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Incomplete I-9 and work continuance

I work for a school district. We have seasonal paid coaches. The selection process is fairly chaotic and untimely, but this is all done by the athletic director. Once hired, we require fingerprinting, criminal history report, I-9, W4, etc. The issue is that the majority of our new coaches are not filling out their I-9 and producing documentation within the 1-3 days after accepting the position, as required. Sometimes we don't receive this information for months, and maybe not even until after their season has ended. Then they turn it in and demand immediate payment, or threaten a BOLI Claim. It's becoming a ridiculous problem. I do not pay them until the paperwork is complete. However, I feel like they should be suspended from working until we have everything we require. Our Athletic Director would throw a fit it I asked for suspensions, but he is also very little help when it comes to collecting the paperwork. What do I do? What are my options? Can I force them to be volunteers until the paperwork has been turned in, even though they have technically been hired for that position?

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