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I should add: In my game the Fleatown mine has already depleted and the Refugees camp is deserted.
In general, getting those (2?) worker groups give an increase in income.
The Foreman in Fleatown Market still says only "can hire workers", but nothing happens. There is no relevant Operation available at either the mine or in Fleatown. So it appears I'm still missing a rather non-obvious condition for this.
Or if you did the refugee camp quests first, then when you see the foreman at Fleetown, he will have the workers. Or something like that.