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9278

Proposed Rules Federal Register


Vol. 71, No. 36

Thursday, February 23, 2006

This section of the FEDERAL REGISTER FOR FURTHER INFORMATION CONTACT: prescribed by NCUA’s Supervisory
contains notices to the public of the proposed Karen Kelbly, Chief Accountant, Office Committee Guide. 12 CFR 715.7. None
issuance of rules and regulations. The of Examination and Insurance, of these audit options requires an
purpose of these notices is to give interested telephone: (703) 518–6389; Steven W. additional ‘‘attestation on internal
persons an opportunity to participate in the Widerman, Trial Attorney, Office of controls’’ of the scope prescribed for
rule making prior to the adoption of the final
General Counsel, telephone: (703) 518– other federally-insured financial
rules.
6557. institutions.
SUPPLEMENTARY INFORMATION:
B. Request for Comments
NATIONAL CREDIT UNION I. Background
ADMINISTRATION Through this Advance Notice of
A. Existing Part 715 Proposed Rulemaking, the NCUA Board
12 CFR Parts 704, 715, and 741 seeks public comment in the form of
In 1998, the Credit Union
answers to questions on four discrete
Membership Access Act (‘‘CUMAA’’),
Supervisory Committee Audits issues: (A) Whether to require credit
Public Law 105–219, 112 Stat. 913
unions to obtain an ‘‘attestation on
AGENCY: National Credit Union (1998), amended the Federal Credit
internal controls’’ in connection with
Administration (NCUA). Union Act to require credit unions
their annual audits (questions 1 through
ACTION: Advance notice of proposed having assets of $10 million or more to
7 below); (B) What standards should
rulemaking. follow generally accepted accounting
govern the assessment and attestation
principles (‘‘GAAP’’) in all reports and
SUMMARY: The National Credit Union components of such an engagement
statements filed with the NCUA Board.
Administration (NCUA) requests public (questions 8 and 9 below); (C) What
12 U.S.C. 1782(a)(6)(C). CUMAA further
comment on whether and how to required credit unions having assets of qualifications should be required as
modify its Supervisory Committee audit $500 million or more to obtain an prerequisites to serve on a Supervisory
rules to require credit unions to obtain annual independent audit of its Committee (questions 10 through 13
an ‘‘attestation on internal controls’’ in financial statements (‘‘financial below); and (D) What standard should
connection with their annual audits; to statement audit’’) performed in dictate the degree of independence
identify and impose assessment and accordance with generally accepted required of state-licensed, compensated
attestation standards for such auditing standards (‘‘GAAS’’) by an auditors (question 14 below). The
engagements; to impose minimum independent certified public accountant NCUA Board also seeks input on several
qualifications for Supervisory or public accountant licensed by the miscellaneous issues involving audit
Committee members; and to identify appropriate State or jurisdiction. 12 options for credit unions having less
and impose a standard for the U.S.C. 1782(a)(6)(D). than $500 million in assets,
independence required of State- Beyond the requirement to adhere to requirements for delivery and regulatory
licensed, compensated auditors. GAAP, the CUMAA amendments access to audit reports, and the terms
imposed no minimum audit and conditions in engagement letters,
DATES: Comments must be received on
requirements on federally-chartered including limitations on auditor liability
or before April 24, 2006.
credit unions having less than $500 (questions 15 through 22 below).
ADDRESSES: You may submit comments To facilitate consideration of the
by any one of the following methods million in assets. See 64 FR 41029 (July
29, 1999). And in contrast to other public’s views, please address your
(Please send comments by one method comments to the questions set forth in
only): federally-insured financial institutions,
12 U.S.C. 1831m(c), CUMAA did not section II. below for each subject. To
• Federal eRulemaking Portal: http:// maximize the value of your comments,
www.regulations.gov. Follow the require credit unions to obtain, in
connection with their annual audits, an it is essential to explain the reasons that
instructions for submitting comments. support your conclusions. In addition, it
• NCUA Web Site: http:// ‘‘attestation on internal controls’’ by the
credit union’s independent accountant is important to organize and identify
www.ncua.gov/
(hereinafter referred to as ‘‘external your comments by corresponding
RegulationsOpinionsLaws/proposed_
auditor’’). question number and subject so that
regs/proposed_regs.html. Follow the
In 1999, NCUA comprehensively each question is addressed separately.
instructions for submitting comments.
You will have a further opportunity to
• E-mail: Address to overhauled its Supervisory Committee
audit rules to conform to the CUMAA comment comprehensively on the issues
regcomments@ncua.gov. Include ‘‘[Your
amendments. 64 FR 41029. Amended raised by these questions if the NCUA
name] Comments on Part 715 ANPR,
part 715 follows CUMAA in requiring Board issues a proposed rule for public
Supervisory Committee Audits’’ in the
credit unions having assets of $500 consideration.
e-mail subject line.
• Fax: (703) 518–6319. Use the million or more to annually obtain a II. Issues for Comment
subject line described above for e-mail. financial statement audit. 12 CFR 715.5.
• Mail: Address to Mary Rupp, However, part 715 gives those having A. Internal Control Assessment and
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Secretary of the Board, National Credit less than $500 million in assets a choice Attestation
Union Administration, 1775 Duke among several audit options: (1) A An ‘‘attestation on internal controls’’
Street, Alexandria, Virginia 22314– financial statement audit; (2) a ‘‘balance has two principal components. First,
3428. sheet audit’’; (3) a ‘‘report on management must report its assessments
• Hand Delivery/Courier: Same as examination of internal controls over of the effectiveness of the internal
mail address. Call Reporting’’; and (4) an audit as control structure and procedures

