Fair Beginnings, Strong Returns
Rethinking Reintegration in Pacific Labour Mobility The theme of this year’s Pacific Labour Mobility Annual Meeting (PLMAM), “Sustainable Reintegration Begins with Fair and Effective Recruitment”, raises an important question: what does reintegration really mean in the context of Pacific labour mobility? For seasonal workers in New Zealand’s Recognised Seasonal Employer (RSE) scheme, time away is usually six months, after which they must return home for at least five months before being eligible to recruit for the RSE again. Unlike the nine-month PALM visas in Australia, there is no pathway to a longer-term stay from the RSE visa. On the face of it, reintegration after six months is not likely to be a major issue for recruits who work for one or two seasons. Only 40 percent of the 56,500 recruits for the RSE since 2007 have returned for three or more seasons. The picture changes when absences accumulate year after year. For workers who leave, say, Samoa for six months annually, repeating this cycle for four or more years, the rhythm of absence and return inevitably creates family and community challenges. Adjusting to life at home after repeated long absences is not always seamless. Social stresses, family expectations, and even rumours about workers’ behaviour abroad can complicate the return. This is why the theme of this year’s meeting is so timely. Reintegration is not just about coming home once — it’s about managing the long-term impacts of seasonal as well as long-term cyclical migration. Fair and effective recruitment lies at the heart of sustainable reintegration, writes the author. Shifts in Labour Mobility The broader labour mobility landscape in the Pacific has been transformed dramatically over the past decade, particularly in Australia. Until the introduction of the Seasonal Worker Programme, the forerunner to today’s Pacific Australia Labour Mobility (PALM) scheme, Pacific people had no dedicated migration channel into Australia’s workforce. The PALM scheme, particularly its long-term stream, marks a significant policy shift. For the first time in over a century, Australia opened long-term, low-skilled and semi-skilled labour pathways for Pacific people. This is a profound change, one that mirrors New Zealand’s longer history of engagement. Australia has invested heavily in staffing, administration, and support to make the scheme work both onshore and in labour sending countries. Meanwhile, New Zealand’s RSE scheme continues to provide opportunities, though demand there has plateaued. In recent years, the cap on RSE numbers has not been reached. Rising costs for employers, from compliance and accommodation to pastoral care, have curbed demand. In Samoa, for example, New Zealand approved employers now pay a fee per Samoan worker, and Samoan workers themselves also face new costs. These financial pressures, on both sides, are shaping the trajectory of recruitment. Recruitment, Fairness, and Reintegration Fair and effective recruitment lies at the heart of sustainable reintegration. Labour sending countries often want to distribute opportunities equitably, ensuring that benefits are shared across communities. Yet recruitment often happens through established relationships between employers and experienced workers, who are then asked to recommend new candidates. While this system provides continuity, it risks limiting access for those outside the existing networks. Governments in countries such as Samoa, Tonga, and Vanuatu have sought to centralise recruitment through Labour Sending Units (LSUs). But balancing fairness with employers’ preferences remains a challenge. The critical question is how to ensure that workers participate with a clear plan for their earnings — whether that is education costs, housing, or small business ventures — rather than treating seasonal work as a lifestyle of permanent dependency on cash incomes earned through temporary labour migration overseas. In New Zealand, where workers must always return home, reintegration planning is essential to ensure maximum benefit from short-term circular migration. In Australia, where transitions from short-term to long-term PALM visas are possible, the pressures on families can be even greater, with absences stretching to years. The challenges of reintegration are different in this context. For some families, temporary work overseas has become a primary livelihood strategy, even passed down across generations. While remittances are vital, this kind of dependency risks undermining local livelihoods in the long term. Reintegration is not just about coming home once, writes the author. It’s about managing the long-term impacts of seasonal as well as long-term cyclical migration. The Changing Labour Market Looking ahead, sustainability will depend on recognising shifts in global and regional labour markets. Technological change, particularly automation, is already reshaping demand. In New Zealand, for instance, pack houses that once employed large numbers of women are becoming increasingly automated, reducing the need for seasonal labour. Technology will continue to disrupt traditional roles. Consumer expectations are also evolving. Major international buyers of agricultural products are scrutinising labour conditions more closely. Questions around ethical recruitment, modern slavery, and cost-sharing practices are now influencing whether large companies choose to buy Australian and New Zealand produce. For example, comparisons are being made between the costs borne by