The intricacies of the complex world of migration brokerage

by Priya Deshingkar

There is an increasingly broader and deeper realization that there are many players in the migration industry, a loose and changing conglomeration of individuals and institutions that work together to facilitate mobility. The incentives for brokerage are often large, and there are many people in sending and receiving communities who have a stake in ensuring that irregular migration and smuggling succeeds.

A recent webinar from the Migrating out of Poverty consortium presented cutting-edge analysis on migration brokerage in Africa and Asia. Presenters from the Asia Research Institute in Singapore, the Centre for Migration Studies in Ghana and the University of Sussex in the UK explored how brokers are part of the system of creating and producing precarity through their role in facilitating journeys and connecting workers with employment. Migrant workers live and work in precarious conditions, not just because of the way they’ve been employed, but because of the restrictions placed on them by the immigration and government systems that control their rights from the country of destination.

In policy terms, the migration industry is usually framed as an evil and highly exploitative system that perpetuates forced and unfree labour. However, case studies from the webinar demonstrated that migrants can, and do, exercise agency even in highly constrained and unfree situations.

Traditionally scholars have considered worker agency in relation to collective forms of protest mainly in industrial work settings. However, more academic attention is now being given to individual forms of agency. There is now greater recognition of migrants’ strategies of accepting precarious work in the short term in order to build a better future in the longer term. But the role of brokers in achieving long term aspirations, and how they are integral to migrant agency, is an under-researched area. This framing better reflects migrant’s own views and experiences of brokerage, which can often be at odds with the way that brokerage is viewed in migration policy and international development more broadly.

The research presented in the webinar provides insights into the internal workings of brokerage networks and their role in recruiting, training, obtaining official documents and visas, organising journeys and ensuring placements at destination. It explores the profit-making impetus of brokerage but also pays attention to the overlapping moral motives of brokers and relations of reciprocity between migrants and brokers.

In Ghana, for example, internal migration (mainly rural to urban) is very common, with girls and women migrating to urban areas to find employment in low-paid and insecure places particularly in domestic work. Here brokers are embedded in the system of exploitation by moulding the migrants’ behavior and appearance to be “good” and fit the expectations of their employers who are looking for docile and subservient women and girls.

However, the studies from the webinar also conceptualized brokers as an important part of migrant risk management strategies in enabling them to fulfil their own migration agendas. While brokerage is often viewed in a “here and now” way, the studies show how brokers work with migrants to realise their future goals. For example, when migrants want to switch jobs or bargain to improve their working conditions, brokers can play a critical role.

A study of how employment agents in Singapore and Indonesia recruit and place migrant workers introduces the concept of conditionality. That is, the proposition that a migrant worker’s experience of precarity is contingent on a set of formal and informal conditions, the actions of institutional actors, and migrants’ own resources and strategies. Viewing conditionality as not merely additive, but as compounding, sharpens our understanding of precarious work. For example, remember the childhood game ‘Snakes and Ladders’? (NB: Snakes and Ladders, originating from India and commercialised as a family board game in the UK, and again commercially reincarnated as ‘Chutes and Ladders’ in the USA). In this game, ‘Snakes/Chutes’ or vices (poor decisions) set one back and ‘Ladders’ or virtues (good decisions) pushes one forward.

The researchers in Singapore use this model of ‘Chutes and Ladders’ to help demonstrate how migrant domestic workers move in and out of varying degrees of precarity over time. Based on qualitative interviews with migration intermediaries, the study suggested that these ‘chutes’ and ‘ladders’ are not static, pre-existing, or inherent; instead, they are dynamically produced by migration brokers, who actively produce, shore up, or mitigate situations of precarity for workers by ‘patching’ chutes, leaving them, or opening up new ones. Conversely, brokers and employers redraw the boundaries of conditionality through the creation of ladders. Workers’ access to security is hence not merely conditional, but conditionally compounded, based on the necessity of simultaneously meeting multiple mutually reinforcing and interwoven conditions.

The webinar does not try to downplay the inequality in most migrant–broker relations. However, it provides a multi-layered view whereby brokers and migrants, both, should be understood as co-creators of complex pathways of migrant circulation. Migration brokerage crafts and supports structures that produce ‘good migrants’ and precarities, however, over time, migrants may successfully maneuver and challenge these structures with the potential for social and economic change. Furthermore, the research shows that brokers can also play a role in lessening precarity and increasing protection for migrants from abuse.

Listen to the recorded webinar here: Connection Men, Dalals, Maid Agents - traffickers or not?

