" form="" i-9--(1)="" employee="" information="" and="" documentation.="" a="" person="" or="" entity="" that="" hires,="" or="" recruits="" or="" refers="" for="" a="" fee,="" an="" individual="" for="" employment="" must="" ensure="" that="" the="" individual="" properly:="" (i)="" completes="" section="" 1="" on="" the="" form="" i-9.="" if="" an="" individual="" is="" unable="" to="" complete="" the="" form="" i-9="" or="" needs="" it="" translated,="" someone="" may="" assist="" him="" or="" her.="" the="" preparer="" or="" translator="" must="" provide="" the="" assistance="" necessary="" for="" the="" individual="" to="" understand="" the="" form="" i-9="" and="" complete="" section="" 1="" and="" have="" the="" individual="" initial="" and="" sign="" or="" mark="" the="" form="" in="" the="" appropriate="" places.="" the="" preparer="" or="" translator="" must="" them="" complete="" the="" ``preparer/translator''="" portion="" of="" the="" form="" i-9;="" and="" (ii)="" presents="" to="" the="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" documentation,="" described="" in="" this="" paragraph,="" that="" establishes="" the="" individual's="" identity="" and="" eligibility="" to="" work.="" an="" individual="" has="" the="" choice="" of="" which="" document(s)="" to="" present.="" acceptable="" documentation="" is:="" (a)="" an="" original="" unexpired="" document="" that="" establishes="" both="" identity="" and="" employment="" authorization="" (list="" a="" document="" described="" in="" sec.="" 274a.3(a));="" or="" (b)="" an="" original="" unexpired="" document="" that="" establishes="" identity="" (list="" b="" document="" described="" in="" sec.="" 274a.3(b))="" and="" a="" separate="" original="" unexpired="" document="" which="" establishes="" employment="" authorization="" (list="" c="" document="" described="" in="" sec.="" 274a.3(c));="" or="" (c)="" if="" an="" individual="" is="" unable="" to="" present="" a="" document="" listed="" in="" secs.="" 274a.3(a),="" (b),="" or="" (c)="" and="" is="" hired="" for="" a="" duration="" of="" 3="" or="" more="" business="" days,="" an="" acceptable="" receipt="" (listed="" in="" sec.="" 274a.3(d))="" instead="" of="" the="" required="" document.="" a="" receipt="" is="" valid="" for="" a="" temporary="" period,="" specified="" under="" sec.="" 274a.3(d).="" the="" individual="" must="" present="" the="" required="" document="" at="" the="" end="" of="" such="" period.="" (2)="" document="" review="" and="" verification.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" must:="" (i)="" physically="" examine="" the="" documentation="" presented="" by="" the="" individual="" establishing="" identity="" and="" employment="" eligibility="" as="" set="" forth="" in="" sec.="" 274a.3="" and="" ensure="" that="" the="" document(s)="" presented="" appear="" to="" be="" genuine="" and="" to="" relate="" to="" the="" individual.="" employers="" and="" recruiters="" or="" referrers="" for="" a="" fee="" may="" not="" specify="" which="" document="" or="" documents="" an="" individual="" is="" to="" present.="" to="" do="" so="" may="" violate="" section="" 274b="" of="" the="" act;="" and="" (ii)="" complete="" section="" 2="" of="" the="" form="" i-9.="" (3)="" recruiters="" or="" referrers.="" recruiters="" or="" referrers="" for="" a="" fee="" may="" designate="" agents="" to="" complete="" the="" employment="" verification="" procedures="" on="" their="" behalf,="" including="" but="" not="" limited="" to="" notaries,="" national="" associations,="" or="" employers.="" if="" a="" recruiter="" or="" referrer="" designates="" an="" employer="" to="" complete="" the="" employment="" verification="" procedures,="" the="" employer="" need="" only="" provide="" the="" recruiter="" or="" [[page="" 5303]]="" referrer="" with="" a="" photocopy="" of="" the="" form="" i-9="" and="" any="" attachments.="" (c)="" time="" for="" completing="" form="" i-9="" --(1)="" section="" 1="" of="" the="" form="" i-9.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" must="" ensure="" that="" the="" individual="" properly="" completes="" section="" 1="" of="" the="" form="" i-9="" at="" the="" time="" of="" hire.="" (2)="" section="" 2="" of="" the="" form="" i-9="" --(i)="" hires="" for="" a="" duration="" of="" 3="" or="" more="" business="" days.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" must="" examine="" the="" documentation="" presented="" by="" the="" individual="" and="" complete="" section="" 2="" of="" the="" form="" i-9="" within="" 3="" business="" day="" of="" the="" hire.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" may="" require="" an="" individual="" to="" present="" documentation="" listed="" sec.="" 274a.3="" at="" the="" time="" of="" hire="" or="" before="" the="" time="" of="" hire,="" so="" long="" as="" the="" commitment="" to="" hire="" the="" individual="" has="" been="" made="" and="" provided="" that="" this="" requirement="" is="" applied="" uniformly="" to="" all="" individuals.="" (ii)="" hires="" for="" a="" duration="" of="" less="" than="" 3="" business="" days.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" must="" examine="" the="" documentation="" presented="" by="" the="" individual="" and="" complete="" section="" 2="" of="" the="" form="" i-9="" at="" the="" time="" of="" the="" hire.="" (3)="" receipts.="" if="" an="" individual="" presents="" a="" receipt,="" as="" provided="" in="" sec.="" 274.3(d),="" for="" purposes="" for="" verification="" or="" reverification,="" the="" employer="" must="" update="" the="" form="" i-9="" (or="" form="" i-9a,="" if="" applicable)="" within="" the="" time="" limits="" specified="" in="" that="" section.="" (d)="" reverification="" of="" employment="" eligibility="" when="" employment="" authorization="" expires--(1)="" procedures.="" except="" as="" provided="" in="" paragraph="" (d)(3)="" of="" this="" section,="" if="" section="" 1="" or="" 2="" of="" the="" form="" i-9="" indicates="" that="" the="" individual's="" employment="" authorization="" expires,="" the="" employer="" must="" reverify="" the="" individual's="" employment="" authorization.="" the="" employer="" must,="" not="" later="" than="" the="" date="" that="" work="" authorization="" expires,="" ensure="" proper="" completion="" of="" sections="" 1="" and="" 2="" of="" new="" form="" i-9="" or="" a="" form="" i-9a="" by:="" (i)="" ensuring="" that="" the="" individual="" properly="" completes="" section="" 1="" and="" attests="" that="" he="" or="" she="" is="" authorized="" to="" work="" indefinitely="" or="" until="" a="" specified="" date="" and="" signs="" and="" dates="" the="" attestation;="" (ii)="" examining="" and="" unexpired,="" original="" document="" presented="" by="" the="" individual="" establishing="" employment="" eligibility="" as="" set="" forth="" in="" sec.="" 274a.3(a),="" (c),="" or="" (d),="" and="" ensuring="" that="" it="" appears="" to="" be="" genuine="" and="" to="" relate="" to="" the="" individual.="" an="" employer="" should="" not="" reverify="" list="" b="" documents;="" (iii)="" completing="" section="" 2;="" and="" (iv)="" attaching="" the="" new="" form="" i-9="" or="" form="" i-9a="" to="" the="" previously-="" completed="" form="" i-9.="" (2)="" continuing="" obligation.="" except="" as="" provided="" in="" paragraph="" (d)(3)="" of="" this="" section,="" for="" as="" long="" as="" the="" form="" i-9="" or="" form="" i-9a="" used="" for="" reverification="" indicates="" that="" the="" individual="" is="" not="" a="" united="" states="" citizen="" or="" national,="" or="" a="" lawful="" permanent="" resident,="" and="" that="" the="" individual's="" employment="" authorization="" expires,="" the="" employer="" must="" reverify="" the="" individual's="" employment="" authorization="" as="" provided="" in="" paragraph="" (d)(1)="" of="" this="" section,="" no="" later="" than="" the="" date="" that="" employment="" authorization="" expires.="" (3)="" exception="" to="" reverification="" requirement.="" an="" employer="" shall="" not="" reverify="" the="" employment="" authorization="" of="" an="" individual="" who="" attests="" in="" section="" 1="" of="" the="" form="" i-9="" or="" form="" i-9a="" that="" he="" or="" she="" is="" a="" citizen="" or="" national="" of="" the="" united="" states.="" an="" employer="" shall="" not="" reverify="" the="" employment="" authorization="" of="" an="" individual="" who="" attests="" in="" section="" 1="" of="" the="" form="" i-9="" or="" form="" i-9a="" that="" he="" or="" she="" is="" a="" lawful="" permanent="" resident,="" unless="" the="" individual="" presents="" a="" foreign="" passport="" that="" contains="" a="" temporary="" i-551="" stamp,="" provided="" in="" sec.="" 274a.3(a)(3).="" 4.="" section="" 274a.3="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.3="" what="" documents="" are="" acceptable="" for="" employment="" verification?="" (a)="" documents="" that="" establish="" both="" identity="" and="" employment="" authorization="" (list="" a).="" (1)="" a="" united="" states="" passport;="" (2)="" an="" alien="" registration="" receipt="" card="" or="" permanent="" resident="" card,="" form="" i-551'="" (3)="" a="" foreign="" passport="" that="" contains="" a="" temporary="" i-551="" stamp;="" (4)="" an="" employment="" authorization="" document="" issued="" by="" the="" service="" which="" contains="" a="" photograph,="" form="" i-766,="" form="" i-688="" (temporary="" resident="" card),="" form="" i-688a,="" or="" form="" i-688b;="" or="" (5)="" in="" the="" case="" of="" a="" nonimmigrant="" alien="" authorized="" to="" work="" only="" for="" a="" specific="" employer,="" a="" foreign="" passport="" with="" an="" arrival-departure="" record,="" form="" i-94,="" bearing="" the="" same="" name="" as="" the="" passport="" and="" containing="" an="" endorsement="" of="" the="" alien's="" nonimmigrant="" status="" and="" the="" name="" of="" the="" approved="" employer="" with="" whom="" employment="" is="" authorized,="" so="" long="" as="" the="" period="" of="" endorsement="" has="" not="" yet="" expired="" and="" the="" proposed="" employment="" is="" not="" in="" conflict="" with="" any="" restrictions="" or="" limitations="" identified="" on="" the="" form="" i-94.