Seasonal migrant workers in Scottish agriculture: research report

Executive Summary

Introduction

This research focuses on agricultural seasonal migrant workers in Scotland and was commissioned to address four research aims, namely to:

1. estimate the number and demographic characteristics of agricultural seasonal migrant workers in Scotland,

2. understand the experiences of agricultural seasonal migrant workers, including their general wellbeing, ease of obtaining work permits and visas, working conditions and pay, and how these compare with other European countries, among other considerations,

3. understand the experiences of employers in the sector, including recruitment practices and requirements, administrative challenges associated with EU Exit and COVID-19 and delivering high-quality employment opportunities,

4. consider the long-term prospects and viability of the industry — including wages and employment standards, the sector and Scotland's competitiveness, regulations and requirements relating to COVID-19 and EU Exit, among others. These would cover all relevant perspectives, including those of employers, employees, regulators, stakeholders, and consumers.

Methods

Five research methods were designed to gather views from workers, employers and other stakeholders:

1. evidence review, with 40 sources in total,

2. stakeholder interviews, with 14 individuals,

3. employer survey, with 1089 respondents,

4. worker survey, with 439 respondents,

5. worker interviews, with 3 individuals.

Macroanalysis techniques were used to see if the number of agricultural seasonal migrant workers could be arrived at using modelling techniques.

Key Findings: Drivers for agricultural seasonal migrant labour

It was clear that seasonal migrant workers are currently crucial to farms with seasonal crops which cannot be mechanically harvested. Technical advances were mentioned as a potential solution but are much further into the future as mechanisation is not currently developed for these types of crops to good standard, or at a viable cost. Currently harvesting perishable items (i.e. soft fruits) requires hand picking. The seasonal agricultural sector in Scotland has an insufficient domestic workforce resulting in high dependency on migrant workers. Returnees are highly valued and recruitment methods are influenced by the relevant migration schemes in place.

Wider literature highlights the fluctuations in worker numbers due to schemes and regulation for movement of labour at a UK-level and the economic context in home countries.

All stakeholders interviewed stated that seasonal migrant workers were in high demand within the agricultural sector in Scotland and the wider UK. As found in the evidence review, the main reason for this demand was lack of availability of non-migrant seasonal workers.

In interviews, people explained how demand, or even dependency, on seasonal migrant workers applied to farms planting and harvesting the type of crops which could not be mechanically harvested. Most workers were employed in the fruit sector (81%).

Technological solutions cannot currently solve the labour shortage gap, but advances in technology should be monitored. In the meantime, the risk is that without the right volume of labour, at the right time, these types of farms may become unviable in Scotland.

Employers of seasonal migrant workers reported serious negative consequences for their businesses should they not be able to access this type of labour. This included downscaling business, focussing on non-agricultural activities, switching to other agricultural activities (e.g., cereals or livestock) and ceasing current activity.

Stakeholders and employers emphasised the need for labour to produce food to benefit local and national economies. Sourcing local food is important for environmental sustainability and food security.

Key Findings: Number and demographic qualities of agricultural seasonal migrant workers in Scotland.

Previous studies focus on shifts in demographics, especially country of origin of workers. Large proportions of workers responding to the Worker Survey were from Romania, Bulgaria and Ukraine (21%, 18% and 17% of respondents).

There was a large spread of workers' ages responding to the survey. Ages ranged from 18 to 62, with an average age of 33 years. Most of the workers were men, however there was a high prevalence of female migrant workers (42%). The pen portraits included in this report highlight the lived experience of three female seasonal migrant agricultural workers.

Literature confirms that numbers are difficult to establish. This research included Fraser of Allander Institute's experimental modelling to see if this technique could be used to reach an estimate for the number of seasonal migrant workers in Scottish agriculture for 2021.

Key Findings: Experiences of employers in the sector

The evidence review highlighted fluctuations in migrant workers caused by regulation of labour movement at UK-level and the economic context in home countries.

Employers explained that there were both advantages and disadvantages to labour recruitment through agencies. All those interviewed, including employers and recruitment agencies, called for more notice on any restrictions and quotas.

Studies in this area highlight that recruitment has UK-based and home-country based dimensions. These involve various agencies beyond the employer and the worker themselves.

Studies also explain that recruitment is complicated by the seasonal nature of the work, for example weather dependency. It is also impacted by competition for labour with other sectors and with other countries.

