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Thailand: Improving the Management of Foreign Workers ·Π«∑“ß°“√ª√—∫ª√Ÿß°“√∫√‘À“√®—¥°“√ ·√ßß“Πµà“ß™“Μ‘„Πª√–‡∑»‰∑¬ THAILAND: IMPROVING THE MANAGEMENT OF FOREIGN WORKERS ·π«∑“ß°“√ª√—∫ª√ÿß°“√∫√‘À“√®—¥°“√ ·√ßß“πµà“ß™“µ‘„πª√–‡∑»‰∑¬ By ‚¥¬ Philip Martin øî≈‘ª ¡“√嵑π In collaboration with ‚¥¬§«“¡√à«¡¡◊Õ°—∫ Asian Research Center for Migration (ARCM) »Ÿπ¬å»÷°…“‡æ◊ËÕ°“√¬â“¬∂‘Ëπ·Àà߇Շ™’¬ Institute for Population and Social Research (IPSR) ∂“∫—π«‘®—¬ª√–™“°√·≈– —ߧ¡ Thailand Development Research Institute (TDRI) ∂“∫—π«‘®—¬‡æ◊ËÕ°“√æ—≤π“·Ààߪ√–‡∑»‰∑¬ International Labour Office International Organization for Migration ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» Õߧ尓√√–À«à“ߪ√–‡∑»‡æ◊ËÕ°“√‚¬°¬â“¬∂‘Ëπ∞“π THAILAND: IMPROVING THE MANAGEMENT OF FOREIGN WORKERS ·π«∑“ß°“√ª√—∫ª√ÿß°“√∫√‘À“√®—¥°“√ ·√ßß“πµà“ß™“µ‘„πª√–‡∑»‰∑¬ By ‚¥¬ Philip Martin øî≈‘ª ¡“√嵑π In collaboration with ‚¥¬§«“¡√à«¡¡◊Õ°—∫ Asian Research Center for Migration (ARCM) »Ÿπ¬å»÷°…“‡æ◊ËÕ°“√¬â“¬∂‘Ëπ·Àà߇Շ™’¬ Institute for Population and Social Research (IPSR) ∂“∫—π«‘®—¬ª√–™“°√·≈– —ߧ¡ Thailand Development Research Institute (TDRI) ∂“∫—π«‘®—¬‡æ◊ËÕ°“√æ—≤π“·Ààߪ√–‡∑»‰∑¬ International Labour Office International Organization for Migration ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» Õߧ尓√√–À«à“ߪ√–‡∑»‡æ◊ËÕ°“√‚¬°¬â“¬∂‘Ëπ∞“π Copyright International Labour Organization 2004 Second edition, 2004 Publications of the International Labour Office enjoy copyright under Protocal 2 of the Universal Copyright Convention. Nevertheless, short excerpts from them may be reproduced without authorization, on condition that the source is indicated. For rights of reproduction or translation, application should be made to the Publications Bureau (Rights and Permissions), International Labour Office, CH-1211 Geneva 22, Switzerland. The International Labour Office welcomes such applications. Libraries, institutions and other users registered in the United Kingdom with the Copyright Licensing Agency, 90 Tottenham Court Road, London W1T 4LP [Fax: (+44) (0)20 7631 5500; email: [email protected]], in the United States with the Copyright Clearance Center, 222 Rosewood Drive, Danvers, MA 01923 [Fax: (+1) (978) 750 4470, email: [email protected]] or in other countries with associated Reproduction Rights Organizations, may make photocopies in accordance with the licences issued to them for this purpose. Philip Martin in collaboration with Asian Research Center for Migration (ARCM) Institute for Population and Social Research (IPSR) and Thailand Development Research Institute (TDRI) Thailand: Improving the Management of Foreign Workers Bangkok, International Labour Office and International Organization for Migration, 2004 Second edition Printed version: ISBN 92-2-015388-2 Web pdf version: ISBN 92-2-015389-0 The designations employed in ILO publications, which are in conformity with United Nations practice, and the presentation of material therein do not imply the expression of any opinion whatsoever on the part of the International Labour Office concerning the legal status of any country, area or territory or of its authorities, or concerning the delimitation of its frontiers. The responsibility for opinions expressed in signed articles, studies and other contributions rests solely with their authors, and publication does not constitute an endorsement by the International Labour Office of the opinions