I. Introduction 

The Asian experience in international migration differs from that of Western countries in one important way. Unlike some Western countries such as Australia, Canada, Asian countries receiving labor -- with the possible exception of Singapore, where skilled workers from certain countries are encouraged to settle permanently -- do not view themselves as immigration countries. For them, importing foreign labor is a temporary way of adjusting to domestic labor shortages -- essentially an economic solution, though one with significant social and cultural consequences. 

Like these labor-receiving countries, South Korea has begun attracting a sizable number of foreign immigrant workers, drawn by its reputation as a high wage country, although there is continuing debate on whether to permit or limit the import of foreign unskilled labor. The niche many foreign workers are occupying is in those jobs which Koreans are increasingly shying away from. Growing disdain for manual work, in particular, is forcing construction and manufacturing companies to import a large number of workers from underdeveloped countries such as Pakistan, Bangladesh, China, Nepal and so on. Employers say that they currently need more than 200,000 imported laborers because of rising wages and the shortage of local workers. 

Although exact numbers are hard to come by, the Korean government reckons that about 100,000 illegal foreign workers are now in the country. The number is expected to grow sharply because these migrants are filling the increasing number of jobs that Koreans characterize as dirty, dangerous and difficult -- mainly in manufacturing and construction. To foreign workers, Korea seems like a land of great promise where they can realize their dreams and hopes. The press at home and abroad has even coined the term ‘Korean Dream’ which is in the same spirit as the American Dream. Taking into consideration Korean employers’ appetite for low-wage foreign workers, the number of foreign laborers and illegal workers is expected to increase for some time into the foreseeable future. Furthermore, when the domestic labor market becomes more open under the WTO (World Trade Organization) agreement, foreign immigrant workers will show a rapid increase in number and will work in more industries. 

The rising tide of foreign workers in Korea has led to discussions mainly concerning their economic impact on the country. That is, the focus has been on the reasons so many foreign workers now want to come to Korea, the imbalance between supply and demand in the labor market in the industrial sector and on the ramifications and counter measures thereof. Compared with heterogeneous societies such as the U.S., Canada, and Europe, the sociocultural impact of large numbers of foreign workers on Korea, long a homogeneous society, will necessarily be greater. After briefly reviewing the background to recent increases in foreign workers, the purpose of this paper is to ruminate about the sociocultural impact of the presence of great numbers of foreign workers on Korean society based on data collected through a Delphi survey, conducted by the author. The major assumption behind this research is that about 300,000 foreign workers, far exceeding the Ministry of Labor’s estimate of a labor shortage in the manufacturing sector of 200,000 workers, will find jobs in Korea. The results of this Delphi survey has been obtained through two phases of investigation of 30 experts including sociologists, labor activists, staff members of foreign workers protection organizations etc. The survey was initiated in May and completed in July, 1994. 
 

II. Background to Recent Increases in Foreign Workers 

Only a couple of decades ago many Koreans were going abroad in search of 
better wages and wider opportunities. They worked hard to make some money and gain valuable experience overseas living in Vietnam, West Germany and in several Middle Eastern countries. In recent years, however, an increasing number of foreign workers, mainly from underdeveloped countries, are rushing to Korea to make money, risking arrest or deportation for their illegal status. 

The influx of foreign workers into the country began after the 1988 Seoul Olympics. Koreans’ avoidance of the so-called ‘3D’ (dirty, dangerous, and difficult) jobs fanned the shortage of labor at construction sites and at small businesses. Taking advantage of the galloping wages for workers in the past few years, the number of foreign workers coming to Korea has been on a steady increase. A total of 84,617 foreign workers were estimated to be working in domestic enterprises as of November in 1992. Of them, 32,852 are legally employed, and the remaining 51,765 have no work permit, according to a recent announcement by the Trade-Industry-Energy Ministry. With the labor shortage in Korea becoming increasingly severe, the number of foreign workers is expected to increase rapidly in the near future. 

Why has there been a sudden increase in foreign workers in Korea? Some of the reasons for the increase in foreign workers have been pointed out, but let me reiterate the reasons more specifically with reference to gainful employment of undocumented foreigners. 

