2015年-世界发展银行全球_Australias_Seasonal_Worker_Program___Demand-side_Constraints_and_Suggested_Reforms_51页_1mb

Australia's Seasonal Worker Program: Demand-side Constraints and Suggested Reforms

Core Content

The Seasonal Worker Program (SWP) is an Australian initiative that allows workers from eight Pacific Island countries and Timor-Leste to work in Australia for up to six months, primarily in the horticulture sector. It was introduced in 2011 as a successor to the Pacific Seasonal Worker Pilot Scheme (PSWPS), which had been in place from 2008 to 2012. The SWP has also been trialed in four other sectors: accommodation, aquaculture, cotton, and sugar cane.

The program aims to address labor shortages in specific industries and provide economic benefits to both labor-sending and receiving countries. However, despite its potential, the take-up by employers has remained relatively low, indicating ongoing demand-side constraints.

Main Points

• Program Overview: The SWP allows seasonal labor from Pacific Island countries, with a focus on horticulture and other sectors.
• Historical Context: The PSWPS, which preceded the SWP, had limited success with only 1,623 arrivals out of a 2,500 worker cap. It was designed to test the feasibility of seasonal labor mobility in the region.
• Current Participation: As of FY 2013-14, 2,014 visas were granted under the SWP, still below the cap of 2,500 workers. The horticulture sector remains the primary focus, with a cap of 2,000 workers.
• Comparison with New Zealand: The RSE scheme in New Zealand has been more successful, with higher participation rates and a significantly larger cap.
• Employer Survey: A comprehensive survey of horticultural employers and industry bodies was conducted in 2014 to understand the reasons for low participation in the SWP.

Key Findings

• Low Take-Up: Despite the expansion of the SWP, the number of workers remains low compared to the overall labor needs of the horticulture industry.
• Lack of Awareness: Many employers are not aware of the SWP, especially in regions with few Pacific seasonal workers.
• Perceived Costs and Risks: Employers who are aware of the program still perceive it as costly and risky. The administrative burden and upfront costs are significant deterrents.
• Worker Quality Concerns: There are concerns about the quality and reliability of Pacific seasonal workers, as well as the presence of illegal workers and backpackers in the industry.
• Positive Sentiment: Some employers, particularly those who have participated in the SWP, have a more positive view of the program, though they find the administrative requirements burdensome.

Main Constraints on Employer Demand

• Aggregate Labor Shortage: The horticulture industry is not experiencing an aggregate labor shortage due to the presence of illegal workers and backpackers.
• Administrative Burden: Approved Employers face significant administrative requirements, including reporting and compliance, which can be time-consuming.
• Costs: The costs associated with hiring Pacific seasonal workers are high, including return airfare, accommodation, and health insurance.
• Information Gaps: There is a lack of consistent and targeted information about the SWP among employers.
• Risk Perception: Employers are concerned about the risks associated with hiring Pacific seasonal workers, such as labor law compliance and worker reliability.

Suggested Reforms

The report recommends several reforms to improve employer participation in the SWP:

• Increase Funding for Compliance: To reduce the number of illegal workers and improve the program's reputation.
• Reduce Visa Costs: Either remove or reduce the second-year visa extension for backpackers, or generalize it to all sectors.
• Revolve Fund for Costs: Cover the costs for new workers through a revolving fund and recover costs for returning workers through wage deductions.
• Shorten Work Duration: Reduce the minimum work requirement from 14 weeks to a shorter period.
• Empower Employers: Give employers a greater role in selecting workers.
• Targeted Marketing: Use industry bodies to promote the SWP and increase awareness.
• Streamline Reporting: Simplify reporting requirements for government and reduce administrative burdens.
• Ease Labor Market Testing: Reduce the labor market testing requirements for participating growers to make the program more attractive.

Conclusion

The SWP has the potential to significantly benefit both Pacific Island countries and Australia by addressing labor shortages and facilitating remittance flows. However, to realize this potential, reforms are needed to reduce costs, streamline administrative processes, and increase awareness and trust among employers. The program's continued success will depend on its ability to adapt to employer needs and effectively address the underlying constraints that have limited its uptake.