expressed in them. Reference to names of firms and commercial products and processes does not imply their endorsement by the International Labour Office, and any failure to mention a particular firm, commercial product or process is not a sign of disapproval. ILO publications can be obtained through major booksellers or ILO local offices in many countries, or direct from ILO Publications, International Labour Office, CH-1211 Geneva 22, Switzerland or ILO Subregional Office for East Asia (SRO-Bangkok), 10th floor, United Nations Building, Rajdamnern Nok Avenue, P.O. Box 2-349, Bangkok. Catalogues or lists of new publications are available free of charge from the above address. Or by email: [email protected] Visit our website: www.ilo.org/publns Printed in Thailand ß«π≈‘¢ ‘∑∏‘Ï Õߧ尓√·√ßß“π√–À«à“ߪ√–‡∑» æ.». 2547 æ‘¡æå§√—Èß∑’Ë 2 æ.». 2547 ‘Ëßµ’æ‘¡æå¢Õß ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» ß«π≈‘¢ ‘∑∏‘ϵ“¡ π∏‘ —≠≠“‡∫◊ÈÕßµâπ∑’Ë 2 ¢Õß π∏‘ —≠≠“≈‘¢ ‘∑∏‘Ï “°≈ Õ¬à“߉√°Á¥’ Õ“®¡’°“√π”‡π◊ÈÕÀ“ —ÈπÊ ∫“ß à«π‰ª∑” ”‡π“À√◊Õ·ª≈‡æ◊ËÕ‡º¬·æ√à‰¥â ‚¥¬‰¡àµâÕߢÕÕπÿ≠“µ ¿“¬„µâ‡ß◊ËÕπ‰¢«à“µâÕß¡’°“√√–∫ÿ·À≈àß∑’Ë¡“ „π°“√¢ÕÕπÿ≠“µ∑” ”‡π“À√◊Õ®—¥·ª≈‡Õ° “√©∫—∫π’È “¡“√∂¬◊Ëπ¢Õ ‰¥â∑’Ë ILO Publications Bureau (Rights and Permissions), International Labour Office, CH-1211 Geneva 22, Switzerland ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑»¬‘π¥’√—∫°“√¬◊Ëπ¢ÕÕπÿ≠“µ‡À≈à“π—Èπ øî≈‘ª ¡“√åµ‘π ‚¥¬§«“¡√à«¡¡◊Õ°—∫»Ÿπ¬å»÷°…“‡æ◊ËÕ°“√¬â“¬∂‘Ëπ·Àà߇Շ™’¬ (ARCM) ∂“∫—π«‘®—¬ª√–™“°√·≈– —ߧ¡ (IPSR) ·≈– ∂“∫—π«‘®—¬‡æ◊ËÕ°“√æ—≤π“·Ààߪ√–‡∑»‰∑¬ (TDRI) ·π«∑“ß°“√ª√—∫ª√ÿß°“√∫√‘À“√®—¥°“√·√ßß“πµà“ß™“µ‘„πª√–‡∑»‰∑¬ °√ÿ߇∑æœ, ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑»·≈–Õߧ尓√√–À«à“ߪ√–‡∑»‡æ◊ËÕ°“√‚¬°¬â“¬∂‘Ëπ∞“π, æ.». 2547 æ‘¡æå§√—Èß∑’Ë 2 ©∫—∫Àπ—ß ◊Õ: ISBN 92-2-015388-2 ©∫—∫‡«Á∫: ISBN 92-2-015389-0 ™◊ËÕ·≈–‡§√◊ËÕßÀ¡“¬∑’Ë„™â„π ‘Ëßµ’æ‘¡æå¢Õß ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» ´÷Ë߇ªìπ‰ªµ“¡·π«ªØ‘∫—µ‘¢Õß Àª√–™“™“µ‘ ·≈–‡Õ° “√∑’Ë𔇠πÕ„π ‘Ëßµ’æ‘¡æåπ—Èπ ¡‘‰¥â¡’π—¬· ¥ß∂÷ߧ«“¡§‘¥‡ÀÁπ„¥Ê ∑—Èß ‘Èπ¢Õß ”π—°ß“π ·√ßß“π√–À«à“ߪ√–‡∑»‡°’ˬ«°—∫ ∂“π¿“æ∑“ß°ÆÀ¡“¬¢Õߪ√–‡∑»„¥Ê ¢Õßæ◊Èπ∑’Ë À√◊ÕÕ“≥“‡¢µ À√◊ÕÕ”π“® °“√ª°§√Õß„¥Ê À√◊Õ‡°’ˬ«°—∫°“√°”Àπ¥·π«‡¢µ™“¬·¥π¢Õߪ√–‡∑»„¥ ºŸâ‡¢’¬π√—∫º‘¥™Õ∫µàÕ§«“¡§‘¥‡ÀÁπ∑—ÈßÀ¡¥∑’Ë· ¥ß‰«â„π∫∑§«“¡ º≈°“√»÷°…“ À√◊Õ¢âÕ‡¢’¬πÕ◊Ëπ∑’Ë≈ß™◊ËÕ«à“‡ªìπ ¢âÕ‡¢’¬π¢ÕߺŸâ‡¢’¬π ·≈– ‘Ëßµ’æ‘¡æå‰¡à‰¥â· ¥ß∂÷ߧ«“¡‡ÀÁπ™Õ∫¢Õß ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑»µàÕ §«“¡§‘¥‡ÀÁπ∑’Ë· ¥ß„π ‘Ëßµ’æ‘¡æå‡À≈à“π—Èπ °“√‡Õà¬∂÷ß™◊ËÕ¢Õß ∂“πª√–°Õ∫°“√À√◊Õº≈‘µ¿—≥±åæ“≥‘™¬å ·≈–°√–∫«π°“√º≈‘µ„¥Ê ‰¡à‰¥â¡’π—¬· ¥ß §«“¡‡ÀÁπ™Õ∫¢Õß ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» ·≈–°“√∑’Ë¡‘‰¥â‡Õà¬∂÷ß ∂“πª√–°Õ∫°“√ º≈‘µ¿—≥±åæ“≥‘™¬å ·≈–°√–∫«π°“√º≈‘µ„¥Ê ‰¡à‰¥â‡ªìπ —≠≠“≥¢Õß°“√‰¡à‡ÀÁπ™Õ∫ ∑à“π “¡“√∂ —Ëß´◊ÈÕ/¢Õ√—∫√“¬™◊ËÕ¢Õß ‘Ëßµ’æ‘¡æå ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑» ‰¥â®“° ILO Publications, International Labour Office, CH-1211 Geneva 22, Switzerland À√◊Õ ”π—°ß“πÕߧ尓√·√ßß“π √–À«à“ߪ√–‡∑»ª√–®”°≈àÿ¡ª√–‡∑»‡Õ‡™’¬µ–«—πÕÕ°, ™—Èπ 10 Õ“§“√ Àª√–™“™“µ‘, µŸâ‰ª√…≥’¬å 2-349, ∂ππ√“™¥”‡π‘ππÕ°, °√ÿ߇∑æ¡À“π§√ 10200, ª√–‡∑»‰∑¬ ‚∑√ “√ (66 2) 280 1735 À√◊Õ email: [email protected] Õπ÷Ëß ‘Ëßµ’æ‘¡æå¢Õß ”π—°ß“π·√ßß“π√–À«à“ߪ√–‡∑»¡’®”Àπà“¬∑’Ë√â“π¢“¬Àπ—ß ◊Õ„À≠àÊ À√◊Õ ”π—°ß“πÕߧ尓√·√ßß“π√–À«à“ߪ√–‡∑»„πª√–‡∑»µà“ßÊ ‡«Á∫‰´µå¢Õ߇√“§◊Õ www.ilo.org/publns æ‘¡æå„πª√–‡∑»‰∑¬ Thailand: Improving the Management of Foreign Workers i PREFACE In the course of a decade or so, Thailand has passed through a full migration cycle moving from being a major source of labour to