national labour migration policy for zimbabwe

NATIONAL LABOUR MIGRATION POLICY

FORZIMBABWE

GOVERNMENT OF ZIMBABWE

Development of the National Policy supported by

The opinions expressed in the report are those of the authors and do not necessarily reflect the views of the International Organization for Migration (IOM). The designations employed and the presentation of material throughout the report do not imply expression of any opinion whatsoever on the part of IOM concerning legal status of any country, territory, city or area, or of its authorities, or concerning its frontiers or boundaries.

IOM is committed to the principle that humane and orderly migration benefits migrants and society. As an intergovernmental organization, IOM acts with its partners in the international community to: assist in meeting the operational challenges of migration; advance understanding of migration issues; encourage social and economic development through migration; and uphold the human dignity and well-being of migrants.

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Development of the National Policy supported by

NATIONAL LABOUR MIGRATION POLICY

FORZIMBABWE

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NATIONAL LABOUR MIGRATION POLICY FOR ZIMBABWE

FOREWORD

Labour migration that is propelled by the forces of globalization, changing demographics and persistent conditions of service and regional differentials, among others, has gained prominence to become a defining feature of economic, social and political discourse in a dynamic world. There is growing interest in the relationship between migration and development, “the migration and development nexus” and the need to guarantee the protection of migrants. This recognition culminated in the adoption of the Global Compact for Safe, Orderly and Regular Migration by Member States of the United Nations in 2019 in an attempt to enhance migration governance among Member States.

Migration for employment has been identified as possessing potential development opportunities to both countries of origin and destination. The key benefits of labour migration for countries of origin, if properly managed, include the impact of remittances on poverty reduction, creation of foreign currency reserves and support for balance of payments, knowledge and skills transfer when migrants return home on a temporary or permanent basis, among others.

The impact that labour migration has on development largely depends on the policy framework in which the migration process unfolds. It therefore follows that for a country to effectively deal with the migration related challenges and maximize on benefits that accrue from migration, it needs a clear and coherent migration management policy.

The National Labour Migration Policy for Zimbabwe is designed to improve the governance of labour migration, as well as protection and empowerment of migrant workers. It also seeks to ensure that migration contributes to Zimbabwe’s socioeconomic development. The policy framework signifies the commitment by the Government of Zimbabwe to promote safe, orderly and regular flow of people for socioeconomic development of the nation. This is in line with the national vision of attaining middle-income status by the year 2030.

Let me express my profound gratitude to all stakeholders who have participated in drafting this policy framework, which will no doubt contribute to the strengthening of migration governance in the country.

Paul Mavima (MP)Minister of Public Service, Labour and Social Welfare

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PREFACE

There has been recognition that migrant workers can best contribute to the economies of both destination and origin countries when they have decent working conditions and when their fundamental human and labour rights are protected by the countries from which they come and those in which they work. According to the 2009 International Labour Organization (ILO) publication titled Protecting the Rights of Migrant Workers: A Shared Responsibility, the countries from which these workers come and those in which they work have a shared responsibility to promote and protect their rights in the three basic stages of the migration process (recruitment, pre-departure at destination and upon return). This is what the National Labour Migration Policy (NLMP) of Zimbabwe intends to do.

The NLMP is aligned to the international, continental, subregional and national instruments on labour migration. At the international level, there are several key instruments catering for a comprehensive protection of migrant workers. Firstly, ILO standards and frameworks offer a solid foundation for protection. In addition to the eight fundamental ILO conventions, the following conventions and recommendations speak specifically to labour migration:

(a) C097 – Migration for Employment Convention (Revised), 1949;

(b) R086 – Migration for Employment Recommendation (Revised), 1949;

(c) C118 – Equality of Treatment (Social Security) Convention, 1962;

(d) C143 – Migrant Workers (Supplementary Provisions) Convention, 1975;

(e) R151 – Migrant Workers Recommendation, 1975; and

(f) C157 – Maintenance of Social Security Rights Convention, 1982.

These instruments should be read together with the following frameworks:

(a) ILO Multilateral Framework on Labour Migration (2006), which states the principles and guidelines for developing rights-based labour migration policies;

(b) Fair Migration Agenda (Labour Migration) (2014); and

(c) ILO General Principles and Operational Guidelines for Fair Recruitment (2016).

Complementary to ILO instruments are the International Convention on the Protection of the Rights of All Migrant Workers and Members of their Families (1990) and General Recommendation No. 26 on women migrant workers of the Convention on the Elimination of All Forms of Discrimination Against Women.

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The post-2015 Sustainable Development Goals have also been considered in shaping the NLMP, as they integrate goals on labour migration.

(a) Goal 8, Target 8.8 aims for the protection of labour rights and promotion of safe and secure working environments of all workers, including migrant workers, particularly women migrants, and those in precarious employment.

(b) Goal 10, Target 10.7 addresses facilitation of orderly, safe, regular and responsible migration and mobility of people, including through implementation of planned and well-managed migration policies.

(c) Goal 5, Target 5.2 seeks to eliminate all forms of violence against all women and girls in the public and private spheres, including trafficking and sexual and other types of exploitation.

