An analysis and discussion of regulations in the 1986 Immigration Reform and Control Act focus on policy issues concerning requirements for language proficiency and knowledge of United States history and government for immigrant amnesty. Five specific issues are addressed: 1) the discriminatory effect of requiring only amnesty applicants to demonstrate a knowledge of English and civics; 2) how much instruction is it reasonable to require of applicants and how are these requirements determined; 3) the standardization of the examination process and the suitability of test items; 4) the possible discrimination against applicants who are not literate; and 5) the status and future of ineligible immigrants. Greater care in addressing these aspects of federal regulation is recommended. (MSE) (Adjunct ERIC Clearinghouse on Literacy Education)