The influx of foreign workers into Singapore combined with the upcoming general election has resulted in debates over the cost and benefit of foreign workers with heightened xenophobic attitudes and viewpoints surfacing. I believe this issue is more complex than it seems and warrants further investigation.
Presently, the inflow of foreign workers is controlled by a system of taxes in the form of levies which employers have to pay for each foreign worker hired daily. The levies vary with the sector of employment, the ratio of foreign to local workers and whether the worker is ‘skilled’ or ‘unskilled’[1]. It is also regulated by a system of quotas as the number of foreign workers that is permitted in each business is controlled by the number of S Pass and Work permits issued which is based on the particular industry and the number of local workers hired[2].
There have been increased cries for making the entry of foreign workers into Singapore even stricter. The proposed policies include higher taxes, lowering of the quota and even regulating that a foreign worker can only be employed if it has been demonstrated that no Singaporean can fill the position. Supporters claim that such policies are necessary to protect Singaporeans from the increasing number of foreign workers that eat up or push down the wages of the lower income Singaporeans, most of which are unskilled or are the elderly. They also claim that higher paying executive jobs should go to Singaporeans instead of ‘foreign talent’ as they have the necessary talent and skills required. I will be arguing based on three areas to debunk these myths and show why proposals to further restrict the inflow of foreign talent either by tax or by quotas will hurt Singapore’s competitiveness, are not effective and an invasion into personal right.
1. Economic Reasons
First, let us dwell on why a foreign worker is needed to boost Singapore’s economy. One reason that they are necessary is to fill up jobs that cannot be done by a Singaporean worker. This is especially true of high skilled jobs and research work where education policies lag behind new global trends. Specialised knowledge in areas such as renewable energy and nanotechnology requires considerable years to develop and hone. While educating Singaporeans to fill this niche is desirable, it will take a long time before all its citizens are ready. In order to seize the first mover advantage and capitalise on emerging scientific trends, it is often needed to bring in skilled foreigners to spearhead the growth and development of that industry. It would also create more jobs in the future, when Singapore becomes a vibrant hub for that industry.
Most people would agree with the above paragraph, that of bringing in foreigners when no Singaporeans can fill the position. However, even if a Singaporean can perform the job it does not mean that they should be preferred as foreign workers can carry out certain jobs in a better manner. There is an increasing trend of menial labour from cleaners to construction workers being carried out by foreign workers instead of Singaporeans. One can claim that it is the foreign workers that steal the jobs that are the domain of the lower educated or elderly citizens. But, it is not so much steal as out compete. Foreign workers are more motivated, more hardworking and more willing to work in dirty environments that Singaporeans shun. Even in the industries where skilled workers are required, foreign workers can perform a better service. Foreign nurses and service crew have a reputation of being more patient, friendlier than fellow Singaporeans. Employing workers with a better attitude benefits not only the employer but consumers as well.
People who oppose the inflow of foreign workers often cite them as unfair competition whose wage demands are much lower owing to the lower cost of living in their home country. They claim that employers can save from CPF contribution as well. While both points are true, they are not unfair competition as factoring the cost of levies would show the cost of hiring both workers to be similar for low wage unskilled industries. A survey done by the Singapore Chinese Chamber of Commerce & Industry (SCCCI) showed that the top reason cited for hiring foreign workers was due to the unwillingness of local workers to work in labour intensive jobs (63.7%)[3]. Of course, employers might be bias, so let us take a look at the figures taken from a paper written for the International Labour Organisation by George Ofori. While dated, the figures show that an employer has to pay a Singaporean 2 – 2.5 times the wage of a foreign worker for his services[4]. Assuming similar ratios and including an arbitrary 10SGD per day in cost for foreigners under the work permit scheme that requires companies to cover health care, housing, transport, upkeep and eventual repatriation cost, here is a table to illustrate what Singaporeans and foreign workers can earn keeping cost to employ a worker constant.
|
Cost to employ a foreign worker |
Cost to employ a Singaporean |
| Taking a foreign worker wage as 400.
