Population and Migration-Part 2 - Minsterial Response - 5 March 2013

Findings

Comments

1

As  of  yet  and  for  whatever reason, no decisions have been made  by  the  Chief  Minister with  regard  to  extending  the qualifying period for access to work  from  5 years  back  to 10 years.

The extension of the qualifying period for work from 5 years to 10 years is a complex issue,  recognising  that  any  increase  in qualification periods either has the effect of disadvantaging  individuals,  or  involves transitional and saving provisions to protect those  individuals,  which  then  need  to  be administered  in  respect  of  the  individuals thereon protected. There is also the question of to  what  extent, if  at  all,  businesses  are

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compensated  for  the  increase  in  the qualification period by way of an extension of their licence, recognising that not all the skills  required  by  a  business  are  readily obtained  in  Jersey,  especially  for  more complex  and  specialised  roles.  All  these issues will be considered in depth following the  introduction  of  the  new  Law,  findings reported,  and  a  proposed  response recommended.

2

There  has  been  too  much lenience in the past with regard to the number of non-qualified licences issued to businesses.

The  levels  of  population  and  immigration seen in recent years have manifold reasons which  cannot  simply  be  attributed  to  the number of licences issued, most notably, the census  results  indicated  a  higher  than expected  number  of  individuals  remaining longer in the Island – this meant that more people  were  gaining  their  5 year qualifications  than  expected,  and  more licences were thereon freed up to be used by new  migrants.  The  new  Law  has  been developed  with  the  express  intention  of limiting  this  going  forward,  for  example, through  the  maintenance  of  a  population register to closely monitor actual migration, and provision to remove licences.

3

The  ability  to  vary  a  licence for  unqualified  staff  at  any time  under  the  Control  of Housing  and  Work  Law  will provide the States with greater control  than  they  have  under the current system.

Agreed.

4

Work  has  already  begun  to remove non-qualified licences from businesses. Despite this, however, a significant number of  unutilised  licences  of  this category still remain.

The power under the new Law to remove licences will substantially address this issue.

5

Subsequent  to  a  Sub-Panel Public Hearing with the Chief Minister,  it  has  now  been agreed  by  the  Council  of Ministers to introduce a fee for all Registered licences.

This proposal is subject to finalisation and publication.

Findings

Comments

6

Tighter controls on unqualified licences will not independently solve  the  current  unemploy- ment situation.

It  is  clearly  the  case  that  the  answer  to unemployment is not simply being stricter on the  ability  to  employ  migrants,  but  also investment by businesses and government in the  skills  and  job  readiness  of  locally qualified people. It is for this reason that the "Back  to  Work"  Programme  has  been developed, in conjunction with a number of Departments,  including  the  Population Office.

7

It  is  obvious  that  some  local people need to be educated and trained  to  undertake  work  in areas  that  are  traditionally associated  with  non-qualified people.

Agreed.

8

The  existence  of  the Registration Card will make it easier for businesses to comply with  the  new  legislation  and their licence allocation.

Agreed.

9

New  arrivals  will  be  exempt from  registering  for  the  first 3 months  of  living  in  the Island,  provided  they  do  not work within that time period.

Agreed.

10

The proposal to exempt short- term workers from registering under a 3 month period could significantly  affect  the  States ability  to  monitor  transient populations and may increase the risk of non-compliance.

The  Sub-Panel's  concerns  are  understood and  will  be  considered  as  part  of  a  post- implementation review of the new regime.

However, the policy intent is clear: it is to require  a  visiting  contractor  to  have  a business  licence  restricting  the  number  of people  who  can  be  employed  by  that contractor,  but  not  to  require  every  single worker engaged by that visiting contractor to register  in  person.  This  would  create significant additional work for Departments, without  appreciable  gain  in  the  ability  to control migration.

Indeed,  the  only  exemption  period  that eliminates risk is one that is nil, i.e. that a registration card is always needed before any work  was  undertaken.  This  is  easily policed – as in that circumstance, any person

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on any site would need a card and this could be checked. (In the absence of this, a person on a site could always claim to a compliance inspector that they have only just arrived in the Island and are within whatever period is set). An immediate registration requirement, however,  means  all  workers,  even  if  only here for a day, need a registration card. This creates  significant  burdens  for  government and  impedes  the  operation  of  an  effective economy which inevitably has some reliance on  visiting  workers,  for  example,  regional managers visiting Jersey branches, auditors of  various  kinds,  visiting  architects,  etc. Some exemption period is therefore required, and investment must take place in ensuring it is  policed  involving  spot  site  visits  and monitoring workers from site to site, with the findings assessed with a view to determining whether the period should be changed post implementation.

11

The  Sub-Panel  has  not  been convinced  that  adequate consideration  has  been  given to  the  inclusion  of  a photograph  on  the  new Registration Card.

It has been outlined that a photograph on the card is an unnecessary addition insofar as the registration  card  should  be  used  alongside existing photographic identification, and that some  fraud  risks  and  costs  are  associated with creating a card with a photograph that could  gain  wider  currency  as  a  form  of identification. This will be considered further as part of a post-implementation review of the new regime.

