UIPL59-88a1.pdf

ETA Advisory File Text

U.S. DEPARTMENT OF LABOR SECRETARY OF LABOR WASHINGTON. D.C. July 11 1988 Dear Mr. Chairman Enclosed is a report entitled the Report of the Secretary of Labor on the Systematic Alien Verification for Entitlements SAVE Program. This report was prepared pursuant to section 121 c 4 A of the Immigration Reform and Control Act of 1986 Public Law 99-603 . Based on available unemployment insurance UI data on alien workloads supplied by the States I have determined that the SAVE program would be generally cost effective and-appropriate for the UI Program. However since the SAVE program may not be cost effective for every State States may apply to the Department for a waiver from participation in the program. Such waivers will be granted only if certain conditions which are described in this report are present in a State. The waivers would take effect October 1 1988. If you have any questions regarding the report please contact Roberts T. Jones Acting Assistant Secretary for Employment and Training at 523-6050. Sincerely ANN McLAUGHLIN The Honorable Lloyd Bentsen . Cha i rman Committee on Finance United States Senate Washington D.C. 20510 Enclosure U.S. DEPARTMENT OF LABOR SECRETARY OF LABOR WASHINGTON. D.C. July 11 1988 Dear Mr. Chairman nclosed is a report entitled the Report of the Secretary of Labor on the Systematic Alien Verification for Entitlements SAVE Program. This report was prepared pursuant to section 121 c 4 A of the Immigration Reform and Control Act of 1986 Public Law 99-603 . Based on available unemployment insurance UI data on alien workloads supplied by the States I have determined that the SAVE program would be generally cost effective and appropriate for the UI Program. However since the SAVE program may not be cost effective for every State States may apply to the Department for a waiver from participation in the program. Such waivers will be granted only if certain conditions which are described in this report are present in a State. The waivers would take effect October 1 1988. If you have any questions regarding the report please contact Roberts T. Jones Acting Assistant Secretary for Employment and Training at 523-6050. Sincerely ANN McLAUGHLIN The Honorable Dan Rostenkowski Chairman Committee on Ways and Means. . U.S. House of Representatives Washington D.C. 20515 Enclosure I h i r I. c- p o r t. i. r 1 u b 1.11 i t t t d .i. n a c c o r d a ri c e w.i. t- h t h e p r o u .i. r i. o ri s o f- ca c t i. I ri I. 2 .l c C 0 t t t e l.lr lr i cy r a t i. o ri I e t o r rn a nd C o ri t r c .l I r c t . . ..... . I f- 1.9 8 6 I R fl P I.. 9 9 6 0 3 I ti i. 5 I C P ij I- l a I d l e s c s t JO issues 1 t ethc. - t.i-ie a I .ic. n i. nlrligr it i.ori s t.at s u 2r i.f icat iori systc. n dl ut loped by the I.nln i.yr at i.nn and Nat.ur al.i.zat-ion Ser uj.cc l IN -is cor t . cftcc.iu and ot .l.ic..zr. rise al pr.opr..iate t or the un n- pl. yr ier t i.risurance 111. progran arid 2 l lhethe-r. waiuers i t State l.JL proyrarn part.ic .ir at.ic r i.n this LNS.--deveioped system houl.tl be yl-arited. fl ...... Statutory .. - .............. ............... Heyuii-ernerits - ........................... ecti.ori 1.21. a I. I RCA added Sections 1.1.3 7 d and e to t.he oc.ia.L Secur.ity Act . 