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AFRICA DEVELOPMENT FORUM Public Disclosure Authorized Public Disclosure Authorized Contemporary Migration to South Africa Public Disclosure Authorized A Regional Development Issue Aurelia Segatti and Loren B. Landau, Editors Public Disclosure Authorized Contemporary Migration to South Africa Contemporary Migration to South Africa A Regional Development Issue Aurelia Segatti and Loren B. Landau Editors A copublication of the Agence Française de Développement and the World Bank © 2011 The International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org All rights reserved 1 2 3 4 14 13 12 11 This volume is a product of the staff of the International Bank for Reconstruction and Development / The World Bank. The fi ndings, interpretations, and conclusions expressed in this volume do not necessarily refl ect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judge- ment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this publication is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The International Bank for Reconstruction and Development / The World Bank encourages dissemination of its work and will normally grant permission to reproduce portions of the work promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center Inc., 222 Rosewood Drive, Danvers, MA 01923, USA; telephone: 978-750-8400; fax: 978-750-4470; Internet: www.copyright.com. All other queries on rights and licenses, including subsidiary rights, should be addressed to the Offi ce of the Publisher, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2422; e-mail: [email protected]. ISBN: 978-0-8213-8767-2 eISBN: 978-0-8213-8768-9 DOI: 10.1596/978-0-8213-8767-2 Library of Congress Cataloging-in-Publication data has been requested. Cover photograph: Township of Alexandra, north of Johannesburg, 2011, by Becca Hartmann for the African Centre for Migration and Society, University of the Witwatersrand, South Africa Cover design: Naylor Design Africa Development Forum Series The Africa Development Forum series was created in 2009 to focus on issues of signifi cant relevance to Sub-Saharan Africa’s social and economic development. Its aim is both to record the state of the art on a specifi c topic and to contribute to ongoing local, regional, and global policy debates. It is designed specifi cally to provide practitioners, scholars, and students with the most up-to-date research results while highlighting the promise, challenges, and opportunities that exist on the continent. The series is sponsored by the Agence Française de Développement and the World Bank. The manuscripts chosen for publication represent the highest quality in each institution’s research and activity output and have been selected for their relevance to the development agenda. Working together with a shared sense of mission and interdisciplinary purpose, the two institutions are com- mitted to a common search for new insights and new ways of analyzing the development realities of the Sub-Saharan Africa Region. Advisory Committee Members Agence Française de Développement Pierre Jacquet, Chef Économiste Robert Peccoud, Directeur de la Recherche World Bank Shantayanan Devarajan, Chief Economist, Africa Region Jorge Arbache, Senior Economist Titles in the Africa Development Forum Series Africa’s Infrastructure: A Time for Transformation (2010) by the World Bank Challenges for African Agriculture (2011) by Jean-Claude Devéze, editor Gender Disparities in Africa’s Labor Market (2010) by Jorge Saba Arbache, Alexandre Kolev, and Ewa Filipiak, editors Southern African Development Community (SADC) Countries DEMOCRATIC REPUBLIC OF CONGO TANZANIA SEYCHELLES ANGOLA MALAWI ZAMBIA MOZAMBIQUE MADAGASCAR ZIMBABWE MAURITIUS NAMIBIA BOTSWANA SWAZILAND SOUTH LESOTHO This map was produced by the Map Design Unit of The World Bank. AFRICA The boundaries, colors, denominations and any other information shown on this map do not imply, on the part of The World Bank Group, any judgment on the legal status of any territory, or any endorsement or acceptance of IBRD 38587 such boundaries. JUNE 2011 Source: World Bank. Contents Preface xiii Contributors xvii Acknowledgments xix Abbreviations xxi Overview 1 Volume Overview 1 Recommendations for Research and Policy Development 5 Introduction Migration to South Africa: Regional Challenges versus National Instruments and Interests 9 Aurelia Segatti South Africa in Southern Africa: The Other Migration Hub 11 Migration and Recent Labor Market Transformation in South Africa 17 The Institutional Framework: Regional Divergence and the Preference for Bilateralism 22 A Regional Migration-Development Challenge? 