="" (b)="" documents="" that="" establish="" identify="" only="" (list="" b).="" (1)="" acceptable="" list="" b="" documents.="" (i)="" a="" driver's="" license="" or="" identification="" card="" issued="" by="" a="" state="" (as="" defined="" in="" section="" 101(a)(36)="" of="" the="" act)="" or="" an="" outlying="" possession="" of="" the="" united="" states="" (as="" defined="" by="" section="" 101(a)(29)="" of="" the="" act),="" provided="" that="" the="" document="" contains="" a="" photograph="" or="" the="" following="" identifying="" information:="" name,="" date="" of="" birth,="" sex,="" height,="" color="" of="" eyes,="" and="" address;="" (ii)="" a="" native="" american="" tribal="" document;="" or="" (iii)="" in="" the="" case="" of="" a="" canadian="" nonimmigrant="" alien="" or="" alien="" with="" common="" nationality="" with="" canada="" who="" is="" authorized="" to="" work="" only="" for="" a="" specific="" employer,="" a="" driver's="" license="" issued="" by="" a="" canadian="" government="" authority="" or="" a="" canadian="" federal="" or="" provincial="" identification="" card.="" (2)="" special="" rule="" for="" minors.="" minors="" under="" the="" age="" of="" 18="" who="" are="" unable="" to="" produce="" one="" of="" the="" identity="" documents="" listed="" in="" paragraph="" (b)(1)="" of="" this="" section="" are="" exempt="" from="" producing="" one="" of="" the="" specified="" identity="" documents="" if:="" (i)="" the="" minor's="" parent="" or="" legal="" guardian="" completes="" section="" 1="" of="" the="" form="" i-9="" and="" in="" the="" space="" for="" the="" minor's="" signature,="" the="" parent="" or="" legal="" guardian="" writes="" the="" words,="" ``minor="" under="" age="" 18'';="" (ii)="" the="" minor's="" parent="" or="" legal="" guardian="" completes="" on="" the="" form="" i-9="" the="" ``preparer/translator="" certification'';="" and="" (iii)="" the="" employer="" or="" the="" recruiter="" or="" referrer="" for="" a="" fee="" writes="" in="" section="" 2="" under="" list="" b="" in="" the="" space="" after="" the="" words="" ``document="" identification="" #''="" the="" words,="" ``minor="" under="" age="" 18''.="" (3)="" special="" rule="" for="" individuals="" with="" diasbilities--(i)="" procedures.="" individuals="" with="" disabilities,="" who="" are="" unable="" to="" produce="" one="" of="" the="" identity="" documents="" listed="" in="" paragraph="" (b)(1)="" of="" this="" section,="" and="" who="" are="" being="" placed="" into="" employment="" by="" a="" nonprofit="" organization="" or="" association,="" or="" as="" part="" of="" a="" rehabilitation="" program,="" are="" exempt="" from="" producing="" one="" of="" the="" specified="" identify="" documents="" if:="" (a)="" the="" individual's="" parent="" or="" legal="" guardian,="" or="" a="" representative="" from="" the="" nonprofit="" organization,="" association,="" or="" rehabilitation="" program="" placing="" the="" individual="" into="" a="" position="" of="" employment="" completes="" section="" 1="" of="" the="" form="" i-9="" and="" in="" the="" space="" for="" the="" individual's="" signature,="" writes="" the="" words,="" ``special="" placement'';="" (b)="" the="" individual's="" parent="" or="" legal="" guardian,="" or="" the="" program="" representative,="" completes="" on="" the="" form="" i-9="" the="" ``preparer/translator="" certification'';="" and="" (c)="" the="" employer="" or="" the="" recruiter="" or="" referrer="" for="" a="" fee="" writes="" in="" section="" 2="" under="" list="" b="" in="" the="" space="" after="" the="" words="" ``document="" identification="" #''="" the="" words,="" ``special="" placement''.="" (ii)="" applicability.="" for="" purposes="" of="" this="" section="" the="" term="" disability="" means,="" with="" respect="" to="" an="" individual:="" (a)="" a="" physical="" or="" mental="" impairment="" that="" substantially="" limits="" one="" or="" more="" of="" the="" major="" life="" activities="" of="" such="" individual;="" (b)="" a="" record="" of="" such="" impairment;="" or="" [[page="" 5304]]="" (c)="" being="" regarded="" as="" having="" such="" an="" impairment.="" (c)="" documents="" that="" establish="" employment="" authorization="" only="" (list="" c).="" (1)="" a="" social="" security="" account="" number="" card="" (other="" than="" such="" a="" card="" which="" specifies="" on="" the="" face="" that="" the="" issuance="" of="" the="" card="" does="" not="" authorize="" employment="" in="" the="" united="" states);="" (2)="" a="" native="" american="" tribal="" document;="" or="" (3)="" in="" the="" case="" of="" a="" nonimmigrant="" alien="" authorized="" to="" work="" only="" for="" a="" specific="" employer,="" an="" arrival-departure="" record,="" form="" i-94,="" containing="" an="" endorsement="" of="" the="" alien's="" nonimmigrant="" status="" and="" the="" name="" of="" the="" approved="" employer="" with="" whom="" employment="" is="" authorized,="" so="" long="" as="" the="" period="" of="" endorsement="" has="" not="" yet="" expired="" and="" the="" proposed="" employment="" is="" not="" in="" conflict="" with="" any="" restrictions="" or="" limitations="" identified="" on="" the="" form="" i-94.="" (d)="" receipts--(1)="" acceptable="" receipts="" and="" their="" validity="" periods.="" (i)="" a="" receipt="" for="" an="" application="" to="" replace="" a="" document="" described="" in="" paragraph="" (a),="" (b),="" or="" (c)="" of="" this="" section="" because="" the="" document="" was="" lost,="" stolen,="" or="" damaged.="" documentation="" acknowledging="" receipt="" of="" an="" application="" for="" an="" initial="" grant="" or="" extension="" of="" a="" document="" described="" in="" paragraph="" (a)="" or="" (c)="" of="" this="" section="" is="" not="" a="" receipt="" for="" this="" purpose,="" except="" for="" a="" receipt="" for="" the="" application="" of="" a="" timely="" filed="" application="" for="" an="" extension="" of="" nonimmigrant="" stay="" as="" provided="" in="" sec.="" 274a.12(b)(2).="" the="" individual="" must="" present="" the="" replacement="" document="" within="" 90="" days="" of="" the="" hire="" or,="" in="" the="" case="" of="" reverification="" under="" sec.="" 274a.2(d)="" or="" sec.="" 274a.5(b),="" within="" 90="" days="" of="" the="" date="" employment="" authorization="" expires="" or="" the="" date="" of="" rehire.="" (ii)="" the="" arrival="" portion="" of="" form="" i-94="" marked="" with="" an="" unexpired="" temporary="" i-551="" stamp="" and="" affixed="" with="" a="" photograph="" of="" the="" individual.="" the="" individual="" must="" present="" the="" form="" i-551="" within="" 180="" days="" of="" the="" hire="" or,="" in="" the="" case="" of="" reverification="" under="" sec.="" 274a.2(d)="" or="" sec.="" 274a.5(b),="" within="" 180="" days="" of="" the="" date="" employment="" authorization="" expires="" or="" the="" date="" of="" rehire.="" (iii)="" the="" departure="" portion="" of="" form="" i-94="" marked="" with="" an="" unexpired="" refugee="" admission="" stamp.="" the="" individual="" must="" present="" either="" an="" unexpired="" employment="" authorization="" document="" (form="" i-766="" or="" form="" i-688b)="" or="" a="" social="" security="" account="" number="" card="" that="" does="" not="" contain="" employment="" restrictions="" and="" an="" identity="" document="" described="" in="" paragraph="" (b)="" of="" this="" section="" within="" 90="" days="" of="" the="" hire="" or,="" in="" the="" case="" of="" reverification="" under="" sec.="" 274a.2(d)="" or="" sec.="" 274a.5(b),="" within="" 90="" days="" of="" the="" date="" employment="" authorization="" expires="" or="" the="" date="" of="" rehire.="" (2)="" exceptions.="" a="" receipt="" described="" in="" paragraph="" (d)(1)="" of="" this="" section="" is="" not="" an="" acceptable="" document="" if:="" (i)="" the="" individual="" indicates="" or="" the="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" has="" actual="" or="" constructive="" knowledge="" that="" the="" individual="" is="" not="" authorized="" to="" work;="" or="" (ii)="" the="" employment="" is="" for="" a="" duration="" of="" less="" than="" 3="" business="" days.="" 5.="" section="" 274a.4="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.4="" how="" long="" are="" employers="" and="" recruiters="" or="" referrers="" required="" to="" retain="" the="" form="" i-9="" and="" what="" must="" be="" retained="" with="" it?="" (a)="" retention="" of="" form="" i-9--(1)="" employers.="" an="" employer="" must="" retain="" the="" form="" i-9="" for="" 3="" years="" after="" the="" date="" of="" hire="" or="" 1="" year="" after="" the="" date="" the="" individual's="" employment="" is="" terminated,="" whichever="" is="" later.="" (2)="" recruiters="" or="" referrers.="" a="" recruiter="" or="" referrer="" for="" a="" fee="" must="" retain="" the="" form="" i-9="" for="" 3="" years="" after="" the="" date="" of="" hire.="" (b)="" retention="" of="" attachments--(1)="" reverfication="" forms.="" the="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" must="" attach="" forms="" i-9="" or="" i-9a="" used="" for="" reverification,="" as="" described="" in="" sec.="" 274a.2(d),="" to="" the="" initial="" form="" i-9="" relating="" to="" the="" individual="" and="" retain="" them="" with="" the="" initial="" form="" i-9.