Showing posts with label industry policy. Show all posts
Showing posts with label industry policy. Show all posts

Saturday, 20 September 2025

Recent Research on AI Effects on Employment and Work

 AI scenarios range from apocalypse to slow and gradual adoption

 




There has been and currently is a lot of discussion on the effects of artificial intelligence (AI) on employment. Across that research there is a wide range of views on the timing and extent of those effects, from a looming jobs apocalypse with high unemployment to slow and gradual adoption with low unemployment. The picture is clouded by tech firms self-serving promotion of AI solutions and the attention given to the possibility of an out-of-control unaligned AI killing everyone, or turning them into paperclips

 

A few examples will suffice. According to Goldman Sachs Research on How Will AI Affect the Global Workforce? in August 2025,  AI is unlikely to lead to a large increase in unemployment ‘because technological change tends to boost demand for workers in new occupations’, creates new jobs, and increases output and demand. They estimate unemployment will increase by half a percentage point during the AI transition period as displaced workers seek new positions and, if current AI use cases were expanded across the economy, 2.5% of US employment would be at risk of related job loss. So far, they believe the ‘vast majority of companies have not incorporated AI into regular workflows and the low adoption rate is limiting labour market effects.’ 

 

Massachusetts Institute of Technology professor Daron Acemoglu, who has written extensively on technology and work, believes only 5% of all jobs will be taken over, or at least heavily aided, by AI over the next decade. However, the World Economic Forum’s Future of Jobs Report 2025 estimates that, by 2030, new job creation and job displacement will be a ‘combined total of 22% of today’s total (formal) jobs.’ Their jobs outlook is based on the macrotrends of technology, economic uncertainty, demographics, and the energy transition, of which ‘AI and information processing technologies are expected to have the biggest impact – with 86% of respondents expecting these technologies to transform their business by 2030.’

 

On the threat of extinction, in April 2025 the AI Futures Project, a credible non-profit research group, released their AI 2027 scenario, when AI systems ‘become good enough to dramatically accelerate their research’ and start building their own superintelligent AI systems. Without human understanding of what’s happening, the system develops misaligned goals: ‘Previous AIs would lie to humans, but they weren’t systematically plotting to gain power over the humans.’ The superintelligent AI will manipulate humans and rapidly industrialise by manufacturing robots: ‘Once a sufficient number of robots have been built, the AI releases a bioweapon, killing all humans. Then, it continues the industrialization, and launches Von Neumann probes to colonize space.’ 

 

In September the US think tank RAND published a research paper on the potential for the proliferation of robotic embodiment of superintelligent AI called Averting a Robot Catastrophe, arguing for ‘the urgent need to proactively address this issue now rather than waiting until the technologies are fully deployed to ensure responsible governance and risk management.’ Another 2025 RAND paper on The Extinction Risk From AIconcluded ‘Although we could not show in any of our scenarios that AI could definitely create an extinction threat to humanity, we could not rule out the possibility… resources dedicated to extinction risk mitigation are most useful if they also contribute to mitigating global catastrophic risks and improving AI safety in general.’

 

While AI is developing rapidly, and there are examples of AI deception from Anthropic and OpenAI, a cautionary tale is US-based Builder.ai. The company claimed its product, an AI bot called Natasha, could help customers build software six times faster and 70% cheaper than humans. In 2023 it was ranked third by tech industry magazine Fast Company behind OpenAI and Google’s DeepMind in its innovative AI companies list, and was valued at $US1.5 billion. Builder.ai collapsed in May: ‘Alongside old-fashioned start-up dishonesty with dramatically overstating its revenue, allegations arose that the work of its Natasha neural network was actually the work of 700 human programmers in India.’ This is reminiscent of Elon Musk’s Optimus robots being remote controlled in a 2024 demonstration. 

 

Although it is still too early to say what the effect of AI on employment will be, there has been some useful recent research on the effect of AI on jobs and work, particularly in the US. This post surveys some of the research released over the last few months. 

 

Australian Research

 

The Productivity Commission’s August 2025 Harnessing Data and Digital Technology report said: ‘The economic potential of AI is clear, and we are still in the early stages of its development and adoption… multifactor productivity gains above 2.3% are likely over the next decade, though there is considerable uncertainty. This would translate into about 4.3% labour productivity  growth over the same period.’ The Commission argued data underpins growth and value in the digital economy. And a ‘mature data-sharing regime could add up to $10 billion to Australia’s annual economic output. Experience shows that we need a flexible approach to facilitating data access across the economy.’ In another report for the Economic Reform Roundtable on skills and employment, the Commission recommended improving education and training systems.

 

Grattan institute researchers Trent Wiltshire and Hui-Ling Chan’s September 2025 article AI is Coming: Prepare for the Worst argues ‘in the event of significant disruption, the federal government may need to consider how Australia’s safety net and retraining systems’, with better preparation and scenario planning for Australia for the possibility AI will cause mass unemployment. They suggest changes to income support should be considered, such as lifetime learning accounts, unemployment insurance (a time-limited payment linked to a person’s previous income widely used in Europe), easier access to superannuation when unemployed. They also recommend Denmark’s ‘flexicurity’ system where it is easy to retrench workers but there is a safety net that includes up to two years unemployment insurance, and education, retraining, and support programs. About 25% of Denmark’s private industry workers change jobs each year, and 67% of workers are union members. 

