Hired Workers and the Future of California Agriculture
Farm Labor 2005
Philip Martin—plmartin@ucdavis.edu
Ed Taylor—jetaylor@ucdavis.edu
March 24, 2005
"Labor is the problem of the twentieth century." California fruit grower H.P.
Stabler in 1902, quoted in Daniel, 1981, 51.
Highlights
Agriculture is a major employer in California: the state’s 35,000 agricultural employers hire over 800,000 individuals to work on the state farms during a typical year. Average hourly earnings in California agriculture are about half of average manufacturing wages, $7 to $9 an hour versus $14 to $18 per hour, and farm workers average about 1,000 hours of work a year, so that farm workers have annual earnings of $7,000 to $9,000 a year, a fourth the $30,000 to $36,000 average for factory workers.
Since 1975, state law has granted farm workers organizing and bargaining rights. Over the past quarter century, there have been elections on about 5 percent of the state’s farms, and there are currently contracts on about 225 farms. Beginning in 2003, the state may require mandatory mediation that results in an imposed contract if employers and unions cannot negotiate an agreement.
During the 1990s, the percentage of unauthorized farm workers increased, as did the percentage of workers on farms who were brought there by farm labor contractors and other intermediaries. Farmers, fearing that they could not harvest crops if unauthorized workers were to be removed suddenly, have lobbied in Congress since the mid-1990s for an employer-friendly guest worker program. The options are new guest worker programs, legalization for currently unauthorized farm workers, or a combination of the two, earned legalization, under which unauthorized foreigners in the US would obtain a temporary legal status that could be converted to an immigrant visa with continued US employment.
Employment Trends
The most widely cited farm worker data are from the National Agricultural Workers' Survey (NAWS), a survey conducted in 85 counties across the US three times a year for the US Department of Labor. Between 1990 and 2000, the percentage of foreign-born workers rose from 60 to 80 percent in the entire US,, while the percentage of foreign-born farm workers remained at 93 to 96 percent in California. Similarly, the percentage of males rose outside California from 72 to 81 percent, but remained at 75 to 85 percent in California.
Farm workers were asked a series of questions about their place of birth and legal status— authorization to work in the US was inferred from their answers. The percentage of unauthorized workers in the entire sample increased sharply in the 1990s, from 12 to 52 percent. In California, the percentage of unauthorized workers was lower than in the rest of the US in the early 1990s, but also increased fourfold during the decade.
About 70 percent of US crop workers interviewed in the NAWS found their current job through “network contacts,” a friend, relative, or work mate; 25 percent applied on their own, and one percent used the federal-state Employment Service. Job-worker matching in California agriculture is decentralized, with farm labor contractors (FLCs) and other intermediaries assembling crews of workers to fill seasonal jobs. The key intermediary in the FLC system as well as when workers are hired directly by a farmer is a foreman or crew boss, the person in charge of a crew of 20 to 40 workers. Most hiring is via worker networks--the crew boss tells the crew that more workers are needed, and the workers currently in the crew inform their friends and relatives that a job is available.
Unions
The number of collective bargaining agreements in California agriculture has never exceeded 300 at any time. The United Farm Workers (UFW), Teamsters, and other unions representing field workers have about 30 contracts covering perhaps 25,000 workers.
The UFW in 2002 reported that it won elections to represent workers on 425 farms, but negotiated only 185 first contracts, and attributed this 43 percent election-to-contract ratio to farmers refusing to bargain toward agreement, as required by the 1975 ALRA. The UFW persuaded the Legislature to enact the first significant amendment to the ALRA in 27 years, mandatory mediation, which has since 2003 required unions and farm employers to bargain for at least 180 days for a first contract. If they cannot reach agreement, a mediator tries to help the parties to resolve their differences for another 30 days. If this mediation fails to produce an agreement, the mediator must, within 21 days, recommend the terms of a collective bargaining agreement that the ALRB can impose on the parties. Two contracts have been settled via mandatory mediation, Hess Collection (UFCW, 2003) and Pictsweet (UFW, 2004).
Immigration Reform
The hired farm workers of tomorrow are growing up today outside the US, usually in rural Mexico and Central America. A major federal policy issue is under what conditions US farm employers should get access to these foreign workers. The US has a guest worker program for farm workers, known as the H-2A program, that requires DOL to certify a farmer’s need for H-2A guest workers. In order to obtain certification, a farmer must satisfy recruitment, wage, and housing regulations, including applying for certification and trying to recruit US workers at least 45 days before they are needed, offer to pay the higher of the minimum, prevailing, or Adverse Effect Wage Rate, and offering to provide free and approved housing to out-of-area US and H-2A workers.
Instead of H-2A workers, many farmers want an alternative guest worker program that does not require DOL certification and free housing. In July 1998, the US Senate approved one such proposal, the Agricultural Job Opportunity Benefits and Security Act (AgJOBS), which avoided the need for farmers to be certified by creating a registry in each state to enroll legally authorized farm workers. Farmers would apply to the registry, requesting 100 workers, and if only 60 registry workers were available, the farmer would be automatically “certified” to recruit abroad and have admitted to the US 40 foreign workers. AgJOBS also ended the housing requirement by allowing the governor to certify that there is “sufficient” farm worker housing in the area, the farmer could offer guest workers a housing allowance.
There are three major policy options to deal with unauthorized foreigners: guest workers, legalization, and earned legalization. President Bush proposed that unauthorized foreigners with US employers be allowed to become guest workers for up to six years, and then return to their countries of origin with a new incentive: credit in their country’s social security system for legal US work.
Most Democrats, unions, and migrant advocates support legalization, so that unauthorized foreigners with e.g. at least five years of US residence, at least two years of (illegal) US employment, payment of taxes, and passing security and perhaps English tests can become immigrants. Earned legalization would permit unauthorized foreigners in the US to get a temporary or probationary legal status that could be converted to a regular immigrant visa with continued US employment, tax payments etc.
The third option is earned legalization, as outlined in the 2005 version of AgJOBS.
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