[Federal Register Volume 88, Number 59 (Tuesday, March 28, 2023)]
[Rules and Regulations]
[Pages 18249-18252]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-06157]



[[Page 18249]]

-----------------------------------------------------------------------

DEPARTMENT OF STATE

22 CFR Part 62

[Public Notice: 12016]
RIN 1400-AC36


Exchange Visitor Program--General Provisions

AGENCY: Department of State.

ACTION: Interim final rule, with request for comment.

-----------------------------------------------------------------------

SUMMARY: The U.S. Department of State (Department of State) is 
publishing an interim final rule with request for comment (interim 
final rule) for Exchange Visitor Program regulations, the regulations 
that apply to sponsors the Department of State designates to conduct 
international educational and cultural exchange programs. The 
Department of State is making administrative changes to the regulations 
to include providing sponsors two new options: using digital signature 
software to sign Certificates of Eligibility for Exchange Visitor (J-1) 
Status (Forms DS-2019) and electronically transmitting Forms DS-2019. 
Sponsors should experience cost savings and increased efficiencies from 
these changes.

DATES: This interim final rule is effective on April 27, 2023. The 
Department of State will accept public comments until May 30, 2023.

ADDRESSES: Interested parties may submit comments to the Department of 
State by any of the following methods:
     Visit the Regulations.gov website at: http://www.regulations.gov and search for the docket number DOS-2023-0010.
     Email: [email protected]. Commenting parties must 
include RIN 1400-AC36 in the subject line of the email message.
     All comments should include the commenter's name, the 
organization the commenter represents, if applicable, and the 
commenter's address. If the Department of State is unable to read a 
comment for any reason, and cannot contact the commenting party for 
clarification, the Department of State may not be able to consider your 
comment. After the conclusion of the comment period, the Department of 
State will publish a final rule (in which it will address relevant 
comments) as expeditiously as possible.

FOR FURTHER INFORMATON CONTACT: Karen Ward, Director, Office of Private 
Sector Exchange Designation, at SA-5, 2200 C Street NW, Washington, DC 
20522 or via email at [email protected].

SUPPLEMENTARY INFORMATION: The Department of State published a notice 
of proposed rulemaking (NPRM) for subpart A of 22 CFR part 62 in the 
Federal Register on September 22, 2009 (74 FR 48177). Subpart A sets 
forth the general provisions for eligibility and continuing 
requirements for all designated sponsors that conduct exchange visitor 
programs. After considering the comments that more than 100 parties 
submitted in response to the NPRM, the Department of State published a 
final rule on October 6, 2014 (79 FR 60294), at which time it requested 
additional comments (2014 final rule).
    The sponsor community has long sought the ability to digitally sign 
and electronically transmit (e.g., via email) Forms DS-2019, i.e., the 
Student and Exchange Visitor Information System- (SEVIS-) generated 
documents that prospective exchange visitors and their spouses and 
dependents, if any, must present at U.S. embassies or consulates to 
apply for J-visas. This Interim Final Rule permits sponsors to sign 
Forms DS-2019 using digital signatures, defined as follows: An 
application of technology for cryptographically derived signatures that 
ensures meaningful authentication of the identity of the signer and 
integrity of the document. Digital signatures are a subset of 
electronic signatures, but unlike other electronic signatures, digital 
signatures employ cryptography, i.e., are backed by a process such as a 
public key infrastructure. Commonly used digital signature software 
packages include, but are not limited to, DocuSign, Adobe Sign, and 
Global Sign. For sponsors that are unable or do not wish to apply 
digital signatures, the Interim Final Rule retains the current option 
of printing and hand signing Forms DS-2019 in ink.
    With the implementation of this rule, sponsors may transmit Forms 
DS-2019 electronically, including directly to exchange visitors. 
Sponsors without digital signature capacity may print and sign forms in 
ink (as they do now, except that blue ink is no longer required), scan 
the forms (e.g., into portable document format (PDF) files), and then 
transmit them electronically. The Department of State notes that these 
regulatory changes will have no impact on SEVIS functionality or the 
number of Forms DS-2019 allotted to sponsors.
    The Department of State believes that many sponsors already have 
digital signature software, and that the elimination of the requirement 
that sponsors mail paper forms worldwide will result in significant 
cost-savings. Accordingly, it anticipates that most sponsors will 
recognize the benefits of digital signatures and, if they have not 
already done so, will invest in digital signature software.
    In this interim final rule, the Department of State also clarifies, 
corrects, and/or deletes ambiguous, obsolete, or technically inaccurate 
language and requirements, some of which were adopted before SEVIS-
generated Forms DS-2019 replaced paper Forms IAP-66. The following two 
changes are also made by this rulemaking: adoption of the plural forms 
of nouns (e.g., sponsors, exchange visitors); and replacement of the 
term ``original'' with the term ``paper'' when describing the physical 
Forms DS-2019.
    The reasons for the regulatory changes, including comments about 
such changes, follow for each provision of 22 CFR 62.12 that the 
Department of State modifies herein. The following bolded citations 
represent current regulatory text in 22 CFR part 62.

