[Federal Register Volume 64, Number 67 (Thursday, April 8, 1999)]
[Proposed Rules]
[Pages 17128-17130]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-8773]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 64, No. 67 / Thursday, April 8, 1999 /
Proposed Rules
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DEPARTMENT OF JUSTICE
8 CFR Part 2
28 CFR Part 65
[INS No. 1924-98; AG Order No. 2215-99]
RIN 1115-AF20
Powers of the Attorney General to Authorize State or Local Law
Enforcement Officers To Enforce Immigration Law During a Mass Influx of
Aliens
AGENCY: Immigration and Naturalization Service, Justice.
ACTION: Proposed rule.
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SUMMARY: This rule proposes to implement section 103(a)(8) of the
Immigration and Nationality Act (the Act), which permits the Attorney
General to authorize any State or local law enforcement officer, with
the consent of the head of the department, agency, or establishment
under whose jurisdiction the individual is serving, to perform certain
functions related to the enforcement of the immigration laws during a
period of mass influx of aliens. This rule provides for a cooperative
process by which State or local governments can agree to place
authorized State or local law enforcement officer(s) under the
direction of the Immigration and Naturalization Service (INS) in
enforcing immigration laws, whenever the Attorney General determines
that such assistance is necessary during a mass influx of aliens.
This rule also allows the Commissioner of the INS to enter into
advance written ``contingency'' agreements with State and local law
enforcement officials. The written agreements will explain the terms
and conditions (including the reimbursement of expenses) under which
State or local law enforcement officers an enforce immigration laws
during a mass influx of aliens. The rule also ensures that appropriate
notifications are made to Congress and the Administration. This rule is
necessary to ensure that the INS can respond in an expeditious manner
during a mass influx of aliens.
Finally, the rule ensures that the performance of duties under the
special authorization is consistent with civil rights protections.
DATES: Written comments must be submitted on or before June 7, 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 number 1924-98
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:
George M. Waldroup, Special Assistant, Field Operations, Immigration
and Naturalization Service, 425 I Street, NW, Room 7228, Washington, DC
20536, telephone (202) 305-7873.
SUPPLEMENTARY INFORMATION:
Background
Section 372 of the Illegal Immigration Reform and Immigrant
Responsibility Act of 1996 (IIRIRA) (Pub. L. 104-208, 110 Stat. 3009),
added section 103(a)(8) of the Act (8 U.S.C. 1103(a)(8)) to permit the
Attorney General to authorize any State or local law enforcement
officer, with the consent of the head of the department, agency, or
establishment under whose jurisdiction the individual is serving, to
perform or exercise any of the powers, privileges, or duties conferred
or imposed by the Act or implementing regulations upon officers or
employees of the INS during a period of a mass influx of aliens. Under
section 103(a)(8) of the Act, such Attorney General authorization to
State or local law enforcement officers can occur only in the event
that the Attorney General determines that ``an actual or imminent mass
influx of aliens arriving off the coast of the United States, or near a
land border, presents urgent circumstances requiring an immediate
Federal response.'' Any authority to enforce immigration laws that is
given to State or local law enforcement officers under section
103(a)(8) of the Act can be exercised only during such a mass influx of
aliens, as determined by the Attorney General. The implementation of
this proposed rule will facilitate an expeditious and coordinated
response during a mass influx of aliens, by enabling the Attorney
General to draw upon the voluntary assistance of State and local
resources.
Explanation of Changes
This rule implements the intent of section 103(a)(8) of the Act by
providing a mechanism by which a trained cadre of State and/or local
law enforcement officers will be available to enhance the Federal
Government's ability to field an immediate and effective response to a
mass influx of aliens.
State/local law enforcement officers cannot perform any functions
of an INS officer or employee pursuant to 8 U.S.C. 1103(a)(8) and under
the provisions of this rule until they successfully complete training
prescribed by the INS in basic immigration law, enforcement
fundamentals, civil rights law, and sensitivity and cultural awareness
issues. INS will provide all necessary training materials and will
conduct training sessions to designated officers at sites within their
jurisdictional or commuting areas when possible. The employing State/
local law enforcement agency, department, or establishment will be
required to fund its officers' transportation, lodging, and subsistence
costs as may be required.
This rule is an amendment to the existing regulations of the
Department of Justice relating to the Immigration Emergency Fund. By
tying reimbursement for actual expenses incurred to the Immigration
Emergency Fund, this rule also seeks to assure State and local law
enforcement agencies that they will not bear undue increased
operational expenditures. However, this rule provides no guarantee of
reimbursement for actual expenses incurred in excess of the balance of
uncommitted funds in the Immigration Emergency Fund. Without additional
appropriations to the Immigration Emergency Fund, any reimbursement
would be contingent on supplemental appropriations and/or other funding
that may be available. Execution of advance ``contingency'' agreements
will expedite subsequent action by the Attorney General to give
authority to State and/or local law enforcement officers to enforce
immigration laws and will facilitate reimbursement of actual
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expenditures in support of a Federal response to a mass influx of
aliens, pursuant to existing financial requirements such as
Congressional notification and recordkeeping.