IOM has also undertaken several initiatives at both international and national levels. For example, IOM has developed training materials and handbooks and also supports social dialogue on migration including labour migration. IOM has also supported the Migration Dialogue for Southern Africa Ministerial Conferences under the following themes:

(a) “Promoting health and development: Migration health in Southern Africa” (2009);

(b) “Managing migration through regional cooperation” (2010);

(c) “Enhancing labour migration and migration management in the Southern African Development Community (SADC) region” (2013);

(d) “Taking stock of efforts to address mixed and irregular migration in the SADC region” (2014); and

(e) “Addressing mixed and irregular migration in the SADC region” (2015).

At the regional level, labour migration is guided by several frameworks adopted over the past decade. The Assembly of the African Union in Banjul, the Gambia (2006) adopted the Migration Policy Framework for Africa. This policy framework identified nine key thematic migration issues with sub-themes and makes policy recommendations for consideration by African Union Member States and regional economic communities (RECs). One of the thematic areas is labour migration, and it urges for the formulation of national labour migration policies, structures and legislation that incorporate appropriate labour standards. The African Youth Charter of 2006 (Article 21) recognizes the right of young people to live anywhere in the world and advocates for the promotion and protection of the rights of the young people living in the diaspora, engagement of young people in development activities in their country of origin, as well as provision of assistance for the youth in the diaspora to return and fully reintegrate into the social and economic life in Africa.

The African Union Social Policy Framework of 2008 also recommends regional integration and collaboration of social security schemes to increase the positive outcomes of labour circulation.

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The 2009 Ouagadougou Road Map for the Implementation of the Global Jobs Pact in Africa adopted migration policies as one of the eight key elements for African recovery. This was followed by the African Union Minimum Integration Programme of 2011, which adopted migration as one of its priorities. The African Union Action Plan for Boosting Intra-African Trade (2012) then recognized the key role of free movement of people and labour migration regulation. Promoting labour migration is one of the strategies in the African Union Commission’s (AUC) Strategic Plan 2014–2017. The Ninth Ordinary Session of the African Union Labour and Social Affairs Commission (April 2013) that adopted the Youth and Women Employment Pact included promotion of regional and subregional labour mobility. The pact called for an African Union and RECs labour migration plan. In the Ouagadougou +10 Declaration and Plan of Action – endorsed by the Special Session of the African Union Labour and Social Affairs Commission in April 2014 – labour migration for regional integration is a priority.

AUC, ILO, IOM and the United Nations Economic Commission for Africa, drawing on priorities identified by the eight African RECs, have developed a new Joint Labour Migration Programme (JLMP), which was endorsed by the Twenty-sixth Ordinary Session of the African Union Assembly of Heads of States held in Addis Ababa (January 2015).

Anchored on a human rights-based approach, the JLMP intends to facilitate the accelerated implementation of the labour migration provisions of the Migration Policy Framework for Africa (2006). The JLMP focuses on two key areas: (a) strengthening the governance of labour migration; and (b) operationalizing the protection of migrant workers. It proposes to do so by developing a series of components dealing with issues, such as the following:

(a) Ratification and harmonization of international labour standards;

(b) Development of national labour migration policies;

(c) Strengthening of labour administrations;

(d) Wider implementation of free circulation regimes;

(e) Strengthening tripartite social dialogue on labour migration at RECs and national levels;

(f) Resolution of skills shortages and recognition of qualifications; and

(g) Extension of social security rights to migrant workers.

At the Southern African level, several frameworks have also shaped the Zimbabwean NLMP. Through the SADC Protocol on the Facilitation of Movement of Persons, each Member State committed to developing policies aimed at the progressive elimination (a phased-in approach) of obstacles to the free movement of people among Member States.

Article 3(a) of the SADC Protocol on Education and Training states as an agreed objective of Member States “to work towards the relaxation and eventual elimination of immigration formalities in order to facilitate freer movement of students and staff within the region for the specific purposes of study, teaching, research and any other pursuits relating to education and training.”

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Article 20 of the SADC Protocol on Gender and Development, as amended in 2017, provides for the State to take comprehensive measures to protect and prevent trafficking in persons, especially vulnerable women.

The SADC Secretariat, and more specifically, the Employment and Labour Sector, has developed a regional strategy on labour migration. Milestones in this area have been as follows:

(a) 2013: Adoption of the Decent Work Programme SADC–ILO 2013–2017 with specific emphasis on labour migration in its section 1.1.9 on the protection of migrant workers;

(b) Commissioning of research on labour migration in the region (Migrating for Work Research Consortium project);

(c) 2014: Drafting and adoption of a SADC Labour Migration Policy Framework or LMPF (commissioning of a study on bilateral labour agreements and the advancement of labour mobility across the region; commissioning of a draft labour migration policy);

(d) Adoption of SADC Employment and Labour Protocol (Article 19 – Protection of migrant workers);

(e) 2016: Revision and adoption of the SADC Labour Migration Action Plan (2016–2019); and

(f) 2016: Drafting and adoption of the Portability for Social Security Benefits Policy Framework.

The 2014 SADC Labour Migration Policy Framework requests Member States to develop national labour migration policies by 2019. The framework has three priority areas, namely:

(a) Law, policy harmonization and data (Policy harmonization, national sovereignty, protection of migrant workers’ rights; data);

(b) Workers and sectors (Semi- and highly skilled; low-skilled; self-employed; sector-specific policies); and

(c) Protection and regulation (organization, representation and mobilization of migrant workers; social protection and remittances; regulation of intermediaries).