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Federal Register / Vol. 71, No. 36 / Thursday, February 23, 2006 / Proposed Rules 9279

established and maintained by the institutions required by FDICIA to accordance with GAAP and those
credit union. Then, its external auditor obtain an ‘‘attestation on internal prepared for regulatory reporting
must examine, attest to, and report controls’’ over all financial reporting. 12 purposes), or should it be more
separately on management’s written CFR 363.3(b); 70 FR 71226 (Nov. 28, narrowly framed to cover only certain
assertions (i.e., derived from its 2005).1 types of financial reporting? If so, which
assessments) on the effectiveness of the NCUA concurred with GAO’s types?
internal control structure and recommendation to consider adopting a 5. Should the same auditor be
procedures. The scope on an FDICIA-like attestation requirement, permitted to perform both the financial
‘‘attestation on internal controls’’ may noting that it already provided guidance statement audit and the ‘‘attestation on
be limited only to the effectiveness of strongly encouraging large credit unions internal controls’’ over financial
internal controls over financial to voluntarily provide reporting on reporting, or should a credit union be
statements prepared for regulatory internal controls. GAO Report at 84; see allowed to engage one auditor to
purposes, such as Call Reports. An enclosure to NCUA, Letter to Credit perform the financial statement audit
example of this is the ‘‘report on Unions No. 03–FCU–7 (Oct. 2003). GAO and another to perform the ‘‘attestation
examination of internal controls over left the matter of ensuring parity in on internal controls?’’ Explain the
Call Reporting,’’ an audit option internal control reporting among all reasons for your answer.
currently available to some credit federally-insured financial institutions
unions. 12 CFR 715.7(b). Or the scope for Congressional consideration. 6. If an ‘‘attestation on internal
on an ‘‘internal control attestation’’ However, NCUA believes that controls’’ were required of credit
engagement may extend to the legislation is not necessary because the unions, should it be required annually
effectiveness of internal controls over all agency has the authority-which GAO or less frequently? Why?
financial reporting, i.e., financial acknowledged—to implement 7. If an ‘‘attestation on internal
statements prepared in accordance with regulations requiring credit unions to controls’’ were required of credit
GAAP and required regulatory reports. provide these reports should it become unions, when should the requirement
The Sarbanes-Oxley Act, Public Law necessary.2 Id. at 84–85. To determine become effective (i.e., in the fiscal
107–204, 116 Stat. 745, 789 (2002), the extent to which such reports are period beginning after December 15 of
enacted in 2002, requires all public necessary, the NCUA Board invites what year)?
companies, in connection with an public comments in response to the
B. Standards Governing Internal Control
annual financial statement audit, to following questions:
Assessments and Attestations
obtain an ‘‘attestation on internal
Questions No.
controls’’ over financial reporting. 15 Management’s responsibility in an
U.S.C. 7262. This requirement is similar 1. Should part 715 require, in ‘‘attestation on internal controls’’—to
to that which the Federal Deposit addition to a financial statement audit, report its assessments of the
Insurance Corporation Improvements an ‘‘attestation on internal controls’’ effectiveness of the internal control
Act (‘‘FDICIA’’) has imposed on over financial reporting above a certain structure and procedures established
federally-insured financial institutions, minimum asset size threshold? Explain and maintained by the credit union—