12

In  the  absence  of  a photograph,  it  is  imperative that a form of identification is shown  alongside  the  new Registration  Card  for  all transactions  as  a  method  of validation.

Agreed.

13

At  point  of  implementation, the  Register  of  Names  and Addresses will be linked up to the  databases  held  at  Social Security, Income Tax and the Population Office.

Agreed. The database will be created from name and address information from a range of public authority sources.

Findings

Comments

14

There  is  a  great  deal  of uncertainty  as  to  when  the Population  Register  can  be relied  upon  as  a  rolling measure  of  Jersey's Population.

It  is  for  the  Statistics  Unit  to  validate the Population  Register  to  their  robust requirements, and they will require a number of data points before are able to confirm their satisfaction  that  the  Population  Register  is maintained  over  time.  However,  the objective of the Chief Minister's Department is to have a Population Register that aligns sufficiently  with  published  Statistical Information within 2013.

15

A  considerable  amount  of work  still  needs  to  be undertaken  by  the  Population Office before the Register will be complete.

Agreed. The task of aligning data held by a number of Departments is a significant one, but  it  is  essential  as  a  foundation  going forward for the streamlining of approaches to customers  and  as  a  current  record  of  our population.  For  this  reason,  work  will continue in order to achieve a complete and accurate database.

16

The  Population  Office significantly  underestimated the  resources  needed  to implement  the  Register  of Names and Addresses.

As  noted  above,  this  is  a  complex  but essential  task,  and  providing  advance estimates  is  inherently  challenging  until administrators  begin  the  task  of  aligning those  databases.  However,  the  work  is significantly  advanced  and  progressing satisfactorily.

17

Any  significant  delay  in  the completion of the Register will have a considerable effect on the new system and its ability to  control  population  and migration levels.

Agreed. At the same time, other elements of the new Law are also important in achieving objectives; for example, the registration card, the  detailed  returns  from  businesses,  the enhanced  compliance  powers,  etc.,  all contribute in the round to a more effective regime.

18

The  new  Combined  Return will provide the States with a much  improved  depth  of information  which  in  turn should allow for better licence enforcement.

Agreed.

19

If  the  IT  system  works  as envisaged,  there  is  a  high chance  that  improved  sharing of  information  will  lead  to  a more  efficient  and  effective compliance operation.

Agreed.

Findings

Comments

20

In  order  to  reap  the  real benefits  of  the  Register,  it  is imperative that as soon as non- compliance  is  indentified officers are sent to investigate, and if necessary take action.

Agreed.

21

The  number  of  compliance checks  carried  out  under  the existing system is inadequate.

Agreed. The new Law will facilitate a much greater  investment  in  compliance  resource backed by new legal powers.

22

There  is  a  great  deal  of uncertainty  as  to  whether  the proposed increase in manning levels  from  1.5  to  2.5 boots on  the  ground'  staff  will  be sufficient  to  enforce compliance with the Control of Housing and Work Law.

It is accepted that the more resources that can be diverted from administration and toward compliance, the more effective the regime. On  this  basis,  the  increase  in  compliance FTE by 1 is the minimum requirement, and a more  significant  increase  is  expected  and necessary.

23

A culture of whistle-blowing' in  Jersey  could  be  key  to ensuring that the new system is enforced.

Agreed. This will be promoted alongside the new Law.

24

The  real  success  of  the  new legislation is dependent on the extent  to  which  it  is  policed and enforced.

Agreed.

25

Provided  they  are  exercised, the new powers to cease illegal activity  immediately  will provide an important means of enforcing compliance with the Law.

Agreed.

26

The  Population  Office  must work with businesses to ensure that the new law is understood and  managed  in  a  fair  and pragmatic way.

Agreed.

27

The  issue  of  political responsibility  for  the implementation of the Control of Housing and Work Law has not yet been fully resolved.

The  Chief  Minister  is  legally  solely responsible for the new Law. Other Ministers will  advise  in  securing  a  balanced  policy position.

Recommendations

To

Accept/ Reject

Comments

Target date of action/ completion

1

The  Chief  Minister  should  now urgently set out to ensure that once the Law has been implemented, due consideration  is  given  to  an extension of the qualifying period for access to work from 5 to 10 years, and  the  potential  implications  for population and migration levels.

Accept

This will be considered as part  of  the  post- implementation review.

2013

2

The Chief Minister should undertake a thorough and accurate audit of the number  of  non-qualified  licences issued to businesses every 6 months and  in  advance  of  any  Population Policy  debate.  Furthermore,  these findings  should  be  published  in  a report and presented to the States.

Accept

The  actions  of  the Migration  Advisory Group  in  2012 demonstrate  a  firm commitment  to  removing permissions  for  the employment  of  new migrants  in  favour  of locally  qualified  people, and in this vein, a review of licences will take place in  2013,  and  using  the new  powers,  licence capacity will be removed following  evaluation  and with  a  firm  presumption toward local employment.

Ongoing

3

In line with the States' top priority to manage  population  and  migration levels,  the  Chief  Minister  should consider  quickly  and  effectively removing  unutilised  non-qualified licences  at  the  point  of implementation  of  the  new legislation.

