U.S. GOVERNMENT PUBLISHING OFFICE

26–070 WASHINGTON : 2018

S. HRG. 115–252 

H.R. 339, THE NORTHERN MARIANA ISLANDS 

ECONOMIC EXPANSION ACT 

HEARING 

BEFORE THE 

COMMITTEE ON 

ENERGY AND NATURAL RESOURCES 

UNITED STATES SENATE 

ONE HUNDRED FIFTEENTH CONGRESS 

FIRST SESSION 

APRIL 27, 2017 

( 

Printed for the use of the 

Committee on Energy and Natural Resources 

Available via the World Wide Web: http://www.govinfo.gov 
(II) 

COMMITTEE ON ENERGY AND NATURAL RESOURCES 

LISA MURKOWSKI, Alaska, Chairman 

JOHN BARRASSO, Wyoming 

JAMES E. RISCH, Idaho 

MIKE LEE, Utah 

JEFF FLAKE, Arizona 

STEVE DAINES, Montana 

CORY GARDNER, Colorado 

LAMAR ALEXANDER, Tennessee 

JOHN HOEVEN, North Dakota 

BILL CASSIDY, Louisiana 

ROB PORTMAN, Ohio 

LUTHER STRANGE, Alabama 

MARIA CANTWELL, Washington 

RON WYDEN, Oregon 

BERNARD SANDERS, Vermont 

DEBBIE STABENOW, Michigan 

AL FRANKEN, Minnesota 

JOE MANCHIN III, West Virginia 

MARTIN HEINRICH, New Mexico 

MAZIE K. HIRONO, Hawaii 

ANGUS S. KING, JR., Maine 

TAMMY DUCKWORTH, Illinois 

CATHERINE CORTEZ MASTO, Nevada 

COLIN HAYES, Staff Director 

PATRICK J. MCCORMICK III, Chief Counsel 

ISAAC EDWARDS, Senior Counsel 

ANGELA BECKER-DIPPMANN, Democratic Staff Director 

SAM E. FOWLER, Democratic Chief Counsel 

DAVID GILLERS, Democratic Senior Counsel 
(III) 

C O N T E N T S 

OPENING STATEMENTS 

Page 

Murkowski, Hon. Lisa, Chairman and a U.S. Senator from Alaska .................. 1 

Cantwell, Hon. Maria, Ranking Member and a U.S. Senator from Washington .................................................................................................................... 2 

WITNESSES 

Pula, Nikolao I., Acting Assistant Secretary for Insular Areas, U.S. Department of the Interior ............................................................................................. 5 

Sablan, Hon. Gregorio Kilili Camacho, Delegate, Northern Mariana Islands, 

U.S. House of Representatives ............................................................................ 11 

Torres, Hon. Ralph DLG., Governor, Commonwealth of the Northern Mariana 

Islands ................................................................................................................... 28 

Gootnick, Dr. David, Director, International Affairs and Trade, U.S. Government Accountability Office .................................................................................. 34 

Arenovski, Jim, Sole Proprietor, Island Training Solutions ................................ 70 

ALPHABETICAL LISTING AND APPENDIX MATERIAL SUBMITTED 

Arenovski, Jim: 

Opening Statement ........................................................................................... 70 

Written Testimony ............................................................................................ 72 

Supplemental Testimony ................................................................................. 141 

Bank of Guam: 

Letter for the Record ........................................................................................ 146 

Cantwell, Hon. Maria: 

Opening Statement ........................................................................................... 2 

CNMI Strategic Economic Development Council: 

Statement for the Record ................................................................................. 156 

Commonwealth Healthcare Corporation: 

Statement for the Record ................................................................................. 149 

Gootnick, Dr. David: 

Opening Statement ........................................................................................... 34 

Written Testimony ............................................................................................ 36 

Responses to Questions for the Record ........................................................... 135 

H.R. 339, the Northern Mariana Islands Economic Expansion Act .................... 88 

Hyatt Regency Saipan: 

Letter for the Record ........................................................................................ 158 

Latte Training Academy: 

Letter for the Record ........................................................................................ 16 

Murkowski, Hon. Lisa: 

Opening Statement ........................................................................................... 1 

Pula, Nikolao I.: 

Opening Statement ........................................................................................... 5 

Written Testimony ............................................................................................ 7 
Page

IV 

Pula, Nikolao I.—Continued 

Responses to Questions for the Record ........................................................... 91 

Sablan, Hon. Gregorio Kilili Camacho: 

Opening Statement ........................................................................................... 11 

Written Testimony ............................................................................................ 25 

Responses to Questions for the Record ........................................................... 95 

Saipan Chamber of Commerce: 

Statement for the Record ................................................................................. 12 

Torres, Hon. Ralph DLG.: 

Opening Statement ........................................................................................... 28 

Written Testimony ............................................................................................ 30 

Responses to Questions for the Record ........................................................... 119 
(1) 

H.R. 339, THE NORTHERN MARIANA ISLANDS 

ECONOMIC EXPANSION ACT 

THURSDAY, APRIL 27, 2017 

U.S. SENATE, COMMITTEE ON ENERGY AND NATURAL RESOURCES, Washington, DC. 

The Committee met, pursuant to notice, at 10:06 a.m. in Room 

SD–366, Dirksen Senate Office Building, Hon. Lisa Murkowski, 

Chairman of the Committee, presiding. 

OPENING STATEMENT OF HON. LISA MURKOWSKI, 

U.S. SENATOR FROM ALASKA 

The CHAIRMAN. Good morning. The Committee will come to 

order. 

It is a privilege to be able to welcome the Governor and our dignitaries here this morning. We appreciate, a great deal, you being 

with us. 

We are meeting this morning so that we can consider H.R. 339, 

which is the Northern Mariana Islands Economic Expansion Act. 

This bill has effectively three primary components: for Fiscal Year 

2017 only, it would increase the cap on Commonwealth-Only Transition Workers (CW-1), we refer to them as CW permits, from its 

current level of 12,998 to 15,000; it would increase the fee for a CW 

permit from $150 to $200; and, it would also permanently prohibit 

the issuance of a CW permit for a construction worker, except in 

the case of extending a CW permit for a construction worker that 

was first issued prior to October 1, 2015. 

The last item, limiting who is eligible for a CW permit, is probably the key reason why we are considering this legislation before 

us today. Over the past couple of years, the cap for the CW program has been reached before the end of the fiscal year. In 2017, 

the cap was hit just weeks into that fiscal year. This has had a 

negative impact on many foreign workers, some of whom have been 

working in the Commonwealth of the Northern Mariana Islands 

(CNMI) for the past 10–15 years, if not more, as their employers 

were not yet eligible to apply for their CW permit renewals. Now 

it is not too difficult to connect the dots between the increased 

amount of construction activity and the increased applications by 

construction companies for CW permits to understand why the cap 

has been hit in the past two years. 

On the one hand, it is encouraging to see this level of economic 

growth and investment interest in the CNMI. After the global economic downturn in 2008, it is great to see this economy rebound. 

I think we have had enough discussion in this Committee to recog-
2 

nize that there have been some very, very tough years, years where 

the economy has struggled greatly. 

But on the other hand, it is hard not to wonder if the CNMI 

would be in this situation had the business community taken the 

transition program seriously when the Congress enacted the Consolidated Natural Resources Act (CNRA) back in 2008. We have not 

seen the progress, I think, that we had hoped in moving away from 

foreign labor during the transition program which led Congress to 

enact the hard 2019 sunset date for the transition. 

So as we consider the number of resort and the casino projects 

that are lined up for development now in CNMI, it is not clear how 

sustainable this particular investment is, or what the capacity is 

to ensure the legality of activity. There are lots of moving parts 

here. The recent arrests of construction company representatives 

for employing and harboring Chinese workers who entered the 

CNMI on parolee/tourist visas is probably the most explicit and 

certainly current example of these concerns. 

There are a lot questions and a need for a better understanding 

as we look at this legislation that would provide temporary relief 

to roughly 2,000 foreign workers in the CNMI, and then, more importantly, as we look at the CNMI’s future going forward. 

I would like to thank all of our witnesses for being here today. 

I know many of you have traveled a long distance and quite possibly on short notice. I look forward to your testimony and the 

questions that we will be able to raise and discuss this morning. 

With that I turn to Senator Cantwell. 

STATEMENT OF HON. MARIA CANTWELL, 

U.S. SENATOR FROM WASHINGTON 

Senator CANTWELL. Thank you, Madam Chair. Thank you to the 

witnesses and thank you to the Chair for holding this hearing. 

H.R. 339, the Northern Mariana Islands Economic Expansion 

Act, is something that we all need to discuss. And I know many 

of you have traveled here to give us your insights on that legislation. 

As many of my colleagues know, this Committee was once called 

the Committee on Interior and Insular Affairs, actually before that 

it was called the Committee on Public Lands. That was its first 

name, and then it changed to the Committee on Interior and Insular Affairs. It was not until 1977 that we actually became the Energy and Natural Resources Committee. That’s just a way to say 

that these issues are very important to the United States and long 

have been, and we need to make sure that we continue to give it 

our full attention. 

Today the scope of the hearing is our Committee’s jurisdiction of 

territories including Puerto Rico, the U.S. Virgin Islands, American 

Samoa, Guam and the Northern Mariana Islands, and U.S. assistance to the Freely Associated States of Palau, Micronesia and the 

Marshall Islands. 

Each of these island governments has a separate and unique relationship with the United States that requires oversight and, from 

time to time, change in federal law. Today the Committee is considering H.R. 339 which would amend immigration practices in the 
3 

Commonwealth of the Northern Mariana Islands and specifically 

address the Transitional Worker Permit Program. 

In the 1990s the horrific working conditions of the Northern 

Mariana Islands were exposed. Stories were uncovered of systematic abuse of employees working long hours with substandard pay, 

women forced to undergo abortions in order to stay employed and 

adults and children tricked and trafficked into slavery. 

In 1998, this very Committee under Senator Frank Murkowski 

described the Northern Mariana Islands as having living and working conditions that ‘‘simply should not exist in the United States 

of America.’’ 

However, when the Clinton Administration and some members of 

Congress pushed for reform, they were met with resistance by one 

of Washington’s worst lobbyists, most corrupt lobbyists, Jack 

Abramoff. Abramoff worked with then-Representative Tom DeLay 

to prevent the passage of legislation to institute critical protections 

for workers on the Islands. 

In 2000, the Senate passed a bill to extend U.S. labor practices 

and minimum wage law to the Northern Mariana Islands by unanimous consent; however, Abramoff and DeLay helped make sure 

that died in the House. Congressman DeLay was recorded promising Willie Tan, a tycoon from the Saipan Government Industry, 

that legislation to improve the working conditions would never receive a hearing. 

In 1992, the Tan Holding Company, owned by Willie Tan, was fined $9 million for its treatment of workers in the Mariana Islands. It was the largest fine ever imposed by the Department of 

Labor. This money served as restitution for 1,200 employees across 

the five Tan-owned plants who were abused, forced to work over 80 

hours a week below minimum wage with no overtime, and during 

their few hours of not working the workers were kept imprisoned 

in living quarters. 

While working conditions have improved in the Mariana Islands 

since these horrible acts of the 1990s and early 2000s, there is still 

a lot of work to be done. In 2016, in response to growing reports 

of workplace injuries, deaths of multiple workers at the new Imperial Pacific International Casino site, the Occupational Safety and 

Health Administration (OSHA) dispatched inspectors to visit the 

sites. However, when OSHA inspectors arrived at the construction 

site where the workers had died, they were denied entrance. In response, the Federal Court issued warrants to allow the inspectors 

entrance. Despite the Federal Order, the subcontractor still resisted before finally dropping their objection. 

Similar to the reports we saw in the 1990s, today we are hearing 

again from workers who say they are forced to work 80 hours per 

week, are owed back wages, have been exposed to harsh, physical 

working conditions and are being kept in deplorable conditions. 

And over the past months, construction workers have protested repeatedly to demand reform. The protesters claim that they have 

been paid recruitment fees of up to $10,000 to travel from China 

to work in the CNMI and sponsored companies now refuse to pay 

the promised wage rates. 

In addition to poor working conditions for illegal workers, the 

Mariana Islands are experiencing severe problems with visa abuse. 
4 

Immigration laws in the Marianas permit Chinese nationals to arrive without first applying for a tourist visa. Once on the island, 

the workers receive tourist visas which do not allow them to work 

and then they are employed illegally by companies that brought 

them there. 

A recent FBI raid on the offices of construction contractors uncovered a spreadsheet with personnel details of over 150 undocumented Chinese workers. So far, these five people in the management of the contracting business have been indicted on charges of 

harboring illegal aliens for commercial advantage and private financial gain. 

As a territory of the United States, it is our duty as the Federal 

Government to ensure that these fundamental rights are protected 

in the Northern Mariana Islands. Too many people have been hurt, 

have even lost their lives when Congress had refused to step in and 

impose the basic labor and immigration standards. Foreign and domestic workers alike are being exploited by employers who care 

only for their financial gain. And all of this is happening, as Senator Frank Murkowski said years ago, ‘‘under a U.S. flag.’’ So it is 

our duty as members of Congress to step in and do what is necessary to make sure that our American values are there while providing the Mariana Islands with the tools for economic success. 

There is still much work to be done. 

However, it is not all doom and gloom. The Marianas have made 

some significant strides toward prosperity in their economy. GDP 

has been increasing since 2012. And while I would like to see more 

steps to transition from reliance on major foreign labor force, I recognize that reality today; over half of the workforce is foreign. 

The legislation before us in the Committee today would close a 

serious loophole that has enabled the poor treatment of construction workers. It would also provide for a modest increase in foreign 

workers to enter the CNMI in 2017 so as to prevent the shock to 

the recent recovered economy. Most importantly though, this hearing and any future congressional action on H.R. 339 is a message 

that we take seriously our commitment to the Mariana Islands. We 

will not return to the conditions of the 1990s and the 2000s. 

Thank you all very much, and I look forward to hearing your testimony. 

The CHAIRMAN. Thank you, Senator Cantwell. 

At this time, we will proceed with our witnesses. As I mentioned 

we have a very distinguished panel. 

We will start off this morning hearing from our Acting Assistant 

Secretary for the Office of Insular Affairs at the U.S. Department 

of the Interior, Mr. Nikolao Pula. 

He will be followed by our Congressman, the Honorable Gregorio 

Kilili Camacho Sablan. Congressman Sablan, it is good to have you 

here with us today. You have been before this Committee before, 

so it is nice to have you back. 

We also have our Governor, the Honorable Ralph Deleon Guerrero Torres, who is the Governor of the Northern Mariana Islands. 

We appreciate you coming the distance and being here today and 

for your leadership in the Mariana Islands. 
5 

Dr. David Gootnick is the Director of International Affairs and 

Trade at the GAO, the Government Accountability Office. We appreciate you being here. 

Our final panelist this morning is Mr. Jim Arenovski. He is with 

Island Training Solutions. We are very pleased that you will be 

able to offer your perspective as well. 

I would ask that you all try to limit your comments to five minutes. Your full statements will be included as part of the record. 

I will just note, I am going to have to pop out for about five minutes to take a quick vote over in the HELP Committee, but I will 

be back, so we will continue the hearing without interruption. 

Mr. Pula, if you could lead off, please. 

STATEMENT OF NIKOLAO I. PULA, ACTING ASSISTANT SECRETARY FOR INSULAR AREAS, U.S. DEPARTMENT OF THE 

INTERIOR 

Mr. PULA. Chairman Murkowski and members of the Committee, 

thank you for the opportunity to speak regarding H.R. 339, the 

Northern Mariana Islands Economic Expansion Act. 

H.R. 339 would first raise the vocational education fee from $150 

to $200. Second, it will exclude from CW visa eligibility construction workers who had not been authorized for CW status prior to 

October 1, 2015. And three, raise the Fiscal Year 2017 numerical 

limitation on the number of CW visas from 12,998 to 15,000. 

The Northern Mariana Islands began to be governed under the 

Covenant and the CNMI Constitution in 1978. Tourism was always 

expected to be part of the foundation on which an economy would 

be built. By the early 1980s, a nascent garment industry appeared 

and thereafter, grew wildly. 

At its height in 1998, garments were a $1.1 billion business built 

on imported foreign labor. By 2009, all the garment factories were 

gone and the CNMI government fell on hard times. Annual budgets 

plummeted from $247 million in 1997 to $102 million in 2012. 

With impending financial ruin for the CNMI government, people 

and retirees, CNMI political leaders charted a new economic course 

for their islands. A contract was signed that would make the 

CNMI’s main island of Saipan an international gambling destination. The leaders of the CNMI saw the problem and took swift action to solve it. 

The first casino/hotel in Saipan broke ground in July 2015. Casino revenue is already aiding the territory and providing security 

for its retirees. 

The CW visa numerical limitations have become inadequate, especially when construction firms supplanted other employers who 

had been using CW employees in their businesses. For Fiscal Year 

2016, the CW limit was reached after seven months. For Fiscal 

Year 2017, the limit was reached in two weeks leaving many employers with insufficient labor. 

Over a 10-year period, when slated casinos and hotels are finally 

open, the Saipan Chamber of Commerce noted that they would 

need about 18,500 additional employees. The supply of United 

States eligible employees will not meet the need. Without relief on 

the labor front, projected investment in the CNMI likely will wither. A recent report by the GAO projects that without sufficient for-
6 

eign labor the economy of the CNMI would contract by an estimated 26 to 62 percent. The Office of Insular Affairs approved a $200,000 grant in September 2016 to aid the CNMI government in collecting, compiling 

and analyzing crucial data on the CW visa transitional worker program. 

There have been a number of proposals to deal with labor needs 

in the CNMI. With a longer timeline for the CNMI labor needs, 

H.R. 5888, in the last Congress, called for 18,000 CW visas annually through 2029, with possible extensions by the Secretary of 

Labor. The Covenant Section 902 Report of January 17, 2017, recommended an increase to 18,000 CW visas annually. 

H.R. 339 proposes raising the annual limit on CW visas for Fiscal Year 2017 to 15,000. It takes the pressure off this lower number of 15,000 by making most construction positions ineligible for 

the CW visa program. Instead, construction demand would be expected to shift to H–2B visas. The duration of the relief, however, 

would likely be short-term. 

The Administration believes that elements of both H.R. 5888 and 

H.R. 339 could be combined to provide a more viable long-term 

labor program. But because action on a long-term program is unlikely, prompt passage of H.R. 339 is a necessary stopgap measure. 

Currently, the CNMI is facing the repatriation of a majority of 

its nurses in June, July and September. These 125 CW visa holders 

work on all three populated islands of Saipan, Tinian and Rota. We 

are concerned that, without legislative relief, many hospital functions will have to be terminated, creating a public health emergency. A similar concern has been raised for employees of the Commonwealth Utilities Corporation. 

The Administration, therefore, in the absence of a long-term solution, supports the enactment of H.R. 339. This CW visa issue is 

crucial to the well-being of the Northern Mariana Islands’ economy 

and its U.S. citizens’ population. 

Thank you. 

[The prepared statement of Mr. Pula follows:] 
7 

STATEMENT 

OF 

NIKOLAO I. PULA 

ACTING ASSISTANT SECRETARY FOR INSULAR AREAS 

DEPARTMENT OF THE INTERIOR 

BEFORE THE 

U.S. SENATE COMMITTEE ON ENERGY AND NATURAL RESOURCES 

REGARDING 

H.R. 339 

THE NORTHERN MARIANA ISLANDS ECONOMIC EXPANSION ACT 

APRIL 27,2017 

Chairman Murkowski and members of the Committee on Energy and Natural 

Resources, thank you for the opportunity to speak regarding H.R. 339, the 

Northern Mariana Islands Economic Expansion Act. Absent a long-term 

legislative solution that meets the labor needs of the Commonwealth of the 

Northern Mariana Islands (CNMI), the Administration is in full support of the 

goals ofH.R. 339. 

Provisions ofH.R. 339 

H.R. 339 would (1) raise the vocational education fee levied for each CNMIOnly Transitional Worker (CW) visa from $150 to $200, (2) exclude from 

CW visa eligibility constmction workers who had not been authorized for 

CW-1 status prior to October 1, 2015, the practical result of which would be 

to require their employers to petition for them under other categories, such as 

the H-2B visa category for temporary or seasonal workers, and (3) raise the 

fiscal year 2017 numerical limitation on the number of CW visas from 12,998 

to 15,000. 
8 

2 

Recent Economic History 

The Northern Mariana Islands began to be governed under the Covenant to 

Establish a Commonwealth of the Northern Mariana L'ilands in Political 

Union with the United States ofAmerica and the CNMI Constitution in 1978. 

Tourism was always expected to be part of the fotmdation on which an 

economy would be built. By the early 1980s, a nascent garment industry 

appeared, and, thereafter, grew wildly. At its height in 1998, garments were 

a $1.1 billion business built on imported foreign labor. By 2009, all the 

gam1ent factories were gone and the CNMI government fell on hard times. 

Annual CNMI budgets plummeted from a high of $247 million in 1997 to 

$102 million in 2012. 

With impending financial ruin for CNMI government retirees, CNMI political 

leaders charted a new economic course for their islands; a contract was signed 

on August 8, 2014 that would make the CNMI's main island of Saipan an 

international gambling destination. The CNMI saw the problem and took 

swift action to solve it. 

The first casino/hotel in Saipan broke grotmd in July 2015. Casino revenue is 

already aiding the territory and providing security for its retirees. 

Everyone's plans on Saipan were then shattered by Typhoon Soudelor in 

August 2015. The devastation was beyond belief. Soudelor brought extreme 

competition for supplies and labor, and delays in casino and hotel 

construction. In addition, growth in the CNMI economy has led to high 

demand for CW visas. The numerical limitations previously set by the 

Department of Homeland Security as directed by relevant statute, were no 

longer adequate, especially when construction firms supplanted other 

employers who had been using CW employees in their businesses. For fiscal 

year 2016, USCIS received enough petitions to reach the CW-1 cap five 

months before the end of the fiscal year. For fiscal year 2017, USCIS received 

enough petitions to reach the CW-1 cap two weeks after the fiscal year began, 

leaving many employers with insufficient labor. 

Billions of dollars are being invested in casino and hotel facilities, and foreign 

construction workers are sorely needed. Over a ten year period, when slated 

casinos and hotels are finally open, the Saipan Chamber of Commerce 
9 

3 

estimates that they will need 18,500 additional employees to operate them 

effectively. The supply of United States-eligible employees will not meet the 

need. Without relief on the labor front, projected investment in the CNMI 

likely will wither. A recent report by the GAO projects that without sufficient 

foreign labor the economy of the CNMI would contract by an estimated 26 to 

62 percent. 

Proposals for Legislation 

The immigration transition program that authorized the CW visa is currently 

scheduled to terminate entirely on December 31, 2019. The CW visa program 

has generated an interest in policy changes over the years. In order to gain 

clarity, the Office oflnsular Affairs approved a $200,000 grant in September 

2016 to aid the CNMI government in collecting, compiling, and analyzing 

crucial data on the CW visa transitional worker program. 

There have been a number of proposals to deal with labor needs in the CNMI. 

With a longer timeline for CNMllabor needs, H. R. 5888 (in the last Congress) 

called for 18,000 CW visas annually through 2029, with possible extensions 

if approved by the Secretary of Labor after verification of need. The Covenant 

Section 902 Report of.Tanuary 17, 2017, authored by the President's Special 

Representative and the Governor of the CNMI, reconnnended an increase to 

18,000 CW visas ammally. 

HR. 339 (and HR. 6401 last year) proposes raising the annual limit on CW 

visas for fiscal year 2017 to 15,000. HR. 339 takes the pressure off this lower 

mm1ber of 15,000 by making most constmction occupation positions 

ineligible for the CW visa program Instead, constmction demand would be 

expected to shift to H-2B visas. 

Administration Position 

HR. 339 would give some relief to employers who are suffering because of 

the over-subscribed fiscal year 2017 CW visa progran1. It would increase the 

fiscal year CW visa limit by 2,002 from 12,998 to 15,000. The duration of 

the relief, however, would likely be short tem1. 

The Administration believes that elements of both HR. 5888 and HR. 339 

could be combined to provide a more viable long-term labor program. We 

look forward to working with the bill sponsor and this Committee to identity 
10 

4 

the provisions that will address the CNMl' s labor needs and benefit the overall 

CNMl economy. 

But given the consequences of no action at all, prompt passage ofH.R. 339 is 

a necessary stop-gap measure. 

Currently, the CNMI is facing the repatriation of a majority of its nurses in 

Jtme, July and September; these 125 CW visa holders work on all three 

populated islands ofSaipan, Tinian and Rota. We are concerned that, without 

legislative relief, many hospital functions will have to be terminated, creating 

a public health emergency. A similar concern has been raised for employees 

of the Commonwealth Utilities Corporation. 

The Administration, therefore, in the absence of a long-tern1 solution, supports 

the enactment ofH.R. 339. 

I appreciate the opportunity to state our views on these labor and immigration 

issues that are so crucial to the well-being of the Northern Mariana Islands' 

economy and its U.S. citizen population. 
11 

The CHAIRMAN. Thank you, Mr. Pula. 

We will next turn to Congressman Sablan, welcome. 

STATEMENT OF HON. GREGORIO KILILI CAMACHO SABLAN, 

DELEGATE, NORTHERN MARIANA ISLANDS, U.S. HOUSE OF 

REPRESENTATIVES 

Mr. SABLAN. Good morning and thank you, Chairwoman Murkowski and Ranking Member Cantwell and members of the Committee and my classmate, Senator Heinrich. 

For today’s hearing on my bill, H.R. 339, the House has twice 

passed the bill without dissent. Now we hope the Senate will do 

the same. It is our prayer that the Senate passes the bill as well. 

The timing could be better. Federal agencies, OSHA, Labor’s 

Wage and Hour Division, Department of Justice and Immigration 

have recently found violations of federal law at a construction site 

in the Marianas. This may seem like the conditions that led to federal control of immigration and gave our islands a black eye in the 

1990s. 

But there is a star difference. Today, federal agencies are cracking down quickly on abuses with the full support of the Commonwealth government. And we have legislation, H.R. 339, that actually addresses a source of the problem. 

With that, let me introduce the witnesses invited today from the 

Marianas, my Governor, Ralph Torres. Under his watch the economy of the Marianas is reviving after many years of negative 

growth. 

And Mr. Jim Arenovski, a Marianas businessman, who in a very 

business and public-spirited way is training local workers so that 

they have the skills to replace foreign workers in our economy. 

I thank them both for coming all the way from the Marianas on 

very short notice. Their willingness to do so underscores the urgent 

need for the Senate to act. 

I have also other supporting statements I request be added to the 

record. 

The CHAIRMAN. Without objection it will be. 

Mr. SABLAN. Okay, thank you. 

[The information referred to follows:] 
12 

WRITTEN TESTIMONY 

OF 

VELMA PALACIOS 

BOARD PRESIDENT 

SAIP AN CHAMBER OF COMMERCE 

BEFORE THE 

SENATE COMMITTEE ON ENERGY AND NATURAL RESOURCES 

April27,2017 

1 - INTRODUCTION 

Thank you for this opportunity to share our concerns with you on behalf of the business 

community of Saipan. The Saipan Chamber of Commerce is comprised of over 160 

memberships from the largest corporations to single owner businesses. We find our role is not 

only to represent the business community but to support the community as a whole on our tiny 

island. 

2-BACKGROUND 

Our island strives to meet U.S. standards for wages, benefits, living conditions, and amenities. 

We struggle due to our geographic location and the need to absorb significant shipping costs for 

nearly every product used in businesses and in homes as well as relocation costs for every 

employee not available on our island. Health care, power and water, and other basics are also 

impacted by these issues, financially and structurally. 

3 PROGRESS TO DATE 

The 20 I 0 Federal Census is outdated and we have experienced much change on our island since 

then. 

Our Chamber of Commerce has offered continual support and education to our Chamber 

members and to the general public regarding visa options available for their non-U.S. employees. 

We provide regular training seminars for all employees and their management teams. These 

training opportunities have been particularly beneficial for smaller companies who may operate 

without an H.R. department or may not have regular resources for training their workers. We 

have engaged experts to share their knowledge through our events, and have encouraged all 

businesses to hire locally. 
13 

4 WHY WE NEED MORE & WAGES 

As you may know, our economy is experiencing substantial growth. The casino industry has 

been operating a training facility and already employs thousands of operational workers. 

Employment at the casino is mandated at a minimum of 60% U.S. eligible workers. These 

workers have been taken from the available island workforce or have moved here from the 

mainland. The casino's ability to offer higher wages has enticed workers already on island to 

seek employment within that industry. Of course, this leaves other businesses in the position of 

searching for new employees to fill the gaps with new hires. 

When the new casino facility opens, even more workers will be needed for this state-of-the-art 

facility. Then their temporary/current location will be transitioned back to its original business 

as a Duty Free Shop which will also require staff to complete the physical renovation and 

additional staff to resume operations. 

With the advent of this new industry to our island, ancillary businesses are also expanding. 

Major new developments are being planned and some are already well into construction and will 

soon be ready to open their doors. Employees are needed for daily operations, airlines are 

adding new flights, additional tourists from these new flights are filling hotels to capacity, new 

hotel rooms are opening with additional rooms under construction, and existing properties are 

being purchased for rapid conversion to Bed & Bath lodging to accommodate the influx of 

visitors. 

These influences have pushed wages up through market forces without legislation. By offering 

more money and/or benefits to entice existing workers to their organizations, new businesses 

have pushed existing companies to pay more in order to retain their long time employees. 

Seventy percent of the staff oftbese new businesses must be U.S. eligible workers, and that 

requirement has been rapidly exhausting our available workforce. There are only a limited 

number of new workers coming into the workforce each year, mainly high school students. But 

that number is limited, and since we encourage students to pursue secondary education, their 

availability is limited. 

Although the economy is booming, our success is fragile and is dependent upon obtaining a 

sufficient workforce to staff our businesses. Our geographic location is both a blessing and a 

hardship; we have amazing natural beauty, a solid and charming local population, and savvy 

investors to provide sustenance, but our isolation works against us. The distance from many of 

the creature comforts of the United States is difficult for some to accept, as is the cost of an 

airline ticket to see family and friends. We also have a lack of amenities: no shopping malls, no 

concerts, no professional theatre, no major sporting arenas or events, no amusement parks, and 

only one tiny museum. All of this often translates to a hard adjustment for people coming from 

the U.S. mainland, and leaving island for even a short trip has a price tag of $300 to $2000. 

We are asking for foreign workers in order to protect and continue to grow our economy and 

believe that our economy will crash without them. Our current economic boom has allowed the 
14 

vast majority of available workers to find employment, and has opened many options for 

employment, providing options for upward mobility. As a result, workers are in great demand, 

and employers are finding it hard to fill open slots. Examples of this include: 

A major hotel which has transitioned the majority of their workforce to U.S. workers once had 

20 to 30 applicants with strong qualifications for only two openings. Now, when they advertise 

for new positions, only 3 to 4 applicants apply. 

One major communication company has long offered higher wages to their employees. They 

have many skilled positions in technical fields, and have trained well. Regardless, they typically 

receive very few applications for open positions. This is quite typical for the businesses in our 

community. 

4 WORKFORCE STRUGGLES 

Like many tourist destinations, our island is dominated by the service industry. Hotels and 

restaurants are plentiful in our business landscape. These businesses require many entry level 

employees on a long-term basis. Unlike Cape Cod, Massachusetts, where the season is a short 

three months, the CNMl has beautifully tropical weather year round. Our average temperature 

remains steady throughout the twelve months of the year and the sun shines most days. Tourists 

from nearby countries love to avail of our warm temperatures and amazing beaches when their 

climates are cold and unpleasant. Our waitresses and chambermaids are needed every day, year 

round. 

To maintain the tourism trade, support businesses are also needed. Restaurants, banks, shopping 

and more are required to make visitors welcome and entertained. We also need hospitals and 

schools and dental clinics and more to support a growing population. This is not about one 

company, or one type of industry. It's about the whole island. It's about supporting the local 

people, protecting their environment, building with respect for the limited land, and providing a 

safe and clean island for our tourists to enjoy. We must keep the economy strong to accomplish 

this. 

Hotels are at record breaking occupancy levels, airlines are adding new flights, businesses are 

expanding, and major developments are underway. This provides opportunities for 

entrepreneurship and higher wages. Taking this away would be devastating but it can only be 

supported by additional workers not available on island. 
15 

5 -CONCLUSION 

In conclusion, additional workers are critical to the continuing functioning of the CNMI 

economy. The current cap on CW workers is based upon information that is over seven years out 

of date. There have been massive changes to our economy and population in the interim. 

The allocation of large numbers of CW permits to construction workers has had a profound 

impact on other industries. This includes health care and other critical segments. The inability of 

these sectors to find and retain qualified workers, combined with the migration of government 

employees to new industries, is impacting the health and welfare of the entire community. 

The number of workers willing to move to the CNMI from the U.S. mainland is limited by many 

factors. This limitation requires the ability of businesses to recruit staff from other, more 

proximate jurisdictions. 
16 

The Honorable Senator Lisa Murkowski, Chairwoman 

and 

The Honorable Senator Maria Cantwell, Ranking Member 

US Senate Committee on Energy and Natural Resources 

304 Dirksen Senate Building 

Washington, DC 20510 

April 25, 2017 

Re: The latte Training Academy, Inc. 

Dear Chairwoman Murkowski and Senator Cantwell, 

It is with honor and humility that the latte Training Academy, Inc. hereby submits our program 

information to your office for consideration in the deliberation of House Resolution 339. As your office is 

keenly aware, the CNMI is contending with an unprecedented labor quandary which prompted the 

establishment of The latte Training Academy, Inc. in 2013. 

The Latte Training Academy, Inc. is a 501c3 non-profit organization which aims to provide workforce 

development for the CNMI and Guam. Since its first course offering in 2014, our organization has 

prepared over 400 CNMI US eligible workers with globally and industry recognized certifications. We 

have a certification rate of 94%. A significant portion of the participants that attain certifications through 

our programs enter the workforce, continue with higher education or both. We have expanded our 

program offerings from our initial Hotel & Hospitality certifications to include occupation specific 

certifications in Allied Health, Information Technology and Business. A complete list of current course 

offerings is outlined in the attached informational brochure. 

We understand that your office has a tremendous amount of information to consider as part of your 

deliberations and sincerely hope that you find the enclosed information useful. We thank you for your 

kind consideration of our communication and wish you and your colleagues continued success. 

Executive Director 

The latte Training Academy, Inc. 

