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Packages of false papers allow
undocumented immigrants to get
employment and pay taxes, enriching the Social Security fund for other
employees. |
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STOCKTON, Calif.
(By Eduardo Porter, NYTimes)
April 5, 2005 - Since undocumentedly crossing the Mexican border into the United
States six years ago, Ángel Martínez has done backbreaking work, harvesting
asparagus, pruning grapevines and picking the ripe fruit. More recently, he has
also washed trucks, often working as much as 70 hours a week, earning $8.50 to
$12.75 an hour.
Not surprisingly, Mr. Martínez, 28, has not given much thought to Social
Security's long-term financial problems. But Mr. Martínez - who comes from the
state of Oaxaca in southern Mexico and hiked for two days through the desert to
enter the United States near Tecate, some 20 miles east of Tijuana - contributes
more than most Americans to the solvency of the nation's public retirement
system.
Last year, Mr. Martínez paid about $2,000 toward Social Security and $450 for
Medicare through payroll taxes withheld from his wages. Yet unlike most
Americans, who will receive some form of a public pension in retirement and will
be eligible for Medicare as soon as they turn 65, Mr. Martínez is not entitled
to benefits.
He belongs to a big club. As the debate over Social Security heats up, the
estimated seven million or so undocumented immigrant workers in the United States are
now providing the system with a subsidy of as much as $7 billion a year.
While it has been evident for years that
undocumented immigrants pay a variety of
taxes, the extent of their contributions to Social Security is striking: the
money added up to about 10 percent of last year's surplus - the difference
between what the system currently receives in payroll taxes and what it doles
out in pension benefits. Moreover, the money paid by undocumented workers and their
employers is factored into all the Social Security Administration's projections.
undocumented immigration, Marcelo Suárez-Orozco, co-director of immigration
studies at New York University, noted sardonically, could provide "the fastest
way to shore up the long-term finances of Social Security."
It is impossible to know exactly how many
undocumented immigrant workers pay
taxes. But according to specialists, most of them do. Since 1986, when the
Immigration Reform and Control Act set penalties for employers who knowingly
hire undocumented immigrants, most such workers have been forced to buy fake ID's to
get a job.
Currently available for about $150 on street corners in just about any
immigrant neighborhood in California, a typical fake ID package includes a green
card and a Social Security card. It provides cover for employers, who, if asked,
can plausibly assert that they believe all their workers are legal. It also
means that workers must be paid by the book - with payroll tax deductions.
IRCA, as the immigration act is known, did little to deter employers from
hiring undocumented immigrants or to discourage them from working. But for Social
Security's finances, it was a great piece of legislation.
Starting in the late 1980's, the Social Security Administration received a
flood of W-2 earnings reports with incorrect - sometimes simply fictitious -
Social Security numbers. It stashed them in what it calls the "earnings suspense
file" in the hope that someday it would figure out whom they belonged to.
The file has been mushrooming ever since: $189 billion worth of wages ended
up recorded in the suspense file over the 1990's, two and a half times the
amount of the 1980's.
In the current decade, the file is growing, on average, by more than $50
billion a year, generating $6 billion to $7 billion in Social Security tax
revenue and about $1.5 billion in Medicare taxes.
In 2002 alone, the last year with figures released by the Social Security
Administration, nine million W-2's with incorrect Social Security numbers landed
in the suspense file, accounting for $56 billion in earnings, or about 1.5
percent of total reported wages.
Social Security officials do not know what fraction of the suspense file
corresponds to the earnings of undocumented immigrants. But they suspect that the
portion is significant.
"Our assumption is that about three-quarters of other-than-legal immigrants
pay payroll taxes," said Stephen C. Goss, Social Security's chief actuary, using
the agency's term for undocumented immigration.
Other researchers say undocumented immigrants are the main contributors to the
suspense file. "undocumented immigrants account for the vast majority of the suspense
file," said Nick Theodore, the director of the Center for Urban Economic
Development at the University of Illinois at Chicago. "Especially its growth
over the 1990's, as more and more undocumented immigrants entered the work
force."