Regulatory Flexibility Act
The Attorney General, in accordance with the Regulatory Flexibility
Act (5 U.S.C. 605(b)), has reviewed this regulation and, by approving
it, certifies that this rule will not have a significant impact on a
substantial number of small entities because of the following factors:
(1) INS anticipates that participation in written agreements executed
with State and/or local law enforcement agencies under section
103(a)(8) of the Act and this rule will be limited to those State or
local law enforcement agencies whose jurisdiction is along the southern
land border or the coastline of South Florida and who agree to provide
assistance in a Federal response to a mass influx of aliens into the
United States; (2) participation by State and/or local law enforcement
agencies is voluntary and no State or local law enforcement agency
outside the area of a mass influx of aliens would be affected by
implementation of this rule; (3) this rule believes undue financial
burdens on participating law enforcement agencies by providing for
reimbursement of actual expenses incurred in direct support of a
Federal response to a mass influx of aliens; and, (4) it is anticipated
that delegation of authority to State/local law enforcement officers to
enforce immigration law under the provisions of this rule will be
infrequent and will occur only during times of an actual or imminent
mass influx of aliens into the United States.
Unfunded Mandates Reform Act of 1995
This rule will not result in the expenditure by State, local and
tribal governments, in the aggregate, or by the private sector, of $100
million or more in any 1 year, and it will not significantly or
uniquely affect small governments. Therefore, no actions were deemed
necessary under the provisions of the Unfunded Mandates Reform Act of
1995.
Small Business Regulatory Enforcement Fairness Act of 1996
This rule is not a major rule as defined in the Small Business
Regulatory Enforcement Fairness Act of 1996, 5 U.S.C. 804. This rule
will not result in an annual effect on the economy of $100 million or
more; a major increase in cost or prices; or significant adverse
effects on competition, employment, investment, productivity,
innovation, or on the ability of United States-based companies to
compete with foreign-based companies in domestic and export markets.
Executive Order 12866
This rule is considered by the Department of Justice to be a
``significant regulatory action'' under section 3(f) of Executive Order
12866, Regulatory Planning and Review. Accordingly, this regulation 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 various levels of government. This rule provides
for reimbursement through the Immigration Emergency Fund (contingent
upon availability of such funds) and/or supplemental appropriation, of
actual expenditures incurred by State/local law enforcement agencies
whose law enforcement officers are supporting a Federal response to an
actual or imminent mass influx of aliens. 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 Executive Order 12988.
Paperwork Reduction Act
As contained in this rule under 28 CFR 65.85(e), the Attorney
General will consider all applications from State or local governments
for reimbursement of actual expenses incurred in direct support of a
Federal response to a mass influx of aliens, until the maximum amount
of money in the Immigration Emergency Fund has been expended. The
information that must be included in the application for reimbursement
is described in 28 CFR 65.85(c). The information required in 28 CFR
65.85(c) is considered an information collection which is covered under
the Paperwork Reduction Act (PRA). This information collection has
previously been approved by the Office of Management and Budget (OMB)
under the PRA. The OMB control number for this approved information
collection is 1115-0184.
List of Subjects
8 CFR Part 2
Authority delegations (government agencies).
28 CFR Part 65
Grant programs--law, Law enforcement, Reporting and recordkeeping
requirements.
Accordingly, part 2 of chapter I of title 8 of the Code of Federal
Regulations, and part 65 of chapter I of title 28 of the Code of
Federal Regulations are proposed to be amended as follows:
TITLE 8--ALIENS AND NATIONALITY
PART 2--AUTHORITY OF THE COMMISSIONER
1. The authority citation for part 2 continues to read as follows:
Authority: 28 U.S.C. 509, 510; 5 U.S.C. 301; 8 U.S.C. 1103.
2. Section 2.1 is amended by:
(a) Designating the existing text as paragraph (a); and by
(b) Adding a new paragraph (b), to read as follows:
Sec. 2.1 Authority of the Commissioner.
* * * * *
(b) The Commissioner, pursuant to 28 CFR 65.84(a), may execute
written contingency agreements with State and local law enforcement
agencies regarding assistance under section 103(a)(8) of the Act, which
may be activated in the event that the Attorney General determines that
such assistance is required during a period of a mass influx of aliens,
as provided in 28 CFR 65.83(d). Such contingency agreements shall not
authorize State or local law enforcement officers to perform any
functions of INS officers or employees under 8 U.S.C. 1103(a)(8) until
the Attorney General determines that a mass influx of aliens exists,
and specifically authorizes such performance.
TITLE 28--JUDICIAL ADMINISTRATION
PART 65--EMERGENCY FEDERAL LAW ENFORCEMENT ASSISTANCE
3. The authority citation for part 65 continues to read as follows:
Authority: The Comprehensive Crime Control Act of 1984, Title
II, Chap. VI, Div. I, Subdiv. B, Emergency Federal Law Enforcement
Assistance, Pub. L. 98-473, 98 Stat. 1837, Oct. 12, 1984 (42 U.S.C.
