Two Temporary Foreign Worker Programs in Australia: An Intra-National Comparison

Australia is conventionally regarded as a land of permanent settlement, but temporary migration has become more important in migration flows in recent years.  Two main temporary foreign worker programs (TFWPs), structured in different ways but both based on restricted rights to residence and social benefits, are currently in operation.  The first is nominally aimed at skilled workers, though it extends to less skilled groups in industries such as restaurants and construction, while the second is a smaller, newer program designed for semi-skilled workers, predominantly in horticulture.  This paper draws on a current research project on temporary migrant work and precariousness to describe the two TFWPs and their impact.  The first program, known as the 457 visa program, is largely employer driven and only lightly regulated.  Since its inception in 1996, it has proved popular with employers and the number of visa grants has soared.  Whilst also well-liked by many migrant workers, who can bring immediate family and can readily move towards permanent residence status, it has been marked by numerous cases of abuse, either by direct employers or by recruitment agents.  The second, the Seasonal Worker Program, involves entry into Australia for a shorter period (up to 7 months per year) and is more tightly regulated, with close government supervision as well as union involvement.  It represents a complex response to pressures not only from horticulture employers but also from Pacific Island nations and Pacific workers. This program has faced problems in implementation, including low take-up rates and even repudiation by many employers.  The paper argues that the two programs reflect alternative responses to dilemmas that are common to many TFWPs.  Both reveal the difficulties in reconciling often-extravagant employer needs and demands for flexible labour with the human needs of migrant and local workers.