Using data from the Census Bureau's current population survey, Steven
Camarota, director of research at the Center for Immigration Studies, an
advocacy group in Washington that favors more limits on immigration, estimated
that 3.8 million households headed by undocumented immigrants generated $6.4 billion
in Social Security taxes in 2002.
A comparative handful of former
undocumented immigrant workers who have obtained
legal residence have been able to accredit their previous earnings to their new
legal Social Security numbers. Mr. Camarota is among those opposed to granting a
broad amnesty to undocumented immigrants, arguing that, among other things, they
might claim Social Security benefits and put further financial stress on the
system.
The mismatched W-2's fit like a glove on
undocumented immigrants' known geographic
distribution and the patchwork of jobs they typically hold. An audit found that
more than half of the 100 employers filing the most earnings reports with false
Social Security numbers from 1997 through 2001 came from just three states:
California, Texas and Illinois. According to an analysis by the Government
Accountability Office, about 17 percent of the businesses with inaccurate W-2's
were restaurants, 10 percent were construction companies and 7 percent were farm
operations.
Most immigration helps Social Security's finances, because new immigrants
tend to be of working age and contribute more than they take from the system. A
simulation by Social Security's actuaries found that if net immigration ran at
1.3 million a year instead of the 900,000 in their central assumption, the
system's 75-year funding gap would narrow to 1.67 percent of total payroll, from
1.92 percent - savings that come out to half a trillion dollars, valued in
today's money.
undocumented immigrants help even more because they will never collect benefits.
According to Mr. Goss, without the flow of payroll taxes from wages in the
suspense file, the system's long-term funding hole over 75 years would be 10
percent deeper.
Yet to immigrants, the lack of retirement benefits is just part of the
package of hardship they took on when they decided to make the trek north. Tying
vines in a vineyard some 30 miles north of Stockton, Florencio Tapia, 20, from
Guerrero, along Mexico's Pacific coast, has no idea what the money being
withheld from his paycheck is for. "I haven't asked," Mr. Tapia said.
For undocumented immigrants, Social Security numbers are simply a tool needed to
work on this side of the border. Retirement does not enter the picture.
"There will be a moment when I won't be able to continue working," Mr.
Martínez acknowledges. "But that's many years off."
Mario Avalos, a naturalized Nicaraguan immigrant who prepares income tax
returns for many workers in the area, including immigrants without legal papers,
observes that many older workers return home to Mexico. "Among my clients," he
said, "I can't recall anybody over 60 without papers."
No doubt most undocumented immigrants would prefer to avoid Social Security
altogether. As part of its efforts to properly assign the growing pile of
unassigned wages, Social Security sends about 130,000 letters a year to
employers with large numbers of mismatched pay statements.
Though not an intended consequence of these so-called no-match letters, in
many cases employers who get them dismiss the workers affected. Or the workers -
fearing that immigration authorities might be on their trail - just leave.
Last February, for instance, discrepancies in Social Security numbers put an
end to the job of Minerva Ortega, 25, from Zacatecas, in northern Mexico, who
worked in the cheese department at a warehouse for Mike Campbell & Associates, a
distributor for Trader Joe's, a popular discount food retailer with a large
operation in California.
The company asked dozens of workers to prove that they had cleared up or were
in the process of clearing up the "discrepancy between the information on our
payroll related to your employment and the S.S.A.'s records." Most could not.
Ms. Ortega said about 150 workers lost their jobs. In a statement, Mike
Campbell said that it did not fire any of the workers, but Robert Camarena, a
company official, acknowledged that many left.
Ms. Ortega is now looking for work again. She does not want to go back to the
fields, so she is holding out for a better-paid factory job. Whatever work she
finds, though, she intends to go on the payroll with the same Social Security
number she has now, a number that will not jibe with federal records.
With this number, she will continue paying taxes. Last year she paid about
$1,200 in Social Security taxes, matched by her employer, on an income of
$19,000.
She will never see the money again, she realizes, but at least she will have
a job in the United States.
"I don't pay much attention," Ms. Ortega said. "I know I don't get any
benefit."