="" (2)="" copies="" of="" documentation--(i)="" option="" to="" photocopy.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" may,="" but="" is="" not="" required="" to,="" copy="" a="" document="" presented="" by="" an="" individual="" solely="" for="" the="" purpose="" of="" complying="" with="" the="" verification="" requirements="" described="" in="" sec.="" 274a.2.="" if="" such="" a="" copy="" is="" made,="" it="" must="" be="" attached="" to="" and="" retained="" with="" the="" form="" i-9="" (or="" form="" i-9a="" if="" applicable).="" (ii)="" obligation="" to="" complete="" form="" i-9.="" the="" copying="" and="" retention="" of="" any="" such="" document="" does="" not="" relieve="" the="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" from="" the="" requirement="" to="" fully="" complete="" section="" 2="" of="" the="" form="" i-9="" or="" form="" i-9a.="" (iii)="" discrimination="" prohibited.="" an="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee,="" should="" not="" copy="" the="" documents="" only="" of="" individuals="" or="" certain="" classes="" of="" individuals="" based="" on="" national="" origin="" or="" citizenship="" status.="" to="" do="" so="" may="" violate="" section="" 274b="" of="" the="" act.="" 6.="" section="" 274a.5="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.5="" under="" what="" circumstances="" may="" employers="" and="" recruiters="" or="" referrers="" rely="" on="" a="" form="" i-9="" that="" an="" individual="" previously="" completed?="" (a)="" continuing="" employment.="" an="" employer="" will="" not="" be="" deemed="" to="" have="" hired="" for="" employment="" an="" individual="" who="" is="" continuing="" in="" his="" or="" her="" employment="" and="" has="" a="" reasonable="" expectation="" of="" employment="" at="" all="" times.="" therefore,="" no="" verification="" is="" necessary="" for="" such="" individuals.="" (1)="" an="" individual="" is="" continuing="" in="" his="" or="" her="" employment="" in="" one="" of="" the="" following="" situations:="" (i)="" an="" individual="" takes="" approved="" paid="" or="" unpaid="" leave="" on="" account="" of="" study,="" illness="" or="" disability="" of="" a="" family="" member,="" illness="" or="" pregnancy,="" maternity="" or="" paternity="" leave,="" vacation,="" union="" business,="" or="" other="" temporary="" leave="" approved="" by="" the="" employer;="" (ii)="" an="" individual="" is="" promoted,="" demoted,="" or="" gets="" a="" pay="" raise;="" (iii)="" an="" individual="" is="" temporarily="" laid="" off="" for="" lack="" of="" work;="" (iv)="" an="" individual="" is="" on="" strike="" or="" in="" a="" labor="" dispute;="" (v)="" an="" individual="" is="" reinstated="" after="" disciplinary="" suspension="" for="" wrongful="" termination,="" found="" unjustified="" by="" any="" court,="" arbitrator,="" or="" administrative="" body,="" or="" otherwise="" resolved="" through="" reinstatement="" or="" settlement;="" (vi)="" an="" individual="" transfers="" from="" one="" distinct="" unit="" of="" an="" employer="" to="" another="" distinct="" unit="" of="" the="" same="" employer;="" the="" employer="" may="" transfer="" the="" individual's="" form="" i-9="" (and="" attachments="" if="" applicable)="" to="" the="" receiving="" unit;="" (viii)="" an="" individual="" continues="" his="" or="" her="" employment="" with="" a="" related,="" successor,="" or="" reorganized="" employer,="" provided="" that="" the="" employer="" obtains="" and="" maintains="" from="" the="" previous="" employer="" records="" and="" forms="" i-9,="" and="" attachments,="" where="" applicable.="" for="" this="" purpose,="" a="" related,="" successor,="" or="" reorganized="" employer="" includes:="" (a)="" the="" same="" employer="" at="" another="" location;="" (b)="" an="" employer="" who="" continues="" to="" employ="" some="" or="" all="" of="" a="" previous="" employer's="" workforce="" in="" cases="" involving="" a="" corporate="" reorganization,="" merger,="" or="" sale="" of="" stock="" or="" assets;="" (c)="" an="" employer="" who="" continues="" to="" employ="" any="" employee="" of="" another="" employer's="" workforce="" where="" both="" employers="" belong="" to="" the="" same="" multi-="" employer="" association="" and="" the="" employee="" continues="" to="" work="" in="" the="" same="" bargaining="" unit="" under="" the="" same="" collective="" bargaining="" agreement.="" for="" purposes="" of="" this="" section,="" any="" agent="" designated="" to="" complete="" and="" maintain="" the="" form="" i-9="" and="" attachments="" must="" record="" the="" employee's="" date="" of="" hire="" and/or="" termination="" each="" time="" the="" employee="" is="" hired="" and/or="" terminated="" by="" an="" employer="" of="" the="" multi-employer="" association;="" or="" (d)="" an="" individual="" is="" engaged="" in="" seasonal="" employment.="" (2)="" the="" employer="" who="" is="" claiming="" that="" an="" individual="" is="" continuing="" in="" his="" or="" her="" employment="" must="" also="" establish="" that="" the="" individual="" is="" expected="" to="" resume="" employment="" at="" all="" times="" and="" that="" the="" [[page="" 5305]]="" individual's="" expectation="" is="" reasonable.="" whether="" an="" individual's="" expectation="" is="" reasonable="" will="" be="" determined="" on="" a="" case-by-case="" basis="" taking="" into="" consideration="" several="" factors.="" factors="" which="" would="" indicate="" that="" an="" individual="" has="" a="" reasonable="" expectation="" of="" employment="" include,="" but="" are="" not="" limited="" to,="" the="" following:="" (i)="" the="" individual="" in="" question="" was="" employed="" by="" the="" employer="" on="" a="" regular="" and="" substantial="" basis.="" a="" determination="" of="" a="" regular="" and="" substantial="" basis="" is="" established="" by="" a="" comparison="" of="" other="" workers="" who="" are="" similarly="" employed="" by="" the="" employer;="" (ii)="" the="" individual="" in="" question="" complied="" with="" the="" employer's="" established="" and="" published="" policy="" regarding="" his="" or="" her="" absence;="" (iii)="" the="" employer's="" past="" history="" of="" recalling="" absent="" employees="" for="" employment="" indicates="" a="" likelihood="" that="" the="" individual="" in="" question="" will="" resume="" employment="" with="" the="" employer="" within="" a="" reasonable="" time="" in="" the="" future;="" (iv)="" the="" former="" position="" held="" by="" the="" individual="" in="" question="" has="" not="" been="" taken="" permanently="" by="" another="" worker;="" (v)="" the="" individual="" in="" question="" has="" not="" sought="" or="" obtained="" benefits="" during="" his="" or="" her="" absence="" from="" employment="" with="" the="" employer="" that="" are="" inconsistent="" with="" an="" expectation="" of="" resuming="" employment="" with="" the="" employer="" within="" a="" reasonable="" time="" in="" the="" future.="" such="" benefits="" include,="" but="" are="" not="" limited="" to,="" severance="" and="" retirement="" benefits;="" (vi)="" the="" financial="" condition="" of="" the="" employer="" indicates="" the="" ability="" of="" the="" employer="" to="" permit="" the="" individual="" in="" question="" to="" resume="" employment="" within="" a="" reasonable="" time="" in="" the="" future;="" or="" (vii)="" the="" oral="" and/or="" written="" communication="" between="" the="" employer,="" the="" employer's="" supervisory="" employees="" and="" the="" individual="" in="" question="" indicates="" that="" it="" is="" reasonably="" likely="" that="" the="" individual="" in="" question="" will="" resume="" employment="" with="" the="" employer="" within="" a="" reasonable="" time="" in="" the="" future.="" (b)="" employment="" verification="" requirements="" in="" the="" case="" of="" an="" individual="" who="" was="" previously="" employed--(1)="" hired="" within="" 3="" years="" from="" the="" date="" of="" the="" previously="" completed="" form="" i-9.="" an="" employer="" that="" hires="" an="" individual="" previously="" employed="" by="" the="" employer="" within="" 3="" years="" of="" the="" date="" of="" the="" initial="" execution="" of="" a="" previously="" completed="" form="" i-9="" relating="" to="" the="" individual="" which="" meets="" the="" requirements="" set="" forth="" in="" secs.="" 274a.2="" through="" 274a.4="" may="" (instead="" of="" completing="" a="" new="" form="" i-9)="" inspect="" the="" previously="" completed="" form="" i-9="" and="" all="" attachments="" (described="" in="" sec.="" 274a.4(b)).="" (i)="" if="" the="" form="" i-9="" and="" attachments="" relate="" to="" the="" individual,="" and="" the="" individual="" continues="" to="" be="" authorized="" for="" employment,="" the="" previously="" completed="" form="" i-9="" is="" sufficient="" for="" purposes="" of="" section="" 274a(b)="" of="" the="" act.="" (ii)="" if="" the="" previously="" completed="" form="" i-9="" indicates="" that="" the="" individual="" is="" no="" longer="" authorized="" for="" employment,="" the="" employer="" must="" reverify="" in="" accordance="" with="" sec.="" 274a.2(d);="" otherwise,="" the="" individual="" may="" no="" longer="" be="" employed.="" (iii)="" the="" employer="" must="" retain="" the="" previously="" completed="" form="" i-9="" and="" attachments="" for="" a="" period="" of="" 3="" years="" commencing="" from="" the="" date="" of="" the="" initial="" execution="" of="" the="" form="" i-9="" or="" 1="" year="" after="" the="" individual's="" employment="" is="" terminated,="" whichever="" is="" later.="" (2)="" hired="" more="" than="" 3="" years="" after="" the="" date="" of="" the="" previously="" executed="" form="" i-9.