In summary, employers are dealing day to day with managing their farms, their crops and their resources in order to fulfil orders. Labour restrictions represent a significant risk to this sub-set of the agricultural sector.

Key Findings: Experiences of agricultural seasonal migrant workers

The evidence review highlighted concerns about the exploitation of seasonal migrant workers in the UK.

At the same time, the review indicated there was little primary research with agricultural seasonal migrant workers in Scotland. Authors highlighted concerns that human trafficking and that 'human rights of newcomers to the country' are not being upheld in practice. Some literature emphasises the societal benefits of immigration, recommending more integration. There are both positive and negative accounts of seasonal migrant worker experiences in Scottish agriculture, based on limited primary research.

This current research found that workers mostly come to Scotland because it has been personally recommended. They tend to stay in caravans on site and work on tasks such as harvesting or picking crops. With clear advanced information on their living and working conditions, they can be satisfied with their experiences. Many have low levels of English language. The most common ways to fund travel to Scotland or the UK were using savings (60% of all respondents) or credit cards (45% of all respondents). The most positive/beneficial aspect of working in Scottish agriculture was the ability to earn a good income.

Within this research project, stakeholders reflected that managing volatile picking requirements day to day had implications for workers. On one hand, they may be needed to work overtime and could earn extra through productivity bonuses. Alternatively they may not have any tasks and not have the opportunity to top up the minimum pay. This current research showed that just under half would prefer more hours.

Primary research with workers provided key details on their tasks, hours, pay and accommodation.

Tasks depend on whether they are a returnee:

• Those in Scotland for their first year carried out a different range of tasks compared to those with any previous experience.

Hours vary:

• The worker survey found that respondents worked for an average of 43 hours working in a typical week.
• Just over half (53%) of seasonal migrant workers were happy with the number of hours they work whilst 46% would prefer more hours.
• Stakeholders explained that due to weather and supply chain factors, the actual volume of work could be hard to predict and subject to change. Employers confirmed that matching labour need to labour availability on-site was a continuous challenge for farms.
• These findings point to potential benefits of providing options for labour sharing across farms, for example for workers who wish to work more hours.

Pay amount and costs vary:

• For employers of seasonal migrant workers, the survey found pay ranged from £8.91 to £13.75 per hour.
• Workers reported they were paid on average £10.22 per hour.
• However, looking at the pay itself does not provide the full picture. The worker survey found accommodation was usually provided by employers, and accommodation provision costs tended to be deducted from pay.
• On average, seasonal migrant workers paid £62 per week for their accommodation, although costs ranged from £30 to £300.

Stakeholders/Employers were generally satisfied with the pay system for seasonal migrant workers and were positive about the arrangements in place compared to England, with Scotland having the SAWB and Agricultural Wages Order.

The worker survey found accommodation was usually provided by employers, and accommodation provision costs tended to be deducted from pay.

Satisfaction with accommodation and working conditions is generally positive:

The vast majority (96%) of seasonal migrant workers were satisfied, including 38% very satisfied, with the working conditions on the farm.

Responsibility for arranging accommodation largely rests on employers. The majority of workers (87%) were satisfied with accommodation (27% very satisfied, 60% satisfied) while 13% were dissatisfied with their accommodation. Satisfaction did not depend much upon the type of accommodation, although satisfaction with caravans on farms was 84%. Satisfaction levels differed between people from different home nations. People from Romania had highest rates of satisfaction with their accommodation and Kazakhstan the lowest.

Challenges exist for workers and include missing family or friends (62%), language barriers (31%) and unpredictability of Scottish weather, namely, the rain and colder weather– and preferred the climate of their home countries.

Other notable challenges were costs of accommodation (15%), high workload/fatigue (13%) and isolation and distance to urban centres (11%).

A few respondents felt that they received a low rate of hourly pay for their work, while others noted that the (typically six month) time limitations posed by visa restrictions and/or the Seasonal Workers Programme had negatively impacted their overall experience of working in Scottish agriculture.

Key Findings: Long-term prospects and viability of the industry

The literature highlights that the recruitment of seasonal migrant workers has UK-based and home-country based dimensions. These involve various agencies beyond the employer and the worker themselves.

Recruitment is complicated by the seasonal nature of the work, for example weather dependency. The task is also subject to competition for labour with other sectors (outwith agriculture) and other countries (outwith Scotland).

