Evaluation of the H-2A Alien Labor Certification - ETA Advisories

279 Pages·2012·2.56 MB·English

U.S. Department of Labor
Employment and Training Administration

EVALUATION OF THE H-2A ALIEN LABOR CERTIFICATION
PROCESS AND THE U.S. FARM LABOR MARKET

By:

Philip Martin [email protected]

Submitted to:

U.S. Department of Labor
Employment and Training Administration
200 Constitution Avenue, NW
Washington, D.C. 20210

Contract Number: DOL061A20353

Submitted By:

KRA Corporation
8757 Georgia Avenue, Suite 1300
Silver Spring, Maryland 20910

September 18, 2008
TABLE OF CONTENTS

PREFACE AND ACKNOWLEDGEMENTS ............................................................................................................ I
EXECUTIVE SUMMARY ......................................................................................................................................... II

FINDINGS RECOMMENDATIONS

SECTION A AND ........................................................................................................ II
THTRaEEb lKeE 1Y. C HO-N2SAID SEtRreAaTmIOlNinS .i.n..g... .R...e..c..o...m....m...e...n..d...a..t..i.o...n..s.. ........................................................................................................................................................................................................ i IvI
STREEleAcMtLroINnIiNcG I nRfEoCrOmMaMtiEoNnD ..A..T...I.O...N...S.. ......................................................................................................................................................................................................................................................................... .I. Vv
ABC Employer Ratings ........................................................................................................................................................ vii
U.S. Worker Recruitment ................................................................................................................................................... vii
Prevailing Wages, Enforcement, and Funding ........................................................................................................... x

SECTION B FINDINGS AND RECOMMENDATIONS ............................................................................................................... XI
THERcEoE nKoEmY eCtOrNicS MIDoERdAelTsI .O..N...S.. ............................................................................................................................................................................................................................................................................................... x..i XiiI
THCRoEEm RmEoCdOiMtyM CEaNsDeA STtIuOdNiSe .s.. ............................................................................................................................................................................................................................................................................................... xXiIvI
Implications for the Department of Labor ................................................................................................................. xv

A. CURRENT H-2A SYSTEM PERFORMANCE. ................................................................................................. 2

Table 2. Evolution of H-2A Concepts ............................................................................................................................... 3
1.1W EWVOIL EUxTcIOepNt OioFn TsH ..E.. .H...-..2...A... .P...R...O..G...R..A...M... ............................................................................................................................................................................................................................................................. .2 4
WWII Braceros .......................................................................................................................................................................... 7
Figure 1. Mexican Bracero Admissions and Apprehensions, 1942-64 ......................................................... 11
BWI and H-2 Programs ...................................................................................................................................................... 13

Table 3. H-2A Certification Flow Chart ...................................................................................................................... 19
1.2S TtrHeEa mH-l2inAin CgE RIsTsIuFeICsA: TOIFOLNC P aRnOdC ENSPS C...s.. ............................................................................................................................................................................................................................................... 1262
Table 4. NPCs Issues and Streamlining Options ..................................................................................................... 23
Streamlining Issues: SWAs ............................................................................................................................................... 28
Table 5. SWA Issues and Streamlining Options ...................................................................................................... 29
Recruitment Issues ............................................................................................................................................................... 34
Transportation and ¾ Guarantee ................................................................................................................................ 37
Wage Issues ............................................................................................................................................................................. 38
Table 6. H-2A Wage Issues ............................................................................................................................................... 38

Figure 2 H-2A: Certification Requests and Approvals, FY 1998-2006 ......................................................... 42
1.3T Ha-b2leA 7 P. RHO-G2RAA WM oDrAkTeAr s.. .C...e..r..t.i..f.i..e..d.. .b...y.. .S..t..a...t.e...,. .F..Y... .2..0...0..6... ....................................................................................................................................................................................... 4413
Figure 3. H-2A Jobs Certified by State, FY 2006 ...................................................................................................... 43
Figure 4. H-2A Jobs Certified, Top Five States, FY 1998-2006 ......................................................................... 44

Table 8. Top 10 States: Shares of Alien Labor Certification Grants, FY 2007 ........................................... 45
1.4F Hig-u2rAe G5R. SAtNaTt eA SLLhOaCrAeTs IoOfN HS -..2...A.. .J..o..b...s.. .C..e...r..t.i..f.i.e..d... .a...n..d... .H...-..2..A... .C...o..s..t..s.,. .F...Y... .2..0...0..6... ......................................................................................................... 4446
Figure 6. Average cost of Inspecting H-2A Housing, States, FY 2006($) ..................................................... 47
Figure 7. Average Cost of Prevailing Wage and Practice Surveys, States, FY 2006($) ........................ 48