="" an="" employer="" that="" hires="" an="" individual="" previously="" employed="" by="" the="" employer="" more="" than="" 3="" years="" after="" the="" date="" of="" the="" initial="" execution="" of="" a="" previously="" completed="" form="" i-9="" relating="" to="" the="" individual="" must="" complete="" a="" new="" form="" i-9="" in="" compliance="" with="" the="" requirements="" of="" secs.="" 274a.2="" through="" 274a.4.="" (c)="" employment="" verification="" requirements="" in="" the="" case="" of="" recruiting="" or="" referring="" for="" a="" fee="" an="" individual="" who="" was="" previously="" recruited="" or="" referred--(1)="" recruited="" or="" referred="" within="" 3="" years="" from="" the="" date="" of="" the="" previously="" completed="" form="" i-9.="" a="" recruiter="" or="" referrer="" for="" a="" fee="" that="" recruits="" or="" refers="" an="" individual="" previously="" recruited="" or="" referred="" by="" the="" recruiter="" or="" referrer="" for="" a="" fee="" within="" 3="" years="" of="" the="" date="" of="" the="" initial="" execution="" of="" the="" form="" i-9="" relating="" to="" the="" individual="" which="" meets="" the="" requirements="" set="" forth="" in="" secs.="" 274a.2="" through="" 274a.4="" may="" (instead="" of="" completing="" a="" new="" form="" i-9="" inspect="" the="" previously="" completed="" form="" i-9="" and="" all="" attachments="" (described="" in="" sec.="" 274a.4(b)).="" (i)="" if="" the="" form="" i-9="" and="" attachments="" relate="" to="" the="" individual,="" and="" the="" individual="" continues="" to="" be="" authorized="" for="" employment,="" the="" previously="" completed="" form="" i-9="" is="" sufficient="" for="" purposes="" of="" section="" 274a(b)="" of="" the="" act.="" (ii)="" if="" the="" previously="" completed="" form="" i-9="" indicates="" that="" the="" individual's="" employment="" authorization="" has="" expired,="" the="" recruiter="" or="" referrer="" for="" a="" fee="" must="" reverify="" in="" accordance="" with="" sec.="" 274a.2(d);="" otherwise="" the="" individual="" may="" no="" longer="" be="" recruited="" or="" referred.="" (iii)="" the="" recruiter="" or="" referrer="" for="" a="" fee="" must="" retain="" the="" previously="" completed="" form="" i-9="" and="" attachments="" for="" a="" period="" of="" 3="" years="" from="" the="" date="" of="" the="" rehire.="" (iv)="" the="" reverification="" requirements="" in="" sec.="" 274a.2(d)="" do="" not="" apply="" to="" recruiters="" or="" referrers="" for="" a="" fee="" except="" as="" provided="" in="" paragraph="" (c)(1)(ii)="" of="" this="" section.="" (2)="" recruited="" or="" referred="" more="" than="" 3="" years="" after="" the="" date="" of="" the="" previously="" executed="" form="" i-9.="" a="" recruiter="" or="" referrer="" for="" a="" fee="" that="" recruits="" or="" refers="" an="" individual="" previously="" recruited="" or="" referred="" by="" the="" recruiter="" or="" referrer="" for="" a="" fee="" more="" than="" 3="" years="" after="" the="" date="" of="" the="" initial="" execution="" of="" a="" previously="" completed="" form="" i-9="" relating="" to="" the="" individual="" must="" complete="" a="" new="" form="" i-9="" in="" compliance="" with="" the="" requirements="" of="" secs.="" 274a.2="" through="" 274a.4.="" 7.="" section="" 274a.6="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.6="" what="" happens="" when="" the="" government="" asks="" to="" inspect="" forms="" i-="" 9?="" (a)="" notice="" of="" inspection.="" officers="" of="" the="" service,="" the="" office="" of="" special="" counsel="" for="" immigration-related="" unfair="" employment="" practices,="" or="" the="" department="" of="" labor="" may="" inspect="" the="" forms="" i-9,="" and="" all="" attachments="" described="" in="" sec.="" 274a.4(b),="" after="" providing="" at="" least="" 3="" days'="" notice="" to="" any="" person="" or="" entity="" required="" to="" retain="" forms="" i-9.="" (b)="" obligation="" to="" make="" records="" available--(1)="" in="" general.="" at="" the="" time="" of="" inspection,="" the="" forms="" i-9="" and="" all="" attachments="" must="" be="" made="" available="" in="" their="" original="" form="" or="" on="" microfilm="" or="" microfiche="" at="" the="" location="" where="" the="" request="" for="" production="" was="" made.="" if="" the="" forms="" i-9="" and="" attachments="" are="" kept="" at="" another="" location,="" the="" person="" or="" entity="" must="" inform="" the="" officer="" of="" the="" service,="" the="" special="" counsel="" for="" immigration-="" related="" unfair="" employment="" practices,="" or="" the="" department="" of="" labor="" of="" the="" location="" where="" the="" forms="" are="" kept="" and="" make="" arrangements="" for="" the="" inspection.="" inspections="" may="" be="" performed="" at="" a="" service="" office.="" (2)="" standards="" for="" submitting="" microfilm="" or="" microfiche.="" the="" following="" standards="" shall="" apply="" to="" forms="" i-9="" and="" attachments="" presented="" on="" microfilm="" or="" microfiche="" submitted="" to="" an="" officer="" of="" the="" service,="" the="" special="" counsel="" for="" immigration-related="" unfair="" employment="" practices,="" or="" the="" department="" of="" labor:="" microfilm="" when="" displayed="" on="" a="" microfilm="" reader="" (viewer)="" or="" reproduced="" on="" paper="" must="" exhibit="" a="" high="" degree="" of="" legibility="" and="" readability.="" for="" this="" purpose,="" legibility="" is="" defined="" as="" the="" quality="" of="" a="" letter="" or="" numeral="" which="" enables="" the="" observer="" to="" positively="" and="" quickly="" identify="" it="" to="" the="" exclusion="" of="" all="" other="" letters="" or="" numerals.="" readability="" is="" defined="" as="" the="" quality="" of="" a="" group="" of="" letters="" or="" numerals="" being="" recognizable="" as="" words="" or="" whole="" numbers.="" a="" detailed="" index="" of="" all="" microfilmed="" data="" shall="" be="" maintained="" and="" arranged="" in="" such="" a="" manner="" as="" to="" permit="" the="" immediate="" location="" of="" any="" particular="" record.="" it="" is="" the="" responsibility="" of="" the="" employer,="" or="" recruiter="" or="" referrer="" for="" a="" fee:="" [[page="" 5306]]="" (i)="" to="" provide="" for="" the="" processing,="" storage,="" and="" maintenance="" of="" all="" microfilm,="" and="" (ii)="" to="" be="" able="" to="" make="" the="" contents="" thereof="" available="" as="" required="" by="" law.="" the="" person="" or="" entity="" presenting="" the="" microfilm="" will="" make="" available="" a="" reader-printer="" at="" the="" examination="" site="" for="" the="" ready="" reading,="" location,="" and="" reproduction="" of="" any="" record="" or="" records="" being="" maintained="" on="" microfilm.="" reader-printers="" made="" available="" to="" an="" officer="" of="" the="" service,="" the="" special="" counsel="" for="" immigration-related="" unfair="" employment="" practices,="" or="" the="" department="" of="" labor="" shall="" provide="" safety="" features="" and="" be="" in="" clean="" condition,="" properly="" maintained,="" and="" in="" good="" working="" order.="" the="" reader-printers="" must="" have="" the="" capacity="" to="" display="" and="" print="" a="" complete="" page="" of="" information.="" a="" person="" or="" entity="" who="" is="" determined="" to="" have="" failed="" to="" comply="" with="" the="" criteria="" established="" by="" this="" regulation="" for="" the="" presentation="" of="" microfilm="" or="" microfiche="" to="" the="" service,="" the="" special="" counsel="" for="" immigration-related="" unfair="" employment="" practices,="" or="" the="" department="" of="" labor,="" and,="" at="" the="" time="" of="" the="" inspection,="" does="" not="" present="" a="" properly="" completed="" form="" i-9="" with="" attachments="" for="" the="" employee,="" is="" in="" violation="" of="" section="" 274a(a)(1)(b)="" of="" the="" act="" and="" secs.="" 274a.2="" through="" 274a.6.="" (3)="" recruiters="" or="" referrers.="" a="" recruiter="" or="" referrer="" for="" a="" fee="" who="" has="" designated="" an="" employer="" to="" complete="" the="" employment="" verification="" procedures="" may="" present="" a="" photocopy="" of="" the="" form="" i-9="" and="" attachments="" instead="" of="" presenting="" the="" form="" i-9="" and="" attachments="" in="" its="" original="" form="" or="" on="" microfiche,="" as="" set="" forth="" in="" sec.="" 274a.2(b)(3).="" (c)="" compliance="" with="" inspection.="" any="" refusal="" or="" delay="" in="" presentation="" of="" the="" form="" i-9="" and="" attachments="" for="" inspection="" is="" a="" violation="" of="" the="" retention="" requirements="" as="" set="" forth="" in="" section="" 274a(b)(3)="" of="" the="" act.="" (d)="" use="" of="" subpoena="" authority.="" no="" subpoena="" or="" warrant="" shall="" be="" required="" for="" an="" inspection="" under="" this="" section,="" but="" the="" use="" of="" such="" enforcement="" tools="" is="" not="" precluded.="" any="" service="" officer="" listed="" in="" sec.="" 287.4="" of="" this="" chapter="" may="" compel="" production="" of="" the="" forms="" i-9="" and="" attachments="" by="" issuing="" a="" subpoena="" if="" the="" person="" or="" entity="" has="" not="" complied="" with="" a="" request="" to="" present="" the="" forms="" i-9="" and="" attachments.="" prior="" to="" the="" filing="" of="" a="" complaint="" under="" 28="" cfr="" part="" 68,="" any="" service="" officer="" listed="" in="" sec.="" 287.4="" of="" this="" chapter="" may="" compel="" by="" subpoena="" the="" attendance="" of="" witnesses="" and="" production="" of="" any="" evidence,="" including="" but="" not="" limited="" to="" forms="" i-9="" and="" attachments.