25 Organization of This Volume 26 Notes 27 References 27 1 Reforming South African Immigration Policy in the Postapartheid Period (1990–2010) 31 Aurelia Segatti The Genesis of a Discriminatory Migration System (1910–91) 34 vii viii CONTENTS The Emergence of a Democratic Reformist Movement (1991–2003) 42 Overcoming Institutionalized and Reactionary Interests (1994–2008) 49 The Resilience of Policing and Administrative Practices in the Post–1994 Era 54 Conclusion: The Aftermath of the 2008 Events 60 Notes 61 References 63 2 The Role of Skilled Labor 67 Stephen Ellis and Aurelia Segatti The “Skills Problem” 68 Where Do Skilled Southern Africans Emigrate? 71 Current Government Policy on Skilled Labor Migration 73 Conclusion: Is “South Africa First” a Good Policy for Southern Africa? 75 Notes 78 References 78 3 Mobility and Municipalities: Local Authorities, Local Impacts, and the Challenges of Movement 81 Loren B. Landau, Aurelia Segatti, and Jean Pierre Misago Local Management of Migration: Policy Frameworks and Effects 82 Offi cials’ Perspectives on Domestic and International Migration 84 Consultation, Planning, and Budgeting for Mobility 90 Intergovernmental Coordination on Planning and Service Delivery 95 The Practice of Uncoordination: Security, Confl ict, and Social Cohesion 97 Conclusions 99 Notes 102 References 103 CONTENTS ix 4 Migration Control, Documentation, and State Transformation 105 Darshan Vigneswaran Postapartheid Reforms 106 Immigration Control in the 2000s: Giving Up Although Succeeding 109 Enforcement in Practice 112 Conclusion 116 Notes 117 References 118 5 Migration and Health in South Africa: Implications for Development 121 Joanna Vearey Health, Migration, and Development: Protective Policy? 123 Healthcare-Seeking and Migration: What Determines What? 126 Do Regional Migrants Negatively Affect the Public Health System? 128 Toward an Effective Policy Response 130 Conclusion 132 Notes 133 References 133 Appendix A Immigration Legislation and Policy in South Africa and the Southern African Development Community, 1986–2010 137 Appendix B How Many Are They? Migration Data Collection Issues 145 How Many Foreigners Live in South Africa? 145 How Many Undocumented Immigrants Live in South Africa? 146 Measuring Emigration 149 References 149 x CONTENTS Appendix C Migration Statistics for Southern Africa 151 References 159 Appendix D Urbanization in Africa, 1950–2010 161 References 165 Index 167 Boxes 1 The Xenophobic Riots of 2008 10 1.1 The Immigration Act of 2002 and the Immigration Amendment Act of 2004 45 2.1 Successful Immigrants in South Africa 76 Figures 1 Migrant Labor in South African Gold Mines, 1990–2006 20 2 Nationality of Workers in South African Gold Mines, 2006 21 1.1 Number of Documented Immigrants in South Africa, by Continent of Origin, 1984–2004 40 1.2 Number of Permanent Immigration Permits Granted in and Declared Emigrants from South Africa, 1941–2009 41 C.1 Annual Entries into South Africa Approved, 1984–2009 157 C.2 Annual Work and Study Permits Issued by South Africa, 1984–2007 157 Maps 1 Percentage of Recent Migrants in South Africa, by District, 2001 18 2 Percentage of Internal Migrants in South Africa, by District, 2001 18 Tables 1 Population and Migration Data on Africa, 1990–2010 13 2 Population and Migration Data on Western Africa, 1990–2010 13 3 Population and Migration Data on Eastern Africa, 1990–2010 14 4 Population and Migration Data on Middle (Central) Africa, 1990–2010 14 CONTENTS xi 5 Population and Migration Data on Northern Africa, 1990–2010 15 6 Population and Migration Data on Southern Africa, 1990–2010 15 7 Origin of Migrants in South African Provinces, 2001–07 19 1.1 Overview of Policy Options within South Africa’s Migration Policy Framework, 1994–2010 47 3.1 Relationship between Urbanization and Human Development in South African Municipalities 83 C.1 Foreign Nationals from Southern Africa and Indian Ocean States Legally Residing in Selected European Countries, 2008 152 C.2 Foreign Nationals from Southern Africa and Indian Ocean States Refused Entry at the Border by Selected European Countries, 2008 153 C.3 Foreign Nationals from Southern Africa and Indian Ocean States Found to Be Illegally Present in Selected European Countries, 2008 154 C.4 Foreign Nationals from Southern Africa and Indian Ocean States
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