See the Journal of Ethnic and Migration Studies special issue articles here:

Please, thank you and sorry – brokering migration and constructing identities for domestic work in Ghana 
Mariama Awumbila

A game of chutes-and-ladders: How maid agents and domestic workers navigate the migration industry in Singapore
Kellynn Wee

The recruitment of Bangladeshi migrants for construction work in Qatar
Priya Deshingkar

Minding the Migration Data Gap: new data from the Migrating out of Poverty Consortium

By Julie Litchfield

Research on migration and development has seen a dramatic resurgence in recent years. As Michael Clemens, Çağlar Özden and Hillel Rapoport Michael A. Clemens, Çağlar Özden, Hillel RapoportMichael A. Clemens, Çağlar Özden, Hillel Rapoportoutline in their introduction to the special issue on migration and development of World Development in 2014[1], part of this renewed interest and increase in published research is due to long overdue[2] improvements in the availability and quality of data. Estimates of international migration and remittances are now published by the World Bank and the UN Population Division compiles census data to give estimates of migrants stocks.

This improvement in data quality and data availability allows us to make tentative statements about the extent of internal and international migration. One of the most serious attempts to estimate internal migration is underway by researchers at the IMAGE project who use census data to estimate that globally in 2005 there were 229 million people living within the same country but in a different part of that country compared to five years before. Estimates for lifetime internal migration are much higher, with 763 million people in 2005 living outside their region of birth.[3]  Combining these with UN estimates of international migrants of 232 million people living outside their country of birth, suggest that nearly a billion people live away from their region of birth. 

Census data is useful for providing insights into how many people are migrants and their demographic profile but is less useful for understanding the why and the how of migration. Understanding why people migrate and for how long, how that contributes to, or even changes, their and their household’s livelihoods and well-being are just some of the questions of great interest to migration researchers and policy makers. These questions can be answered with qualitative research and there are some impressive examples to draw on which provide rich and nuanced stories of migrant lives. Deirdre McKay’s ethnographic work provides new insights into the aspirations and experiences of Filipino temporary labour migrants;[4] Trond Waage uses visual anthropological tools to document the lives of young migrants in west Africa; and Migrating out of Poverty (MOOP) partners at the Asia Research Institute, National University of Singapore, have used qualitative methods to shed light on the recruitment of Indonesian domestic workers.

Complementing this qualitative work is a growing body of evidence emerging from quantitative research using household surveys. These offer the opportunity to include more people in the research sample than qualitative research typically allows, anything from a few hundred to a few thousand people is pretty normal, and to use more detailed questions that capture a wider range of data than is feasible to collect in a population census. There are a growing number of household surveys for developing countries which capture information on migrants. For example, the Mexican Migrant Project collects and publishes data on migration between Mexico and the United States, and a number of household and labour force surveys now contain supplementary modules on migration.[5]  These are encouraging signs that the migration data gap is closing but there is still some way to go.  

The Migrating out of Poverty (MOOP) consortium is contributing towards this by publishing open access micro data from a set of five comparable household surveys collected between 2013 and 2015, in five developing countries: Bangladesh, Ethiopia, Ghana, Indonesia, and Zimbabwe.   The precise sampling strategy differs across countries, and we can’t claim that our samples are nationally representative. However because we adopt a purposive approach, selecting regions which are known to be migrant-sending and sampling quotas of households with and without migrants, we generate large enough sub-samples of households and individuals across different categories of migrants and non-migrants to make us confident that our findings are robust.

Our sample sizes range between 1200 and 1400 households, with data available on every member of those households. We adopt a near identical survey instrument in each country, which facilitates comparisons to be drawn across countries. Our household questionnaire includes a complete household roster collecting social, economic and demographic data on both migrant and non-migrant members of the household, and a specially designed module that captures interactions between migrants and their households in the form of remittances and social contacts. Our survey also explores perceptions of migration as a way of improving the living standards of households.

One of the important contributions the MOOP consortium hopes to make by collecting and publishing this data is to support more research into internal and intra-regional migration. As the figures of migration estimates quoted above suggest, three out of four migrants remain within their country of birth and much international migration is within the global South. Our data will help to shed more light on these movements and help to inform policies that respond appropriately to those affected by migration.

The full data sets from the first three of our surveys undertaken in Bangladesh, Indonesia and Ghana, are now available to download for free from www.migratingoutofpoverty.dfid.gov.uk. Data is available in both STATA and SPSS formats and users can access the questionnaire and a short user guide for each survey. Data for Ethiopia and Zimbabwe will be made available in 2016. 