22 CFR 62.12(a) Issuance of Forms DS-2019

    22 CFR 62.12(a)(1). The Department of State adds the language ``to 
SEVIS'' to clarify that it is access to SEVIS that is restricted to 
Responsible Officers and Alternate Responsible Officers (collectively, 
Officers).
    22 CFR 62.12(a)(3). The Department of State incorporates into this 
paragraph the requirement that sponsors may issue Forms DS-2019 for the 
enumerated purposes only if the regulations permit, and if necessary, 
the Department of State authorizes the action. This change updates this 
specific regulatory language to clarify requirements for sponsors.
    22 CFR 62.12(a)(3)(ii). The Department of State eliminates the 
phrase ``when permitted by the regulations and authorized by the 
Department of State'' because these general requirements are now 
present in 22 CFR 62.12(a)(3).
    22 CFR 62.12(a)(3)(iii). For the same reason, the Department of 
State eliminates the phrase ``when permitted by the regulations and/or 
authorized in writing by the Department of State.''
    22 CFR 62.12(a)(3)(iv). The Department of State makes no changes to 
this paragraph. The Department of State confirms the need to use the 
reprint function in SEVIS when replacing Forms DS-2019 that have been 
lost, stolen, or damaged. When nonimmigrants traveling on J-visas lose 
their Forms DS-2019, sponsors historically would reprint the previously 
issued forms and send them to the exchange visitors who requested a 
copy. With electronic transmission,

[[Page 18250]]

sponsors should still use the reprint function in SEVIS to 
appropriately record the action before electronically transmitting 
replacement forms to exchange visitors.
    22 CFR 62.12(a)(3)(v). Commenting parties opined that re-entry into 
the United States is not a reason that sponsors initially issue Forms 
DS-2019. The Department of State notes, however, there are instances 
when all travel signature lines on Forms DS-2019 are filled, and 
Officers must issue new forms. Accordingly, the Department of State 
retains this provision.
    22 CFR 62.12(a)(3)(vi). The Department of State eliminates the 
phrase ``when requested in SEVIS and authorized by the Department of 
State.'' The phrase ``when requested in SEVIS'' describes the method of 
requesting category changes and is unnecessary in a rule that 
enumerates the reasons for issuing Forms DS-2019.
    22 CFR 62.12(a)(3)(vii). The Department of State eliminates the 
phrase ``or a change in actual and current U.S. address'' in response 
to numerous comments that explained that this was not a valid example 
of reasons to issue Forms DS-2019 since this SEVIS field is not printed 
on Forms DS-2019.

