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Symposium on U.S. Farm Labor Conditions Discussed Sector’s Diverse Challenges and Opportunities
Farmworkers play an “essential role in keeping food on our tables,” said U.S. Secretary of Agriculture Tom Vilsack during opening remarks at a symposium held September 17-19, 2024, in Santa Cruz, California. The three-day event, “The Changing Landscape of Farm Labor Conditions in the United States: What the Future Holds and How to Prepare for It,” was hosted by U.S. Department of Agriculture’s (USDA) Economic Research Service (ERS) and Farm Foundation. The symposium consisted of a two-day conference plus a one-day farm tour centered around the theme of U.S. agricultural labor conditions, challenges, and solutions. Dr. Jessica Crowe, chief of the Rural Economy Branch at the USDA’s ERS, along with ERS’s farm labor team, organized the event along four key themes:
- Trends in the farm labor force—including presentations on worker migration and the H-2A Temporary Agricultural Program
- Labor costs—including presentations on the effects of H-2A Adverse Effect Wage Rate (AEWR) and overtime laws on farmworkers
- Farmworker conditions—including presentations on workplace safety; effects of climate change on worker health; workplace harassment
- Workforce development and technology—trends in training current farmworkers and a new generation to develop, operate, and repair new technologies in the field and lead packing operations
In her opening remarks, ERS Assistant Administrator Kelly Maguire stressed that although critical to the Nation’s food security, “farm work is potentially hazardous and ERS data show that farmworkers receive lower wages when compared with nonsupervisory workers outside of agriculture.” Complicating the issue, both the private and government sector will need to “accelerate adaptation to a changing landscape of farm labor,” said Maguire. This will be necessary for the United States to remain competitive as a producer of labor-intensive commodities like fruit and vegetables, she said.
The symposium’s opening remarks continued with Secretary Vilsack highlighting that “the USDA, Department of Labor, and employers can all play a role in addressing systemic challenges” while emphasizing the importance of building “a system that works for everyone… by creating value and opportunity for employers and farmworkers.”
In his keynote address, Dr. Philip Martin, professor emeritus at the University of California-Davis, outlined three responses to rising farm labor costs: an increase in mechanization, an increase in the number of migrant workers with H-2A visas, and an increase in imported produce. However, questions remain as to the extent machines can lessen labor needs by commodity, the number of workers the U.S. will need in the future and where they will come from, and whether the U.S. can import more fruits and vegetables from Mexico, Central and South America.
Day 1 Overview: Farmworker Well-Being
After opening remarks, the first day’s sessions focused on the changing farm labor force, farmworker wages, workplace safety, and farmworker health. Presenters described the changing demographics of domestic crop workers as one that is aging, increasingly coming from Southern Mexico, and more likely to have at least one chronic health condition. In addition, the number of farmworkers on migrant H-2A visas continues to increase. Several speakers discussed farmworker wages from the perspective of the farmworker and farm owner. Audience members contributed to these discussions by considering how high costs of housing factor into the discussion on wages. With respect to H-2A wages, Dr. Zach Rutledge, assistant professor at Michigan State University, discussed the adverse effect wage rate (AEWR) including how the AEWR is calculated, problems with its calculation, whether the rate is too low or too high, and how changes to the AEWR would affect H-2A and non-H-2A farm wages.
Speakers discussed the impact of farmworkers being excluded from many federal workplace protection laws on farmworker well-being. State laws are patchwork with some states providing more protection for farmworkers than other states. For example, six states have implemented (or are finalizing) heat standards for agricultural workers while three states have regulations in place for wildfire smoke. Despite agricultural workers having fewer workplace protections at the federal level than other occupations, farmworkers are exposed to hazardous conditions including extreme weather, wild animals, hazardous plants, dangerous tools, hazardous chemicals, and poor living conditions. These risks found in the workplace can lead to injuries and illnesses that are often left untreated until the problem becomes severe. Dr. Brenda Berumen assistant professor at Texas State University, described several barriers that farmworkers face to seeking medical treatment including the high cost of care, unpaid sick leave to receive treatment (resulting in lost wages), long travel times to receive certain health services, and a lack of information and resources (including information in their native language).
Day 2 Overview: Technological Innovations, H-2A Visa Program
The sessions on the second day focused on workforce development, technology, and the H-2A visa program. Advances in technological aids in orchards and fields, such as platforms used in apple orchards, can increase labor productivity while reducing injuries associated with previous picking methods. However, adoption rates are slow as the structure and architecture of existing orchards and fields have to adapt to the new technology. In addition, robotics in fields and orchards are continuing to advance, but have a ways to go before the technology is efficient enough to be cost effective. However, patents for artificial intelligence (AI) in agriculture have increased substantially in the past few years. It is yet to be seen how the increase in agricultural AI will impact farm labor.
The H-2A visa program is an increasing source of temporary agricultural labor. Presenters discussed the problems of the program, including scams and illegal fees associated with the recruitment of migrant workers, lack of oversight and accountability for employers who break laws tied to H-2A, and the tethering of farmworkers to employers by visa status. While speakers and audience members debated the impacts of H-2A wages on farmworkers and employers, overall, symposium attendees agreed that H-2A is a significant program that employers increasingly seek out to secure farm labor. Furthermore, attendees agreed that problems exist that can result in exploitation of farmworkers, during recruitment and employment. Dr. Kelly Maguire closed the symposium by thanking those involved who organized the three-day event, including the interpreters, reflecting on what was learned through formal and informal conversations, and encouraging attendees to continue to build on newly formed relationships and to nurture new perspectives and information gained during the symposium.
This post-event summary of “The Changing Landscape of Farm Labor Conditions in the United States: What the Future Holds and How to Prepare for It” symposium was written by Dr. Jessica Crowe, chief of the Rural Economy Branch in the Resource and Rural Economy Division in the USDA’s Economic Research Service (ERS).