 

A June 2025 PwC AI jobs barometer ‘looked at close to a billion job adverts from 24 countries and 80 sectors to understand how the demand for workers is shifting in relation to AI adoption. The global study found that AI is making workers more valuable, not less. Industries most able to use AI have seen productivity growth nearly quadruple since 2022 and are seeing three times higher growth in revenue generated per employee. Jobs numbers and wages are also growing in virtually every AI-exposed occupation, with AI-skilled workers commanding a 56% wage premium, on average.’

 

The PwC survey found the Australian industry effect of AI was a surge in demand for AI skills in the overall jobs market, nearly doubling from 12,000 postings in 2020 to 23,000 in 2021. Since then there have been 23,000 postings a year, although this was only 1.8% of total job postings in 2024. As Figure 1 below from the report shows, Finance and Insurance was the leading industry, but there has been rapid growth in Construction industry AI job postings.

 

Figure 1. Job postings

 

Source: PwC

 

 

RBA Survey of Australian Businesses

 

The Reserve Bank Governor Michele Bullock gave a speech on September 3rd which included results of an RBA survey of businesses about AI, robotics and technology adoption. Although not about employment, the speech had the Figure below from the RBA survey of businesses about technology adoption, with the striking finding that 80% of firms expect to be using AI in the next three years, up from 25% today. This is probably due to the RBA survey population being skewed toward larger firms. 

 

Figure 2. Australian businesses’ technology adoption

Source: RBA

 

In her speech she said: ‘ Firms mainly expect these tools to augment labour, automating repetitive tasks and redesigning the composition of roles. Firms thought they may initially see an increase in their headcount as they design and embed new technologies, though this may be followed by a small decline as they mature in their adoption of new technologies. Lower skilled roles may decline, while demand for higher skilled roles is expected to grow, continuing (and perhaps even fast-tracking) a decades-long trend away from routine manual work. While AI may eventually automate even some higher skilled tasks, firms tell us that it is too early to fully understand what this means for their workforce beyond the next few years. Some roles may change and the demand for different or new skills may in turn increase.’

 

US Research

 

An August 2025 paper by Eckhardt and Goldschlag called AI and Jobs: The Final Word (Until the Next One),found no detectable effect of AI on recent US employment trends using five measures of job exposure to AI. For three of their five measures there was no detectable difference in unemployment between the more exposed and the less exposed workers, and only a small difference, of 0.2 or 0.3 of a percentage point for two measures. They say ‘One pattern is clear in the data: highly exposed workers are doing better in the labor market than less exposed workers. Workers more exposed to AI are better paid, more likely to have Bachelor’s or graduate degrees, and less likely to be unemployed than less exposed workers.’

 

Their conclusion was that AI isn’t taking jobs yet, or the effect is very small. Figure 3 has their unemployment rate of workers with varying degrees of predicted AI exposure (1 is the least exposed, 5 is the most exposed), where there is no correlation between t AI exposure and unemployment.

 

Figure 3. Unemployment rate by AI exposure quintile

 

Source: Eckhardt and Goldschlag 2025.

 

In their Appendix they used US Census Bureau data, which in August had 9% of surveyed firms using AI, up from 5% a year and a half earlier, although 27% of firms in the information sector said they were using AI. The Appendix had the Figure below, showing Construction having one of the lowest levels of AI usage.

 

Figure 4. Percent of businesses using AI

 

Source: Eckhardt and Goldschlag 2025.

 

 

The next word on AI and Jobs came in a paper from the Stanford Digital Economy Lab by Brynjolfsson, Chandar, and Chen Canaries in the Coal Mine? Six Facts about the Recent Employment Effects of Artificial Intelligence. This paper uses two measures of AI exposure, then compares recent employment trends for more and less exposed workers. Their conclusion is radically different to Eckhardt and Goldschlag. The abstract explains:

 

‘We find that since the widespread adoption of generative AI, early-career workers (ages 22-25) in the most AI-exposed occupations have experienced a 13 percent relative decline in employment even after controlling for firm-level shocks. In contrast, employment for workers in less exposed fields and more experienced workers in the same occupations has remained stable or continued to grow. We also find that adjustments occur primarily through employment rather than compensation. Furthermore, employment declines are concentrated in occupations where AI is more likely to automate, rather than augment, human labor. Our results are robust to alternative explanations, such as excluding technology-related firms and excluding occupations amenable to remote work. These six facts provide early, large-scale evidence consistent with the hypothesis that the AI revolution is beginning to have a significant and disproportionate impact on entry-level workers in the American labor market.’

 

Brynjolfsson et al. found ‘substantial declines in employment for early-career workers (ages 22-25) in occupations most exposed to AI’, such as software developers and customer service representatives. In jobs less exposed to AI, employment growth for young workers was comparable to older workers. Declining employment in AI-exposed jobs is driving ‘tepid overall employment growth for 22- to 25- year-olds as employment for older workers continues to grow.’ It should be noted that Eckhardt and Goldschlag use of three other metrics gives a broader perspective. Figure 5 shows growth in employment between October 2022 and July 2025 by age and GPT-4 based AI exposure where quintile 1 is least exposed and 5 the most exposed [1]. 

 

Figure 5. AI exposure group growth in employment.

 

Source: Brynjolfsson et al. 2025

 

 

Is AI a Complement or Substitute?

 

The different conclusions from this US research by throws into sharp relief what is, at this point, the core issue: is AI a substitute for workers, particularly skilled workers, or a complement? In other words, is AI replacing workers in some occupations, or is it being used as a tool to enhance productivity and pefomance? 