other than credit unions, since 1991. 12 why or why not. and the external auditor’s
U.S.C. 1831m(c). 2. What minimum asset size threshold
responsibility—to examine, attest to,
In 2003, the U.S. General Accounting would be appropriate for requiring, in
and report on management’s
Office (now the U.S. General addition to a financial statement audit,
assessments—each must be done in
Accountability Office) (‘‘GAO’’) an ‘‘attestation on internal controls’’
accordance with a standard recognized
suggested that ‘‘NCUA might gain an over financial reporting, given the
by the auditing industry. For
evaluation of an institution’s internal additional burden on management and
management, the most commonly
controls, comparable to other depository its external auditor? Explain the reasons
recognized standard for establishing,
institution regulators, if credit unions for the threshold you favor.
3. Should the minimum asset size maintaining and assessing the
were required, like banks and thrifts, to effectiveness of the internal control
provide management evaluations of threshold for requiring an ‘‘attestation
on internal controls’’ over financial structure is the Internal Control—
internal controls and their auditor’s Integrated Framework (1994 ed.)
assessments of such evaluations.’’ GAO, reporting be the same for natural person
credit unions and corporate credit developed by the Committee of
Credit Unions: Financial Condition Has Sponsoring Organizations of the
Improved, But Opportunities Exist to unions? Explain why.
4. Should management’s assessments Treadway Commission (‘‘COSO’’). For
Enhance Oversight and Share Insurance the external auditor’s attestation, the
Management (GAO–04–91) (‘‘GAO of the effectiveness of internal controls
and the attestation by its external standard for non-public companies thus
Report’’) at 81. GAO further far has been the American Institute of
recommended ‘‘making credit unions auditor cover all financial reporting,
(i.e., financial statements prepared in Certified Public Accountants (‘‘AICPA’’)
with assets of $500 million or more
AT 501 internal control attestation
subject to the FDICIA requirement that
1 In contrast to NCUA, Congress gave FDIC the standard.
management and external auditors authority to adjust the minimum asset threshold
report on the internal control structure The AICPA has exposed for public
that triggers FDICIA’s audit requirements. 12 U.S.C.
and procedures for financial reporting 1831m(j)(2). Thus, FDICIA originally set the comment a revised AT 501 that is more
* * *.’’ Id. at 83–84. GAO reiterated minimum asset threshold for requiring a financial in line with the Public Company
this recommendation in 2005. GAO, statement audit at $150 million. 12 U.S.C. Accounting Oversight Board’s
1831m(j)(1). FDIC then raised the threshold to $500 (‘‘PCAOB’’) Auditing Standard No. 2
Issues Regarding the Tax-Exempt Status million. 12 CFR 363.1(a); 58 FR 31332 (June 2,
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of Credit Unions (GAO–06–220T) at 4. 1993). (‘‘AS 2’’) that applies to public


However, since GAO made its 2 See 12 U.S.C. 1761d, 1782a(a)(2), 1789(a)(8) and companies under Sarbanes-Oxley, 15
recommendation, the Federal Deposit (11) as implemented by 12 CFR 715, 741.202(a) U.S.C. 7262(b). The final revisions to AT
(federally-insured natural person credit unions) and 501 are likely to require greater
Insurance Corporation (‘‘FDIC’’) has 12 U.S.C. 1761d, 1766(a), 1782a(a)(2), 1789(a)(8)
increased from $500 million to $1 and (11) as implemented by 12 CFR 704.15(a)
documentation and testing of internal
billion the minimum asset size of the (federally-insured corporate credit unions). control over financial reporting by