Marianas Business Plaza, 3m Floor 

PO Box 504490 

Saipan, MP 96950 

~~~ktt!g!f?~lliill@.Qftd§!.DY.:fQffi 
17 
18 

The Latte Training Academy, Inc. 

The Latte Training Academy, Inc. (LTA) is a so1q non-profit 

organization located in the U.S. Commonwealth of the Northern Mariana 

Islands (CNMI). The organization was founded in 2013 in response to the 

need to develop the local workforce in the islands of Saipan, Tinian, Rota 

and Guam. The organization first began offering trainings which resulted 

in nationally recognized certifications in the summer of 20L4. The first set 

of trainings provided were premised on the CNMI's economic mainstay of 

tourism. As such, the Latte Training Academy, Inc. partnered with the 

American Hotel & Lodging Educational Institute (AHLEI) to offer their 

comprehensive Skills, Tasks And Results Training (START). In 2015, the 

organization expanded its course offerings to include trainings which lead 

to nationally recognized certifications for Certified Phlebotomy 

Technicians, Certified Billing & Coding Specialists, and Certified Nursing 

Assistants. In 2017, the organization expanded again to offer nationally 

recognized certifications for bookkeeping and information technology. 

Beginning in 2014, the LTA partnered with the CNMI's Public School 

System and the CNMI's Workforce Investment Agency to offer trainings to 

eligible participants referred by each agency. Despite a significant demand 

for the trainings that are being provided, a segment of the population 

exists that is ineligible for services through partner agencies and are 

unable to avail ofLTA training programs due to financial constraints. In an 

effort to expand services to a wider segment of the population, LTA has 

entered or will be entering into partnerships with additional fLmding 

agencies, including the CNMI Department of Commerce, the Northern 

Marianas College and the Pacific Islands Small Business Development 

Center Network (PISBDCN). 

Latte Training Academy, Inc. Leadership 

Community Leaders Building A Better Community 

The Latte Training Academy, Inc. is governed by a Board of Directors 

comprised of community members residing in the CNMI and Guam. 

While the Board governs organizational strategy, operational strategy is 

managed by the organization's Executive Director, Ms. Arielle Buywn. As a 

founding member of the Latte Training Academy, Inc. in 2013, Ms. Buyum 

served as the organization's inaugural Board President for the first year 

and half. Her strong familiarity with its foundation and vision has lead the 

Latte Training Academy, Inc. to provide a wider array of services and 

establish a wider host of partnerships. 
19 

Latte Training Academy's Hotel & Hospitality Certification Programs 

The Latte Training Academy has partnered with respected 

professionals versed in workforce and professional trainings specific to 

the Commonwealth of the Northern Mariana Islands (CNMI). In 

partnership with Island Training Solutions, the organization has secured 

the license to deliver Hotel & Hospitality trainings and certifications 

under the American Hotel & Lodging Educational Institute {AHLEI). All 

AHLEI trainings are developed by global leaders in the Hotel & 

Hospitality industry. 

The hotel and hospitality programs provide specific skills knowledge 

leading to an industry recognized and portable professional certification 

from the American Hotel & Lodging Educational Institute. Our training 

programs provide an in-depth understanding of aU aspects of hotel and 

hospitality operations. The programs teach the foundation of hotel and 

hospitality operations while promoting the long-term career pathways 

available to students. The programs promote professionalism, 

confidence and positive work ethic. In addition, the Latte Training 

works alongside the Saipan Chamber of Commerce (SCC) and the Hotel Association of the 

Northern Mariana Islands (HANMI) to 

students work-experience and 

internship opportunities which are anticipated 

to aid in job placement upon successful 

completion of the program. 
20 

latte Training Academy's Allied Health Certification Programs 

The Latte Training Academy has partnered with respe<'ted professionals in 

the area of allied health through Guam Marianas Training Center. These 

courses require that students be at least eighteen (18) years of age. Students 

who fall below the compulsory age must have eamed a high school diploma or 

a general equiwtlency diploma. 

The Certified Phlebotomy Technician (CPT) certification is an introductory 

level course that will familiarize participants with the duties associated with 

the practice of venipuncture, capillaty puncture and special collection 

procedures. Student will have experience with quality control, infection 

control, and safety procedures as well as laboratory computer systems. 

Students who successfully complete the course will sit for the National 

Phlebotomy Registry Examination. This course is a total of eighty (So) hours to 

include classroom instruction and laboratory practicums. 

This Cettified Nursing Assistant (CNA) certification course prepares 

students to perform the fundamental skills of the nursing assistant. The 

Nursing Assistant Certification course offer students 160 hours of instruction 

and hands-on experience in basic nursing skills, personal care skills, and safety 

and emergency care issues. More than half of the program hours spent in 

clinical setting, where students apply their course knowledge in a practical 

setting. 

The Certified Billing & Coding Specialist (CBCS) course thoroughly prepares 

students to code medical records correctly and optimize reimbursement for a 

full range of medical services. Students are introduced to various techniques 

for finding and applying the correct codes in today's standard coding systems. 

Topics covered include: procedural terminology, international classification of 

diseases, clinical modification, healthcare procedure coding system, resourcebased relative value scale, insurance form preparation, Medicare, Medicaid, 

Blue Cross/Blue Shield, Worker's Compensation, No Fault, HMO's diagnosis 
21 

Programs 

The Latte Training Academy has teamed up with respected professionals 

in the Information Technology (IT) industry through its partnership with 

Cannoli Works of Saipan, LLC. A subsidiary of Colorado based Cannoli 

Works, LLC, the organization is headed by [T professionals with nearly 

twenty years of IT experience working alongside various International and 

Domestic organizations to include government sector clients, fin<~.ndal 

servke clients, and £-commerce giants within the industiy. The firms 

establishment of a CNMI based ann, includes partne1ing with local ownership in an effort to ensure localized expertise in an effOit to deliver the 

highest quality of instruction that the Latte Training Academy, Inc. demands 

from its partner organizations. 

This CompTIA Information Technology Fundamentals Certification 

course provides an in-depth ent1y level-course instruction on the various 

components of Information Technology (IT). This includes examination of 

software landscapes to include understanding various Operating Systems; 

identification of common program,;, applications and their purposes; 

identification of various alternative technologies (viitualization, cloud 

computing, Web applications, Voice over JP, & Telepresence). Students will 

be familiarized with computing hardware, including comparing common 

computer connector types, identifYing the purpose of internal computer 

components, and identifYing basic wired and wireless peripherals and their 

purpose. Additionally, students will explore IT security, networking and IT 

literacy as part of this course. The course is a computer-based instructor lead 

series which will culminate in the examination towards CompTIA IT 

Fundamentals Certification. 

The A+ ceitification is a basic certification that demonstrates proficiency 

with computer hardware and operating systems (OS). The cettifica6on helps 

demonstrate proficiency with the use of computers and related device. Core 

elements of A+ certification cl'itetia include knowledge of computer anatomy, 

Operating Systems (OS), and computer data usage elements (including basic 

structure of binary data and file input/output (I/0)). This comse is 

recommended fOr pa1ticipants who have successfully achieved the CompTIA 

IT Fundamentals Certification or students who have a strong understanding 

of Information Technology. Certification requires a two-part certification 

series, which are inclusive within the course cost. 
22 

Latte Training Academy's Business Certification 

Programs 

The Latte Training Academy, Inc. has partnered with the 

respected business professionals at Island Training Solutions, LLC. 

The Bookkeeping certification is accredited through the National 

Bookkeepers Association, the nation's leading accrediting body for 

the Bookkeeping professional. In this course, participants will 

receive instruction in the analysis of business transactions, 

utilization of T -accounts, understanding general journals, general 

ledgers, worksheet adjustments, closing entries, post-closing trial 

balances, accounting for sales, receivables, payables, cash payments, 

cash receipts, payroll computations, accruable, deferrals and 

financial statements. Participant pre-assessment will be required 

prior to full registration into the course. 

The QuickBooks certification is accredited through the National 

Bookkeepers Association, and is recognized tluoughout the United 

States and its Territories. QuickBooks certification assures 

employers of the participants QuickBooks knowledge to include 

managing expenses, sales and income, customer transactions and 

reports, customization of QuickBooks, tracking inventory, billable 

time and costs, payroll setup, payroll processing, adjustments and 

year-end procedures, and setting up a company file. 

The Certified Office Manager is accredited by Accounting 

Training Unlimited (ATU) and the National Bookkeepers 

Association, and is recognized throughout the United States and its 

Territories. ATU's Uniform Certified Office Manager prepares 

participants in the areas of the office environment, office 

competencies, managing information to enhance productivity, 

communicating in written form, communicating orally, banking 

and payroll, financial reports and procedures, time and workstation 

management, meetings and travel, records management, processing 

management, planning and advancing your career. 

The Excel certification course is accredited by the National 

Bookkeepers Association, and is recognized throughout the United 

States and its Territories. ATU's Uniform Excel 2010 Certification 

validates participant knowledge in the areas of entering and editing 

data, modifying a worksheet, using functions, formatting, printing, 

charts, managing large workbooks and graphics and screens hots. 
23 

• Cl'lllvlll-'ui:>lic Scnoo! Sy.;-..em 

+ CNMI Workforce Investment & Opportunity Agency 

• CNMI Department of Commerce 

+ CNMI Department of labor 

• Island Training Solutions, LLC 

• Guam Marianas Training Center 

• Cannoli Works of Saipan, LLC 

• Saipan Chamber of Commerce 

• Hotel Association of the Northern Marianas Islands 

+ CNMI Small Business Development Center 

+ The American Hotel & lodging Educational Institute 

• The National Healthcareer Association 

+ CompTIA 

• National Bookkeepers Association 

• Accounting Training Unlimited 

• The University of Colorado, Colorado Springs 
24 

Mr. SABLAN. But H.R. 339, as the Chair has noted, does three 

simple things. It provides an additional 2,002 foreign work permits 

for the Marianas for the remaining five months of this fiscal year, 

it bars future use of these permits for new construction workers, 

and it increases the permit fee so there is more money to train U.S. 

workers to fill jobs now held by foreign workers. 

And why is this necessary? After a decade of negative GDP, the 

Marianas economy has begun to grow. The growth comes from increased tourism, and with increased tourism comes demand for resort development. To build resorts has required a sudden influx of 

construction workers, mostly from China, because Chinese investment is funding the building. 

This sudden influx of Chinese workers used up about 5,000 of the 

special, Marianas-only foreign worker permits provided under federal law, CW permits, of which there are only a limited number 

each fiscal year. And USCIS cut off further applications for this 

year on October 14th. As a result, existing CW permit-holders expiring between now and September 30 cannot apply for renewal 

nor would CW permits be available, if they could apply. 

Who are these CW worker holders being crowded out? They are 

medical professionals working at our only hospital and at public 

and private clinics. They are workers with technical skills and 

firm-specific experience built up over time that many of our local 

businesses rely upon. They are not easily or quickly replaced. 

So my bill provides 2,002 additional one-year permits, available 

only for the rest of this fiscal year. This will help the hospital and 

local businesses that are going to be short of workers just when 

business opportunity is growing, not the situation we want businesses to be in. 

In addition to this targeted, short-term relief, H.R. 339 also addresses the cause of the problem, the influx of Chinese construction 

workers and the lack of skilled U.S. workers to fill the gap. 

H.R. 339 bars any future use of the limited CW permit for temporary construction workers. Federal law already provides for an 

unlimited number of H2-B visas to bring workers to the Marianas 

for this kind of temporary work. H.R. 339 forces employers to do 

so. H.R. 339 also forces all employers to pay more to train U.S. 

workers to take over the jobs now held by foreign workers, our ultimate goal. 

To date over $9 million in fees has been collected, and we have 

added 2,000 U.S. workers to the labor force. But we need to train 

more and we need to train faster. So H.R. 339 increases the fee 

from $150 to $200 so we have the resources to do that training. 

I have used up all my time. Let me summarize as succinctly as 

I can. 

My view it’s a temporary fix to a temporary problem. My bill includes permanent provisions that will help ensure we do not have 

this same problem again, and it is urgent that the Senate act because losing foreign workers on whom businesses are dependent 

will immediately hurt the economy. 

Thank you again, Chairwoman Murkowski, for giving us this opportunity to make our case. 

[The prepared statement of Mr. Sablan follows:] 
25 

Del. Gregorio Kilili Camacho Sablan 

U.S. House of Representatives 

Statement on H.R. 339 

Northern Mariana Islands Economic Expansion Act 

Senate Energy and Natural Resources Committee 

April27, 2017 

Thank you, Madame for on my bill, H.R. 339. The 

House has twice the bill without dissent. Now, we the Senate will do 

the same. 

The Labor's 

Hour Division, and found apparent '"">~"'t'"r'" 

federal law at a Chinese construction site in the Marianas. 

This reminds us of the conditions that led to federal control of 

..,..,,,,rnti,-,,n __ nr•rl gave our islands a black eye in the 1990s. 

is that federal are down on 

of the Commonwealth government. And we 

addresses a source of the nrr'n''"m 

With that, let me introduce the witnesses invited from the Marianas. 

Governor Torres. Under his watch the economy of the Marianas is 

after many years of,,...,,.,,.,,",.., 

And Mr. Jim Arenovski, a Marianas businessman, who in a very 

<>nl-ror,r<>no• and way to the need to better train local 

have the skills to workers in our economy. 

! thank them both for all the way from the Marianas on very short 

notice. Their to do so underscores the need for the Senate to 

act. 

H.R. 339 does three 

" Provides an additional2,002 

for this fiscal year 

worker for the Marianas 

.. Bars future use of these for new construction workers; and 

fee so there is more money for us 

now held foreign workers. 

1 
26 

After a decade of GOP the Marianas economy has to 

grow. 

The comes from increased tourism. 

With increased tourism comes demand for resort ""'""""""'m 

To build resorts has a sudden influx of construction workersbecause Chinese investment is the 

This sudden influx of Chinese workers used up about 5,000 of the 

worker under federallaw-CW "''""m'"'--

a number each fiscal year. 

And USCIS cut off further for this year on October 14. 

That meant existing CW between now and 

<.:ontc>ml-,,r 30 cannot for renewal. Nor would CW be available, if 

Who are these CW holders crowded out? 

clinics. 

"'"'""''''"'r"'"' built up over time that many of our local businesses 

or 

So, my bill provides 2,002 additional nn"'-"""" 

the rest of this fiscal year. This will the 

that are to be short of workers when business 

Not the situation we want business to be in. 

In addition to this very short-term relief, H.R 339 also addresses the 

causes of the problem: 

1 The influx of Chinese construction workers, and 

2. The lack of skilled U.S. workers to fill the gap. 

H.R for lon,nr'r"""' 

for 

construction workers. Federal law nrrllw1A<> for an unlimited number of H2B visas to workers to the Marianas for work. H.R 339 forces 

to do so. 

to pay more to train U.S. workers to 

take now held workers-our ultimate To date over $9 

million has been collected and we have added 2,000 U.S. workers to the labor 

force. But we need to train more and we need to train faster. H.R 339 increases 

the fee from $150 to $200, so we have the resources to do that 

2 
27 

I have used up my time. But I have summarized my bill as as l 

can: 

.. It is a temporary fix to a 

.. It is that the Senate act 

whom businesses are rl,,,,n,rl<>int 

and 

"' bill includes permanent provisions that will help ensure we do not 

have this same nrr.hlom 

Thank you 

make our case. 

Chairwoman Murkowski, for us this to 

3 
28 

The CHAIRMAN. Thank you, Congressman. 

Governor Torres, you will proceed next. 

Again, I apologize, I am going to step out for just a couple minutes. Senator Daines will make sure that we are working smoothly, 

along with our Ranking Member, and I will be right back. 

Governor, if you would like to proceed? 

STATEMENT OF HON. RALPH DLG. TORRES, GOVERNOR, 

COMMONWEALTH OF THE NORTHERN MARIANA ISLANDS 

Mr. TORRES. Thank you. 

I just want to say good morning to Chair Murkowski and Ranking Member Cantwell and Honorable Members of this Committee. 

H.R. 339 is a necessary and important piece of legislation that 

will improve our capacity to transition into the U.S. immigration 

system and provide the CNMI the short-term relief it needs to retain critical employees for the economy and provide for the wellbeing of our population, especially in our health care system. 

When the CNMI entered into the immigration transition period, 

authorized by Public Law 110–229, the state of the economy was 

in dire straits. The economy at that time had reached record lows. 

In fact, it is interesting to note that it was only a few years ago, 

during the midst of the economic collapse in 2008, that the CNMI 

came before this very Committee, to speak toward the inability of 

the Commonwealth to sustain increases of minimum wage. 

The economy of the CNMI today, while not completely rebounded 

from its years of depression, is showcasing a different reality. Today’s economy has the ability to hire and retain U.S. eligible workers and to support rapidly increasing wages, both those which have 

risen by federal law and those that have increased organically 

through the growing labor demands. 

What makes me especially proud is that the growth of our economy is, more than any time in the recent memory, built and sustained by U.S. eligible workers. Employment of domestic workers 

has increased by nearly 19 percent since its 15-year low in 2012. 

The CNMI today has more domestic workers in the labor force 

than any other time since 2004. And in line with the goals of Public Law 110–229, today the CNMI can boast the highest ratio of domestic to foreign workers since the beginning of our modern economy in 1990. 

There are still those in our economy without a job. And if I could 

place each individual to a vacant position, I would, but the reality 

of the situation on the grounds are not that simple. Education, skill 

sets, certifications, health and drug abuse still present increased 

barriers in much the same way it does throughout the U.S. national labor force. 

To employ those remaining without work, one proven solution 

continues to be economic growth. Yet our ability for our economy 

to grow is limited by simple math. The truth is the CNMI does not 

have enough workers in all of the various fields and specialties to 

sustain the economic growth. We need to avoid falling back into the 

severe economic depression we witnessed only a few years ago. 

What filled this unmet demand for workers in the wide array of 

occupations in the CNMI has allowed the economy to grow and in-
29 

crease jobs for U.S. eligible workers has been the Commonwealthonly transitional worker which is the CW program. 

This brings two main areas why H.R. 339 is necessary. Namely 

that there exist structural issues within the transition period that 

have limited the efficacy of the transition period, the CW permit 

holders remain a critical component of the CNMI’s economy and 

community. 

Two years ago, I requested the U.S. Customs and Immigration 

Services review the issuance of CW permits to individuals in the 

construction trades. In my view, CW permits were only for job categories not available under the existing visa classifications and 

that construction workers could be sourced through H2-B visas. 

As we look back at the CW permits issued in the last two years, 

it is evident that a large majority of the new permits that have led 

to the shortage have been in the construction trades. Removing 

construction workers from the eligible job categories for the CW 

permits will alleviate the limited CW permits for occupations that 

are crucial for the overall economy. 

In conclusion, I ask for your support of H.R. 339 and other measures that would allow the CNMI to grow and become a productive 

member of the federal—member of the American family. And the 

simple truth is that we need federal action to be allowed to succeed. I am not requesting a bailout. I will do all I can to protect 

our fragile economy so that the CNMI does not become a ward of 

the Federal Government. I am here today to ask for your willingness to help, to have open conversations about how we can find 

success in the little, beautiful part of America which is 8,000 miles 

away from my chair. 

Thank you, Chairman Murkowski, Honorable Members of this 

Committee, again for allowing me to be part of this hearing and 

recognizing the issues before us. 

Thank you—— 

[The prepared statement of Mr. Torres follows:] 
30 

WRITTEN TESTIMONY 

OF 

RALPH DLG. TORRES 

GOVERNOR 

COMMONWEALTH OF THE NORTHERN MARIANA ISLANDS 

BEFORE THE 

U.S. SENATE COMMITTEE ON ENERGY AND NATURAL RESOURCES 

April 27, 2017 

Good morning Chainnan Murkowski, Ranking Member Cantwell, and Honorable Members of the 

Committee: 

I thank the Committee for holding this hearing on HR. 339, the Northern Mariana Islands 

Economic Expansion Act, and for allowing me this opportunity to provide testimony in support of 

this legislation and in support of the economy of the Commonwealth of the Northern Mariana 

Islands ("CNMI"). 

HR. 339 is a necessary and impmiant piece of legislation that will improve our capacity to 

transition into the US immigration system, and provide the CNMI the short-tenn relief it needs to 

retain critical employees for the economy and provide for the well-being of our population, 

especially in our health care system. In this testimony, I wish to provide this committee with 

additional infonnation to support HR. 339 and to underline the unique circumstances the CNMI 

faces as we try to improve the quality oflife for our residents to a measure equal to that of the rest 

of the American community. 

When the CNMI entered into the immigration transition period, authorized by Public Law 110-

229, the state of the economy was is dire straits. The economy at the time had reached record lows. 

By 2009, our Gross Domestic Product was in its fifth consecutive year of decline, and, within a 

depressed economy, there existed minimal job opportunities for all who lived on the islands. 

In fact, it is interesting to note that it was only a few short years ago during the midst of the 

economic collapse in 2008 that the CNMI came before this very Committee, to speak toward the 

inability of the Commonwealth to sustain increases to the minimum wage. 

The economy of the CNMI today, while not completely rebounded from its years of depression, is 

showcasing a different reality. Today's economy has the ability to hire and retain US-eligible 

workers, to support rapidly increasing wages, both those which have risen by federal law and those 

that have increased organically through growing labor demands, and to grow its economy in a 

competitive and globalized marketplace. In the face of a wide array of structural constraints on the 

growth of small island economies such as ours, the remarkable nature of the CNMI' s resurgence 

cannot be understated. 

1 
31 

What makes me especially proud is that the growth of our economy is, more than any time in 

recent memory, built and sustained by US-eligible workers. Employment of domestic workers has 

increased by nearly 19% since its 15-year low in 2012. The CNMI today has more domestic 

workers in the labor force than any other time since 2004, and, in line with the goals of Public Law 

110-229, today the CNMI can boast the highest ratio of domestic to foreign workers since the 

beginning of our modem economy in 1990. 

I will be the first to tell you that there is still much work to accomplish. There are still those in our 

economy without a job, and ifi could place each of these individuals into a vacant position I would, 

but the realities of situation on the ground are not that simple. Education, skill sets, certifications, 

health and drug abuse still present increased barriers in much the same way it does throughout the 

US national labor force. 

But I will continue to do all I can to ensure every able bodied US-worker in the CNMI finds lasting 

employment. In looking at the best examples from across our nation, l see one solution to increase 

US citizen employment that has proven itself time and time again to be successful - grow the 

economy. 

Yet, the ability for our economy to grow is limited by simple math. The truth is the CNMI does 

not have the enough workers in all of the various fields and specialties to sustain the economic 

growth we need to avoid falling back into the severe economic depression we witnessed only a 

few short years ago. What filled this unmet demand for workers in the wide array of occupations 

in the CNMI and has allowed the economy to grow and to increase jobs for US-eligible workers 

has been the Commonwealth-only transitional worker ("CW") program. 

Fiscal Year 2017 marked the second consecutive year in which the CNMl economy reached its 

numerical limitation of permits under the CW program. These instances have highlighted what I 

believe to be the two main areas why HR. 339 is so important, namely that there exist structural 

issues within the transition period that have limited the efficacy of the transition period and that 

CW permit holders remain a critical component of the CNM! economy and community. 

Two years ago, I requested the US Customs and Immigration Services review the issuance of CW 

permits to individuals in the construction trades. In my view, CW permits were only for job 

categories not available under existing visa classifications, and that construction workers could be 

sourced through H2-B visas. As we look back at the CW permits issued in the last two years, it is 

evident that a large majority of the new permits that have led to the shortage have been in the 

construction trades. Removing construction workers from the eligible job categories for the CW 

permit will force employers to go to better suited visa classifications and alleviate the limited CW 

permits for occupations that are crucial for the overall economy and the needs of the people. 

The other need I want to speak to is not only essential for the economic growth of the CNMI but 

also the directly vital to the livelihood of the people living in the Northern Marianas. This year, as 

a result of reaching the FY 2017 numerical limit on CW permits in October 2016, the CNMI's sole 

hospital is facing a manpower crisis that will affect its operations and endanger the lives of the 

people they serve. Starting from this month to the end of this fiscal year, the hospital is set to lose 

39 nurses whose CW permits expire without any available slots for them to renew. In most other 

2 
32 

jurisdictions 39 nurses may seem like an insignificant number, but in the CNMI the effects are 

certain to be dramatic. 

According to the Commonwealth Health Care Corporation's ("CHCC") Chief Operating Officer 

("CEO"), following the loss of departure of these nurses, the remaining nursing staff will have to 

be reassigned to cover the critical units. Forecasting for the potential loss of 5 nurses assigned to 

the Emergency Department, the CEO plans to reassign nurses from the Surgery Department to 

cover the load. This necessary reassignment will potentially discontinue all elective surgeries, 

creating a back log that may take years to erase, while off-island medical referrals increase and 

general health of the population declines. This situation will only compound as they are set to lose 

nurses from Pediatrics, the Intensive Care and Neonatal Intensive Care Unit, the Hemodialysis 

unit, and from the Labor and Delivery Unit. From the moment of birth to the time of death, and 

nearly every significant point in between our hospital will lose the critical staff that are needed in 

these moments of incredible vulnerability in a person's life. 

While but one notable and important example, the concems we share for the hospital highlight the 

difficulties the CNMI faces in filling available positions with qualified and unemployed USeligible workers. Despite their sincere efforts, the hospital has been unable to hire US-eligible and 

qualified nurses that are not already employed by CHCC or private clinics. Additionally, while, 

the Northem Marianas College offers a nursing program, it does not offer degree programs in 

laboratory, pharmacy or radiology, which are of critical demand. 

The loss of these nurses if there is not a momentary increase in this year's numerical allocation 

will directly affect the lives and safety of the people of the CNMI, and it certainly is one of the 

most critical concerns I wish to bring to the Committee's attention. However, to many varying 

extents, this situation is repeating itself across all sectors. Labor shortages are causing businesses 

to make difficult decisions on reducing hours of operation, planned closures, and many are 

uncertain of their ability to succeed in the CNMI. 

I hear the concerns of the business community in the CNMI, and I feel the anxiety among the many 

families, both US citizen and foreign, over what the future may be for the islands. I too am 

concerned over the ability for our hospital to operate effectively, over retaining government 

resources to improve public services, and maintaining an economy that will help alleviate the 

widespread instances of poverty. 

Because of these concerns, it is my obligation to do all I can to offer my wholehearted support to 

work with your Committee and the US Congress in finding out what is possible, how your concems 

can be addressed and how we can agree to allow our small islands the opportunity to improve and 

stand on our own feet among our fellow members of this great American community. 

In the past several years and in the many discussions I have shared with some of the Honorable 

Members of this Committee and others throughout Congress, I have heard your concerns, agreed 

with many of them, and am taking steps to find solutions as best I can. For instance, we are altering 

the manner in which we are utilizing the CW Worker Fees, in order to more efficiently train the 

next generation ofUS Workers, but also do so in a clear and transparent fashion. Our Scholarship 

Office is taking on renewed effort to realize a return on the investment the CNMI government 

3 
33 

made on their educations. This last year, provided the record for collections on scholarship 

recipients who have not returned home, but we do not need their money, we need their skills. That 

is why I am proud of the progress we are making toward bringing our students back home. This 

last year, more than half of scholarship recipients were working in the CNMI after graduating 

college. This is a number I hope to build upon and as more opportunities are made available in the 

CNMI with higher wages, I am hopeful for real progress. 

In conclusion, I ask for your support of HR. 339 and other measures that would allow the CNMI 

to grow and become a productive member of the American family. I am willing to work with the 

members of the Committee to discuss this important issue further. The simple truth is we need 

federal action to be allowed to succeed. I am not requesting a bailout, and I will do all l can to 

protect our fragile economy so that the CNMl does not become a ward of the federal government. 

All I am here today to ask is your willingness to have open conversations about how we can find 

success in the little, beautiful part of America 8,000 miles from this chair. 

Thank you Chairman Murkowski, and Honorable Members of the Committee again for allowing 

this hearing to take place and recognizing that this is an issue of great interest and significance to 

the CNMI. I look forward to working with the members of this Committee in the days, weeks, and 

months ahead. 

4 
34 

The CHAIRMAN. Thank you, Governor. You remind us that you 

are a long way away, but you are still an important part of our 

work here. So we thank you for that. 

Dr. Gootnick. 

STATEMENT OF DR. DAVID GOOTNICK, DIRECTOR, INTERNATIONAL AFFAIRS AND TRADE, U.S. GOVERNMENT ACCOUNTABILITY OFFICE 

Dr. GOOTNICK. Thank you. 

Chairman Murkowski, Ranking Member Cantwell and members 

of the Committee, thank you for asking GAO to participate in this 

hearing. 

As you know the CNRA established federal control of CNMI immigration and required DHS to reduce the number of CW permits 

to zero by the end of the transition period. The legislation’s intent, 

amongst other things, was to minimize any adverse economic consequences of ending the preexisting guest worker program. 

As has been said, the CNMI economy has recently rebounded. 

GDP is up for the past four years, about, just under three percent 

on average. Visitor arrivals are up about 50 percent since 2011, a 

barometer of tourism. And under separate federal legislation, the 

minimum wage has more than doubled since 2007 and is set to the 

U.S. minimum wage in 2018. 

In this setting the demand for CW work permits has grown 

steadily and importantly, as has been said, demand spiked in 2016 

and 2017 such that DHS stopped accepting petitions. In this context this Committee, along with Mr. Sablan, asked GAO to analyze 

the economic impact of ending the CW program and review efforts 

to address labor force needs. 

My testimony today is based on our preliminary results, and we 

will publish a final report next month. In my remarks I’ll try to 

highlight the aspects of our work that most closely pertain to the 

three key provisions of H.R. 339. 

First, on the provision to raise this year’s cap on CW permits. 

Foreign workers make up more than half of the CNMI workforce 

in 2015 and a recent study found that these workers held 80 percent of all jobs in the tourist industry. Our preliminary result analysis finds that if all CW workers were removed from the labor 

force, the most likely result is an economy 37 to 50 percent below 

its current level. To reach this result we ran 10,000 simulations of 

an economic model of GDP under a range of assumptions on labor 

and output. Our methodology and additional findings will be in our 

forthcoming report. 

Second, on the provision limiting future CW permits for construction workers. With construction of the new casino, CW permits for 

construction rose from a few hundred in 2014 to over 3,500 in 2016. 

In 2016 over a quarter of all permits were issued to three construction firms. At the same time, work permits for Chinese nationals 

increased significantly and now are more than one-third of all permits. According to DHS data, 1,105 permits were issued for construction occupations in 2015. If this is the number of CW permits 

that would be available for construction under H.R. 339, it suggests 

that available permits would not meet the current demand for 
35 

these workers and U.S. worker’s H visas or other, for example, 

would need to be employed for future construction. 

Third, on the provision to increase the vocational education fee. 

At present, there are over 12,000 foreign workers in the CNMI and 

the best available data indicate that there are roughly 2,400 unemployed, U.S. eligible workers living in the Commonwealth. The fee 

on each CW petition funds job training programs at the Northern 

Marianas College, the Trades Institute and the public school system. Over the last five years, DHS has transferred about $9 million 

in these fees to the CNMI Treasury and about $3 million of these 

fees remain available for programming in 2017. In partnership 

with these programs, some employers have had success in bringing 

trainees and graduates into the local workforce. However, with 

roughly 700 high school and 200 college grads each year, the number of new entrants into the workforce is limited. According to most 

employers we interviewed, efforts to recruit workers from Guam, 

Hawaii, the U.S. mainland or the Freely Associated States have 

met with limited success and are hampered by the high cost of recruitment and high turnover. 

Last, it is estimated that hitting the CW cap in 2016 coincided 

with the loss of over 3,500 foreign workers in non-construction jobs, 

including some with decades of employment in the Commonwealth. 

In this context, the 902 report and others have recommended that 

Congress consider a path to permanent status for long-term, foreign workers, many of whom were lawfully present in the CNMI 

when the immigration bill was passed. 

Madam Chair, this concludes my remarks. I’m happy to answer 

your questions. 

[The prepared statement of Dr. Gootnick follows:] 
36 

For Release on Delivery 

Expected at 10:00 a.m. ET 

Thursday, April27, 2017 

GA0-17-593T 

United States Government Accountability Office 

Testimony 

Before the Committee on Energy and 

Natural Resources, U.S. Senate 

COMMONWEALTH OF 

THE NORTHERN 

MARIANA ISLANDS 

Preliminary Observations 

on the Implementation of 

Federal Immigration Laws 

Statement of David Gootnick, Director, 

International Affairs and Trade 
37 

Highlights 

Highlights of GA0~17-593T, a testimony 

before the Commfttee on Energy and Natural 

Resources, U.S. Senate 

Why GAO Did This Study 

In 2008, Public Law 110-229 

established federal control of CNMI 

immigration. It required DHS to create 

a transitional work permit program for 

foreign workers in the CNMI and to 

decrease the number of permits issued 

annually; it presently requires that DHS 

reduce them to zero by December 31 , 

2019. To implement this aspect of the 

law, in 2011, DHS created a CW-1 

permit program for foreign workers. In 

2015, foreign workers totaled 12,784, 

making up more than half of the CNMI 

workforce. 

GAO was asked to review the 

implementation of federal immigration 

laws in the CNMI. This testimony 

discusses GAO's preliminary 

observations from its ongoing work on 

(1) the potential economic impact of 

reducing the number of CNMI foreign 

workers to zero and (2) federal and 

CNM! efforts to address labor force 

challenges. 

GAO reviewed U.S. laws and 

regulations; analyzed government 

data, including CNM! tax records since 

2001; and conducted fieldwork in 

Saipan, Tinian, and Rota, CNMI. 

During fieldwork, GAO conducted 

semistructured interviews and 

discussion groups with businesses, 

CW-1 workers, U.S. workers, and 

current and former job training 

participants. GAO also interviewed 

officials from the CNMI government, 

DHS, and the U.S. Departments of 

Commerce, the Interior, and Labor. 

What GAO Recommends 

GAO is not making any 

recommendations at this time. GAO 

plans to issue a final report in May 

2017. 

till]ilf{WNf 

COMMONWEALTH OF THE NORTHERN 

MARIANA ISLANDS 

Preliminary Observations on the Implementation of 

Federal Immigration Laws 

What GAO Found 

If all foreign workers in the Commonwealth of the Northern Mariana Islands 

(CNMI) with CNMI-Only transitional worker (CW-1) permits, or 45 percent of total 

workers in 2015, were removed from the CNMI's labor market, GAO's 

preliminary economic analysis projects a 26 to 62 percent reduction in CNMI's 

2015 gross domestic product (GDP)-the most recent GDP available. In 

addition, demand for foreign workers in the CNMI exceeded the available 

number of CW-1 permits in 2016-many approved for workers from China and 

workers in construction occupations. The construction of a new casino in Saipan 

is a key factor in this demand (see photos taken both before and during 

construction in 2016). Meanwhile, by 2019, plans for additional hotels, casinos, 

and other projects estimate needing thousands of new employees. When the 

CW-1 permit program ends in 2019, GAO's preliminary analysis of available data 

shows that the unemployed domestic workforce, estimated at 2,386 in 2016, will 

be well below the CNMI's expected demand for labor. To meet this demand, 