At the national level, the Government of Zimbabwe has made several strides in addressing migration challenges. The following are some of the major initiatives undertaken by the Government:

(a) Adoption of the National Diaspora Policy (2015);

(b) Enactment of the Trafficking in Persons Act (Chapter 9:25) and set-up of the Anti-Trafficking Inter-Ministerial Committee in 2016;

(c) Zimbabwe National Employment Policy Framework (2010);

(d) Zimbabwe Agenda for Sustainable Socio-Economic Transformation: set outs developing measures to encourage remittances from the diaspora as a key strategy for economic growth and development;

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(e) Zimbabwe United Nations Development Assistance Framework (ZUNDAF) (2016–2020): Outcome 1 under Poverty Reduction and Value Addition: Key institutions formulate and implement socioeconomic policies, strategies and programmes for improved livelihoods and reduced poverty of communities, whose target, among others, is to finalize the NLMP;

(f) Zimbabwe’s Decent Work Country Programme 2012–2018: Identified migration in terms of diaspora outreach, migration management, access to social benefits, finalization and adoption of the NLMP and review of the bilateral agreement on labour and employment between Zimbabwe and South Africa; and

(g) Government of Zimbabwe – IOM Migration Management Strategy (2014–2018), which covers broad migration management issues relating to migration and development, counter-trafficking, community-based planning, integrated border management, internal migration, mixed migration flows, migration health and migration data among others; and

(h) Draft Human Capital Export Policy.

Furthermore, at the national level, the Government of Zimbabwe and IOM established the Beitbridge and Plumtree Reception and Support Centres in 2006 and 2008 respectively.

It is in light of the above international, continental and subregional instruments and initiatives, together with national initiatives, that this NLMP was drafted. The NLMP also takes cue from international examples of good practice as seen in the national policies of Cambodia, Nigeria, Sri Lanka and the United Republic of Tanzania. Most importantly, this policy acts as a pioneering initiative in the SADC region. The aim of the policy is to promote good governance in labour migration, effective regulation of labour migration, empower and protect labour migrants against abuses, malpractice and exploitation that abound in most destination countries, promote the welfare of labour migrants’ families and ultimately maximize the benefits of labour migration for economic development.

This policy was developed through the Steering Committee on Labour Migration, which comprises the relevant government ministries, employers’ and workers’ organizations.

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CONTENTS

Foreword ............................................................................................................................................................iiiPreface .................................................................................................................................................................ivAcknowledgements ........................................................................................................................................ xAcronyms ........................................................................................................................................................... xiExecutive summary ...................................................................................................................................... xii

1. Introduction ............................................................................................................................................. 1 1.1. Developing the National Labour Migration Policy ......................................................... 3

2. Key issues for the labour migration policy: a situational analysis.......................... 5 2.1. Improvement of institutional, legislative and regulatory frameworks for better migration governance and protection of workers .................................... 5 2.2. Tripartite labour migration dialogue ..................................................................................... 5 2.3. A coordinated approach to labour migration information system ......................... 5 2.4. Enhancing social security for migrant workers ................................................................ 6 2.5. Bilateral labour agreements ...................................................................................................... 6 2.6. Integration of the diaspora population into national development policies ....... 7 2.7. Accessibility of travelling documents .................................................................................... 7 2.8. Gender-sensitive approach to labour migration ............................................................. 7 2.9. Mainstream labour migration policy in national and sectoral development plans ....................................................................................................................... 8 2.10. Equality of treatment (common standards) of foreign workers ............................... 8

3. The National Labour Migration Policy statement ........................................................... 9 3.1. Vision .................................................................................................................................................. 9 3.2. Mission ............................................................................................................................................... 9 3.3. Strategic objectives ...................................................................................................................... 9

4. The National Labour Migration Policy ..................................................................................10

5. Monitoring and evaluation of the Labour Migration Policy .....................................17

6. Resource mobilization .....................................................................................................................17

7. National labour migration policy matrix: strategic areas, policy options, action plan, expected outcomes, time frame, key stakeholders and lead ministries .................................................................................................................................................18

8. Implementation mechanism for the Zimbabwe Labour Migration Policy ......28

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ACKNOWLEDGEMENTS

Given the cross-cutting nature of labour migration issues, the formulation of the National Labour Migration Policy (NLMP) is a result of contributions from various stakeholders. As such, the Ministry of Public Service, Labour and Social Welfare, on behalf of the Government of Zimbabwe, extends its sincere gratitude and thanks to the International Labour Organization (ILO) and IOM for the financial and technical support availed on the formulation of the NLMP. The Ministry is confident that such level of collaboration will be extended during the implementation of the policy.

Appreciation is also extended to all the government line ministries and stakeholders under the auspices of the Inter-Ministerial Committee on Migration in collectively working towards the development of the policy.

Particular thanks goes to the Labour and Economic Development Research Institute of Zimbabwe (LEDRIZ) for their technical input during the several drafting phases of the policy development.

The Ministry wishes to acknowledge the invaluable input offered by the employers and workers organizations in the various stages of developing the policy.