4604-006
KRA Corporation .
Figure 8. Average Cost of Processing H-2A applications, States, FY 2006($) .......................................... 49
B. CURRENT AND FUTURE FARM LABOR MARKETS ............................................................................... 49

2.1 LABOR DEMAND AND SUPPLY IN AGRICULTURE ...................................................................................................... 50
2.1T.1a bFlAeR 9M. LLoAnBgOeRs Pt ADTiTstEaRnNcSe .. .T...r..a..v..e...l.e..d... .i.n... .m...i..l.e..s.. .a...s.. .a.. .M....i.g...r..a..n...t..:. . .1...9..8...1..-..8..3..................................................................................................................... 5506
2.1T.2a bFlAeR 1M0 L. AABveOrRa DgAe TAAn .n...u..a...l. .U...I..-.C...o..v...e..r..e..d.. ..E..m....p...l.o..y...m....e..n..t.. .a...n..d... .W....a...g..e..s..,. .2...0..0...5... .......................................................................................................... 5612

Table 11. Hired Worker Hours in U.S. Agriculture, 2002 ................................................................................... 64
2.1T.3a bHlIeR 1ED2. L UAnBiOteRd O SNt Uat.Ses. :F FAaRrMmS .L...a..b...o..r.. .E...x..p..e...n..s..e..s..,. .2...0..0...2................................................................................................................................................................................. 6635
Table 13. United States: Farms by NAICS and Labor Expenses, 2002 .......................................................... 65

Table 14. U.S. Horticultural Crops, Value, $bil, 2004-06 .................................................................................... 67
2.1.4 HIRED LABOR IN FVH AGRICULTURE .................................................................................................................... 66

2.2 ECONOMETRIC MODELS................................................................................................................................................ 68
2.2T.1a bSlCeH 1U5H. M ScOhDuEhL, (11992299--6611 ).. .a..n...d.. ..U...p..d...a..t..e..d... .(.1...9...7..5...-.0...5..).. .E...l.a...s..t.i..c..i.t..i.e..s.. .f..o..r.. .a... .1..0...%.... .I..n..c..r..e..a...s..e.. .................................................. 6792
2.2.1 UPDATING THE SCHUH MODEL, 1975-2005 ....................................................................................................... 70

2.3F RigEuGrIeO N9A. LD MireOcDtElyL SH ..i.r..e..d... .F..a...r..m... ..W....o..r..k...e..r..s..,. .Q...u..a...r..t..e..r..l.y..,. .1...9..8...9...-.2...0..0...6.. .(..0...0..0...).. .............................................................................................................. 7735
2.3F.1ig DuAreT A1 0FO. AR vReErGaIgOeN HALo uMrOlyD EELaSr n...i.n...g..s.. .1...9...8..9...-.2...0..0...6.. .(..$.../..h..o...u..r..).. .......................................................................................................................................................... 7746
Table 16. U.S., CA, & FL. Average Hourly Earnings, Field Workers, 1989-2006....................................... 77

Figure 11. Actual vs Fitted Investment Values, CA, 1961-2004 ....................................................................... 81
2.3F.2ig RuErGe I1O2N.A ALc MtuOaDl EvLsS F WitItTeHd A InRvMesSt mDAeTnAt V...a...l.u...e..s.. .(..c..o..r..r..e..c..t..e..d...)..,. .C..A...,. .1...9..6...1..-..2..0...0...4.. ......................................................................................... 7892
Table 17. Auto-Corrected Result: State Agricultural Investment Models ................................................ 83
Table 18. 2SLS Results. State Agricultural Investment Models. State .......................................................... 84
Table 19. Wage Elasticities of Agricultural Investment (Evaluated at 2004) ........................................ 84

2.4T FaVbHle C2O1M. UM.OS.D AITpIpESle .. .P...r..o..d...u..c..t..i.o...n.. .a...n...d.. .G...r..o..w....e..r.. .P...r..i.c..e..s..,. .1...9..9...0..-..2..0...0...6.. .................................................................................................................................... 8859
2.4T.1a bClOeM 2M2O. WDITAY: ACvAeSrEa SgTeU HDIoEuSr .l..y.. .E...a..r..n...i.n...g..s..,. .A...p..p...l.e...s.,. .C...h...e..r..r..i.e..s..,. .a...n..d... .P..e...a..r..s..,. .2...0..0...2..-..0..6... ...................................................................... 8962
Table 23. Florida: Bearing Orange Acreage and Yield, 1990-2006 .............................................................. 92
FIGURE 13. BRAZIL SHARE OF ORANGE JUICE
Table 24. U.S. Raisin Production and Prices, 1990-2006 .................................................................................... 96
Table 26. U.S. Strawberry Acreage, Prod .u...c..t..i.o...n..,. .a...n..d... .P...r..i.c..e..s.. .1...9..9...0..-..0..6... ............................................................................................................ .1. 9051