="" nothing="" in="" this="" section="" is="" intended="" to="" limit="" the="" service's="" subpoena="" power="" under="" sections="" 235(d)(4)="" or="" 274a(e)="" (2)(c)="" of="" the="" act.="" 8.="" section="" 274a.7="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.7="" what="" is="" the="" prohibition="" on="" hiring="" or="" contracting="" with="" unauthorized="" aliens="" and="" what="" defense="" can="" be="" claimed?="" (a)="" prohibition="" on="" the="" hiring="" and="" continuing="" employment="" of="" unauthorized="" aliens.="" a="" person="" or="" entity="" who="" hires,="" or="" recruits="" or="" refers="" for="" a="" fee,="" an="" individual="" after="" november="" 6,="" 1986,="" and="" who="" has="" actual="" or="" constructive="" knowledge="" that="" the="" individual="" is="" unauthorized="" to="" work,="" is="" in="" violation="" of="" section="" 274a(a)="" (1)(a)="" of="" the="" act.="" a="" person="" or="" entity="" who="" continues="" to="" employ="" an="" individual="" hired="" after="" november="" 6,="" 1986,="" and="" who="" has="" actual="" or="" constructive="" knowledge="" that="" the="" individual="" is="" or="" has="" become="" unauthorized,="" is="" in="" violation="" of="" section="" 274a(a)(2)="" of="" the="" act.="" (b)="" use="" of="" labor="" through="" contract.="" any="" person="" or="" entity="" who="" uses="" a="" contract,="" subcontract,="" or="" exchange="" entered="" into,="" renegotiated,="" or="" extended="" after="" november="" 6,="" 1986,="" to="" obtain="" the="" labor="" or="" services="" of="" an="" alien="" in="" the="" united="" states="" who="" has="" actual="" or="" constructive="" knowledge="" that="" the="" alien="" is="" an="" unauthorized="" alien="" with="" respect="" to="" performing="" such="" labor="" or="" services,="" shall="" be="" considered="" to="" have="" hired="" the="" alien="" for="" employment="" in="" the="" united="" states="" in="" violation="" of="" section="" 274a(a)(1)(a)="" of="" the="" act.="" (c)="" good="" faith="" defense="" to="" charge="" of="" knowingly="" hiring="" an="" unauthorized="" alien.="" a="" person="" or="" entity="" who="" shows="" good="" faith="" compliance="" with="" the="" employment="" verification="" requirements="" of="" sec.="" sec.="" 274a.2="" through="" 274a.6="" shall="" have="" established="" a="" rebuttable="" affirmative="" defense="" that="" the="" person="" or="" entity="" has="" not="" violated="" section="" 274a(a)(1)(a)="" of="" the="" act="" with="" respect="" to="" such="" hiring,="" recruiting,="" or="" referral.="" 9.="" section="" 274a.8="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.8="" what="" are="" the="" requirements="" of="" state="" employment="" agencies="" that="" choose="" to="" verify="" the="" identify="" and="" employment="" eligibility="" of="" individuals="" referred="" for="" employment="" by="" the="" agency?="" (a)="" general.="" under="" sections="" 274a(a)(5)="" and="" 274a(b)="" of="" the="" act,="" a="" state="" employment="" agency="" as="" defined="" in="" sec.="" 274a.1="" may,="" but="" is="" not="" required="" to,="" verify="" identity="" and="" employment="" eligibility="" of="" individual="" referred="" for="" employment="" by="" the="" agency.="" however,="" should="" a="" state="" employment="" agency="" choose="" to="" do="" so,="" it="" must:="" (1)="" complete="" the="" verification="" process="" in="" accordance="" with="" the="" requirements="" of="" secs.="" 274a.2="" through="" 274a.6="" provided="" that="" the="" individual="" may="" not="" present="" receipts,="" as="" set="" forth="" in="" sec.="" 274a.3(d),="" in="" lieu="" of="" documents="" in="" order="" to="" complete="" the="" verification="" process;="" and="" (2)="" complete="" the="" verification="" process="" prior="" to="" referral="" for="" all="" individuals="" for="" whom="" a="" certification="" is="" required="" to="" be="" issued="" under="" paragraph="" (c)="" of="" this="" section.="" (b)="" compliance="" with="" the="" provisions="" of="" section="" 274a="" of="" the="" act.="" a="" state="" employment="" agency="" which="" chooses="" to="" verify="" employment="" eligibility="" of="" individuals="" according="" to="" secs.="" 274a.2="" through="" 274a.6="" shall="" comply="" with="" all="" provisions="" of="" section="" 274a="" of="" the="" act="" and="" the="" regulations="" issued="" thereunder.="" (c)="" state="" employment="" agency="" certification.--(1)="" a="" state="" employment="" agency="" which="" chooses="" to="" verify="" employment="" eligibility="" according="" to="" paragraph="" (a)="" of="" this="" section="" shall="" issue="" to="" an="" employer="" who="" hires="" an="" individual="" referred="" for="" employment="" by="" the="" agency,="" a="" certification="" as="" set="" forth="" in="" paragraph="" (d)="" of="" this="" section.="" the="" certification="" shall="" be="" transmitted="" by="" the="" state="" employment="" agency="" directly="" to="" the="" employer,="" personally="" by="" an="" agency="" official,="" or="" by="" mail,="" so="" that="" it="" will="" be="" received="" by="" the="" employer="" within="" 21="" business="" days="" of="" the="" date="" that="" the="" referred="" individual="" is="" hired.="" in="" no="" case="" shall="" the="" certification="" be="" transmitted="" to="" the="" employer="" from="" the="" state="" employment="" agency="" by="" the="" individual="" referred.="" during="" this="" period:="" (i)="" the="" job="" order="" or="" other="" appropriate="" referral="" form="" issued="" by="" the="" state="" employment="" agency="" to="" the="" employer,="" on="" behalf="" of="" the="" individual="" who="" is="" referred="" and="" hired,="" shall="" serve="" as="" evidence,="" with="" respect="" to="" that="" individual,="" of="" the="" employer's="" compliance="" with="" the="" provisions="" of="" section="" 274a(a)(1)(b)="" of="" the="" act="" and="" the="" regulations="" issued="" thereunder.="" (ii)="" in="" the="" case="" of="" a="" telephonically="" authorized="" job="" referral="" by="" the="" state="" employment="" agency="" to="" the="" employer,="" an="" appropriate="" annotation="" by="" the="" employer="" shall="" be="" made="" and="" shall="" serve="" as="" evidence="" of="" the="" job="" order.="" the="" employer="" should="" retain="" the="" document="" containing="" the="" annotation="" where="" the="" employer="" retains="" forms="" i-9.="" (2)="" job="" orders="" or="" other="" referrals,="" including="" telephonic="" authorizations,="" which="" are="" used="" as="" evidence="" of="" compliance="" under="" paragraph="" (c)(1)(i)="" of="" this="" section="" shall="" contain:="" (i)="" the="" name="" of="" the="" referred="" individual;="" (ii)="" the="" date="" of="" the="" referral;="" (iii)="" the="" job="" order="" number="" or="" other="" applicable="" identifying="" number="" relating="" to="" the="" referral;="" (iv)="" the="" name="" and="" title="" of="" the="" referring="" state="" employment="" agency="" official;="" and="" (v)="" the="" telephone="" number="" and="" address="" of="" the="" state="" employment="" agency.="" [[page="" 5307]]="" (3)="" a="" state="" employment="" agency="" shall="" not="" be="" required="" to="" verify="" employment="" eligibility="" or="" to="" issue="" a="" certification="" to="" an="" employer="" to="" whom="" the="" agency="" referred="" an="" individual="" if="" the="" individual="" is="" hired="" for="" a="" period="" of="" employment="" not="" to="" exceed="" 3="" days="" in="" duration.="" should="" a="" state="" agency="" choose="" to="" verify="" employment="" eligibility="" and="" to="" issue="" a="" certification="" to="" an="" employer="" relating="" to="" an="" individual="" who="" is="" hired="" for="" a="" period="" of="" employment="" not="" to="" exceed="" 3="" days="" in="" duration,="" it="" must="" verify="" employment="" eligibility="" and="" issue="" certifications="" relating="" to="" all="" such="" individuals.="" should="" a="" state="" employment="" agency="" choose="" not="" to="" verify="" employment="" eligibility="" or="" issue="" certifications="" to="" employers="" who="" hire,="" for="" a="" period="" not="" to="" exceed="" 3="" days="" in="" duration,="" agency-referred="" individuals,="" the="" agency="" shall="" notify="" employers="" that,="" as="" a="" matter="" of="" policy,="" it="" does="" not="" perform="" verifications="" for="" individuals="" hired="" for="" that="" length="" of="" time,="" and="" that="" the="" employers="" must="" complete="" the="" identify="" and="" employment="" eligibility="" requirements="" under="" secs.="" 274a.2="" through="" 274a.6.="" such="" notification="" may="" be="" incorporated="" into="" the="" job="" order="" or="" other="" referral="" form="" utilized="" by="" the="" state="" employment="" agency="" as="" appropriate.="" (4)="" an="" employer="" to="" whom="" a="" state="" employment="" agency="" issues="" a="" certification="" relating="" to="" an="" individual="" referred="" by="" the="" agency="" and="" hired="" by="" the="" employer,="" shall="" be="" deemed="" to="" have="" complied="" with="" the="" verification="" requirements="" of="" secs.="" 274a.2="" through="" 274a.6="" provided="" that="" the="" employer:="" (i)="" reviews="" the="" identifying="" information="" contained="" in="" the="" certification="" to="" ensure="" that="" it="" pertains="" to="" the="" individual="" hired;="" (ii)="" observes="" the="" signing="" of="" the="" certification="" by="" the="" individual="" at="" the="" time="" of="" its="" receipt="" by="" the="" employer="" as="" provided="" for="" in="" paragraph="" (d)(13)="" of="" this="" section;="" (iii)="" complies="" with="" the="" provisions="" of="" sec.