temporary migrant workers in New Zealand versus those recruited in the United States, where employers are often required to cover transport fully. These perceptions matter and will affect the long-term viability of Pacific labour mobility schemes. Priorities for Sustainability To keep Pacific labour mobility successful and sustainable, several priorities stand out. First, costs must remain manageable for both approved employers and workers. If participation becomes too expensive, demand will decline, and workers will struggle to send meaningful remittances home. Second, labour sending countries must play a proactive role in promoting fair recruitment and supporting reintegration. This means ensuring access is broad-based and encouraging workers to have long-term financial plans for their earnings. It also means discouraging the pattern where families become wholly reliant on seasonal migration, which may not be viable in the long run. Finally, stakeholders must keep pace with global shifts, from technology to consumer standards. Ethical recruitment, decent working conditions, and transparency will increasingly be non-negotiable in global supply chains. If PALM and RSE schemes can stay ahead of these expectations, they will remain attractive to both approved employers and consumers. Returning
Enhancing the Positives and Mitigating the Negatives of Labour Mobility for Vanuatu
Vanuatu, like many other Pacific Island Countries, are confronted with the inherent development challenges of their smallness, remoteness from key markets, and vulnerability to natural disasters and climate change. These development constraints are coupled by a rapidly growing population the the local formal economy cannot absorb. A high number of school leavers are consequently left unemployed each year resulting in added social and economic pressures on the local economy and society. Labour mobility has provided a critical employment creation strategy to generate growth dividends for Vanuatu. These positive development impacts are the key drivers for Vanuatu’s participation in labour mobility and has propagated its status as the top labour sending country for both the Pacific Australia Labour Mobility (PALM) and New Zealand Recognised Seasonal Employer (RSE) schemes. According to the Vanuatu Commissioner for Labour, Ms. Murielle Meltenoven, Vanuatu now has over 10,000 PALM workers in Australia and over 6,000 in New Zealand. The economic benefits of labour mobility for Vanuatu are largely transferred through the remittances and skills acquired by workers. “We see benefits in skills development especially around employability skills. We’ve received a lot of positive feedback from businesses around the conduct of workers including in communication, specifically customer service around servicing, and their ability to speak English,” Commissioner Meltenoven elaborated. She also highlighted the positive impacts on community development particularly in the rural areas including in upholding peace and order as unemployment is reduced. “When you travel around the six provinces (in Vanuatu), you see the real positive impact within the remote and rural communities around the new buildings, new businesses, so many banana boats which improve transportation helping many people residing in little islands to access crucial services,” Meltenoven stated. However, when it comes to building resilience against natural disasters, labour mobility has delivered mixed effects. In one hand, families and communities have more cyclone-resistant housing, but on the other, villages have less able-bodied men for post-cyclone recovery and rebuild. “Now you only see old people and kids, who are the most vulnerable during a period of natural disaster and in the recovery stage. They (villages) don’t have strong people to help for the recovery and to rebuild the community and the homes so for them the recovery will be very slow,” Commissioner Meltenoven explained. The loss of skilled employable people is also impacting local private sector development. “The private sector is suffering because they’re losing their skilled workers, of which they have invested so much money, so much time to train up. For example, in the tourism and hospitality industry, I can see that the current services has dropped a lot, the quality is no longer there,” Meltenoven stated. At the home front, she highlighted that social problems such as broken homes and domestic violence are rampant. Commissioner Meltenoven believes that these negative impacts emphasise the importance of conducive policies and support programmes in both labour sending and labour receiving countries. She highlighted that the PACER Plus Implementation Unit (PPIU) has funded a review of their labour mobility policy which will govern their labour mobility programmes in Vanuatu. The World Bank is also conducting a study to assess the impacts on private sector and the ILO is assisting with regulatory reforms to address issues. Vanuatu is also engaged in discussions with Australia and New Zealand to reconsider visa conditions and the length of work contracts in an effort to address social issues at home. Vanuatu, as host country of the 2023 Pacific Labour Mobility Annual Meeting (PLMAM) is also looking to optimise the opportunity to dialogue with key stakeholders on issues and to determine practical solutions. The PLMAM provides an opportunity for labour receiving and labour sending countries as well as other relevant organisations to come together to determine collective solutions that can maximise the positive impacts of labour mobility in the region whilst mitigating the negatives. More articles like this one