Figure 14. Factors Affecting Farm Labor Demand and Supply................................................................... 105
2.4.2 FARM LABOR DEMAND AND SUPPLY MATRIX .................................................................................................... 105
CONCLUSIONS AND RECOMMENDATIONS ............................................................................................... 107

BIBLIOGRAPHY .................................................................................................................................................. 109

APPENDIX 1. STATE FARM LABOR PROFILES ......................................................................................... 114

Table A1. States in which H-2A Interviews were conducted, 2007 ............................................................. 114

UNITED STATES FARM LABOR PROFILE................................................................................................... 115

U.ST. aSbUlMeM 1A. HRYir ..e..d... .W....o...r..k..e..r.. .H...o...u...r.s.. .i..n.. .U.....S..... .A..g...r..i.c..u...l.t..u...r..e..,. .2..0...0...2.. ................................................................................................................................................................. 111156
U.ST. aCbElNeS 2U.S U OnFi AteGdR SICtUaLteTsU:R FEa ..r..m... .L...a...b..o...r. ..E..x..p...e..n...s..e..s..,. .2..0...0..2... ............................................................................................................................................................................. 111156

4604-006
KRA Corporation .
Table 3. United States: Farms by NAICS and Labor Expenses, 2002 .......................................................... 117

FVTHa AbGleR I4C.U ALvTeUrRaEg .e.. .A...n...n..u...a..l.. .U...I.-..C..o...v..e..r..e..d... .E...s..t.a...b..l..i.s..h..m....e..n...t..s.., ..E..m....p...l.o..y...m...e...n..t..,. .a...n..d... .W....a...g..e..s..,. .2...0..0...5.. ..................................... 111280
U.S. QCEW DATA .............................................................................................................................................................. 119

APBPIEBNLIDOGIXRA 1P H- YA..R...I..Z...O...N...A.... .F..A...R....M.... .L..A....B...O...R... .P...R....O...F...I.L...E... ................................................................................................................................................................................. 112232

AZT SaUbMleM 1A.R HY .i.r..e..d... .W....o...r..k..e..r.. .H...o...u..r..s.. .i..n.. .A...r..i.z...o..n...a.. .A...g...,. .2..0...0..2... ................................................................................................................................................................................... 112234
AZT CaEbNlSeU 2S. OAFr iAzGoRnIaC:U FLaTUrmRE L ..a...b..o...r.. .E..x...p..e..n...s..e..s..,. .2..0...0...2.. .................................................................................................................................................................................................... 112235
Table 3. Arizona: Farms by NAICS and Labor Expenses, 2002 ..................................................................... 126

Table 4. Arizona: UI-Covered Ag Employment, 1990-2006 ........................................................................... 127
AZT SaTbAlTeE 5 D. AATriAz .o..n...a..:.. .U...I.-..C..o...v..e..r..e...d.. .E...m....p..l..o..y..m....e..n...t.. .i.n... .C..r..o...p..s..,. .L...i.v..e..s..t..o..c..k...,. .a..n...d.. ..S..u..p...p...o..r..t.. .2..0...0..4...-.0...6... ...................................... 112278

Table 6. Arizona H-2A Applications, FY 2004-06 ................................................................................................ 128
AZT Ha-b2lAe 7JO. BASr,i RzoEnFaER ARlAieLnS, LAaNbDo Pr RCEeVrAtiIfLiIcNaGt iWonA GGErSa n...t..,. .F..Y... .2..0...0...6.. .................................................................................................................................................. 112289

ISSUES AND TRENDS .......................................................................................................................................................... 129
APBPIEBNLIDOGIXRA 1P H- YA..R...K....A...N...S...A...S.. .F...A...R...M.... .L...A...B...O....R... .P...R...O....F..I..L...E.. ........................................................................................................................................................................... 113310

ART SaUbMleM 1A.R AYR .. .F...a..r..m.... .S...a..l.e...s.,. .L...a...b..o...r.. .E..x...p..e..n...d..i..t.u...r..e..s..,. .A...v..e..r..a...g..e... .E..a...r..n..i..n..g...s..,. .a..n...d.. .H....o..u...r..s.. .W....o..r..k...e..d..., ..2..0...0..2... ................. 113312
ART CaEbNleSU 2S. OAFr kAaGnRsIaCUs:L FTaUrRmE . .L...a..b...o..r.. .E...x..p...e..n...s.e...s..,. .2..0...0..2... .............................................................................................................................................................................................. 113312
Table 3. Arkansas: Farms by NAICS and Labor Expenses, 2002 .................................................................. 133