First, there are labor shortages in Korea, particularly a shortage of young workers in construction and manufacturing. This reflects the changing attitudes towards certain types of work among young workers, that is, to avoid employment of the 3Ds type work. In the past, people from the rural agricultural areas were one of the main sources for young workers in the construction and manufacturing industries. In recent years, however, those rural areas have become depopulated and depleted of young workers. A large portion of young working age people have been brought up in an affluent society, and have usually acquired at least a senior high school level education, and often a college education. Faced with many employment options in highly-paid jobs, young people do not tend to take jobs which do not seem clean, prestigious, and well paid. Such a feeling of disdain against the 3Ds jobs creates a lacunae in the labor market, encouraging foreign labor to take up clandestine employment. 

The second reason is the rapid increase in the average wage and per capita income among the Korean work force. The gaps in the average wage and per capita income between Korea and the labor-sending countries has widened.  When such information on wage disparities is made public to workers in other countries, the mechanisms of economic ‘pull’ are bound to operate, drawing foreign workers to Korea, no matter how difficult and risky it may be for workers. 

Third, another reason comes from the boom-burst cycles in the oil extracting industries of the Middle East. In the 1960s and 1970s, great numbers of workers were sent to the Middle East from Asian countries, including Bangladesh, Pakistan, and Philippines. With the burst of the oil boom, however, Korea emerged as a new place for gainful employment. Some workers from these Asian countries have been using various channels to enter Korea and engage in clandestine employment. 

The employment of foreign workers is meant to be mutually beneficial for it can cover up for the lack of sufficient numbers in the labor force and, in turn, help the employees earn relatively high wages. However, recent developments have shown that the manpower import is not working well. Some of the foreign workers have gone against their original contracts to grab higher-paying jobs. Some of their employers delay payment or mistreat and exploit the estranged workers, taking advantage of their unsecured legal and economic status. The numerous underground laborers violating immigration laws are particularly vulnerable. 

So far, the presence of foreign workers has not become a big social and political issue. Nor has there been much social backlash. But, it should be noted that the possible negative side effects, for example, of cultural differences and social conflicts have come to a head. We should keep in mind that Korea’s bid for internationalization and globalization would come to naught unless it proved capable of treating and working foreign residents and workers in a fair and upright manner with good faith and good will. 
 

III. Results of the Survey 

1. Foreign Workers’ Adaptation to and Understanding of Korean Society 

1. Problems arising when foreign workers adapt to Korean society.

Beginning a new life in a different culture and climate, and choosing to pursue an uncertain life abroad to make money as a 3D job sector laborer at that, is a great challenge for anyone. Foreign workers will find it especially difficult to fit into Korean society as it is a homogeneous ethnic society with a long cultural history. 

What are the most difficult problems that foreign workers face when they endeavor to adapt themselves to Korean society? First of all, there is not yet any institutional or legal framework in place regulating the employment of foreign workers. The absence of such a framework means that most foreigners who seek jobs here are illegal workers. Currently, most foreign workers are not eligible for legal protection as provided under the domestic labor law and the social security system. Human rights abuses against illegal foreign workers are therefore frequently reported in the media, revealing the negative impact of the absence of such a framework. It has also been pointed out that there is neither a system nor an agency to hear and resolve foreign workers’ difficulties. There is also no efficient system to provide them job information or help them find employment. 

Experts have also pointed out the racial discrimination and treatment by Koreans as the main cultural factors that prevent foreign workers from more easily adapting to Korean society. The Korean attitude toward foreigners reflects their sense of cultural and economic superiority to these foreign workers, most of whom are from China and Southeast Asia, areas where economic development lags far behind that of Korea. This attitude also indicates that the socio-psychological and cultural climate in Korea has not yet changed enough such that Koreans would readily accept and understand foreigners. Some experts have pointed out cultural exclusionism in a similar context. 

2. Change in foreign workers’ attitudes toward adapting to Korean society.

With many more foreign workers in Korea than ever before, their attitudes toward adapting to Korean society can change. That is, numerical expansion can fundamentally alter their way of life. The first expected change is the formation of residential areas and linked with community-based organizations where foreigners can meet and support one another. Foreign residential areas linked with various residents’ organizations include ‘China Town’ and ‘Korean Town’ in Los Angeles as good examples of such a development. Such sites as Filipino Street or Bangladesh Street could very well emerge in Korea in the near future. 

To be sure, when the ratio of foreign workers increases in many work places, their influence will also expand. As a result, they are expected to demand the establishment of a legal framework guaranteeing improved working conditions or the reduction in the wage gap with Korean workers. Violent protest against inhumane treatment is a possibility as well. 