="" 274a.2(d)="" by="" either:="" (a)="" updating="" the="" state="" employment="" agency="" certification="" in="" lieu="" of="" form="" i-9,="" upon="" expiration="" of="" the="" employment="" authorization="" date,="" if="" any,="" which="" was="" noted="" on="" the="" certification="" issued="" by="" the="" state="" employment="" agency="" under="" paragraph="" (d)(11)="" of="" this="" section;="" or="" (b)="" by="" no="" longer="" employing="" an="" individual="" upon="" expiration="" of="" his="" or="" her="" employment="" authorization="" date="" noted="" on="" the="" certification;="" (iv)="" retains="" the="" certification="" in="" the="" same="" manner="" prescribed="" for="" form="" i-9="" and="" attachments="" in="" sec.="" 274a.4,="" to="" wit,="" 3="" years="" after="" the="" date="" of="" the="" hire="" or="" 1="" year="" after="" the="" date="" the="" individual's="" employment="" is="" terminated,="" whichever="" is="" later;="" and="" (v)="" makes="" it="" available="" for="" inspection="" to="" officers="" of="" the="" service="" or="" the="" department="" of="" labor,="" according="" to="" the="" provisions="" of="" section="" 274a(b)(3)="" of="" the="" act,="" and="" sec.="" 274a.6.="" (5)="" failure="" by="" an="" employer="" to="" comply="" with="" the="" provisions="" of="" paragraph="" (c)(4)(iii)="" of="" this="" section="" shall="" constitute="" a="" violation="" of="" section="" 274(a)(2)="" of="" the="" act="" and="" shall="" subject="" the="" employer="" to="" the="" penalties="" contained="" in="" section="" 274a(e)(4)="" of="" the="" act,="" and="" sec.="" 274a.11.="" (d)="" standards="" for="" state="" employment="" agency="" certifications.="" all="" certifications="" issued="" by="" a="" state="" employment="" agency="" under="" paragraph="" (c)="" of="" this="" section="" shall="" conform="" to="" the="" following="" standards.="" they="" must:="" (1)="" be="" issued="" on="" official="" agency="" letterhead;="" (2)="" be="" signed="" by="" an="" appropriately="" designated="" official="" of="" the="" agency;="" (3)="" bear="" a="" date="" of="" issuance;="" (4)="" contain="" the="" employer's="" name="" and="" address;="" (5)="" state="" the="" name="" and="" date="" of="" birth="" of="" the="" individual="" referred;="" (6)="" identify="" the="" position="" or="" type="" of="" employment="" for="" which="" the="" individual="" is="" referred;="" (7)="" bear="" a="" job="" order="" number="" relating="" to="" the="" position="" or="" type="" of="" employment="" for="" which="" the="" individual="" is="" referred;="" (8)="" identify="" the="" document="" or="" documents="" presented="" by="" the="" individual="" to="" the="" state="" employment="" agency="" for="" the="" purposes="" of="" identity="" and="" employment="" eligibility="" verification;="" (9)="" state="" the="" identifying="" number="" of="" numbers="" of="" the="" document="" or="" documents="" described="" in="" paragraph="" (d)(8)="" of="" this="" section;="" (10)="" certify="" that="" the="" agency="" has="" complied="" with="" the="" requirements="" of="" section="" 274a(b)="" of="" the="" act="" concerning="" verification="" of="" the="" identify="" and="" employment="" eligibility="" of="" the="" individual="" referred,="" and="" has="" determined="" that,="" to="" the="" best="" of="" the="" agency's="" knowledge,="" the="" individual="" is="" authorized="" to="" work="" in="" the="" united="" states;="" (11)="" clearly="" state="" any="" restrictions,="" conditions,="" expiration="" dates,="" or="" other="" limitations="" which="" relate="" to="" the="" individual's="" employment="" eligibility="" in="" the="" united="" states,="" or="" contain="" an="" affirmative="" statement="" that="" the="" employment="" authorization="" of="" the="" referred="" individual="" is="" not="" restricted;="" (12)="" state="" that="" the="" employer="" is="" not="" required="" to="" verify="" the="" individual's="" identity="" or="" employment="" eligibility,="" but="" must="" retain="" the="" certification="" in="" lieu="" of="" form="" i-9;="" (13)="" contain="" a="" space="" or="" a="" line="" for="" the="" signature="" of="" the="" referred="" individual,="" requiring="" the="" individual="" under="" penalty="" of="" perjury="" to="" sign="" his="" or="" her="" name="" before="" the="" employer="" at="" the="" time="" of="" receipt="" of="" the="" certification="" by="" the="" employer;="" and="" (14)="" state="" that="" counterfeiting,="" falsification,="" unauthorized="" issuance,="" or="" alteration="" of="" the="" certification="" constitutes="" a="" violation="" of="" federal="" law="" under="" 18="" u.s.c.="" 1546.="" (e)="" retention="" of="" form="" i-9="" by="" state="" employment="" agencies.="" a="" form="" i-9="" utilized="" by="" a="" state="" employment="" agency="" in="" verifying="" the="" identity="" and="" employment="" eligibility="" of="" an="" individual="" under="" secs.="" 274a.2="" through="" 274a.6="" must="" be="" retained="" by="" a="" state="" employment="" agency="" for="" a="" period="" of="" 3="" years="" from="" the="" date="" that="" the="" individual="" was="" last="" referred="" by="" the="" agency="" and="" hired="" by="" an="" employer.="" a="" state="" employment="" agency="" may="" retain="" a="" form="" i-9="" either="" in="" its="" original="" form,="" or="" on="" microfilm="" or="" microfiche.="" (f)="" retention="" of="" state="" employment="" agency="" certifications.="" a="" certification="" issued="" by="" a="" state="" employment="" agency="" under="" this="" section="" shall="" be="" retained:="" (1)="" by="" a="" state="" employment="" agency,="" for="" a="" period="" of="" 3="" years="" from="" the="" date="" that="" the="" individual="" was="" last="" referred="" by="" the="" agency="" and="" hired="" by="" an="" employer,="" and="" in="" a="" manner="" to="" be="" determined="" by="" the="" agency="" which="" will="" enable="" the="" prompt="" retrieval="" of="" the="" information="" contained="" on="" the="" original="" certification="" for="" comparison="" with="" the="" relating="" form="" i-9;="" (2)="" by="" the="" employer,="" in="" the="" original="" form,="" and="" in="" the="" same="" manner="" and="" location="" as="" the="" employer="" has="" designated="" for="" retention="" of="" forms="" i-9,="" and="" for="" the="" period="" of="" time="" provided="" in="" paragraph="" (c)(4)(iv)="" of="" this="" section.="" (g)="" state="" employment="" agency="" verification="" requirements="" in="" the="" case="" of="" an="" individual="" who="" was="" previously="" referred="" and="" certified.="" when="" a="" state="" employment="" agency="" refers="" an="" individual="" for="" whom="" the="" verification="" requirements="" have="" been="" previously="" complied="" with="" and="" a="" form="" i-9="" completed,="" the="" agency="" shall="" inspect="" the="" previously="" completed="" form="" i-9:="" (1)="" if,="" upon="" inspection="" of="" the="" form,="" the="" agency="" determines="" that="" the="" form="" i-9="" pertains="" to="" the="" individual="" and="" that="" the="" individual="" remains="" authorized="" to="" be="" employed="" in="" the="" united="" states,="" no="" additional="" verification="" need="" be="" conducted="" and="" no="" new="" form="" i-9="" need="" be="" completed="" prior="" to="" issuance="" of="" a="" new="" certification="" provided="" that="" the="" individual="" is="" referred="" by="" the="" agency="" within="" 3="" years="" of="" the="" execution="" of="" the="" initial="" form="" i-9.="" (2)="" if,="" upon="" inspection="" of="" the="" form,="" the="" agency="" determines="" that="" the="" form="" i-9="" pertains="" to="" the="" individual="" but="" that="" the="" individual="" does="" not="" appear="" to="" be="" authorized="" to="" be="" employed="" in="" the="" united="" states="" based="" on="" restrictions,="" expiration="" dates,="" or="" other="" conditions="" annotated="" on="" the="" form="" i-9,="" the="" agency="" shall="" not="" issue="" [[page="" 5308]]="" a="" certification="" unless="" the="" agency="" follows="" the="" updating="" procedures="" under="" sec.="" 274a.2(d)="" of="" this="" part;="" otherwise="" the="" individual="" may="" no="" longer="" be="" referred="" for="" employment="" by="" the="" state="" employment="" agency.="" (3)="" for="" the="" purposes="" of="" retention="" of="" the="" form="" i-9="" by="" a="" state="" employment="" agency="" under="" paragraph="" (e)="" of="" this="" section,="" for="" an="" individual="" previously="" referred="" and="" certified,="" the="" state="" employment="" agency="" shall="" retain="" the="" form="" for="" a="" period="" of="" 3="" years="" from="" the="" date="" that="" the="" individual="" is="" last="" referred="" and="" hired.="" (h)="" employer="" verification="" requirements="" in="" the="" case="" of="" an="" individual="" who="" was="" previously="" referred="" and="" certified.="" when="" an="" employer="" rehires="" an="" individual="" for="" whom="" the="" verification="" and="" certification="" requirements="" have="" been="" previously="" complied="" with="" by="" a="" state="" employment="" agency,="" the="" employer="" shall="" inspect="" the="" previously="" issued="" certification.="" (1)="" if,="" upon="" inspection="" of="" the="" certification,="" the="" employer="" determines="" that="" the="" certification="" pertains="" to="" the="" individual="" and="" that="" the="" individual="" remains="" authorized="" to="" be="" employed="" in="" the="" united="" states,="" no="" additional="" verification="" need="" be="" conducted="" and="" no="" new="" form="" i-9="" or="" certification="" need="" be="" completed="" provided="" that="" the="" individual="" is="" rehired="" by="" the="" employer="" within="" 3="" years="" of="" the="" issuance="" of="" the="" initial="" certification,="" and="" that="" the="" employer="" follows="" the="" same="" procedures="" for="" the="" certification="" which="" pertain="" to="" form="" i-9,="" as="" specified="" in="" sec.