Table 4. Arkansas: UI-Covered Employment, 2005 ............................................................................................ 134
AR STATE DATA ................................................................................................................................................................. 134
Table 5. Arkansas Alien Labor Certification Grant, FY 2006 ........................................................................ 135
AR H-2A JOBS, REFERRALS, AND PREVAILING WAGES .............................................................................................. 135

APBPIEBNLIDOGIXRA 1P H- YC..A...L...I.F...O...R...N....I.A.... .F..A....R...M.... .L...A...B...O...R... .P...R....O...F...I.L...E... .................................................................................................................................................................... 113376

CAT SaUbMleM 1A.R CYA... .F...a..r..m.... .S..a...l.e..s..,. .L...a..b...o..r.. .E...x..p...e..n...d..i.t..u...r..e..s..,. .A...v..e..r..a..g...e.. .E...a...r..n..i.n...g...s.,. .a...n...d.. .H...o...u...r.s.. .W.....o..r..k...e..d..,. .2...0..0...2... .................. 113378
CAT CaEbNlSeU 2S. OCFa AlifGoRrInCiUaL:T FUaRrEm ... .L..a...b..o...r.. .E...x..p..e...n..s..e..s..,. .2...0..0...2.. ........................................................................................................................................................................................... 113378
Table 3. California: Farms by NAICS and Labor Expenses, 2002 ................................................................. 140

Table 4. Average Employment in CA Agriculture, 1990-2006 ...................................................................... 142
STAFTigEu DrAeT 1A. .C...A...:. .A...v..e..r..a...g..e... .E..m....p...l.o...y..m....e..n...t. .i..n.. .F...V...H... .C..r..o...p..s.. .a...n..d... .F...L..C...s..,. .1..9...9..0...-.2...0..0...6... .............................................................................................. 114403
Table 5. Average Weekly Wages ($), CA, 1990-2006 ........................................................................................ 143
Figure 2. CA Farm Workers, Average Hourly Earnings, 2006 ...................................................................... 145
Figure 3. CA: Fruit and Vegetable and FLC Employment, 2006 ................................................................... 146

Table 6. California Alien Labor Certification Grant, FY 2006 ....................................................................... 147
CA H-2A JOBS, REFERRALS, AND PREVAILING WAGES .............................................................................................. 147

FARM LABOR TRENDS: SHEEP ......................................................................................................................................... 150
APBPIEBNLIDOGIXRA 1P H- YF..L..O....R...I..D...A... .F...A...R...M.... .L...A...B...O....R... .P...R...O...F...I..L...E.. ................................................................................................................................................................................... 115521

FL SUMMARY ...................................................................................................................................................................... 152
4604-006
KRA Corporation .
Table 1. Hired Worker Hours in Florida Ag, 2002 .............................................................................................. 153
FL TCaEbNlSeU 2S .O FFl oArGidRaIC:U FLaTrUmR EL .a..b...o...r. ..E..x..p...e..n...s..e..s..,. .2..0...0..2... ...................................................................................................................................................................................................... 115524
Table 3. Florida: Farms by NAICS and Labor Expenses, 2002 ...................................................................... 154

Figure 1. UI-Covered Employment, Fruit, Greenhouses, and Support, 2006 .......................................... 156
STATE DATA ........................................................................................................................................................................ 155
Table 5. Florida Alien Labor Certification Grant, FY06 ................................................................................... 156
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 156

APBPIEBNLIDOGIXRA 1P H- YG..E...O...R...G....I.A... .F...A...R...M..... .L..A...B....O...R... .P...R...O....F..I..L...E... ................................................................................................................................................................................. 115587

GAT SaUbMleM 1A.R FYa ..r..m... ..S..a..l..e..s..,. .L..a...b..o...r.. .E...x..p..e..n...d...i.t..u..r..e..s..,. .A...v..e..r..a...g...e.. .E...a..r..n...i.n...g..s..,. .a..n...d... .H...o..u...r..s.. .W....o...r..k..e..d...,. .2..0...0..2................................... 115589
GAT CaEbNleSU 2S. OGFe oArGgRiIaC:U FLaTrUmRE L ..a...b..o...r.. .E..x...p..e..n...s..e..s..,. .2..0...0...2.. .................................................................................................................................................................................................... 115680
Table 3. Georgia: Farms by NAICS and Labor Expenses, 2002 ..................................................................... 162