Pacific Labour Mobility: A Pillar of Growth for Australian and New Zealand Industries
Labour mobility is activated by unmet labour demand by employers in labour receiving countries. Employers therefore play a critical role in the success of Pacific labour mobility. Kerry McCarthy, a Pacific Australia Labour Mobility (PALM) employer and Gary Jones of Mr. Apple, a leading New Zealand Recognised Seasonal Employer (RSE) employer, shared their perspectives. Kerry McCarthy and her family run a vegetable business on the Darling Downs, just under three hours west of Brisbane, Australia. They specialise in growing leafy greens and sell to both the Brisbane markets and big grocery chains in Australia. Mr. Apple is New Zealand’s largest integrated grower, packer, and exporter of apples. Both companies have relied on Pacific workers since the inception of the labour mobility schemes, 2007 for New Zealand and 2012 for Australia. Kerry began with two workers in 2012 and now recruits around 60 workers from Solomon Islands. Mr. Apple recruits up to 1,300 workers per season from across the Pacific. Mayor of Hastings District Council, To’asavili Sandra Hazlehurst (seated) who received a Samoan chiefly title from the Falealili District chiefs, along with Mr Apple staff and RSE workers from that district in May 2023. Despite the varying scale and nature of the two companies’ operations, labour shortages were equally a chronic constraint to the growth of their businesses. “We became involved in the Seasonal Worker Program due to necessity. At that time, we were an isolated farm and could not find reliable local labour to employ. We tried using labour hire companies from the Lockyer Valley but as we were on the end of the line in regard to location, we were always given last priority. If you hadn’t already heard, in regional Australia there is a major labour shortage,” said Kerry. Similarly in New Zealand, Gary explained, “In the 1990s in New Zealand, there was a lot of people that were in seasonal roles working for the freezing works, processing, fishing, fencing, and farming and there were lots of New Zealanders who were moving around and could do seasonal work. But our communities and our jobs are completely changed, and New Zealanders are now more focusing on permanent urban roles and have become less available.” For businesses like these, Pacific labour mobility schemes provide a critical labour solution to underpin growth. Kerry shared, “It (PALM) has given us the confidence to expand our business, knowing that we can plan ahead, as our workers are going to be there for us and are going to stay with us for the whole season.” For Mr. Apple, “RSE underpinned our ability to provide quality fruit to our consumer. It’s allowed us to provide far higher quality to our consumers and the market. It’s given New Zealand apples a brand of being the best apples in the world. And the Pacific people (workers) have been a pillar that’s made the whole industry successful.” But behind the business transactions lies another layer to the success of Pacific labour mobility – the robust partnership between employers and local Pacific communities. Gary elaborated on Mr. Apples’ partnerships in the Pacific stating that “we have a partnership with the governments and the peoples of the Pacific, which is very important to us. Those relations are quite critical and the opportunity for us to partner with the governments enables us to make sure that issues can be identified, and risks can be mitigated.” For smaller family businesses like Kerry’s, this partnership is very close to home. Since 2012, Kerry has mostly recruited from a remote rural village in the Solomon Islands which has no road access and no electricity. Through her recruitments, she and her family have built a close bond with the local community. “My family visits the village; to witness the changes firsthand is overwhelming. All of this positive change has come from our small business. It boggles the imagination as to what can be achieved on a broader scale,” Kerry stated. A few years ago, Kerry and her children’s local school in Australia organised a school trip to the village in Solomon Islands. About 20 Australian high school kids and teachers experienced village life and donated support to the local school. Kerry shared that the experience significantly impacted the kids, and some have gone on to university to study development with a focus on the development needs of the Pacific, all based on their experience in Solomon Islands. The strength of these partnerships has caused many employers to want to give back more. They see that their role extends beyond recruiting workers to being agents of change and development. Many employers, like Kerry, are interested in providing direct support to social services in Pacific countries. She stated that “I would keep lobbing the Australian Government and also personally try and get investment flowing into the Pacific, starting with the Solomons for early detection of preventable diseases for women, particularly breast cancer and uterine cancer, HPV vaccines. But it’s difficult to know where to go, who to trust so that you know the ‘boots are put on the ground’ in the right area. It would be good for employers who want to contribute, but don’t know how to do it to be guided towards reputable businesses that are already established on the ground in the Pacific.” Other employers, such as Mr. Apple, see the opportunity to support local private sectors to grow entrepreneurship and business development. Gary explained that many employers and communities in New Zealand are at the stage where they “would like to see how to partner communities where their workers have got some collective capital and who are saying where should we invest our money now. Can we create some commerce at scale that will help that whole community to deliver? A good example of this is Hastings District Council and Hawkes Bay Iwi Ngati Kahungunu signing a Sister District agreement with Falealili District in Samoa. Both these communities have benefited immensely from the RSE scheme. Now these communities are saying how can