3Q . Section 1137 d l A SSR rnantlates that the State shall. require as a condit.iori c t e.l iy ibi1 ity tor. unernp.loyrnent cornperisat.i.on that each iritli.u-i.dua l sign a det lai-atiori uritJei- pc ria.lty ot perjury stat i.rig .I . W I- e t h e r t. h e i rl tl .i u .i. t.A u a 1 -i s a c i t. i. r c n o r n a t i o n a 1 o f t he 1lni.ted States dnd 2. 1.f not t rhc tha i- the i.ndi.u i.clual. i.s i.n a sati.sfactor.y -irn r iyration sti9t.u . Sc ct i.on I1.3 7 d 1. B i-i. I I .I def -i.nczs satisFactor y .iinrnigrat ion st 3.t as 3n irr r iqr at i r status that does not make the i.ndiuidual. i.nel i.y-i.ble f or. ur err ployrr ent benefits. ect.ion .113 l d SO rnandat that if the .indiu.idual is not a c i.ti.zen or nati.or1al of the 1lrii.ted States that 1 . Rn al. i.cn registrat i.on docu ent or other pr oof of i r rr igr at.i.on reg.ist .dt i n trorn .iNS that contains the intjiuidual s al.ien admission nurriber or. a l.ien f i. l.e nurnber or. nurr bers it the indiuitlual has rnore than one nurr ber or 2. Such other docurlients as the State deterrrti.nes constitute reasoriable eui.dence . iridicat.ing a satisf actory imrr igrati.on status PC t.ion 1. 137 A 3 tur ther rci cq .lircs the take uerif y thp 1. 3 docurrlpnts y eferyptl tn ahoue k1li.tl.1 the INS th .ough an c3uto r atc. 1d or other systern designated by the INS. T he systr rn corr1rnon.1.y I noh n a SRUE has beet-1 desi.grid-ted by the INS and is cur rent.ly auai.l.ahl.e. It enab.lr s . tates to access the INS data base to uer.i.f y arl i31. i.enl s .j. r r ii.grat.i.on status through several. tlif-terent rrlethotls incl.utl.iny a secor lary uer.-iticat.i.on u ail pr.ocetJur . . I he SnVL prograrrl cost-..ef.F ect i.ueriess and ar pl. ict b.-i.1.i.t t o the 1J1 pr ograrn is the major focus c. f this Sec t.i.on 11.3 7 d 4 SSn prou i.des that. the State shall. pr oui.de t he to.l..lo .irig procedur i31 at equar.ds S or aliens app.lying for benef .its 1.. l hc. State ust prouitle the indiuidual with a reasonab.le czpport.unity to subrr it docurnentation indicating satisfactory irr rni.grati.on status if such docurnentat ion is not presented at the tirne ot f..i .l ing t or uncamployment cornpensation. 1 he State rnus t also pr ouide the incli.uidual reasonable opporturiity to submit evidence of satisfactory -immigration status if the documentati.on presented is not uer.it ied by t.he INS. 2. lJrlder ection IL3 tJ 4 A .i i. S . A a . tal-.e ay ric. t delily deny reduce or terTrr inatc an i.ndi.uzi.du ll. s ch1 ig.i.b.i 1 ityy foi- bcnetits on t.1.1 basis of ii i riigrat ir n status c ir t-i.l. d r eastzndb1.e opportun i.ty has bc eri prou..i.ded for. the iritJiv iduc3 L tzo present rcquirc tl tlocurnentatiori. If the a l.i.en does pre rlt such doc . rr erltat i.on perid-i.ng i.ts uerifica.ti.or1 a take nay riot delay deny rcrdt. ce or ter.rninate tho indiu i.d al. s eliyib i.li.ty for ber1efi.t on the basis of the -iridiu itlual s s tatus . 3. If docur entr are subrr ittecl that t.he State deter rn-iries to be reasor1i.lb l.e evidence Sec t.ion d I 0 i. SSA proui.des that the St .iite shal.1. ttnarisr ii.t.. to the LN photostatic or other sirn-i.Lar copies ot the docurnen ts for. official. uer.i.f icati.on. Section 1.13 7 1 4 8 i i S fl prov icles thdt the State shal.1 not delay deny r.educe or. tel-rni.nate the i.ridi.uidua1 s el.igibi1.i.ty tor berietits based or1 .ilnrnigr dtion stdtus per ding the INS uersi.f icat i.on Furthermore under Section 11.3 7 d 4 U i.i.i. a . . the State shall not be .Liab.le for the consequences of INS action