We want students, researchers and teachers to access the data, and policy makers to use it. Feed back to us and let us know what you do with it.

Bangladesh internal and international migration destination maps

Remittances help fund improvements in housing

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[1] Michael A. Clemens, Çağlar Özden, Hillel Rapoport (2014) “Migration and Development Research is Moving Far Beyond Remittances” World Development, Volume 64, December 2014, Pages 121-124.

[2] Read about the “century of ignored recommendations” on the “biggest blind spot in our view of the world economy” in Patricia Santo Tomas, Lawrence Summers and Michael Clemens (2009) “Migrants Count: Five Steps Towards Better Migration Data”, Report of the Commission on International Migration Data for Development Research and Policy; Centre for Global Development, May 2009.

[3] Details on methodology can be found in Bell, M, and Charles-Edwards, E. [2013]: ‘Cross-national comparisons of internal migration: an update of global patterns and trends’, Technical paper 2013/1, Population Division, United Nations Department of Economic and Social Affairs, New York. 

[4] McKay D. 2012. Global Filipinos. Indiana University Press.

[5] See Santo Tomas et al (2009) for a useful audit of migration data.

Julie Litchfield is the Theme Leader for Quantitative Research for the Migrating out of Poverty Research Programme Consortium (MOOP) and Senior Lecturer in the Department of Economics at the University of Sussex. Working Papers discussing aspects of the findings of the Bangladesh, Ghana, Indonesia and Zimbabwe surveys are also available. A summary of key data from the Indonesia survey has also been published. See also Eva-Maria Egger's presentation of the preliminary findings of MOOP's household survey conducted in Zimbabwe  and her related blog discussing the context:  Migration in Southern Africa: A Visit to the City of Migrants.

Intimacy, love, freedom, heartbreak, separation and migration

By Kate Hawkins

A conference participant views the 'Queer Crossings' poster

Sitting in front of a South African poster on ‘queer crossings’ was one of my highlights from the recent Migrating Out Of Poverty conference in Singapore. It made me happy that one of my pet subjects – sexuality – was being addressed by such a stellar line-up of researchers studying gender, poverty and migration linkages.

I find it difficult to think about gender without a corresponding focus on sexuality as the two things so often intersect in interesting and important ways. It is particularly pertinent when we look at issues of women’s empowerment:

If for example, you look at women’s empowerment through a sexuality lens, you see a more complete and realistic picture of a woman: not a victim, nor an end-product ‘empowered’ woman, but a woman with a complex and changing life. You see a woman whose well-being depends, among other things, on making choices about her own body, about pleasure and about her own sexuality. You also see a woman who lives within or perhaps challenges the confines of social pressure and expectations about her behaviour. A woman’s sexuality and identity can affect many aspects of her life including her work and her means to earn a living, her family relations, her ability to move around in public, her opportunities to participate in formal and informal politics, and her access to education.

It is also a useful way of thinking about gender in terms of men and people who define themselves as something beyond/outside the binary of man and woman. (Even Facebook now has a list of over 58 gender options that people can choose from to describe themselves. Some of us scholars are lagging behind on this score!)

Sexuality came up in many of the sessions at the conference – even if it was rarely used as a frame of analysis.

Poverty, precarity and sexuality

Susie Jolly has written about the importance of housing to the realisation of sexual rights and desires and the constraining effects of poverty. This seemed relevant to some of the examples of migrant life spoken about at the conference. Trond Waage’s film, Les Mairuuwas, followed migrants from the Central African Republic in Northern Cameroon who were working as water carriers. One character didn’t see the point of a home, or felt that it was an unnecessary use of resources. But when he moved in to a room he realised that he had invested in the community and it also gave him the opportunity to have a sexual relationship. We heard from many presenters at the conference about the (inappropriate/inadequate) housing conditions of migrant workers. Some were living in their workplace with employers, particularly domestic workers. It would be interesting to better understand the effects of these living and working arrangements on migrants’ abilities to form intimate relationships and the wider effects on their lives.

‘Dangerous’ sexualities and the female migrant

There is a prevailing narrative about the sexual vulnerability of female migrants which was echoed in some of the discussions at the meeting and the presentation on employment brokers was particularly chilling in this regard. However speakers also pointed to the way that female migrants are often stigmatised on the grounds of their sexuality – which is imagined as undisciplined and unruly when far from home.