10501 et seq.); 8 U.S.C. 1101 note; Sec. 610, Pub. L. 102-140, 105
Stat. 832.
4. In Sec. 65.83, a new paragraph (d) is added to read as follows:
Sec. 65.83 Assistance required by the Attorney General.
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(d) If, in making a determination pursuant to paragraph (b) or (c)
of this section, the Attorney General also determines that the
situation involves an actual or imminent mass influx of aliens arriving
off the coast of the United States, or near a land border, which
presents urgent circumstances requiring an immediate Federal response,
the Attorney General, pursuant to 8 U.S.C. 1103(a)(8), may authorize
any State or local law enforcement officer to perform or exercise any
of the powers, privileges, or duties conferred or imposed by the INA,
or regulations issued thereunder, upon officers or employees of the
INS. Such authorization must be with the consent of the head of the
department, agency, or establishment under whose jurisdiction the
officer is serving.
5. In Sec. 65.84, paragraph (a) is revised to read as follows:
Sec. 65.84 Procedures for the Attorney General seeking State or local
assistance.
(a)(1) When the Attorney General determines to seek assistance from
a State or local government under Sec. 65.83, or when the President has
determined that an immigration emergency exists, the Attorney General
shall negotiate the terms and conditions of that assistance with the
State or local government. The Attorney General shall then execute a
written agreement with appropriate State or local officials, which sets
forth the terms and conditions of the assistance, including funding.
Such written agreements can be reimbursement agreements, grants, or
cooperative agreements.
(2) The Commissioner of INS may execute written contingency
agreements regarding assistance under Sec. 65.83(d) in advance of the
Attorney General's determination pursuant to that section. However,
such advance agreements shall not authorize State or local law
enforcement officers to perform any functions of INS officers or
employees under 8 U.S.C. 1103(a)(8) until the Attorney General has made
the necessary determinations and authorizes such performance. Any such
advance agreements shall contain precise activation procedures.
(3) Written agreements regarding assistance under Sec. 65.83(d),
including contingency agreements, shall include the following minimum
requirements:
(i) The powers, privileges, or duties that State or local law
enforcement officers will be authorized to perform or exercise and the
conditions under which they may be performed or exercised;
(ii) The types of assistance by State and local law enforcement
officers for which the Attorney General shall be responsible for
reimbursing the relevant parties in accordance with the procedures set
forth in paragraph (b) of this section;
(iii) A statement that the relevant State or local law enforcement
officers are not authorized to perform any functions of INS officers or
employees under 8 U.S.C. 1103(a)(8) until the Attorney General has made
a determination pursuant to that section and authorizes such
performance;
(iv) A requirement that State or local law enforcement officers
cannot perform any authorized functions of INS officers or employees
under 8 U.S.C. 1103(a)(8) until they have successfully completed an INS
prescribed course of instruction in basic immigration law, enforcement
fundamentals, civil rights law, and sensitivity and cultural awareness
issues;
(v) A description of the duration of both the written agreement,
and the authority the Attorney General will confer upon State or local
law enforcement officers pursuant to 8 U.S.C. 1103(a)(8), along with a
mechanism for amending, terminating, or extending the duration of
authority and/or the written agreement;
(vi) A requirement that the performance of any INS officer
functions by State or local law enforcement officers pursuant to 8
U.S.C. 1103(a)(8) be at the direction of the INS;
(vii) A requirement that any State or local law enforcement officer
performing INS officer or employee functions pursuant to 8 U.S.C.
1103(a)(8) must adhere to the policies and standards set forth during
the training, including applicable enforcement standards, civil rights
law, and sensitivity and cultural awareness issues;
(viii) A listing by position (title and name when available) of the
INS officers authorized to provide operational direction to State or
local law enforcement officers assisting in a Federal response pursuant
to 8 U.S.C. 1103(a)(8);
(ix) Provisions concerning State or local law enforcement officer
use of Federal property or facilities, if any;
(x) A requirement that any department, agency, or establishment
whose State or local law enforcement officer is performing INS officer
or employee functions shall cooperate fully in any Federal
investigation related to the written agreement; and
(xi) A procedure by which the appropriate law enforcement
department, agency, or establishment will be notified that the Attorney
General has made a determination under 8 U.S.C. 1103(a)(8) to delegate
authority for State/local law enforcement officers to enforce
immigration law under the provisions of the respective agreements.
* * * * *
6. In Sec. 65.85, paragraph (e) is revised to read as follows:
Sec. 65.85 Procedures for State or local government applying for
funding.
* * * * *
(e) The Attorney General will consider all applications from State
or local governments until the Attorney General has expended the
maximum amount available in the Immigration Emergency Fund. The
Attorney General will make a decision with respect to any application
submitted under this section, subject to the necessary notifications
within the Administration or Congress, and containing the information
described in paragraph (c) of this section, within 15 calendar days of
such application.
* * * * *
Dated: April 1, 1999.
Janet Reno,
Attorney General.
[FR Doc. 99-8773 Filed 4-7-99; 8:45 am]
BILLING CODE 4410-10-M