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Explaining the Impasse of Circular Migration in Southern Africa

From the Migrant Labour System to Deregulation

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Impact of Circular Migration on Human, Political and Civil Rights

Part of the book series: United Nations University Series on Regionalism ((UNSR,volume 12))

Abstract

Circular migration (CM) is not a trendy concept in Southern Africa. This is in spite of over a century of circular labour migration to the South African mining and agricultural sectors strictly regulated by bilateral agreements. In the post-apartheid period, outsourcing of the core industrial sectors (mining) and liberalisation in agriculture and services have resulted in a structural shift in labour demand. Drawing on a range of ecumenical data (recent statistics releases, interviews, and empirical research), this paper examines existing policy and management contradictions in the facilitation of regional labour movement towards South Africa. The paper sets out on a critical examination of existing statistics before turning to a review of South African policy instruments showing the use of deportation and regularisation schemes as unofficial but de facto CM mechanisms. The paper then examines regulatory frameworks for skilled migration from the region showing the barriers to facilitated movement. It then closes on an analysis of the protracted deadlock at sub-regional level. The paper finds that CM is only beginning to be considered as a policy option by Southern African policy-makers as a labour instrument. The paper concludes that South African policy-makers have protected the vested interests of the mining sector and commercial agriculture about fifteen years into the post-apartheid period and have no yet fully embraced a regional approach to labour migration.

This paper has been written thanks to the support of the Migrating for Work Research Consortium (MiWORC) funded among others by the European Union, the South African Department of Labour, the International Labour Organisation, the Migrating Out of Poverty Research Consortium (DFID – University of Sussex) and the African Centre for Migration & Society, University of the Witwatersrand. Research for this paper was completed in early 2014.

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Notes

  1. 1.

    These are essentially the Global Forum for Migration & Development (GFMD) and the European Commission’s Global Approach to Migration (GAM). For more on this, see Wickramasekara (2011).

  2. 2.

    Communication from IOM official to the author, Johannesburg, March 2013.

  3. 3.

    There is very abundant literature on this system, both historical and more contemporary. Among many sources, the following are probably among the most informative: Arrighi (1967), Burawoy (1976, 1981), Wolpe (1972), Arrighi et al. (2010), Jeeves and Crush (1997), Crush et al. (1995), Crush et al. (1992), Crush et al. 1999, Crush (1997), and Crush and James (1995a).

  4. 4.

    The circular migration of skilled South Africans is not envisaged in this paper.

  5. 5.

    H. Groenewald and P. Zulu, Workforce and Foreign Workforce Management, Department of Health, interview, March 2013.

  6. 6.

    Personal communication from Department of Labour & Department of Home Affairs officials, April 2012. See also Statistics South Africa 2012a, b, c.

  7. 7.

    Desktop research and telephonic communication with these organisations’ documentation units, May-June 2012.

  8. 8.

    Personal communications from Home Affairs officials on the draft immigration policy review, between 2012 and 2016.

  9. 9.

    A “South Africans-first” policy is for instance one of the stated objectives of the Fundamental Principles of the Mineral and Petroleum Resources Development Act (Act 28 of 2002). The Immigration Act No 13 of 2002 also renders the employment of foreigners subject to the demonstrated unavailability of South African workers.

  10. 10.

    See its presentation on TEBA website, op.cit.

  11. 11.

    See TEBA website, op.cit.

  12. 12.

    See in particular Crush et al. (1999), Ulicki (1999), Marais (2010), and Sikakana (2003).

  13. 13.

    Personal communication from various officials from the ILO, IOM, and SADC between 2012 and 2016.

  14. 14.

    Communication from IOM official, April 2013.

  15. 15.

    A full discussion of undocumented migration is provided in Segatti and Landau (2011) and in Vigneswaran (2008).

  16. 16.

    For detailed accounts of these three regularisation schemes, see Crush and Williams (1999), Johnston (2001), and Amit (2011).

  17. 17.

    For a cost assessment of the policing and deportation of undocumented migrants in South Africa, see Vigneswaran and Duponchel (2009).

  18. 18.

    Since the implementation of new regulations in 2014, permits are called visas and there have been some minor changes to application requirements not considered in this paper.

  19. 19.

    Personal communication from DoL officials from different directorates, April 2012.

  20. 20.

    For a discussion of this, see Morris and Reed (2008).

  21. 21.

    Interview with H. Groenewald and P. Zulu, op.cit.

  22. 22.

    For a systematic review of migration policy positions, see Synoptic table of migration policy developments: African National Congress & South African Government – European Union. 1995–2010 in Segatti (2012).

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  1. African Centre for Migration & Society, University of the Witwatersrand, Johannesburg, South Africa

    Aurelia Segatti

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  1. Department of Sociology, Autonomous University of Barcelona, Bellaterra, Barcelona, Spain

    Carlota Solé

  2. Department of Sociology, Autonomous University of Barcelona, Bellaterra, Barcelona, Spain

    Sonia Parella

  3. Department of Sociology, Autonomous University of Barcelona, Bellaterra, Barcelona, Spain

    Teresa Sordé Martí

  4. United Nations University, UNU-CRIS, Brugge, Belgium

    Sonja Nita

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Segatti, A. (2016). Explaining the Impasse of Circular Migration in Southern Africa. In: Solé, C., Parella, S., Martí, T., Nita, S. (eds) Impact of Circular Migration on Human, Political and Civil Rights. United Nations University Series on Regionalism, vol 12. Springer, Cham. https://doi.org/10.1007/978-3-319-28896-3_5

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