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Migration in Post-Apartheid South Africa

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Migration in Post-Apartheid South Africa Migration in post-apartheid South Africa Challenges and questions to policy-makers A Report edited by Aurelia Wa Kabwe – Segatti (French Institute of South Africa) in collaboration with Loren Landau (Forced Migration Studies Programme, University of the Witwatersrand) November 2006 Copyright Fonds d’analyse des sociétés politiques (FASOPO) - 2 - CONTENTS THE AUTHORS........................................................................................................................ - 3 - E XECUTIVE SUMMARY ......................................................................................................... - 16 - I NTRODUCTION MIGRATION IN POST-APARTHEID SOUTH AFRICA By Stephen Ellis University of Leiden ................................................................................................................. - 27 - C HAPTER 1 REFORMING SOUTH AFRICAN IMMIGRATION POLICY IN THE POST-APARTHEID PERIOD (1990-2006): WHAT IT MEANS AND WHAT IT TAKES By Aurelia Wa Kabwe-Segatti Institut Français d’Afrique du Sud (IFAS).............................................................. - 33 - C HAPTER 2 SOUTH AFRICA AND INTERNATIONAL MIGRATION: THE ROLE OF SKILLED LABOUR By Stephen Ellis, Afrika Study Centrum, Leiden ............................................................... - 80 - C HAPTER 3 UNDOCUMENTED MIGRATION: RISKS AND MYTHS (1998-2005) By Darshan Vigneswaran Forced Migration Studies Programme (FMSP) University of the Witwatersrand ......................................................................................................... - 97 - C HAPTER 4 DECENTRALIZATION, MIGRATION, AND DEVELOPMENT IN SOUTH AFRICA’S PRIMARY CITIES By Loren B. Landau with contributions from Gayatri Singh Forced Migration Studies Programme (FMSP), University of the Witwatersrand........... - 120 - ANNEXES ........................................................................................................................ - 161 - THE AUTHORS Aurelia Wa Kabwe-Segatti has been Research Director of the Institut Français d’Afrique du Sud in Johannesburg since 2004 (www.ifas.org.za/research). She holds a PhD in political science. Her thesis was devoted to the transformation of South African immigration policy in the post- apartheid period. Her research interests are public policy, immigration policy analysis, regional policy coherence and local migration dynamics. Loren B Landau is Director of the Forced Migration Studies Programme, University of the Witwatersrand, South Africa (www.migration.wits.ac.za). With a background in Political Science and Development Studies, his research explores sovereignty; migration and urban transformation; and state-society relations. Loren Landau has been with the FMSP since 2002. Research for this report was done as part of ongoing comparative project coordinated by IFAS and the FMSP on displacement and urbanization within the framework of a Fonds de Solidarité Prioritaire Recherche from the French Department of Foreign Affairs on “Migrations internationales, recompositions territoriales et développement dans les pays du Sud “ . Stephen Ellis is a historian, specialising in contemporary African history. In particular he is working on a study of the civil war in Liberia from 1989 to 1997, and on the role of the security forces in the transition in South Africa, between 1960 and 1994. He maintains a general interest in African current affairs. His current research is on the Political economy of the environment movement ; Counter-Insurrection in South Africa, 1960-1994 ; The history of Madagascar ; Religion and politics in Africa. Stephen is the current editor of African Affairs. He is based at the Afrika Studicentrum of the University of Leiden. Darshan Vigneswaran is a Postdoctoral Fellow with the Forced Migration Studies Programme, University of the Witwatersrand, Johannesburg. He has been Team Leader of the African Cities Survey Project, conducted by the Forced Migration Studies Programme. He holds a PhD in Politics from Monah University (Australia) on The Contours of Control: A Study of European Territoriality. Gayatri Singh holds an MSc. In Forced Migration Studies from Oxford University. She is currently coordinator of the Migration, Governance, and Health Initiative at the Forced Migration Studies Programme and the School of Public Health, Wits Medical School, University of the Witwatersrand, Johannesburg. RÉSUMÉ Introduction: La question migratoire est un sujet particulièrement sensible en Afrique du Sud. Douze ans après la fin de l’apartheid, le pays attire un nombre important de migrants – leurs effectifs exacts étant régulièrement l’objet de controverses. Le gouvernement dirigé par le Congrès National Africain (ANC) a