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Anyone 18 or over who isn't a worker or manager can become a labourer. Those who aren't already labourers are listed as unemployed, but they aren't always looking for work - they may be on a rest period. Labourers get paid for each day they work; the check is made at the same time each day, and all labourers whose faces are in a building panel at that moment receive 1/30 of the monthly labourer wage. Labourers only work when there is work to do, as soon as the work runs out they get sent home. The only get paid for walking to work and the time they are actually working, not for their rest periods, going home or anything else.
From this, you can see that labourers are both cheaper and more efficient than workers, and that, given the choice, most of the time you should choose labourers. However, workers can sometimes be more versatile, you can control them directly, firing individual workers you don't like, for example (perhaps they live too far away), and they aren't likely to run off and find something else to do. With labourers, you get very little control, being able only to set their sex and maximum number. Although most moving of goods in my games is done by labourers, I always now get a cart shed early on, because goods get moved quicker that way, particularly for construction work.
As you point out, if you don't have many unemployed, you won't get labourers. After the first year or two, I generally aim to have about 40% unemployment in the winter just so that I get enough labourers for working the fields in the Spring and Autumn.
I wish there were a mid-March setting so they would sync up better with the plowing.
As always a professional answer Trim; thank you very much indeed! ;) I really appreciate!
I have found that falsifying jobs to attract people to your town and then retracting the jobs works swimmingly. Clearly a morally bankrupt thing to do, but you are the Mayor! Rule as you wish!
In the real world of undocumented migrant labor, people undertake huge risks and trek long distances just for news spread by word of mouths. So I don't think it is morally bankrupt per se. Heck, my village is welcoming, well fed, and institutes public welfare for any struggling families, it is far more than what most real world places offer.
One awful exploit you can do to artificially create job needs is to set a production building, say a working mill, to move resources exclusively by cart by a labor. No labor will come around to deliver 30 bushels of grain in a cart, so the mill labor position is permanently open, even during a severe labor downturn.