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9280 Federal Register / Vol. 71, No. 36 / Thursday, February 23, 2006 / Proposed Rules

management to enable the auditor to limitation were to apply to Supervisory D. Independence of State-Licensed,
fulfill the attestation responsibility.3 Committees, 103 natural persons and 17 Compensated Auditors
To assist the NCUA Board in corporate credit unions would be Under existing part 715, a financial
determining what assessment and affected. For institutions with total statement audit of a federally-insured
attestation standards should apply to assets of $500 million or more but less credit union must be ‘‘performed in
credit union ‘‘attestation on internal than $1 billion, FDIC requires the accordance with GAAS by an
controls’’ engagements, please comment majority of the members of the audit independent person who is [State-
in response to the following questions: committee to be independent of licensed].’’ 12 CFR 715.5(a). GAAS
Question No. management of the institution. 12 CFR incorporates the AICPA
363.5(a)(2). If this limitation were to ‘‘independence’’ standards that apply
8. If credit unions were required to apply to Supervisory Committees, 258 when an independent, licensed certified
obtain an ‘‘attestation on internal natural persons and 22 corporate credit public accountant audits financial
controls,’’ should part 715 require that unions would be affected. Exceptions to statements. 12 CFR 715.2(f). FDIC
those attestations, whether for a natural these restrictions are permitted when it requires independent accountants who
person or corporate credit union, adhere imposes a hardship in recruiting and audit institutions with assets of $500
to the PCAOB’s AS 2 standard that retaining competent members. Id. million or more to not only meet the
applies to public companies, or to the AICPA’s Code of Professional Conduct,
AICPA’s revised AT 501 standard that Finally, for institutions with total
assets of more then $3 billion, FDIC but also to meet the ‘‘independence’’
applies to non-public companies? Please standards and interpretations of the U.S.
explain your preference. requires audit committee members to
have banking or related financial Securities and Exchange Commission
9. Should NCUA mandate COSO’s (‘‘SEC’’) and its staff.4 12 CFR part 363
Internal Control—Integrated Framework management expertise, access to their
own outside counsel, and no association App. A ¶ 14. To assist the NCUA Board
as the standard all credit union in determining what ‘‘independence’’
management must follow when with any large customer of the
standards should apply to State-
establishing, maintaining and assessing institution. 12 CFR 363.5(b). If the asset
licensed, compensated auditors, please
the effectiveness of the internal control threshold for these qualifications were
comment in response to the following
structure and procedures, or should to apply to Supervisory Committees, 12
question:
each credit union have the option to natural person and 6 corporate credit
choose its own standard? unions would be affected. To assist the Question No.
NCUA Board in determining whether to 14. Should a State-licensed,
C. Qualificatons of Supervisory develop such qualifications as
Committee Members compensated auditor who performs a
prerequisites for Supervisory Committee financial statement audit and/or
A credit union’s Supervisory membership, please respond to the ‘‘internal control attestation’’ be
Committee is appointed by its board of following questions: required to meet just the AICPA’s
directors and ‘‘shall consist of not less ‘‘independence’’ standards, or should
than three members nor more than five, Question No.
they be required to also meet SEC’s
one of whom may be a director other 10. Should Supervisory Committee ‘‘independence’’ requirements and
than the compensated officer of the members of credit unions above a interpretations? If not both, why not?
board.’’ 12 U.S.C. 1761(b). Further, ‘‘no certain minimum asset size threshold be
member of the credit committee, if E. Audit Options, Reports and
required to have a minimum level of Engagements
applicable, or any employee of th[e] experience or expertise in credit union,
credit union may be appointed to the banking or other financial matters? If so, Experience with part 715 over the last
committee.’’ NCUA, Federal Credit six years has raised a number of
what criteria should they be required to
Union Standard ByLaws Art. IX, section miscellaneous issues. To assist the
meet and what should the minimum
1 (Rev. 10/99), 65 FR 55760 (Oct. 14, NCUA Board in addressing these issues,
asset size threshold be?
1999). See also 70 FR 40924, 40928 (July please respond to the following
15, 2005). Apart from these 11. Should Supervisory Committee questions:
disqualifications based on position and members of credit unions above a
certain minimum asset size threshold be Question No.
not asset size, part 715 imposes no
affirmative qualifications as a required to have access to their own 15. Is there value in retaining the
prerequisite to serve on a Supervisory outside counsel? If so, at what minimum ‘‘balance sheet audit’’ in existing
Committee. asset size threshold? § 715.7(a) as an audit option for credit
For financial institutions other than 12. Should Supervisory Committee unions with less than $500 million in
credit unions, the audit committee is the members of credit unions above a assets?
analog to a credit union Supervisory 16. Is there value in retaining the
certain minimum asset size threshold be
Committee. For institutions with total ‘‘Supervisory Committee Guide audit’’
prohibited from being associated with
assets of $1 billion or more, FDIC in existing § 715.7(c) as an audit option
any large customer of the credit union
requires the audit committee to be for credit unions with less than $500
other than its sponsor? If so, at what
comprised completely of members who million in assets?
minimum asset size threshold?
are independent of management of the
13. If any of the qualifications 4 For GAAS ‘‘independence’’ standards, see
institution. 12 CFR 363.5(a)(1). If this
addressed in questions 10, 11 and 12 generally AU § 220—Independence in AICPA,
above were required of Supervisory Professional Standards (updated 12/05) and ET
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3 AS 2 is available at: http://www.pcaobus.org/ § 100—Independence, Integrity and Objectivity in