delay or fai1.ur.e to conduct such veri.f icati.on. Section 1..137 d 5 SSA provides that if a State deterrrtines that an individual. is not in satisfactory irnrrtigration status the State shal.1 deriy or ter.rn.iriate the inti- ividnal s eligibi. l.ity for unerrtployrr ent con perisation arid the indiu-idual must be gi.uen the opportunity t or a t air hearing . - i ll le.c u-i.dcs t-hat tl-lr llepai-trnent of Labor. may not tdke ciny cl rnp.l ic ncc tJi.sal Ic h ar cc penal.l..y or thc r i-c gu lat-.ory 3ct ior aga in t . t.he r. t.at-.e k et ause of dn r.i r..or i.n 61 detc r.rni.na t i.on htr 1.d-i rlg din i.ndi.u i.d al e.1.igi.b.l.e for benef i.izr ba etl or c i.t .irc rir t.l-i oi. i r nigi.at .i.on skatus 1. . .I. the det r.. . i.nat .i.or was bassd or ueri.-ficat i.ori prouided by the LNS 2. . nr.cau je the state was required urider Sect.i.0rl 1.13 7 d 4 PI or 8 t.o pay ber et its . to the .intjiu. d ual luring the period rc yui.red to prouitle the i.ndiui.dua1 with-r.easonable opportunity to subrnit docurnentation or pending official uel-i.fi.cati.c ri of i.rr rr i.grati.orl statc by the INS . or 3 . Rs 3 r esu1.t ot the outcorne of the tleterrnirration and Ileal-ing PI-oce c af f orded the i.ncJi.uidual uritler State law. ectrion 121 c 3 .LRCA prou..ides .that the r equirernents ot Sect i.on .1 3 7 tJ and e SSA are to be effect-i.ue for each state by October 1 IYU8. Iloweuer Section .l21 c 4 3 IRCA also prouides that the Secretary of Labor may waiue State participation with respect to a.l.1 or part of the requi.rerr1eri ts of Sectiot-i 11.37 d and e SSA if certai.n conditions are met l tiese statutory conditions are spec ified in Secti.on I l c 4 U i. and ii . Federal law also pinoUides certain additional requirements that States rr ust rr eet in adjudicating the 1J L c1ali.m of aliens. I hese requirements are 1. r .. t.i.c. n c fl i 14 0 ot t..tie I tler iL IJric. r pL y rrent lax flct I-u I 4 pre cr.i bes tihe cc nd--i.l.iori r uridcr. k hi.ch bal r efi t. may be paid based jri seruiccs pi i..for rfled by an a 1 i.eri. Spec i.f i.ccll.1 y the I U A r.equir.6 s that corr pensdt-.ion shall. nut be ayab.lc rjri rh bds is c t sei-u ices peip l-or.rned by an i3 l.ic n clt l.ess a. ltie al.ieri was I.a rf ul.l.y i jtjrni.tt..c d for. perrrianenl resitlence at tl-le t.i.lne the seru ices were peintor rnr.ad t . The al.i. n 1awf ul.l.y present for. th.e purposes ot pert.or. r irig the seru ices or c. l he a.l.i.en was per.mdnent1.y res-i.tj-i.ng in the United States under color ot 1.aw at t l ie tirne the c eru. ices idere perf or rr cd . Adcl.i.t i.oria l 1.y Sc ct-i.ons 303 a 5 SSA and 3304. a 4. f.Ul R require that an alien rnust be .legally author-i.zed to work at the t i.rr e UI benef its are clairnecl to be cons-i.cler.ed auai1.abJ.e for work. 2. Section 3304 a 14. 8 and C T UIA pr ouide cert ain procedural sateguards cor cerri ir g a liens c.la irning ur ernploynient cornpensat. ion bene fi.t r . Section 3304 a 1.4. U U l n spec.it ies that any ddta or i.ntorrr ation required of irid.i.u.iduals app1.yiny for cor tpensati.on to deter.rr i.ne whether corr pensation is payable to tPicl tn bcacause of their alien status shall be uni.for.rnl.y r.t quirsed of all. appli.carits for coi . perir at.i.on. 1hi.s r.eyu.l.r en c rlt i. curr ent1.y rrlet by asI i.nc j 3 11 c laimants to answer a question concc rn iny t .heii.. c-i.t.izens hi p s t.atus at. the t irr e of appli.cat..i.t n for benef i.ts . l . PC .. t-ion 33 34 a .14 C U IA rec luiiees that no det.ermirlal-ion cleny i.ny bc nefits based on a1ie.n status shall. be rrlade except on Ctlc preponderance ot t l ie ev itlence. 