22 CFR 62.12(b) Verification

    22 CFR 62.1(b)(2)(ii). The Department of State eliminates the 
requirement that Officers sign paper Forms DS-2019 using only blue ink 
to permit greater flexibility for sponsors.
    22 CFR 62.12(b)(2)(iii). In response to numerous requests from 
sponsors to be able to sign Forms DS-2019 electronically, the 
Department of State adds a new paragraph to permit digital signatures, 
defined as an application of technology for cryptographically derived 
signatures that ensures meaningful authentication of the identity of 
the signer and integrity of the document. Digital signatures are a 
subset of electronic signatures, but unlike other electronic 
signatures, digital signatures employ cryptography, i.e., are backed by 
a process such as a public key infrastructure. Sponsors may also 
continue to sign paper Forms DS-2019 forms in ink. The Department 
removes the requirement that the DS-2019 be signed in blue ink to allow 
greater flexibility for sponsors. The Department of State also 
recommends that sponsors remind applicants and their accompanying 
spouses and dependents, if any, that they must take a paper form to 
their visa interviews to be stamped and signed by a consular officer. 
They must also present a paper copy of their Forms DS-2019 at their 
ports of entry into the United States.
    Several commenting parties also sought the flexibility to allow any 
Officer to sign Forms DS-2019 that they submit via batch processing, 
when Officers whose names were printed on forms are not present to sign 
paper forms. However, when Officers print or reprint Forms DS-2019, 
SEVIS automatically populates Field #7 with the name of the Officer who 
initially submitted the action, making it necessary for that Officer to 
sign the paper form. In the electronic environment, digital signatures 
are embedded in documents, allowing Officers to sign forms as they 
create them, thereby mitigating this concern.
    Several commenting parties also asked whether different Officers 
could sign Forms DS-2019 when they are reprinted for travel purposes. 
As noted above, SEVIS prints in Field #7 the name of the Officer who 
initiated the print/reprint function. Since a signature must match the 
name of the Officer printed on each form, sponsors should ensure that 
Officers whose names appear on forms are available to sign them. The 
Officer that signs the original Form DS-2019 may be different than the 
Officer that reprints the form from SEVIS. The Department of State will 
explore the capability of enhancing SEVIS to allow users to select the 
names of Officers that will print on forms.

22 CFR 62.12(c) Distribution of Forms DS-2019

    The Department of State changes the heading of paragraph (c) to 
``Transmission of Forms DS-2019'' and clarifies to whom sponsors may 
transmit Forms DS-2019. Many commenting parties read the current 
regulatory language to limit sponsors' transmission of Forms DS-2019 to 
only ``authorized parties,'' meaning the Department of State and the 
Department of Homeland Security. Many commenters requested the 
Department of State expand the definition of ``authorized parties.'' To 
clarify this provision, the Department of State now specifically 
enumerates the parties to whom sponsors may transmit Forms DS-2019 
electronically (e.g., via email) or by mail (e.g., via postal or 
delivery service): exchange visitors; accompanying spouses and 
dependents; legal guardians of minor exchange visitors; sponsor staff; 
Fulbright commissions and their staff; and Federal, State, and local 
government agencies or departments. The Fulbright commissions (and 
their staff) referenced above are authorized and established pursuant 
to section 103 of the Mutual Educational and Cultural Exchange Act of 
1961 (commonly known as the Fulbright-Hays Act) (22 U.S.C. 2453). The 
Department of State notes that sponsors' Officers must ensure that 
Forms DS-2019 are secured; and they may transmit them electronically to 
other sponsor staff only on a shared network.
    The Department of State clarifies that sponsors may continue to 
transmit paper Forms DS-2019 via mail to foreign third parties acting 
on their behalf to facilitate their gathering necessary paperwork for 
multiple applicants to take to their visa interviews. Sponsors may not 
transmit Forms DS-2019 electronically to foreign third parties, 
however, as the ability to transmit forms electronically to the parties 
enumerated above eliminates the need for foreign third parties to have 
access to electronic forms.