In a memorable talk about young women from Zimbabwe Stanford Mahati quoted one boy as saying ‘Good girls do not cross the border’. Mahati’s analysis of humanitarian workers’ formal and informal discourse around working migrant girls showed that they were often labelled as ‘promiscuous’, ‘lacking in morals’ and ‘far from innocent’. Meanwhile Ishred Binte Wahid spoke about notions of ‘purity’ in relation to Bangladeshi women migrants who travelled to work in the Gulf States. Female migrants found that religious piety (for example wearing the burkah) was a way of counteracting negative aspersions about what may have happened in their sexual lives whilst they were away from their families. She questioned the notion of female migration as inherently empowering and pointed to how it could sometimes reinforce patriarchal norms.

We heard from South African sex workers in the MOVE visual exhibition. Sex workers are arguably some of the most maligned ‘bad women’ in patriarchal societies’ bogus hierarchy of womanhood. Visual methods enabled them to take back control of the stories about their lives and express their humanity. Chantel, a participant from Johannesburg, wrote in her journal,

Telling my story is so powerful for me. Every day I look forward to writing or thinking about my story. I want to take images that show the way that sex workers are treated. That I am a person. This project let me do this. It helps me to take away stress and to know that I am not alone.

The conference was silent on the issue of the clients of sex workers, despite the fact that it is likely some of them are men characterised problematically in the HIV literature as 'mobile men with money'. Migration researchers may have some interesting insights for their counterparts in health on this issue.

The pain and the liberation of separation

Some presentations at the conference explored the ways that prolonged separation due to migration could lead to challenges in maintaining ‘family unity’. One study from Indonesia showed how 18% of married migrants ended up getting divorced which was contrasted with a divorce rate on 7% in non-migrant families. This had particular impacts on the income of divorced women who also faced negativity from the wider community on account of their divorcee-status.

Deirdre McKay’s presentation of the lives of Philippine women working without documents in the UK explained how long separations with little chance of being reunited due to cost and visa restrictions created stress and a strain on family life. However, she also argued that living in chronic poverty can cause family tensions. She pointed to the potentially liberating aspects of separation in some circumstances and highlighted how when men are ‘dud’ husbands (i.e. they gamble, drink, or can’t look after money) there is often migration in lieu of divorce.

Future sexuality-migration exploration

As a newcomer to the field of migration studies it was fantastic to attend the recent conference. I hope that as work on gender continues there is critical reflection on the topic of sexuality and some cross learning with other programmes working on the poverty-sexuality links. In particular it would have been interesting to hear more about same sex desire and the migrant experience and to have a more explicit focus on heteronormativity. Interesting research from (my friends at) Galang in the Philippines described how lesbian women and trans men migrated because of homophobia and gendered discrimination. For these people migration (and the money earned) sometimes created opportunities for sexual freedom and improved status within the family but it could also leave people vulnerable to homophobic abuse. These are interesting insights which are ripe for further investigation in other contexts.

Kate Hawkins is the Director of Pamoja Communications. She works on communications and research uptake for projects looking at health, gender, sexuality, and more. Kate was the communications consultant on the Gendered Dimensions of Migration conference for the Migrating out of Poverty Research Programme Consortium.

The Protection of Female Migrant Domestic Workers in the Middle East and Asia Pacific

By: Endang Sugiyarto

Millions of labour migrants from developing countries such as Indonesia, the Philippines, and Sri Lanka try to escape poverty and a lack of job opportunities at home by working abroad. Many end up in Middle Eastern destinations such as Saudi Arabia, Oman, the United Arab Emirates, Qatar, Bahrain, and Kuwait. Others go to Asia Pacific countries including Malaysia, Taiwan, Hong Kong, Singapore, South Korea, Brunei Darussalam and Japan. In addition to getting jobs for themselves, they send money home to help their families survive day-to-day life, to finance education and healthcare and to invest in a variety of ways. Thus they contribute to the economies of both the destination countries and their countries of origin which benefit from regular inflows of remittances. As a result, migration has become increasingly important to migrants and their families and to sending and host countries.

Many of the migrants work as domestic workers, a sector that is dominated by women due to the nature of the work and by the demands of the receiving countries. Many of them have low educational levels and insufficient skills to carry out the work expected by the employers. The lack of appropriate good quality training makes the matter worse. On top of these they face additional challenges such as different languages, cultures, laws, common practice, and other day-to-day aspects of life in the home of their employers.