officiellement déclaré que l’Afrique du Sud avait besoin d’attirer des migrants hautement qualifiés pour alimenter certains secteurs clés de son économie et a reconnu l’articulation entre le rôle des migrations internationales, y compris en provenance d’autres pays d’Afrique, et le développement de l’Afrique du Sud. Alors que de très nombreux Sud-Africains vivent dans une grande pauvreté, beaucoup ont le sentiment que le gouvernement devrait donner la priorité à l’emploi à ses propres citoyens plus qu’il ne le fait aujourd’hui. Dans ce contexte, différents analystes ont souligné l’augmentation de la xénophobie surtout vis-à-vis des réfugiés politiques et des migrants irréguliers venant du reste du continent africain. Le contexte politique La ‘signification’ de l’immigration en direction de l’Afrique du Sud et des réactions sud- africaines à celle-ci ne peuvent être comprises indépendamment d’une référence à l’histoire du pays et de la région australe, comme le note le premier chapitre de ce rapport. L’inquiétude qui domine aujourd’hui la scène publique sud-africaine vient essentiellement du constat de disparités économiques très marquées et croissantes et relègue aujourd’hui à l’arrière-plan les divisions raciales des décennies précédentes. Cet élément guide la réflexion gouvernementale sur un certain nombre de questions, y compris celle des migrations. Quelques années après l’arrivée au pouvoir du premier gouvernement post-apartheid en 1994, les prises de position officielles et l’opinion publique se sont fortement polarisées autour de la question de l’immigration : d’un côté, l’immigration était construite contre l’intérêt national, de l’autre, xénophobie et racisme s’opposaient à la rhétorique panafricaniste. Plus récemment cependant, la position gouvernementale sur les questions migratoires a considérablement évolué. Parmi les étapes importantes de cette évolution, on peut citer : la loi sur l’immigration de 2002, l’amendement de 2004, et différentes déclarations de membres du gouvernement en commençant par le président Mbeki. Au niveau supérieur d’élaboration de la politique migratoire, il existe une reconnaissance claire de la nécessité d’une politique plus nuancée fondée sur l’appréciation du rôle des mouvements migratoires dans la société et l’économie sud-africaines dans leur ensemble et pas uniquement dans l’agriculture et le secteur minier. La phase la plus récente de la stratégie gouvernementale de développement est l’Initiative de Croissance Accélérée et Partagée pour l’Afrique du Sud (en anglais Accelerated and Shared Growth Initiative-South Africa ou ASGISA). Dans le cadre de sa politique économique, telle que redéfinie par ASGISA, le gouvernement a lancée une nouvelle initiative destinée plus particulièrement à aider les travailleurs qualifiés. Cette initiative est connue sous le nom de JIPSA – Initiative conjointe pour l’Acquisition de Compétences Prioritaires. L’objectif est de coordonner l’activité de différents ministères. Présidée par la Vice-Présidente Phumzile Mlambo-Ngcuka, cette initiative a, semble-t-il, reçu le soutien du ministère des Finances sud-africain. Ces prises de position sont révélatrices de la pénurie de compétences à laquelle doit faire face l’Afrique du Sud et qui ne peut être résolue, sur le court ou le moyen terme en tout cas, qu’en - 5 - encourageant l’immigration de travailleurs qualifiés. Il s’agit là d’un important changement de la politique gouvernementale en matière d’immigration. Les réflexions sur cette question se focalisent surtout sur la Coupe du Monde de Football que l’Afrique du Sud accueillera en 2010. Les importants projets d’infrastructures qui comporteront la construction de stades, de moyens de transport et d’autres installations aux standards internationaux nécessiteront l’emploi temporaire de nombreux travailleurs qualifiés étrangers. Dans le même temps, il est évident que la politique migratoire officielle du gouvernement n’est pas soutenue par l’ensemble de l’administration ni même des militants ANC. Des factions politiques importantes et certains services de l’administration continuent à avoir une attitude ambivalente voire opposée à l’immigration. En particulier, on note l’état déplorable dans lequel se trouve le ministère en charge des principales tâches d’administration de la politique migratoire, le ministère de l’Intérieur sud-africain. Ce ministère clé est considéré de manière générale dans l’opinion comme inefficace et rongé par la corruption. L’Afrique du Sud dans le monde La question migratoire repose également sur le positionnement de l’Afrique du Sud sur l’échiquier international, dans les domaines à la fois diplomatique et économique. L’Afrique du Sud est classée au rang des puissances « intermédiaires ». Elle occupera un siège au Conseil de Sécurité des Nations Unies pour la première fois à partir
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