[Federal Register Volume 64, Number 26 (Tuesday, February 9, 1999)]
[Rules and Regulations]
[Pages 6187-6189]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-3021]



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 Rules and Regulations
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  Federal Register / Vol. 64, No. 26 / Tuesday, February 9, 1999 / 
Rules and Regulations  

[[Page 6187]]


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DEPARTMENT OF JUSTICE

Immigration and Naturalization Service

8 CFR Part 274a

[INS No. 1947-98]
RIN 1115-AE94


Interim Designation of Acceptable Receipts for Employment 
Eligibility Verification

AGENCY: Immigration and Naturalization Service, Justice.

ACTION: Interim rule with request for comments.

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SUMMARY: This interim rule amends the regulations of the Immigration 
and Naturalization Service (Service) relating to acceptable receipts 
for completion of the Employment Eligibility Verification form (Form I-
9). A ``receipt'' is a document that an employee may present to his or 
her employer in lieu of a document listed on the Form I-9. The 
regulations currently provide for three types of receipts: a receipt 
for the application for a replacement document; the arrival portion of 
an Arrival-Departure Record, Form I-94, marked with a temporary I-551 
stamp and affixed with the individual's picture; and the departure 
portion of a Form I-94 containing a refugee admission stamp. 
Presentation of one of these types of receipts satisfies the Form I-9 
documentation requirements, but only for a temporary period. At the end 
of this period, the employee must present the document listed on the 
Form I-9 that corresponds to the receipt.
    This interim rule makes two revisions to the provisions governing 
receipts. First, this rule revises the validity period of the second 
type of receipt, the Form I-94 marked with a temporary I-551 stamp and 
affixed with the bearer's photograph. Second, this rule adds the 
Employment Authorization Card, Form I-688B, to the list of documents 
that an individual can present before the receipt validity period 
expires for the third type of receipt, the Form I-94 marked with a 
refugee admission stamp. These changes are being made to facilitate 
compliance with the regulations pending completion of the Service's 
comprehensive document reduction effort.
DATES: Effective date: This interim rule is effective February 9, 1999.
    Comment date: Written comments must be submitted on or before April 
12, 1999.

ADDRESSES: Please submit written comments, in triplicate, 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. 1947-98 on 
your correspondence. Comments are available for public inspection at 
the above address by calling (202) 514-3048 to arrange for an 
appointment.

FOR FURTHER INFORMATION CONTACT: Marguerite Przybylski, Associate 
General Counsel, Office of the General Counsel, Immigration and 
Naturalization Service, 425 I Street NW., Room 6100, Washington, DC, 
20536; (202) 514-2895.

SUPPLEMENTARY INFORMATION: 

What are the requirements of the Illegal Immigration Reform and 
Immigrant Responsibility Act of 1996 (IIRIRA) as it relates to 
documentation of employment?

    Section 412 of IIRIRA, Pub. L. 104-208, enacted on September 30, 
1996, amended the employment eligibility verification provisions of 
section 274A of the Immigration and Nationality Act (Act) to require a 
reduction in the number of documents acceptable for completion of the 
Form I-9. The Act 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).

Which Documents were Removed on September 30, 1997?

    On September 30, 1997, an interim rule was published in the Federal 
Register at 62 FR 51001 implementing the IIRIRA amendments to the list 
of documents. The September 30, 1997, interim rule removed four 
documents from List A as follows:
    (1) Certificate of United States Citizenship, Form N-560 or N-561;
    (2) Certificate of Naturalization, Form N-550 or N-570;
    (3) Reentry Permit, Form I-327; and
    (4) Refugee Travel document, Form I-571.
    The interim rule also modified the List A document relating to 
nonimmigrants eligible to work incident to their nonimmigrant status, 
and revised the ``receipt rule.''

What Changes are Being Made by This Interim Rule?