The potential pitfalls of such working arrangements are obvious. It is common for a domestic worker to accidently destroy clothes while doing laundry and/or ironing due to a lack of training. The costs associated with such accidents can be high. If the atmosphere in the house is calm the consequences of mishaps can be minimal. But in a home that is hectic and full of tensions a small accident can easily flare up into an incident of abusive domestic violence. And if such incidents are repeated the situation can turn into one of habitual domestic abuse that is worsened by its location inside the home where there can be no third party and/or community scrutiny.

Moreover, the nature of the work that must be done in the employer’s property and the fact that the domestic worker has to live there too, leads to extended working hours and puts the worker in a very vulnerable situation. It is even worse when incidents happen in large secured houses or private apartments which offer no opportunities for the workers to interact with others. Reports of domestic workers being treated like slaves and suffering physical and sexual abuse sometimes conclude with them suffering permanent injuries, depression and even death.

Newspaper reports of a series of incidents involving Indonesian migrant domestic workers in the Middle East and Asia Pacific give a shocking insight into the severity of some of the abuse:

·         In 2004, Nirmala Bonat, working in Malaysia, suffered burns to her chest and back from a hot iron and was scalded after boiling water was poured over her body;

·         In 2005, Nur Miyati, working in Saudi Arabia, had to undergo the amputation of a body part due to infection caused by physical abuse;

·         In 2007, Ceryati, working in Malaysia, was forced to escape through a window of the 15th floor apartment of her employer because she could no longer tolerate the daily physical abuse she was subjected to. Almost her whole body was injured, in particular her forehead was swollen, and her neck and hands badly injured;

·         In 2009, Siti Hajar, working in Malaysia, endured abuse  in the form of beatings and by having boiling water poured on her. She had been with her employer for 34 months but was unable to seek help from others until her escape from the house;

·         Wasiah binti Toha worked in Abu Dhabi in 2009 but received no salary for 8 months. She decided to return home with neither money nor help from the recruiting agency due to the beatings she had endured from the beginning of her employment;

·         Sumiati had to be hospitalised in Saudi Arabia in November 2010 after her employer cut her top lip because she complained about her workload;

·         Erwiana worked in Hong Kong for 8 months in 2013. She had been made to work for 21 hours per day, was kept hungry, and got beaten with a wooden hanger or anything else within the reach of her employer, who eventually fired her and forced her to return home with injuries to her face, hands and legs.

The above list only highlights those cases exposed by the national and international press. These are just the tip of the iceberg. Many more incidences go hidden or unrecorded.

Many domestic workers suffer verbal and physical abuse combined with poor working conditions. More needs to be done to protect them. Many labour exporting countries have signed agreements with receiving countries to guarantee respect for the rights of the migrant workers, but the implementation details must be worked out.

Domestic workers from Indonesia seem to be particularly vulnerable. The high incidence of abuse has led the Indonesian government to declare a moratorium and there is a plan to stop sending domestic workers by 2017. As part of this plan, the government is going create more job opportunities and to educate and train migrant workers to meet the skills requirements of the jobs, as well as to give them knowledge of law and human rights.

Will this be enough? The answer is of course not. First, there should be a bilateral agreement between the sending and receiving countries to guarantee the rights and protection of migrant workers. Second, there should be a practical framework that adopts a rights-based approach to labour migration, emphasising non-discrimination, gender equality, and equality of opportunity for migrant workers, regardless of their immigration status. Third, not only should the workers receive training to help them adapt to the employer’s culture but the employers also need a basic understanding of the culture of their workers to be able to create a common understanding.

Protection of migrant workers must be comprehensive, beginning in their home country prior to departure, continuing throughout the duration of their work in the destination country, and covering them until they return home. Governments of sending countries need to be pro-active, making regular inspections of workplaces and working conditions to ensure the welfare of their migrant workers. All migrants should be given access to their countries representatives, in particular the labour attaches. The discussion above, however, does not take into account migrants in irregular situations, of whom there is a significant number and on whom the adverse impact is even more severe. For them, a more holistic approach is needed, covering the whole migration system, push and pull factors, and the immigration system. Protection of all migrants must be ensured through formal, transparent, and managed migration.

Endang Sugiyarto is a doctoral candidate in Migration Studies at the University of Sussex, funded by the Migrating out of Poverty Research Programme Consortium.

Indonesian migrant women: Present 'here' and 'there' via ICTs

By Lucia Zerna


Photograph reproduced by kind permission of Xyza Cruz Bacani 

In the image above, the boy on the right has his faced pressed against the glass. While we see his face clearly, the face of the photographer is hidden by the camera. Who is she?

