The Obama administration has been issuing millions of work permits over the limits set by Congress, according to a new report from the Center for Immigration Studies.

In the report released Monday, the anti-amnesty group explains data it obtained from U.S. Citizen and Immigration Services (USCIS) via a Freedom of Information Request.

Federal records show, the CIS finds, that from 2009-2014 the agency issued 5,461,568 new work permits to immigrants, beyond the 1.1 million legal immigrants and 700,000 guest workers admitted to the U.S. each year.

CIS laid out three categories of immigrants who received work authorization under what the group is calling a “shadow” system:

“I was astonished at the huge number of work permits that are being issued by the Obama administration outside the legal immigration system through executive discretion, especially at a time of high unemployment and stagnant wages,” Jessica Vaughan, CIS’ director of policy studies, said Monday. “Besides the effect on the American worker, it encourages and rewards more illegal immigration.”

The report comes a day before the Senate is set to take its first vote on a House-passed Department of Homeland Security appropriations bill that defunds President Obama’s executive amnesty — the president’s attempt to grant legal status and work permits to millions of illegal immigrants.