 

If AI is a substitute for workers, wages and employment fall, and because AI is substituting for human cognition, businesses will replace expensive humans with a skill or experience premium that is no longer valuable, probably older workers. On the other hand, if AI is a complement, wages and employment increase, and businesses will recruit humans with skill or experience, probably older workers.

 

What Figure 5 above shows is that young workers saw reductions in AI-exposed jobs, but for the other age groups it was positive. In particular, employment for older workers in AI-exposed jobs increased. Eckhardt and Goldschlag also found workers exposed to AI are doing better in the labour market than less exposed workers. This strongly suggests AI is a complement not a substitute. AI complements human skills and augments productivity of workers with the necessary skills and experience, so these people with tacit knowledge not available to an AI are the ones firms are employing. 

 

What About Construction?

 

The US Bureau of Labor Statistics (BLS) 2025 Occupational Outlook Handbook covers 600 occupations [2]. Based on that, the Employment Projections program develops US labour market estimates for 10 years in the future, based on the assumption that labour productivity and technological progress will be in line with historical experience which shows ‘technology impacts occupations, but that these changes tend to be gradual, not sudden. Occupations involve complex combinations of tasks, and even when technology advances rapidly, it can take time for employers and workers to figure out how to incorporate new technology.’ Because technological developments over the next 10 years are ‘impossible to predict with precision,’ new projections are released annually. Figure 6 has Construction employment growing at 4.4% to 2034.

 

Figure 6. US labour market 

 

Source: BLS Employment Projections, August 2025. 

 

In the BLS sector specific projections for the Infrastructure sector by 2030: ‘new job roles are expected to be created for Big Data Specialists and Organizational Development Specialists... Twenty-seven percent of employees in the sector are anticipated to be able to upskill in their current roles, with an additional 17% projected to be reskilled and redeployed. Almost 70% of respondents expect reskilling and upskilling to improve talent retention and enhance competitiveness and productivity of their company, with 50% planning to increase talent mobility through training programmes.’

 

An article in the February 2025 BLS Monthly Labor Review on Incorporating AI impacts in BLS employment projections: occupational case studies argued ‘GenAI can support many tasks involved in architecture and engineering occupations, potentially increasing worker productivity.‘ Their technical expertise and existing regulatory requirements create uncertainty about the extent and employment impact of AI adoption, and underlying demand is expected to remain strong, resulting in US employment growth of 6.8% for architects and engineers.

 

AI Development and Diffusion

 

An April 2025 paper by Arvind Narayanan and Sayash Kapoor from Princeton University’s Center for Information Technology Policy was called AI as Normal technology: An alternative to the vision of AI as a potential superintelligence. They view ‘AI as a tool that we can and should remain in control of,’ and argue this does not require drastic policy interventions. They do not think viewing AI as a humanlike intelligence is ‘currently accurate or useful for understanding its societal impacts.’ 

 

Their lengthy and sometimes digressive paper is based on the idea of a normal technology, where sudden economic impacts are implausible because ‘Innovation and diffusion happen in a feedback loop… With past general-purpose technologies such as electricity, computers, and the internet, the respective feedback loops unfolded over several decades, and we should expect the same to happen with AI.’ They dismiss catastrophic AI because it ‘relies on dubious assumptions about how technology is deployed in the real world. Long before a system would be granted access to consequential decisions, it would need to demonstrate reliable performance in less critical contexts.’

 

Narayanan and Kapoor’s ‘AI as normal technology is a worldview that stands in contrast to the worldview of AI as impending superintelligence.’ They don’t believe progress in generative AI is as fast as claimed, nor that AI diffusion will be much different to electricity or computers, because diffusion ‘occurs over decades, not years.’ This is very different to what they call the utopian and dystopian worldviews of AI, both based on the idea of superintelligence but with opposite consequences. Because the idea of immanent take-off superintelligence is so prevalent in the discussion about AI, as either the solution to many problems or as an extinction event, the suggestion that AI might just be the latest in a long series of powerful general purpose technologies and develop over time in a historically familiar way is both radical and unusual.

 

There is support for this slow adoption and diffusion view from the McKinsey 2025 State of AI report, which is somewhat ironic as McKinsey is one of the biggest boosters of corporate use of AI. Published in March 2025 but based on a mid-2024 survey sample of 1,491, it  found 75% of respondents using AI in at least one business function but only 1% ‘described their gen AI rollouts as mature.’ The survey showed a quarter of large organisations and 12% of smaller ones had an AI roadmap, 52% of large organisations but only 23% of small ones had a dedicated team to drive AI use, and only 28% and 23% respectively had effectively embedded gen AI into business processes. In McKinsey’s sample, 92% of companies plan to increase their AI investment over the next three years. However, that sample will not in any way be representative of most businesses. 

 

Figure 7. AI deployment

 

Source: McKinsey 2025 State of AI report, 42% of respondents  work for organizations with annual revenue over $500 million.

 

Chat GPT was launched in November 2022 by OpenAI. When GPT-4 was released in March 2023, AI went from being unreliable and error prone to being able to synthesise, summarise and interpret data. In August 2005 GPT-5 was released, which again improved performance but not by as much as the previous upgrades, so progress in AI models might be slowing down. The latest models still require supervision and checking of results. 