22 CFR 62.12(d) Allotment Requests

    The Department of State makes case corrections and clarifying edits 
in this paragraph. It also eliminates the language establishing four 
weeks as the estimated time for responding to allotment requests since 
conditions outside the control of the Department of State may delay 
meeting any specific deadline. It also clarifies that sponsors should 
refer to the most recent version of the User Manual for Exchange 
Visitor Program Sponsor Users (RO/ARO) of SEVIS Volume I, Forms DS-3036 
and DS-3037 on the j1visa.state.gov website to determine whether the 
Department of State has modified or updated the ``other information'' 
that the regulation states it may require. Otherwise, it maintains the 
current regulatory language.

22 CFR 62.12(e) Safeguards and Controls

    22 CFR 62.12(e)(1). The Department of State replaces the term 
``SEVIS logon identification Numbers (IDs)'' with the technically 
accurate term ``SEVIS User Names.''
    22 CFR 62.12(e)(2). The Department of State modifies this section 
to prohibit transmission of Forms DS-2019 to any parties other than 
those listed in paragraph (c).
    22 CFR 62.12(e)(3). The Department of State adds the word 
``damaged'' to be consistent with 22 CFR 62.12(a)(3)(iv). It reminds 
sponsors to use the reprint function in SEVIS to sign and transmit 
reprinted Forms DS-2019.
    22 CFR 62.12(e)(4). The Department of State makes no changes to 
this section.

[[Page 18251]]

Regulatory Analysis and Notices

Administrative Procedure Act

    The Department of State is issuing this rulemaking as an interim 
final rule for the following reasons. In the 2014 rulemaking, the 
Department of State stated its view that the Exchange Visitor Program 
is a foreign affairs function of the U.S. Government and that rules 
implementing this function are exempt from sections 553 (Rulemaking) 
and 554 (Adjudications) of the Administrative Procedure Act (APA). It 
also asserts that this rulemaking is exempt from notice and comment for 
two separate reasons. First, the rule responds to relevant comments 
submitted in response to the 2014 final rule, and as such, is a logical 
outgrowth of the 2014 final rule. The changes included in this 
rulemaking constitute rules of ``agency organization, procedure, or 
practice'' (5 U.S.C. 553(b)(3)(A)). Also, the Department of State has 
``good cause'' to find that notice and comment is ``impracticable, 
unnecessary, or contrary to the public interest'' (5 U.S.C. 
553(b)(3)(B)). In the 2014 Final Rule, the Department of State sought 
comments on 22 CFR 62.12, the control of Forms DS-2019. This interim 
final rule responds to those commenters and adopts some changes that 
were recommended at that time. With respect to the procedural rule 
exception (5 U.S.C. 553(b)(3)(A)), the Department is expanding options 
for signing and transmitting Forms DS-2019, without eliminating the 
current method. Although there may be de minimis costs for sponsors to 
obtain digital signature software to avail themselves of the new 
digital signature provision (if they choose to do so), those sponsors 
who elect to continue the current procedure will not incur that cost. 
Accordingly, the Department of State believes that additional prior 
notice and public comment on this provision are not necessary.

Congressional Review Act

    This regulation is not a major rule as defined by 5 U.S.C. 804. 
This rule will not result in an annual effect on the economy of $100 
million or more; a major increase in costs or prices; or significant 
adverse effects on competition, employment, investment, productivity, 
innovation, or on the ability of U.S.-based companies to compete with 
foreign-based companies in domestic and export markets.

Unfunded Mandates Reform Act of 1995

    This regulation will not result in the expenditure by State, local 
or Tribal governments, in the aggregate, or by the private sector, of 
$100 million in any 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 (2 
U.S.C. 1501 et seq.).

Executive Order 13175--Consultation and Coordination With Indian Tribal 
Governments

    The Department of State has determined that this regulation will 
not have Tribal implications; will not impose substantial direct 
compliance costs on Indian Tribal governments; and will not preempt 
Tribal law. Accordingly, the requirements of Executive Order 13175 do 
not apply to this rulemaking.