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ACRONYMS

AUC African Union CommissionCEDAW Convention on the Elimination of All Forms of Discrimination

Against WomenCSO civil society organizationDWCP Decent Work Country Programme ILO International Labour OrganizationILS International Labour StandardsJLMP Joint Labour Migration Programme MiWORC Migration for Work Research ConsortiumLMWF Labour Migrants Welfare FundLFCLS Labour Force and Child Labour Survey MoFAIT Ministry of Foreign Affairs and International Trade MoFED Ministry of Finance and Economic Development MoHACH Ministry of Home Affairs and Cultural Heritage MoHTESITD Ministry of Higher and Tertiary Education, Science, Innovation

and Technology DevelopmentMoJLPA Ministry of Justice, Legal and Parliamentary AffairsMoPSLSW Ministry of Public Service, Labour and Social WelfareMoU memorandum of understandingMoWACSMED Ministry of Women’s Affairs, Community, Small and Medium

Enterprises Development MoYASR Ministry of Youth, Arts, Sports and Recreation MRC Migration Resource CentreNLMP National Labour Migration PolicyREC regional economic communitySADC Southern African Development CommunityTNF tripartite negotiating forum UDHR Universal Declaration on Human RightsZIMSTAT Zimbabwe Statistical AgencyZUNDAF Zimbabwe United Nations Development Assistance

Framework

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EXECUTIVE SUMMARY

The legal definition according to the United Nations (1990) is that a “migrant worker is a person who is to be engaged, is engaged or has been engaged in a remunerated activity in a State of which he or she is not a national.” The International Labour Organization (ILO) also defines a migrant worker as a person who migrated from one country to another (or who has migrated from one country to another) with a view of being employed otherwise than his/her own account, and includes any person regularly admitted as a migrant for employment (ILO Migrant Workers (Supplementary Provisions) Convention 1975 (No. 143), Article 11). The two definitions have been used to guide this National Labour Migration Policy (NLMP).

Labour migration in Zimbabwe has been characterized by many challenges including the following: (a) brain drain; (b) irregular migration; (c) lack of a mechanism for social protection of migrant workers, especially female migrant workers; and (d) lack of up-to-date engendered statistics on labour migration. This has adversely affected sound policy decisions and resulted in ineffective mechanisms in harnessing remittances for investment and limited reintegration mechanisms for returned migrant workers. Furthermore, due to their irregular status, most Zimbabwean migrant workers, largely the youth, fill “three D” jobs (dirty, dangerous and degrading) where decent work deficits abound. These decent work deficits are characterized by the absence of employment contracts and social protection, exploitative wages and long working hours, lack of unionization (cannot join labour unions), and thus often lack representation and support from both the host and sending country. It is against this background that the NLMP has been developed to mitigate the identified challenges.

Since Zimbabwe is both a receiving and sending country, the policy is essential for the governance of labour migration, protection and empowerment of migrant workers and to ensure that migration contributes to development and growth. The policy document sets out by stating the vision, mission and objectives. It further spells out the strategic areas of focus, policy options and action plans under four sections namely: (a) governance of labour migration; (b) protection and empowerment of migrant workers; (c) harnessing labour migration for development; and (d) development of comprehensive data on labour migration.

In terms of good governance of labour migration, Zimbabwe requires participation of all stakeholders, accountability and transparency in the regulation of labour migration, as well as harmonized institutional, legal and regulatory frameworks. Management of labour migration is not the sole responsibility of the Government. It requires other key stakeholders, such as employers’ and workers’ organizations, migrant associations and civil society organizations (CSOs), especially women-focused and youth-focused CSOs. Good governance of labour migration also includes ratification and implementation of international instruments, inter-State collaboration or agreements and involvement in multilateral processes.

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The NLMP also addresses empowerment and protection of migrant workers against abuses, malpractice and exploitation that abound in most destination countries especially in the face of globalization and the search for cheaper labour. This is done through the adoption of a rights-based approach to prevention and protection against abusive recruitment practices, and enforcement of national law and regulations in accordance with international labour standards for both inward and outward labour migration. A rights-based approach is cognizant of the need to prevent and protect women from abusive recruitment practice that may be targeted specifically at women and girls. A rights-based approach also includes provision of social protection for migrant workers in the host countries.

Additionally, the NLMP can be used to foster the link between migration and development. Remittances from migrant labour have an impact on development, growth and poverty reduction. Therefore, remittances can have a double impact, both at the household and national levels. Collaboration with the diaspora networks and organizations can also contribute towards national development, for example, through short-term return programmes. The policy interventions regarding labour migration for development include the following:

(a) Mainstreaming labour migration issues in national policies (fiscal and monetary), national development plans, National Employment Policy Framework and the Zimbabwe Decent Work Country Programme (DWCP) among others;

(b) Promoting social protection for labour migrants;

(c) Promoting productive use of migrant workers’ remittances; and

(d) Providing return and reintegration services especially in migrant-sending areas.

It is also critical that labour migration management be undertaken in an environment where official information and gender disaggregated statistics on labour migration is timeously and publicly available. This will assist in developing sound policy decisions. The policy challenge is setting up a comprehensive engendered information and data system, the labour migration information system, which will provide information on labour migration trends for policymaking in relation with other available labour market indicators. Such a system will identify labour and skills demand in other countries while at the same time ensuring that the local demands are met.