Table 4. Georgia UI Employment and Wages, 2005 .......................................................................................... 163
STATE DATA ........................................................................................................................................................................ 163
Table 5. Georgia Alien Labor Certification Grant, FY06 .................................................................................. 164
H-2TAab JOleB 6S,. RUE.SF.E aRnRdA LHS-, 2AAN DW PoRrEkVeArIsL bINyG C WomAGmEoSd ...i.t..y..,. .G...e..o..r..g...i.a...,. .2..0...0..5...-.0...6.. ..................................................................................................................... 116634

SB 529 AND WORKER AVAILABILITY ............................................................................................................................ 165
VIDALIA ONIONS AND H-2A WORKERS ......................................................................................................................... 165
APBPIEBNLIDOGIXRA 1P H- YI.L..L...I..N...O...I..S.. ..F..A...R....M.... .L..A....B...O...R... .P...R...O....F...I.L...E... ................................................................................................................................................................................... 116687

IL STUaMblMeA 1R. YH ..i.r..e..d... .W....o...r..k..e..r.. .H....o..u..r..s.. .i..n.. .I..l.l.i..n..o...i.s.. .A...g..r..i..c..u..l..t.u...r..e..,. .2...0..0...2.. .................................................................................................................................................... 116689
IL CTEaNbSleU S2 O. IFl lAinGoRiIsC:U FLaTrUmR EL .a..b...o...r. ..E..x..p...e..n...s..e..s..,. .2..0...0..2... ........................................................................................................................................................................................................ 116689
Table 3. Illinois: Farms by NAICS and Labor Expenses, 2002 ....................................................................... 170

Table 4. Illinois UI Employment and Wages, 3rd Quarter 2006 .................................................................. 172
STATE DATA ........................................................................................................................................................................ 171
Table 5. Illinois Alien Labor Certification Grant, FY06 .................................................................................... 173
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 173

APFPAERNMD LIAXB 1OR - TKRAENNDSAS .S... .F...A...R...M.... .L...A...B...O...R.... .P...R...O...F...I.L...E... ....................................................................................................................................................................................... 117754

KST SaUbMleM 1AR. HY .i.r..e..d... .W....o...r..k..e..r.. .H....o..u..r..s.. .i..n.. .K...a...n..s..a...s.. .A..g...,. .2...0..0...2.. ....................................................................................................................................................................................... 117756
KST CaEbNlSeU 2S. OKFa AnGsaRsIC: UFLaTrUmR EL .a..b...o..r.. .E...x..p...e..n..s..e..s..,. .2...0..0...2... ...................................................................................................................................................................................................... 117756
Table 3. Kansas: Farms by NAICS and Labor Expenses, 2002 ....................................................................... 177

STATTaEb DleA 4T.A K ...a..n...s.a...s.. .A...l.i.e...n.. .L...a..b...o..r.. .C...e..r..t..i.f.i..c..a..t..i.o...n.. ..G..r..a...n..t..,. .F...Y..0...7..................................................................................................................................................................... 117789
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 178
APPENDIX 1 - KENTUCKY FARM LABOR PROFILE ................................................................................ 180

KYT SaUbMleM 1A.R FYa ..r..m... ..S..a..l..e..s..,. .L..a...b..o...r.. .E...x..p..e..n...d...i.t..u..r..e..s..,. .A...v..e..r..a...g...e.. .E...a..r..n...i.n...g..s..,. .a..n...d... .H...o..u...r..s.. .W....o...r..k..e..d...,. .2..0...0..2................................... 118800
KYT CaEbNlSeU 2S. OKFe AntGuRcIkCUy:L FTUaRrmE . .L...a...b..o...r. ..E..x..p...e..n...s..e..s..,. .2..0...0..2... .............................................................................................................................................................................................. 118801

4604-006
KRA Corporation .
Table 3. Kentucky: Farms by NAICS and Labor Expenses, 2002 .................................................................. 182
Table 4. KY Alien Labor Certification Grant, FY06 ............................................................................................. 183
H-2TAab JOleB 5S,. RKEYF: EPRrReAvLaSi,l iAnNgD W PRaEgVeAs I(L$IN/hGo WurA)G, ETSo ..b..a...c..c..o.. .2...0..0...4...-.0...6.. ................................................................................................................................................ 118834
Table 6. KY: H-2A Employers and Jobs Certified, 2004-07 .............................................................................. 185

APBPIEBNLIDOGIXRA 1P H- YM...A...S...S..A...C...H....U...S..E...T...T...S... .F...A...R...M.... .L...A...B...O...R.... .P...R...O...F...I.L...E... ............................................................................................................................................... 118876