CNMI employers may need to recruit U.S.-eligible workers from the U.S. states, 

U.S. territories, and the freely associated states (the Federated States of 

Micronesia, Republic of the Marshall Islands, and Republic of Palau). 

Source GAO i GA0-17-593T 

Federal and CNMI efforts to address labor force challenges include (1) job 

training programs and (2) employment assistance funded by the U.S. 

Department of Labor and implemented by the CNMI's Department of Labor. The 

Department of Homeland Security (DHS) collects the $150 vocational education 

fee assessed for each foreign worker on a CW-1 petition and transfers the fees 

to the CNMI government. Results of GAO's ongoing work indicate that to support 

vocational education curricula and program development in fiscal years 2012 

through 2016, DHS transferred to the CNMI Treasury about $9.1 million in CW-1 

fees. During this period, GAO's preliminary analysis shows that the CNMI 

government allocated about $5.8 million of the $9.1 million to three educational 

institutions: Northern Marianas College, Northern Marianas Trades Institute, and 

the CNMI's Public School System. In 2016, a U.S.-CNMI consultative process 

resulted in a report to Congress wtth six recommendations related to the CNMI 

economy, including one to raise the cap on CW-1 foreign worker permits and 

extend the permit program beyond 2019. 

-------------United States Government Accountability Office 
38 

Chairman Murkowski, Ranking Member Cantwell, and Members of the 

Committee: 

Thank you for the opportunity today to discuss preliminary observations 

from our ongoing work looking at the implementation of federal 

immigration laws in the Commonwealth of the Northern Mariana Islands 

(CNMI). 

The 1976 Covenant defining the political relationship between CNMI and 

the United States exempted the CNMI from certain federal immigration 

laws but reserved the right of the federal government to apply federal law 

in these exempted areas without the consent of the CNMI government 

The Consolidated Natural Resources Act of 2008 amended the U.S.-

CNMI Covenant to establish federal control of CNMI immigration 

beginning in 2009. The act established a transition period and special 

provisions for foreign visitors, investors, and workers. Specifically, it 

required the U.S. Department of Homeland Security (DHS) to establish a 

temporary work permit program for foreign workers and to reduce 

annually the number of permits issued, reducing them to zero by the end 

of the transition period-now set to occur on December 31, 2019. As part 

of the temporary work permit program, DHS collects a vocational 

education fee from prospective employers of those applying for special 

nonimmigrant visas and transfers these fees to the CNMI government for 

ongoing vocational programs provided by the CNMI educational entities. 

This testimony discusses preliminary observations from our ongoing work 

on (1) the potential economic impact of reducing the number of foreign 

workers to zero and (2) federal and CNMI efforts to address labor force 

challenges. In a subsequent report, we will also discuss the changes in 

CNMI's labor market since federally mandated minimum wage increases 

began.' We plan to issue our final report in May 2017. 

1

A 20071aw Included a provision to apply the U.S. m1nimum wage to the CNMI, tncreasing 

CNMI's minimum wage in periodic increments until it reaches the federal minimum wage, 

which is currently $7.25 per hour. See U.S. Troop Readiness, Veterans' Care, Katrina 

Recovery, and Iraq Accountability Appropriations Act, 2007, Pub. L. No. 110-28, § 

8103(a) (May 25, 2007), codified as amended at 29 U.S. C. § 206 note, Applicability of 

minimum wage to American Samoa and the Commonwealth of the Northern Mariana 

Islands. Subsequent legislation included a provision for GAO to report on the impact of 

past increases in minimum wages in the CNMI. See 29 U.S.C. § 206 note. Report on the 

impact of past and future minimum wage mcreases 

Page 1 GA0~17~593T Commonwealth of the Northern Mariana Islands 
39 

To evaluate the potential economic impact of reducing the number of 

foreign workers in the CNMI to zero and replacing them with domestic 

workers, we created a simulated mathematical model of how the CNMI's 

gross domestic product (GOP) would change if the number of foreign 

workers were reduced to zero. We also analyzed DHS data on the annual 

number of approved CNMI-Only transitional worker (CW-1) permits by 

country of birth, occupation, and business from 2014 through 2016. To 

evaluate the possible replacement of CW-1 workers with domestic 

workers, we analyzed the number of people seeking employment in 2016, 

in the context of labor requirements for the CNMI's planned development 

projects as of December 20, 2016. 

To assess federal and CNMI government efforts to address labor force 

challenges, we reviewed the CNMI 's job training programs and a report 

generated through a consultative process specified in section 902 of the 

U.S.-CNMI Covenant (hereafter, the 902 Report) 2 For job training 

programs, we analyzed the use of CW-1 vocational education fees that 

DHS transferred to the CNMI government in fiscal years 2012 through 

2016. We also interviewed officials and reviewed documents provided by 

the U.S. Department of the Interior (DOl) and the CNMI government to 

better understand the 902 consultative process (hereafter, 902 

Consultations). 

For both objectives, we conducted fieldwork in the CNMI and interviewed 

officials from DHS, DOl, and the Department of Labor (DOL). Our 

fieldwork interviews took place on the CNMI islands of Saipan, Tinian, 

and Rota, and included meetings with the CNMI Governor; the Mayors of 

Tinian and Rota; and the CNMI Secretaries of Commerce, Finance, and 

Labor and interviews and discussions with representatives of CNMI 

businesses. In Saipan, we also facilitated small-group discussions with 

CW-1 workers, U.S. workers currently employed by CNMI businesses, 

and officials, students, and graduates of CNMI job training programs. In 

addition to the data mentioned above, we reviewed demographic 

information about the employed population in the CNMI based on the 

CNMI tax records since 2001 and data from the 2014 CNMI Prevailing 

Wage & Workforce Assessment Study. We also reviewed prior GAO 

reports and analyzed various data sets from the U.S. Department of 

2

See Special Representatives of the United States and the Commonwealth of the 

Northern Mariana Islands, Report to the President on 902 Consultations (January 2017), 

accessed March 10, 2017, https://\Nifi/IN.doi.gov/sites/doi.gov/files/uploads/902-

consultat!ons-report-january-2017. pdf 

Page 2 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
40 

Background 

U.S.-CNMI Relations 

Commerce (DOC), the CNMI's Departments of Finance and Commerce, 

and CNMI's tourism organizations. We determined that the data used in 

our analyses were sufficiently reliable for the purposes of our report. 

We are conducting the work upon which this statement is based in 

accordance with generally accepted government auditing standards. 

Those standards require that we plan and perform the audit to obtain 

sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objectives. We believe that 

the evidence obtained provides a reasonable basis for our findings and 

conclusions based on our audit objectives. 

Part of the Mariana Islands Archipelago, the CNMI is a chain of 14 islands 

in the western Pacific Ocean-just north of Guam and about 3,200 miles 

west of Hawaii. The CNMI has a total population of 53,890, according to 

preliminary results of the CNMI's 2016 Household, Income, and 

Expenditures Survey. Almost 90 percent of the population (48,200) 

resided on the island of Saipan, with an additional 6 percent (3, 056) on 

the island of Tinian and 5 percent (2,635) on the island of Rota. 

The United States took control of the Northern Mariana Islands from 

Japan during the latter part of World War II. After the war, the U.S. 

Congress approved a trusteeship agreement making the United States 

responsible to the United Nations for the administration of the islands. 3 In 

1976, the District of the Mariana Islands entered into the Covenant with 

the United States establishing the island territory's status as a selfgoverning commonwealth in political union with the United States. 4 This 

Covenant grants the CNMI the right of self-governance over internal 

affairs and grants the United States complete responsibility and authority 

31n 1947, the United Nations gave the United States authority to administer the Trust 

Territory of the Pacific Islands, which included the Northern Mariana Islands. The 

trusteeship over the Northern Mariana Islands was formally dissolved in 1986 

4

Covenant to Establish a Commonwealth of the Northern Mariana Islands in Political 

Union with the Un1ted States of Amenca, Pub. L. No. 94-241 (Mar. 24, 1976), codified as 

amended at48 U.S.C. § 1801 note. See also Howard P. WHiens and Deanne C. Siemer, 

An Honorable Accord: The Covenant between the Northern Mariana Islands and the 

United States (Honolulu: University of Hawaii Press, 2002) 

Page3 GA0.17.593T Commonwealth of the Northern Mariana Islands 
41 

for matters relating to foreign affairs and defense affecting the CNMI. 5 

The Covenant initially made many federal laws applicable to the CNMI, 

including laws that provide federal services and financial assistance 

programs. However, the Covenant preserved the CNMI's exemption from 

certain federal laws that had previously been inapplicable to the Trust 

Territory of the Pacific Islands, including certain federal minimum wage 

provisions and immigration laws, with certain limited exceptions. 6 Under 

the terms of the Covenant, the federal government has the right to apply 

federal law in these exempted areas without the consent of the CNMI 

government. Section 902 of the Covenant provides that the U.S. and 

CNMI governments will designate special representatives to meet and 

consider in good faith issues that affect their relationship and to make a 

report and recommendations. 

Several U.S. government programs operate in the CNMI, including 

programs administered by DHS, DOl, and DOL. 

DHS has three primary components-U.S. Customs and Border 

Protection (CBP), U.S. Immigration and Customs Enforcement (ICE), 

and U.S. Citizenship and Immigration Services (USCIS)-that enforce 

federal immigration laws and maintain border control in the CNMI. 

CBP inspects travelers at the Saipan and Rota airports to determine 

whether to admit them into the CNMI. ICE enforces federal 

immigration laws in the CNMI, for example, by identifying, 

apprehending, detaining, and removing criminal foreign nationals and 

other foreign nationals that threaten the security of the CNMI and the 

United States. USCIS processes foreign nationals' applications for 

5Under the Covenant) the U S. government may enact legislation m accordance w!th its 

constitutional processes that will be applicable to the CNMI. To respect the CNMI's right of 

self-government under the Covenant, certain provisions of the Covenant may be modified 

only with the consent of both the federal government and the CNMI government 

6Priorto November2009, Section 506 of the Covenant applied to the CNMI certain 

provisions of the Immigration and Nationality Act of 1952 relating to citizenship and familybased permanent immigration. Certain other nonimmigrant provisions of the act, related to 

victims of human trafficking and other crimes, also applied to the CNMI. See 8 U.S.C 

§ 1101(a)(15)(T)-(U).ln addition, the Covenant provided U.S. citizenship to legally 

qualified CNMI residents 

Page4 GA0~17~593T Commonwealth of the Northern Mariana Islands 
42 

The CNMI Labor Market 

immigration benefits, that is, the ability to live, and in some cases 

work, in the CNMI permanently or temporarily. 7 

DOl's Office of Insular Affairs coordinates federal policies and 

provides technical and financial assistance to the CNMI. 8 The 

Covenant requires DOl to consult regularly with the CNMI on all 

matters affecting the relationship between the U.S. government and 

the islands. 9 In May 2016, President Obama designated the Assistant 

Secretary for Insular Affairs as the Special Representative for the 

United States for the 902 Consultations, a process initiated at the 

request of the Governor of the CNMI to discuss and make 

recommendations to Congress on immigration and labor matters 

affecting the growth potential of the CNMI economy, among other 

topics. The 902 Consultations resulted in a report to the President in 

January 2017, which we refer to as the 902 Report. 

DOL requires employers to fully test the labor market for U.S. workers 

to ensure that U.S. workers are not adversely affected by the hiring of 

nonimmigrant and immigrant workers, except where not required by 

law. DOL also provides grants to the CNMI government supporting 

youth, adult, and dislocated worker programs. From 1999 through 

2015, DOL provided such grants under the Workforce Investment Act 

of 1998 (WIA) and the Workforce Innovation and Opportunity Act of 

2014 (WIOA). w 

The CNMI's employed population consists of both foreign and domestic 

workers. Following consecutive annual decreases in the total number of 

employed workers from 2005 to 2013, CNMI employment started 

recovering after 2013, according to CNMI tax data. Figure 1 shows the 

number of employed workers and the number of foreign and domestic 

workers in the CNMI from 2001 to 2015 based on CNMI tax data. As the 

7

The U.S. Department of State (State) also issues visas at U.S. embassies or consulates 

to foreign nationals who wish to come to the CNMI on a temporary or permanent basis. 

However, since State does not have any representatives working in the CNMI, we 

excluded the agency from the scope of our review 

8

Exec. Order No. 12572, Relations With the Northern Mariana Islands, 51 Fed. Reg. 

40401 (Nov. 3, 1986) 

9Section 902 of the Covenant to Establish a Commonwealth of the Northern Mariana 

Islands in Political Union with the United States of America, Pub. L. No. 94-241 (Mar. 24, 

1976), codified as amended at48 U.S.C. § 1801 note 

1

"vviOA, Pub. L. No. 113-128 (July 22, 2014), repealed WIA 

PageS GA0.17 ~593T Commonwealth of the Northern Mariana Islands 
43 

figure shows, from the lowest point in 2013, the number of employed 

workers increased by approximately 8 percent by 2015 (from 23,344 to 

25,307). However, the number employed in 2015 (25,307) was still 

approximately 31 percent less than the number employed in 2007 

(36,524). 

Figure 1: Employed Workers in the Commonwealth of the Northern Mariana Islands (CNMI), Calendar Years 2001-2015 

Number 

60000 

Federal 

50000 

40000 

30000 

20000 

10000 

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 

Fiscal year 

Fore1gnworkers 

Domesttc workers 

Source GAOana1ysJsofCNMI1axdata I GA0.17-593T 

Notes: Domestic workers include U.S. citizens and citizens of the freely associated states-the 

Federated States of Micronesia, the Republic of the Marshall Islands, and the Republic of Palau. 

Reductions in the number of employed workers from 2007 through 2013 were likely a result of many 

factors, such as the disappearance of the garment industry and decline of the tourism industry 

Reductions in the number of employed workers from 2007 through 2013 may not be caused by 

increases in the mtnimum wage 

Although the number and percentage of foreign workers have fallen since 

2001, foreign workers are still the majority of the CNMI workforce. Of the 

25,307 workers in the CNMI in 2015, slightly over half (12,784) were 

foreign workers, according to CNMI tax data. The number of foreign 

PageS GA0.17 .§93T Commonwealth of the North em Mariana Islands 
44 

workers fell from a peak of almost 38,000 in 2002 (roughly 75 percent of 

the employed workers) and was under 13,000 in 2015. 11 In contrast, since 

2002, the number of domestic workers has fluctuated year to year, 

ranging from about 10,500 to about 13,500, but increased by 17 percent 

from 2013 to 2015. 

In 2007, the minimum wage provisions of the Fair Labor Standards Act of 

1938 were applied to the CNMI, requiring the minimum wage in the CNMI 

to rise incrementally to the federal level in a series of scheduled 

increases. Under current law, the next minimum wage increase will occur 

on September 30, 2017, and the CNMI will reach the current U.S. 

minimum wage on September 30,2018 (see table 1). 

Table 1: Past and Scheduled Minimum Wage Increases in the Commonwealth of the 

Northern Mariana Islands, 2007-2018 

Nominal U.S. dollars 

Date Minimum hourly wage 

Before July 25, 2007 3.05 

July 25, 2007 3.55 

May 25, 2008 4.05 

May 25, 2009 4.55 

September 30, 2010 5.05 

September 30, 2012 5.55 

September 30, 2014 6.05 

September 30, 2016 6.55 

September 30, 2017 (scheduled) 7.05 

September 30, 2018 (scheduled) 7.25 

Source GAOanalys•sofPub L No 110"28,Ptib L No 111-244,andPub l No IGA0-17-593T 

11A!though the garment industry was able to flourish in the CNMI by exporting products to 

other parts of the United States largely unconstramed by import quotas and duties, several 

developments in international trade caused the industry to decline dramatically. In January 

2005, in accordance with a World Trade Organization 10-year phase-out agreement, the 

United States eliminated quotas on textile and apparel imports from other textile-producing 

countries, exposing the CNMI apparel industry's shipments to the United States to greater 

competition. Subsequently, the value of CNMI textile exports to the United States dropped 

from a peak of $1.1 billion in 1998 to $677 mll!ion in 2005 and to close to zero in 2010 

Page7 GA0-17 ~593T Commonwealth of the Northern Mariana Islands 
45 

Changes in the Application 

of Federal Immigration 

Laws 

Based on our preliminary analysis, we estimate that approximately 62 

percent (15,818 of 25,657) of the CNMI's wage workers in 2014, 

assuming they maintained employment, would have been directly 

affected by the federally mandated 2016 wage increase, which raised 

CNMI's minimum wage from $6.05 to $6.55 per hour. 12 Since 72 percent 

of the total foreign workers made less than or equal to $6.55 per hour in 

2014, they were more likely to have been directly affected by the 2016 

wage increase than domestic workers, with only 41 percent making less 

than or equal to $6.55. 13 

The Consolidated Natural Resources Act of 2008 amended the U.S.-

CNMI Covenant to apply federal immigration law to the CNMI, following a 

transition period. 14 Among other things, the act includes several 

provisions affecting foreign workers during the transition period. 15 

To provide for an orderly transition from the CNMI immigration system to 

the U.S. federal immigration system under the immigration laws of the 

United States, on September 7, 2011, DHS established, and currently 

administers, the CW permit program. Under the CW program, foreign 

workers are able to obtain, through their employers, nonimmigrant CW 

12We also assumed the CNMI labor market did not change from 2014 through 2016. If 

workers with wages over the minimum wage also received pay increases as the minimum 

wage increased, then the percentage of workers affected would be greater 

131n May 2017, we plan to issue a final report on our review that will include an analysis of 

changes in CNMI's labor market since the federally mandated minimum wage increases 

began 1n 2007. 

14Conso!idated Natural Resources Act of2008, Pub. L. No. 110-229, Title VII (May 8, 

2008) 

15The Consolidated Natural Resources Act of 2008 and its implementing regulations also 

contain other special provisions, such as establishing (1) a classification for certain foreign 

investors !awfully admitted under the CNM!'s immigration system-called E-2 CNMI 

Investor Status (or E-2C)-and (2) providing that asylum is inapplicable to those in the 

CNMI during the course of the transition period 

PageS GAO~ 17 .593T Commonwealth of the Northern Mariana Islands 
46 

status that allows them to work in the CNMI. 16 Dependents of CW-1 

nonimmigrants (spouses and minor children) are eligible for dependent of 

a CNMI-Only transitional worker (CW-2) status, which derives from and 

depends on the CW-1 worker's status. 

In accordance with the Consolidated Natural Resources Act, DHS, 

through USCIS, has annually reduced the number of CW-1 permits, and 

is required to do so until the number reaches zero by the end of a 

transition period. 17 Since 2011, DHS has annually determined the 

numerical limitation, terms, and conditions of the CW-1 permits (see table 

2). The act was amended in December 2014 to extend the transition 

period until December 31, 2019, 18 and eliminate the Secretary of Labor's 

authority to provide for future extensions of the CW program. 19 

16DHS deemed CW-1 status to be synonymous With "perm1e referenced m the !eg1slat1on 

!n this report, "permit" refers to CW-1 status. An employer must petition for a worker to 

obtain CW-1 status by submitting a Form I-129CW and a!! necessary fees to DHS. If the 

employer also requests a "grant of status" in the CNMI, then the foreign worker !S allowed 

to obtain status without departing the CNMI and reentering through a U.S. embassy or 

consulate. After required security checks, if the Form 1-129CW is approved, DHS will mail 

an approval notice to the employer who should provide a copy to the worker. The approval 

notice indicates whether the worker has been granted CW-1 status in the CNMI or 

whether the worker may proceed to a U.S. embassy or consulate abroad to seek visa 

processing of a CW-1 visa. 

171fthe Form I-129CW is approved, OHS normally grants CW-1 status for 1 year, 

according to the USC IS website. The employer may request an extension of status by 

filing a new Form I-129CW petition. A dependent's CW-2 status expires on the same day 

as the worker's CW-1 status and can be extended when the worker's CW-1 status is 

extended. 

18See Consolidated and Further Continuing Appropriations Act, 2015, Pub. L. No. 113-

235, § 10 (Dec. 16, 2014) 

19Previousty, the Secretary of Labor was authorized to extend the program for up to 5 

years. For additional information, see GAO, Commonwealth of the Northern Mariana 

Islands: Additional DHS Actions Needed on Foreign Worker Permit Program, GA0-12-975 

(Washington, D.C .. Sept 27, 2012). 

Page9 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
47 

Table 2: U.S, Department of Homeland Security Numerical Limits on CW~1 Permits 

for the Commonwealth of the Northern Mariana Islands (CNMI), Fiscal Years 2011-

2017 

Source· U s Oe)Xlrtment of Homeland Security 1 GAQ.17.593T 

Note: On September 7, 2011. the U.S. Department of Homeland Security established the CNMI~Only 

transitional worker (CW) permit program, administered by the U.S. Citizenship and Immigration 

Services. Under the CW program, qualified nonimmigrant workers are able to obtain, through their 

employers, nonimmigrant CW-1 status that allows them to work in the CNMI. 

In April 2010, DOl recommended that Congress consider new legislation 

permitting guest workers who have lawfully resided in the CNMI for a 

minimum of 5 years-which DOl estimated at 15,816 individuals-to 

apply for long-term resident status under the Immigration and Nationality 

Act. 20 The DOl report stated that options under the Immigration and 

Nationality Act that Congress could consider include the following: (1) 

U.S. citizenship; (2) permanent resident status leading to U.S. citizenship 

(per the normal provisions of the Immigration and Nationality Act relating 

to naturalization), with the 5-year minimum residence spent anywhere in 

the United States or its territories; or (3) permanent resident status 

leading to U.S. citizenship, with the 5-year minimum residence spent in 

the CNMI. Additionally, DOl noted that under U.S. immigration law, 

special status is provided to individuals who are citizens of the freely 

associated states (Federated States of Micronesia, Republic of the 

Marshall Islands, and Republic of Palau). Following this model, DOl 

suggested that new legislation could grant foreign workers a 

nonimmigrant status, like that negotiated for citizens of the freely 

20The Consolidated Natural Resources Act required the Secretary of the Interior, in 

consultation with the Secretary of Homeland Security and the Governor of the 

Commonwealth, to report to Congress on any recommendations that the Secretary deems 

appropriate related to whether Congress should consider permitting lawfully admitted 

guest workers lawfully residing in the Commonwealth on May 8, 2008 (the date of 

enactment of the act),) to apply for long-term status under the immigration and nationality 

laws ofthe United States. See 48 U.S.C § 1806(h)(5). 

Page 10 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
48 

Tourism Trends in the 

CNMI 

associated states, and could allow them to live and work either in the 

United States and its territories or in the CNMI only. 21 

Since 1990, the CNMI's tourism market has experienced considerable 

fluctuation, as shown by the total annual number of visitor arrivals (see 

fig. 2). Total visitor arrivals to the CNMI dropped from a peak of 726,690 

in fiscal year 1997 to a low of 338, 106 in 2011, a 53 percent decline. 

Since 2011, however, visitor arrivals have increased by 48 percent, 

reaching 501,489 in fiscal year2016. 

Figure 2: Commonwealth of the Northern Mariana Islands Annual Visitor Arrivals, Fiscal Years 1990-2016 

Number (in thousands) 

... 

300 

200 

100 

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 

Year 

Source GAO ;;~n?iysls ol Mananas V1s1tors Authonty da~a I GA0-17 -S93T 

Data from the Marianas Visitors Authority show that the downward trend 

in Japanese arrivals from 2013 to 2016 was offset by the growth in 

arrivals from China and South Korea. While eligible Japanese and South 

21 Department of the Interior, Office of the Secretary, Report on the Alien Worker 

Population in the Commonwealth of the Northern Man'ana Islands (Washmgton, O.C Apnl 

2010), accessed March 10,2017, https:/lwww.doi.gov/sites/doi.gov/files/uploads/2010-

Report-on-the-Aiien-Worker-Popu!ation-in~CNM!.pdf. 

Page11 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
49 

Korean visitors enter the CNMI under the U.S. visa waiver program, 22 

Chinese visitors are not eligible and are permitted to be temporarily 

present in the CNMI under DHS's discretionary parole authority, 

according to DHS officials. DHS exercises parole authority to allow, on a 

case-by-case basis, eligible nationals of China to enter the CNMI 

temporarily as tourists when there is significant public benefit, according 

to DHS data. 23 From fiscal year 2011 to 2016 the percentage of travelers 

that arrived at the Saipan airport and were granted discretionary parole 

increased from about 20 percent to about 50 percent of the total travelers, 

according to our analysis of CBP data. 24 

22Etigib!e citizens or nationals of the 38 countries included in the general U.S. Visa Waiver 

Program may stay for up to 90 days for business or pleasure in the United States without 

obtaining a nonimmigrant visa. These countries are Andorra, Australia, Austria, Belgium, 

Brunei, Ch1le, Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, 

Hungary, Iceland, Ireland, Italy, Japan, Latvia, Liechtenstein, Lithuania, Luxembourg, 

Malta, Monaco, the Netherlands, New Zealand, Nof\Nay, Portugal, San Marino, Singapore, 

Slovakia, Slovenia, South Korea, Spain, Sweden, Switzerland, Taiwan, and the United 

Kmgdom 

23From fiscal year 2013 through 2016, the number of visitors from Japan dropped by 58 

percent from 148,423 to 62,120 VISitors. Meanwhile, the number of Chmese VISitors rose 

by 83 percent (112,570 to 206,538), and the number of Korean visitors rose by 48 percent 

(135,458to 200,875). 

24According to CBP data, 43,485 of 241,537 total travelers to the Saipan airport were 

granted parole in 2011, and 118,032 of 248,234 total travelers to the Saipan airport were 

granted parole m 2016 

Page 12 GA0.17.593T Commonwealth of the Northern Mariana Islands 
50 

Eliminating CW-1 

Permits Would 

Negatively Affect the 

Economy; Current 

and Planned Demand 

for Labor Exceeds 

Supply of U.S. 

Workers 

Preliminary Results of Our 

Economic Analysis and 

Recent Data Show That 

Ending the CW Program 

Could Have a Large 

Negative Effect on the 

Economy 

If all CW-1 workers, or 45 percent of the total workers in 2015, were 

removed from the CNMI's labor market, our preliminary economic 

analysis projects a 26 to 62 percent reduction in the CNMI's 2015 GDP, 

depending on the assumptions made. 25 To estimate the possible effect of 

a reduction in the number of workers with CW-1 permits in the CNMI to 

zero-through the scheduled end of the CW program in 2019-we 

employed an economic method that enabled us to simulate the effect of a 

reduction under a number of different assumptions. 26 

The CNMI's 2015 GDP-the most recent year for which GDP data were 

available-was $922 million. To understand the economic impact of 

ending the CW program, we analyzed how removing all CW-1 workers 

would have changed the CNMI's actual 2015 GDP. Our economic model 

and the results of 10,000 simulations show that had there been no CW-1 

workers in 2015, there is a 

25 percent likelihood that the CNMI's 2015 GDP would have ranged 

from $583 million to $680 million, which is 26 to 37 percent lower than 

the actual value; 

250ur analysis assumed that 45 percent of the workforce was made up of CW-1 workers, 

based on a combination of CNMI tax data and the CNM!'s 2014 Prevailing Wage Study 

data 

2

6we used a siml!ar model when estimating the effect of reductions in the number of 

foreign workers in the CNMI in 2008. See Commonwealth of the Northern Mariana 

Islands: Managing Potential Economic Impact of Applying U.S. Immigration Law Requires 

Coordinated Federal Decisions and Additional Data, GA0-08-791 (Washington, D.C.: 

Aug 4, 2008) 

Page 13 GA0~17 ..S93T Commonwealth of the Northern Mariana Islands 
51 

50 percent likelihood that it would have ranged from $462 million to 

$583 million, which is 37 to 50 percent lower than the actual value; 

and 

25 percent likelihood that it would have ranged from $353 million to 

$462 million, which is 50 to 62 percent lower than the actual value 

(see fig. 3). 27 

Figure 3: Estimated Decline of 2015 Gross Domestic Product of the Commonwealth 

of the Northern Mariana Islands (CNMI) in Response to Zero CW-1 Permits 

2015 U.S. dollars in millions 

600 800 1000 

Dollars (In millions) 

Sou•ce. GAO analysis of U S. Department of Commerce dati! I GA0-17~593 r 

Note: On September 7, 2011, the U.S. Department of Homeland Security established the CNMI-Only 

transitional worker (CW) permit program, administered by the U.S. Citizenship and Immigration 

Services. Under the CW program, qualified nonimmigrant workers are able to obtain, through their 

employers, nonimmigrant CW-1 status that allows them to work in the CNMI 

Across the full range of probable outcomes, the elimination of the CW 

program would result in a 26 to 62 percent decline in the CNMI's 2015 

GDP, a relatively large negative effect on the economy. 28 

27The fall in population caused by the departure of CW-1 workers from the CNM! would 

result in a smaller percentage decline in per capita GOP as compared with the decline in 

GDP 

281n a separate retrospective economic analysis, using past CNMI GOP and employment 

data, from 2002 to 2015, we estimated that a 10 percent decline in the number of workers 

during this period was associated with an 8.3 percent dec!lne in the size of the economy, 

on average. Applying this factor to an analysis of the CNMI's current economic situation 

suggests that a reduction in the number of foreign workers with CW-1 permits to zerowhich would be equivalent to reducing the number of total workers by 45 percent, al! else 

unchanged-would lead to a 37 percent contraction in the size of the CNM! economy as 

measured by GOP. This finding is Within the range presented in the simulation model 

above. 

Page 14 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
52 

Our Preliminary Analysis 

Shows That Recent and 

Planned Demand for 

Labor Exceeds Existing 

CW-1 Permits and the 

Supply of Local Workers 

Recent Labor Demand The CNMI economy currently is experiencing growing demand for 

workers, particularly among occupations in construction and hospitality. 

Since fiscal year 2013, demand for CW-1 permits has doubled, and in 

fiscal year 2016, demand exceeded the numerical limit (or cap) on 

approved CW-1 permits set by DHS. Approved CW-1 permits grew from 

6,325 in fiscal year 2013 to 13,299 in fiscal year 2016. In 2016, when the 

cap was set at 12,999, DHS received enough petitions by May 6, 2016, to 

approve 13,299 CW-1 permits, reaching the cap 5 months prior to the end 

of the fiscal year. 29 On October 14, 2016, 2 weeks into fiscal year 2017, 

DHS announced that it had received enough petitions to reach the CW-1 

cap and would not accept requests for new fiscal year 2017 permits 

during the remaining 11 months. 30 In interviews, some employers 

reported being surprised to learn that the cap had been reached when 

they sought renewals for existing CW-1 workers. 31 See table 3 for the 

numerical limit of CW-1 permits and number of permits approved by fiscal 

year. 

29The number of approved CW-1 permits exceeded the cap in 2016 because DHS made 

allowances for beneficiaries requesting consular processing whose visas would be 

refused or othervvise unused. 

30As of March 31, 2017, DHS had not finalized the number of approved CW-1 permits for 

fiscal year 2017. As of November 18, 2016, DHS had approved 8,486 permits toward the 

2017 cap According to DHS officials, the remainmg CW-1 permits are still pending, some 

requiring further information from employers. 

31 Fo!lowing the exhaustion of the fiscal year 2016 cap, OHS announced a short-term 

solution that it implemented without a regulatory change. According to the 902 Report, on 

August 29, 2016, DHS announced that certain CW-1 workers could apply for deferred 

action, a discretionary determinatron that would temporarily defer an action to remove an 

individual from the CNMI. As of December 13, 2016, 372 individuals had applied for 

deferred action, according to the 902 Report. A prior DHS regulatory change allows 

approved CW-1 nonimmigrants up to 240 days of continued employment authorization 

with the same employer past their visa expiration date as long as they have an extension 

application pending with DHS. See 8 C.F R § 274a.12(b)(20) 

Page 15 GAO~ 17 -593T Commonwealth of the Northern Mariana Islands 
53 

Table 3: OHS Numerical limits on CW-1 Permits for the Commonwealth of the 

Northern Mariana Islands, with Numbers of CW-1 Permits Approved, Fiscal Years 

2011-2017 

2017 12,998 -' 

Legend:-= Not applicable; CNM! =Commonwealth of the Northern Mariana Islands; CW-1 = CNMIOnly transitional worker; DHS =U.S. Department of Homeland Security 

US Department of Homeland Secuntydata 1 GA0-17-593T 

Note: On September 7, 2011, DHS established the CW permit program, administered by the U.S. 

Citizenship and Immigration Services. Under the CW program, qualified nonimmigrant workers are 

able to obtain, through their employers, nonimmigrant CW-1 status that allows them to work in the 

CNMI 

aln 2011, DHS did not approve any CW-1 permits. 

~In 2016, DHS approved more CW-1 permtts than allowed by the numerical limit to make up for the 

expected number of visa denials by the Department of State. 

cAs of March 31, 2017, DHS had not finalized the number of CW-1 permits approved for fiscal year 

2017 

Based on DHS data on approved CW-1 permits, by country of birth, 

occupation, and business, from fiscal years 2014 through 2016, the 

number of permits approved for Chinese nationals increased, the number 

of permits approved for construction workers increased, and a large 

number of CW-1 permits were approved for three new businesses. 

Chinese nationals. In 2016, DHS approved 4,844 CW-1 permits for 

Chinese workers, increasing from 1,230 in 2015 and 854 in 2014. This 

represents a change in the source countries of CW-1 workers, with the 

percentage of workers from the Philippines declining from 65 to 53 

percent during this period, while the share from China rose from 9 to 36 

percent (see table 4). 

Page 16 GA0-17-593T Commonwealth of the Northern Mariana Islands 
54 

Table 4: Number and Percentage of Approved CW-1 Permits by Country of Birth, 

Fiscal Years 2014-2016 

Country of 2014 2015 2016 

birth Number Percentage Number Percentage Number Percentage 

Philippines 5,960 65 7,193 74 7,086 53 

Ch1na 854 9 1,230 13 4,844 36 

South Korea 352 487 433 3 

Legend:-= Not applicable; CNMI =Commonwealth of the Northern Mariana Islands: CW-1 = CNMIOnly transitional worker. 

Source GAO analysis of US Department of Homeland Secunty data I GA0·17-593T 

Note: On September 7, 2011, the U.S. Department of Homeland Security established the CW permit 

program, administered by the U.S. Citizenship and Immigration Services Under the CW program, 

qualified nontmmigrant workers are able to obtain. through their employers, nonimmigrant CW-1 

status that allows them to work in the CNMI 

3

ln 2014, 1,513 CW-1 permits (or 16 percent) were approved for workers with petitions that did not 

specify country of birth 

Page 17 GA0-17-593T Commonwealth of the Northern Mariana Islands 
55 

Construction workers. In 2016, DHS approved 3,443 CW-1 permits for 

construction workers, increasing from 1,105 in 2015 and 194 in 2014 (see 

table 5). 32 

Table 5: Number of Approved CW-1 Permits for Construction and Nonconstruction 

Occupations, Fiscal Years 2014-2016 

Occupation 2014 2015 2016 

Construction a 194 1.105 3,443 

Nonconstruction 8,994 8,610 9,856 

Total 9,188 9,715 13,299 

Legend: CNMI =Commonwealth of the Northern Manana Islands; CW-1 = CNMI-Only transitional 

worker 

Source GAO analysis of U S Department of Homeland Secunty data I GA0-17-593T 

Note: On September 7, 2011, the U.S. Department of Homeland Security established the CW permit 

program, administered by the U.S. Citizenship and Immigration Services. Under the CW program, 

qualified nonimmigrant workers are able to obtain, through their employers, nonimmigrant CW-1 

status that allows them to work in the CNMI. 

3

Construction occupations are those specifically defined by CNMI employers on their Form 1¥ 12EJCW 

petitions as construction trade. We did not include occupations such as building services; handlers; 

helpers; laborers; machine operators; technicians; or other occupations in architecture, engineering, 

and surveying, which may also be considered construction occupations. 

New businesses. In 2016, DHS approved 3,426 CW-1 permits for three 

construction businesses, representing 26 percent of all approved 

permits. 33 Two of these businesses had not previously applied for CW-1 

permits. The third business was new in 2015 and was granted only 62 

CW-1 permits that year. 

A key factor in the additional demand for labor in 2016 was the 

construction of a new casino in Saipan. In August 2014, the CNMI 

government entered into a casino license agreement with a business to 

build a phased development project within 8 years with a minimum of 

2,004 guest rooms and areas for gaming, food, beverage, retail, and 

entertainment, among other things. The total investment cost of the 

project was estimated at $3.14 billion (2014 dollars). The agreement 

required that construction of the initial gaming facility be completed no 

32Because of the number of foreign workers with approved CW~1 permits working in the 

construction industry, the CNMI government's Strategic Economic Development Council 

estimated that reaching the CW-1 cap in fiscal year 2016 resulted in the loss of at least 

3,670 foreign workers in other industries, including some long~term guest workers wlth 

decades of employment. 

3

'3we did not obtain data on the occupations for these businesses 

Page 18 GA0~17-593T Commonwealth of the Northern Mariana Islands 
56 

later than 36 months from the date of the license, or by August 2017. 34 

See figure 4 for photos showing the initial gaming facility's development 

site in Saipan both before and during construction. 

Figure 4: Construction of New Casino in Saipan, Commonwealth of the Northern 

Mariana Islands 

Source GAO I GA0·17-593T 

The firms contracted to build the new casino under construction in Saipan 

have primarily employed Chinese workers. According to the CNMI 

government, while CNMI law and regulations require businesses 

operating in the CNMI to attempt to employ at least 30 percent U.S. 

workers, the casino operator and construction firms received an 

exemption from this requirement from the CNMI Department of Labor. 35 

The Consolidated Natural Resources Act of 2008 allows CNMI employers 

to petition for H-2 visas and bring temporary workers, such as 

construction workers, to the CNMI without counting against the numerical 

34The casino agreement includes the stated objective to have permanent U.S. residents 

be at !east 65 percent of all employees 

35Northern Mariana Islands Administrative Code§ 80-30.2-120(c)- Private sector 

workforce participation objective of 30 percent of those who are a U.S. citizen, CNMI 

permanent resident, U.S. permanent resident, or an immediate relative of a U.S. citizen, 

CNMI permanent resident, or U.S. permanent resident. 

Page 19 GA0-17-593T Commonwealth of the Northern Mariana Islands 
57 

Planned Labor Demand 

restriction for such visas. 36 However, China is not listed as an eligible 

country for H-2 visas. 37 

Amid the uncertainty of the future availability of foreign labor, the CNMI 

government has granted zoning permits to planned projects that will 

require thousands of additional workers. Twenty-two new development 

projects, including six new hotels or casinos in Saipan and two new hotels 

or casinos in Tinian, are planned for construction or renovation by 2019. 38 