Substantially Accepted

The  actions  of  the Migration  Advisory Group  in  2012 demonstrate  a  firm commitment  to  removing permissions  for  the employment  of  new migrants  in  favour  of locally  qualified  people, and in this vein, a review of licences will take place in  2013,  and  using  the new  powers,  licence capacity will be removed following  evaluation  and with  a  firm  presumption toward local employment.

2013

Recommendations

To

Accept/ Reject

Comments

Target date of action/ completion

4

Effective  enforcement  measures must be developed alongside the new charge  for  Registered  licences  to minimise the risk of non-compliance amongst businesses.

Accept

It  is  accepted  that  more resources  should  be diverted  from administration and toward compliance. On this basis, the increase in compliance FTE by 1 is the minimum requirement,  and  a  more significant  increase  is expected.

2013

5

The  Chief  Minister  should  review the  90 days'  grace  period  as  it  is likely that it will lead to inaccuracies in the Register.

Substantially Accepted

This will be considered as part  of  the  post- implementation review to assess the level of impact, although  at  present  it  is considered  reasonable  to set  a  registration  period that  does  not  capture short-stay visitors who are not working or transacting property,  for  example, visiting  family  members, who may be elderly.

2013

6

With  regard  to  the  proposal  to exempt  short-term  workers  from registering under a 90 day period, the Chief  Minister  should  ensure  that every  individual  employed  under  a legitimately  licensed  contractor  is required to Register, before they can begin work.

This will be considered as part  of  the  post- implementation review. In addition, see comments in Finding 10 above.

2013

7

The  Chief  Minister  should  review the  current  policy  on  photographic identification  within  12 months  of the new Law being implemented.

Accept

This will be considered as part  of  the  post- implementation review.

2013

Recommendations

To

Accept/ Reject

Comments

Target date of action/ completion

8

The  Chief  Minister  should  ensure that  the  public  are  sufficiently informed  regarding  the  rules  and procedures for checking Registration Cards  prior  to  the  new  Law  being implemented.

Accept

Guidance  materials  and public  information campaign  is  being prepared  for  release following  debate  on  the Regulations.  This  will include  radio  adverts, posters  and  leaflets  at prominent  locations, including points of entry, online  and  social  media presence,  and  use  of  the government website.

March  and April  2013 and ongoing

9

Further  consideration  should  be given  to  the  establishment  of  a refund  system  for  the  Registration Card  in  order  to  help  monitor population levels for efficiently.

Accept

This will be considered as part  of  the  post- implementation  review, noting  the  merit  in  the proposal.

2013

10

The  Chief  Minister  should  ensure that  more  frequent  compliance checks  are  carried  out  at  the appropriate locations to ensure that the new legislation is being adhered to.  Failure  to  do  so  could significantly reduce the effectiveness of the new control mechanisms.

Accept

It  is  accepted  that  the more resources should be diverted  from administration and toward compliance. On this basis, the increase in compliance FTE by 1 is the minimum requirement,  and  a  more significant  increase  is expected and necessary.

2013

11

When the new Law is in operation, the number of officers available to the Population Office should be re- assessed to ensure that it is adequate.

Accept

It  is  accepted  that  the more resources should be diverted  from administration and toward compliance. On this basis, the increase in compliance FTE by 1 is the minimum requirement,  and  a  more significant  increase  is expected and necessary.

2013

Recommendations

To

Accept/ Reject

Comments

Target date of action/ completion

12

The  Chief  Minister  should  ensure that  members  of  the  public  are actively  encouraged  to  report  any suspected non-compliant activity to the Population Office so that it can be further investigated.

Accept

The Population Office will develop  and  introduce  a "hot-line"  to  report  non- compliance in 2013.

2013

13

Once  the  Regulations  have  been agreed by the States Assembly, and in  advance  of  the  new  system coming into force, the Chief Minister should ensure that the general public are sufficiently notified regarding the provisions of the new legislation.

Accept

Guidance  materials  and public  information campaign  is  being prepared  for  release following  debate  on  the Regulations.  This  will include  radio  adverts, posters  and  leaflets  at prominent  locations, including points of entry, online  and  social  media presence,  and  use  of  the government website.

March  and April  2013 and ongoing

14

The  Chief  Minister  should  ensure that  the  structure  of  the  Migration Advisory  Group  is  included  in  his assessment  of  the  effectiveness  of the new legislation.

Accept

The  Chief  Minister  is legally  solely  responsible for  the  new  Law.  Other Ministers  will  advise  in securing a balanced policy position.

2013

15

The Chief Minister should give due consideration  to  increasing  the resources available to the Population Office to ensure that the Register of Names  and  Addresses  is  fully functional  before  the  Population Policy  debate  in  order  to  inform decisions  regarding  the  Island's future.

Accept

Data  management  is  an essential component of the new  regime  and  a foundation  for  a  more streamlined  approach  to Islanders  by  government. For  this  reason,  existing resource  within  the Population Office will be directed  toward  data management functions.

2013