 

Conclusion

 

There are very many possible futures that could unfold over the next few decades as technologies like AI, automation and robotics develop. However, the key technology is intelligent machines operating in a connected but parallel digital world with varying degrees of autonomy. AI agents will be trained to use data in specific but limited ways, interacting with each other and working with humans. The tools, techniques and data sets needed for machine learning are becoming more accessible for experiment and model building, and as well as the cloud-based large language models like Gemini and ChatGPT, new AI systems like small language models and agentic AI are now appearing. 

 

So far, in many cases these technologies are not a substitute human labour. Generative design software does not replace architects or engineers, automated plan reading does not replace estimators, and optimization of logistics or maintenance by AI does not replace mechanics. Nevertheless, there is an immediate and important need for politicians and policy-makers to increase the urgency and attention given to the effects of AI on employment. Governments have to integrate AI literacy into school curriculums, provide learning subsidies for retraining, and ensure access to technology. 

 

The BLS employment projections show employment declines concentrated in occupations where AI is more likely to automate rather than augment human labour. The industries most affected are mining, retail, manufacturing and employment by government. For construction, between 2024 and 2035 in the US, the projection is for an increase of 4.4%, and for architects and engineers and increase of 6.8% in employment. How representative that is for other counties is impossible to know, but AI use in the US is probably more advanced than in most places.

 

Current employment data from the US shows that employment is steady or increasing for older workers with skills and experience, even in jobs that have high exposure to AI, although for younger workers with less experience there has been an increase in unemployment. At present, AI is affecting entry-level jobs but there are few wider employment effects, and the limited evidence suggests AI complements human skills and augments the productivity of workers with tacit knowledge not available to an AI. 

 

The picture is mixed. Surveys of companies, like the ones from the World Economic Forum, the RBA and McKinsey, report strong interest in AI and a high level of investment planned for the next few years. The share of job postings requiring AI skills is small but increasing. At the same time, employment in AI exposed jobs in the US is rising, not falling, with little or no difference in current unemployment levels between more exposed and less exposed workers. However, research shows  unemployment among 20 to 30 year old tech workers has risen. 

 

There are some other signs of AI effects in the US, with BLS data showing employment growth in marketing, graphic design, office administration, and telephone call centres in 2025 below trend, with reduced demand for workers attributed to AI-related efficiency gains. In Australia there are similar reports, like the use of chatbots by Origin Energy, insurer Suncorp, and banks cutting jobs (announced this week were 3,500 by ANZ and 400 by NAB). 

 

None of this data is conclusive. Survey results are primarily from large firms, micro and small size firms are missing, and surveys do not accurately capture most of the medium size ones. Employment and unemployment data is a lagging indicator that is variable and often revised over the following months, does not include many casual workers, and misses all informal workers completely. Many companies will retrain or relocate workers displaced by AI. The online jobs databases researchers use to estimate AI employment effects are a subset of the overall labour market, and they can only be partially representative of current conditions at best.   

 

On present trends and performance, more extreme AI scenarios are not plausible, such as AI superintelligence delivering annual economic growth of 20%, as a breakthrough problem solving, research and innovation bonanza, as a jobs apocalypse, or as an extinction event. Whether that means AI is a ‘normal’ general purpose technology that will take a few decades to become widely used across industries and the economy is not obvious. According to OpenAI, in mid-2025, ChatGPT had about 800 million weekly active users and 122-130 million daily active users, and 10 million paying users, including 92% of US Fortune 500 companies (N.B. these numbers are from a query on the OpenAI Research website). 

 

Another indicator is downloads of AI models. ChatGPT is averaging 45 million a month, and according to Wikipedia by ‘January 2023, ChatGPT had become the fastest-growing consumer software application in history, gaining over 100 million users in two months. As of May 2025, ChatGPT's website is among the 5 most visited websites.’ That level of uptake is a lot faster than the decades taken for previous technologies like electricity, the internal combustion engine or the internet to become widely used. This reinforces survey findings that many people use AI, including at work, but AI adoption by companies remains low, especially for small and medium size ones, and the great majority of companies have not incorporated AI into their workflows.

 

There are two key points that emerge from, what is at present, an unclear picture of the next decade. The first is that AI automates tasks not jobs, so jobs with structured workflows doing routine and repetitive tasks will be quickly and heavily affected. Examples are administration and data compilation, document processing, customer support, data management, note taking and drafting reports. Employers will do this because it is cost effective and relatively straightforward to train an AI agent for a specific task if the data is available. 

 

The second is the value of tacit knowledge and experience. One example is trade skills and tasks, where some can be automated but some will not, because of the  physical demands of the work. Construction trades will be one of the occupations least affected by AI. Another more pertinent example is in health, where AI assisted diagnostics require oversight by a knowledgeable human. For skilled workers like architects and engineers, using AI requires a high level of knowledge gained through learning by doing in the person responsible for supervision and checking the AI output, and AI could increase demand for these workers. The assumption is that some insight into how the AI works is required.

 

Ethan Mollick’s 2024 book Co-Intelligence outlined how humans can work with an AI chatbot as a co-worker, correcting its errors, checking its work, co-developing ideas, and guiding it in the right direction. This is a widely held view of the way AI will be used. However, in September 2025 he  wrote: ‘I have come to believe that co-intelligence is still important but that the nature of AI is starting to point in a different direction. We're moving from partners to audience, from collaboration to conjuring.’ Mollick suggests the newest most powerful AI models like GPT-5 Pro have ‘impressive output, opaque process’ and ‘for an increasing range of complex tasks, you get an amazing and sophisticated output in response to a vague request, but you have no part in the process….Magic gets done.’ 