Beyond the construction demand created by these projects, the CNMI's 

Bureau of Environmental and Coastal Quality estimates that at least 

8,124 employees will be needed to operate the new hotels and casinos. 39 

According to data provided by the bureau, most of this planned labor 

demand is for development on the island of Tin ian, where two businesses 

plan to build casino resorts, with an estimated labor demand of 6,359 

workers for operations-more than twice the island's population in 2016. 40 

According to the Department of Treasury, the existing casino and hotel on 

Tinian closed in 2015 after having been fined $75 million by the U.S. 

361n 1952, the Immigration and Nationality Act authorized the H-2 temporary worker 

program, which established visas for foreign workers to perform temporary services or 

labor in the United States (see 15 Pub. L No. 82-414, § 101(a)(15)(H)(ii) (June 27, 1952)) 

The Immigration Reform and Control Act of 1986 amended the Immigration and 

Nationality Act and divided the H-2 program into two programs· the H-2A program for 

agricultural workers and the H-28 program for nonagricultural workers (see Pub. L. No. 

99-603, § 301(a) (Nov. 6, 1986)). Both visas are for jobs to fill a temporary or seasonal 

need, generally defined as lasting not longer than 12 months for H-2Aworkers and 10 

months for H-28 workers (see 19 20 C.F.R. §§ 655.6(c), 655.103(d)) 

370n October 26, 2016, DHS announced the H-2B country list for 2017, which does not 

include China. Asian countries on the list include the Philippines, South Korea, and 

Thailand, among others. See 81 Fed. Reg. 74,468 (Oct. 26, 2016). Although an employer 

can still request an H-28 visa for a worker from a country not on that list if the employer 

shows that it is in the U.S. interest to grant the H~2B status (see 8 C.F.R. § 

214.2(h)(6)(i)(E)(2)), from fiscal year 2012 to 2016, no CNMI employers petitioned for any 

Chinese workers to obtain H-2B visas, according to DHS data 

380nly development projects that obtained CNMI zoning permits are included in this total. 

There may be other ongoing and planned development projects that do not require zoning 

permits because of their distance from the CNM! coastl!ne. 

39Th is total includes the estimated number of employees needed for operations and 

excludes the estimated number of employees needed for construction, according to the 

CNMI Bureau of Environmental and Coastal Quality. By 2021, the direct labor needed for 

operattons of these facilities is estimated at 11,613 workers, according to the 902 Report. 

400ne of the businesses shows prospective investors how the resort will look once it is 

completed in a video on its website (see http:/fw.Nw.altercitygroup com/en/col.jsp?id=110) 

Page 20 GA0-17 .593T Commonwealth of the Northern Mariana Islands 
58 

Available Domestic Labor 

Department of the Treasury for violations of the Bank Secrecy Act of 

197041 One of the two Tinian developments offers overseas immigration 

services, including assistance with obtaining employment or investmentbased immigration to the United States. 42 We observed a billboard 

advertisement in Tinian with Chinese writing indicating that by investing in 

a new development in Tinian, an investor's family members would all get 

American green cards. This resort development, whose plans estimate a 

labor force of 859, has undertaken site preparation, while the other larger 

resort project, whose plans estimate a labor force of 5,500, had not 

initiated construction as of December 2016. 

Currently, the CNMI government does not have a planning agency or 

process to ensure that planned projects are aligned with the CNMI's 

available labor force, according to CNMI officials. In January 2017, a bill 

was introduced in the CNMI Senate to establish an Office of Planning and 

Development within the Office of the Governor. 

Our preliminary analysis shows that the current number of unemployed 

domestic workers in the CNMI is insufficient to replace the existing CW-1 

workers or to fill all the nonconstruction jobs that planned development 

projects are expected to create once their business operations 

commence. 

In 2016, 9,856 of the 13,299 CW-1 permits approved by DHS were 

allocated to workers engaged in nonconstruction-related 

occupations43 When the CW program ends in 2019, available data 

41According to a news release by the U.S. Department of the Treasury's Financial Crimes 

Enforcement Network (FinCEN) on June 3, 2015, FinCEN fined the Tinian Dynasty Hotel 

and Casino $75 million for failing to develop and implement an ant1-money laundering 

program. The casino accommodated patrons wanting to conduct financial transactions 

with large amounts of cash without the casino reporting the transactions as required by 

U.S. law, according to FinCEN. 

42According to USCIS, foreign nationals may be eligible for employment-based {EB-1) 

immigration if they have an extraordinary ability, such as an outstanding professor or 

researcher, or are a multinational executive or manager, or for investment-based (EB-5) 

immtgration if they make the necessary investment m a commercial enterprise in the 

United States and plan to create or preserve 10 permanent full-time jobs for qualified U.S 

workers 

43Nonconstruction-re!ated occupations include a!l occupations other than construction 

trade occupations, such as building services, handlers; helpers; laborers; machine 

operators; technicians; or other occupations in architecture, engineenng, and surveying 

that some may consider construction related 

Page 21 GAO~ 17 .593T Commonwealth of the Northern Mariana Islands 
59 

show that the unemployed domestic workforce, 44 estimated at2,386 

in 2016, 45 will be well below the number of workers needed to replace 

currently employed CW-1 workers in nonconstruction-related 

occupations. 

In addition, our preliminary analysis indicates that the unemployed 

workforce would fall far short of the demand for additional workers in 

nonconstruction related occupations needed to support the ongoing 

operations of planned development projects-currently estimated at 

8,124 workers by 2019. 

Narrowing this gap would require CNMI employers to recruit domestic 

residents present in the CNMI but not currently in the labor force. Key 

sources of additional labor force entrants to replace current CW-1 

workers or fill new positions are as follows: 

High school or college graduates. In 2016, CNMI high schools 

graduated 678 students and the Northern Marianas College 

graduated 204 students. In addition, a smaller number of students 

leave high school or the college without a diploma and join the labor 

force. 

Domestic residents not in the CNMIIabor force. According to the 

CNMI's 2016 Health Survey, there are 9,272 U.S. citizens and 

permanent residents over the age of 16 who are not currently in the 

labor force. In addition to students, this group consists largely of 

homemakers, retired workers, seasonal workers in an off-season, the 

institutionalized, and those doing unpaid family work, according to the 

census. Overall, the survey found that labor force participation was 

lower for the population born in the CNMI (57 percent) compared with 

the overall population (69 percent). 

Other U.S.-eligible workers. Workers could be recruited from U.S. 

states, U.S. territories, and the freely associated states (Federated 

States of Micronesia, Republic of the Marshall Islands, and Republic 

44The domestic workforce includes U.S citizens, permanent residents, and individuals 

from the freely associated states (Federated States of Micronesia, Republic of the 

Marshall Islands, and Republic of Palau) 

45While the overall rate of CNMI unemployment was 14 percent, it was 20 percent for the 

population born in the CNML The survey states that "unemployed" consists largely of 

CNM! residents in the labor force who are not working but are looking for work and who 

are U.S. citizens and permanent residents over the age of 16. The unemployment rate 

was obtained by dividing those not working but looking for work by the number in the labor 

force 

Page 22 GAQ.17 .593T Commonwealth of the Northern Mariana Islands 
60 

While Some Employers 

Report Successes, Others 

Report Facing Multiple 

Challenges in Efforts to 

Recruit and Retain U.S. 

Workers 

of Palau). For example, in 2003, 1,909 freely associated state workers 

were employed in the CNMI as compared with 677 of these workers in 

2015, according to CNMI tax data. Moreover, many citizens from the 

freely associated states migrate to the United States each year, 

including to nearby Guam. 46 Guam and Hawaii, the closest U.S. areas 

to the CNMI, both have higher local minimum wages than the CNMI, 

currently at $8.25 and $9.25 per hour, respectively, according to DOL. 

Employers in the CNMI are required to attempt to recruit and hire U.S. 

workers. The CNMI government has a goal that all employers hire at least 

30 percent U.S. workers, and employers are generally required to post all 

job openings to the CNMI Department of Labor's website. 47 However, the 

CNMI government can and has granted exemptions to this requirement. 

From May 8, 2015, to May 27, 2016, seven businesses were granted 

exemptions, according to data provided by the CNMI Department of 

Labor. In addition, all employers that apply for CW-1 permits must attest 

that no qualified U.S. worker is available for the job opening. However, 

during our ongoing work, some of the CNMI employers with whom we 

met reported that they face the following challenges in recruiting and 

retaining U.S. citizens, among others: unsatisfactory results of job 

postings, high costs of recruiting, and difficulty in retaining U.S. workers. 

46GAO, Compacts of Free Association: Improvements Needed to Assess and Address 

Growing Migration, GA0-12-64 (Washington, D.C .. Nov. 14, 2011) 

47U.S workers include U.S. citizens, U.S. permanent residents, and CNM! permanent 

residents and the immediate relatives of citizens, U.S. permanent residents, and CNMI 

permanent residents 

Page 23 GAQ.17 .593T Commonwealth of the Northern Mariana Islands 
61 

Federal and CNMI 

Efforts to Address 

Labor Force 

Challenges Include 

Job Training 

Programs and a 

Consultative Process 

Fees Collected by CW 

Program Support Job 

Training 

The federal and CNMI governments support programs seeking to address 

the CNMI's labor force challenges. These programs include job training 

funded by employers' CW-1 vocational education fees that DHS transfers 

to the CNMI government and employment and training assistance funded 

by DOL 48 Our preliminary analysis shows that in recent years, on 

average, DHS transferred about $1.8 million per year in CW-1 vocational 

education fees and DOL provided about $1.3 million per year to the CNMI 

for employment and training programs. 

DHS collects the $150 vocational education fee assessed for each foreign 

worker on a CW-1 petition and typically transfers the fees to the CNMI 

government each month. Results of our ongoing work indicate that to 

support vocational education curricula and program development in fiscal 

years 2012 through 2016, DHS transferred to the CNMI Treasury about 

$9.1 million in CW-1 fees. 49 In fiscal years 2012 through 2016, the CNMI 

government allocated about $5.8 million of the $9.1 million in CW-1 

vocational education fees to three educational institutions (see fig. 5). At 

present, the CW-1 fees support job training programs at Northern 

Marianas College and Northern Marianas Trades Institute and in recent 

years also funded job training provided by CNMI's Public School System. 

All three institutions reported using a majority of the CW-1 fees to pay the 

salaries and benefits of faculty and staff members involved in job training 

programs. 

48Two other workforce development efforts are CNMI scholarship programs funded by the 

CNM! government and local license fees for gaming machines and technical assistance 

funded by DOl. Our May 2017 report wi!! provide additional details on these activities 

49DHS collects these supplemental fees and transfers the funds to the CNMI government 

pursuant to the Consolidated Natural Resources Act of 2008, Pub. L. No. 11 0~229 § 

702(a) (May 8, 2008), codified at 48 U.S. C.§ 1806(a)(6). 

Page 24 GA0.17~593T Commonwealth of the Northern Mariana Islands 
62 

Figure 5: Annual Allocations of CNMI-Only Transitional Worker (CW-1) Vocational 

Education Fees to Commonwealth ofthe Northern Mariana Islands (CNMI) 

Educational Entities, Fiscal Years 2012-2016 

Dollars(mm!!hons) 

1.6 $1,506,140 

1.4 

1.2 

1.0 

0.8 

0.6 

0.4 

0.2 

2012 2013 2014 2015 2016 

Fiscal year 

Public School System 

Northern Marianas Trad€s Institute 

Northern Mananas College 

Source GAO analys•s of datil provr<l€<:! by th'! C<:lmrw.mwealth of the North<lm MarUln~ Islands Department of Finance 1 OA0·17·593T 

Note: The U.S. Department of Homeland Security collects a vocational education fee from 

prospective employers of those applying for special CW-1 permits and transfers these fees to the 

CNMI government for the CNMI educational entities' ongoing vocational programs 

Northern Marianas College. In fiscal years 2013 through 2016, the 

college, the CNMI's only U.S.-accredited institution of higher learning, 

received $2.1 million in CW-1 funding and prepared annual reports 

describing how the funds were used to train the CNMI workforce for 

occupations in which foreign workers currently outnumber U.S. 

workers. According to the annual report for fiscal year 2016, the 

college used its CW-1 funding to provide vocational courses and 

services in business, nursing, community development, and 

information technology. The college reported using its CW-1 funding 

to support 457 students in the fall of 2015, 434 such students in the 

spring of 2016, and 228 students in the summer of 2016. 

Northern Marianas Trades Institute. In fiscal years 2014 through 

2016, the institute-a private, nonprofit facility for vocational education 

Page 25 GA0-17 -593T Commonwealth of the Northern Mariana Islands 
63 

established in 2008-received $1.7 million in CW-1 funding. The 

institute specializes in training youths and adults in construction, 

hospitality, and culinary trades. The institute's senior officers told us 

that in fiscal year 2016, 300 students were enrolled in the institute's 

fall, spring, and summer sessions, and as of November 2016, 132 of 

these students had found employment after completing their training. 

CNMI's Public School System. In fiscal years 2012 through 2015, 

the Public School System-which consists of 20 public schools, 

including 5 high schools that graduated 662 students in the 2014-

2015 school year-received $2 million in CW-1 funds for its 

cooperative education program designed to prepare high school 

students for the CNMI's job market. By the end of the 2014-2015 

school year, 452 students were enrolled in the cooperative education 

program, according to the federal programs officer for the Public 

School System. 

As part of our ongoing work, we facilitated group discussions with current 

and former students of the CW-1-funded programs at each of the three 

institutions. Several participants told us that the training had helped them 

find jobs. Participants also identified specific benefits of the training they 

received, such as increased familiarity with occupations they intended to 

enter, learning communication skills tailored for specific work 

environments, and maintaining and improving skills in a chosen career 

path. However, the employers we interviewed in the CNMI told us that the 

benefits of the job training programs supported by the CW-1 vocational 

education fees were limited to Saipan and that programs run by Northern 

Marianas College and Northern Marianas Trades Institute were 

unavailable on Tinian and Rota. 

Page 26 GA0.17 .593T Commonwealth of the Northern Mariana Islands 
64 

With DOL Funding, the 

CNMI Government 

Provides Job Search 

Assistance, Career 

Counseling, and Training 

Preliminary results of our ongoing work show that from July 2012 through 

June 2016, DOL provided about $5.3 million in grants under the 

Workforce Investment Act of 1998 f:NIA) and the Workforce Innovation 

and Opportunity Act of 2014 (WIOA) to the CNMI Department of Labor's 

Workforce Investment Agency for job search assistance, career 

counseling, and training. 50 That agency carried out WIA programs in the 

CNMI and now administers programs under WIOA. DOL's Employment 

and Training Administration conducts federal oversight of these 

programs. Providers of DOL-funded worker training include Northern 

Marianas College, Northern Marianas Trades Institute, CNMI government 

agencies, and private businesses. Examples of training provided by these 

entities include courses toward certification as a phlebotomy technician, a 

nursing assistant, and a medical billing and coding specialist. 

The CNMI developed a state plan outlining a 4-year workforce 

development strategy under WIOA and submitted its first plan by April 1, 

2016. 51 The plan and the WIOA performance measures took effect in July 

2016. According to its state plan, the CNMI Department of Labor has 

formed a task force to assess approaches for using workforce programs 

to prepare CNMI residents for jobs that will be available because of 

ongoing reductions in the number of foreign workers and the eventual 

expiration of the CW program. 

50WIOA, Pub. L No. 113-128 (July 22, 2014), repealed WIA, Pub. L No. 105-220 (Aug. 7, 

1998). Among other changes, WIOA established new performance measures; the new 

measures took effect in July 2016. See GAO, Workforce Innovation and Opportunity Act: 

Performance Reporting and Related Challenges, GA0-15-764R (Washington, D.C ·Sept 

23, 2015) and Workforce Innovation and Opportunity Act: Information on Planned 

Changes to State Performance Reporting and Related Chalfenges, GA0-16-287 

(Washington, D.C .. Mar. 7, 2016). 

51 Under W!OA, states are required to submit state plans outlining their overall strategy for 

workforce development and how that strategy will meet identified ski !I needs for job 

seekers and employers. All states submitted their first plans under WIOA to DOL and the 

Department of Education by April1, 2016. According to DOL and Department of 

Education officials, they approved all of the state plans with conditions that each state 

needed to address to meet requirements. In July 2016, these plans and the WIOA 

performance measures took effect. WIOA requires that states submit state plans to DOL 

every 4 years and revisit these plans every 2 years, submitting their planned modifications 

to the relevant federal agencies for approval. For additional information, see GAO, 

Workforce Innovation and Opportunity Act: Selected States' Planning Approaches for 

Serving Job Seekers and Employers, GA0-17-31 (Washington, D.C .. Nov. 15, 2016) 

Page 27 GA0.17 .593T Commonwealth of the Northern Mariana Islands 
65 

Recently Completed 902 

Consultative Process 

Resulted in 

Recommendations to 

Congress and DHS 

In December 2016, after 8 months of official 902 Consultations, informal 

discussions, and site visits to locations in the CNMI, the Special 

Representatives of the United States and the CNMI transmitted a report 

to the President that included six recommendations agreed to by the 

Special Representatives on immigration and labor matters: 52 

1. Extending the CW program beyond 2019 and other amendments, 

such as raising the CW-1 cap and restoring the executive branch's 

authority to extend the CW program. 

2. Providing permanent status for long-term guest workers. 

3. Soliciting input on suggested regulatory changes to the CW program. 

4. Considering immigration policies to address regional labor shortages. 

5. Extending eligibility to the CNMI for additional federal workforce 

development programs. 

6. Establishing a cooperative working relationship between DHS and the 

CNMI. 

Table 6 lists these six recommendations and summarizes proposed next 

steps toward implementing them that could be taken, according to the 

report. 

Table 6: Recommendations and Proposed Next Steps of the Special Representatives as Outlined in the Joint 902 Report by 

the Commonwealth of the Northern Mariana Islands (CNMI) and the U.S. Government 

Recommendation 

(1) Extend the CW program beyond 2019, raise 

the CW-1 cap, provide DHS authority to extend the 

CW program further."' 

(2) Prov1de permanent status for long~term guest 

workers. 

Proposed next steps 

Amend the statutory authority for the CW program to prov1de DHS with the 

authority to extend the CW program, to raise the CW-1 cap to 18,000, to extend 

E-2 CNMI Investor Status (or E-2C) investor visa category for the CNMI and 

Guam, to exempt the CNMI from national caps for H~visas, to analyze the 

contmued ban on asylum claims, and to allow DHS and CNMI stakeholders to 

comment before a decision is made on this issue 

Amend relevant U.S. 1mm1gration laws as part of a comprehensive 1mm1gration 

reform bill or as part of a stand~alone bill dealing with CNMI-specific immigration 

issues to make long-term guest workers and their families with significant equities 

in the CNMI eligible for lawful permanent resident status with a path to 

citizenship 

520ur May 2017 report will provide additional details on the 902 Report 

Page 28 GA0-17-593T Commonwealth of the Northern Mariana Islands 
66 

Recommendation Proposed next steps 

(3) Sohc!t suggested regulatory changes to the CW Pubhsh a Request for Information to solicit ideas on how various issues that can 

program potentially be addressed by regulatory changes to the CW system, includmg 

prioritizing renewals of CW-1 permits over new CW-1 applications, establishing a 

numerical allocation for long-term CW-1 workers, and allocating set amounts of 

available permits by industry 

(4) Consider immigration policies to address Consider extendmg and expandmg existmg 1mmtgrat1on polic1es or developing 

regional labor shortages new policies to address systemic regional workforce challenges currently being 

experienced in both Guam and the CNM!. Those to be considered for extension, 

expansion, or further development are three provisions in the Consolidated 

Natural Resources Act of2008 (Pub. L. No. 110-229: (1) a provision that 

provides an exception to the numerical limitation in section 214(g) of the 

Immigration and Naturalization Act, or the H-visa category; (2) a provision that 

allows the Governors of Guam and the CNMI to request that OHS study the 

feasibility of establishing additional Guam-only or CNMI-only nonimmigrant visa 

categories that are not provided for under current immigration law; and (3) the 

Guam/CNMI Visa Waiver Program 

(5) Extend eligibility to the CNMI for an additional Extend Wagner-Peyser Act assistance to the CNMI, and make the CNMI eligible 

federal workforce development program, Trade for Trade Adjustment Assistance and the Earned Income Tax Creditc 

Adjustment Assistance, and the Earned Income 

Tax Credit 

(6) Establish a cooperative work1ng relationship DHS and the CNMI work cooperatively to exchange information and continue 

between DHS and the CNML existing efforts to educate employers about applying for alternative nonimmigrant 

visas in place of CW-1 visas when appropriate. 

Legend. 902 Report = report generated through a consultative process specified 1n section 902 of the Covenant to Establish a Commonwealth of the 

Northern Mariana Islands in Political Union w1th the Un1ted States of America; CNMI =Commonwealth of the Northern Mariana Islands; CW-1 = CNMIOnly transitional worker classification; DHS =Department of Homeland Security 

Source GAO analysis of 902 Report re<:ommen<labons I GA0-17 ·593T 

aon September 7, 2011, DHS established the CW permit program, administered by the U.S. 

Citizenship and Immigration Services. Under the CW program, qualified nonimmigrant workers are 

able to obtain, through their employers, nonimmigrant CW-1 status that allows them to work in the 

CNMI 

bThe Wagner -Peyser Act of 1933 established a nationwide system of public employment offices 

collectively known as the Employment Service. 

"According to the U.S. Department ofthe Interior, the CNMI tax code mirrors the U.S. tax code 

Page29 GA0-17 -593T Commonwealth of the North em Mariana Islands 
67 

GAO Contacts and 

Staff 

Acknowledgments 

(102027) 

Chairman Murkowski, Ranking Member Cantwell, and Members of the 

Committee, this concludes my prepared statement. I would be pleased to 

respond to any questions you may have at this time. 

For further information regarding this statement, please contact David 

Gootnick, Director, International Affairs and Trade at (202) 512-3149 or 

gootnickd@gao.gov. Contact points for our Offices of Congressional 

Relations and Public Affairs may be found on the last page of this 

statement Individuals making key contributions to this testimony included 

Emil Friberg (Assistant Director), Julia Ann Roberts (Analyst-in-Charge), 

Sada Aksartova, David Blanding, Benjamin Bolitzer, David Dayton, and 

Moon Parks. Technical support was provided by Neil Doherty, Mary 

Moutsos, and Alexander Welsh. 

Page 30 GA0.17 .593T Commonwealth of the North em Mariana Islands 
68 

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(') Please Print on Recycled Paper, 
70 

The CHAIRMAN. Thank you, Dr. Gootnick. 

Mr. Arenovski. 

STATEMENT OF JIM ARENOVSKI, SOLE PROPRIETOR, 

ISLAND TRAINING SOLUTIONS 

Mr. ARENOVSKI. Chairwoman Murkowski, thank you for the opportunity to testify in support of H.R. 339, the Northern Mariana 

Islands Economic Expansion Act. 

My name is Jim Arenovski. I’m a longtime resident and business 

owner on Saipan in the Marianas. Over the years, I have hired and 

trained many local workers for my own businesses. But more recently I have been involved in training and certifying local workers, 

so they can find jobs in businesses throughout our economy. It is 

from my experiences both as an employer and a trainer that I 

speak this morning. 

I operate Island Training Solutions, the Regional Licensee for the 

American Hotel and Lodging Educational Institute. We offer a Hospitality curriculum that provides a globally-recognized certification. 

Through this program, 385 Marianas residents have been certified 

over the last three years and there are 73 currently enrolled. 

The pass rate for this program is 95 percent, and it is not surprising that most of these graduates are hired quickly. My business 

as a service provider for a company, Latte Training Academy, a 

501(c)(3) nonprofit, which also provides certification in Allied 

Health, IT, Bookkeeping and has a dozen specialty skills altogether 

in its portfolio. 

In addition, the Public School System’s High School Cooperative 

Education Program, the Northern Marianas College’s Career Development Institute and the Adult Education Program at the college, 

along with the Northern Marianas Trades Institute all offer workforce skills training to fill positions in various industries. 

Employers are hiring these local, U.S. workers. But it is not always easy for the worker or the employer. 

I remember one woman who took our class, who thought she had 

no skills and no abilities. She felt she would never get hired. She 

had run her own household for the last 15 years but didn’t understand that her skills, organization of the children, logistics, budgeting applied in the workplace too. But one day after being hired 

we met up and she gave me a big smile. And she said, ‘‘You were 

right. I can do this and I am good at it.’’ 

There are other men and women out there who now, who are 

struggling with similar attitudes about themselves and abilities or 

physical challenges. We have one girl currently in our program who 

is pregnant and she was eventually told that she had to go home 

and could not come to class. But she contacted her instructor and 

said she was not going to quit, and she asked how she could continue. She arranged for assignments and tests to be given at her 

home, and we will test her for certification after she delivers. She 

completely understood that she needed to work to support her child 

and that this class was her best chance of getting the job she wanted, a front desk clerk, and she was not going to let it slip away. 

I cannot wait to see her success. 

I would like to share another quick story with you that might 

help depict a clearer picture on the limited pool of applicants. A 
71 

senior hotel manager recently encountered a person who was asking for money outside one of our local stores. The manager declined, but offered the person the opportunity to apply at the hotel. 

He gave his name and direct contact number but never expected 

to see this person again. The very next day, the individual came 

to fill out an application and was eventually hired. As you might 

imagine this person has family and educational challenges, but 

they ride their bike, rain or shine, to work each day and is still 

gainfully employed. This story is just another one that shows you 

how businesses are changing their thinking when it comes to hiring and developing local talent. 

I could tell you more stories, but my time is limited. The point 

I want to make is that with a limited pool of unemployed people, 

each person we train and help get a job is going to be a story, okay. 

We have to encourage, we have to build the confidence and we 

have to help people who have—need the positions. And this all 

takes time and it takes effort. But I know we’re making good 

progress. 

And H.R. 339, by putting more training funds into the system, 

will help that progress and maybe speed it along. By not passing 

H.R. 339 the U.S. Congress will have missed an opportunity to help 

the NMI help itself. 

Our Congressman, our Governor have opened opportunities for 

both businesses and U.S. local workers in the NMI. They both 

know the importance of getting labor in the NMI right for our economy and for our local workforce. Please give them the tools to continue this effort and please work to pass H.R. 339. 

Thank you. 

[The prepared statement of Mr. Arenovski follows:] 
72 

Statement 

Mr. Jim Arenovski 

Senate Energy and Natural Resources Committee 

H.R. 339, Northern Mariana Islands Economic Expansion Act 

April 27, 2017 

Chairwoman Murkowski, 

Thank you for the opportunity to testify in support of H.R. 339, the Northern Mariana 

Islands Economic Expansion Act. 

My name is Jim Arenovski, a long time resident and business owner on the island of 

Saipan in the Marianas. 

Over the years, I have hired and trained many local workers for my own businesses. 

But more recently I have also been training and certifying local workers, so they can find 

jobs in businesses throughout our economy. It is from my experiences both as an employer and 

a trainer that I speak this morning. 

I operate Island Training Solutions, the Regional Licensee for the American Hotel and 

Lodging Educational Institute. We offer a Hospitality curriculum that provides a globallyrecognized hospitality certification. 

385 Marianas residents have been certified over the last 3 years and there are 73 

currently enrolled. The pass rate is 95% and, not surprisingly, most of our graduates get hired 

quickly. 

My business works under the umbrella of the Latte Training Academy, a 501c3 nonprofit, which also provides certification training in Allied Health, IT, Bookkeeping- a dozen 

specialty skills altogether. 

In addition, the Public School System's High School Cooperative Education Program, 

Northern Marianas College's Career Development Institute & Adult Basic Education, and the 

Northern Marianas Trade Institute all offer workforce skills training to help fill positions in 

various industries. 

Employers are hiring these local, US workers. But it is not always so easy. 

I remember one of the women who took our class, who thought she had no skills or 

abilities and felt she would never get hired. She had run her own household for the last 15 

years and did not understand that her skills- organization, logistics and budgeting- applied 

in the workplace, too. But one day she came over to me with a huge smile on her face and said 

"you were right ... I can do this and I am good at it." 
73 

There are many other men and women out there now who are struggling with similar 

attitudes about themselves or with physical challenges. We have a girl in one of our programs, 

who is pregnant and was eventually told to stay at home by her doctor. But she contacted her 

instructor and said she was not quitting. She asked how she could continue. We arranged for 

assignments and tests to be given at her home and we will test her for certification, after she 

delivers. She understood that she would need to work to support her child and that this class 

was her best chance of getting the job she wanted (a front desk clerk). She was not going to let 

it slip away. I cannot wait to see her success. 

I would like to share another quick story that might help depict a clearer picture on the 

limited pool of applicants. A senior hotel manager recently encountered a person who was 

asking for money outside a local store. The manager declined but offered the person the 

opportunity to apply and work at the hotel. He gave his name and direct contact number, but 

never really expected to see this person come to the hotel. The very next day, this individual 

came in to fill out an application and was eventually hired. As you might imagine this person 

has family and educational challenges, but rides their bike, rain or shine, to the hotel every day 

and is still gainfully employed. 

This story is just one of many that show just how businesses are changing their thinking 

when it comes to the hiring and development of local talent. 

I could tell you lots more stories, but my time is limited. 

The point I want to make is that with a limited pool of unemployed people, each person 

we train and help to get a job is going to be a story. We have to encourage. We have to build 

confidence and help people up again when the fall. And it all takes time. 

But I think we are making good progress. And H.R. 339, by putting more training funds 

into the system will help that progress. Maybe speed it along. 

By not passing HR339 the US Congress will have missed an opportunity to help the 

Marianas help itself. Our congressman and Governor have opened opportunities for both 

businesses and local US workers. They both know the importance of getting the labor situation 

in the NMI ... RIGHT! Please give them the tools to continue this effort and work to pass HR 339. 

Thank you. 
74 

The CHAIRMAN. Thank you, Mr. Arenovski. 

Thank you all for your comments, your testimony, here this 

morning. 

Now we will have an opportunity for questions for each of you 

but again, thank you. 

What is the unemployment rate in CNMI right now? Governor 

or Congressman? 

Mr. TORRES. I think it’s in the single digits. I think it’s like, four 

percent. The last application that we got was about, do we have 

about 600 that’s on the labor pool right now. 

The CHAIRMAN. As I listened to the testimony this morning I 

could not help but think of the similarities that we face in Alaska. 

Remote, high cost. It is difficult. It is expensive to recruit and it 

is difficult to keep folks when you are going out to a remote location, say for instance, to work in the seafood processing industry. 

So I understand and can relate to a great deal of what is said here 

today. 

I was also impressed by the statistic that you gave, Dr. Gootnick, 

about the number of young people coming out of the school system 

that would be your ready pool for employees. And your numbers 

are just so small you cannot grow your own. So again, that is an 

area where we can clearly relate. 

Help me with understanding a little bit more what exactly has 

been put in place in terms of training U.S. eligible workers, the efforts that are going on there. What it is that we could be doing 

more to recruit and is it a higher minimum wage? I think you mentioned that by next year they will see a minimum wage that is the 

equivalent to what we have here on the mainland. What more can 

and should we be doing? Governor? 

Mr. TORRES. If I may and thank you, Chairman Murkowski. 

With me, I have Senate President Arnold Palacios, and our 

Speaker of the House, Rafael Demapan. The reason why I mention 

them is they flew all the way here to join me. We are working on 

increasing minimum wage up to federal, not wait until next year. 

We also have chambers, general commerce and with the gallery. 

We also understand the need of increasing minimum wage and the 

scarcity of our workforce. 

I just want to note that in the food stamp program we have reduced 30 percent of recipients and putting them in our workforce. 

We have a couple business that flew all the way here to the U.S. 

and spend millions of dollars only to employ 147 which half of them 

left after Saipan, the Soudelor disaster typhoon in 2015. 

We’ve also worked with private companies that have gone 

through Freely Associated Micronesia to employ their citizens but 

yet, it’s too far coming down to the United States air flight to 

Saipan. And so, the challenge is really difficult trying to get U.S. 

workers down to the CNMI. 

So what we’re doing with the CW before, is we’re giving it to institution, our college and our CNMI Institute. What we’re doing 

this year, for next year, is actually giving it, a scholarship to individuals and giving them the opportunity to decide what institute 

they want to go. So instead of giving CW dollars to the institution, 

we’re giving it to our students and encouraging our students for 

scholarship purposes. 
75 

The CHAIRMAN. Good. 

Let me ask you, Dr. Gootnick and Governor, as well. I have 

heard some reports that some of the CW permits that have been 

issued are not actually used, whether it is because the job was completed before the worker was available or because there has been 

a third-party entity that applies for the permit without actually 

having a job to offer and then they turn around and sell that permit to businesses that need the labor. Do we know how many permits have been issued and have not been used? Is that something 

that you looked at in your report? 

Dr. GOOTNICK. It’s an interesting question. 

So the USCIS issues the permits. Of course, CBP receives visitors or workers as they come through into the CNMI. Those actually are two different data sets and they’re not necessarily easily 

reconciled. 

The CHAIRMAN. Is that something that they have tried to reconcile or to look at? 

Dr. GOOTNICK. I think that would require some analysis of the 

data that’s available and might require collecting some data that’s 

only available manually through paper records. 

The CHAIRMAN. Do we think that this is a significant enough 

number that we should look at this, Governor or Congressman? 

Mr. TORRES. Let me say this. It’s really important to note that 

a lot of applications, and I don’t know the numbers, would apply. 

By the time they get an approval letter it’s about five to six months 

later. So, by the time the company actually gets the approval letter 

and starts submitting for the travel, you actually miss the expiration date. 

The CHAIRMAN. Yes. 

Mr. TORRES. But it’s counted toward the CW quota, so it really 

hurts that we don’t have the actual numbers. 

The CHAIRMAN. Yes. 

Mr. TORRES. But we do have quite a few applicants that are approved but by the time we receive it, already, the time for it has 

expired. 

The CHAIRMAN. Congressman, did you want to weigh in on that? 

Mr. SABLAN. Yes, if I may. 

Actually, in March 16 of this year, the Governor and I wrote to 

Secretary Kelly about manpower companies or companies that 

apply for permits without actually filling the jobs. And then these 

companies sometimes effectively sell these permits to businesses 

that need workers. 

Our letter asks the Department of Homeland Security to screen 

out applications from companies. The Secretary has not responded. 

But we are continually talking with USCIS about the possibility 

that CW permits granted this fiscal year are not being used and 

USCIS tells us that the permits go to legitimate businesses and if 

there’s a basis to find these companies are not what they say they 

are, then that would lead to revocation of the permits. So, I think 

we have to provide the evidence. And we have shared with USCIS 

the names of six or seven companies that have actually applied and 

received permits but we have no idea of knowing if they have entered into the Northern Marianas. 
76 

If I may, somebody brought up the issue of workers not getting 

paid. Working with the Committee and Education of the Workforce, 

I have received information that one of the companies, the largest 

contractor for the development, recently paid $2.4 million that was 

owed to the workers, to their workers, so those workers have been 

made whole in terms of their salaries. 

And yeah, but it’s like Dr. Gootnick had mentioned earlier, it’s 

rather difficult because while CBP showed authorization for the 

permit many of these workers, the State Department issues the 

visas and then, I mean, USCIS issued the CW permits. State Department issues the visas and CBP then has to record the entry 

into the Northern Marianas. So it’s a difficult task for USCIS. 

The CHAIRMAN. Let me turn to my colleague, Senator Cantwell. 

Senator CANTWELL. Thank you, Madam Chair. 

On these issues, Governor Torres and Dr. Gootnick; in 2015, the 

Treasury Department fined a casino in the CNMI for money laundering. The Tinian Dynasty had to pay $75 million, the largest fine 

ever imposed by Treasury Department on a casino. So I am just 

trying to make sure that we’re continuing to shine the bright light 

on these issues. 

One construction project with deplorable conditions has been the 

Best Sunshine Casino which is under investigation for money laundering according to the press. Reports have showed that the revenues for the temporary location operating out of a strip mall, as of 