Xyza Cruz Bacani is a Filipina domestic worker in Hong Kong whose passion for photography inspired her to buy a digital single reflex (DSLR) camera and photograph everyday life in the city. Since posting her black and white images online on Facebook, Bacani has gained international recognition. She currently has more than 7,000 likes on her page. Furthermore, she has recently secured a 2015 fellowship on the Magnum Foundation’s prestigious Human Rights programme, under which she will receive a scholarship that will strengthen her skills in visually documenting human rights. Bacani’s success exemplifies the ways in which migrant domestic workers utilize technology in order to pursue aspirations and connect with the outside world. While the majority of foreign domestic workers (FDWs) in Southeast Asia do not achieve such visibility, many are just as active in using various types of Information and Communications Technologies (ICTs), such as cellphones.

From the results of the recently completed Migrating out of Poverty study on the ICT use of domestic workers in Singapore, it is apparent that use of such technologies form an integral aspect of the workers’ everyday lives. Handheld computing devices, particularly smartphones, are used by FDWs to establish a presence of both ‘here’ and ‘there’ through phone calls and short message services (SMS) to family members back home. The research found that eighty per cent of respondents in the study relied on SMS and regular phone calls to make contact with their family and friends in Indonesia.

Despite having to care for another woman’s children, FDWs also act as transnational mothers, keeping up with their own children’s wellbeing and education via ICTs. Furthermore, having a sustained line of communication is vital for preserving their mental health in environments that can be exploitive and isolating. As Rosita notes, “if I miss them I can SMS [or] Facebook. I feel happy and in high spirits.”

Additionally, the study shows that through ICTs Indonesian migrant women are able to access information on the global web. For example, Hera, a domestic worker living in Singapore, says: “[I] know more about life here… [About] Indonesian maids or the problems they have. They always upload stuff on Facebook.”

The use of ICTs is one lens through which we can see how power relations are shaped and renegotiated between the employer and domestic worker. As the study found, while ICTs help facilitate vital modes of communication for domestic workers, such devices are not readily accessible to all. Directly related to access are issues of trust, usage restrictions, and surveillance. Many domestic workers only receive a handheld device from their employer after a few years of service. Even then, FDWs are very aware of when and where they use their phones.

Yani, a 42 year-old divorcee, explains: “I know the limitation[s], I know when is the working hours and when is the time to rest. When I am eating or resting, I will call.”

Employers also monitor and curtail FDWs’ access to communication devices. Within the household they hold the password to the Wi-Fi network and may not share it with their FDW. Additionally, FDWs who do not have a phone are dependent on their employer’s devices to contact family back home. In such instances the FDW might limit herself to calling family on specific days and talking for a certain length of time.

It is clear from the research that access to and use of ICTs influence the daily routines of FDWs in Singapore in multifaceted ways. ICTs facilitate new transnational spaces where FDWs can maintain relationships with family back home. Smartphones and similar devices have become vital resources that sustain personal relationships and, in the case of Xyza Cruz Bacani, have been used as platforms for creativity and public recognition. ICTs have provided a site for her and other domestic workers to shape new trajectories and go beyond a singularizing identity of FDW. 

Lucia Zerner is currently an undergraduate spending her spring semester studying abroad in Singapore. She is particularly interested in topics related to labour migration and has most recently conducted an independent study on returned Tamil migrant workers to Madurai, India. 

Indonesia's “Special Treatment” of their International Migrants: Between Lip Service and Reality

By: Endang Sugiyarto

 
 

Indonesia recently experienced a new breeze promising to bring a wind of change when the new president took drastic action to protect the welfare of Indonesian international migrants (who are known as Tenaga Kerja Indonesia or TKI meaning Indonesian overseas worker) by asking the relevant government apparatus to “really treat them as heroes” (as indicated in the government official documents)[1] but also to “remove some of the special treatments” or privileges associated with or given to them. The apparent contradiction between these two requests lies at the heart of the issue. 

 

Due to the lack of job opportunities in the domestic economy, millions of Indonesians are currently working abroad, mostly as low-skilled workers but with incomes at least five times higher than those of their counterparts working in the same job domestically. According to official figures from the National Authority for the Placement and Protection of Indonesian Overseas Workers (BNP2TKI), on average 563,262 Indonesian migrants worked abroad each year during the period 2007 to October 2014. This number is far below that of the unrecorded migrants who leave the country using various means. The majority of the TKI work in Southeast and East Asia and the Middle East, and the top five destinations from January to October 2014 are Malaysia (30% of total), Taiwan (19%), Saudi Arabia (11%), Hong Kong (8%) and Singapore (7%). They are mainly employed as  domestic workers (33%), followed by caretakers (12%), plantation workers (11%), factory workers (11%), general workers (5%), seamen (5%) and others (24%). 