Standards/StandardsandRelatedRules/Auditing Committee members, would credit AICPA, Code of Professional Conduct. For SEC
StandardNo.2.aspx. For the exposure draft of unions have difficulty in recruiting and ‘‘independence’’ standards and interpretations, see
revised AT 501, see AICPA Auditing Standards retaining competent individuals to serve generally SEC, Strengthening the Commission’s
Board, Proposed Statement on Standards for Requirements Regarding Auditor Independence,
Attestation Engagements dated Jan. 19, 2006,
in sufficient numbers? If so, describe the Release Nos. 33–8183; 34–47265; 35–27642; IC–
available at: http://www.aicpa.org/download/ obstacles associated with each 25915; IA–2103, FR–68, File No. S7–49–02 (January
exposure/EDAT501.pdf. qualification. 28, 2003), 68 FR 6005 (Feb. 5, 2003).

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Federal Register / Vol. 71, No. 36 / Thursday, February 23, 2006 / Proposed Rules 9281

17. Should part 715 require credit DEPARTMENT OF TRANSPORTATION You can get the service information
unions that obtain a financial statement identified in this proposed AD from
audit and/or an ‘‘attestation on internal Federal Aviation Administration Honeywell Engines, Systems & Services,
controls’’ (whether as required or Technical Data Distribution, M/S 2101–
voluntarily) to forward a copy of the 14 CFR Part 39 201, P.O. Box 52170, Phoenix, AZ
auditor’s report to NCUA? If so, how [Docket No. FAA–2006–23704; Directorate 85072–2170; telephone: (602) 365–2493
soon after the audit period-end? If not, Identifier 2006–NE–02–AD] (General Aviation); (602) 365–5535
why not? (Commercial); fax: (602) 365–5577
RIN 2120–AA64 (General Aviation and Commercial).
18. Should part 715 require credit You may examine the comments on
unions to provide NCUA with a copy of Airworthiness Directives; Honeywell
this proposed AD in the AD docket on
any management letter, qualification, or International Inc. TPE331 Series
the Internet at http://dms.dot.gov.
other report issued by its external Turboprop, and TSE331–3U Model
Turboshaft Engines FOR FURTHER INFORMATION CONTACT:
auditor in connection with services Joseph Costa, Aerospace Engineer, Los
provided to the credit union? If so, how AGENCY: Federal Aviation Angeles Aircraft Certification Office,
soon after the credit union receives it? Administration (FAA), Department of FAA, Transport Airplane Directorate,
If not, why not? Transportation (DOT). 3960 Paramount Blvd., Lakewood, CA
19. If credit unions were required to ACTION: Notice of proposed rulemaking 90712–4137; telephone (562) 627–5246;
forward external auditors’ reports to (NPRM). fax (562) 627–5210.
NCUA, should part 715 require the SUPPLEMENTARY INFORMATION:
SUMMARY: The FAA proposes to adopt a
auditor to review those reports with the
new airworthiness directive (AD) for Comments Invited
Supervisory Committee before
certain Honeywell International Inc. We invite you to send us any written
forwarding them to NCUA?
TPE331 series turboprop, and TSE331– relevant data, views, or arguments
20. Existing part 715 requires a credit 3U model turboshaft engines. This regarding this proposal. Send your
union’s engagement letter to prescribe a proposed AD would require comments to an address listed under
target date of 120 days after the audit implementing a new flight cycle ADDRESSES. Include ‘‘Docket No. FAA–
period-end for delivery of the audit counting method for first, second, and 2006–23704; Directorate Identifier
report. Should this period be extended third-stage turbine rotors used in aircraft 2006–NE–02–AD’’ in the subject line of
or shortened? What sanctions should be that make multiple takeoffs and your comments. We specifically invite