September 2016, was nearly eight times that of the Macau casinos. 

So I have to believe that that’s a pretty staggering number. There 

are also recent lawsuits by former employees alleging money laundering. Are either of you aware of this investigation? 

Mr. TORRES. Personally, I’m not aware. I’m just reading the 

media. But our office and the gaming commission is open. We will 

open an investigation and request them to come in. 

And I think, learning from the Tinian Dynasty, we are more able 

to fix those issues within the organization which is the commission. 

There’s a lot more strict regulations that they have. They’re following the Las Vegas regulations. 

And so, I know that the director and the board is open to any 

information or assist any federal assistance that they want. 

Senator CANTWELL. Well, it strikes me as if you were—I don’t 

know, I mean, if you are reading in the press and yet, you are saying the commission could fix it. It seems to me, the FBI is investigating something that maybe isn’t getting triggered at an earlier 

stage. I don’t know what those changes are or would be, but—— 

Mr. TORRES. What I meant by fix is the regulations. They’re fixing their regulations to be strict and making sure that those laundries do not—— 

Senator CANTWELL. And do you have any idea what those would 

be? 

Mr. TORRES. No, Ma’am. 

Senator CANTWELL. Okay. Well, I would look forward to hearing 

what you think that those kinds of mechanisms would be. 

Mr. TORRES. I could definitely follow up and give you those reports. 

Senator CANTWELL. Yes, thank you. 

Dr. Gootnick, do you? 
77 

Dr. GOOTNICK. Well again, I also can only report what’s in the 

press. But what I can tell you is that the Tinian Dynasty, which 

is on the Island, was on the Island of Tinian. Tinian is one of the 

more peripheral islands in the Mariana Islands. Saipan has a population of about 48,000. Tinian has a population of about 3,000. 

The Tinian Dynasty was located on Tinian. And amongst the new 

permits that have been issued, zoning permits that have been 

issued for future construction, there is another large project on 

Tinian that’s amongst those that are slated for—that have been approved and are, as I understand it, raising funds for construction. 

That one project is slated to require 5,000 workers to operate the 

facility once it’s completed which is by comparison to the population of Tinian, quite a large project. 

Senator CANTWELL. Well, as I think you heard in my opening 

statement and the former Chair of this Committee had a lot of critique about what was happening in the 1990s and 2000, and what 

we want to know is whether it’s being repeated. 

Since this 2015 Tinian Dynasty was accused of money laundering, we want to know what mechanisms are in place to stop the 

money laundering activity and to start making sure we understand 

when we have a suspicion about it, not waiting until the FBI comes 

in to do that work. I will look forward to getting the Governor’s 

comments about what he thinks those changes might be. 

Thank you. 

The CHAIRMAN. Senator Franken, Senator Risch has deferred to 

you as he collects his thoughts. 

Senator FRANKEN. Thank you. Thank the Senator from Idaho. 

Thank you, Madam Chair. 

In 2006, I wrote a chapter in one of my books about the horrifying abuses of workers that had taken place in the Northern Mariana Islands. Senator Cantwell referred to immigrant workers 

being forced into de facto slavery in sweatshops, being forced into 

prostitution. Yet Tom DeLay and Jack Abramoff insisted on blocking any efforts to put a stop to the abuses. In fact, Tom DeLay prevented legislation authored by then Senator Frank Murkowski 

from being considered by the House. Senator Murkowski said he 

was, ‘‘appalled,’’ after witnessing the conditions of workers on the 

Islands. 

When Democrats took over in 2007, took over the House, the legislation to put a stop to the abusive labor practices was finally 

brought to the floor and passed on an overwhelmingly bipartisan 

basis. The U.S. minimum wage is now being extended to cover the 

Northern Marianas as are U.S. immigration policies. 

Now after the progress that has been made in the last decade, 

I believe in support and will make sure there are not any loopholes 

that would allow workers to continue to be exploited. 

Dr. Gootnick, how have working conditions changed in the 

Northern Marianas over the last decade? 

Dr. GOOTNICK. So I think it’s an important question and as I 

think about it, there’s a fundamental difference between construction workers and the other foreign workers in the economy. So, 

there have been—it’s been widely reported in the press, concerns 

about abuse of construction workers, these workers coming from 

China, working for the Chinese firms. 
78 

In the tourist industry I think it’s a somewhat different matter. 

These are chambermaids, cooks, many of the other basic occupations in hotels and resorts. Those workers, at this point, are predominantly from the Philippines and now from China. 

Not to say that any worker, of course, any worker needs to be 

treated fairly and any worker could be subject to abuse. But the 

tourist industry, I think, is fundamentally different from the construction industry where the problems have been reported. 

Senator FRANKEN. Okay. 

Are the updated laws on minimum wage and working conditions 

being adequately enforced and does anyone else on the panel care 

to comment? 

Mr. SABLAN. If I may, Senator, thank you. 

When I first got here in 2009, my first term, I did spend many 

instances talking to other members about Mr. DeLay and Mr. 

Abramoff, in particular. 

I will say this, that yes, we had those situations but I can count 

on one hand, probably, the number of people who can say that they 

knew Mr. Abramoff well. 

Senator FRANKEN. Well, not a lot of people are going—— 

Mr. SABLAN. I beg your pardon? 

Senator FRANKEN. Not a lot of people are going to jump up and 

say, I knew him. I knew him. 

Mr. SABLAN. No, but this is how he was—these things were happening and people in the government and in the private sector, not 

many knew him, who can say they knew him. I never met the gentleman. 

The—— 

Senator FRANKEN. Yes, I only have so much time, so I wanted 

to know how—— 

Mr. SABLAN. The minimum wage is going up and will go up an- other 50 cents this year and will be $7.25 next year. 

Senator FRANKEN. That is okay. 

Mr. ARENOVSKI. If I may, Senator? 

Senator FRANKEN. Well, I want to get to a couple other questions. And Governor, I asked my staffer what the unemployment 

rate was as soon as this started and that was Chairman Murkowski’s first question to you. I was really surprised that you did not 

know the answer to that because that is very relevant here, obviously, because we are talking about we have had this history of foreign workers being exploited. We had the tragic death of a worker 

on a casino project recently. I know, Mr. Arenovski, you are in 

workforce training. But I was surprised you did not know the unemployment rate because that is so relevant and why there are— 

you are asking for more visas when there are people unemployed 

and you do not know the exact unemployment rate. It just seems 

very relevant. 

I am wondering why you do not know that and I just want to 

be reassured that we are not going to see what we saw in the ’90s 

and in the first half of the first decade of the 21st century. 

Mr. TORRES. And I apologize for that, Senator. We are working 

on our data for our unemployment. But I do know that we have 

a total of about 2,000 that’s unemployed. We have about 600 that’s 

on the list for labor pool. 
79 

I do know that, like I said earlier, with alerting our food stamp 

recipients we’re down. We reduced it down to 30 percent including 

dental workforce to the exact, I’m guessing maybe, three, four percent of our unemployed. But I would definitely go back and get this 

report to you. 

Senator FRANKEN. Okay. I again thank Senator Risch and I hate 

to abuse your indulgence, so—— 

Senator RISCH. [spoken off microphone.] 

Senator FRANKEN. Okay, I just want to ask about this death of 

this construction worker at the casino project because it spurred investigation into the immigrant status of the workers. As a result, 

the FBI raided the offices of the construction company. Reportedly, 

the FBI found that the company was employing at least 189 Chinese nationals who were not legally able to work in the Northern 

Marianas. 

I would like to know what steps are being taken to keep situations like this one from happening again and how this legislation 

could help? Can you address that because I think it is crucial to 

our hearing? 

Mr. TORRES. Thank you, Senator. 

The reason why we have our Speaker of the House and Senate 

President here with us, we’re looking at our state laws to strengthen and stricken the labor force. We’re looking at putting employees, 

government employees, a work site. And every employer and employee that comes into the construction site has a list that is registered in as a qualified U.S or non-resident worker permits. So we 

are taking steps in the state light, to ensure that every employee 

that works has the proper documentation. 

Senator FRANKEN. Thank you. 

No one else has any other comment, obviously. 

I thank you again, Senator Risch. 

The CHAIRMAN. Senator, did you care to? 

Let me follow up on that because, I think, it is an important step 

to put in place these processes that will ensure that we do not have 

these workforce issues that are very, very troubling. 

You have indicated, Governor, that you are looking to make sure 

that you have a full accounting of who the workforce is. But then 

if you determine that you have an employer that has looked the 

other way on this, what actual enforcement actions are you then 

able to take against that employer for falsification of records or just 

not doing what it is that they have been instructed to do in terms 

of accountability? 

Mr. TORRES. Chairman, thank you. Thank you for that question. 

Again, our Senate President and the Speaker is here. We are 

looking into the matter so that they can propose the proper legislation whether to fine those employers or stop their project or both. 

So we are going to go back and meet with every company, with 

these construction companies, and let them know that this is—are 

the process that we will be doing in state. And those tourists or illegal immigrants that come in will not be accepted and they will 

be penalized. 

So we are looking if we’re putting bonds into these agencies, to 

make sure that every individual that they put in are registered 

through our USCIS approved list. 
80 

The CHAIRMAN. Is there anything from a federal perspective? I 

guess I look to you, Congressman, for what we should be looking 

at in terms of considerations that will help the CNMI as they are 

addressing violations within the workforce? 

Mr. SABLAN. Yeah, actually we have been talking to USCIS and 

CBP and ICE for that matter. I mean, the Congressional Office 

has. 

We have identified and given to USCIS the names of these five 

or six companies that are doing construction projects and have 

been identified to have allowed—see, the problem is that they receive the visas. And so, instead of bringing in the employees with 

the visas they brought in employees without the visas. They have 

been caught, and that is good. I’m very happy that the FBI stepped 

in, and I forgot them because in the past it was very difficult to 

get federal authorities to get involved. 

The CHAIRMAN. Well, let me ask another question because I 

would imagine that you do not have a very significant FBI presence 

out there. 

Mr. SABLAN. No. Well, now we have probably twice, maybe more, 

the number. 

I was also very surprised that there was a USCIS employee who 

has been on the Island since 2009 and actually came in to see me 

just last year. 

The CHAIRMAN. What? You did not know he was even on the Island? 

Mr. SABLAN. No, and actually I didn’t know. And I know this employee. 

The CHAIRMAN. Yes. 

Mr. SABLAN. But he was actually an investigator. And so, he— 

we visited and we talked. Again, I shared with him my very 

thoughts about how important this program is to us and that we 

must all be above board and that we need them to keep us honest. 

He was happy to do that and we talked and I have not seen him 

since. But he is there, and he does his own investigations. 

The ICE agents, I knew very well. Actually, well enough that I 

can say they were my friends. One agent, who had been reassigned 

to a post in Texas, needed to find a family she trusted to leave 

their dog with and they gave—they chose us. I was very happy that 

they chose us because I’ve never had a dog in my life. 

[Laughter.] 

But that dog, actually now, when I’m home, actually that dog 

owns the house. 

[Laughter.] 

I’m very happy but see, that’s the relationship that I have built 

with CBP, with ICE, with USCIS. And I have not hesitated to talk 

to them. 

When these issues with construction accidents occurred, a doctor 

at our hospital reported the issues to OSHA and then she also 

alerted us to the matter. And so I met with OSHA here and I said, 

you need to tell us how many accidents, how many reports. So, 

they went and we actually got a report from them of, you know, 

how many of their employees were hurt. Some of them were—had 

a, you know, a cut on their finger, some of them had a broken leg, 

some of them were more intense that they needed to be sent off is-
81 

land. And so, they have to be sent back to China for—and of 

course, as we all know unfortunately, we just had a fatality. 

And that caused all of this. And I am on the Education and 

Workforce Committee so that has helped me greatly in reaching 

out to the Department of Labor because the only reasons they have 

in the Northern Marianas is rates an hour. And now, as we all 

know, rates and hour employees in the Marianas are getting training tools to be able to look out for and identify trafficking. 

I don’t know if the construction workers were trafficked because 

they are, themselves, they came knowing that they were going to 

work. And they had told agents, CBP agents that they are visitors 

and the number. But CBP has returned, sent out, refused entry to 

almost 1,000 individuals in just this year because they have been 

more conscious of who is coming in and who is not. 

The CHAIRMAN. Well, the purpose of today’s hearing is to consider the legislation, H.R. 339. As was outlined, it is pretty specific 

in its purpose and I appreciate the work that has gone into that. 

But I think we recognize that if we, in Congress, are going to advance legislation that will allow for, truly, the intended economic 

expansion to build on much of the good that we are seeing out in 

the Northern Marianas, we want to do that. But we also want to 

know that there is that level of accountability and if, in fact, there 

are violations, whether it is workplace safety, whatever the violations may be. 

You mentioned trafficking. I think we all recognize that that is 

an issue that concerns all of us and our ability to really get a handle on what is going on. At this point in time, I think it is relatively limited. Knowing that there is a level of enforcement that 

is not only adequate, but really appropriate, to what we are trying 

to advance, I think we want to make sure that that is in place. If 

in fact we do not have the appropriate authorities that can help assist, that is also something we need to be considering. 

Mr. SABLAN. Right. 

The CHAIRMAN. Governor? 

Mr. TORRES. Thank you, Chairwoman. 

We are pursuing, the CNMI, is pursuing a 287G program under 

the Immigration Act. This would deputize officers to deport illegals. 

So we are working on that. 

And also, I would like just to, again, inform the Committee that 

although we do have some challenges, I would like to recognize 

that for the first time for the CNMI to have over 500,000 tourists. 

And so, if we have a couple thousand that’s been coming in as 

illegal tourists, yeah, it may seem that we’re not condoning those 

actions, but it is also important to recognize that our GDP has increased by 17 percent. Our total revenue has increased by 89 percent. For the first time, for the local to pay that compensation at 

$9 million. The first time for us to start paying the government 

back debt. 

So we do have real success stories, although we do have challenges. And so, it’s really important for me to highlight some of 

those successes that we continue to see to the workforce. Never before that we have more U.S. workers in the CNMI than we have 

foreign workers. 
82 

So this construction, for example, 12,900 CW. One thousand or 

a couple hundred has been out saying they’re mistreated. Well, we 

still have 11,000 or 12,800 that are treated fairly. 

So I really do know that we do have some challenges that the 

state needs to beef up on our regulations, our enforcement, but I 

just like to highlight some of our success. 

The CHAIRMAN. I do think that that is an important part of it, 

and we have not really focused on what has happened within the 

local economy. 

Of course, you want to make sure that that economy is driven 

by good and positive things, not illegal activity. I think that that 

was the point of some of the questioning here this morning. 

I wanted to ask perhaps a more broader question, just for further 

education for me. The comment was made that it is going to be important to move quickly on this legislation because you have an 

issue with the timing of nursing visas and that you could potentially see an impact by this summer where it would have a negative impact on the delivery of public health dealing with the availability of workers. But it was also mentioned that there is a potential to impact your utility corporation. 

Can somebody speak to those issues just so I have a better understanding as to the timing on this and what the impact will be, 

not only on the health care providers, but also on your utilities? 

Mr. TORRES. Thank you, Chairman. 

So CUC has engineers that are CW, under the CW program. The 

hospital nurses are also, a lot of them are, under the CW program. 

So every CW has different expiration date because they’re expiring 

between now until October they’re not able to turn in their application because of the—— 

The CHAIRMAN. Because of the—— 

Mr. TORRES. We’ve met the quota. 

So that’s where the emergency is that if we don’t allow this extension or additional number, then it is inevitable that we would 

lose our nurses and our engineers. 

We have increased our local capacity of engineers at our CUC, 

our utility. We’ve hired ten new engineers in the last couple years. 

So we encourage our locals to come back with an engineer program 

to replace CW workers. 

Mr. SABLAN. If I may, could I have? 

The CHAIRMAN. Congressman? 

Mr. SABLAN. Madam Chair, between now and September 30 I 

think the, our local hospital alone would lose approximately, if I’m 

not mistaken, 130, some nurses and lab technicians and things like 

that. 

The CHAIRMAN. You could lose 130 by—— 

Mr. SABLAN. Something—— 

The CHAIRMAN. End of the fiscal year? 

Mr. SABLAN. Yes. 

And that’s just our local hospital. There are also public and private clinics. There are diagnostic laboratories and there are facilities that provide CT scan and those. The health, I like, what do 

they call, I think, alone, could probably be in the 300 some. 

We tried our very best to get information from the medical professional licensing board, the professional licensing board and the 
83 

nursing board, but we were not able to get it for today’s hearing. 

I don’t know if they’re willing to share that with us, but maybe the 

Governor can be more successful. 

The CHAIRMAN. Let me ask you, Mr. Arenovski, in terms of the 

training. Are we seeing more interest in local people being trained 

in the health care field and engineers that can help fill this gap? 

You did not really speak to the type of training programs you 

were doing. You noted somebody who was being trained for front 

desk responsibility. But are we seeing interest in some of the higher end fields as well? 

Mr. ARENOVSKI. The Island Training Academy does what they 

call the Allied Health Program that includes phlebotomists, registered nursing assistants. 

From an engineering standpoint I could not speak. I do not know 

of any engineering programs or like that would go for the CUC. 

Those are highly technical positions which we do not have whether 

it’s at the college, at the Trades Academy, or elsewhere at this 

point. 

The CHAIRMAN. I do not know the extent of the training opportunities within CNMI, obviously what you are doing, Mr. Arenovski. 

But in terms of college opportunities is there anything on island 

that is speaking to these specific sectors where you have got some 

gaps? 

Mr. TORRES. We do have a nursing program at our college. 

Madam Chair, we are working with the legislature to increase a 

special scholarship program just for nursing and doctors. We know 

that it’s a long process and so we want to encourage our folks to 

get into the medical field. So we are looking to giving about, putting about $1 million of local funds to appropriate specifically for 

nursing and doctors and for the health care system. 

Mr. SABLAN. May I? 

At the same time, I went to Pohnepei and Chuuk last September, 

I think it was October. Nobody in the Committee wants to go to 

Chuuk, so I volunteered on my vacation. 

But of course, I’ve heard stories also of companies going to 

Pohnepei to try and recruit workers, and it’s true. They went down 

there. But on my return trip I met with these three men, just out 

of high school. And they said they were going to Saipan. And so 

I said to them, what are you going to do there? They said, well, 

we are going to work. My aunt has found jobs for us. 

So we are also beginning to see that we’re getting workers or individuals who are going to work from the Federated Freely Associated States. 

The CHAIRMAN. In any significant numbers, Congressman, or is 

this just anecdotal? 

Mr. SABLAN. Well, I will say probably more numbers than we 

had. I mean, more recent, not like the garment times when there 

were huge numbers, but they are growing. 

I grew up in Chuuk and so my house is located near a house 

where many of my Chuukish friends reside. But no, we are seeing 

a number of individuals coming from the Freely Associated States. 

Again, I would—— 

The CHAIRMAN. Are we doing anything to try to recruit more? Is 

there an active effort there? 
84 

Mr. SABLAN. I understand companies have gone down and actually had a resource job fair. Were they very successful? I really cannot speak to it. But that’s also something that we are already, 

some companies are pursuing. 

I can turn back and have a president of a company that has— 

in her company, citizens of the Freely Associated States working 

with them, within her company. Actually—— 

The CHAIRMAN. If we had had more room on the panel here to 

have somebody who represents somebody within one of the business or industries there I think it would have been helpful to have 

that perspective, because I have heard first-hand of the challenges 

from those who are out there trying to make things happen, build 

things, provide services and their frustration with gaining workers. 

Mr. SABLAN. Right. 

The CHAIRMAN. Let’s go to Governor Torres and then Dr. 

Gootnick. 

Mr. TORRES. Madam Chair, I wanted to share this with you. 

I actually have, before this hearing was set, I was set to go down 

to the Micronesian Islands, meet with the President and the Governors. So I was supposed to go to the Marshall Islands for four 

days and go to Kosrae, Kwajalein and Pohnpei, to meet with the 

leaders and to give them the assurance that if any of their employees or people to go down to CNMI to work that the government 

would work with the private sector to make sure that their employees or their people are paid right and are treated fairly good. 

The CHAIRMAN. Is housing an issue, Governor? 

Mr. TORRES. The employers provide housing. 

The CHAIRMAN. All employers? 

Mr. TORRES. All workers that are being hired off island. 

So, yeah, so it’s amazing how you asked that question because 

prior to this trip I’m set to go to these islands to give the government security for anyone that’s going to CNMI to work and encourage. We’ll actually be meeting with all the communities on each island to encourage them to come to CNMI to work. I’ll be scheduling 

my meeting again back after this hearing. 

The CHAIRMAN. Okay. 

Dr. Gootnick. 

Dr. GOOTNICK. So, the CNMI tax data will show that there are 

about 700 workers from the Freely Associated States working, as 

of 2015. That’s actually down from a couple thousand, about 2,000, 

I believe, 10, 15 years ago. 

One of the issues there is that the Freely Associated State workers, citizens, have the opportunity to go to either Guam or Hawaii 

as well where the minimum wage is actually in the $8.25 and $9.25 

range. So that’s an issue. 

With your indulgence, just one quick thing on the unemployment 

issue. The Bureau of Labor Statistics does not collect unemployment data in the Mariana Islands, so there is no per se unemployment rate in the way there would be unemployment rate in the 50 

states. 

The best way to think about it. I think the concern that Senator 

Franken was looking at is that there are 12,700 foreign workers in 

the economy right now and that there are about 2,400, unemployed 

U.S. citizens residing there. So that’s not an unemployment rate, 
85 

but it’s the best piece of information, I think, you may have with 

respect to unemployment. In addition, there are about 9,000 adults 

who are considered unemployed but not in the labor force. That’s 

mostly students, the elderly, homemakers and a few others. 

So, I think in terms of framing unemployment, because of the 

lack of BLS statistics, you’re more thinking about those numbers 

than you are necessarily thinking about unemployment rate. 

The CHAIRMAN. I appreciate you clarifying that. It then begs the 

next question. If GAO has conducted this review. It has been helpful for the discussion here today. I know that there was a $200,000 grant that the Office of Insular 

Affairs provided back in 2016 to help collect some of the data on 

the CW program. 

It seems to me that part of what we need to continue to do is 

help in providing data so that we really know what we are talking 

about in terms of our numbers and whether we are on track in the 

way that, not only those who are living and working in Northern 

Marianas feels is appropriate, but that those who are providing 

some level of oversight are seeing that as well. 

Mr. Pula, do you want to comment on that? 

Mr. PULA. Thank you, Senator Murkowski. 

Throughout the years, since the CNRA has been applied, 2009, 

to CNMI, our office and the Department of Interior have been 

working with the CNMI government in providing some technical 

assistance grants through the different years, try to help the labor 

force and try to get some data. 

I think you hit on a very good point about just getting the correct 

data. And this is an issue, not only in the CNMI, but throughout 

the territories and in the Freely Associated States. 

I think, besides capacity or the local, we’ve had discussions with 

the leaders of CNMI, with the Governor, the legislature, where we 

have always asked them to be proactive. We understand the concerns, of course, of the Senators on both sides of the aisle, in terms 

of what had happened in the past. So we’re cognizant of that and 

we try to be helpful. 

One of the things that I was just sitting here and listening to the 

discussion that perhaps maybe the Administration can help, moving forward, is maybe through the, you know, agency group on the 

insular areas, the IGIA, that we at the Administration have. We 

can maybe form a subcommittee through the IGIA with the help 

of the governors, of course, as well as the delegates office and work 

specifically with some of our sister agencies, of course, Department 

of Homeland Security and others. 

I just want to make mention also, that in the past the issue have 

always been when this program started, of the immigration in 

CNMI, the Department of Homeland Security, through their processes and the different agencies, cross cutting agencies within the 

Department, sometimes take a while to get things done. And because of sometimes, budgetary cuts, they don’t have the, sort of 

like, the personnel out there to help CNMI. And this has been the 

case as I’ve been in the Office of Insular Affairs for a while, where 

sometimes we use our technical assistance funding to help our sister agencies do some of the work because they don’t have line item 

budgets for those particular issues. 
86 

So I just want to make mention that perhaps this is a way, moving forward, this perhaps, subcommittee in the IGIA could help 

work with the local government, as well as, you know, pertinent 

folks to help the situation in CNMI, move it forward. That’s just 

one. 

The CHAIRMAN. Yes, I appreciate that. 

I also recognize that while we can talk data, making sure that 

we have got numbers, you have people who you represent, Governor Torres, that are saying, I don’t need data, I need workers, I 

need to get this project moving and I can’t do that. We need to be 

capable of, kind of, doing it all, if you will. 

It is up to folks like Mr. Arenovski to train up as many as you 

can. It is important that there be a continuing, ongoing and, I 

think, aggressive effort for further recruitment whether it is in the 

federated areas or on the mainland. The efforts that need to be 

made to make sure that once you are able to recruit, that they actually stay out there. 

Issues as they relate to wages, to workplace safety, to just good 

working conditions and also, kind of, the quality of life that goes 

with it. I think there are people who say, I cannot imagine anybody 

going to Alaska, where it is cold and dark and you are working in 

the seafood industry and it is cold and wet and I would not want 

that job. Yet, we get good people to come back. 

You have problems like ours, only you are not cold but you are 

still a long way and it is high cost and you are away from family. 

There are certain aspects of that that are very difficult to make up. 

But that is where, I think, if we can be more successful recruiting 

people from the surrounding islands, you have a familiarity and 

quite honestly, your geography does not separate you quite as 

much. 

I do think it is important that the concerns that were raised by 

several of my colleagues here today, in terms of ensuring that we 

are not going backward when it comes to workforce safety, we are 

not going backward when it comes to the conditions for these workers. That we cannot and will not turn a blind eye to infractions and 

violations and illegal operations. We cannot do that. I think if that 

is seen as happening, it makes what you all are trying to do just 

that much more difficult. 

So there is a great deal to do on a host of different fronts here. 

I do appreciate what we have been able to bring to the floor here 

today with regards to H.R. 339 and some of the proposals and what 

you have outlined. 

Again, thank you for being here today. I thank you, Governor, for 

making the trip, and Congressman, for your representation. Thank 

you for the assessment, the analysis that you have given us all 

here today. 

With that the Committee stands adjourned. 

[Whereupon, at 11:34 a.m. the hearing was adjourned.] 
(87) 

APPENDIX MATERIAL SUBMITTED 
88 

U.S. AUTHENTICATE~ OOVER:-.IM£NT 

INFORMATION 

GPO 

115TH CONGRESS 

1ST SESSION H. R. 339 

IN THE SENATE (JF' THE UNITED STATES 

.JANUARY ilL 2017 

ReeeiYcd 

l<'EllRLTARY 1, 2017 

IIB 

Read twice and referred to the Committee on gnergy and 1\atural Resources 

AN ACT 

To amend Public Law 94-241 vvith respect to the Northern 

JVIariann Islands. 

1 Be 'it enacted by the Senate and Honse of Represonta2 tives ofthe United 8tates ofAmerica in Congress assernblecl, 
89 

2 

SECTION 1. SHORT TITLE. 

2 This Act may be cited as the "Nm'them Mariana ls3 lands I1Jconomic Expansion Act". 

4 SEC. 2. COMMONWEALTH OF THE NORTHERN MARIANA IS5 LANDS: TRANSITIONAL WORKERS. 

6 Section 6 of Public Law 94-241 (48 U.S.C. 1806) 

7 is amended8 (1) in subsection (a)(6), by striking "$150" and 

9 inserting "$200"; and 

10 (2) iu subsection (d)(2)-

ll (A) by striking the period at the end of the 

12 first sentence and inserting ", except a permit 

13 for constmction oecupations (as that term is 

14 defined by the Department of Labor as Stand15 ani Oeeupational Classification Gmup 4 7-0000 

16 or any successor provision) shall only be issued 

17 to extend a permit first issued before October 

18 1, 2015."; and 

19 (B) by striking the period at the end of the 

20 third sentence and inserting ", except that for 

HR 339 RFS 
90 

2 

3 

fiscal year 2017 the number of permits issued 

shall not exeeed 15,000.". 

Passed the House of Representatives ,January 30, 

2017. 

Attest: 

HR 339 RFS 

KAREN L. HAAS, 

Clerk. 
91 

U.S. Senate Committee on Energy and Natural Resources 

Apri127, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to Mr. Nikolao "Nik" Pula 

Questions from Ranking Member Maria Cantwell 

Question 1: The second island chain in the Western Pacific is increasingly important to the 

United States' strategic interests. The U.S. territories in the Pacific, including the CNMI, play a 

critical role in facilitating the distribution of more U.S. defense assets. Additionally, it is crucial 

for U.S. standing in the region that the territories demonstrate economic stability, the strength of 

democracy, and rule oflaw. 

What is the Administration's view of the strategic importance of the U.S. territories in the 

Pacific? 

Response: The United States territories and the freely associated states are of key strategic 

importance to the United States. This is why the Administration proposed funding of the Palau 

Compact in DOD's FY 2018 Budget. 

Question 2: The Department of Commerce is tasked with collecting labor economic data and 

statistics in the United States, including gross domestic product and unemployment. However, 

the Department of Commerce does not conduct regular business in the Northern Mariana Islands 

which has made it challenging to get a complete economic picture. The Department of the 

Interior has paid Department of Commerce to collect information on the gross domestic product 

of the CNMI but not unemployment data. 

What recommendations do you have to ensure that in the future more economic data about the 

CNMI is more readily available, specifically, unemployment data? 

Response: The Department of Commerce produces GDP data, not labor data. The Department 

of Labor produces labor data for states and territories that have unemployment insurance 

programs. The CNMI and other Pacific territories do not have unemployment insurance 

programs and, therefore, do not report labor force information to the Department of Labor. The 

CNMI labor department can report labor force information. So far, however, they have not done 

so in the manner consistent with the requirements of the Department of Labor. 

The Office of Insular Affairs has been communicating with the Department of Labor regarding 

CNMI's Wagner-Peyser Act eligibility. The Wagner-Peyser Act provides funds to establish a 

nationwide system of public employment offices and one-stop career centers across the United 

States. Congressman Sablan introduced H.R. 1656, during the !13th Congress to extend the 

Wagner Peyser Act to the CNMI. Most recently the Wagner-Peyser Act eligibility was included 

in the recommendations of the January 17, 2017, Covenant Section 902 Report sent to the 

Congress by President's Special Representative and the Governor of the CNMI. 
92 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to Mr. Nikolao "Nik" Pula 

Question from Senator Mazie K. Hirono 

Question 3: Acting Assistant Secretary Pula, in your testimony you state the Administration is 

willing to work with this Committee on measures to improve the CNMI's economic well-being. 

Can you provide the Committee assurances that the Administration also recognizes the important 

role that the CNMI, Guam and all Pacific U.S. territories to our national security and strategic 

posture in the Asia-Pacific region? 

Response: The United States remains engaged in the Pacific with Navy and Air bases in Guam 

with an expected augmentation on Tinian in the Northern Mariana Islands. The CNMI is also 

the home to several pre-positioned ships that can be deployed to hot spots on short notice. The 

freely associated states (FAS) of Palau, the Federated States of Micronesia, and the Marshall 

Islands allow transit of ships and denial of access to third party countries. The facilities in 

Guam, the CNMI, and the F AS provide defense against potential aggression from Asia. 

Question: What steps being taken to reinforce this recognition? 

Response: Presidents George W. Bush and Barack Obama proposed the shifting military 

personnel and assets to Guam and the CNMI. Well-publicized are plans for Guam to host 

approximately 5,000 new Marines, additional Navy ships, additional air assets, and the THAAD 

missile defense shield also tell potential enemies of our national security interests in the AsiaNorth-Pacific area. Moreover, the Administration has proposed a new approach to funding the 

Palau Compact in DOD's FY 2018 Budget. 

Question from Senator Catherine Cortez Masto 

Question 4: Mr. Pula, you stated that H.R. 339 is only a stop-gap measure and that a more 

viable long-term solution to the labor problem is needed. Could you discuss what changes to 

current law the administration believes is necessary in order to address the CNMI' s labor 

shortage in the years to come? 

Response: Mr. Pula's statement merely noted that H.R. 339, and, from the last Congress, H.R. 

5888 contained elements from which a more long-term solution to the CNMI labor shortages 

could be drawn. These two bills provide a starting point for discussion of options by officials 

from the Northern Mariana Islands and the relevant committees of the Congress. 

Questions from Senator Chuck Grassley 

Question 5: In your testimony you indicated that you work with an interagency group on 

immigration transition for CNMI. That group was established by law in 2008 when the CW visa 

program was created, and includes the Secretary of Homeland Security, the Secretary of State, 

the Secretary of Labor, the Attorney General, and the Secretary of the Interior. This group is 

required to "negotiate and implement agreements among their agencies" to address "at a 

2 
93 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to Mr. Nikolao "Nik" Pula 

minimum, procedures to ensure that Commonwealth employers have access to adequate 

labor[.]"1 

a. Since those agreements were established, what efforts has your interagency group 

made to study and address labor conditions in the CNMI? 

b. What steps has this interagency group taken in order to keep the legislatively 

mandated transitioned phase-out of the CW visa category on track? 

c. Your written testimony described what you called the "Administration Position." 

Was this position approved by the current (Trump) administration, or is this a position 

developed under the prior (Obama) administration and not yet considered or not yet 

approved by the current administration? Please explain. 

d. Has the "administration position" been approved by White House political leadership 

or was what you describe as the administration's position developed by an 

interagency group of career, non-political employees? 

Response: The statement of Mr. Pula did not reference the interagency group established 

pursuant to title VII of the Consolidated Natural Resources Act (CRNA) of 2008 (Public Law 

11 0-229). The Department of Homeland Security chairs that group and oversaw the 

development of the interagency agreement to implement title VII of the CRNA. At present, 

DHS shoulders virtually 100% of the responsibility for the immigration provisions of title VII. 

DHS, therefore, would be best suited to respond to your question. 

One concern expressed in the question involved ensuring "that the Commonwealth employers 

have access to adequate labor .... ". The original enactment of title VII of the CNRA contained 

a provision whereby the Secretary of Labor would study the labor needs of the CNMI and 

recommend whether or not to extend the transition period, with its CW visa program. The 

Secretary of Labor recommended such an extension on May 27, 2014. Subsequently, the 

Congress removed the authority of the Secretary of Labor to analyze the labor needs of the 

CNMI when it passed the Consolidated Further Continuing Appropriations Act of 2015 on 

December 16,2014 (Public Law 113-235). 

Question 6: Of the foreign workers on CW-1 visas from 2013 to present, how many could have 

qualified for a different visa category for the same employment? 

Response: The Department of Homeland Security is best positioned to provide the approximate 

number of foreign employees for whom another visa category would be appropriate. 

1 48 U.S.C. § 1806(a)(5). 

3 
94 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to Mr. Nikolao "Nik" Pula 

Question: If you are not able to provide an answer to question (immediately above), please 

advise whether the issue was considered by your Department prior to endorsing this and other 

legislation proposing an increase in the CW visa category. 

Response: While the Department of the Interior did not have the exact number of such visa 

candidates, we knew that approximately several thousand were involved. Such information was 

sufficient for us to recommend passage of H.R. 339, which would have a short-term effect. 

Question 7: For the CW-1 permits approved for 2016, how many remained unused by workers? 

Has your interagency group studied or discussed the issue of unused CW -1 permits? 

Response: The Department of Homeland Security is best positioned to provide the information 