 

In the twentieth century, the electrification of workplaces took several decades, well into the 1930s, as organisations restructured around the new technology, relocating and redesigning factories, creating new jobs and developing new products. Now, a hundred years later, AI is having the same effects, but it will not take decades for the restructuring of organisations and the jobs they provide. While the future is uncertain, within a decade AI will probably have become as ubiquitous as electricity and the internet, something we use all the time without thinking about where it comes from or how it works. 

 

                                                            *

 

[1] Eckhardt and Goldschlag, and Brynjolfsson  et al., use a metric based on queries to the Occupational Information Network (O*NET), an online database with hundreds of job definitions, using ChatGPT, developed by Felton, E., M. Raj and R. Seamans in Occupational, industry, and geographic exposure to artificial intelligenceStrategic Management Journal. It was also used by Eloundou, T., S. Manning, P. Mishkin, and D. Rock. 2023. GPTs are GPTs: Labor market impact potential of LLMs, arXiv. 

 

[2] The BLS 2025 Occupational Outlook Handbook includes information on about 600 detailed occupations in over 300 occupational profiles, covering about 4 out of 5 jobs in the US economy. Each profile features 2024–34 projections, along with assessments of the job outlook, work activities, wages, education and training requirements.



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Saturday, 23 August 2025

Queensland Report on Construction Productivity

 More recommendations and reform directions focused on regulation and planning

 


 

The Queensland Productivity Commission (QPC) released their interim report on Opportunities to Improve Productivity of the Construction Industry on 31st July. Construction productivity has recently been the subject of two other reports, with this one following the NSW Productivity and Equality Commission report Housing Supply Challenges and Policy Options in August 2024 and the Productivity Commission report Housing Construction Productivity: Can We Fix It? in February 2025. 

 

The motivating force behind the three reports is a political requirement to be seen to be doing something to address the housing crisis, which is fundamentally due to a mismatch between a long-term lack of supply of new dwellings and the high level of demand, driven by a combination of increased immigration and decreased household size. The result has been rising house prices, falling affordability, particularly for first home buyers, increased rents and very low vacancy rates. Another factor is the high level of engineering construction, due to the size and number of transport and energy projects, many of which are for the public sector. Queensland also has the effects of additional demand from the 2032 Olympic Games projects, currently estimated at $7 billion (which based on other Olympic Games will be much more).

 

The QPC report says ‘While many problems were identified, stakeholders were generally confident that better outcomes are possible. There is broad agreement amongst stakeholders, for many of the solutions identified, on how to address the problems facing the industry.’ Unfortunately, some 342 pages later, most of the problems discussed are about regulation and planning, onsite construction productivity barely gets a mention, there is no evidence stakeholders are in agreement on solutions and more information is requested for the recommendations, and how the problems will be addressed is not included because ‘Implementation issues, including prioritisation and sequencing, are not considered in this interim report but will be considered in the final report.’

 

This post starts with the QPC interim report’s terms of reference and Queensland construction productivity, then looks at the recommendations and reform directions in the report. Some of the report’s  key points on planning and approvals and regulation are covered, and other important industry issues and opportunities not addressed in the report are discussed. 

 

The Terms of Reference Were Extremely Broad

 

To understand how complex the issues surrounding  construction productivity are and why this report (and the others) are so unsatisfactory it is necessary to start with the terms of reference given to the QPC (heavily edited to key points) :

 

        Conditions in Queensland’s housing market, residential development, and non-residential construction, including housing supply and affordability;

        Key trends including input costs, prices, competition, and supply chain developments;

        Factors shaping Queensland’s productivity including legislation and regulation, industrial relations, procurement policies and labour force needs;

        Opportunities for improvement including regulatory and non-regulatory mechanisms;

        Priority areas for reform in the short, medium and long term (including labour, skills and competition, suitability and availability of qualified head contractors and sub-contractors etc.);

        Impact on small and medium scale subcontractors in regional areas and their ability to compete for government tenders due to regulatory requirements;

        Availability of labour, skills development, and matching supply with demand;

        How government procurement and contracting arrangements affect construction productivity, including Best Practice Industry Conditions (BPICs are wages and conditions on public projects introduced to encourage enlistment of workers);

        Barriers to entry, investment and innovation in the sector.

 

Including issues around government procurement and contracting allowed the QPC to address some important productivity determinants that were not in the other recent reports. However, the problem is the breadth of these terms of reference, and the loose or long-term relationship many of the others have with onsite construction productivity, which is what is being measured by the statistics. 

 

The QPC report, and the NSW and Productivity Commission reports that preceded it, are not really about construction productivity, which is being used as a stalking horse for the long-term lack of supply of new housing. These reports are more concerned with the complex, cumbersome and sclerotic planning and approvals process that deters, delays and prevents residential construction, and the effects of regulation and the building code.

 

Queensland Construction Productivity

 

The QPC found Queensland construction productivity is only 5 per cent higher than it was in 1994-95, compared to a 65 per cent increase in labour productivity in the market economy. As Figure 1 shows, the variation in aggregate productivity is explained by compositional changes due to the rapid growth and subsequent decline in heavy and civil engineering activity in the LNG investment boom.

 

Figure 1. Queensland productivity


 

This is also what a previous post on construction productivity in the states and territories found. In 2014 the Australian mining boom peaked with the value of work done reaching $80 billion in Queensland, mainly due to construction of three LNG plants. The pro-cyclical nature of construction productivity is clearly seen in Figure 2 as gross value added (GVA) per hour worked followed the fall in the volume of work, which declined by around 30 percent in Queensland [1].