Regulatory Flexibility Act: Small Business Impacts

    Since this rule is exempt from section 553 (Rulemaking) and section 
554 (Adjudications) of the APA, this rule is not subject to the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq. (1980)).

Executive Orders 12866 and 13563

    The Department of State has submitted this rule to the Office of 
Information and Regulatory Affairs, pursuant to its longstanding 
practice.\1\ The Department of State certifies that the benefits of 
this rulemaking outweigh any costs, since sponsors and exchange 
visitors will more likely experience cost savings from the options 
presented herein, and sponsors have in fact requested the changes. The 
Office of Information and Regulatory Affairs has designated this rule 
as non-significant, as defined by Executive Order 12866.
---------------------------------------------------------------------------

    \1\ Pursuant to letters exchanged between the Department of 
State Legal Adviser and the Administrator of OIRA shortly after E.O. 
12866 was signed, the Department of State is generally exempt from 
the provisions of E.O. 12866, except when it is promulgating 
regulations in conjunction with a domestic agency; provided that 
OIRA may review any significant regulatory actions of which it 
becomes aware.
---------------------------------------------------------------------------

Executive Order 12988

    The Department of State has reviewed this rulemaking considering 
sections 3(a) and 3(b)(2) of Executive Order 12988 to eliminate 
ambiguity, minimize litigation, establish clear legal standards, and 
reduce burdens.

Executive Orders 12372 and 13132--Federalism

    The Department of State finds that this regulation does not have 
sufficient federalism implications to require consultations or warrant 
the preparation of a federalism summary impact statement.

Paperwork Reduction Act

    This rulemaking does not create or modify any information 
collection that is subject to 44 U.S.C. chapter 35.

List of Subjects in 22 CFR Part 62

    Cultural exchange programs; Reporting and recordkeeping 
requirements.

    For the reasons stated in the preamble, the Department of State 
amends 22 CFR part 62 as follows:

PART 62--EXCHANGE VISITOR PROGRAM

0
1. The authority citation to 22 CFR part 62 continues to read as 
follows:

    Authority:  8 U.S.C. 1101(a)(15)(J), 1182, 1184, 1258; 22 U.S.C. 
1431 et seq.; 22 U.S.C. 2451 et seq.; 22 U.S.C. 2651a; 22 U.S.C. 
6531-6553; Reorganization Plan No. 2 of 1977, 42 FR 62461, 3 CFR, 
1977 Comp. p. 200; E.O. 12048, 43 FR 13361, 3 CFR, 1978 Comp., p. 
168; 8 U.S.C. 1372; section 416 of Pub. L. 107-56, 115 Stat. 354 (8 
U.S.C. 1372 note); and 8 U.S.C. 1761-1762.


0
2. Revise Sec.  62.12 to read as follows:


Sec.  62.12  Control of Forms DS-2019.

    (a) Issuance of Forms DS-2019. Sponsors must:
    (1) Grant access to SEVIS only to Responsible Officers and 
Alternate Responsible Officers and ensure that they have access to and 
use SEVIS to update required information;
    (2) Ensure that Responsible Officers and Alternate Responsible 
Officers input into SEVIS accurate, current, and updated information in 
accordance with these regulations; and
    (3) Issue Forms DS-2019 only for the following purposes if 
permitted by the regulations and, as necessary, authorized by the 
Department of State:
    (i) To facilitate the initial entry of exchange visitors and 
accompanying spouses and dependents, if any, into the United States;
    (ii) To extend the duration of participation of exchange visitors;
    (iii) To facilitate program transfers;
    (iv) To replace lost, stolen, or damaged Forms DS-2019;
    (v) To facilitate the re-entry into the United States of exchange 
visitors and accompanying spouses and dependents, if any, who travel 
outside the United States during exchange visitors' programs;
    (vi) To facilitate changes of category;
    (vii) To update information when significant changes take place in 
regard to exchange visitors' programs (e.g., substantial changes in 
funding, change in primary sites of activity, or changes in actual and 
current U.S. address);
    (viii) To facilitate the correction of a minor or technical 
infraction; or