requested. 

4 
95 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Gregorio Kilili Camacho Sablan 

Questions from Senator Mazie K. Hirono 

Question l: Congressman Sablan, your staff briefed mine last week on the impact of the lack of 

CW permits to the public health system in the CNMI which employs a number of foreign 

nationals in nursing and other medical positions. Could you share with the committee on why 

H.R. 339 is needed from a public health perspective? Are talking about a situation where lives 

are at risk if Congress does not act? 

Yes. As the Chief of Executive Officer of the Marianas' only hospital wrote to 

me 1 in November last year, ·'when staffing levels fall below certain nurse-topatient ratios. the patients are more likely to suffer or even die." Letter attached. 

Without enactment ofH.R. 339, the Commonwealth Healthcare Corporation 

(CHCC), operator of the hospital. stands to lose 382 professional healthcare 

workers whose CW permits expire in the period from April through September 

2017. The permits cannot be renewed because the FY17 cap of 12.998 permits 

was reached and USCIS shut off applications for the fiscal year in mid-October 

2016. 

Chief Executive Officer Esther L. Muna explained the predicament and her 

pending loss of staff in her November letter: 

CHCC has been successful in renewing all its CWs whose 

expirations are prior to April2017. But we have seven workers who 

expire in April and another 32 who expire prior to October 1. 2017 

for whom we could not yet have filed a renewal application prior to 

the cap being reached because we are only permitted to file six 

months in advance of the current CW-1 pennit expiration. 

Ms. Muna further stated that the impact of losing these healthcare professionals 

would be devastating for the hospital and the community, with the effects likely to 

be seen for years: 

The loss of all 39 HPWs (34 staff nurses. two infection control 

nurses, one mammographer, one ultrasonographer and one clinical 

laboratory scientist) will greatly affect the quality of patient care and 

patient safety at our only hospital. It is impossible to give proper 

care when understaffed. 

1 Attached, Jetter i!·om Ms. Esther L. :vtuna, Chief Executive Officer. Commonwealth Healthcare Corporation. 

November 10.2016. 

-The ' November letter originally reported that 39 stalTwcre in this position. Subsequently. one has applied to adjust 

status. 
96 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Gregorio Kilili Camacho Sablan 

In addition to the 38 medical statT at the hospital, the congressional district office 

staff has polled other public and private medical clinics and found 22 medical 

personnel who cannot renew their CW permits. expiring this tiscal year.3 These 

include registered nurses. a radiology technician, a midwife. and other positions 

that require extensive training and certification or licensing. 

We have also surveyed the Commonwealth Utilities Corporation, which provides 

power, water, and sewer services in the Northern Marianas. CUC employs 28 

CW -1 permit holders of whom 10 have permits expiring prior to September 30, 

2017 and which cannot be renewed because of the circumstances addressed in 

H.R. 339.4 Because of the critical nature ofCUC services to public health and 

safety. the predicament of these workers also falls within the purview of your 

question. 

Questions from Senator Catherine Cortez Mas to 

Onestion 1: Congressman, in the 114'11 Congress you sponsored 1-l.R. 5888, which called for 

18,500 CW visas annually through 2029. with possible extensions if approved by the Secretary 

of Labor. Do you believe such changes are enough to address the labor shortage in the CNMI? 

1-l.R. 5888 incorporated the position that Governor Ralph DLG. Torres presented in his 

Section 902 consultations with the Special Representative of President Obama last year. I 

introduced the legislation in order to assist the Governor in those consultations. 

While 18,500 CW visas annually through 2029 may be appropriate, projecting economic 

needs twelve years into the future requires exceptional foresight. I am of the view that a 

more dynamic system should be adopted that responds to the demand for labor as it may 

change from year to year. I am also of the view that any such system must assure that the 

ratio of US workers to foreign workers in the Marianas labor force continues to improve 

annually. I look forward to working with all interested parties to include these core 

concepts into a longer term solution to the need for labor in the Marianas. 

As an example of the kind of change that may occur over time. 1-l.R. 339, if enacted, 

would reduce demand for CW permits by barring their use for certain construction 

workers. And. by increasing funds for training, the bill is intended to reduce demand for 

foreign workers further by bringing more U.S. workers into the labor force. 

3 List attached. 4 Attached, memo from Mr. Andre\v Orsini, Human Resources Manager, Commonwealth Utilities Corporation. 

May II. 2017. 

2 
97 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Gregorio Kilili Camacho Sablan 

Question 2: The goal of the CNRA was for the CNMI to rely less on foreign labor, which is 

why the number of CW visas is drawn down over time to zero. How do you reconcile your plan 

in H.R. 5888 with the stated goal of the current law? 

I am in agreement with the goal of the CNRA to reduce reliance on foreign labor as 

speedily as possible. 

I am also cognizant of the law's other goals both to '·do no harm·· and to expand the 

economy. As Section 701(b) of the CNRA states: 

(b) AVOIDING ADVERSE EFFECTS.-In recognition of the 

Commonwealth's unique economic circumstances, history, and 

geographical location. it is the intent of the Congress that the 

Commonwealth be given as much flexibility as possible in maintaining 

existing businesses and other revenue sources, and developing new 

economic oppor1unities. consistent with the mandates of this subtitle. This 

subtitle, and the amendments made by this subtitle, should be implemented 

wherever possible to expand tourism and economic development in the 

Commonwealth, including aiding prospective tourists in gaining access to 

the Commonwealth's memorials, beaches. parks. dive sites, and other 

points of interest. 

Any future policy must reconcile all the goals of the CNRA: to reduce foreign labor, to 

maintain existing businesses, and to foster economic development. 

3 
98 

Sablan- QFR 

Attachment I 
99 

Commonwealth Healthcare Corporation 

Commonwealth of the Northern Mariana Islands 

I Lower Navy Hill Road, Navy Hill, Saipan, MP 96950 

November 10,2016 

Honorable Gregorio "Kilili" Sablan 

U.S. Congressman for CNM! 

423 Cannon HOB 

Washington, DC 20515 

P.O. Box 504879 

Saipan, MP 96950 

RE: REQUEST FOR ASSISTANCE TO SEEK HUMANITARIAN PAROLE FOR 

39 "CAPPED-OUT" HEALTH CARE PROFESSIONAL WORKERS FOR FY 2017 

Dear Honorable Congressman Sablan: 

The Commonwealth Healthcare Corporation (CHCC) respectfully submits this letter to request your 

assistance in seeking humanitarian parole relief from U.S. Citizenship and Immigration Services 

(USCIS) for the CHCC's 39 healthcare professional workers (HPWs) who are affected by the CW-1 

numerical limit (cap) for Fiscal Year 2017. 1 Only one month into the new fiscal year, and the USCIS 

has already announced the 2017 cap has been reached. The impact of losing 39 qualified health care 

workers- primarily nurses, but also a laboratory scientist, ultrasonographer, mammographer, and two 

infection control specialists will be devastating for CHCC and the community, with the effects likely 

to be seen for years. 

As you know, the Commonwealth Health Center (part of the corporate CHCC) is the only hospital -

public or private- in the Commonwealth of the Northern Mariana Islands (CNMI). We provide 

acute and chronic health care services to in-patients, out-patients and through our Emergency 

Department to the people of the CNMI. The CHCC also maintains community health centers on the 

islands of Rota and Tinian, and in the village of Kagman. There are no private providers in Rota and 

Tinian, and the few on Saipan are insufficient to serve the needs of all the people, particularly those 

who are indigent. The CNMI's medically indigent population is very high and seems to be growing.2 

1 Please see Attachment A for the names and place of employment within CHCC for the 39 workers affected by the cap. 

2 The 2016 CNMI Non-Communicable Disease and Risk Factor surveyed I ,034 households on Saipan, Tinian and Rota 

and found that 46.1% of the CNMI residents have no form ofhealth insurance coverage. This is 14% higher than what was 

reported in the 20 I 0 Census for the CNM! and more than four times greater than the uninsured rate in the US. In response 

to the need for affordable healthcare, the CHCC reinstated the "Sliding Fee Program (SFP)" in 2013. The program allows 

for a reduction or elimination of covered fees for services and care received at the CHCC based on the patient's income. 

The SFP discounts most inpatient and outpatient services at the CHCC, and is often the only option for health care payment 

assistance for many residents who cannot afford, or are not provided, private insurance by employers. From 2013 to 201 5, 

more than 620 primary beneficiaries and jependents enrolled in the program. The majority of beneficiaries are enrolled in 

the "Sliding 100" discount category, which means their low income makes them eligible for the highest discount category. 

P.O. Box 500409 Saipan, MP 96950 

Telephone: (670) 239-8201 • Facsimile: (670) 233-8756 
100 

Honorable Gregorio "Kilili" Sablan 

November 2016 2 of4 

Almost half ( 46%) of all CNMJ residents have no health insurance coverage. This means that CHCC 

is often effectively their only option to receive medical care. 

The CHCC has been very diligem in timely renewing our health care worker CWs. The CW petitions 

can only be submitted six mon~hs prior to the expiration of a worker's CW. CHCC has been 

successful in renewing all its CWs whose expirations are prior to April 2017. But we have seven 

workers who expire in April and another 32 who expire prior to October 1, 2017 for whom we could 

not yet have filed a renewal application prior to the cap being reached because we are only permitted to 

file six months in advance ofthc c.urrcnt CW-1 permit expiration. 

We are requesting your assistance in asking the USClS for humanitarian parole for these health care 

workers as a group. We understacd we will need to file individual applications but we would like your 

support in explaining to the USCIS just how devastating this loss of 39 CHCC personnel would be for 

the people of the CNMI and for the workers and tbeir families. 

The CHCC had been planning on hiring an additional nine (9) nurses before we learned that the cap 

had already been reached. Now. in the face of increasing demand for all of our services- laboratory, 

radiology, in-patient 3 we are relegated to attempting just to hold onto to what we have. Even if all 

39 of IlPWs are allowed to remain on island and work, CHCC will still be facing a critical shortage. 

For example, we planned on hiring three additional nurses for the Emergency Room. Now we will not 

be able to do that. 

The loss of all 39 HPWs (34 staff nurses, two infection control nurses, one mammographer, one 

ultrasonographer and one clinica! laboratmy scienlisl) will greatly affect the quality of patient care 

and patient safety at our only hospital. It is impossible to give proper care when understaffed. Patient 

safety is also compromised when infection control procedures are not followed because of 

understaffing. Mounting data from U.S. hospitals nationwide illustrates that when staffing levels fall 

below certain nurse-to-patient ratios, the patients are more likely to suffer or even die. This is not like 

any industry where we are dealing with inanimate objects. We are dealing with human lives. 

The CHCC's Radiology Departme:Jt provides a useful example of the challenges we face. As the only 

full-service, Medicare, FDA-certified and American College of Radiology (ACR) accredited medical 

imaging department on Saipan, we are heavily dependent on trained, experienced and quality 

conscious imaging professionals to support the current and growing medical imaging needs of our 

population. Presently, these expdenced professionals are available to us only through the existing 

CW arrangement and further reductions in the CW labor pool of medical imaging professionals 

significantly and adversely impacts the quality, availability, and sustainability of medical care in the 

CNMI. 

Due to significant discrepancies in salary and compensation offered on the US Mainland and available 

here in the CNMI, medical imagir.g professionals are next to impossible to recruit, tend to be shortterm and require a large initial investment on the part of the hiring facility to acquire. There are no 

3 Please refer to attachments B through E to see demand for all clinical services in 2015 and 2016. 

P.O. Box 500409 Saipan, MP 96950 

Telephone: (670) 239-8201 • Facsimile: (670) 233-8756 
101 

Honorable Gregorio "Kilili" Sablan 

November 2016 

local or regional allied health programs available to support an established radiology department with 

multi-specialty trained professionals nor to assist in meeting the growing demands of the only 

Medicare Certified hospital in the CNMI. Limiting our access to this professional expertise will also 

affect the quality of care offered and could significantly impact our ability to meet the required 

''Conditions of Participation" mandated by the Centers for Medicare and Medicaid Services (CMS) for 

all Medicare-Certified hospitals. Presently, two (2) experienced and well-trained individuals from the 

CHCC Radiology Department are aftected by the cap restrictions and their expertise in the fields of 

radiography/mammography and ultrasound arc a vital component of our imaging capability and 

diversity. Both were hired to meet the growing demands of our local and tourist populations and 

together represent 20% of the department's imaging professional component. Their departure would 

significantly impact the volume of exams done ILS well as the ability of the department to maintain 2417 

coverage. The same analysis applies to the Laboratory Department, should it lose one of its clinical 

scientists. 

Most of the inpatient wards will be dramatically affected if the nurses are not allowed to remain and 

work. The Medical-Surgical Ward (including Intensive Care Unit and Neonatal Intensive Care Unit) 

would lose twelve (12) nurses, the Emergency Department would lose five (5) nurses, Hemodialysis 

unit would lose four (4) nurses, Obstetrics and Gynecology (including Labor & Delivery) would lose 

two (2) nurses, and Pediatrics Ward would lose one nurse. 

If the 34 ward nurses were not allowed to remain and work, we would have to shut down hospital 

services or nursing unit/wards and reassign the remaining nurses to other critical units affected by the 

CW cap. For instance, the Surgery department which has one nurse affected will have some of its 

nurses re-assigned to the Emergency Room. As a result, all elective surgeries will be discontinued and 

only emergency surgeries will be permitted. This will create a backlog of elective surgeries that may 

take more than a year to erase. The shutdown of surgery unit but for emergencies will also increase 

off-island medical referrals and its associated costs. The general health of the population will decline 

due to the lack of available services. Finally, for the nurses who remain, their overtime will likely 

increase, which will add stress to their lives and those of their families and possibly increase the rate of 

mistakes. 

While the goal of the CHCC is and has been to expand U.S. citizen hiring, as a practical matter there 

are no U.S. workers certified or r·egistered as nurses and laboratory and radiology specialists in the 

CNMI who are not already working at the CHCC or one of the private clinics. The Northern 

Marianas College (NMC) does not have degree programs in laboratory, pharmacy, and radiology to 

build local capacity. While the NMC does have a nursing program that produces on average at least 15 

graduate nurses annually, only Z!pproximately 30% pass the National Council Examination for 

Registered Nurses (NCLEX-RNs). The CHCC does not hire nurses who have not passed the 

NCLEX-RNs. While we wholeheartedly support the NMC program, its limited success has hindered 

the CHCC's ability to recruit locally trained U.S. nurses to replace foreign ones. 
102 

Honorable Gregorio "Kilili" Sablm 

November 

In addition to the needs of the hospital and the community, the upheaval in the lives of these 39 

workers and their families will be great. Many of them have been working with the CIICC for more 

than 10 years. This is their home. More than half have children who are U.S. citizens. These children 

are in school. If the parents leave, what happens to the children? There is a general reluctance to 

remove them from school and return them to the Philippines, and sometimes the well-meaning 

an·angemcms that have been made fall apart. The numerical cap does not assess how long the 

employees have been in the CNMI, what their relative value is to the community, or the effects their 

leaving will have. It is a harsh and blunt instrument to limit the employment of non-US citizens and 

permanent residents. 

For all of the above reasons, the CHCC respectfully requests the assistance of your office to obtain 

relief for the affected 39 healthcare professional workers by the CW-1 cap for FY 2017. 

We deeply appreciate your assistance. 

Sincerely, 

, 

j,)~~~UNA f" Chief Executive Officer 

Summa1y of Attachments: 

Attachment A, List of Healthcare Professional Workers Affected by the FY 2017 CW -1 cap. 

Attachment B, Demand in use ofCHCC Services- 2015 to 2016 

Attachment C, Demand in use of the CHCC's Radiology Services- 2015 & 2016 

Attachment D, Demand in use of the CHCC's Laboratory Services- 2015 & 2016 

Attachment E, Infection Control P:ogram Data Surveillance and Tracking - 2015 & 2016 
103 

A 
104 

Commonwealth of the Northern Marfana Islands 

1 Lower Navy Hili Road Navy Hill, Saipan, MP 96950 

YEAR2015 

725 617 548 603 438 595 

463 43! 467 770 627 

1323 !122 1060 797 851 

J lc:modia!ysis 1288 1098 1274 1231 !201 

Intensive Care Unit 90 62 83 109 88 71 

,Laber & Dellve 2! 32 30 35 53 

Medical Ward 449 677 647 585 453 

Neonatal Intensive Cam Unit 95 52 82 _89 43 

Nmsery 112 121 125 146 

169 !57 190 !83 233 

llO 58 88 .JQL 104 149 162 

129_ 166 189 

391 241 478 465 

469 498 330 585 

TOTAL 6115 5410 5556 5921 

Childrcn1

S Clinic 460 356 

Emcr enc Room 461 495 

r'amilv Care Clink 661 74! 860 93& 934 848 

Hcmo.:Halys:is 1131 1205 1278 1248 1337 1271 1198 1253 

Intensive Care Unit 82 86 110 94 99 73 71 80 

Labor & Dclive 41 19 38 37 29 60 38 52 

Medica! Ward 559 ..3.2± 607 629 606 585 

Neonatal Intensive Care Unit 77 112 

Nursery 126 149 

Obstetrics 191 198 

(}~rating Room 139 153 

Pediatric,~ 73 108 

psychiatry ------ 203 152 

Sur, ic.al Ward 336 318 

Women1

s Care Clinic 609 510 

5495 5662 

ATTACHMENT 
105 

YIEAR2015 

ATTACHMENT B 

lilt JAN 

11i:!F£S 

§!MAR 

»APR 

1111MAY 

II.UUN 

IIUUL 

All AUG 

MSEP 

II OCT 
106 

Ultrasound 

X-Ray 

TOTAL 

311 

651 

1016 

900 

800 

700 

600 

500 

400 

300 

200 

100 

0 

900 

800 

700 

600 

500 

400 

300 

200 

100 

0 

Conmonwealth of the Mariana Islands 

1 Lower Navy Hill Road Navy Hill, Saipan. MP 96950 

46 36 

276 318 292 258 311 303 

616 505 461 531 501 633 816 705 

941 787 831 864 811 922 1173 1044 

YEAR 2015 

JAN FEB MAR APR MAY JON JUL AUG SEP OCT NOV DEC 

-X-Ray 

YEAR 2016 

JAN FEB MAR APR MAY JUN JUL AUG SFP NOV 

-Mammography -Ultrasound 

UEC 

30 59 60 

313 328 346 

574 554 526 

917 941 932 
ATTACHM
108 
109 
110 
111 
112 
113 
114 
115 

Sablan- QFR 

Attachment 2 
116 

22 private sector healthcare workers in the Marianas have CW status expiring in FY2017 

and are unable to renew because of the application closure. 

Eucon Medical Health - 1 

• 1 nurse 

Hardt Eve Clinic - 2. 

• 1 registered nurse 

• 1 practical nurse 

Marianas Health Services - 3 

• 2. registered field nurses 

• 1 physical assistant 

Marianas Medical Center- 5 

• 1midwife 

• 3 nurses 

" 1 radiology technician 

New Wave Dental- 1 

• 1 dental assistant 

Paradise Dental-1 (left island in May) 

• 1 dental {hygienist/therapist?) 

Saipan Health Clinic- 4 

" 4 registered nurses. 

Tri Enterprise - 5 

• 3 staff nurses 

• 1 home health aide 

• 1 physical therapist 

Data collected by personal interview by office on Congressman Sablan, May 2.017. 
117 

Sablan- QFR 

Attachment 3 
118 

MEMORANDUM May 11,2017 

To: Gary P. Camacho, Executive Director 

From: Andrew Orsini, Human Resource 

Subject: Information on CUC CW·l Workers 

The total number of CW-1 Workers currently with cue is 28. These positions and the 

qualification of the Individuals are essential and critical in the continued operation of cue. 

There are 10 CW-1 Workers expiring September 30,2017. The following 10 positions are as 

follows: 

A. Trades Technician Mechanical {4) 

B. Trades Technician- Electrical (2) 

C. Trades Technician- Operations (2) 

D. Assistant Engineer- Electrical (1) 

E. Senior Engineering Technician- (1) 

Total 10 

The remaining 18 CW-1 Workers all expire December 31, 2017. 

:Office File 
119 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

Questions from Chairman Lisa Murkowski 

Question 1: If this legislation were to pass, it would limit construction workers under the CW 

program to those who had permits prior to October 1, 2015, and have renewed them each 

year since. How many construction workers would that leave available in the CNMI via the 

CW program? 

According the US CIS data, in Fiscal Year 2015, approximately I ,500 workers were classified as 

employed under the Standard Occupational Classification Group 47-0000. Data from USCIS over 

the years has been improving, however, the total number of construction workers who were present 

prior to October I, 2015 is difficult to ascertain. For FY 14, 8,221 permits were classified as 

"Unknown" occupations by USC IS. In fact, more than 92% of all CW permits issued for that Fiscal 

Year were classified as "Unknown". As FY 2015 data showcases an improvement on the number 

ofCW permits classified as "Unknown", it may be possible that the "Unknown" figure in FY 2015 

of 1,118 may contain employees who would ordinarily fall into Standard Occupational 

Classification Group 47-0000. 

Given that the vast majority of investment is from Chinese companies, and Chinese 

companies tend to only use Chinese labor, how likely are those companies to seek ont nonChinese labor for their projects, versus ending the project altogether if they can't use 

Chinese labor? 

Yes, there exists a real possibility that ending access to employees classified under the Standard 

Occupational Classification Group 47-0000 in the CW program will negatively affect ongoing 

developments in the CI'\'MI, yet in the absence of greater controls and safeguards that will ensure 

the protection and wise use of the limited CW visas, this policy is necessary. 

The potential loss of investment has been a serious consideration that highlights the difficulty of 

growing an economy while having limited access to labor. Despite this dilemma, it is important to 

note that the CNMI takes seriously its responsibilities under the transition program and is willing 

to place hard lines in order to protect the existing economy. I have made several attempts to make 

the potential risk of allowing large numbers of construction workers to acquire the limited number 

ofCW permits known to both USCIS and the private sector. In February 2016, during a meeting 

with former USC IS Director Leon Rodriguez, I requested that USC IS no longer issue CW permits 

for construction occupations. l reiterated this concerns with the Department of Homeland Security 

during our Section 902 Consultations and made several announcements in the local media for our 

private sector partners to be responsible in their use of the CW program and to pursue alternative 

visa classifications where available. 

The choice we have been presented with is continuing the operations of existing enterprises in the 

economy, versus the need to grow the economy. This choice is particularly difficult because, as 

the most recent GAO report shows, with a growing economy more and more US workers are 

finding employment in a wider selection of jobs. 
120 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

It is important to state that in the CNMI, much like any open market-based economy in the world, 

workers seek for jobs that fit their skills and their interests. Despite having a number of 

unemployed individuals in the CNMI, their entrance into the labor force is highly dependent on 

their skills to perform the vacant positions or fill a position occupied by a foreign worker and their 

interest in taking the position. As a territory of the United States, it is not in our ability to force 

work upon any individual. The best chance we have to reach full employment of every abled body 

man and woman, is to grow the economy so that a diverse selection of jobs and competitive wages 

finds the willing employee to fill that position. This is occurring now, but can only occur when 

there are new businesses and economic growth. 

Question 2: Governor, the CNMI has a law that requires 30 percent of a company's labor 

force to be U.S. workers. Yet, there have been instances where you waived that requirement 

for construction companies, which has allowed those companies to obtain more CW permits 

for construction workers than they would have otherwise - permits that might have been 

made available to foreign workers who are currently unable to renew their permits this year, 

like those in the hospital. Could you explain why those waivers were issued? 

The 30% local hire policy is a regulatory requirement enforced by the CNMI Department of Labor 

("CNMI DOL") and waivers for the 30% local hire requirement are provided by the CNMI DOL 

are granted following an assessment of the local labor capacity. At the time the last exemptions 

were provided, it was clear to the CNMI DOL that there were not enough skill construction 

laborers present in the CNMI to perform the labor. This is apparent in all sectors of the economy, 

as businesses, both large and small, are regularly cited for noncompliance primarily due to the lack 

of US eligible workers in the CNMI. 

The issuance of the last exemptions occurred either before or shortly after the CW numerical 

limitation was reached for the first time in 2016. At the time the last exemptions were granted, the 

CNMI did not receive word on USCIS's position on continuing to allow construction workers to 

be processed under the CW program as requested in February 2016. If construction workers were 

to be sourced through the H2-B program, exemptions would be required as there would still be a 

shortage of skilled US construction workers in the CNMI. 

On September 29, 2016, the CNMI Department of Labor placed a moratorium on any future 

exemptions. It should be noted however that the underlying reason for granting exemptions still 

exists. For specialized skills required in a construction project, there are not enough US workers 

available in the CNMI to fill these positions. 

Questions from Raukiug Member Maria Cantwell 

Questions: In 2015, the Treasury Department fined the Tinian Dynasty casino in the 

Commonwealth of the Northern Mariana Islands (CNMI) for money laundering. The 

2 
121 

U.S. Senate Committee on Energy and Natural Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

company had to pay $75 million, the largest fine ever imposed by the Treasury Department 

on a casino. Today, the Best Sunshine Casino is also allegedly under investigation for money 

laundering after reporting revenues nearly 8 times that of Macau's largest casinos. 

a. Are you aware of a federal investigation in to the Best Sunshine Casino? 

Neither I nor the casino regulatory body, the Commonwealth Casino Commission ("CCC") is 

aware of a federal investigation into the Best Sunshine's casino operation. The only information 

regarding a federal investigation has been provided by media reports, but have yet to be 

substantiated. The CNMI stands ready to support any federal investigation related to money 

laundering concerns and is seeking to establish more formal partnerships between the CCC and 

federal partners to curtail any violations oflocal or federal law. 

b. Is there a local CNMI investigation into the Best Sunshine Casino? 

Presently, the CCC is actively monitoring the daily monetary transactions and maintains 24/7 

observations of the casino floor with onsite enforcement agents, who have received training by, 

among others, the U.S. Attorney's Office. Any allegation received by the CCC is immediately 

reviewed to determine whether the allegation(s) are founded or unfounded before opening an 

official investigation. Based on the review of the allegation(s), the CCC would reach out to federal 

law enforcement for assistance or to transfer cases that involves violations of federal laws. The 

CCC has full time staff responsible to provide regulatory oversight over the Licensee (IPI) 

including IPI's compliance with the CNMI PL. 18-561 and PL 19-242

, CNMI Casino 

Regulations, 3 and the CNMI Casino Minimum Internal Control Standards (MICS). 

Wanton violations of CCC Regulations, and both Local and Federal Laws will result in the 

revocation of the Casino License. The CCC and the CNMT Government is closely monitoring the 

activities of the Casino and is willing to undertake the revocation process if these requirements are 

not followed. 

c. Is there a local mechanism in place to detect and prevent money laundering at 

casinos? 

The CCC has implemented CCC Regulation Section 175-IO.l-545(k), which requires IPI to 

develop an Anti-Money Laundering (AML) compliance program to ensure compliance with 

federal and local laws and regulations. This regulation reinforces the CCC's commitment that IPI 

complies with Title 31 (BSA) requirements and to prevent violations similar to those found in the 

Tinian Dynasty Casino. 

An Anti-Money Laundering program is comprised of the following four pillars: 

3 
122 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

1) Develop and implement internal policies, procedures, and controls; 

2) Designate a Compliance Officer in charge of the day-to-day compliance with the BSA, 

3) Develop and implement an ongoing employee AML training program, and 

4) Require independent audits to test the programs. 

The IPI has implemented and maintained an AML program where it has developed written policies 

and procedures, formed a legal and compliance department which is in charge of day-to-day BSA 

compliance, provides AML training, and has contracted Ernst & Young to conduct its independent 

test on IPI AML program. 

The CCC has mandated that prior to the granting of a casino license to !PI Employees and/or Key 

Employees, each IPI regular or key employee must undergo AML training, be issued a certificate 

of completion, and attach the certificate to his or her employee license application before an 

application can be considered complete for review by the CCC. 

The CCC has mandated that IPI submit copies of all Currency Transaction Reports ("CTRs") and 

Suspicious Activity Reports ("SARs") that are filed to FinCEN by IPI. 

Continuous regulatory reviews of Know-Your-Customer ("KYCs") records, Source of Funds 

("SOFs") records, and patron gaming activities. 

For good cause determined at the January 30, 2017 public meeting of the Commonwealth Casino 

Commission, the Commission (CCC) issued Commission Order No. 2017-001 which ordered the 

following: 

1. All employees of the casino which require licensure, including but not 

necessarily limited to: management, owners, members of the Board Directors, attorneys, 

gaming employees, marketing employees, employees engaged in collection activities, and 

other staff must be trained regarding Title 31 Anti-Money Laundering laws and re&rulations 

of the United States of America as it pertains to the compliance of responsibilities under 

the Bank Secrecy Act, the applicable laws and regulations of the Commonwealth of the 

Northern Mariana Islands, and internal policies of the casino licensee. 

2. A Certificate of AML Training Completion must be issued to all listed above and 

a copy must be provided to the Commission. 

3. On a yearly basis, the casino licensee must acquire and retain an independent 

third party, acceptable to the Commission, to review the casino gaming licensee's 

compliance with required Anti-Money Laundering laws and policies. 

4. The persons providing the training for the casino licensee pursuant to paragraph 

above must be approved by the Commission prior to providing such training. The 

curriculum must be submitted to the Commission for review at least thirty (30) days prior 

to implementation of the training. 

4 
123 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

5. The actions required by paragraphs 1 and 3 above must be completed no later 

than sixty (60) days after the receipt of this Order. Documentation that this paragraph 5 

has been completed shall be submitted to the Commission. Thereafter, trainings required 

by paragraph 1 above shall occur for newly hired licensed employees within seven (7) days 

of their hiring; all licensed employees shall be retrained yearly. 

Further, the CCC has set in place the following mechanisms to detect and prevent money 

laundering: 

Mandated updates during Commission monthly meetings to reinforce AML awareness 

and significance; 

• Conducts continuous and ongoing intelligence gathering; 

• Conducts investigations based on information contained in SARs; and, 

Performs other related task as part of the CCC' s regulatory oversight. 

As you can see, the regulatory environment in which the CNMI is regulating the Saipan Casino is 

dramatically different than as was the case with the Tinian Dynasty casino and created with great 

effort to ensure that the violations were not repeated. The Tinian Dynasty was penalized for the 

following determinations: 

l) Willful failure to develop and implement an anti-money laundering program; 

2) Willful failure to report transactions involving currency in amounts greater than $10,000; 

and, 

3) Willful failure to detect and adequately report suspicious activities and transactions in a 

timely manner. 

The Tinian Dynasty Casino, at the time of its operations, operated under the assumption that the 

laws for which they were found in violations were not clearly applicable to the CNMI. However, 

the Federal District Court's 2015 opinion (United States of America v. Hong Kong Entertainment. 

Case No. 1:13-cr-00002) clarified the applicability of the Bank Secrecy Act (BSA) and the 

Financial Crimes Enforcement Network's (FinCEN) and found that regulations do apply to the 

CNMI. With this clarification, the operators in the CNMI have full understanding of the 

application offederal regulations and is expected to conform to them. 

The CCC in their operations have taken the previous issues related to adherence to AML laws and 

regulations into great consideration when crafting the governing regulations for the Saipan casino. 

Most importantly, I have tremendous faith in the staff and management of the CCC and believe in 

5 
124 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

their commitment to uphold the laws and requirements governing casino operations. The men and 

women of the CCC are diligent public servants who have trained with our federal partners to ensure 

they have the skills and resources to perform their important responsibilities. 

d. If there is a local mechanism, but a local investigation is not ongoing, why not, given 

press reports of an FBI raid on Best Sunshine's headquarters and a former 

employee's allegations of money laundering? 

The CCC conducted its local investigation in the records and reports of !PI and found no 

substantive evidence supporting the allegations of money laundering by their former employee. 

From the investigation, it was found that the specific transactions alleged by the complainant as 

IPI' s attempt to circumvent the FinCEN reporting requirements cannot be substantiated by CCC. 

The required CTRs for the specific transactions were in fact filed and reported to FinCEN. The 

CNMI Casino Regulations made it an obligation for any casino employee to immediately report 

to the Commission any violations of the CNMI casino law or regulations. In this case the 

complainant failed to report to the Commission any of the violations that he alleged occurred at 

the Best Sunshine casino floor. The complainant in effect committed a violation of the CNMI 

Casino Regulations for failure to report the alleged violations to the CCC. 

e. What additional mechanisms are necessary in the CNMI to prevent money 

laundering? 

The CNMI understands the importance of ensuring that IPl maintains a robust AML program 

based on the best practices from around the nation. Furthermore, the CCC has developed policies 

that must be strictly adhered to by IPI on its AML program. Any deviation or non-compliance will 

be met with swift action from the Commission, including the revocation of the Casino license. The 

CNMI has also communicated with federal law enforcement partners to collaborate on ways to 

stay actively engaged in the continuous monitoring of the activities ofiPI for indicators of potential 

money laundering activities. The CCC monitors the Suspicious Activity Reports (SAR) and the 

Cash Transaction Reports (CTRs) on a daily basis. In addition, CCC monitors all Settlement 

Agreements on VIP patrons playing on credits. Prior to the issuance of credit, the casino performs 

their due diligence on the players which included a review of the applicants' credit check, wealth 

check, litigation check, etc. This is a critical part of the Know-Your-Customer (KYC) that is a 

requirement of the AML program. The CCC monitors the KYCs as part of the Commission's audit, 

compliance, and enforcement tasks. 

The CCC also requires the casino licensee (IPI) to submit monthly reports showing their complete 

Vendor Lists. The monthly Master Vendor List shows the names and addresses of the payees, 

amount, purpose, and other detailed descriptions of the transaction. 

6 
125 

U.S. Senate Committee on Energy and Natural Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

f. If yon are not sure of what additional mechanisms are necessary to prevent money 

laundering, what is your plan and time frame for determining what additional 

mechanisms are necessary? 

At my requests, the CCC is presently reviewing other States' statutes on anti-money laundering. 

The CCC aims to prepare a draft bill to present to the CNMI legislature for consideration. This 

action will take 2-4 months. 

Questions from Senator Mazie K. Hirono 

Question 1: People from the Freely Associated States can work in the Marianas, too, without 

needing a CW permit or any other special visa. The GAO's report said in 2003, 1,909 freely 

associated state workers were employed in the CNMI as compared with 677 of these workers 

in 2015, according to CNMT tax data. Is your government or are your local businesses doing 

anything to fill your need for workers by recruiting from the Federated States of Micronesia, 

Palau or the Marshall lslands? 

Workers from the Freely Associated States ("FAS') are a critical component of the current 

economy and our ongoing workforce development efforts. A number of factors have led to the 

reduction in numbers in the CNMI, of which the most prominent is that the economy of the CNMI 

in 2003 was dramatically different than today. In 2003, the CNMI GDP was at its decades long 

peak at $1.7 billion, with garment manufacturing still a present industry. Since that point, the 

economy took a painful a 6-year decline. At the lowest point within this period, the economy 

contracted by approximately $770 million reaching $900 million in 2009. This persistent economic 

depression, to which we are still recovering from, resulted in a loss of jobs for all workers, US 

citizens and FAS citizens included. Since that point, employment for domestic workers, including 

F AS citizens, has increased. 

There are also other factors that have reduced the number of F AS workers in the economy 

including lower wage levels compared to other states and territories. However, since the enactment 

of US Public Law ll0-28, wages have increased steadily and are to reach the federal level by 2018. 

A more important factor relates to the concept of chain migration. Since losing jobs and 

opportunities throughout our years of economic depression, many F AS citizens have left the CNMI 

for outside employment opportunities. Without a larger presence ofF AS citizens in the CNMI, the 

population of F AS citizens to entice their networks outside of the CNMI to move here is 

diminished. 

Despite these factors, I have personally undertaken efforts to build intergovernmental relationships 

with the leaders throughout the F AS to see how we can entice more of their citizens to live and 

work in the CNMI. In fact, prior to being requested to provide testimony to this Committee, l had 

arranged to visit the Republic of the Marshall Islands, and the Federated States of Micronesia to 

7 
126 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

meet and discuss the opportunities for regional collaboration in workforce development. Since 

altering these travel plans, my office is making arrangements with these countries and the US State 

Department to continue this important endeavor. 

Ultimately, as more businesses develop, and jobs are created, opportunities to hire more workers 

both US citizens and citizens of the FAS will emerge. As these workers take on these jobs and 