Construction industry with a levy of 470 for unskilled worker.
Employer can pay 1160 for a Singaporean |
=400+470+300 = 1170 |
=1000 *1.16 = 1160 |
| Taking a skilled foreign worker wage as 1000.
Manufacturing sector with a levy of 210 assuming tier 2.
Employer can pay 1300 for a Singaporean |
=1000+210+300 = 1510 |
=1300 *1.16 = 1508 |
This shows that in the low paying unskilled construction industry, employers can offer 2.5 times the salary to a local at the same cost. Yet, 68.7% of those employed in the construction industry are PR or non-residents[5]. This shows a very inelastic supply of local labour indicating an unwillingness to work in the industry. Contrary to common perception, current levy rates, strongly favour Singaporeans in the low paid sector while it is the middle income skilled workers that face more ‘threat’ from foreign labour.
Of course, there are many foreign workers that are not as good as their Singaporean counterparts. Yet, they are willing to work at a much lower wage than Singaporeans would. This has a positive effect of controlling inflation, the other bane of Singaporeans. Assuming that Singaporeans are hired preferentially over foreign workers at double the cost of a foreign construction worker, the price to construct a HDB will rise by an estimate of $5000. The calculations can be seen below.
Take the cost of constructing a HDB unit at $139,000[6]
Removing estimated profit of $39,000 = $100,000
Labour cost (labour cost + subcontract work) = 47.6% of real estate industry[7] = $47,600
Labour cost contributed by foreign workers + PR = $47,600 *0.68 = $32,368
Assuming wage makes 1/3 of cost = $10,681.44
Doubling cost and assuming elastic supply[8], price of a HDB unit would rise by at least $5000.
Similar calculations can be done for the manufacturing sector to show the possible increase in prices. There has to be a trade of, either the increase in prices or the allowance of more foreign workers into Singapore.
Next there is a false mentality that the issue of foreign workers is a zero sum game, where foreigners gain and Singaporeans lose. This is not true, both can benefit. As mentioned above, Singaporean owned companies can benefit from the cost savings gained by employing cheaper workers and make their produce more competitive on the international market. Jobs can also be created when foreign companies set up their businesses here, attracted by the cheap foreign labour and good quality Singaporean managers. Even if both unskilled and skilled foreign workers take up jobs that could potentially be filled by a Singaporean, they would still be contributing to the Singapore economy. They would help boost consumption in hawker centers and restaurants, benefit bus companies and create more demand for transport services not to mention the increase revenue through the levies and GST.
Furthermore, shielding Singaporeans from competition within Singapore is a short sighted approach as it overlooks the fact that there is greater competition outside of Singapore. Companies who find Singapore no longer competitive can easily opt to and operate in another country instead. When that happens, workers will not even get a job opening, let alone a chance to compete.
Opponents to foreign workers often cite that allowing such low skilled workers to come in results in businesses opting to lower cost through employing cheaper workers rather than through improvements in productivity. This choice between foreign workers or improvement in productivity is a false dichotomy. The aim of a business is to maximise profit. This includes lowering the cost through any method possible. The reason why many companies are relying on foreign workers to lower cost is because it is the more straightforward method. Productivity gains involve risk from research & development and the difficulty in changing the mindset of current workers and management to adopt new procedures. Thus, it is not the fault of businesses or foreign workers that ways to improve productivity have not been explored. It is the fault of the government for not doing enough to encourage upgrading and risk taking, and of the people for being inflexible to change.
2. Social Reasons
It is time to move on to the social aspect of bringing in foreign workers. In this aspect it can be said that foreign workers are affecting the society in a negative way. This can be attributed to two reasons. First the huge inflow of workers is taxing our public services. There have been numerous complaints of foreign workers flooding the MRT and buses. Results from the 2009 Public Transport Customer Satisfaction Survey shows that only 44.5% of commuters were satisfied with passenger crowdedness[9]. While foreign workers might contribute to the problem, it does not mean that we should restrict their inflow to solve it. This problem points to a lack of good and advance planning to accommodate the increase in workers needed to power our industries. It is a reminder of the need for economic and social planning to be well coordinated and executed.