="" 274a.5(b)(1)(i).="" (2)="" if,="" upon="" inspection="" of="" the="" certification,="" the="" employer="" determines="" that="" the="" certification="" pertains="" to="" the="" individual="" but="" that="" the="" certification="" reflects="" restrictions,="" expiration="" dates,="" or="" other="" conditions="" which="" indicate="" that="" the="" individual="" no="" longer="" appears="" authorized="" to="" be="" employed="" in="" the="" united="" states,="" the="" employer="" shall="" verify="" that="" the="" individual="" remains="" authorized="" to="" be="" employed="" and="" shall="" follow="" the="" updating="" procedures="" for="" the="" certification="" which="" pertain="" to="" form="" i-9,="" as="" specified="" in="" sec.="" 274a.5(b)(1)(ii).="" (3)="" for="" the="" purposes="" of="" retention="" of="" the="" certification="" by="" an="" employer="" under="" this="" paragraph="" for="" an="" individual="" previously="" referred="" and="" certified="" by="" a="" state="" employment="" agency="" and="" rehired="" by="" the="" employer,="" the="" employer="" shall="" retain="" the="" certification="" for="" a="" period="" of="" 3="" years="" after="" the="" date="" that="" the="" individual="" is="" last="" hired,="" or="" 1="" year="" after="" the="" date="" the="" individual's="" employment="" is="" terminated,="" whichever="" is="" later.="" 10.="" section="" 274a.9="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.9="" can="" a="" person="" or="" entity="" require="" an="" individual="" to="" provide="" a="" financial="" guarantee="" or="" indemnity="" against="" potential="" liability="" related="" to="" the="" hiring,="" recruiting,="" or="" referring="" of="" the="" individual?="" (a)="" general.="" it="" is="" unlawful="" for="" a="" person="" or="" other="" entity,="" in="" hiring="" or="" recruiting="" or="" referring="" for="" a="" fee="" for="" employment="" of="" an="" individual,="" to="" require="" the="" individual="" to="" post="" a="" bond="" or="" security,="" to="" pay="" or="" agree="" to="" pay="" an="" amount,="" or="" otherwise="" to="" provide="" a="" financial="" guarantee="" or="" indemnity,="" against="" any="" potential="" liability="" arising="" under="" this="" part="" relating="" to="" such="" hiring,="" recruiting,="" or="" referring="" of="" the="" individual.="" however,="" this="" prohibition="" does="" not="" apply="" to="" performance="" clauses="" which="" are="" stipulated="" by="" agreement="" between="" contracting="" parties.="" (b)="" penalty.="" any="" person="" or="" other="" entity="" who="" requires="" any="" individual="" to="" post="" a="" bond="" or="" security="" as="" stated="" in="" this="" section="" shall,="" after="" notice="" and="" opportunity="" for="" an="" administrative="" hearing="" in="" accordance="" with="" section="" 274a(e)(3)(b)="" of="" the="" act,="" be="" subject="" to="" a="" civil="" fine="" of="" $1,000="" for="" each="" violation="" and="" to="" an="" administrative="" order="" requiring="" the="" return="" to="" the="" individual="" of="" any="" amounts="" received="" in="" violation="" of="" this="" section="" or,="" if="" the="" individual="" cannot="" be="" located,="" to="" the="" general="" fund="" of="" the="" treasury.="" 11.="" section="" 274a.10="" is="" revised="" to="" read="" as="" follows:="" sec.="" 274a.10="" how="" are="" investigations="" initiated="" and="" employers="" notified="" of="" violations?="" (a)="" procedures="" for="" the="" filing="" of="" complaints.="" any="" person="" or="" entity="" having="" knowledge="" of="" a="" violation="" or="" potential="" violation="" of="" section="" 274a="" of="" the="" act="" may="" submit="" a="" signed,="" written="" complaint="" in="" person="" or="" by="" mail="" to="" the="" service="" office="" having="" jurisdiction="" over="" the="" business="" or="" residence="" of="" the="" potential="" violator.="" the="" signed,="" written="" complaint="" must="" contain="" sufficient="" information="" to="" identify="" both="" the="" complainant="" and="" the="" potential="" violator,="" including="" their="" names="" and="" addresses.="" the="" complaint="" should="" also="" contain="" detailed="" factual="" allegations="" relating="" to="" the="" potential="" violation="" including="" the="" date,="" time,="" and="" place="" of="" the="" alleged="" violation="" and="" the="" specific="" act="" or="" conduct="" alleged="" to="" constitute="" a="" violation="" of="" the="" act.="" written="" complaints="" may="" be="" delivered="" either="" by="" mail="" to="" the="" appropriate="" service="" office="" or="" by="" personally="" appearing="" before="" any="" immigration="" officer="" at="" a="" service="" office.="" (b)="" investigation.="" the="" service="" may="" conduct="" investigations="" for="" violations="" on="" its="" own="" initiative="" and="" without="" having="" received="" a="" written="" complaint.="" when="" the="" service="" receives="" a="" complaint="" from="" a="" third="" party,="" it="" shall="" investigate="" only="" those="" complaints="" that="" have="" a="" reasonable="" probability="" of="" validity.="" if="" it="" is="" determined="" after="" investigation="" that="" the="" person="" or="" entity="" has="" violated="" section="" 274a="" of="" the="" act,="" the="" service="" may="" issue="" and="" serve="" a="" notice="" of="" intent="" to="" fine="" or="" a="" warning="" notice="" upon="" the="" alleged="" violator.="" service="" officers="" shall="" have="" reasonable="" access="" to="" examine="" any="" relevant="" evidence="" of="" any="" person="" or="" entity="" being="" investigated.="" (c)="" warning="" notice.="" the="" service="" and/or="" the="" department="" of="" labor="" may="" in="" their="" discretion="" issue="" a="" warning="" notice="" to="" a="" person="" or="" entity="" alleged="" to="" have="" violated="" section="" 274a="" of="" the="" act.="" this="" warning="" notice="" will="" contain="" a="" statement="" of="" the="" basis="" for="" the="" violations="" and="" the="" statutory="" provisions="" alleged="" to="" have="" been="" violated.="" (d)="" notice="" of="" intent="" to="" fine.="" the="" proceeding="" to="" assess="" administrative="" penalties="" under="" section="" 274a="" of="" the="" act="" is="" commenced="" when="" the="" service="" issues="" a="" notice="" of="" intent="" to="" fine="" on="" form="" i-763.="" service="" of="" this="" notice="" shall="" be="" accomplished="" according="" to="" 8="" cfr="" part="" 103.="" the="" person="" or="" entity="" identified="" in="" the="" notice="" of="" intent="" to="" fine="" shall="" be="" known="" as="" the="" respondent.="" the="" notice="" of="" intent="" to="" fine="" may="" be="" issued="" by="" an="" officer="" defined="" in="" sec.="" 239.1(a)="" of="" this="" chapter="" with="" concurrence="" of="" a="" service="" attorney.="" (1)="" contents="" of="" the="" notice="" of="" intent="" to="" fine.="" (i)="" the="" notice="" of="" intent="" to="" fine="" will="" contain="" the="" basis="" for="" the="" charge(s)="" against="" the="" respondent,="" the="" statutory="" provisions="" alleged="" to="" have="" been="" violated,="" and="" the="" penalty="" that="" will="" be="" imposed.="" (ii)="" the="" notice="" of="" intent="" to="" fine="" will="" provide="" the="" following="" advisals="" to="" the="" respondent:="" (a)="" that="" the="" person="" or="" entity="" has="" the="" right="" to="" representation="" by="" counsel="" of="" his="" or="" her="" own="" choice="" at="" no="" expense="" to="" the="" government;="" (b)="" that="" any="" statement="" given="" may="" be="" used="" against="" the="" person="" or="" entity;="" (c)="" that="" the="" person="" or="" entity="" has="" the="" right="" to="" request="" a="" hearing="" before="" an="" administrative="" law="" judge="" under="" 5="" u.s.c.="" 554-557,="" and="" that="" such="" request="" must="" be="" made="" within="" 30="" days="" from="" the="" service="" of="" the="" notice="" of="" intent="" to="" fine;="" (d)="" that="" the="" service="" will="" issue="" a="" final="" order="" in="" 45="" days="" if="" a="" written="" request="" for="" a="" hearing="" is="" not="" timely="" received="" and="" that="" there="" will="" be="" no="" appeal="" of="" the="" final="" order.="" (e)="" request="" for="" hearing="" before="" an="" administrative="" law="" judge.="" if="" a="" respondent="" contests="" the="" issuance="" of="" a="" notice="" of="" intent="" to="" fine,="" the="" respondent="" must="" file="" with="" the="" service,="" within="" 30="" days="" of="" the="" service="" of="" the="" notice="" of="" intent="" to="" fine,="" a="" written="" request="" for="" a="" hearing="" before="" an="" administrative="" law="" judge.="" any="" written="" request="" for="" a="" hearing="" submitted="" in="" a="" foreign="" language="" must="" be="" [[page="" 5309]]="" accompanied="" by="" an="" english="" language="" translation.="" a="" request="" for="" a="" hearing="" is="" not="" deemed="" to="" be="" filed="" until="" received="" by="" the="" service="" office="" designated="" in="" the="" notice="" of="" intent="" to="" fine.="" in="" computing="" the="" 30-day="" period="" prescribed="" by="" this="" section,="" the="" day="" of="" service="" of="" the="" notice="" of="" intent="" to="" fine="" shall="" not="" be="" included.="" if="" the="" notice="" of="" intent="" to="" fine="" was="" served="" by="" ordinary="" mail,="" 5="" days="" shall="" be="" added="" to="" the="" prescribed="" 30-day="" period.