0. S- ti3tut- .. ..h. a n an4 lf - .sts a t c A g e n c Y Procedures - . .. .- State ernployrnent s curity agencies SESAs will have to arnend ttieir 1.I.L cl.a l.l.ns tdkirlcj procedures by October 1 19133 to cc1r11p1.y w.i.th the prou.li.siont of- Section 1.1.3 7 d I. and 3 A Sfis wi.l..l ii1 0 rle j to reui.r w c1a irns torrns to assure that the new Secti.ori 11.3 7 d I. re qc -i.t-ernen-Ls are met . To colrlp ly A ith the Section .1.13 l d 3 r.equ.irernents SRUE program SCSAs rrlay have to purchase and install. equi.prr ent to access the IN Alien Status Verification Index RSUI . The access rnethod selected and staffing cos.ts associated wi.th SAVE program participation rui.11 be based in large part on the nurnber of aliens filing UI cla-i.rns. Itle requ.irernents ot Sect ions 1.13 d 4 and 5 SSA require no significant changes to existing procedures because Section 3304 a 14 U alreatly r-equ.ires sorne t orm of verification of alien status and Sections 303 a l and 3 . J JA . already provide tor payrnent when due and for a fair hearing process. i r r t 1 I 1 1 I- I I.. hrih u c c. of a rio r1at.1 t oina t- c d c c c ri ti dl-y ueir.i.f -i. ati.ori system i.1 1 1.i.kel.y be i.de pr.t dd reyartjl of t.hc I. cy. art.ment s dec-is.i.ori rlrith i..espc ct t-o the gr antinq of a trltcil IAICI .V I. br caur c the ASUI acce c ed by SAUL autonlated lrleI. hods dotrs riot. pr oui.tje kii.storic 31 rr r p.Loyrrrent e ig i.bi.l.ity inforTrndti.trn recju-i.red by L ..SAs to rnaI e a dc ter.rni.nati.on of ari al. ieril s c. ligibi .l.ity tor Ill benefits. pecif-icaL.1 SAVE aut-orrldf.pd access procedures do not pi-ou i.de t.he date the alien das qraiitctd c. p.loyrnerit e.Ligib.i.L ity status the ASUI will only provide the al.-i.erils cur-rent errlpl.oyrr1ent eisi.gibsi.l.ity status. onsequeritly . . As wi1.l necstl to query the RSUI uia secondary verif-icclti.on i.n order to verify the date an alien UI claimant r.r ce.iued SNS aut .hor--irat-ion to .Legally 1uor.k in the United States. T his date is necessar y for SE SAs to rllake indi.uidual I.Jl e1.igibi 1-ity tleter rr iri tions because Sc ckion 3 3OrF a .14 fl of. the IYederal Ur err pl.clyrr er t lax Act F UTA I-equi.res that all rayes used in qua.l.ifyiny for U1 ber ef its rllust be earned whi Le the alien was legally authorized to work in the United States. C. -. Lirnited State Uata Ruailable on US fllien Claims -----.- ---- ---- There is a paucity of State UI prograrrl data and i.nforrnation concerning alien c.1aisns auai..lable to the U. S. Department of Labor DOL . Data on alien claim workload is curr ently not rout.inely collected as part of the regular 1.JI I-eporting syster r. Lrl I ine L90 . tdtes l.lpp l.i d 1101.. IAI th btdir dl le I. L pr 3gi arr1 ir1.f-orrridt icn relatiwe tc the statut or y SrrlUC. pr ogr arri I la luc r cr .i. ter .id cor t .iinc.rd iri . ect- ion .1.21 c 4. C .SnC A . Ihis auai.I.abl.c iriForrrlati.ori on a National. bas i. reuealc d that. ali .rl clti ns are a srna.11 percentage of total cldiln uorkioad and the bulk of alien wol-kl.oad i.s concentratc. d in less than teri States. Appr.oxi r ate.ly 35 tates i6rt portetl that they routinely contact a desi.gnat.c d INS L i.sti-ict Of F