MAT SaUbMleM 1A. RMYA .. .F...a..r..m.... .S...a..l.e...s.,. .L...a...b..o...r.. .E..x..p...e..n...d..i..t.u...r..e..s..,. .A...v..e..r..a...g..e.. ..E..a...r..n..i..n..g...s..,. .a..n...d.. .H....o..u...r..s.. .W....o..r..k...e..d..,. .2...0...0..2... ............... 118877
MAT CaEbNleS U2S. MOFA A: FGaRrICmU LLTaUbRoEr . ..E..x..p...e..n...s..e..s..,. .2..0...0..2... ...................................................................................................................................................................................................................... 118878
Table 3. MA: Farms by NAICS and Labor Expenses, 2002 ............................................................................... 189

Table 4. MA Alien Labor Certification Grant, FY06 ............................................................................................ 191
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 190

APFPAERNMD LIAXB 1OR - TNREEWND YS .O...R...K.... .F..A...R....M.... .L..A....B...O...R... .P...R...O....F..I..L...E... .......................................................................................................................................................................... 119932
Table 1. NY Farm Sales, Labor Expenditures, Average Earnings, and Hours Worked, 2002 ......... 194
NYT CaEbNleSU 2S. ONFe AwG YRoICrUkL: TFUaRrEm.. .L...a..b...o..r.. .E...x..p...e..n...s.e...s.,. ..2..0...0..2... ............................................................................................................................................................................................ 119934
Table 3. New York Farms by NAICS and Labor Expenses, 2002 .................................................................. 195

Table 4 NY: UI-Covered Crop, Animal, and Ag Support Activity, 2006 ..................................................... 196
STATTaEb DleA 5T.A N ...e..w.... .Y..o...r..k..:. .E...s..t..i.m....a..t..e..d... .M....S..F...W....s.. .b..y.. ..C..r..o...p..,. .2...0..0...6.. ......................................................................................................................................................................... 119967

Table 6. New York Alien Labor Certification Grant, FY06 .............................................................................. 197
H-2A, ALIEN CERTIFICATION GRANT AND PREVAILING WAGES .............................................................................. 197

FARM LABOR TRENDS ....................................................................................................................................................... 199
APBPIEBNLIDOGIXRA 1P H- YN..O....R...T...H... .C...A...R....O...L...I.N....A... .F..A....R...M.... .L...A...B...O...R.... .P..R....O...F...I.L...E... ........................................................................................................................................... 210909

NCT SaUbMleM 1A.R FYa ..r..m... ..S..a..l..e..s..,. .L..a...b..o...r.. .E...x..p..e..n...d...i.t..u..r..e..s..,. .A...v..e..r..a...g...e.. .E...a..r..n...i.n...g..s..,. .a..n...d... .H...o..u...r..s.. .W....o...r..k..e..d...,. .2..0...0..2................................... 220001
NCT CaEbNleSU 2S. ONFo ArtGhR CICaUrLoTlUinRaE: . .F...a..r..m.... .L...a..b...o..r.. .E...x..p...e..n..s..e..s..,. .2...0..0...2.. ...................................................................................................................................................................... 220001
Table 3. North Carolina: Farms by NAICS and Labor Expenses, 2002 ...................................................... 203

Figure 1. NC Farm Worker Employment, 1996-2006 ....................................................................................... 204
STATTaEb DleA 4T.A N ...o..r..t..h... .C..a...r..o..l.i..n..a...:. .U...I..-.C...o..v...e..r..e..d.. ..A..g... .E...m....p..l.o...y..m....e..n...t.,. .2...0...0..6... ............................................................................................................................................. 220045

Table 5. NC Alien Labor Certification Grant, FY06 ............................................................................................ 206
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 206
APPENDIX 1 - OREGON FARM LABOR PROFILE. ..................................................................................... 209

ORT SaUbMleM 1A.R HYi .r..e..d... .W....o...r..k..e..r.. .H...o...u..r..s.. .i..n.. .O...r..e..g...o..n... .A...g..,. .2...0...0..2... ...................................................................................................................................................................................... 220190
ORT CaEbNleS U2S. OOFr eAgGoRnIC: UFLaTrUmR EL a...b..o...r.. .E..x...p..e..n...s..e..s..,. .2..0...0...2.. ...................................................................................................................................................................................................... 220191
Table 3. Oregon: Farms by NAICS and Labor Expenses, 2002 ...................................................................... 212
Table 4. Oregon and U.S. Greenhouse and Nursery Crop Sales($), 1995-2004 ..................................... 213

Table 5. Oregon UI-Covered Agricultural Employment, 2001-05 ............................................................... 215
STATE DATA ........................................................................................................................................................................ 214