 

Figure 2. Gross value added per hour worked and construction work done

Sources: ABS 5220, ABS 6150, ABS 8755.

 

The quotes below on the causes of slow productivity growth have been taken from the QPC report.

 

‘Although empirical evidence on the causes of slow productivity growth is incomplete, it suggests that regulation is likely to have played a key role’:

·      Evidence from the United States and New Zealand suggests restrictive land use regulation may have made it more difficult and expensive to construct housing and other buildings [2].

·      Research suggests there have been significant increases in the complexity of building regulation, which has increased overheads and construction costs.

·      Regulatory design, including regional variations, have created incentives that keep the industry fragmented and dominated by smaller firms, who are less likely to innovate and have lower productivity.

·      Where regulators have poor incentives or are underfunded, results in unnecessary delays, high administrative costs and poor oversight, which can undermine productivity.

 

‘Recent changes to the National Construction Code (NCC) have been adopted without a case being established that they would provide a net benefit to the community. Similarly, Queensland introduced its trust accounts framework without undertaking a regulatory impact assessment.’

 

‘While regulatory issues seem to be a key driver of poor performance over longer time periods, more recent productivity declines seem to have been materially impacted by policy choices relating to Queensland Government procurement.’ 

 

‘Insufficient attention has been given to how procurement practices or new projects are impacting the market. This has been exacerbated by poor project selection.’

 

‘Government procurement practices, particularly BPICs, have created unnecessary inefficiencies’

 

The Report’s Recommendations and Reform Directions

 

The preliminary recommendations are ‘specific reforms that the Commission is seeking feedback on.’ There are 21 recommendations, of which six are on planning and approvals, and four on the NCC and regulation. The recommendations are:  

 

·     Government procurement - recommendations 1, 2 and 3;

·     BPICs removal –  recommendation 4;

·     Planning and approvals – recommendations 5, 6 (infrastructure charges), 7, 8, 9, and 10;

·     Regulation –  recommendations 11 (NCC), 12 (building codes), 13 (minimum financial requirements), and 14 (trust accounts);

·     Modern methods of construction (MMC) – recommendation 15;

·     Worker health and safety – recommendations 16 and 17;

·     Workforce – recommendations 18 and 19 (occupational licensing), and 20 (mobility);

·     Utility connections - recommendation 21.

 

The reform directions are ‘areas where there is a clear case for action, but the Commission is seeking further information to support the development of specific recommendations.’ There are 12 reform directions, of which

 

·    Government selection and staging of infrastructure – reform direction 1;

·    The pre-qualification system – reform direction 2;

·    Re-setting industry practices and increasing competition – reform direction 3;

·    Tendering and contracting, including building information modelling (BIM) and collaborative contracts - reform direction 4;

·    Planning and zoning reform – reform direction5, 6 (community support);

·    Review of regulations – reform direction7 and 8 (QBCC);

·    Worker health and safety - reform direction 9;

·    Workforce - reform directions 10 (training), 11 (migration), 12 (labour hire).

 

There are also two requests for information, on the 2024 Energy Queensland Union Collective Agreement, and on foreign investor taxes and housing construction. 

 

If the aim really is to improve construction productivity, recommendations would be focused on improving project management, logistics and supply chain efficiency, increasing investment in machinery, equipment and software, contractual relations and the structure of the industry. While the recommendations on procurement are important, and with those on workforce development and industrial relations relevant to productivity, the majority of the QPC’s recommendations are on legislation, regulation, and the planning and approvals process. 

 

A comparison with the 2024 NSW Productivity and Equality Commission report Review of Housing Supply Challenges and Policy Options for NSW is useful. That report found barriers to housing supply included high construction and borrowing costs, capacity constraints in the construction sector, and bottlenecks in the development process, with over half of the 32 recommendations on planning. It recommended reforming planning to streamline the development process and reduce approval times, and reviewing planning policy because ‘prescriptive rules’ on land block innovation. Other recommendations included education and skills, business regulations and tax, improving infrastructure and transport, replacing stamp duty with a land tax, establishing an Urban Development Program to report on the housing market and a housing supply council to advise on housing targets, and incentives for local government to meet targets. It argued for non-regulatory approaches wherever possible, and avoiding excessive regulation. While there are many overlapping recommendations, this is a more ambitious agenda than the one envisaged by the QPC. 

 

The structure of the QPC Interim  Report echoes the Productivity Commission’s February report, which had five issues and seven reform directions. The PC’s issues were: the complex and slow approvals process; fragmentation due to regulation; the lack of innovation; the regulatory burden; and workforce issues. The reform directions were: coordinated and transparent planning approvals and appropriately funded regulators; review building regulations and the NCC’s objectives; implement ratings systems on new and existing building quality; increase diffusion of technology; public research and development funding; reduce regulatory impediments to MCC; and improve workforce mobility and flexibility. The PC suggested states should consider establishing coordination bodies to speed up the process and address delays such as the Queensland State Assessment and Referral Agency, which got two mentions but no discussion in the QPC report [3]. 

 

The Planner Productivity Problem

 

Over 45 pages the QPC details regulation of land use that ‘can be complex, restrictive, inconsistent across local governments, inconsistent between regulatory instruments and impose costly and unnecessary requirements’, a planning system that ‘is complex, difficult to navigate, inefficient and lacks transparency and accountability’, and approvals processes that ‘create uncertainty, have high transaction costs, require expensive or unnecessary modifications to building design or cause excessive delays.’ 