="" in="" the="" request="" for="" a="" hearing,="" the="" respondent="" may,="" but="" is="" not="" required="" to,="" respond="" to="" each="" allegation="" listed="" in="" the="" notice="" of="" intent="" to="" fine.="" (f)="" failure="" to="" file="" a="" request="" for="" hearing.="" if="" the="" respondent="" does="" not="" file="" a="" request="" for="" a="" hearing="" in="" writing="" within="" 30="" days="" of="" the="" day="" of="" service="" of="" the="" notice="" of="" intent="" to="" fine="" (35="" days="" if="" served="" by="" ordinary="" mail),="" the="" service="" shall="" issue="" a="" final="" order="" from="" which="" there="" is="" no="" appeal.="" 12.="" section="" 274a.11="" is="" added="" to="" read:="" sec.="" 274a.11="" what="" penalties="" may="" be="" imposed="" for="" violations?="" (a)="" criminal="" penalties.="" any="" person="" or="" entity="" which="" engages="" in="" a="" pattern="" or="" practice="" of="" violations="" of="" section="" 274a(a)(1)(a)="" or="" (a)(2)="" of="" the="" act="" shall="" be="" fined="" not="" more="" than="" $3,000="" for="" each="" unauthorized="" alien,="" imprisoned="" for="" not="" more="" than="" 6="" months="" for="" the="" entire="" pattern="" or="" practice,="" or="" both,="" notwithstanding="" the="" provisions="" of="" any="" other="" federal="" law="" relating="" to="" fine="" levels.="" (b)="" civil="" penalties.="" a="" person="" or="" entity="" may="" face="" civil="" penalties="" for="" a="" violation="" of="" section="" 274a="" of="" the="" act.="" civil="" penalties="" may="" be="" imposed="" by="" the="" service="" or="" an="" administrative="" law="" judge="" for="" violations="" under="" section="" 274a="" of="" the="" act.="" in="" determining="" the="" level="" of="" the="" penalties="" that="" will="" be="" imposed,="" a="" finding="" of="" more="" than="" one="" violation="" in="" the="" course="" of="" a="" single="" proceeding="" or="" determination="" will="" be="" counted="" as="" a="" single="" offense.="" however,="" a="" single="" offense="" will="" include="" penalties="" for="" each="" unauthorized="" alien="" who="" is="" determined="" to="" have="" been="" knowingly="" hired="" or="" recruited="" or="" referred="" for="" a="" fee.="" (1)="" a="" respondent="" found="" by="" the="" service="" or="" an="" administrative="" law="" judge="" to="" have="" knowingly="" hired,="" or="" to="" have="" knowingly="" recruited="" or="" referred="" for="" a="" fee,="" an="" unauthorized="" alien="" for="" employment="" in="" the="" united="" states="" or="" to="" have="" knowingly="" continued="" to="" employ="" an="" unauthorized="" alien="" in="" the="" united="" states,="" shall="" be="" subject="" to="" the="" following="" order:="" (i)="" to="" cease="" and="" desist="" from="" such="" behavior;="" (ii)="" to="" pay="" a="" civil="" fine="" according="" to="" the="" following="" schedule:="" (a)="" first="" offense--not="" less="" than="" $250="" and="" not="" more="" than="" $2,000="" for="" each="" unauthorized="" alien,="" or="" (b)="" second="" offense--not="" less="" than="" $2,000="" and="" not="" more="" than="" $5,000="" for="" each="" unauthorized="" alien;="" or="" (c)="" more="" than="" two="" offenses--not="" less="" than="" $3,000="" and="" not="" more="" than="" $10,000="" for="" each="" unauthorized="" alien;="" and="" (iii)="" to="" comply="" with="" the="" requirements="" of="" sec.="" 274a.2(b),="" and="" to="" take="" such="" other="" remedial="" action="" as="" appropriate.="" (2)="" a="" respondent="" determined="" by="" the="" service="" (if="" a="" respondent="" fails="" to="" request="" a="" hearing)="" or="" by="" an="" administrative="" law="" judge="" to="" have="" failed="" to="" comply="" with="" the="" employment="" verification="" requirements="" as="" set="" forth="" in="" secs.="" 274a.2="" through="" 274a.6,="" shall="" be="" subject="" to="" a="" civil="" penalty="" in="" an="" amount="" of="" not="" less="" than="" $100="" and="" not="" more="" than="" $1,000="" for="" each="" individual="" with="" respect="" to="" whom="" such="" violation="" occurred.="" in="" determining="" the="" amount="" of="" the="" penalty,="" consideration="" shall="" be="" given="" to:="" (i)="" the="" size="" of="" the="" business="" of="" the="" employer="" being="" charged;="" (ii)="" the="" good="" faith="" of="" the="" employer;="" (iii)="" the="" seriousness="" of="" the="" violation;="" (iv)="" whether="" or="" not="" the="" individual="" was="" an="" unauthorized="" alien;="" and="" (v)="" the="" history="" of="" previous="" violations="" of="" the="" employer.="" (3)="" where="" an="" order="" is="" issued="" with="" respect="" to="" a="" respondent="" composed="" of="" distinct,="" physically="" separate="" subdivisions="" which="" do="" their="" own="" hiring,="" or="" their="" own="" recruiting="" or="" referring="" for="" a="" fee="" for="" employment="" (without="" reference="" to="" the="" practices="" of,="" and="" under="" the="" control="" of,="" or="" common="" control="" with="" another="" subdivision)="" the="" subdivision="" shall="" be="" considered="" a="" separate="" person="" or="" entity.="" (c)="" enjoining="" pattern="" or="" practice="" violations.="" if="" the="" attorney="" general="" has="" reasonable="" cause="" to="" believe="" that="" a="" person="" or="" entity="" is="" engaged="" in="" a="" pattern="" or="" practice="" of="" employment,="" recruitment,="" or="" referral="" in="" violation="" of="" section="" 274a(a)(1)="" (a)="" or="" (b)="" of="" the="" act,="" the="" attorney="" general="" may="" bring="" civil="" action="" in="" the="" appropriate="" united="" states="" district="" court="" requesting="" relief,="" including="" a="" permanent="" or="" temporary="" injunction,="" restraining="" order,="" or="" other="" order="" against="" the="" person="" or="" entity,="" as="" the="" attorney="" general="" deems="" necessary.="" (d)="" pre-enactment="" provisions="" for="" employees="" hired="" prior="" to="" november="" 7,="" 1986.="" the="" penalty="" provisions="" set="" forth="" in="" section="" 274a="" (e)="" and="" (f)="" of="" the="" act="" for="" violations="" of="" sections="" 274a(a)(1)(b)="" and="" 274a(a)(2)="" of="" the="" act="" shall="" not="" apply="" to="" employees="" who="" were="" hired="" prior="" to="" november="" 7,="" 1986,="" and="" who="" are="" continuing="" in="" their="" employment="" and="" have="" a="" reasonable="" expectation="" of="" employment="" and="" have="" a="" reasonable="" expectation="" of="" employment="" at="" all="" times="" (as="" set="" forth="" in="" sec.="" 274a.5(a)),="" except="" those="" individuals="" described="" in="" secs.="" 274a.5(a)(vii)="" and="" (a)(1)(vii)="" and="" (a)(1)(viii)).="" for="" purposes="" of="" this="" section,="" an="" employee="" who="" are="" hired="" prior="" to="" november="" 7,="" 1986,="" shall="" lose="" his="" or="" hers="" pre-enactment="" status="" if="" the="" employee:="" (1)="" quits;.="" (2)="" is="" terminated="" by="" the="" employer;="" the="" term="" termination="" shall="" include,="" but="" is="" not="" limited="" to,="" situations="" in="" which="" an="" employee="" is="" subject="" to="" seasonal="" employment.="" (3)="" is="" excluded="" or="" deported="" from="" the="" united="" states="" or="" departs="" the="" united="" states="" under="" a="" grant="" of="" voluntary="" departure;="" or="" (4)="" is="" no="" longer="" continuing="" his="" or="" her="" employment="" (or="" does="" not="" have="" a="" reasonable="" expectation="" of="" employment="" at="" all="" times)="" as="" set="" forth="" in="" sec.="" 274a.5(a).="" part="" 299--immigration="" forms="" 13.="" section="" 299.1="" is="" amended="" by="" adding="" to="" the="" listing="" of="" forms,="" in="" proper="" numerical="" sequence,="" the="" entry="" for="" form="" ``i-9a''="" to="" read="" as="" follows:="" sec.="" 299.1="" prescribed="" forms.="" *="" *="" *="" *="" *="" ------------------------------------------------------------------------="" form="" no.="" edition="" date="" title="" ------------------------------------------------------------------------="" *="" *="" *="" *="" *="" i-9a..........................="" xxxxx............="" employment="" eligibility="" reverification.="" *="" *="" *="" *="" *="" ------------------------------------------------------------------------="" 14.="" section="" 299.5="" is="" amended="" by="" adding="" to="" the="" listing="" of="" forms,="" in="" proper="" numerical="" sequence,="" the="" entry="" for="" form="" ``i-9a''="" to="" read="" as="" follows:="" sec.="" 299.5="" display="" of="" control="" numbers.="" *="" *="" *="" *="" *="" [[page="" 5310]]="" ------------------------------------------------------------------------="" currently="" ins="" form="" no.="" ins="" form="" title="" assigned="" omb="" control="" no.="" ------------------------------------------------------------------------="" *="" *="" *="" *="" *="" i-9a..........................="" employment="" eligibility="" 1115-="" reverification.="" *="" *="" *="" *="" *="" ------------------------------------------------------------------------="" dated:="" january="" 22,="" 1998.="" doris="" meissner,="" commissioner,="" immigration="" and="" naturalization="" service.="" note:="" the="" form="" i-9="" and="" form="" i-9a="" will="" not="" appear="" in="" the="" code="" of="" federal="" regulations.="" billing="" code="" 4410-10-m="" [[page="" 5311]]="" [graphic]="" [tiff="" omitted]="" tp02fe98.000="" [[page="" 5312]]="" [graphic]="" [tiff="" omitted]="" tp02fe98.001="" [[page="" 5313]]="" [graphic]="" [tiff="" omitted]="" tp02fe98.002="" [[page="" 5314]]="" [graphic]="" [tiff="" omitted]="" tp02fe98.003="" [fr="" doc.="" 98-2124="" filed="" 1-30-98;="" 8:45="" am]="" billing="" code="" 4410-10-c="">