imposed against a credit union that fails landings without an engine shutdown, comments on the overall regulatory,
to include the target delivery date and removing turbine rotors from economic, environmental, and energy
within its engagement letter? service that have reached or exceeded aspects of the proposed AD. We will
21. Should part 715 require credit their cycle life limits. This new flight consider all comments received by the
cycle counting method would require closing date and may amend the
unions to notify NCUA in writing when
determining total equivalent cycles proposed AD in light of those
they enter into an engagement with an
accrued. This proposed AD results from comments.
auditor, and/or when an engagement
several reports of uncontained turbine We will post all comments we
ceases by reason of the auditor’s rotor separation on engines used in
dismissal or resignation? If so in cases receive, without change, to http://
special-use operations. We are dms.dot.gov, including any personal
of dismissal or resignation, should the proposing this AD to prevent
credit union be required to include information you provide. We will also
uncontained failure of the turbine rotor post a report summarizing each
reasons for the dismissal or resignation? due to low-cycle-fatigue (LCF), and substantive verbal contact with FAA
22. NCUA recently joined in the final damage to the aircraft. personnel concerning this proposed AD.
Interagency Advisory on the Unsafe and DATES: We must receive any comments Using the search function of the DOT
Unsound Use of Limitation of Liability on this proposed AD by April 24, 2006. Web site, anyone can find and read the
Provisions in External Audit ADDRESSES: Use one of the following comments in any of our dockets,
Engagement Letters, 71 FR 6847 (Feb. 9, addresses to comment on this proposed including the name of the individual
2006). Should credit union Supervisory AD. who sent the comment (or signed the
Committees be prohibited by regulation • DOT Docket Web site: Go to comment on behalf of an association,
from executing engagement letters that http://dms.dot.gov and follow the business, labor union, etc.). You may
contain language limiting various forms instructions for sending your comments review the DOT’s complete Privacy Act
of auditor liability to the credit union? electronically. Statement in the Federal Register
Should Supervisory Committees be • Government-wide rulemaking Web published on April 11, 2000 (65 FR
prohibited from waiving the auditor’s site: Go to http://www.regulations.gov 19477–78) or you may visit http://
punitive damages liability? and follow the instructions for sending dms.dot.gov.
your comments electronically.
By the National Credit Union • Mail: Docket Management Facility; Examining the AD Docket
Administration Board on February 16, 2006. U.S. Department of Transportation, 400 You may examine the docket that
Mary F. Rupp, Seventh Street, SW., Nassif Building, contains the proposal, any comments
Secretary of the Board. Room PL–401, Washington, DC 20590– received and, any final disposition in
[FR Doc. E6–2531 Filed 2–22–06; 8:45 am] 0001. person at the DOT Docket Office
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BILLING CODE 7535–01–P • Fax: (202) 493–2251. between 9 a.m. and 5 p.m., Monday
• Hand Delivery: Room PL–401 on through Friday, except Federal holidays.
the plaza level of the Nassif Building, The Docket Office (telephone (800) 647–
400 Seventh Street, SW., Washington, 5227) is located on the plaza level of the
DC, between 9 a.m. and 5 p.m., Monday Department of Transportation Nassif
through Friday, except Federal holidays. Building at the street address stated in

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