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SUMMARY: This Notice provides information regarding Foreign Labor
Certification: Reduction-in-Recruitment (RIR) Conversion; Extension of
the RIR Eligibility Date, and Amendments to General Administration
Letter No. 2-02. It is directed to the Office of Foreign Labor
Certification (OFLC) National Processing Center Directors, OFLC-Backlog
Elimination Center Directors, and State Workforce Agency Directors
(Prevailing Wage). The purpose of this Notice is to extend the
eligibility date the Department of Labor (Department) uses for
determining whether RIR re-application requests are timely.
SUPPLEMENTARY INFORMATION:
I. References
20 CFR 656.21 (2001); 69 FR 43716 (July 21, 2004); 66 FR 40584
(Aug. 3. 2001); General Administration Letter (GAL) No. 07-97; GAL No.
2-02 Attachment B; and Training and Employment Notice (TEN) No. 12-05.
II. Background
Under regulations governing the Permanent Labor Certification
Program in effect prior to March 28, 2005, the Department processed
most employer applications for permanent certification under a
``Traditional Recruitment'' (TR) standard. Under this process,
employers seeking to test their local labor markets for available,
qualified United States workers were supervised in their recruitment
activities.
The TR process often took extensive time to complete and
contributed to the growing number of backlog cases. Therefore, the
Department began to encourage employers to utilize the streamlined
``Reduction-in-Recruitment'' (RIR) process. On August 3, 2001, the
Department published a final rule at 66 FR 40584 establishing a process
for converting TR labor certification applications into RIR
applications for the permanent employment of aliens in the United
States. This regulation amended 20 CFR 656.21(i)(6) and included a
provision allowing employers to convert TR cases they filed on or
before August 3, 2001, to RIR applications, at their option.
The Department has found the RIR application processing time takes
significantly less time than the TR application processing time. The TR
processing time delays the filing process for employers because they
may be required to wait for up to nine months or longer to receive a
resolution (denial or certification) of their case. Accordingly, the
Department has encouraged employers to use the RIR process to expedite
the labor certification filing process. Such conversions allow an
employer to complete its recruitment prior to filing a permanent labor
certification application, thus shortening the time potentially
required to reach a determination in any given case.
The Department initiated the RIR process via non-regulatory
guidance in General Administration Letter (GAL) 1-97. Subsequent to the
publication of the final RIR conversion rule in 2001, the Department
issued additional, updated guidance to advise on and encourage use of
the process through GAL No. 2-02, which originally expired on November
30, 2004. Later, the Department extended the expiration date for GAL
No. 2-02 through December 31, 2006 in TEN No. 12-05. Neither of these
later guidance documents extended the original August 3, 2001, deadline
for conversion to RIR procedures in the final rule.
On July 21, 2004, the Department published an Interim Final Rule at
69 FR 43716 (effective August 20, 2004) granting the Employment and
Training Administration's (ETA) Division of Foreign Labor Certification
(now the Office of Foreign Labor Certification) the discretion to
transfer permanent labor certification applications pending in state
workforce agencies and ETA regional offices to centralized Backlog
Elimination Centers (BECs) for processing. ETA opened the BECs in
October 2004. The Department's goal is to have all backlogged permanent
labor certification applications eliminated by September 30, 2007.
In December 2004, the Department amended 20 CFR part 656 again
through 69 FR 77386 (Dec. 27, 2004). This regulatory amendment had the
affect of removing the RIR conversion date in the current Code of
Federal Regulations, but did not affect the processing of cases filed
prior to March 28, 2005. For those purposes, the previous regulation
remains in effect.
III. Policy Guidance
To further assist its backlog elimination goal, the Department has
determined the RIR conversion date at section 656.21(i)(6) of the
previous regulation should be extended. Given the extensive backlog of
older cases, which remains even with the implementation of a
streamlined labor certification process, the Department has determined
that it would be contrary to the public interest to delay
implementation of this change and to withhold this benefit from
applications filed under the regulation in effect prior to March 28,
2005.
By announcement of this Notice in the Federal Register, the
Department is allowing employers that filed their applications before
the removal of 20 CFR 656.21(i)(6) to process their applications under
the RIR process with the exception of those cases that are already
being processed under 20 CFR 656.21(f)(1) of the basic labor
certification process. As a result, GAL No. 2-02 will remain in effect
for RIR conversion purposes for applications filed on or before March
27, 2005. Further, the Department will process RIR conversions using
the same process it currently uses in the backlog centers.
IV. Action Required
Effective on October 6, 2006, Backlog Elimination Center Directors
are required to:
A. Provide this guidance to appropriate staff.
B. Apply these procedures for handling employer requests to convert
TR applications received by state workforce agencies on or before March
27, 2005, to RIR applications unless the exception described in
paragraph 4(C) below applies.
C. Exception: These procedures do not apply to any traditional
recruitment cases that are already being processed under 20 CFR
656.21(f)(1) of the basic labor certification process and which
recruitment (i.e. a job order) has been initiated by the BEC.
V. Inquiries
Inquiries related to the implementation of this guidance should be
directed to the appropriate Backlog Elimination Center in Philadelphia
at (484) 270-1500 or Dallas at (214) 237-9111.
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