increase their skills they will be better suited to take on the jobs currently occupied by foreign 

workers in line with the mandates of US Public Law 110-229. 

Question 2: H.R. 339 bars the use of CW permits to hire new foreign construction workers. 

Why do yon think this is necessary for economic development in the Marianas? 

The CNMI does not have the requisite number of construction workers on-island to continue to 

grow our economy, and because of that, the bar on the use of CW permits for foreign construction 

workers has the potential to negatively affect the economic development of the CNMI. Despite 

this fact, the policy offered in HR 339 provides the wider economy a greater level of stability not 

present in the current system. I have made many efforts to advise USCIS of the negative 

repercussions of their current CW processing system and have requested they make necessary 

revisions to ensure single industries or companies do not hamper the larger economy. Specifically, 

I have previously highlighted the following issues: 

• The processing of CW permits on a "first come first served" basis opens the possibility for 

employers to submit large applications for the limited available permits affecting a large 

number of businesses who rely on CW workers due to the lack of either available 

alternative visa classifications or US eligible workers. This practice redirects the entire 

economy artificially, potentially directing all economic activity to a small sector at the 

expense of established businesses. 

• Alternative visa classifications exist for construction workers. Workers entering the CNMI 

for construction occupations have an alternative visa available to them under the H2-B 

program. 

• The CNMI has no input into the allocation of the CW permits which would be necessary 

to direct resources toward transitioning occupations out of the CW program. If we did have 

this the opportunity to collaborate in the allocation of CW permits, we would have greater 

control over the concentration of foreign workers in certain occupations. 

The events of the last year with regard to labor shortages and illegal immigration have validated 

these concerns and in the absence of partnership with the federal government in the allocation of 

CW permits, something must be done to ensure the larger economy is not crippled by the 

overabundance of demand for CW permits in a single sector. 

8 
127 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

Question 3: On March 30, 2017, the FBI executed a search warrant and made an arrest at 

the offices of Imperial Pacific International, which is constructing a casino in Saipan. The 

FBI made the arrest in response to the death of a Chinese worker at the Imperial Pacific 

Resort construction site. The Chinese worker was found to have entered the CNMI on March 

7, 2017, as a visa parolee/tourist and that the individual was not authorized to work in the 

U.S. or the CNMI. During the FBI's search of the offices, it found 400 Chinese passports, of 

which 189 belonged to persons who arrived in Saipan as visa parolees/tourists and had 

already overstayed their visa. Could you update the committee on steps your government is 

taking to improve working conditions and address cases of illegal employment in CNMI 

including challenges you face in these tasks? 

The CNMI takes the issue of illegal immigration very seriously. However, under US Public Law 

ll 0-229, the CNMI has relinquished its control over immigration to the Department of Homeland 

Security ("DHS"), which has limited our ability to directly enforce federal immigration laws. 

However, the CNMI has taken steps to work collaboratively with the federal government to ensure 

this practice does not continue. My office is working directly with DHS to submit an application 

for participation in the 287(g) program authorized by the Immigration and Nationality Act, which 

would allow greater cooperation between the CNMI and DHS to detain and deport illegal 

immigrations. I am working with the CNMI Legislature to pursue local laws that will criminalize 

the practice of bringing in workers to the CNMI as a tourist. And I was pleased to learn that 

Imperial Pacific has now implemented a worker verification system for their construction site, in 

order for them to be directly involved and take direct responsibility over the workers entering the 

site by their various subcontractors, and I will work with the Commonwealth Casino Commissions 

("CCC") to continue to promote this practice. 

Additionally, the CNMI, through the CCC, is in the process of levying fines and penalties on IPI 

vendors who have unlawfully sourced foreign labor, and the CNMI has collaborated positively 

with the US Department of Labor to ensure all workers receive compensation for the work 

performed and are retuned back to their country of origin if not legally present in the CNML 

The practice of illegally brining in foreign workers is detrimental to our economy, and our image. 

It is not tolerated and I will pursue all possible angles to be a proactive partner in curtailing its 

practice, while maintaining our economic growth responsibly. 

Questions from Senator Catherine Cortez Masto 

Question 1: As I am snre you know, human trafficking is an immense problem facing our 

society. The International Labour Organization estimates that there are more than 20 

million victims of human trafficking globally, 68 percent of whom are trapped in forced 

labor. After learning of the FBI's recent investigation and arrest of a subcontractor 

operating in CNMI, which was found holding the passports of 400 Chinese workers, I am 

concerned that the flow of foreign labor into CNMI without the appropriate safeguards, can 

9 
128 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

create conditions ripe for labor trafficking. What enforcement and educational 

programs/policies does local law enforcement have to ensure that forced labor is not being 

used in the CNMI's construction industry? 

I agree with your concerns about human trafficking and commend you for your years of advocacy 

on this important issue. I do not wish for the CNMI to compound to the global trade of forced 

labor, and firmly believe the CNMI has made remarkable progress in worker's rights. The most 

recent situation regarding construction workers is troubling, but as in economies throughout the 

United States, bad actors will always attempt to circumvent laws for private gain. ln effort to curtail 

this practice, I have worked closely with the Commonwealth Casino Commission, US and CNMI 

Departments of Labor and Imperial Pacific International to ensure this practice is not only 

condemned but halted. 

In the recent weeks, the CNMI government has collaborated with the US Department of Labor to 

seek payment for the wages of foreign workers who have entered the CNMI illegally. Since 

appearing before the committee earlier this month, the CNMI, alongside the US Department of 

Labor, facilitated the payment of$ll million in back wages of 104 foreign workers. 

While the CNMI no longer has authority over immigration to the islands pursuant to the enactment 

of US Public Law 110-229, I am working alongside the CNMI Legislature to create local statutes 

that would criminalize the practice of employers illegally sourcing their foreign labor and will 

continue to use the resources available to me to inform the business community that the practice 

of illegally trafficking foreign labor not only paints a poor picture of the CNMI, but also affects 

the wider economy at a time where we need economic development urgently. 

While we work toward strengthening our deterrents to prevent employers from taking advantage 

of their workers, the illegal hiring and employment of foreign workers is indicative of the 

difficulties all employers are experiencing in hiring and staffing their operations. In the absence of 

skilled US-eligible workers, employers are taking greater risks in contravention of the law to meet 

the obligations of their contracts. Rather than dealing with the ramifications of illegal practices, I 

ask for recognition of the CNMI's need for increased legal avenues for foreign labor so that the 

labor market can be legitimate, and trackable so laws relating to the proper and just treatment of 

workers can be more readily enforced. 

Question 2: How is local law enforcement working with the FBI and other federal agencies 

on this issue? What measures are in place to prevent these visas from being issued for forced 

labor purposes? 

The CNMI is working closely alongside the US Department of Labor to track and resolve issues 

of unpaid wages and workforce violations. As we continue the process to strengthen our 

enforcement capabilities in light of recent events, we look forward and welcome increased federal 

partnership to provide an economy that is conducive to much-needed economic growth and that 

protects its workers. 

10 
129 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

Questions from Senator Chuck Grassley 

Question 1: Your testimony and the GAO report provided by Mr. Gootnick make it clear 

that one of the primary reasons for CNMI's 2017 labor shortage is the enormous influx of 

Chinese construction workers who are not eligible for H-2b visas and were brought in to 

complete the Saipan casino project. When your government negotiated that agreement, 

which is largely funded by Chinese investors, and which requires that the initial gaming 

facility be completed by August, 2017, you waived the requirement in CNMI's local law that 

30 percent of those employed on the project be U.S. workers. 

Given the size of the project, and the apparent likelihood that the Chinese developers would 

import large numbers of Chinese workers who are not eligible for H-2B visas what steps did 

you take: 

a. When negotiating the agreement to assess the impact on the local labor market; 

b. To preserve CW visas for more skilled workers; and 

c. To protect economic opportunities for native CNMI workers? 

The Casino License Agreement between the CNMI and the licensee IPI, a local workforce 

participation target was set for 65% of the total labor force. While this agreement covers the 

operations phase of the Casino and not construction, it was believed that the segmented phases of 

the planned development would provide time for the development to build upon its plans in a 

manner that would not hamper the larger economy. Since this is the first major development in the 

CNMI in decades, following our severe economic depression of recent years, and the first major 

development since the enactment of Public Law 110-229, there were many unforeseen issues that 

are playing out today. 

In light of these issues, and to provide a more accurate timeline that does not negatively impact 

the economy, the CNMI is in the process of renegotiating the License Agreement to further extend 

the implementation schedules to allow IPI to implement the necessary human resource system to 

prevent violations and be better aligned with the transition period, including the greater emphasis 

on US eligible workers in the construction stages and the potential limitation on CW permits for 

construction operations. 

Already, in the Live-training facility, the Casino operation has employed more than 600 local and 

US-eligible workers, which has provided job opportunities and wages to our population. As the 

next phase of the development plan continues toward completion, I anticipate more US-eligible 

and local workers entering the labor force at an even greater rate as more vacancies open and 

complementary industries arise. This ability to utilize foreign workers to increase domestic 

employment is presented in the most recent GAO Report. 

11 
130 

U.S. Senate Committee on Energy and Natural Resources 

April27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

In the absence of this economic grovvih, there would be less business activity and, in turn, fewer 

job opportunities in a wide array of occupations, for all workers in the economy as we have seen 

in the years between the peak of our recent economy in 2003 to the subsequent downfall we are 

only now building from. The estimated loss to CNMI Gross Domestic Product following the end 

of the transition period in 2019 of 26 to 62 percent will see a dramatic reduction in the size of 

employment for US-eligible and local workers. 

Ouestion2: You noted that one of your most pressing needs is for more nurses. Specifically, 

you said that the primary hospital in Saipau will lose 39 "staff nurses" if the measure is not 

passed to permit additional CW-1 workers this year. Of those 39 nurses, have any applied 

for extensions of status or for discretionary relief from removal, with DHS? 

On November 2, 2016, the Commonwealth Healthcare Corporation (CHCC) management sent a 

written request with Congressman Kilili Sablan. See "Letter Request for Assistance to Seek 

Humanitarian Parole for 39 "Capped-Out" Healthcare Professional Workers for FY 2017" for 

further details. 

Human Resources staff at the CHCC filed a request for extension of stay for April 2017 expiry but 

was rejected by USCIS for reason that the CW-1 cap for FY 2017 was reached as of October 14, 

2017. 

One of the CHCC staff nurses, Ms. Marites Guzman, whose CW-1 status expired on April 26, 

2017, applied for humanitarian parole with USCIS, but was denied. Ms. Guzman has a 7yo UScitizen son. She filed a request for a deferred action but to date, the USCIS has not given its 

determination yet. Ms. Guzman is scheduled to depart the CNMI on May 6, 2017. 

a. The hospital's web site lists compensation for staff nurses (which includes 

registered nurses) as $24,889.35 - $36,000. 4 The Bureau of Labor Statistics lists 

the mean annual wage for a registered nurse as $72,180. 5 What effort is your 

government making to close this compensation gap to attract qualified U.S. 

workers? 

For the FY 2018 budget, the Commonwealth Healthcare Corporation included a significant 

increase for all Staff Nurses, Head Nurses, Senior and Junior Nurse Supervisors and the Director 

of Nursing, bumping up budget needs by approximately $4.8 million for increases of nursing staff 

salaries alone. It is uncertain whether funds will be available to accommodate such an increase. 

The CHCC is currently awaiting the approval of the CNMI Attorney General's office for an 

agreement with Vero Nursing, which specializes in the recruitment of traveling nurses. The CHCC 

12 
131 

U.S. Senate Committee on Energy and Natural Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

is planning to hire six (6) traveling nurses to address the July capped-out CW-1 's to address the 

shortage. Application processing for CNMI licensure will be expedited for the traveling nurses. 

The CHCC also has an agreement with Fernandina College, based in Florida. The CHCC will be 

used as the college's clinical training site for nursing students. The CHCC plans to offer nursing 

trainees a competitive salary upon completion of their clinical training. 

Additionally, the CHCC is applying with the National Health Service Corps loan repayment 

program for U.S. qualified nurses as incentive to work for the CHCC. By offering a more 

competitive salary and making loan repayment assistance available, the CHCC expects to be able 

to bring in US-qualified nurses for 2-year contracts at minimum. 

Furthermore, the CHCC is expanding advertising of nursing vacancies with additional marketing 

resources and social media. 

b. What are the nationalities of the 39 nurses whose visas will expire? 

The total number of hospital workers (nurses and ancillaries) which are "capped-out" and must 

depart the CNMI has decreased from 39 to 36 due to recent resignations of the three nurses in 

March of 2017. The nationalities of the current number (36) of capped-out workers are: 

Filipino: 35 

Chinese: l 

c. Have you explored the possibility that these nurses may qualify for H-IB or H-lC 

visas? 

The CHCC has consulted immigration experts and has been advised that registered nurse do not 

qualify for the H-IB specialty occupation classification. See attached USCIS policy memo PM602-0104 dated February 18,2015. 

All eligible applicants for the H-lB visa classification must possess a bachelor's degree or its 

equivalent in the same field or a related field (this is a minimum requirement). Many job offers 

for RNs only require the completion of a two year, associate's degree. Accordingly, numerous 

applications for the H-IB visa filed for Registered Nurses are denied by USCIS. Currently, the 

CHCC does employ one nurse who works in a managerial position under an H-IB visa. The H-IB 

visa for this nurse has expired and is in process for extension. 

The H-IC Registered Nurse visa classification expired on December 20, 2009. 

d. In his testimony, Acting Assistant Secretary Pula indicated that 125 nurses will 

leave due to the expiration of their CW visas, and Congressman Sablan indicated 

13 
132 

U.S. Senate Committee on Energy and Natural Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

that 139 nurses would leave. What is the ACTUAL number of nurses who are in 

need of a CW visa? 

The reason for this discrepancy in reported numbers is because the actual number is a moving 

target. Due to the uncertainty of their positions, and in the best interest of their families, several 

CHCC employees have opted to resign even before their permit expires and some have already 

returned to their home country. As of May 3, 2017, the number of total health care professional 

workers under CW -1 classification is 171. The professionals under the CW -1 are broken down 

below: 

Registered Nurses: 110 (36 of which are "capped out" for FY 17) 

Licensed Practical Nurse: 24 

Ancillary staff: 3 7 

e. How many nursing students are currently enrolled in Northern Marianas 

College's nursing program? How many students graduated from this program 

from 2012-2016? 

The Northern Marianas College nursing program has two cohorts: the 1st Year and the 2nd Year 

cohorts. The 1st Year Cohort has seventeen ( 17) students; they are expected to be graduating in 

2018. The 2nd Year Cohort has eighteen (18) students who are planning to graduate this May 20, 

2017. 

The table below shows the graduation numbers for the years requested, along with their NCLEX 

pass rate. 

Number of Number of 

Year Number of Graduates Graduates Pass 

Graduates who sat for who passed Rate 

theNCLEX theNCLEX 

2012 16 7 3 43% 

I 2013 35 6 2 33% 

I 2014 22 14 7 50% 

2015 06 NA NA NA 

2016 15 9 6 67% 

6 The Northern Marianas College (NMC) nursing program did not have any nursing graduates during the May 21. 

2015 Commencement Exercise because a new cohort was not admitted in the Fall of2013 due to the NMC's 

accreditation status (on Showcause ). NMC Administration decided to not allow new admission in that year because 

if the NMC did not get reaffinncd. students would have had to repeat their nursing courses taken at NMC if 

transferred to another college/university. or tisk being on a 3-year waiting list to enter a nursing program. The 

University of Guam was unable to guarantee that their program could absorb NMC students into their program 

should the NMC not get reaffirmed. As a result. the NMC concentrated on 2nd year students already in the program 

for SY 2013-2014. accelerated the nursing courses, and held a December 2013 Intercession to graduate them in May 

of2014. 

14 
133 

U.S. Senate Committee on Energy and Natnral Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

f. Please describe any efforts made to recrnit or retain the grad nates in question (e), 

above. 

In accordance with CNMI Public Law No. 14-062, an interim permit, not to exceed one year from 

date of graduation, may be issued to nurses who graduated from a recognized nursing program 

such as the Northern Marianas College. 

The CHCC provides an employment opportunity within one year of graduation for those who hold 

these interim permits as "Graduate Nurses". Graduate Nurses must pass the National Council 

Licensing Examination (NCLEX) for Registered Nurse or License Practical Nurse within one year 

of the date of their graduation to maintain licensure. Upon, passage of the NCLEX Exam, the 

CHCC hires them into Registered Nursing positions with a salary increase to the level of a 

Registered Nurse or Licensed Practical Nurse. 

The CHCC Chief Executive Officer and human resources staff met with nursing students and 

graduate nurses to better understand their barriers to becoming registered nurses. They found that 

many of the students that are being trained locally as nurses are from low-income families with 

little access to quiet space for studying, can't afford to take time off to study, and find it difficult 

to pay for the testing and application fees. In light of these factors, the CHCC has made plans to 

boost support for Graduate Nurse professional development. 

Should a Graduate Nurse avail of the CHCC's professional development package, subsequently 

pass the NCLEX exam, and become a registered nurse, the individual must sign a two (2) year 

continuous employment contract with the CHCC. Breach of the contract requires that the 

individual reimburse the CHCC the cost of the "Graduate Nurse Professional Development 

Package". 

The Graduate Nurse Professional Development Package includes: 

• A paid 8-week on-line review for the NCLEX-RN Examination through the National 

Council of State Boards of Nursing (NCSBN). Alternatively, the student may choose a 

different review program, but the CHCC's financial support of the review does not exceed 

$100USD. 

• Paid $200USD NCSBN registration and $11 OUSD CNMI Examination. 

• Use of a quiet study area in the Medical Library on the CHCC campus. 

• Paid administrative leave of up to two (2) weeks to study for the NCLEX examination. 

Graduate Nurses would not be required to reimburse the CHCC for these expenses should they not 

pass the RN/LPN NCLEX examination. Those Graduate Nurses that do not pass the NCLEX 

15 
134 

U.S. Senate Committee on Energy and Natnral Resources 

April 27, 2017 Hearing 

H.R. 339, the Northern Mariana Islands Economic Expansion Act 

Questions for the Record Submitted to the Honorable Ralph Deleon Guerrero Torres 

within a year of graduation may seek licensure as a Certified Nursing Assistant (CNA) at his or 

her own expense, and may seek employment with the CHCC at a CNA salary. 

Additionally, in order to retain US-qualified nurses and attract additional nurses, the CHCC is in 

the process of finalizing a new pay scale for nursing staff at significant increases from the current 

scale. 

16 
135 

U.S. GOVERNMENT ACCOUNTABILITY OFFICE 

441 G St. N.W. 

Washington, DC 20548 

May 18, 2017 

The Honorable Lisa Murkowski 

Chairman 

Committee on Energy and Natural Resources 

United States Senate 

The Honorable Maria Cantwell 

Ranking Member 

Committee on Energy and Natural Resources 

United States Senate 

Implementation of Federal Immigration Laws in the CNMI: Questions for the Record 

On April 27, 2017, we testified before your committee in the hearing on H.R. 339, the Northern 

Mariana Islands Economic Expansion Act. You requested that we provide additional comments 

to several post-hearing questions. The questions and our answers are provided in the 

enclosure. The responses are based on work associated with a report that was published today 

(May 18, 2017). 

If you have any questions about this letter or need additional information, please contact me at 

(202) 512-3149 or gootnickd@gao.gov. 

Sincerely yours, 

David Gootnick\signed\May 18, 2017 

David Gootnick 

Director 

International Affairs and Trade 

Enclosure 

Page 1 
136 

Enclosure 

Questions for the Record 

"H.R. 339, the Northern Mariana Islands Economic Expansion Act" 

Hearing Date: April 27, 2017 

Questions for Dr. David Gootnick 

Chairman Lisa Murkowski 

1. If this legislation were to pass, it would limit construction workers under the CW 

program to those who had permits prior to October 1, 2015, and have renewed them each 

year since. How many construction workers would that leave available in the CNMI via 

the CW program? 

We are unable to provide the number of construction workers that would be available under the 

CW program in the CNMI for two main reasons. If the legislation were to pass, the number of 

construction workers would depend, among other things, on: (1) how the U.S. Department of 

Homeland Security's (DHS) U.S. Citizenship and Immigration Services (USCIS) defines 

construction workers for purposes of permits issued under the current CW program, as 

compared to the definition of construction occupations provided in H.R. 339, and (2) how USCIS 

interprets the extension of "a permit first issued before October 1, 2015," as currently written in 

H.R. 339. 

Construction worker. In order to obtain the CW-1 permit for a foreign worker, employers are 

required by USCIS to fill out form I-129CW, Petition for a CNMI-Only Nonimmigrant 

Transitional Worker, and check a box on the form certifying that the position falls within the 

list of occupational categories designated by the Secretary of Homeland Security at 8 C.F.R. 

§ 214.2(w)(1)(ix). One of the listed occupational categories is entitled "Miscellaneous 

occupations." Once the petition is received, USCIS adjudicators assign a "job code" to the 

form. One of the job codes that adjudicators could enter is called "Miscellaneous," which 

includes an occupation entitled "construction trade." USC IS would need to compare its 

definition of "construction trade" to the U.S. Department of Labor's Standard Occupational 

Classification Group 47-0000 entitled "Construction and Extraction Occupations." USCIS 

approved 1,105 CW-1 permits in fiscal year 2015 and 194 CW-1 permits in fiscal year 2014 

for foreign workers in the occupational category "construction trade," according to USC IS 

data. Depending on whether USC IS defines "construction trade" as more inclusive or less 

inclusive than the Department of Labor's Standard Occupational Classification Group 47-

Page2 
137 

0000 could lead the number of available permits under the language of H.R. 339 to be either 

higher or lower than these numbers. 

Extension of permit. USC IS would need to determine if foreign workers who were granted 

CW-1 permits in fiscal years 2012 to 2014 in occupations labeled "construction trade" but 

were not granted CW-1 permits in fiscal year 2015 would be eligible to apply for a new CW-1 

permit in fiscal year 2017 and beyond. 

1a. Given that the vast majority of investment is from Chinese companies, and Chinese 

companies tend to only use Chinese labor, how likely are those companies to seek out 

non-Chinese labor for their projects, versus ending the project altogether if they can't 

use Chinese labor? 

During our audit work, we did not ask Chinese employers about the likelihood of hiring nonChinese labor for their projects. However, we noted that the Consolidated Natural Resources 

Act of 2008 allows CNMI employers to petition for H-2 visas and bring temporary workers, such 

as construction workers, to the CNMI without being limited by the numerical restrictions for such 

visas. Although China is not listed as an eligible country for H-2 visas, other Asian countries that 

are eligible in fiscal year 2017 include the Philippines, South Korea, and Thailand, among 

others. Chinese employers can still request H-2 visas for Chinese workers, and this status may 

be granted if DHS finds that it is in the U.S. interest (see 8 C.F.R. § 214.2(h)(6)(i)(E)(2)). USCIS 

may alternatively grant Chinese visitors parole into the CNMI for urgent humanitarian reasons or 

significant public benefit. In 2016, USCIS granted parole to 118,032 of 248,234 (or 48 percent) 

total travelers to the Saipan Airport. 

Senator Mazie K. Hirono 

2. In your testimony you interviewed employers in the CNMI who told you that the 

benefits of the job training programs supported by the CW-1 vocational education fees 

were limited to Saipan and that programs run by Northern Marianas College and Northern 

Marianas Trades Institute were unavailable on Tinian and Rota, home to around 5,000 

people. What sorts of barriers are there preventing these programs to be provided to the 

islands of Tinian and Rota? 

Job training supported by the CW-1 vocational education fees is generally available on Saipan 

and to a limited extent on Tinian and Rota. Northern Marianas College reported providing 

Page3 
138 

vocational activities on Tinian and Rota in fiscal years 2013, 2014, and 2015, but not in 2016. 

The college reported using CW-1 funding to help support 88 students on Tinian and 46 students 

on Rota in fiscal year 2015. At present, the Northern Marianas Trades Institute offers training 

only on Saipan, but it is exploring opportunities for expanding to Rota in the near future. None of 

the 9 representatives from Tinian businesses and 16 representatives from Rota businesses that 

participated in our discussion groups told us that they had benefited from the training programs 

offered by the college and training institute. One employer said the training offered is irrelevant 

to his businesses while another employer said that to attend training residents must fly to 

Saipan and pay for their own travel and housing, which can be very expensive. 

We reached out to Northern Marianas College and Northern Marianas Training Institute for their 

views on barriers to expanding job training programs to Tinian and Rota. According to college 

officials, recent barriers included shortage of qualified resident staff, lack of computer facilities 

with the necessary connection speeds for online certification exercises and examinations, 

difficulty with sending appropriate materials to Tinian and Rota, and interruptions in air travel 

between the islands. Climate change could further affect future travel between the islands, 

according to the officials. However, the officials stated that the college has established and 

staffed instructional facilities on both islands to support vocational activities, is planning 

professional development for staff, and is upgrading computer facilities. The training institute 

identified three main barriers: insufficient funding, scarcity of qualified resident instructors, and 

the current CNMI wage structure, which discourages workers from seeking training to improve 

their skills because employers offer the same salaries for both entry-level and skilled-worker 

positions. 

3. To what extent would you say the increase in CW fees under H.R. 339 could help 

expand access to job training for Tinian and Rota as well as increase the number of jobs 

for U.S. workers in the CNMI? 

In fiscal years 2012 through 2016, DHS transferred about $9.1 million in CW-1 vocational 

education fees to the CNMI. Of that amount, the CNMI government allocated about $5.8 million 

to local educational entities and holds about $3.3 million, available for allocation, in a local bank, 

according to the CNMI Department of Finance. Using the $3.3 million, as well as any additional 

funding that may result from the increase in the CW-1 vocational education fee, could potentially 

help expand access to job training on Tinian and Rota, or support other training activities. 

Page4 
139 

Senator Catherine Cortez Masto 

4. The bill we are considering today would stop new CW visas from being issued to 

construction workers. Some of the other witnesses have said that construction workers 

can be brought in through other visa programs, specifically H-28 visas. However, your 

testimony mentions that China is not listed as an eligible country for H-2 visas and that 

many of the workers being approved for CW permits are Chinese. Could you discuss any 

other ways that Chinese construction workers would be able to legally work in the CNMI? 

If this legislation were to pass, it would limit construction workers under the CW program to 

those who had permits prior to October 1, 2015. While China is not listed as an eligible country 

for H-2 visas, DHS has the discretion to grant H-2 status to Chinese workers if DHS finds that it 

is in the U.S. interest to grant such status. USC IS may alternatively grant Chinese visitors 

parole into the CNMI for urgent humanitarian reasons or significant public benefit. 

5. As I understand it, the unemployed domestic workforce in the CNMI falls short of the 

demand for additional workers in nonconstruction related occupations needed to 

support the ongoing operations and development projects. Can you describe how this 

gap can be narrowed? How can CNMI employers work to recruit and train domestic 

workers? Are there other ways to recruit U.S. workers to the CNMI? 

Narrowing the gap between the supply and demand for CNMI labor would require CNMI 

employers to recruit domestic residents present in the CNMI but not currently in the labor force 

or other U.S. eligible workers. Key sources of additional labor force entrants to replace the 

current CW-1 workers or fill new positions are: 

• New high school or college graduates-totaling 882 in 2016, according to data provided by 

the CNMI's Public School System and Northern Marianas College, 

Domestic residents not in the CNMIIabor force--totaling 9,272 in 2016, according to the 

2016 Health Survey, or 

Other US. -eligible workers from US. states, US. territories, and the freely associated 

states (the Federated States of Micronesia, Republic of the Marshal/Islands, and Republic 

of Palau)-totaling 677 workers from the freely associated states in 2015, according to 

CNMI tax data. 

Page 5 
140 

Our discussion groups and semistructured interviews of CNMI employers revealed several 

strategies to recruit U.S. workers to the CNMI: one employer collaborated closely with the local 

trade institute, another relied on an apprenticeship program offered by the Public School 

System, one tried to recruit workers from Puerto Rico, and another entered into a contract with a 

labor recruiter in Micronesia. However, CNMI employers reported multiple challenges in 

recruiting and retaining U.S. citizens, such as unsatisfactory results of job postings, high costs 

of recruitment, and high turnover. 

Page6 
141 

HR 339 

Additional Testimony of Mr. Jim Arenovski, GCA, CHT 

Island Training Solutions 

Thank you for the opportunity to testify in support of H.R. 339. I may have undersold my position in 

my introduction. Not only do I have a respected and successful compliance and development training 

company that provides services to the islands' largest companies and government agencies, but I own a 

number of businesses that employ 50 staff in the restaurant, wholesale and retail sectors from line to 

manager positions-all but two are a local hires, my two accountants. At the hearing, the Chair 

commented that it would have been appropriate to bring a person from the business community who 

could answer a few questions. Although I felt compelled to answer, I was not called upon to do so. Here 

is my input: 

Recruiting from Freely Associated States is not the answer. First, any discussion about bringing in 

FAS residents is in itself acknowledgement that there are not enough workers in the NMI to supply the 

current businesses in the NMI and certainly not enough to staff any proposed grow. An effort to recruit 

in the FAS has been implemented by a few of my clients with a small amount of success. There are not 

many FAS residents who want to travel to be employed. Those that might want to bring their families; 

and there is no housing. Only a few employers supply housing and it is for the employee only, not the 

whole family. Also as mentioned in my original testimony, if FAS residents were to travel, many choose 

Guam for the slightly higher wage. 

The numbers of FAS potential we are talking about are only in the dozens and the attrition rate for 

those FAS workers is high. Few can meet the rigors of the work style even in Saipan. 

Also, some FAS leadership feel it is a drain of their most skilled and talented residents and resent 

that the NMI or Guam come to take their workers. 
142 

The minimum wage has indeed been increasing and will increase until the federally mandated 

increase reaches the US minimum wage. It is important to note that the current business environment 

has pushed the wage beyond the mandated minimum wage of $6.55 to over $7.25 in many sectors. Our 

governor mentioned the push to increase to the US minimum wage sooner than mandated, but many 

businesses understanding how difficult recruiting staff is, have already moved their wages to or beyond 

$7 .25. Any business not competitive in wages and benefits will struggle in this job market. It is a job 

seekers market and local and CW-1 workers all know it. 

The Northern Marianas College had an island-wide job fair the very day ofthe H.R. 339 hearing. The 

venue maxed out at 50 employers both government and private alike, including representatives from 

my companies. There were about 400 people in attendance who were looking for work. Some were 

seeking full time work, but many were already employed and looking for better opportunities or seeking 

part-time work in addition to the job they currently hold. This job fair was heavily advertised and to have 

400 people is a great number, but still demonstrates how small the available pool of workers is. 

With that said there are still some NMI residents that could work but chose not to. There are many 

reasons that this occurs, but I rarely hear reasoning that can't be worked around and solved. Issues like 

child care, elderly care, transportation, cultural traditions, can be overcome, though not easily. Drug and 

alcohol abuse and related issues are even harder. Understanding the need for alternatives to 

incarceration, the NMI has instituted a drug court to help those first time or early offenders. Only time 

will tell of its success, but this is certainly a step in the right direction. We have to continue to make 

available training opportunities that are convenient to attend, are pertinent to the job market, provide 

encouragement along the way, and are frequent. 
143 

During the hearing, I was painfully reminded of our past troubles during the garment industry days. 

The recent situation of bringing workers on tourists visas, workplace injuries and one death, is a sore 

reminder that we have to be even more vigilant in keeping an eye out for the new contractors wanting 

to do business in the NMI. We are not the NMI of the 80s and early 90s, and we need to do better. I 

absolutely cannot speak for them, but I wish you could see the positive influence the Tan Holdings 

Group has had on the NMI. They own three hotels, and are involved in transportation, shipping and 

ground logistics, high-end retail, and insurance. Just this week they opened Sea Touch, a tourist 

attraction where people can enter the water and have encounters with stingrays and sharks-an 

enterprised staffed mainly with local, US hires. The closest such facility of this kind is in the Caribbean. 

Tan Holdings is a preferred employer to work for and a top philanthropic company, supporting many 

causes from our local Red Cross and Cancer foundations to taking the lead in developing various 

sporting events, especially spearheading the sport of soccer that has hundreds of participants both men 

and women and spanning the very young to adults recreation leagues. Our youth soccer program now 

competes on an international stage, all thanks to Tan Holdings. Lastly they instituted the Pacific Century 

Fellows, a leadership development program for NMI's young professionals. Tan Holdings is an integral 

part of community and the islands success, where there executives, managers and employees give back 

to the NMI daily. I feel it is necessary that, if the Committee feels the need to remind us of the pastand I personally appreciate your concerns-it is also important to see what advances have occurred over 

the last 20-25 years and how this group has had a great positive impact on the NMI. 

There has been an increase of people not being admitted to the NMI for various reasons by USCIS, 

we also need USCIS to work better at communicating overstaying visa holders or to take action 

themselves. Regardless, the NMI as a whole, needs to step up and be more observant and vigilant to 

new businesses in the NMI to prevent future violations. 
144 

I would also like to comment that residents and businesses are in an uproar over the recent 

activities involving companies bringing in staff on tourist visas. No established business or the residents 

in the NMI want new businesses that are here for short term gain to hurt the reputation we have 

worked so hard to improve. I am convinced the business community will be taking a strong stance in 

watching how new businesses operate and will be asking Government to be more watchful and make 

examples of those who choose to break local and federal law. 

A few more points on the need for H.R. 339: Local business are finding great success using the local, 

U.S. hires, but there are just not enough. Over the last decade employers have been hiring and 

developing more local workers and we are at a point where the pool of "willing and able" workers is 

quickly drying up. Every one of my clients and business associates, NEEDS U.S. LOCAL STAFF NOW. Any 

local, U.S. person in the NMI who is "willing and able" to work can find a positon in a few days. Any 

information to the contrary is simply outdated. 

We are mainly seeking and training for entry level jobs, but it is not only entry level that is needed. 

Companies in telecommunications, accountancy, medical, dental clinics or our power utility and hospital 

need qualified staff too. It is hard if not impossible to recruit US workers with technical skills and 

experience in the NMI, many would have to come from the mainland and that it truly a difficult 

proposition. Employers are seeking other visa opportunities, for their technical positions, but other visas 

like H-18 require a college degrees. Many ofthe skilled positions we need in air conditioning or HVAC, 