 

The TKI directly contribute to the domestic economy by reducing unemployment and providing foreign exchange income via remittances, which could only otherwise be obtained through exports. Thus, this labour export policy is a “win-win” for the government, for it doesn’t need to provide jobs for those who leave while the economy reaps the benefit of their remittance inflows. Thus, the government has decided to treat them as foreign exchange heroes who must be respected accordingly. This is reflected, for instance, in provisions made at the airport. The TKI are given a special terminal, a special immigration lane, a special lounge, special trolleys, a special transfer bus or transportation, and other special things (the pictures below illustrate some of these provisions). The list of special provisions is in fact more extensive than outlined here, as some local governments add supplementary benefits such as temporary accommodation. In some cases, additional special treatments are given to those joining the G(overnment) to G(overnment) programs operated in conjunction with  Japan, Korea and Taiwan for example. These G to G programmes provide benefits in the form of special seminars, financial management and exchange rates for the salaries of the TKI involved.

 

So what is the problem then?

 

The problem is the gap between the policy and the reality of implementation on the ground. In a nutshell, these special treatments provided by the government have been used by corrupt government bureaucrats and their accomplices, often located in the private sector, to extort money. They set up a range of tariffs, exchange rates, and mark ups for their own benefit. The findings of a series of undercover and surprise inspections by the anti-corruption committee that were also exposed by the media have revealed the bad practices. Moreover, during the video conference between the President and Indonesian workers in: Brunei Darussalam, Egypt, Hong Kong, Malaysia, Saudi Arabia, Singapore, South Korea and Taiwan, which took place on 30 November 2014, the exposure of further corrupt practices led to the President taking action to remove some of the special treatments afforded to the TKI. The crackdown on these extortionate practices is welcome, and include the thwarting of a syndicate allegedly engaged in human trafficking of Indonesian migrant workers through Malaysia to destinations in Middle Eastern countries. But more work is needed to address this issue since  what has been exposed so far is just the tip of the iceberg! The new government needs to systematically solve the problems by better facilitating migration and protecting migrants’ welfare, throughout their migration cycle from the stages prior to their departure up to their return home. 

 

To start with, the deployment system must be improved, including better preparation of migrant workers. In connection with this, serious concerns must be addressed in relation to recruitment agencies. Their role has become very dominant (partly due to the lack of appropriate government intervention) which has resulted in migration becoming very commercial. Many agencies now also act as employers, creating a situation in which the migrant worker has become very vulnerable to abuse and exploitation in different forms. The widespread practice of “fly now and pay later” which renders migrants indebted to the agencies until they repay the cost of their flights, and of agencies having full control over all the arrangements: from the migrants’ passports to their contracts and deployment etc., should be seen as worrying.

 

Last summer I met a new migrant on her way to Malaysia where the recruitment agency had organised her trip, obtained her passport and visa, provided domestic and international transportation, and made all the other arrangements, while she had made practically none of the preparations herself. She was just told to go to the airport, board the aircraft, and somebody would pick her up at the destination airport. She had no information at all about the Indonesian Embassy in Malaysia and less than Rp2000 (less than 20 US cents or around 10 GB pence) in her pocket because the agent also told her that she would not need any Indonesian money. What if just one step in this elaborate process went wrong? How would the aspiring migrant worker cope? The outcome of her desperate action is anybody’s guess! 

 

Even more concern will be revealed if we scrutinize the job contract and other details, and ask basic questions such as: what kind of job will she be doing? What are the terms? How much will her salary be? How many months will it take her to repay all the costs associated with her departure that have been prepaid by the agency? And so on…

 

The potential problems and complexities stemming from this kind of arrangement are predictable. To illustrate, the official data shows that 181,193 migrants arrived back in Indonesia through 14 different airports from January to October 2014. Many of them returned before their contracts were completed due to various problems, such as incomplete documents, work-related ill health, an inability to work or communicate properly, and other reasons. Who are to be blamed for these outcomes? I hope that the new government is not going to blame the migrant workers for they are more the victims than the culprits! Their only mistake is to try to escape from poverty by entering into the wilderness of the international labour market. And they only took that route because the domestic market did not provide them with any other opportunities….

