But the latter has been the unintended result of most programs. Edward Taylor and Philip Martin, agricultural economists of the University of California at Davis, addressed this issue and provided a series of conditions or criteria for program development that theoretically could avert such unintended results. If employers can assume the continued availability of unskilled foreign workers, then both labor markets evolve in ways that become progressively less subject to governmental control. Experience with guest worker programs has shown that the longrun effects differ from shortterm goals, i.e., generally to ameliorate the effects on employers of labor shortages. Taxes or levies on employers minimize the distortions due to the availability of foreign workers.
Economic incentives promote the return of guest workers to their home countries.
As Congress deliberates these issues, it will be instructive to keep in mind the experience of other countries with guest worker programs, the impact that IRCA has had on farm labor supply and on the well-being of farm workers, and the potential impact that such a program, if not designed correctly, could have on the overall U.S. population. The demand for labor-intensive farm products is rising, and growers have been able to meet that demand with a large supply of immigrant labor. Wages are down, bargaining power has been eroded, working and housing conditions have deteriorated, and illegal immigration continues. See also Immigration Reform and U.S. Agriculture , edited by Philip L. Martin, Wallace Huffman, Robert Emerson, J. Edward Taylor, and Refugio I. Rochin, Division of Agriculture and Natural Resources, University of California, Publication No. 3358, March 1995. Complementary hard copies of the PRR are available upon request.