Two out of five respondents to the worker survey had found their employer through a friend or family member. Less than a fifth saw an advertisement/social media/website to find their current employer. This indicates the importance of word of mouth and recommendations from trusted individuals.

Around half of workers completing the survey were returnees (53%) and around half (47%) were non-returnees. Returnees had most commonly worked previously in Scottish agriculture for around three to five years.

Employers seek repeat workers coming back year on year where possible. They are familiar with the set-up of the farm and their working conditions.

Ensuring a positive experience is important to attract returnees, and to recruit further workers through their trusted networks of friends and family.

Stakeholders emphasised how they valued seasonal migrant workers as people who were conducting physically demanding tasks, away from their home country and friends and family, and often without strong levels of English language. Farmers touched upon their responsibility as employers for not only pay and work, but workers' living conditions and their well-being. Measures such as inspections, audits, and the competition for labour were seen to have led to improvements. The qualitative information from this research project supported efforts to apply the fair work dimensions to seasonal migrant agricultural work.

Recommendations

This report recommends continued joint efforts between private, public and third sector stakeholders to further improve the experience of workers in line with Fair Work dimensions.

Recommendations: UK Government

UK Government should consider the Scottish agricultural sector in future policy making.

UK Government should ensure that sufficient notice is given of changes to visa schemes which apply to Scotland, ensuring this happens by December the preceding year.

UK Government should ensure that Scottish agriculture, and its representatives, are closely involved in shaping future schemes. This will ensure that measures put in place are informed by evidence and are experience based. Evidence suggests that there are potential benefits of providing options for labour sharing across farms.

UK Government should clearly communicate any restrictions due to migration schemes for each year to employers, intermediaries and workers. This will help lead in time and mitigate risks to businesses.

UK Government should consider whether any scheme for agricultural migrant workers should include minimum English language requirements.

Recommendations: Scottish Government

Scottish Government should gain key data year on year directly from farms on numbers of seasonal migrant workers. This data could be cross-referenced with statistics on labour distribution by recruitment agencies.

Scottish Government should promote existing support and clarify that making support available to agricultural seasonal migrant workers is the responsibility of any organisation interacting with these workers.

Scottish Government should consider how the "tolerable standard" regulations could be applied to temporary accommodation and who would be best placed to do the inspections. Employers pointed out that on-site accommodation for workers is currently regulated, with checks regularly undertaken by labour providers and even by large buyers of produce to establish if they deem it as of sufficient standard. However, there is currently no regulated reasonable standard as defined by Scottish Government or checked by a public body or regulator.

Recommendations: Recruitment agencies

Recruitment Agencies should offer more targeted and quality recruitment in fewer countries, in part to help minimise some of the communication barriers between employers and migrant workers.

Recruitment agencies should be as clear as possible on wages and what is included and not included for living costs.

Recruitment Agencies should ensure that Fair Work is at the forefront of practices of UK-based recruitment agencies supplying labour to Scotland.

Recruitment Agencies should ensure that Fair Work features in the recruitment practices to source labour in home countries.

Recruitment Agencies should promote existing support and clarify that making support available to agricultural seasonal migrant workers is the responsibility of any organisation interacting with these workers.

Recommendations: Employers

Employers should understand their responsibility to treat their workers with dignity.

Employers should consult the Fair Work First Guidance by Scottish Government and put it into practice on their farms.^[1]

Employers should be as clear as possible on wages and what is included and not included for living costs.

Employers should continue to upgrade on site accommodation, including shared areas. Involving workers in making suggestions for improvement could help employee engagement. Where possible, budgets should be set aside, and plans made for improvements.

Employers should consider offering support with enabling regular communication with friends and family in workers' home countries. Where possible, steps could include improving broadband access, providing tablet or laptop computers or gifting phone credit. This would support a future focus on well-being of workers and enabling workers to regularly communicate with friends and families.

Employers should promote existing support and clarify that making support available to agricultural seasonal migrant workers is the responsibility of any organisation interacting with these workers.^[2]

Recommendations: Third sector organisations

Third sector organisations should offer support around the pressures on workers due to insecurity of income. Possible collaboration with debt advice organisations may be beneficial to inform this support.

Third sector organisations should offer anonymised feedback from workers to give a broad picture of how experiences relate to the Fair Work Framework.