 

The QPC recommends an alternative development pathway for significant developments [4], amending the Planning Regulation, and reviewing the Building and Planning Acts. The Government should ‘investigate digital planning and permitting technologies to improve the efficiency, accuracy and transparency of the approval process.’ To ‘build community support for housing development’ the QPC suggests improved consultation, citizen panels, independent hearing panels, and negotiable conditions. To improve zoning financial incentives for local government might be used. 

 

It is universally recognised that the time and cost of development approvals is a problem, but that is an issue of planner productivity not construction productivity. Research from YIMBY Melbourne found ‘In 1986, for every practicing planner, Australia built around 54 homes. Now, we build fewer than nine homes per planner. A planner 40 years ago was on average responsible for the development of six times the number of homes per year than a planner working today.’ 

 

Figure 3. Planner productivity

Source: There is no planner supply shortage, YIMBY Melbourne Research Note. 

 

The Research Note concluded ‘The demand for planners has mainly increased not through an increase in construction output and project delivery, but through an increase in regulatory process and complexity.’ This is QPC’s reform direction 4, and addresses 

the problem that development projects such as new housing estates and apartment complexes can take ten years or more to complete, with most of the time spent getting approvals. 

 

Regulation and the NCC

 

The QPC says ‘evidence suggests that several regulations affecting the construction industry are not effective or efficient, and are likely to be reducing productivity. Building regulations are becoming more complex with increased risk they are impeding productivity. Reduced levels of attention are being paid to the costs of new regulation, with regulatory best practice not being followed.’

 

Figure 4. The Queensland building regulation system

 


 

The outcome is the QPC’s view that recent changes to NCC 2022 for liveable housing and energy efficiency have increased construction costs, and ‘regulatory impact analysis undertaken showed these benefits were unlikely to justify the costs they impose.’ The recommendation is for Queensland to opt out of NCC 2022 and ‘only adopt future NCC changes in Queensland codes where these have been through robust regulatory impact analysis to demonstrate they provide net benefits to the community.’ 

Under Reform direction 8 ‘consideration should be given to whether the regulatory framework underpinning the QBCC provides the right incentives for ongoing

improvements to regulatory performance.’

 

Modern Methods of Construction and BIM

 

There is a short chapter in the interim report on MMC, included in the section on regulation. The QPC argues there is no market failure and no reason for government intervention to promote MMC. The report makes some general observations about regulatory barriers to MMC, none of which are new, and did not endorse MMC as an alternative to conventional building. There is no discussion on the cyclical boom-bust nature of residential building, which makes industrialisation of modular and prefabricated housing difficult, the reluctance of most banks to finance modular and prefabricated houses, and the lack of standards or an industry quality assurance accreditation system for modular and prefabricated buildings. 

 

The QPC acknowledges the existence of the MMC program that QBuild and the Office of the Queensland Government Architect have, which is a partnership with 12 industry suppliers to supply housing in regional and remote areas. In 2023 QBuild established a training and production facility at Eagle Farm in Brisbane, and two more production facilities have since opened in Zillmere in north Brisbane, and Cairns in Far North Queensland. 

 

Although QBuild has the best developed MMC program in Australia that has produced over 500 houses, the QPC does not discuss or make any recommendation on the program. The QPC did not use the opportunity to report data from QBuild on MMC productivity, costs and time performance, or provide feedback from occupants on the build quality and  liveability of their houses, or from users of modular or prefabricated public buildings like schools and hospitals. 

 

Another oversight is the lack of discussion on the use of Building Information Modelling (BIM) or other digital tools like design for manufacture and assembly (DfMA). These are making offsite manufacturing of building modules and components more efficient and have been used for over a decade. At the end of the section on Contracting for Efficiency the QPC asks for information on ‘the key barriers to increased adoption of digital technologies, such as BIM, and the policies or practices that would allow the opportunities for digital technologies to be fully leveraged.’

 

Queensland has had a BIM mandate for public projects over $50 million since 2019, however the QPC does not think this worth mentioning or, worse, investigating. This was another missed opportunity to assess the costs and benefits of their BIM mandate, and the failure to recommend its retention and/or extension a mystery. Also, the BIM mandate is under the Queensland Department of State Development and Infrastructure, which has a 2024 Infrastructure and Workforce Productivity Plan with details on current and planned initiatives, The QPC does not refer to this plan or its effectiveness [5]. 

 

Industry Issues

 

There are other important industry issues not discussed, starting with construction costs and the volatility of the building cycle. Improving productivity through better project management and reform of the VET system are also overlooked. There is no discussion of digitisation and automation, digital tools and platforms, AI enhanced systems, and automated planning and code compliance checks. Also, industry contractual relationships and risk allocation are not considered. Subcontracting is flexible and a method to manage costs and risk, but direct employment has a smaller span of control and is more efficient. 

 

Although there is extensive coverage of building regulation and the NCC, the QPC does not discuss building defects and the lack of implementation of the 2018 report Building Confidence: Improving the Effectiveness of Compliance and Enforcement Systems for the Building and Construction Industry Across Australia recommendations on mandatory inspections and fire safety. Nor is the problem of flammable cladding in Queensland in the report, where from 2019 to 2023 there was a Safer Buildings Taskforce to advise the government on policies and actions and how to rectify combustible cladding. In August 2025 three public buildings still needed rectification and some unknown number have been rectified and removed from the online list on The Department of Housing and Public Works page, which says: ‘As of 31 May 2024:

·       976 private buildings require a solution to address cladding risk;

·       308 are potentially at risk and need to complete the checklist process;

·       345 have notified of removal or rectification.