IT, generator operation and repair, cooks, and those with language skills in the various service and tour 

industries and many more simply do not qualify for these alternate visas. Busienss need the CW-1 

program and workers to remain in businesses. 

The NMI is a remote. Unlike a town in your constituency that found itself with a new industry 

needing more workers than its population, they would simply begin advertising in nearby towns and 
145 

cities and over time people be commuting or even relocate. In the NMI that is far less of a reality for 

many reasons. 24 hour away from the mainland, Small Island, limited US type comforts, it is nothing like 

relocation within the U.S. To expect workers from the states to fill the void is simply unrealistic. 

Opportunity for U.S. local workers is directly tied to the economy and that growth in the economy 

providing jobs to U.S. locals is directly tied to the ability to have the adequate workforce through the 

CW-1 program to have a growing economy. It may sound odd, but by not providing additional CW 

positions as requested in HR339, business may be forced to close, leaving US local workers unemployed 

and our economy in dire trouble. 

In closing, even with all the success in getting local US workers trained and into the workforce, the 

NMI will need the CW program to fill the excess volume of entry level jobs and those technical jobs not 

supported by H visas. The economicfuture ofthe NMI depends on it. 

Thank you 
146 

LoURDES (Lou) A. LEON GUERRERO 

President and 

Cha!roftheBoard BANKOFGUAM 

THE PEOPLE'S BANK 

Headquarters • P.O. Box BW • Hagiltfia, Guam 96932 

Written Testimony of Ms. Lourdes Leon Guerrero 

President and Chief Executive Office, Bank of Guam 

On the Senate's Committee on Energy and Natural Resources 

Consideration of H.R. 339; The Northern Marianas Islands Economic Expansion Act 

April27, 2017 

Tel: (671) 472-5271 

Fax: (671)477-8887 

Madam Chair and Members of the Senate's Energy and Natural Resources Committee, I am thankful for 

your attention and your willingness to accept written testimony on H.R. 339, the Northern Mariana 

Islands Economic Expansion Act. I am equally appreciative of Northern Marianas Islands Delegate, Kilili 

Sablan, for his introduction of this important measure and for his kindness to ensure that my statement 

is submitted for this hearing's record. 

My name is lou leon Guerrero and I have occupied the position of President and Chief Executive Officer 

of the Bank of Guam for the past eleven years. I am submitting testimony in favor of H.R. 339. 

By way of quick background, the Bank of Guam is a community bank which was opened by my father, 

Jesus leon Guerrero, in 1972. At that time, there were several financial institutions operating on Guam 

from the US mainland but from his perspective they were not as responsive to the financial needs of 

individuals and families. Thus, what began as a way to financially empower Guam's residents with 

beginning assets of $1million dollars has grown into a $1.9 billion dollar institution which has at its core 

value what my father envisioned- a bank to serve the needs of Guam's community and also the entire 

western pacific. 

The Bank of Guam is arguably the one bank in the Pacific serving the needs of maturing U.S. territories, 

Guam and the Commonwealth of the Northern Mariana Islands (CNMI), as well as all three developing 

freely associated states, Republic of the Marshall Islands, Federated States of Micronesia, and the 

Republic of Palau. Our headquarters is located in Guam's capital; Hagatna, and we have also established 

branches in each of the areas previously mentioned as well as a branch in San Francisco, CA. We hire 

locally and work to improve the skills, capabilities, and professionalism of all of our employees and make 

it a point to hire locally in every island we are operating. 
147 

As you are aware, the CNMI is in a predicament. It is an economy which once saw the heights of 

economic growth during the 1990's when it took advantage of trade benefits and control over its 

immigration policies to both court and establish a garment manufacturing industry; at its highpoint the 

industry exported an estimated $1 billion dollars in clothing and other apparel to the U.S. mainland and 

the industry's contribution in taxes and other fees amounted to $60 million annually. 

These benefits however did not come without consequences, repercussions, or other actions not under 

the control of the CNMI government, its leaders, or the industry. 

The decline and eventual fall of CNMI's garment industry came about primarily because it lost its 

competitive advantage, over other foreign countries, exporting to the U.S. mainland due to the lifting of 

quotas by the World Trade Organization. In 2009, after years of declining revenue, the last garment 

factory closed. 

Since that time, the CNMI has been struggling to rebuild its economy and its reputation which was 

marred by the reported abuses of guest workers. The CNMI remains a U.S territory with a small local 

population numbering between 20-25 thousand and a remaining guest worker 1/5 the size of itself at 

the height of garment industry. 

In 2009, the U.S. Congress extended U.S. immigration laws to the CNMI. The law was enacted to protect 

U.S. borders in the Pacific, extend protections to existing guest workers, and provide a known regime of 

laws meant to avoid abuses of guest workers coming into the U.S .. The law, was also mindful that the 

CNMI's economy was fledgling and in order to account for recuperation allowed for the continued 

utilization of a guest worker program, expanded the Guam-only visa waiver program to include the 

CNMI and accounted for the CNMI's growing Chinese tourism market, and also provided a funding 

stream to establish education and vocational programs to enhance the skills necessary for the local 

workforce to be able to meet the employment needs of the private sector (thereby relieving the need to 

rely heavily on foreign guest workers). 

The Bank of Guam believes that the steps taken by this Congress, and specifically this Committee, its 

House counterpart, and the House Judiciary Committee were mindful of CNMI's situation and did what 

they believed was necessary to allow the CNMI to recover. 

The Bank further believes that recent administrative actions taken which do not take into account the 

CNMis unique situation will retard and prohibit CNMI's economic growth. We commend Congressman 

Sablan for his legislation which we also believe will install the needed certainties for an isolated yet 
148 

growing economy. The Bank also joins the many leaders and organizations from the CNMI which have 

publicly stated their support for the passage of this legislation; Governor Ralph Torres, Saipan Chamber 

of Commerce, the Hotel Association of the Northern Mariana Islands, and the Commonwealth's 

Strategic Economic Development Council, and its Healthcare Corporation. 

Esteemed Members, residents of U.S. territories, despite living in our own paradises, are very mindful 

that as a part of the American family we are often not thought of when legislation meant to increase 

opportunities and growth for our fellow States and their residents do not extend to us. However, as in 

the case of P.l. 110-229 which was intended to extend US immigration laws to the CNMI and also do no 

harm to its recovering economy is not being adequately implemented then we do have an expectation 

that the Congressional Committees of jurisdiction will intervene on our behalf to do what is right for our 

fellow Americans. 

Thank you for your attention. 

Sincerely, 

~(\.\,~~ lou Leon Guerrero 

President and CEO 

Bank of Guam 
149 

<!Commonb.lealtb ~ealtbcare <!Corporation 

Commonwealth of the Northem Mariana Islands 

I Lower Navy Hill Road Navy HilL Saipan, MP 96950 

CHCC'S TESTIMONY TO U.S. SENATE ON 

CNMI-ONLY NONIMMIGRANT TRANSITIONAL WORKER (CW-1) BILL 

BACKGROUND 

In 201 L the U.S. Department of Homeland Security (DHS) took over the immigration control of the 

Commonwealth of the Northern Mariana Islands (CNMI) and all foreign workers were required to be petitioned 

by their existing employer under the CNMI-Only Nonimmigrant Transitional Worker (CWI) employment 

classification. 

TI1e CW -1 allows employers in the CNMI to apply for temporary permission to employ foreign (nonimmigrant) 

workers who are otherwise ineligible to work under other nonimmigrant worker categories. TI1e CW-1 

classification provides a method for transition from the fanner CNMI foreign worker permit system to the U.S. 

immigration system. The Department of Homeland Security (DHS) U.S. Citizenship and Immigration Services 

(USCIS) is the adjudicating agency of the CW -1 petitions. 

The Commonwealth Healthcarc Corporation (CHCC), a semi-autonomous health agency that relies on foreign 

workforce, manages the entire Commonwealth Health System, which includes all services in public health, 

hospital, rural and community health and mental health. The health system is still quite young. The only hospital 

in the CNMI and the two (2) rural health centers each on the island of Rota and the island ofTinian were built in 

1986 and funded initially thru the Hill-Burton Act. replacing a hospital that was built immediately after World 

War II. 

CHCC is responsible for the only hospital in the CNMI, vvhich as an 86 Medicare-certified bed. 3 outpatient clinics 

for Adult, Women, and Children, the only full-service CLIA1 certified non-waived medical laboratory, the only 

26-hospital-based dialysis center, a radiology, physical therapy, inpatient pharmacy, and respiratory 

departments. CHCC is also responsible for the public health system, which provides preventive services for the 

CNMI and works 24/7 to monitor infectious and chronic diseases. The CHCC also provides mental health and 

substance abuse services. Moreover, the CHCC serves the corrections facility and have recently reduced services 

to the corrections facility due to the loss of 9 nurses in April. 

TI1e only hospital in the CNM! has had its 0\\11 challenges over the years. It serves a disproportionate share of the 

population of the Medicaid and the indigent populations. In 2012, the sole hospital received a tennination status 

from the Centers for Medicare and Medicaid Services (CMS). immediately calling for the technical assistance of 

the United States Public Health Commission Corps medical and clinical officers to rescue the facility from losing 

1 CLIA stands for Clinical Laboratory Improvement Amendments, which was passed by Congress in 1988 to establish 

standards for all non-research laboratory testing. As a "non-CLIA waived" medical laboratory, the CHC Laboratory 

performs tests of greater complexity than the simple "waived" tests, and therefore must meet higher and stricter 

standards for compliance. Waived tests {e.g. pregnancy tests, some urine tests, and fecal occult blood tests etc.) are those 

tests that are so simple and accurate they carry little risk of error when done correctly. 
150 

critical funds from Medicare and Medicaid. The CHCC committed to removing the termination status and 

managed to make significant improvements in its services that reduced the number of citations from CMS, 

however, the CHCC needs adequate staffing to "'provide nursing care to all patients as needed". Funding for the 

health system includes Medicare and Medicaid reimbursement. Medicaid pays the CHCC, like other US 

territories. with limited and capped funding annually and receives only 50% Federal Medical Assistance 

Percentage (FMAP) payment with the other 50% adjusted using the Certified Public Expenditure (CPE) 

methodology. 

Despite these essential safety net imperatives. the CHCC has faced workforce challenges for decades. TI1e reliance 

on foreign workers began in 1990 when the population of the Commonwealth increased rapidly from the 1980 

census of only 16.780 to 1990 at 43.345. If not for foreign workers, the hospital and the rural health centers that 

opened in 1986 would not have been able to accommodate the CNMr s population explosion, thereby ensuring 

that healtl1 services were adequate and of higher standard of quality for the people of the Commonwealth. 

Reducing this reliance on foreign workers, however, has always been a priority of the CHCC leadership. This 

issue was included in the discussions of the health agency's strategic plan. Unfortunately, the FY 2017 CW 

allowance was capped abmptly. and ahead ofCHCCs plan to completely transfer from CW to either HIB visa or 

EB2 visas by November 2019. The announcement that the numerical limit on CW-1 pcm1its (cap) was reached 

early in the fiscal year hit the health system by surp1ise. This left CHCC nurses without visa status beginning April 

2017. and placing perhaps the most severe workforce challenge at the feet of the CHCC. With a total workforce 

of 664 (Hospital and Administration = 526; Public Health = 138), the CHCC employs a total of 174 foreign 

nationals under the CW -1 work permit. 

On May 5, 2016, the USCIS issued an alert tlmt the FY2016 CW-1 cap had been reached. A total of five hospital 

staff of the Commonwealth Healthcare Corporation (four Registered Nurses and one X-ray Technician) were 

affected by this cap. TI1ree of the RNs and the X-ray Technician were required to exit the CNMI for consular 

process of their CW-1 pcnnits with a stan date of employment on October 1, 2016. These four hospital staff 

members were required to stop work for approximately three weeks to one month. The fourth RN filed a petition 

to change her immigration status from CW -1 to Lawfi.d Permanent Residence (LPR). She stopped work for two 

months when her CW-1 permit expired on September 20, 2016. She then resumed work on December 5. 2016 

upon approval of her employment authorization document (EAD). 

FY 2017 Nursing Crisis 

On October 21, 2016, the USC!S issued an alert that the FY 2017 CW-1 cap had been reached as of October 14, 

20 17. This meant that the CHCC would not be able to renevv or extend its ;!§. hospital staff when their pennits 

expire in April through September 2017, as they were already '·capped ouf'. Filing for an extension or renewal 

of these 36 pennits before the cap was reached was not possible due to the US CIS rule which does not allow 

pcnnit filing of petitions for renewal or extension earlier than six ( 6) months before the expiration of the pennit. 

Date of Expiration 

April!?, 2017 

A ril26. 2017 

017 

"Capped out" Workers 

I Staff Nurse (RN) 

5 Staff Nurses (RN) 

18 Staff Nurses (RNs) 

I Infection Contr 

I Infection Contr 

Page 2 (~(7 
151 

July 14,2017 I Staff Nurse (RN) 

July 26, 20 17 3 Staff Nurses (RNs) 

August 09,2017 I Mammographer 

I Ultrasonographer 

August 29, 2017 3 Staff Nurses (RNs) 

September 20,2017 I Clinical Laboratmy Scientist 

Total 36 

FY 2017 CHCC stqflcxpirations with no oppurfuni~y to renew or e:ctcnd 

In February 2017, the CHCC contracted an expert immigration lawyer based in Guam to process the Employmentbased 2"' preference (EB-2) for eight of the RNs who were part of the "capped-out" workers scheduled to expire 

in July 2017, and the CHCC's Infection Control Preventionist was processed under the H-JB nonimmigrant 

classification. Taking these steps to keep the CHCC s workforce intact arc expensive, especially for the modest 

budget of the safety net health care organization. 

Most of the inpatient wards arc being dramatically affected by this sudden loss of nurses. Plans are being made to 

reduce certain hospital and clinical services to reassign the remaining nurses to other critical units affected by the 

CW cap. Remaining nurses have begun cross training to cover the short-staffed units. Without relief, the CHCC 

faces precariously lean nursing schedules over the summer. There will be an increase in overtime (an additional 

expense) and the CHCC will likely be forced to reduce patient intake or services at the outpatient clinics in order 

to keep the hospital units running. 

Although, at times, ontpaticnt follow-up appointments can be postponed, re-checks be conducted less frequently, 

or patient wait times be allowed to lengthen, outpatient medicine is not optional. Investment in primary care is an 

evidence-based strategy to reduce the cost of care while improving health outcomes, and in the last two years, tl1e 

CHCC's adult care clinic has increased capacity from 1 to 5 doctors. However. due to this shortage of nurses. the 

CHCC is forced to cnrb this forward momentum in primary care, effectively triaging health care services, favoring 

urgent care over primary care. In the long-nm, when patients forego primary care services. tl1is likely only 

increases the burden on the prioritized units of the hospital in the form dialysis treatment and emergency room 

visits, making compliance with the Centers for Medicaid and Medicare Services (CMS) Conditions of 

Participation (CoP) all the more challenging. 

Recovering from an ''immediate jeopardy" status in 2012, the CNMJ's only hospital has been steadily reducing 

deficiency findings in the CoP required to receive reimbursement from CMS. TI1c nursing shortage is sure to have 

a devastating impact on the hospital's compliance with clinical patient care and outcomes. It is imperative that 

workforce capacity is increased to meet C MS certification for both the hospital and Dialysis Center. TI1e severe 

and sometimes complete lack of local health care workers available on island in Nursing, Physical Therapy, 

Phannacy and Laboratory puts the CHCC at risk of being incapable of meeting the CMS's hospital and End Stage 

Renal Disease (ESRD) conditions for reimbursement. The possibility oflosing this reimbursement places precious 

CHCC resources at risk, and at the very least, and sometimes almost as damaging, into uncertainty. 

Yet another consequence of the nursing shortage induced by tl1c FY 17 cap is on the CNMJ's correctional facility. 

In the past, the CHCC was able to provide the facility with full-time nurses to confirm timely medication refills, 

prepare medication to be administered, ensure that inmates see physicians before medications are due for refill, 

take sick calls and assess inmate health, administer and interpret PPD skin tests (for Tuberculosis) and coordinate 

inmate transport to the CHCC for x-ray if needed. These services were fundamental for not only the health ofthe 

Page 3 of7 
152 

inmate, but also for the health of the public. In recent months, the CHCC has had to pull these nurses from the 

correctional facility to augment hospital and clinic staffing. The correctional facility must now schedule 

appointments for any inmate health care needs and transport the inmate to the health care facility, thereby 

increasing risk for escape and demanding that a greater share of the correctional budget go to transportation. 

While the goal of the CHCC is and has been to expand U.S. citizen hiring. as a practical matter there are no U.S. 

workers certified or registered as nurses and laboratory and radiology specialists living in the CNMI who arc not 

already working at the CHCC or a private clinic. Although the Northem Marianas College (NMC) does have a 

nursing progran1 that produces on average approximately IS graduate nurses annually, only approximately 30% 

pass the National Council Examination for Registered Nurses (NCLEX-RNs). The CNMI docs not license nurses 

who have not passed the NCLEX-RNs. While the CHCC and the CNMI wholeheartedly supports the NMC's 

program, the limited output of licensed nurses has hindered the CHCC's ability to recruit locally trained U.S. 

nurses. 

The CHCC is working to move away from the dependency on foreign workers, but strategies to increase the 

number of US workers arc hindered by constrained budgets. the rural and remote character of the islands, and the 

limited number of local young people who wish to pursue a career in health care. Strategies to attract more US 

health care workers include offering more competitive salaries, becoming an eligible site for the U.S. nurse loan 

repayment under the National Health Service Corps., working to maximize the output of the nursing program at 

the local community college, and partnering with American nursing programs to provide clinical training 

opportunities for recent graduates. Although groundwork is being laid to prevent another shortage in the future. 

vertically integrating operations to generate a stream of US-citizen workers requires time and resources. Moreover. 

the fruits of the recent economic uptick fall on the economy like a downpour after a drought, and the increase 

economic activity has thrust the CHCC into a competitive pool of employers clamoring for US labor. 

Anticipated Impacts for FY 2018 

A devastating total of one hundred twenty-six (126) health care professional workers' (HPWs) CW permit status 

arc set to expire between November and Feb mary of fiscal year 2018. In November of 2017, a total of eleven (II) 

of the CHCC's HPWs face the expiration of their CW penn it status. In December of2017, a total of one hundred 

three (103) HPWs will see their CW pcm1its expire without renewal, and January and Febmary may sec four (4) 

and eight (8) expirations respectively. The affected departments arc Nursing, h1patient Phannacy, the Rota Health 

Center (RHC), Hemodialysis, Laboratory. Physical Therapy, Radiology, and Corporate Quality and Performance 

Management. Pursuant to CMS COP 482.23(b), Hospitals must have sufficient types and numbers of qualified 

nursing staff (RN. LPN) for all units and areas of the hospital to provide nursing care as needed. This means that 

the CHCC must have a sufficient number of nurses with the requisite training and qualifications. 1l1e complexity 

of care, the number of patients. the qualifications of staff. staff skills, and organization structure can all impact the 

CHCC' s ability to "meet patient needs". 

One of the CNMI's smaller, less-populous islands, Rota, relies wholly on the Rota Health Center (RHC) for all 

health care needs. Seeking health care services not offered at the RHC requires at minimum a thirty minute trip 

by plane. The RHC is at risk oflosing a total of 6 employees (75%) in December of 2017- 4 nurses, I radiology, 

and I laboratory, leaving tl1c clinic with only 2 nurses (I LPN and l CNA) to provide outpatient clinic and ER 

services. 111e challenges of rccmitment are amplified on this remote island, which has always taccd nursing staff 

shortages. If the RHC is not able to maintain its current services and operating hours, the health and well-being 

of all Rota residents is put at great risk. 

Page~ o(7 
153 

TI1is potential loss in our workforce is substantial, not only inviting costly overtime payments and increasing 

burdens on remaining staff, but would also increase the current challenges the CHCC faces in the ability to 

maintain accreditation with the Centers for Medicaid and Medicare Services (CMS) as a qualified hospital. CMS 

surveyors may visit the CHCC at any time throughout the year to assess compliance with the Conditions of 

Participation. Although the CHCC has been investing resources to regularly assess our compliance and train our 

staff to ensure conditions are met, stafting shortages threaten to make the CHCC vulnerable to falling short of the 

strict requirements set forth by CMS. Losing this accreditation would threaten the CHCC's ability to offer even 

basic medical services. The continued operation of the CHCC relics heavily on reimbursement from CMS for 

services rendered to beneficiaries of Medicaid and Medicare. and should CMS find that the Conditions of 

Participation (CoP) are not met, the CHCC stands to lose our largest source of revenue. 

Impact of CW Permit Expirations on Specific Units at the CHCC (not an exhaustive list) 

Furthcnnorc. the Commonwealth Health Center (CHC) laboratory is the only full-service CMS certified nonCLIA waived medical laboratory in the CNMI. CHCC laboratory services depend on trained, experienced and 

quality conscious laboratory professionals to support the testing needs of the CNMI population. CLIA standards 

apply nationally and not exclusively to Medicare-certified hospitals. CLIA applies to all entities providing clinical 

laboratory services, whether or not the CHCC files Medicare claims for the lab tests pcrfonned, so the CHC 

laboratory must maintain its CUA certification in order to provide necessary lab tests for CHCC patients. In the 

last year, the CHC laboratory performed close to two million tests. Presently, many of the experienced 

professionals needed to nm these tests arc only available through the existing CW arrangement. TI1e nearest US 

accredited laboratory technologist training programs arc in Hawaii, more than 3800 miles away. The salaries arc 

much higher for laboratory professionals in the US mainland, so it is problematic for the CHC laboratory to recruit 

and retain qualified laboratory professionals. Any reduction in the CW labor pool of laboratory professionals 

would adversely impact the quality, availability and sustainahility of laboratory testing in the CNMI, thereby 

putting our CLIA and CMS certifications at risk. 

Moreover, the CHCCs inpatient phannacy would be similarly crippled if urgent action is not taken to allow the 

CHCC to maintain its existing workforce. The pham1accutical service must have an adequate number of personnel 

to ensure quality phannaceutical services, including emergency services pursuant to the conditions of 

participation. There must be a sufficient number of trained personnel to respond to the pharmaceutical needs of 

the patient population being served for 24 hour, 7 -day emergency coverage to fulfill the needs of the patients as 

decided by the medical staff. There must be sufficient numbers and types of personnel to provide accurate and 

timely medication delivery, to ensure accurate and safe medication administration and to provide appropriate 

clinical services and to participate in continuous quality improvement programs of the CHCC. If the staff is cut, 

the services rendered at the hospital will be severely limited by the services and response time of our phannacy 

services, the CMS Condition of Participation for Phannaccutical Services will not be met, and meeting the Drug 

Enforcement Agency (DEA)' and local pharmacy licensure requirements will be likevvise more challenging. 

The CHCC Department of Radiology unit faces similar challenges. As the only full-service, Medicare, FDA 

certified and American College of Radiology (ACR) accredited medical imaging department on Saipan, the 

Department of Radiology is heavily dependent on trained, experienced and quality conscious imaging 

professionals to support the current and growing medical imaging needs of our population3 Due to significant 

discrepancies between salaries and compensation in the US mainland and here in the CNMI, medical imaging 

2 Issuance of a DEA registration to prescribe controlled substances is predicated on successfully completing all of the 

requirements imposed by the state in which the practitioner will conduct business, and obtaining a state license. 

3 From 2015 to 2016, the exam volume in the CHCC Radiology Department for mammography, ultrasound, and X-ray 

increased by twenty-eight percent (28%), nine percent (9%), and eighteen percent (18%) respectively. 

Page 5 of7 
154 

professionals who arc qualified to work in the US mainland arc very difficult to recruit, tend to be short-tcnn hires, 

and require a large initial investment on the part of the hiring facility to acquire. 1l1ere arc no local or regional 

allied health programs available to support an established radiology department with multi-specialty trained 

professionals, let alone assist in meeting the growing demands of the only Medicare Certified hospital in the 

CNMI. Presently, these experienced professionals are available only through the existing CW arrangement. 

Reductions in the CW labor pool of medical imaging professionals significantly and adversely impacts the quality, 

availability and sustainability of medical care in the CNMI. 

Plans for FY 2018: 

On March 09, 2017, the USCIS released a notice that it will begin accepting CW-1 petitions subject to the fiscal 

year (FY) 2018 cap. For the FY 2018 cap, an extension petition may request a start date of October I, 2017, even 

if that worker's current status will not expire by that date. 

Based on this most recent US CIS notice, the CHCC filed CW -I petitions in the last week of March and the first 

two weeks of April 2017, as follows: 

New employment for its "capped-out" foreign workers with permits scheduled to expire in April through to 

September 2017. This means that the "capped-out" foreign workers must depart tl1e CNMI ten days after 

expiration of their current CW -I pennits, await approval of their petitions, obtain their CW -I visa while in 

their home country, return to the CNML and continue their employment with the CHCC. 

Continuous employment for foreign workers with pcnnits scheduled to expire in October, November & 

December 2017, and January, February & April 2018. This means that the current CW-1 pcnnits of the 

foreign workers were cut-off by a number of months, as the case maybe, for CHCC to meet the cap for FY 

20 18 with start of employment of these new rccmits is from October I, 2017 to September 30, 2018. 

New employment for 14 foreign workers/RNs recruited from the Philippines. l11e start of employment for 

these new recmits is from October 1, 2017 to September 30, 2018. 

ll1is ''fir.<t-to:file" system places the CHCC at great risk of not having its foreign workers e"iendcd because of 

the fiscal year numerical limit (cap) that is enforced by the applicable laws and regulations. Future fiscal year 

numerical limit ought to be reconciled with the rate of economic gro\\ih in the CNMI or at least some exception 

must be made to ensure that CHCC is able to maintain the requisite health care workforce. 

It is important to remember that the numbers presented in this testimony represent humans, all of whom bring 

value to the CNMI community. Upheaving the lives of these workers and their fan1ilics means uprooting 

communities, as many oftl1em have been working with the CHCC for more than 10 years. The CNMl is home. 

More than half have children who are U.S. citizens, and these children are in school. The numerical cap docs not 

assess how long the employees have been in the CNML what their relative value is to the community, or the 

effects their leaving will have. 

The majority of the 179 foreign workers are long-tcfll1, dedicated workers of the CHCC as enumerated below 

(Note: The table below also includes 5 foreign workers at the CHCC with H-IB status): 

Length of Service Number of Workers 

15 vears and above 3 

10 years and above 70 

5 years and above 27 

4 years and above 40 

2 years and above 39 

Page 6 of7 
155 

Total 179 

Unless extended by federal legislation or by the U.S. Secretary of Labor, on or before Dec. 31, 2019. the CW 

classification will cease to exist. Transitional workers who held the CW -I status must obtain nonimmigrant or 

immigrant status under the INA before this date if they wish to stay in the CNMI lawfully. It is doubtful that 

CHCC will be able to replace its foreign workforce with United States workers by December 31, 2019. The most 

feasible replacement option is through the H-lB non-immigrant status for most of its current foreign workforce, 

and this option is being thoroughly reviewed by the CHCC as described above. 

Health care is a vital necessity, not only tor the health of our people, but also for sustained economic growth. l11c 

workforce required to sustain a health care system which is compliant with the very US laws designed to protect 

the health of Americans necessitate trained and qualified professionals. To source these for our remote islands 

with chronic budgetary limitations, we rely are those workers who are willing to work for less than their 

counterparts in the US mainland. Thus. we respectfully petition the federal government to consider sparing the 

health care industry from having to compete with other industries for worker pennits by reserving dedicated 

permits for qualified health care professionals. 

Page 7 of7 
156 

US. Senate Committee on Energy and Natural Resources 

Committee Hearing on H.R 339 

Testimony of the CNMI Strategic Economic Development Council (SEDC) 

April 27, 2017 

Chairman Murkowski, Ranking Member Cantwell and other distinguished members of the 

committee, my name is Marian Aldan-Pierce, and on behalf of the Commonwealth of the 

Northern Mariana Islands' Strategic Economic Development Council (SEDC), I respectfully 

submit the following written testimony for the record in support of H.R 339, a bill to 

temporarily lift the CW visa cap for 2017. The SEDC represents many diverse employers in the 

CNMI-from construction, to hospitality, to tourism. 

Lifting the cap on CW visas is of critical importance to the CNMI, which is currently expected to 

phase out by December 2019. When Congress extended the Federal immigration laws to the 

Northern Marianas in the Consolidated Natural Resources Act (CNRA) of 2008, it sought "to 

minimize, to the greatest extent practicable, potential adverse economic and fiscal effects of 

phasing-out the Commonwealth's nonresident contract worker program and to maximize the 

Commonwealth's potential for future economic and business growth." 1 To that end, Congress 

created a special transitional worker program, designed "to ensure an adequate number of 

workers for legitimate businesses in the Commonwealth."2 

Although originally established for five years, Congress expressly recognized that the CW 

program may need to continue beyond that initial period. Congress authorized the US. 

Department of Labor to extend the program in five-year increments, so long as necessary for the 

Northern Marianas' existing and anticipated labor needs 3 In May 2014, the Department of 

Labor granted such an extension, extending the transitional worker program until December 31, 

2019. In making this decision, the Department emphasized Congress' intent to minimize adverse 

economic consequences to the Northern Marianas' economy and to promote the region's 

economic growth 4 The Department concluded, after a rigorous analysis, that there was "an 

insufficient number of U.S. workers to meet CNMI businesses' current needs," and that a fiveyear extension was necessary to ensure that the "current and future needs" of the 

Commonwealth's businesses are met5 The Department indicated that, together, with the 

Northern Marianas' government, it would continue to monitor the labor needs of the 

Commonwealth's employers and the efforts to educate and train US. citizen workforce, in order 

to determine whether to grant any additional extensions of the program6 The Department of 

Labor's decision to extend the CW program for five years ensured that the Northern Marianas' 

businesses could continue to operate smoothly. The extension also averted a potentially severe 

economic downturn. 

1 Public Law No. 110-229, § 701(a)(2). 122 Stat. 854 (2008). 

'Id. § 702(a); 48 U.S.C. § 1806(d). 3 48 U.S.C. § 1806(d)(5) 1 79 Fed. Reg. 31,988. 31,990 (June 3. 2014). 5 !d. at 31.989. 

"!d. at 31.989-31.990. 
157 

We are deeply concerned that significantly limiting-or terminating-the CW visa program will 

severely impact on the Northern Marianas' economy, and would impede the territory's growth 

and prosperity. The seriousness of these consequences is difficult to overstate. Currently, some 

14,000 non-citizen workers are employed in the Northern Marianas under this program, 

providing essential services in such labor-intensive and specialized industries as hospitality, 

construction, and health care. Given that the Commonwealth's total population barely exceeds 

50,000, the Northern Marianas' economic development remains heavily dependent on these 

workers at least in the short-term future. Access to foreign workers is particularly critical given 

the ongoing economic development on the Northern Marianas, which is aimed at constructing 

world-class recreational facilities and enabling the territory to fully realize its tourism potential. 

As the territory's industry leaders, we strongly support these efforts. Their benefits will rebound 

to the entire Northern Marianas population, making our territory more prosperous and 

establishing it as a leading regional tourist destination. These plans, however, risk being put on 

hold or abandoned entirely if, only a few years down the line, the Commonwealth's employers 

would be unable to meet their labor needs. The mere uncertainty about the program's fate is 

already imperiling investor and employer confidence. 

We wish to emphasize that the continuing access to non-resident workers is not in conflict with 

the goal of reducing unemployment among the U.S. citizens residing in the Northern Marianas. 

As the U.S. Department of Labor has concluded, on the basis of the latest census, the total 

number of unemployed U.S. workers in the Northern Marianas is only about 20 percent of the 

current transitional worker quota. Even if the Northern Marianas were to achieve full 

employment-an economically unrealistic goal-the economy's current labor needs still could 

not be met through the resident U.S. citizen workforce alone. 

Therefore, we respectfully ask for swift passage of H.R. 339. Tourism in the CNMI is 

experiencing a welcome rebound in recent years, and many new investments are coming onto the 

island as a result. Should the CW program be terminated in the near future, our fragile economy 

would quickly go into recession and prospects for future job growth would be bleak. 

Thank you for your interest and leadership on these issues. We look forward to working with 

you and the committee staff on issues of importance to the CNML 

Sincerely, 

Marian Aldan-Pierce 

Co-Chair 

Strategic Economic Development Council 
158 

Written testimony in support of H.R. 339 

'The Northern Mariana Islands Economic Expansion Act' 

Provided to the Senate Committee on Energy and Natural Resources 

The Honorable Usa Murkowski 

U.S. Senate 

Washington, DC 20510 

The Honorable Maria Cantwell 

U.S. Senate 

Washington, DC 20510 

The Saipan Portopia Hotel Corporation, dba Hyatt Regency Saipan wishes to be recorded in strong 

support of H.R. 339, 'The Northern Mariana Islands Economic Expansion Act'. We thank the Chairman 

and Ranking Member for the opportunity to provide this testimony. 

H.R. 339 would provide immediate relief for skilled, long term workers within our organization that 

currently face the likelihood of departing our island due to the FY2017 numerical cap on CW1 visas. 

These associates hold positions such as electricians, plant room operators, engineers, carpenters and 

managers within our organization. 

In 2010, our organization began to develop a plan to change our workforce prior to the timeline set by 

PL 110-229. We set out goals and a mission for the coming four years for our Human Resources team. 

We reviewed our local labor pool and identified positions where we found interest from our US eligible 

workforce irrespective of the applicant's qualification. Our team prepared a workforce plan as required 

by the Department of Labor, listing all positions that we believed to be trainable within 90 to 120 days. 

This workforce plan was used as our guide to hire locally, phasing out our dominant CW1 workforce. 

To support our efforts, we initiated a partnership with the Northern Mariana Trades Institute, 

implementing a hotel and restaurant program in 2010 and a culinary program in 2011. Our managers 

became instructors for these programs working side by side with the trades school as a way to train and 

recruit individuals that developed the basic skills necessary for our operation. Today, students 

completing these courses are being placed beyond our hotel. Students from these programs are being 

employed and promoted in hospitality business' island wide. 

The transition was not an easy journey. Our organization went from a 20% local workforce prior to 2009 

to a 79% local workforce today. The remaining 21% of our non US workforce consists of management 

team members on Land H visas as well the previously mentioned skilled positions. The CW1 visa 

category makes up only 16% of our workforce, an extremely important group of associates in our 

operation. In our transition, we lost institutional knowledge and a workforce that had been a part of our 

team for fifteen or more years. 

To assist our transition, we turned to US mainland sister properties and hospitality institutions. Of those 

recruited, all had a difficult time adjusting to the islands culture, proximity to home and lifestyle. Some 

were successful in completing their time commitment. Most however were unable to fulfill their 

commitment, leaving our island before their contracted date. Our turnover following the transition 

went as high as 36%. However, through the process we have gained an authentic and motivated 

workforce. We have reaped positive benefits from our decision and actions in 2010. 

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Unfortunately, despite our efforts there remains a skills gap on our island. There is not yet a pool of US 

eligible workers to take the place of electricians, plumbers, power plant operators, refrigeration & 

appliance repair or HVAC professionals. While we continue to work toward developing these skills and 

transition to other visa options, the immediate relief provided by H.R. 339 will help to ensure that we 

are able to maintain our operation while moving responsibly toward our goal. 

Hyatt Regency Saipan urges the Senate Committee on Energy and Natural Resources to support H.R. 339 

in its current form and advance the bill out of committee favorably. 

Thank you again for the opportunity to share our experience with the committee. 

Warm Regards, 

Nick K. Nishikawa 

General Manager 

HYATT REGENCY SAIPAN 

P.O. Box 5087 CHRB, Saipan, MP, USA 

T: +1.670.234.1234 F: +1.670.234.774 M: +1.670.989.1234 

E : nick.nishikawa@hyatt.com 

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