the Middle East and more advanced economies of Asia to becoming an important destination for unskilled migrant workers from neighbouring low-income countries, mostly on irregular basis. Since the early 1990s, the Thai government has taken various ad hoc measures aimed at reducing the number of irregular migrants, including increased efforts of controlling Thailand’s highly permeable border, domestic enforcement, and a series of temporary amnesties aimed at “regularising” irregular foreign workers. Limited success in these efforts has prompted Thailand to search for more durable solutions to the issue of migration management. It was in this context that the then Ministry of Labour and Social Welfare (now Ministry of Labour) sought technical assistance from the International Labour Office (ILO) and the International Organization for Migration (IOM) to improve the management of the employment of foreign labour in the Thai economy. This resulted in a joint technical cooperation project on “Thailand: Improving migration policy management with special focus on irregular labour migration”. ILO and IOM are pleased to publish this advisory report, which is the major outcome of the above technical cooperation project. It is based on a collaborative exercise between international and Thai researchers with field studies and regular tripartite consultations. Professor Philip Martin (University of California-Davis) prepared the overall report drawing upon detailed case studies of industrial sectors dependent on migrant workers by the following researchers from leading national research institutes: Dr Supang Chantavanich, Mr Samarn Laodumrongchai, Ms Nopparat Sukrakarn and Ms Saijin Prachason from the Asian Research Centre for Migration, Chulalongkorn University; Dr Sureeporn Punpuing and Dr Sirinan Kittisuksathit from the Institute of Population and Social Research, Mahidol University; and Dr Yongyuth Chalamwong and Dr Sarawout Paitoonpong from the Thailand Development Research Institute. The result is a set of recommendations aimed at helping the Thai government move from ad hoc policies to a longer-term policy that better protects migrants, provides certainty for employers, and helps to promote development in both Thailand and migrant countries of origin. As the report stresses, Thailand is fortunate to have the problem of managing migration, since the entry of foreigners seeking work signals the economic success ii Thailand: Improving the Management of Foreign Workers of Thailand with higher wages and better job opportunities than its neighbours. The report also emphasizes that there is no best off-the-shelf migration management model. Thailand will have to develop its own model. Yet the report highlights that the Thai economy will be employing migrants for at least another decade, that employers and workers should be consulted in the development of migration management policies, and that sending countries need to be involved in the three R’s of recruitment, remittances, and returns. The report makes three more specific recommendations for improved migration management, including introducing flexibility into the registration process, giving more rights to migrants so that migrants can change employers within a sector, and developing cooperative programmes with areas of migrant origin to accelerate their economic development.
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