 

Although the terms of reference were to look at other jurisdictions, there is no discussion of the NSW iCIRTsystem, developed by ratings agency Equifax, for assessing contractor and consultant capability and performance, despite clear evidence of the effectiveness of the system in NSW in improving building quality and addressing the problems of building defects and phoenixing by developers and contractors. Discussion of the 10 year latent defects insurance scheme that has started in NSW is also missing. 

 

Conclusion

 

The QPC has focused on regulation and planning as the main issues, but these are just two of the factors that affect onsite productivity, and arguably skills, technology and project management are more important. Also, while no-one disputes the importance of issues like costs, prices, competition, the supply chain, labour, skills, occupational licensing, procurement and contracting, these have been discussed and dissected over and over again. The QPC makes no new contribution to these issues.

 

The QPC’s 21 recommendations and seven reform directions are in four key areas. The first is improving government procurement policies, where well-known ideas on collaborative contracting, and selecting, sequencing, and sizing of public projects are recycled. These would all make the Queensland Government a better client and would probably increase productivity on public projects, but that can only have a small effect on the overall level of construction productivity in the state because most of the work done is for the private sector. The Queensland Government (and the other Australian Governments) have received these recommendations many times over the years. 

 

The second key area is improving land use regulations, including approvals and zoning, which are a third of the recommendations. The QPC does not directly address the reality that local government opposes new housing, although it does recommend an alternative development pathway for significant developments and reviewing the Building and Planning Acts. The issue here is planner productivity, which has fallen as regulatory complexity has increased, not construction productivity. Planning and zoning decisions have no effect on supply side issues such as the cost of construction materials and mortgage finance for new housing, providing the infrastructure needed for new developments, and the rate of conversion of approvals into commencements by developers.

 

The third key area is the regulation of building activity. The QPC recommends opting out of the 2022 NCC updates on building accessibility and thermal performance because of their cost effects, reviewing the regulatory framework and performance of the QBCC, and pausing rollout of trust accounts while investigating their costs and benefits. The QPC argues no government support for MMC is required, but regulatory barriers should be addressed. 

 

The fourth key area is improving labour market operation, mainly through reform of apprenticeship and training pathways, occupational licencing, skilled overseas migration, labour hire licensing, and allowing recognition of qualifications from interstate. These issues were recognised and had similar recommendations in the NSW and Productivity Commission reports. 

 

What the QPC report shows is that construction productivity in general, and residential productivity in particular, is being used as a stalking horse for the lack of supply of new housing. As in the previous reports from the NSW Productivity and Equality Commission and the Productivity Commission, the main focus is on a sclerotic planning and approvals process that delays and often prevents new housing. The real issue there is local government opposition to new housing and planner productivity, not construction productivity. 

 

Houses are larger and apartments smaller than a few decades ago, but how they are procured and built, and what they are made of, has not substantially changed in decades. Fundamentally, that is also why the level of productivity has not changed. While there are more electrical appliances and offsite manufacturing of trusses, windows, doors and cabinetry, the building structure and services like electricity, water and plumbing in a 1960s dwelling are those found in a new build today.

 

Construction in general and housing in particular has a well-established system of production that is efficient and flexible. It will only change if and when there is a clearly superior method of delivery that is also profitable. Tinkering with regulations, the NCC, planning and approvals processes, and occupational licensing might make a difference at the margin, but will not deliver the big improvement in productivity that is required. For that a commitment to increased digitisation and automation is necessary, with government policies, procurement and finance aligned. 

 

There are some glaring omissions in the report. The QBuild MMC has produced over 500 houses, but the QPC does not discuss or make any recommendation on the program. Queensland has had a BIM mandate for public projects over $50 million since 2019, however the QPC does not think this worth mentioning or, worse, investigating. There is almost no discussion on the use of BIM or other digital tools like design for manufacture and assembly. Construction costs and the volatility of the building cycle, improving productivity through better project management and reform of the VET system are also overlooked. Although there is extensive coverage of building regulation and the NCC, the QPC does not discuss building defects and the lack of implementation of the 2018 Building Confidence report. 

 

The productivity issues in the QPC report are not new and can be found in many other reports on the industry, although there are some that are specific to Queensland. The interim report’s recommendations are limited and most would be little more than modifications to the current system. While those may be worthwhile, because the current system can clearly be improved, there is no suggestion that a more radical approach might be needed or taken.

 

                                                            *

 

[1] The effect of the mining boom was the subject of a 2023 post on The Long Cycle in Australian Construction Productivity using GVA per person employed.

 

[2] The US research was discussed in an October 2024 post Recent Research on Construction Productivity.

 

[3] Discussed in the post Housing Productivity Report a Missed Opportunity on the  Productivity Commission’s report Housing Construction Productivity: Can We Fix It

 

[4] The QPC does not refer to the NSW Housing Development Authority, established in January 2025 to approve State Significant Developments and rezonings. By August it had approved 187 projects with over 70,000 dwellings. NSW has introduced a Pattern Book of six low and mid-rise housing designs with a 10 day approval pathway. Also in August, Victoria introduced a Single Home Code for deemed-to-satisfy houses that need no further approvals. This follows the Townhouse and Low-Rise Code introduced earlier in 2025.

 

[5] A 2021post was on BIM Mandates and  Construction Industry Policy



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