i.ce usually rriy mail to vclrity the irrrrrr..iyination status of a.l.ieris clai riiny IJI.. Stzrrie 111 data on costs and proginarri savings f -or the six SAUL program pilot States are aua.i..lab.l.e t rorn the General Accouri king O.Ffice iflo Report pr eu iou l.y supplied to Conginess enti.t.l.ed I l.rri r ig ration el-orrn Uer ity.iriy t-he t t.iitc s ot R 1 ieris Rpp lyirig for. l ederal C c ne f its GAO IIRD--88-.7 dated October 1907. ihese p-i.lot s opei ated on a uo.l.untai-y bas is in Ca lif orriia Co.loraC10 I or 1l.ll.i.noi.s New Yark and Sexas . 1 tie SFSUE progr rn pi.lots were designed t o ot t er t.ate agencies atlrnini.stering certain eriti.tl.ernerit programs i.ncl.ud-i.rig 111 a cost--ef fectiue rnethod to rapidly access the SNS data base so that aliens would not receive benefits to which they were not legally entitled. . ect ion . l c 4 U 1IZC0 proui.des that the Secretary of I.. ti b o r I rl y i r a i u r . t i3 ti c r t -i c li p a t i o ri i n t . h e p r o u s s i o ri s o f Sc cti.ont 1.1.3 7 d drld e A in a.1.1 or li.n part for UI if a the State lids in r .f tect an altcu r at.i.ue ystenr of als.en statu uer if i.cat i.on whi.ch is a t..i.r ol.y and effecti.us a t.he pi-oqrarn corita iric tl in . 6 ction 1..13 . fi or b the cost ot. atjrr ini. tra tj ori of the proyrarn coritai.ned in Sect ion 1.1.3 7 . SSA hril.1 excced the c st.i natetl r auings in. the State s 01 program. . I he cri.t.eri.a the Secret.ar y rnurik. use in rr akiny a wai.uer tjec is.ion on cost-ett ec t.iueness qi-ounds are set Forth in Sect-i.or I l. c 4 C I.RCA. T he criteri.a include an est-i.rr ate of o l he nurnber of a1.i.c- ns clai.rrti.ng UI benefits in i-e.lat-ion to the tot.al nurnber of 1.11 cla.imants o Any savings in UI benefit expendi tur es reasonably rrxpected tro n the use ot the proqrarn coritair etj in Section llD7 d 3 and 4 SSA o I he labor and riortlabor costs of adrrtini.strati.on of t he uerificat ion system cont.ained .i.n . ect.ion 113 d 3 and 4. SSA 0 The degree to which INS is capable of providing tirne.ly and accurate information to jC SAs and I he CC P t-dry wi. l I. apply the above cr.itsri.a to States r-cqut-ls t ling a waiver ot pdrt ic .ipdt-.ion in the progrdln narida t1.d in Section 11 3 I d 3 S f SAUL. pr oyrdrn . 1 he rerrldinj.ny provisi.ons ot ection .113 l d anti c trri.l.1 not be waiuc d as the Secr c.tary has deterrr ri.nt cl t.herrl to be cost-.ef f ect iue and appropriate tor the IJ1 program. A. -- 1s the SnUf -- Program ---- Cos t--Cffective and Otherwi.sg Appropriate tor the Ul C. roy. a Uar ed on an analysis of the 1irtlitt.d data audi.1.abl.e frol the States dnd the A0 port preu-ious Ly yet er.ci i iced the automated SRUL proyr-drn would be cost--eff ectiue dnd appropr iate for the 01 progr c3ln in sorne Ijtdtes. Jecat se alien IJI c.l.dilnariks are concentrated in a few States the automated system rrlay not bc cost--etectiue and appropriate tor every State s UI program. I herefore the waiver of a State s parti.cipation i.n the automated SAUL program ef fect.iue October 1 .L98i3 will be granted if certain conditions described below are present in that St.ate. 0. -- Oases on Which Waiver of SAUL Proqrarrt F articipati.on ------ -- . Will Oe Granted - o Walver dec slons w ll bc rrrdde on a State-by--State bas is lhere 1 1111 be rlo bldnket ncluslor or blanket laluer of all States for the UI proardrn o Based on the statutory criteria