Exporting Samoan Taro to New Zealand
Empowering Farmers and Nurturing Communities In the heart of Samoa, where lush green fields stretch under the embrace of the Pacific sun, a remarkable story of resilience and opportunity unfolds. Meet Seuamuli Kome Robbie Lauano, a 48-year-old entrepreneur whose dedication and resourcefulness have brought the flavours of Samoan taro to the shores of New Zealand, thanks to the support of the Ministry of Agriculture and Fisheries (MAF) Samoa and the PACER Plus Implementation Unit. Mr. Lauano’s journey began with a simple but profound realisation. He saw the untapped potential of small farmers in Samoa who lacked the opportunity to export their produce. Determined to bridge this gap, Mr. Lauano reached out to the PACER Plus Implementation Unit, which utilised its networks to support Mr Lauano. With a vision of empowering local farmers, Mr. Lauano set out to purchase their taro, offering fair prices that sustained their families in numerous ways. By eliminating the middlemen and directly supporting the farmers, he not only ensured their financial stability but also fostered a sense of hope and optimism within the community. Iopu Ma’aolo (left), a farmer from Savai’i, smiles as he receives WS$1,080 in cash from Seuamuli Kome Robbie Lauano for the export of his taro. Through Mr. Lauano’s efforts, over 2,000 kilograms of Samoan taro made their way to New Zealand, crossing borders with zero tariffs under the PACER Plus agreement. The destination was Papakura Wholesale Meats Direct, a store in Auckland, New Zealand owned by Mr. Lauano and his business partner, Toomata Paul Stowers. The response from consumers were overwhelming, as word spread about the availability of fresh, high-quality Samoan taro. Throngs of eager customers travelled from Otara, Manurewa, and Mangere to savour the taste of these traditional delights. The aroma of boiled taro filled the air, as families gathered around tables adorned with the bounty from Samoa. The connection to their cultural heritage was rekindled, and the demand for Samoan taro soared. For Mr. Iopu Ma’aolo, a 35-year-old farmer from Savai’i, this newfound opportunity brought tangible improvements to his family’s life. With a beaming smile, he shared how he earned WS$1,080 (US$400) from the export of his taro. Comparing the current market prices, he expressed gratitude for the upfront payment and the increased value of his produce. The additional income would help secure a brighter future for his two children, offering them improved access to education and healthcare. Avea Vaoga (right), a farmer from Savai’i, receives WS$5,400 from Seuamuli Kome Robbie Lauano which he plans to invest in his farm. Similarly, Mr. Avea Vaoga, a 52-year-old farmer also from Savai’i, rejoiced at the fruits of his labour. When he received a cash payment of WS$5,400 (US$2,000) for his taro, his joy knew no bounds. As a community leader, Mr. Vaoga understood the significance of this opportunity not only for his family but also for the entire community. With his newfound earnings, he planned to invest in his farm, providing employment to young men in the village. The prospect of agricultural prosperity excited him, as he envisioned a future where opportunities for export continued to uplift local farmers. Beyond the financial gains, the export of Samoan taro holds deeper significance. It symbolises a revival of cultural identity and pride, reminding Samoans living abroad of their roots. The aroma, taste, and texture of this traditional staple transport them back to cherished memories and traditions, strengthening the bonds that unite the Samoan diaspora. The success of Mr. Lauano’s venture highlights the importance of empowering local farmers and supporting agricultural growth in Pacific countries. Samoa’s MAF and the PACER Plus Implementation Unit’s role in supporting this journey serves as a testament to the transformative power of collaboration and opportunity. As the sun sets over the expansive taro fields of Samoa, Mr. Lauano continues to work tirelessly, bridging the gap between farmers and distant markets. His story is a testament to the resilience and determination of Pacific communities and a beacon of hope for farmers who dare to dream of a brighter future. With each kilogram of Samoan taro exported, a legacy of empowerment, sustainability, and cultural preservation is written, one that echoes through generations to come. -END- More articles like this one
PACER Plus releases four-year Strategic Plan