In a nutshell, the NLMP will harness the development gains from labour migration through the protection and empowerment of migrant workers, both by the country of origin and the destination countries. In fulfilling this, the NLMP is closely aligned to national development plans and frameworks, such as DWCP, Zimbabwe United Nations Development Assistance Framework and the Transitional Stabilization Policy (October 2018–December 2020).

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1. INTRODUCTION

Zimbabwe has a long history of labour migration and has been a sender, transit and receiver of migrants. Inward migration has mostly been from neighbouring countries, such as Malawi, Mozambique and South Africa, with the causes of migration being both economic and political. Outward migration from Zimbabwe can be categorized into five phases:

• 1960–1979: Migration of political exiles to neighbouring countries and abroad and labour migration to South Africa;

• 1972–1989: Flight of white Zimbabweans during the war of liberation and after independence;

• 1982–1987: Internal migration;

• 1990–1998: Migration of skilled professionals by the International Monetary Fund/World Bank economic structural adjustment programme;

• 1999–2008: Mass exodus following the economic recession; and

• 2009 to date (2015): Moderate outward migration.

While Zimbabwe has a long history of labour migration, the turn of the millennium saw a phenomenal increase in outward migration. The country has benefited immensely from remittances over the years. For instance, between 2009 and June 2015, diaspora and international remittances have scored second after exports in terms of foreign currency earnings, accounting for 27 per cent between January and June 2015. However, although the country benefited from remittances, the negative implications were more in terms of brain drain.

It is now widely accepted that the emigration of skilled personnel from the country is significant enough to constitute a “brain drain”. The Zimbabwe National Human Resources Survey conducted in 2006 reported the extent of the brain drain in terms of the vacancy rates (the mean ratio of vacant posts to established posts) across all sectors of the economy. According to a study by the Scientific and Industrial Research and Development Centre in 2003, in terms of profession, 26 per cent of Zimbabweans abroad were teachers, 25 per cent doctors, nurses and pharmacists, 23 per cent engineers and other scientists, 17 per cent accountants, 5 per cent farmers, 2 per cent bankers and 1 per cent each were clergy and others. In fact, no sector has been spared by emigration. According to the Government of Zimbabwe’s Ministry of Health and Child Welfare, as of September 2004, 56 per cent, 32 per cent and 92 per cent of the established posts for doctors, nurses and pharmacists, respectively, were vacant.1 Other sectoral surveys that reflected the extent of brain drain included the following: (a) Zimbabwe Migration Paper no. 1 titled “The impact of the brain drain on health service delivery in Zimbabwe: A response analysis” of 2010; and (b) “The causes and impact of the brain drain in institutions of higher learning in Zimbabwe” of 2012.

1 IOM, Migration in Zimbabwe: A Country Profile 2009 (IOM and ZIMSTAT, Harare, 2010), available at https://publications.iom.int/books/migration-zimbabwe-country-profile-2009.

https://publications.iom.int/books/migration-zimbabwe-country-profile-2009

https://publications.iom.int/books/migration-zimbabwe-country-profile-2009

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1. INTRODUCTION

The 2014 Labour Force and Child Labour Survey (LFCLS) integrated the Southern African Development Community (SADC) Migration Module and produced the Characteristics of Labour Migration Report. The report estimated the number of migrant population currently staying in Zimbabwe at around 207,000, of whom 78,000 (37.7%) were labour migrants with the 65 years and above age group contributing the largest percentage of labour migrants at 33 per cent. About 42 per cent of the labour migrants were males. South Africa accounted for the majority of immigrants at 45 per cent. The same report highlighted that about 72 per cent of the outgoing migrants were in the broad age group 20 to 34 years (the youthful ages), and 73 per cent of the migrants had completed some secondary education as their highest level at the time of departure. The 2014 LFCLS showed that since June 2009, 40 per cent of the migrants who left the country were women. The majority cited lack of employment opportunities as the major cause of leaving the country, and most of the migrants were working as skilled agricultural, forestry and fishery workers before departure. South Africa was the major destination of the migrants followed by Botswana.

However, while the country has been suffering from the daunting challenges emanating from brain drain, on the other hand, the majority of Zimbabweans have benefited much from remittances. It is widely accepted that in Zimbabwe, remittances have acted as a form of social protection for many families. According to the Zimbabwe Statistical Agency (ZIMSTAT) 2014 Characteristics of Labour Migration Report, a greater proportion of females remitted goods and cash (27.5%) compared to male migrants (20.9%). This underscores the gender dimension of remittances that female migrants tend to remit more than their male counterparts. Several initiatives have been undertaken in the past years by both the government and international organizations, such as IOM and International Labour Organization (ILO) in order to harness the positive benefits from labour migration. Some of these initiatives2 include the following:

(a) Sequenced Short-term Return Programme;3

(b) Homelink Programme;

(c) Beitbridge and Plumtree Reception and Support Centres established in 2006 and 2008 respectively by the Government of Zimbabwe in collaboration with IOM and ILO;

(d) Voluntary Assisted Return and Reintegration Programme;

(e) Zimbabwe and South Africa Memorandum of Understanding (MoU) in the field of employment and labour signed (2004) and renewed periodically with the latest running from 2017 to 2020; the second one lapsed in 2014;

(f) Migration and Development Unit in the Ministry of Economic Planning;

(g) Human resources website in the Ministry of Higher and Tertiary Education Science, Innovation and Technology Development (MoHTESITD);

(h) Zimbabwean Documentation Project following a special dispensation granted to Zimbabwean nationals in irregular situation in South Africa as from 2009;

2 More information is found in the situational analysis document on “Labour Migration Regime in Zimbabwe”, December 2010.3 It facilitated the temporary return of qualified professionals abroad to transfer knowledge and skills to local health and educational

institutions.