3. The image of Korean society to be planted in the minds of foreign workers.

Considering the attitudes held by Korean employers and the general public toward foreign workers, what kind of impression will foreign workers acquire of Korean society? Experts widely believe that a negative image will be stronger than the affirmative image. Laborers coming from the Third world in search of the ‘Korean Dream’ may view Korea as an ‘affluent society.’ The image of ‘a society with high cultural barrier’ can be made more understandable in light of Korea’s unique condition, homogeneous ethnicity and culture. 

Experts, nevertheless, are concerned that frustrated by their poor working conditions and cultural barriers, foreign workers may view Korea as a society where making money comes before human rights, and a society where abuse and discrimination against foreigners is the norm. This is without a doubt an image that Koreans do not want to project. However, it is a clear indication as to how Korean society should be improved today.

2. Sociocultural impact of great numbers of foreign workers the important sociocultural impacts are those with respect to possible social problems, the Korean public’s attitudes concerning labor, Koreans’ views on foreigners, and Korean culture.

1. Impact on the Korean public’s attitudes concerning labor.

This is a matter of how the Korean public’s attitudes concerning foreign laborers will be affected as the number of foreign workers increases. Most experts feel that the effects will be negative, considering the fact that the majority of foreign worker s are currently seeking employment in the 3D job sectors. The most serious problems, according to the experts, are the ‘disregard for manual labor and jobs’ and the ‘deepening discrimination against persons engaged in manual jobs.’ This indicates that an unhealthy attitude may arise where a person is not judged by his character but instead by his job, and that may take root and spread throughout Korean society. This attitude may become more prevalent than the sound view where labor is respected itself. 

The impact of great numbers of foreign workers can be profound in the work place. Experts forecast that hostility toward foreign workers in Korea will rise when the domestic job market becomes unstable due to the rapid increase in their numbers. In line with such a forecast, other assumptions are possible. Foreign workers may emerge as a variable in labor-management relations and the notion that employers exploit workers may become more widespread. In other words, the fact that low-wage foreign workers can replace Koreans will have a great influence in future labor-management relations. 

2. Possible social problems.

With respect to the rapid rise of foreign workers in Korea, the most frequently cited problems nowadays has been crime committed by foreigners. Yet, many more social problems are expected to arise. First of all, the increase in the numbers of illegal long-term residents will give rise to a hot new social issue: the guarantee of foreign workers’ legal status. In addition, the labor market will become two-tiered, a new lower social class will come into being and discrimination against foreign workers is expected to spread. 

Cultural conflict is another potential problem which may follow the influx of peoples of different cultures. Marriage of foreign workers with Koreans will become more common, with the resultant fact that the immigration status of these workers will also become an issue. In this way, the rapid increase in the number of foreign workers is expected to cause various problems not only in the domestic labor market but also in regards to social class behavior, and culture of Korean society. 

Economic problems all the way to possible stagnation, should also be discussed in a serious way. At present the economy is growing at a healthy rate. Jobs are therefore plentiful so Koreans shun those in the 3D sector. Foreign workers generally seek out these 3D jobs and thus are not causing particular problems yet in Korea because of any labor shortages. However, in the light of Germany’s or other countries’ experiences, the existence of foreign workers can touch off serious social problems during times of economic stagnation. 

Concerning this, experts have pointed out, among other things, an increase in hostility against foreign workers. This view mirrors concern that foreign workers may be regarded as job snatchers should Korea’s unemployment begin to rise. In extreme cases , as was seen in Germany, actual terrorism may occur against foreign workers. A similar prediction has been put forward that exclusive nationalism would be heightened. Korean workers are also expected to voice their great discontent against the government and enterprises for allowing the employment of foreign workers. 

Economic stagnation would also create job instability for foreign workers.  As a result, some foreign workers would be laid off, causing the number of those staying illegally to rapidly rise. This in turn may lead to possible formation of slums and a higher crime rate. In response, the government is expected to seek forcible expulsion of these illegal foreign workers. Such a get-tough policy, however, may create diplomatic frictions with the countries where these foreigners came from. The far-reaching impact the presence of many foreign workers at times of stagnation can thus be more complicated than expected. 

3. Impact on Koreans’ view of foreigners.

As indicated earlier, the majority of foreign workers in Korea are from poor Third World countries. They work as low wage laborers in difficult jobs referred to as 3D jobs. This fact alone has been pointed out as one which leads Koreans to discriminate against them. Experts widely predict that such discrimination may further a sense of national superiority and ultranationalism among Koreans. 