The PACER Plus Implementation Unit (PPIU) today released its inaugural Strategic Plan 2022-2025 which provides the public with the PPIU’s overarching mission and activities. The Strategic Plan was endorsed by the PACER Plus Joint Committee which consists of representatives of the PACER Plus parties. The Strategic Plan was developed on the substantial work undertaken by PACER Plus parties in accordance with PPIU’s foundation documents. Kiribati, which chaired the Joint Committee meeting held virtually on Wednesday 22 June, encouraged the parties to take a collective response in identifying opportunities that will bring significant and sustainable benefits as the region grapples with the ongoing impact of climate change, non-communicable diseases, and COVID-19. “PACER Plus provides us with a unique opportunity and forum to respond collectively. It is also an opportunity to do things differently and to leverage our collective knowledge and expertise to achieve our shared vision of improving the livelihood and welfare of our people,” said Hon Bootii Nauan, Kiribati’s Minister of Commerce, Industry and Cooperative. Roy Lagolago, Head of the PPIU, supported Mr Nauan’s sentiments adding that PPIU will implement the Development and Economic Cooperation Work Programme to achieve the Agreement’s vision. “By delivering the implementation activities as mutually prioritised and determined by the parties, the PPIU will remain directed and clear in our mission and intent to ensure that everyone will benefit from the PACER Plus Agreement,” said Mr Lagolago. Solomon Islands Trade Commissioner Barrett Salato said: “To achieve meaningful benefits from PACER Plus Agreement would require full and effective implementation of the Development and Economic Work Programme. The Strategic Plan 2022-2025 sets the pathway for the full realization of those benefits.” PACER Plus is a regional development-centered trade and investment agreement aligned with the Sustainable Development Goals. The Agreement is designed to support Pacific Island countries to stimulate economic growth by becoming more active partners in, and benefit from, regional and global trade. Nine countries are currently parties to the Agreement: Australia, Cook Islands, Kiribati, New Zealand, Niue, Samoa, Solomon Islands, Tonga, and Tuvalu. This was Tuvalu’s first Joint Committee meeting since ratifying the PACER Plus Agreement in January 2022. “Through PACER Plus, Tuvalu foresees accessing new labour markets in other countries, expanding of our labour seasonal worker scheme, local product mapping, value adding and potential exporting, including necessary storage facilities, equipment and labs for processing and testing of local product prior exportation,” said Loloma Homasi, Assistant Secretary to Tuvalu’s Ministry of Fisheries and Trade. Vanuatu’s parliament recently voted in favour for the ratification of the Bill for the PACER Plus Agreement which will make Vanuatu the 10th country to endorse PACER Plus. Vanuatu’s Department of External Trade director, Joe Pakoa Lui, was present at the PACER Plus Joint Committee meeting. “We’re excited to join the PACER Plus family and to collaborate with the PPIU and the parties to implement activities in Vanuatu that would benefit our people and our communities,” said Mr Lui. “PACER Plus marks an exciting new era for Pacific cooperation in trade and investment which Vanuatu is looking forward to participate in.” To view the PPIU Strategic Plan 2022-2025, please visit pacerplus.org/resources or click on the link below. PACER-Plus-Implementation-Unit-Strategic-Plan-2022-2025 -ENDS- Caption: The PACER Plus Joint Committee Meeting, which consists of representatives of the PACER Plus parties, was held virtually on Wednesday, 22 June 2022. More articles like this one
Lagolago appointed Head of PACER Plus Implementation Unit
Samoan-New Zealand National Roy Lagolago has been appointed Head of the PACER Plus Implementation Unit. He will take up an initial two and a half year term to guide the implementation of the region’s most comprehensive trade and investment agreement. Mr Lagolago takes up the role as the Pacific region has been severely impacted by the COVID-19 pandemic. Pacific Island Countries are increasingly looking towards regional collaborative approaches to support recovery from the impact that COVID-19 has had on Blue Pacific economies, and to build a more prosperous and resilient future for the Parties. The decision was welcomed by PACER Plus Ministers, via communique on 30 June 2021. “We welcome the appointment of … Mr Roy Lagolago, who has extensive experience in supporting trade facilitation in the Pacific. We look forward to working with him to ensure all PACER Plus members make the most of the Agreement in the pursuit of economic integration and cooperation in the region.” PACER Plus, as a regional development-centred trade and investment agreement, will play a central role in Pacific island countries accessing regional and global trade. Speaking after the Virtual Trade Ministers’ Meeting on 7 July 2021, Mr Lagolago said: “I feel very honoured as a Pacific Islander to have been given the opportunity to serve and guide the implementation of PACER Plus. I look forward to working with the Parties’ governments, Island business communities and investors to maximise opportunities for growth, creating jobs in the Pacific. In a time of many challenges, I hope to create a platform for Forum Island Countries to deepen their relationships further and work together towards greater prosperity for the region.” Mr Lagolago has already begun in his role heading the Implementation Unit. The PACER Plus agreement entered into force on 13 December 2020. Eight countries are currently Parties to the Agreement: Australia, Cook Islands, Kiribati, New Zealand, Niue, Samoa, Solomon Islands and Tonga. Download as PDF document More articles like this one