and on an analysis of costs and estimated savings to be submitted by each State requesting a waiver part icipation will not be waived for any State whose annual alien UI claims workload is 3 percent or more of its total UI workload. Based on data contained in the GAO Report cited previously it is estimated that an annual alien claims workload of 3 percent or more is the point at which UI peg-ram savings will exceed the cost of admini ster ng SAVE regardless of the access method used. o Participation by States having less than 3 percent annual alien claims workload will be waived if the State can demonstrate that - I. The State s present .system for alien status verification mail telephone etc. is at least as effective in terms of administrative costs benefit cost avoidance and accurate and reliable information and as timely as the SAVE program and the State s present system meets the requirements of Section 121 4 B i II IRCA providing for a hearings and appeals process or 2. The proportion of aliens in the UI claims workload is so small and or so sporadic that the administrative costs start-up and continuing of using the SAVE pcogam will exceed the estimated benefit savings. The criteria of Section 121 c 4 C listed previously will be used in each case in making a waiver determination undex the provisions of Section 121 c 4 B ii . 0 I egdrdles of any wd.i.urr c eci.r i.i r rclati.nq to a c. . t .atel s partic ipdtiori i.ri the AUi.. program a laiurrr gj-11 I -K - be qrxclnlr.c tl of the pr-ouli.s.ior s of I ecti.or s 1. 1.37 d 1. A I i A. it i cdl.Ly A Secti.c rl 113 7 d 1 A prou..i.des that a1.l. c.1a irnant.s must clec Lare in wr-iting uncler pena.Lty of perjury whether. or no-t they are a ci.tizen OP national of the United 3ta-tes and if riot whether or riot they are in a -s.atisfactory irn igrati.or status . l t1-i.s r.equ-i.rerr ent will be ef fecti.ue ct-ober 1 1933. All States have been advised of this 2. AI.1. St.at es h i. l l. be r.equi.red t.o verify alien st.atus li.th .iN in cases h J.it i e the alien status rel.rlains uricertai.ri i.n order tic satisfy the requirernen.ts of Secti.ori 3304 d 14 .UI A. . takes w. il..l t ol..low the pr.ouisioris of Section 3304 a 14 and Sections 303 a l and 3 SSA and ect.ions .113 d 2 4 and 2 in car.ry.ing out this requir ernent. he States wi.l.1 be required to i.rnpl.ernent procedures complying with Sections .L137 d 2 4 and 5 effective October I 1.988. IV. C. Timetable for Waiver Decision States requesting a waiver of participation in SAVE effective October 1. 1988 will be offered the opportunity to provide the Department with additional information concerning alien UI workloads projected costs and other supporting information. Waiver decisions for FY 1989 will be made by mid-July.1988. On-going report data concerning alien UI claim workloads will be requested from each SESA beginning October 1 1988. The availability of such program data will enable the Secretary to review any prior decision to grant waivers or to require State participation in the SAVE program in FY 1990 and beyond. States may make application for a change in the waiver decision or the Secretary may act on his her own initiative. IMPLEMENTATION TIMETABLE States not receiving a waiver will be provided with implementation guidance no later than July 1988. It is anticipated that all States not granted a waiver will complete SAVE implementation by October 1 1988.