However, it is not clear whether or not such a sense of national superiority and ultranationalism would also become prevalent if the number of foreign specialists earning top salaries increased in the fields of science, technology, finance, information, and where a great deal of specialty is required. A similar number of experts predicted that a sense of cultural pluralism might rise among Koreans with the increase of foreign workers. This prediction is meaningful in that it is the very direction where Korea should be heading in relationship to its view of foreigners. 

4. Impact on culture.

Korean culture will be greatly influenced by the presence of greater numbers of foreign workers of different cultures and backgrounds. According to experts, cultural diversity will emerge. This is an encouraging phenomenon in that the capacity of the citizens of Korea to assimilate cultural diversity is one of the most important cultural factors needed for Korea to adapt to the global trend of openness and internationalization. 

On the other hand, the introduction of different cultures may act as a temporary cultural shock on Korean society. It is also possible that the rapid spread of ‘inferior culture’ by foreign workers may be perceived to be occurring. Of concern then is that ultranationalism may rise in Korea due to Koreans’ sense of superiority in relation to foreign workers. 

3. Measures to reduce cultural conflict with foreign workers to a minimum As pointed out earlier, a rapid increase in the number of foreign workers means a rapid influx of different cultures. It is therefore highly likely that cultural conflict may occur between Koreans and foreign workers. As is usually the case in heterogeneous societies, cultural conflict combined with hatred among ethnic groups develops into the most serious of situations, leaving deep scars on all involved. What can be done to prevent such an unfortunate situation in Korea? 

1. The government’s task in policy.

The first task upon which the government should embark is the establishment of a system under which foreign workers can find employment with legitimate status. This would entail the establishment of a legal framework for employment of foreigners, social security for foreign workers, and protective measures of their human rights. The following recommendations by some experts also mirror the absence of such a framework: countermeasures for long-term illegal residents, establishment of an effective management system for them, and the setting of quotas on the number of foreign workers as well as restrictions on the fields they can seek employment. 

In addition, the government should establish educational programs to enhance foreign workers’ understanding of Korean culture. It should also strengthen education and supervision for the domestic employers to protect foreign workers’ human rights. 

2. Tasks for social organizations.

One of the main tasks for social organizations, supporters of human rights, is to help foreign workers fit into Korean society and help minimize cultural conflicts. Some organizations including religious groups have begun to show interest in the general welfare of foreign workers. Much more needs to be done along these lines, however. More concern and support are required through an organized effort. 

Experts say that social organizations can or should take responsibility for the establishment and operation of a system for resolving foreign workers’ difficulties, as well as preventing, monitoring, and reporting of human rights violations in the work place. 

In the long-term, according to experts, social organizations must launch a campaign among Koreans in order to get rid of discriminatory attitudes against foreign workers and encourage Koreans to embrace them on the basis of cultural pluralism. Teaching foreign workers about Korean culture is also needed. What the social organizations can do besides the above is to monitor the status and working conditions of foreign workers to ensure that human rights are more widely upheld. 

3. Tasks for the general public 

How well can foreign workers adapt to Korean society and lead a life in Korea depends on the manner in which the general public treats them. The desired result cannot be achieved only through efforts on the part of the government and social organizations as the public’s views and attitudes remain unchanged. 

Most important of all, Koreans should shake off the prejudice that foreign workers are laborers from ‘poor countries’ and should reshape a more refined view of them. After all, foreigners are also human beings who have beloved families in their homes like Koreans, and they are also men and women of character having their own dreams. Remembering that foreign workers come from different societies and cultures, Koreans need to make efforts to understand them. Towards that end, the suggestion was put forward that Koreans should establish cultural sites for foreign workers. 
 

IV. Conclusion 

With this purpose, this research, which assumes that there will be more foreign workers than at present, explains the various changes and problems that may arise in Korean society. The major point of this research is that the problem of foreign workers should be carefully reviewed and understood from a sociocultural point of view rather than an economic one. 

Foreign workers are not just part of the labor force. Rather, they are men and women of character with their own lives and cultures. They can be either an important helping intangible cultural base or a major obstacles blocking both Korea’s advance into other countries and enhancement of its international status. What roles these foreign workers will play in the future depends on how we Koreans treat them. 

It is my hope this research will provide an opportunity to renew discussion in Korea on the matter of foreign workers.