    Under the current regulations at 8 CFR 274a.2(b)(1)(vi), the 
special rule for receipts requires an employer, or recruiter or 
referrer for a fee, to accept a receipt in lieu of a List A, List B, or 
List C document in certain circumstances for completion of the Form I-
9. The current regulations authorize the use of receipts in three 
instances:
    (1) When the individual presents a receipt for the application for 
a replacement document;
    (2) When the individual presents the arrival portion of Form I-94 
which the Service has: (a) marked with a temporary I-551 stamp 
indicating lawful permanent residence and (b) affixed with the alien's 
picture; and
    (3) When the individual presents the departure portion of Form I-94 
that the Service has marked with a refugee admission stamp.
    This interim rule amends the receipt rule as its applies to Forms 
I-94 that are marked with either a temporary I-551 stamp or a refugee 
admission stamp. These amendments are necessary to account for 
procedural delays that have become apparent since publication of the 
September 30, 1997, interim rule.

A. Forms I-94 Marked With a Temporary I-551 Stamp

    Current regulations at 8 CFR 274a.2(b)(1)(vi)(B) provide that if an 
individual presents to his or her employer the arrival portion of Form 
I-94 that the Service has marked with a temporary I-551 stamp and has 
affixed the alien's picture in lieu of a Permanent Resident Card, Form 
I-551, the individual must present the actual Form I-551 within 180 
days from the date of hire or, in the case of

[[Page 6188]]

reverification, the date employment authorization expires even if the 
temporary I-551 stamp on the Form I-94 contains a later expiration 
date. At the time of the September 30, 1997, interim rule, when this 
provision was added to the regulations, the Service determined that the 
180-day validity period would be a sufficient amount of time for an 
individual to obtain the actual Form I-551. Since the September 30, 
1997, interim rule, the Service has determined that in some cases, it 
may take longer than 180 days to obtain the actual Form I-551. In 
addition, the Service determined that employers may be confused when 
the expiration date written on the Form I-94 itself and the regulatory 
validity period of the receipt are not the same. It is likely that 
employers will rely upon the expiration date of the stamp on Form I-94, 
rather than count 180 days from the date the employee presents the 
receipt, since the date of the stamp is more obvious. To eliminate this 
confusion, this interim rule amends the regulations to provide that the 
receipt validity period for the Form I-94 marked with a temporary I-552 
stamp and affixed with a picture is to be the same as the expiration 
date of the temporary I-551 stamp written on Form I-94. The Service 
issues some Forms I-94 marked with temporary I-552 stamps with a 
validity period that is less than 1 year. Some are issued with a 
validity period that is more than 1 year. However, most are issued with 
a 1-year validity period. Given the Service's current card production 
capabilities, 1 year is a sufficient amount of time for the individual 
to obtain the actual Form I-551.
    Some Forms I-94 marked with temporary I-551 stamps and affixed with 
the alien's picture do not have expiration dates. For such Forms I-94, 
the interim rule amends the validity period from the current 180 days 
from the date of hire or, in the case of reverification, the date 
employment authorization expires, to 1 year from the date of issuance 
of the Form I-94. This amendment comports with the 1-year validity 
period generally assigned to Forms I-94 marked with stamps and affixed 
with pictures that do contain expiration dates.

B. Forms I-94 Marked With a Refugee Admission Stamp

    Current regulations at 8 CFR 274a.2(b)(1)(vi)(C) provide that an 
individual who presents to his or her employer the departure portion of 
Form I-94 containing a refugee admission stamp as a receipt to complete 
the Form I-9, must present either Form I-766 (Employment Authorization 
Document (EAD)) or an unrestricted social security account number card 
and a List B document within 90 days of the date of hire or, in the 
case of reverification, the date employment authorization expires. The 
Form I-766 was introduced as a new employment authorization document in 
a final rule published in the Federal Register at 61 FR 46534 on 
September 4, 1996. The Form I-766 will eventually replace Forms I-688, 
I-688A, and I-688B as evidence of employment authorization. However, 
Forms I-688B continue to be issued by the Service at this time. Because 
some refugees will be in possession of Forms I-688B rather than Forms 
I-766, this interim rule amends the current regulations to add Form I-
688B to the list of documents acceptable for presentation upon 
expiration of the 90-day receipt period. Form I-688A is only issued to 
legalization applicants and does not apply to refugees. Form I-688 is 
the Temporary Resident Card and also does not apply to refugees.

What is the status of the Service's plan to make comprehensive 
revisions to the employment verification process?