[[Page 18252]]

    (ix) To facilitate a ``reinstatement'' or a ``reinstatement update 
SEVIS status.
    (b) Verification. (1) Prior to issuing Forms DS-2019, sponsors must 
verify that prospective exchange visitors:
    (i) Are eligible and qualified for, and accepted into, the programs 
in which they will participate;
    (ii) Possess adequate financial resources to participate in and 
complete their exchange visitor programs; and
    (iii) Possess adequate financial resources to support accompanying 
spouses and dependents, if any.
    (2) Sponsors must ensure that:
    (i) Only Responsible Officers or Alternate Responsible Officers who 
are physically present in the United States or in a U.S. territory may 
print and/or sign Forms DS-2019;
    (ii) Only Responsible Officers or Alternate Responsible Officers 
whose names are printed on Forms DS-2019 are permitted to sign the 
forms; and
    (iii) Responsible Officers or Alternate Responsible Officers sign 
paper Forms DS-2019 in ink or sign Forms DS-2019 using digital 
signatures.
    (c) Transmission of Forms DS-2019. Sponsors may transmit Forms DS-
2019 either electronically (e.g., via email) or by mailing them (e.g., 
via postal or delivery service) to only the following individuals or 
entities: exchange visitors; accompanying spouses and dependents, if 
any; legal guardians of minor exchange visitors; sponsor staff; 
Fulbright Commissions and their staff; and Federal, State, or local 
government agencies or departments. In addition, sponsors may mail 
signed paper Forms DS-2019 via postal or delivery service to foreign 
third parties acting on their behalf for distribution to prospective 
exchange visitors.
    (d) Allotment requests--(1) Annual Form DS-2019 allotment. Sponsors 
must submit an electronic request via SEVIS to the Department of State 
for an annual allotment of Forms DS-2019 based on the annual reporting 
cycle (e.g., academic, calendar, or fiscal year) stated in their letter 
of designation or redesignation. The Department of State has sole 
discretion to determine the number of Forms DS-2019 it will issue to 
sponsors.
    (2) Expansion of program. Requests for program expansion must 
include information such as, but not limited to, the justification for 
and source of program growth, staff increases, confirmation of 
adequately trained employees, noted programmatic successes, current 
financial information, additional overseas affiliates, additional 
third-party entities, explanations of how the sponsor will accommodate 
the anticipated program growth, and any other information the 
Department of State may request. The Department of State will take into 
consideration the current size of sponsors programs and the projected 
expansion of their programs in the next 12 months and may consult with 
the Responsible Officer and/or Alternate Responsible Officers prior to 
determining the number of Forms DS-2019 it will issue.
    (e) Safeguards and controls. (1) Responsible Officers and Alternate 
Responsible Officers must always secure their SEVIS User Names and 
passwords (i.e., not share User Names and passwords with any other 
person or to permit access to and use of SEVIS by any person).
    (2) Sponsors may transmit Forms D-2019 only to the parties listed 
in paragraph (c) of this section. However, sponsors must transmit Forms 
DS-2019 to the Department of State or the Department of Homeland 
Security upon request.
    (3) Sponsors must use the reprint function in SEVIS when exchange 
visitors' Forms DS-2019 are lost, stolen, or damaged, regardless of 
whether they are transmitting forms electronically or mailing them.
    (4) Sponsors must destroy any damaged and/or unusable Forms DS-2019 
(e.g., forms with errors or forms damaged by a printer).

Karen Ward,
Director, Office of Private Sector Exchange Designation, Bureau of 
Educational and Cultural Affairs, U.S. Department of State.
[FR Doc. 2023-06157 Filed 3-27-23; 8:45 am]
BILLING CODE 4710-05-P