The control and agency dialectic of guest worker programmes: evidence from Chinese construction workers in Japan’s Technical Intern Training Program (TITP)

Abstract

ABSTRACT Guest worker programs entail an intrinsic tension between control over workers’ mobility and workers’ agency. By drawing on the qualitative data from Chinese construction workers in Japan’s Technical Intern Training Program (TITP), I illuminate the dialectical nature of the tension between control and agency. My findings suggest that labor recruiters and employers implement labor control, but their practices have the opposite effect of pressing workers to abscond or to do irregular jobs. Staying in the program is not an outcome of effective control, but a response to circumstances wherein revisions to Japan’s immigration policy bring rewards while China’s surveillance policies incur potential punishments. The control-agency dialectic suggests that the regulative focus should be shifted from workers to employers and recruiters. Incorporating approaches of spatiotemporality and relationality, I analyze how workers sustain relations with various actors through three interconnected temporal stages, and how the relational dynamics shape workers’ varied mobility choices. Two features of the construction industry shape workers’ circumstances and occasionally facilitate their mobility: the stratification of the labor force according to legal status and the subcontract system. The paper thus highlights the need to contextualise labor agency in changing state policies, relations with co-ethnics, and industry-specific features.