So I am assuming you are asking what do you do if you don't have references?
If so, then .. well you better start meeting some people! ..
Seriously though if you haven't had access within the past 3 years then you will have to provide 3 references (4 on some company phq's) .. either way all that they use those references you list is to DEVELOP 2 more references that you didn't list. So, lets just say they call all 3 of your references you list and none of them can give anyone else that could be a reference for you.. well then whoever is doing your background will first check your PHQ and see if there is anyone on there who could be a reference that you did not list and who is not related by blood or marriage. If they can't get anyone from that they will contact you and ask you to provide MORE names. So you are still at square one if you give them people who can't provide 2 more names when they call them.
Essentially, you are listing people who they are just going to call and ask for someone ELSE to be a reference for you.
To be a reference the person can't be related to you by blood or marriage. You must have known them for at least 6 months and have had contact in the past 6 months(email,text, in person all count) If not.. then they can't use them.
So at the least you are going to need one person that they can call and that person will need to be able to provide them with 2 names to be able to complete your background. If they only provide one, that is fine as long as someone else gives one too

. You get my gist.
Anyways, what will happen if you don't get the references? Then you won't get the job.. cause they cant complete your background.
There are a few ways 'around' the procedures because of the way they read.. but there have been a few nice letters from the NRC to the companies about the way they are doing it and they are in the process of writing new procedures for it.
My opinion, your best bet is to try to find some old buddies or friends that can help. Maybe a friend of the significant other or whatever the case may be.
Good luck let me know if you have anymore questions.