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(i) Limpopo intervention strategies targeting farm workers; a database and a framework for recruitment with guidelines for contracts and processes have been produced and pilot tested, and bilateral discussions to renew the MoU have been initiated; and

(j) Module on labour migration integrated into Zimbabwe’s LFCLS.

One of the greatest challenges in some of these initiatives was that they were undertaken in an ad hoc manner, without the effective participation of all key stakeholders and above all without a policy instrument governing the management of labour migration and ensuring strategic direction for the pursuit of key objectives.

Therefore, it is in this light that the NLMP will provide the necessary framework to harmonize existing frameworks and initiatives by various institutions in order to harness the development gains from labour migration and contribute towards national development. The term “development” in this policy is used in a broader sense to refer to economic, social, cultural and human development. It is centred on ensuring that labour migrants rights, from both inward and outward migration especially the rights of women labour migrants who are more vulnerable to gender-based violence, sexual abuse and human trafficking are upheld in line with the Decent Work Agenda of ILO during all the three stages of migration processes highlighted above. The development of the NLMP is also timeous in that as Zimbabwe’s economy recovers, the possibilities of the country rebounding to being a receiving country in the future is high, thus, the need to develop this policy anchor.

1.1. DEVELOPING THE NATIONAL LABOUR MIGRATION POLICY

The development of the NLMP included the following stages:

(a) A situational analysis study on labour migration in Zimbabwe (2011).

(b) Presentation of the draft situational analysis study at a stakeholders’ workshop. The stakeholders reviewed the study report and gave their inputs for incorporation into the report (2011).

(c) Validation of the final situational study report by the Steering Committee on Labour Migration (2011).

(d) Drafting of the initial version of the NLMP based on the situational analysis study report and the inputs from the above workshop (2011).

(e) Review of the draft policy by the Steering Committee on Labour Migration (2012).

(f) A stakeholder validation workshop for the draft policy (2012).

(g) Incorporation of comments from the validation workshop (2012).

(h) Presentation of the first draft policy to the Steering Committee on Labour Migration (2013).

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1. INTRODUCTION

(i) Presentation of first draft policy to the Permanent Secretaries of Stakeholder Ministries (2013).

(j) Review of the first draft Policy to the Special Sitting of the Tripartite Negotiating Forum (TNF) (2013).

(k) Finalization of second draft at technical tripartite meeting (2015).

(l) Adoption of draft policy by Permanent Secretaries of Ministries in the Inter-Ministerial Committee on Migration (4 May 2017).

(m) Adoption of the NLMP by Cabinet (5 February 2019).

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2. KEY ISSUES FOR THE LABOUR MIGRATION POLICY: A SITUATIONAL ANALYSIS

2.1. IMPROVEMENT OF INSTITUTIONAL, LEGISLATIVE AND REGULATORY FRAMEWORKS FOR BETTER MIGRATION GOVERNANCE AND PROTECTION OF WORKERS

It has been long evident that coherent policy and administration on migration remains a challenge in Zimbabwe. This is evidenced by the limited legislation and inadequate administrative institutions, few practical measures and often limited coordination among the different branches of government and other stakeholders concerned in labour migration processes.

2.2. TRIPARTITE LABOUR MIGRATION DIALOGUE

Labour migration governance is not the sole responsibility of the government. The issue of labour migration should be brought into the realm of tripartite consultations to ensure win-win outcomes. Involvement of stakeholders should be at all levels, namely policy formulation, implementation and coordination. In this light, the NLMP will be implemented in full consultation with the social partners, including the workers’ organizations and employer associations concerned through a tripartite plus approach. It is globally acknowledged that private sector organizations, trade unions and civil society are powerful social forces that can contribute substantially in addressing many labour market challenges. The NLMP will be tabled regularly for discussion at the TNF.

It is also important that the government facilitates gender-balanced participation of social partners in relevant international forums so that social partners can be in tune with international developments and discourses on labour migration.

2.3. A COORDINATED APPROACH TO LABOUR MIGRATION INFORMATION SYSTEM

A comprehensive and gender-sensitive labour migration information system is a cross-cutting foundation for the formulation, monitoring and evaluation of policies related to labour migration. There is limited data on migrants’ profile, duration of stay, wages and working conditions, remittance patterns and their utilization, returnees and their reintegration and diaspora communities and their engagements. The labour migration

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information system will be coordinated by the Ministry of Public Service, Labour and Social Welfare (MoPSLSW) as it will be closely linked to labour market regulation, conditions of work and other fundamental areas of their competence. The role of the labour migration information system will be to monitor and identify labour and skills demand in other countries, with special attention to emerging skills requirements while at the same time ensuring that local demand of skills are met before exporting labour to avoid brain drain.