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[1] This kind of treatment is not unique to Indonesia as many other developing countries adopt similar policies.

Fig 1: Examples of airport special facilities for the TKI - Indonesia's foreign exchange heroes

 Endang Sugiyarto is a doctoral candidate in Migration Studies at the University of Sussex, funded by the Migrating out of Poverty Research Programme Consortium

Dirty jobs but a brighter future? Migrant domestic workers and the discourse on slavery and forced labour

by Priya Deshingkar

Domestic workers  are often described as “modern-day slaves” because of their working conditions which bear many of the hallmarks of forced labour and also because of their intersecting disadvantages of race, gender and poverty.   But listening to the stories of migrants working as domestic workers reveals that the choices they have made, to work as domestic workers are precisely to escape degrading situations and contexts. The realities of the lives of many poor rural women are more dirty, dangerous and demeaning than domestic work, which offers women the chance to earn and be independent. 

After two years of planning with her husband how the household would be managed without her, 34-year-old Arini (name changed) has finally managed make the trip from her remote village in West Java all the way to Singapore to work as a domestic worker or maid.  There are many like her from Indonesia working as domestic workers in other countries including Saudi Arabia, Singapore, Taiwan and Malaysia.  The numbers are vast, nearly five million by one estimate, and they seem to be growing.  Like many others, Arini migrated through an agent who found her a job and paid the costs of her migration up front, costs that she must repay by working without any salary for the first eight months of her assignment. 

Across the globe in Ethiopia, the story is somewhat different for Abeba (name changed) who ran away from her village in the drought-prone Amhara region at the age of 15. First she went to the nearest town, worked there as a cleaner until she had saved enough to try her luck in Addis Ababa. Her plan was to save money to migrate to Djibouti or the Middle East where thousands of women and girls have migrated to work as maids. Abeba first got a job in Addis Ababa working for a distant relative but left after they refused to pay her. She found another job through an agent, in a house where she was groped and harassed until she left. In the city she had to live by her wits, continually searching for a place to live and a job that was safe and fair, where she could work and save. The work was hard and payment was poor; sometimes she did not even get paid. She eventually saved enough to pay an agent to migrate to Djibouti.

Both Arini and Abeba are working as domestic workers. ILO research shows that the 53 million domestic workers worldwide are predominantly female and from poor and socially excluded communities.   The working conditions are tough – limits on personal freedom, long working hours and being unable to leave because of debt-bondage. The ILO identifies domestic work as one of the sectors that is most likely to involve forced labour and slavery.  The public discourse on slavery and domestic work imagine domestic workers with almost no agency; their minds are controlled and their bodies are enslaved and the conclusion seems to be that they must be rescued from this awful fate.

But a look at the process from the perspective of migrant girls and women tells another story altogether. Arini wanted to migrate so that her family could enjoy the material comforts that her migrant neighbours have. She wanted her daughter to attend the best school and to make sure that her family did not want for anything. This was a choice she and her husband made together to raise their standard of living. Like many others, she comes from a subsistence farming household where incomes are not enough to provide for the family all year round and where material and educational aspirations have been fuelled and enabled by a history of migration. They hope that migration will enable them to escape the endless hard work and poverty associated with subsistence agriculture.

Abeba’s decision to leave the village, a place and a cultural context that she perceived as dead-end and degrading, was clearly a voluntary act; an example of agency in the face of limited choices.  She ran away from home because her family wanted her to marry at 15. Having been forced to leave school at 12 to work on the family’s failing farm, and with a marriage to a local man arranged for her, she could see how her future would be, and she didn’t like what she saw. To her, life in the city meant freedom, offering her choices of how she lived, dressed, ate and where she worked, despite its many risks. Living in this way was preferable to having her destiny sealed by her parents.

The risks are clearly numerous for such migrants, but for many poor people, migration offers the opportunity to earn more that they would at home and the ability to invest in businesses, land, material security and education. For many women migration also offers them a rare opportunity to earn money of their own, achieve independence and take control over their lives. This is often overlooked in the international debate on migrant domestic workers. The importance of jobs such as domestic work to the social mobility, development and freedom of poor women is hidden under the preoccupation with ideal (and important) employment conditions.

Migration and employment in sectors such as domestic work are sometimes labelled as slavery and forced labour. However, they remain among the most important pathways of social mobility for many poor women and can be considerably less degrading than other alternatives.

Priya Deshingkar is the Research Director of the Migrating out of Poverty Research Programme Consortium.