H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 215
4604-006
KRA Corporation .
Table 6. Oregon Alien Labor Certification Grant, FY06 ................................................................................... 216

APBPIEBNLIDOGIXRA 1P H- YT..E...N...N...E...S...S..E...E... .F..A....R...M.... .L...A...B...O...R.... .P...R...O...F...I.L...E........................................................................................................................................................................... 221187

TNT SaUbMleM 1A.R FYa ..r..m... ..S..a..l..e..s..,. .L..a...b..o...r.. .E..x...p..e..n...d...i.t..u..r..e..s..,. .A...v..e..r..a...g..e... .E..a...r..n...i.n...g..s..,. .a..n...d... .H...o..u...r..s.. .W....o...r..k..e..d...,. .2..0...0..2................................... 221189
TNT CaEbNleS U2S. OTFe nAnGeRsIsCeUeL:T FUaRrEm .. .L...a..b...o..r.. .E...x..p...e..n...s.e...s.,. .2...0...0..2... .......................................................................................................................................................................................... 221189
Table 3. Tennessee: Farms by NAICS and Labor Expenses, 2002 ................................................................ 220

Table 4. TN: UI-Covered Employment, 2006 ......................................................................................................... 221
STATE DATA ........................................................................................................................................................................ 221
Table 5. TN Alien Labor Certification Grant, FY06 ............................................................................................ 222
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 222
APPENDIX 1 - TEXAS FARM LABOR PROFILE .......................................................................................... 224

TXT SaUbMleM 1A.R HY .i.r..e..d... .W....o...r..k..e..r.. .H...o...u...r.s.. .i..n.. .T...e..x..a...s.. .A...g..,. .2...0..0...2... ............................................................................................................................................................................................ 222245
TXT CaEbNlSeU 2S. OTFe AxaGsR:I FCUaLrmTU LRaE b...o..r.. .E...x..p...e..n...s.e...s.,. .2...0...0..2... ............................................................................................................................................................................................................ 222245
Table 3. Texas: Farms by NAICS and Labor Expenses, 2002.......................................................................... 227

STATTaEb DleA 4T.A T ..e...x..a..s.. .A...l.i..e..n.. .L...a...b..o...r.. .C..e..r..t..i.f..i.c..a...t.i..o..n... .G...r..a..n...t.,. .F...Y...0..6... ....................................................................................................................................................................... 222279
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 228

FARM LABOR TRENDS ....................................................................................................................................................... 230
APBPIEBNLIDOGIXRA 1P H- YV..I..R...G...I..N...I..A... .F...A...R...M.... .L...A...B...O...R.... .P...R...O...F...I..L..E... ................................................................................................................................................................................. 223321

VAT SaUbMleM 1A.R VYA .. .F...a..r..m.... .S...a..l.e...s.,. .L...a..b...o...r. ..E..x..p...e..n...d..i..t.u...r..e..s..,. .A...v..e..r..a...g..e.. .E...a...r..n..i..n..g...s..,. .a..n...d.. .H....o..u...r..s. ..W....o..r..k...e..d..,. .2...0...0..2... ................. 223322
VAT CaEbNleSU 2S. OVFir AgGinRiIaC:U FLaTUrmRE L ...a..b...o..r.. .E...x..p...e..n..s..e...s.,. .2...0...0..2... .................................................................................................................................................................................................. 223323
Table 3. Virginia: Farms by NAICS and Labor Expenses, 2002 .................................................................... 234

STATTaEb DleA 4T.A V ..i..r..g..i..n..i.a... .A...l.i.e...n.. .L...a..b...o..r.. .C...e..r..t..i.f..i.c..a..t..i.o...n... .G..r..a...n...t.,. .F...Y..0...7.. .............................................................................................................................................................. 223356
H-2A JOBS, REFERRALS, AND PREVAILING WAGES ..................................................................................................... 235

FARM LABOR TRENDS ....................................................................................................................................................... 238
APBPIEBNLIDOGIXRA 1P H- YW....A...S..H....I.N....G...T...O...N.... .F..A...R....M.... .L..A....B...O...R... .P...R....O...F...I.L...E... ............................................................................................................................................................ 223398

WAT aSbUlMeM 1A. RHYir ..e..d... .W....o...r..k..e..r.. .H...o...u...r.s.. .i..n.. .W.....a..s..h...i.n...g..t..o..n... .A...g..,. .2...0..0...2.. .................................................................................................................................................................. 223490
WAT aCbElNeS 2U.S W OFa AshGiRnIgCtUoLnT:U FRaEr .m.... .L...a..b...o..r.. .E...x..p...e..n...s.e...s.,. .2...0...0..2... .................................................................................................................................................................................. 223490
Table 3. Washington: Farms by NAICS and Labor Expenses, 2002 ............................................................ 242