2.4. ENHANCING SOCIAL SECURITY FOR MIGRANT WORKERS

Equality of Treatment (Social Security) Convention (C118), Maintenance of Social Security Rights Convention (C157) and Maintenance of Social Security Rights Recommendation, 1983 (R167) provide means to overcome the difficulties faced by migrant workers and their families with regard to social security coverage. Convention 118 also sets forth the equality of treatment principle between national and non-national workers and their families in respect of social security. It is therefore critical that Zimbabwe concludes bilateral and multilateral social security agreements, and more so coordinate means establishing mechanisms through which the social security systems of the different countries can work together to ensure that migrant workers have protection that is as complete and continuous as possible.

2.5. BILATERAL LABOUR AGREEMENTS

International best practices documented by ILO and IOM have strongly indicated the advantageous need for countries of origin and destination to enter into bilateral labour agreements (BLAs) or MoU as a way (instrument) of protecting the welfare of the migrant workers. BLAs should be aligned to the International Labour Standards (ILS), Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) General Recommendation No. 26 on women migrant workers and the ILO Model Agreement in Recommendation 86 (R086, 1949) on migration for employment.

In BLAs, the two countries (sending and receiving) decide on issues, such as sharing the burden of responsibilities and the stages to monitor and manage labour migration. One country that has implemented a BLA in the region has been South Africa with Botswana, Lesotho, Malawi, Mozambique and Eswatini. Although the other BLAs are operational, the agreement with Malawi is outdated. These BLAs have been mostly in the mining and health sectors.

The Government can also build on the already existing positive initiatives in the region; for example, immigration policies in Botswana, Malawi, Mozambique and Zambia allow foreigners with scarce skills to acquire work or business residence permits and access formal employment. In Botswana, for instance, Zimbabweans comprised the largest number of work permit holders as at the end of 2008, totalling close to 7,000. The majority of permit holders (72%) were male, and most were employed, with only 9 per cent self-employed.4 Another positive initiative is the MoU that Zimbabwe signed with South Africa covering agricultural workers. Such agreements should be expanded

4 IOM, 2010.

7


to cover migrant workers in different sectors, such as health, education and domestic and care workers where the value and dignity of migrant women’s labour needs greater protection, among others. These agreements will improve not only the protection of Zimbabwean migrant workers in the region, but will also facilitate development of the country. In the long run, these agreements would require revision and updating so that they remain in line with regional and international best practice.

2.6. INTEGRATION OF THE DIASPORA POPULATION INTO NATIONAL DEVELOPMENT POLICIES

This arrangement helps maintain links between labour migrants and their country of origin. These links can have many positive consequences, such as higher remittances and capital investments, as well as lobbying power for issues of concern to the country of origin. This is also supported by the African Youth Charter article 21(f), which notes that young people in the diaspora should engage themselves in development activities in their country of origin.

2.7. ACCESSIBILITY OF TRAVELLING DOCUMENTS

As a way of improving the regulatory framework for better migration governance, the Government of Zimbabwe’s Migration and Development Agenda Work Plan (2010–2011) highlights the needs for safe migration. This can be established and promoted through the improvement of accessibility of needed travelling documents and the acceding to and domestication of relevant international conventions.

2.8. GENDER-SENSITIVE APPROACH TO LABOUR MIGRATION

Given the rise in feminization of international labour migration, it is important that all policies geared towards migration be gender sensitive. Labour migration affects women and men differently, and the impact of labour migration is not gender neutral. Women are disproportionately affected by a variety of risks due to their increased dual vulnerability (as migrants and women). In the case of trafficking in persons, majority of women are lured by promises of attractive, well-paying jobs offered by agents of criminal networks without realizing the full nature of their future employment or the conditions in which they will work. In fact, most job opportunities for women migrants are in unregulated sectors (agriculture work, domestic and care work, sex industry), and the existence of sex-disaggregated labour markets contribute to the increase of discriminative labour markets in countries of destination. Furthermore, women have less access to information on migration/job opportunities, recruitment channels, and often have less preparation than men to cope with the working and living conditions in the countries of destination5 (ibid.). In fact, ILO states that women migrant workers often face “double discrimination” as women and as migrants. Thus, a holistic, gender-sensitive approach that deals with both the immediate and underlying factors and mainstreams human immunodeficiency virus (HIV) and acquired immunodeficiency syndrome (AIDS) and gender-based violence is critical in dealing with labour migration.

5 International Labour Organization (ILO), Protecting the Rights of Migrant Workers: A Shared Responsibility (International Labour Office, Geneva, 2009).

8


2.9. MAINSTREAM LABOUR MIGRATION POLICY IN NATIONAL AND SECTORAL DEVELOPMENT PLANS

Migration policy needs to be mainstreamed into national and sectoral policies and development plans. For example, mainstreaming labour migration issues in fiscal policies, monetary policies, the National Employment Policy Framework, National Gender Policy, the Zimbabwe United Nations Development Assistance Framework (ZUNDAF) and other medium- to long-term development plans. Already, the Transitional Stabilization Programme (October 2018–December 2020) sets out developing measures to encourage remittances from the diaspora as a key strategy for economic growth and development.