    On February 2, 1998, a proposed rule was published in the Federal 
Register at 63 FR 5287 proposing comprehensive changes to the 
employment verification process, including a reduction in the list of 
acceptable documents. The comment period closed on April 3, 1998. The 
Service received many thoughtful and detailed comments from the public. 
The Service is currently reviewing the comments and will issue a final 
rule with a revised Form I-9 once this review process is completed. 
Until that time, Service regulations as amended by this interim rule 
will remain in effect. As with the September 30, 1997, interim rule, 
the Service will withhold enforcement of civil money penalties for 
violations associated with the changes made by the interim rule 
committed before the effective date of a final rule containing the 
revised Form I-9.

Good Cause Exception

    The Service's implementation of this rule as an interim rule, with 
provisions for post-promulgation public comment, is based on the ``good 
cause'' exceptions found at 5 U.S.C. 553(b)(3)(B) and (d)(3). The 
reason and necessity for this determination is as follows:
    The interim rule adding Form I-94 to the receipt rule was issued on 
September 30, 1997, in order to implement the document reduction 
provisions of section 412(a) of IIRIRA. This rule relieves restrictions 
by extending the validity period of one type of receipt in order to 
provide adequate time for the issuance of the original document 
represented by the receipt. The rule also assists refugees by adding 
the Employment Authorization Card (Form I-688B) to the list of 
documents acceptable for presentation upon the expiration of the 90-day 
receipt period for the Form I-94 marked with a refugee admission stamp. 
Further, the rule makes clarifying and other changes to facilitate 
compliance with the regulations pending completion of the Service's 
comprehensive document reduction effort.

Regulatory Flexibility Act

    The Commissioner of the Immigration and Naturalization Service, in 
accordance with 5 U.S.C. 605(b), has reviewed this interim rule and, by 
approving it, certifies that this rule does not have a significant 
economic impact on a substantial number of small entities. This rule is 
a short-term measure, which is limited in scope and only modifies a 
small portion of the entire employment verification process. It does 
not introduce new forms. As a result, this rule would not require small 
entities to significantly change established practices.

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 submitted to the Office of Management 
and Budget for review.

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 interim 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

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private sector, of $100 million or more in any 1 year, and it will not 
significantly or uniquely affect small governments. Therefore, no 
actions were deemed necessary under the provisions of the Unfunded 
Mandates Reform Act of 1995.

Small Business Regulatory Enforcement Fairness Act of 1996

    This rule is not a major rule as defined by 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.

List of Subjects in 8 CFR Part 274a

    Administrative practice and procedures, Aliens, Employment, 
Penalties, Reporting and recordkeeping requirements.

    Accordingly, part 274a of chapter I of title 8 of the Code of 
Federal Regulations is 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.2 is amended by revising paragraphs (b)(1)(vi)(B) 
and (b)(1)(vi)(C) to read as follows:


Sec. 274a.2  Verification of employment eligibility.

* * * * *
    (b) * * *
    (1) * * *
    (vi) * * *
    (B) Form I-94 indicating temporary evidence of permanent resident 
status. The individual indicates in section 1 of the Form I-9 that he 
or she is a lawful permanent resident and the individual:
    (1) Presents the arrival portion of Form I-94 containing an 
unexpired ``Temporary I-551'' stamp and photograph of the individual, 
which is designated for purposes of this section as a receipt for Form 
I-551; and
    (2) Presents the Form I-551 by the expiration date of the 
``Temporary Form I-551'' stamp or, if the stamp has no expiration date, 
within 1 year from the issuance date of the arrival portion of Form I-
94; or
    (C) Form I-94 indicating refugee status. The individual indicates 
in section 1 of the Form I-9 that he or she is an alien authorized to 
work and the individual:
    (1) Presents the departure portion of the Form I-94 containing an 
unexpired refugee admission stamp, which is designated for purposes of 
this section as a receipt for the Form I-766, Form I-688B, or a social 
security account number card that contains no employment restrictions; 
and
    (2) Presents, within 90 days of the hire or, in the case of 
reverification, the date employment authorization expires, either an 
unexpired Form I-766 or Form I-688B, or a social security account 
number card that contains no employment restrictions, and a document 
described under paragraph (b)(1)(v)(B) of this section.
* * * * *
    Dated: November 25, 1998.
Doris Meissner,
Commissioner, Immigration and Naturalization Service.
[FR Doc. 99-3021 Filed 2-8-99; 8:45 am]
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