Table 4. Washington Farm Workers, 2005-2006 ............................................................................................... 244
STATE DATA ........................................................................................................................................................................ 242
Table 5. Washington Alien Labor Certification Grant, FY06 ......................................................................... 246
H-2TAab JOleB 6S,. RPEreFvEaRiRlAinLgS, FAaNrDm P WREaVgAeILsI, NWG aWshAiGnEgSt .o..n...,. .2...0..0...5.. ........................................................................................................................................................................... 224457

GLOBAL HORIZONS AND H-2A ........................................................................................................................................ 248
FARM LABOR ISSUES ......................................................................................................................................................... 250
CONCLUSIONS ..................................................................................................................................................................... 251
4604-006
KRA Corporation .
BIBLIOGRAPHY....................................................................... ............................................................................................. 252
APPENDIX: APPLES. CHERRIES AND PEARS ................................................................................................................... 253
4604-006
KRA Corporation .
EVALUATION OF THE H-2A LABOR CERTIFICATION PROCESS AND
THE U.S. FARM LABOR MARKET

Preface and Acknowledgements
This report evaluates the performance of the H-2A labor certification process
(www.foreignlaborcert.doleta.gov/h-2a.cfm) and estimates the future demand for and supply of
farm workers. The report is based on analysis of administrative and statistical data, a review of
government and research reports and other materials, and interviews with Federal and state
officials involved in labor certification and others with significant knowledge of the H-2A
program.

The report has two sections: Section A evaluates the current labor certification process, and
Section B examines the evolving farm labor market. Key inputs into Section A were interviews
with staff of the Office of Foreign Labor Certification, the National Processing Centers and State
Workforce Agencies. We are grateful to those who contributed freely of their time to explain
current procedures and to suggest streamlining options. A key input into Section B were
econometric models that were developed with the assistance of several econometricians and a
fresh review of farm labor data that was informed by some of those collecting information on
farm workers and their wages and employment.

4604-006
KRA Corporation . i
EVALUATION OF THE H-2A LABOR CERTIFICATION PROCESS AND
THE U.S. FARM LABOR MARKET
Executive Summary
The H-2 program allows U.S. farm employers to request certification from the U.S. Department
of Labor (the Department) to have foreign workers admitted “temporarily to the United States to
perform agricultural labor…of a temporary or seasonal nature.” The Department’s certification
involves, inter alia, ensuring that two conditions are satisfied:
1. there are not sufficient workers who are able, willing, and qualified, and who will be
available at the time and place needed, to perform the labor or services involved in the
employer petition and,
2. the employment of the alien in such labor or services will not adversely affect the wages
and working conditions of workers in the United States similarly employed.

The Department makes certification decisions in National Processing Centers (NPCs) in Atlanta
and Chicago with information and assistance from State Workforce Agencies (SWAs).1 This
report aims to help the Office of Foreign Labor Certification (OFLC) to better fulfill its
responsibilities in the farm labor certification process by:
• assessing current certification procedures, which was done by reviewing documents,
conducting interviews, and applying lean manufacturing principles to suggest
streamlining options
• examining changes in farm production and technology likely to affect the demand for
farm workers, and evolving immigration patterns likely to affect the supply of farm
workers, which was done by assessing farm labor data, developing national and regional
econometric models of the farm labor market, and conducting commodity case studies of
labor demand and supply.

We are grateful to those who provided their time and expertise.
Section A Findings and Recommendations
Three Key Considerations
Three key considerations influence the assessment of the current H-2A certification process.
First, as Federal courts have explained several times, labor certification requires achieving a
balance between efficiency and protection, assuring farm employers “an adequate labor force on
the one hand and protect[ing] the jobs of citizens on the other. Clearly, citizen workers would
best be protected and assured high wages if no aliens were allowed to enter. Conversely,
elimination of all restrictions upon entry would most effectively provide employers with an
ample labor force."2 Courts have acknowledged that it is not easy to find and maintain the
proper balance between efficiency and protection in the labor certification process.

1 Beginning June 1, 2008, all applications for temporary labor certification have been processed in Chicago.
2 Rogers v. Larson, 563 F.2d 617, 626 (3rd Cir. 1977), cert. denied, 439 U.S. 803, 1978. Quoted in the Testimony of
Malcolm Lovell before the U.S. Senate. Committee on the Judiciary, Subcommittee on Immigration, Refugees and International
Law, November 30, 1981, 9.
4604-006
KRA Corporation . ii