Second, the attitude and behaviour of foreign workers especially the unskilled ones have enraged many Singaporeans. Foreigners have clashed with Singaporeans due to differences in social and cultural norms. Common Singaporean grouses include Indian workers aggressively squeezing and pushing his way into the MRT desperate for a seat or a space to lean on. PRCs who talk loudly, make a ruckus and dirty void decks draw the ire of many as well.
The physical damage as well as the friction between Singaporeans and foreign workers can be said to be the negative externality of the influx of foreigners. However, as argued by Ronald Coase in ‘The Problem of Social Cost’, externalities are more often than not a result of decisions by two parties. While foreign workers might be ‘polluting’ our environment, it is also our refusal to understand their social and cultural norms that causes us to see their actions as ‘pollution’. If we become more understanding, more accepting, the negative externality would also be lowered[10].
3. Moral Reasons
The issue of controlling the inflow of foreign workers is a moral one as well. One ponders whether such taxes and quotas are fair and equitable policies. I would be questioning whether such measures are truly fair to all Singaporeans, before looking at it with a broader perspective.
The economics of restricting foreign workers would unfairly penalise businesses relative to the rest of the society. One must question whether it is fair to take away the income of Singaporean businesses to increase the welfare of the Singaporean workers? This issue has been tackled by many great liberal economist and I could explain it no better than quoting Adam Smith who noted in his dissection of the mercantile system that “To hurt in any degree the interest of any one order of citizens, for no other purpose but to promote that of some other, is evidently contrary to that justice and equality of treatment which the sovereign owes to all the different orders of his subject.” Even, if you feel that such ‘taxation’ is necessary; it is surely unreasonable that the burden of it falls only to the entrepreneur and not to any other Singaporeans.
Next, while we might be compassionate and express concern for our fellow Singaporeans who have to support their families on a low wage, should we not show similar concern for foreign workers who have to leave their families behind and work here for a brighter prospect? If we as a society believe in the right for humans to pursue their self-interest, then we should provide equal opportunity to foreign workers. It is odd that few take issue with the migration of the rich and talented but many with that of the poor. Has freedom of movement been restricted to only that of the rich?
Singaporeans are often portrayed as global citizens, concerned and willing to tackle global issues like poverty. We donate generously when the Tahiti earthquake struck, participate in overseas community involvement programmes and hand out aid to the poorest countries on earth. But, it is hypocrisy when we donate vast funds to 3rd world countries yet do not allow these foreign workers to our shore, denying them a chance to earn a decent wage and improve their standard of living. Are Singaporeans superior to other humans?
I think that many people who protest against the hike in domestic worker levy are now supporting the increase in foreign worker levy. When the government introduced and increase maid levy there were many complaints about the high cost. Yet, the reasoning behind both levies are the same. If we follow the same line of thought, reducing maid levy can also ‘create’ more jobs for Singaporeans from food delivery services to part time cleaning services and babysitters. A higher wage mandated by a minimum wage law like Hong Kong and Dubai can result in less but better quality maids. Why the double standards?
By examining this issue based on economic, social and moral reasoning, I hope a clearer, more balanced picture of the impact to restrict the entry of foreign workers has surfaced.
The question at hand is, does the economic benefit outweigh the social tradeoffs? Personally I believe it does, when an ‘open border’ coupled with limited taxation to offset the course is implemented, with proceeds to fund upgrading and improvement classes for Singaporeans and lessons to educate foreigners about local norms.
It is much harder to give a correct price that should be set. This is especially so when part of the negative social externality is due to the mindsets of Singaporeans themselves. When you decide that they are worth the cost, you will be more accepting of them and a part of this externality is removed. Factor in the morale reasoning, and it becomes even more apparent for a friendlier and open attitude towards the inflow of foreigners.
[8] Due to competition from tender system. Assuming relatively inelastic demand for HDB, the calculation is a quite generously on the low side.