2.10. EQUALITY OF TREATMENT (COMMON STANDARDS) OF FOREIGN WORKERS

The basis of the concept of “human rights for all” articulated in the Universal Declaration of Human Rights (UDHR, 1948)6 is that human rights are valid for all peoples, in all societies, under all conditions of economic, political, ethnic and cultural life. The declaration also states that human rights are universal, indivisible (in the sense that political and civil rights cannot be separated from social and cultural rights) and inalienable. CEDAW also sets the international standards for women rights as human rights.

In this regard, as Zimbabwe advocates for the better treatment of its migrant workers in the different host countries, there is also need for Zimbabwe to treat foreign workers inside the country with dignity and respect. The principle of equality of treatment with regard to access to migrant workers’ social protection will prevail. Zimbabwe will consider ratifying the Migration for Employment Convention (Revised), 1949 (No. 97) and Migrant Workers (Supplementary Provisions) Convention, 1975 (No. 143), which requires States to facilitate international migration for employment by establishing and maintaining a free assistance and information service for migrant workers and taking measures against misleading propaganda relating to emigration and immigration.

6 United Nations, Universal Declaration of Human Rights (1948).

9


3. THE NATIONAL LABOUR MIGRATION POLICY STATEMENT

3.1. VISION

A well-managed, sustainable and inclusive labour migration management system that promotes good governance and effective regulation of labour migration, and protects the rights of labour migrants and their families.

3.2. MISSION

Maximization of benefits of both inward and outward labour migration through safe migration, provision of decent working conditions for labour migrants especially female labour migrants and protection of their fundamental human and labour rights and those of their families.

3.3. STRATEGIC OBJECTIVES

(a) To enhance labour migration governance for strengthened protection and empowerment of Zimbabwean migrant workers in line with international norms on safe migration and decent work for all.

(b) To harness and maximize the benefits of (inward and outward) labour migration for national development, including through remittances and investment promotion and functional labour market information systems.

10

4. THE NATIONAL LABOUR MIGRATION POLICY


In line with the strategic objectives and priority areas, the NLMP is divided into the following four sections:

(a) Governance of labour migration;

(b) Protection and empowerment of migrant workers;

(c) Harnessing labour migration for development; and

(d) Migration data.

Each of the four sections first highlights policy challenges and then describes key policy areas.

Section 1: Governance of labour migration in line with international norms

Governance of labour migration is divided into four areas, namely the international, legislative, institutional and regulatory frameworks. Good governance of labour migration in Zimbabwe that is also gender sensitive requires participation of all stakeholders, accountability and transparency in the regulation of labour migration. Thus, social dialogue becomes critical.

(a) Policy challenges in governance of migration

The policy challenges for migration governance include the following:

• Non-domestication and non-ratification of the ILO conventions on migration and the International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families;

• Limited coordination resulting from fragmentation and compartmentalization of the legal, institutional and regulatory frameworks;

• Limited domestication of the CEDAW General Recommendation No. 26; and

• Limited resources to enforce the existing institutional, legislative and regulatory frameworks.

(b) Key policy areas

• Domesticate and ratify the ILO Conventions No. 97 and 143 and their recommendations (R086 and R151), and the International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families with technical assistance from the ILO in the implementation of the ratified conventions.

11


• Domesticate CEDAW General Recommendation No. 26.

• Develop a stand-alone policy to export human capital in sectors where Zimbabwe has comparative advantage.

• Translate and disseminate the ILO Conventions No. 97 and 143, the International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families and the principles and guidelines provided in the ILO Multilateral Framework on Labour Migration (2006) and direction provided in ILO’s Fair Migration Agenda (2014) and General Principles and Operational Guidelines for Fair Recruitment (2016).

• Participate in the subregional, regional and international fora on labour migration and relevant areas on migration management, such as the SADC tripartite meetings of the employment and labour sector, the African Union Commission tripartite meetings of the Specialized Technical Committee on Social Development, Labour and Employment and the Migration Dialogue for Southern Africa.

• Revisit the legislation and regulatory frameworks covering the mandates of ministries and organizations responsible for the administration of labour migration including recruitment placement and protection and reintegration of migrant workers. This will remedy the gaps in the law in terms of regulations, service provision, accountability and monitoring issues. Thus, a stakeholder approach is required.

• Involve tripartite constituents (business and labour) through the TNF, CSOs and private recruitment agencies in the formulation of the legislation in all the implementation mechanisms of the policy.

• Strengthen and clearly define the roles of all units, agencies and institutions involved in the labour migration processes.

• Strengthen the Subcommittee on Labour Migration to review labour migration processes, explore issues and challenges, follow changes in the labour market and advise on all aspects of the process. The division of responsibilities of “who does what, how and with whom” among ministries is clarified in the matrix appended to the NLMP.

• Strengthen the role of the Foreign Recruitment Committee to make regular inspections of working and living conditions and supervision of compliance to employment contracts of foreign workers in Zimbabwe in line with the foreign recruitment guidelines.

• Foreign Recruitment Committee to develop a programme that allows cascading of skills (skills transfer) from foreigners to Zimbabweans.

• Strengthen the role of consular services by establishing labour attachés, with an inclusive recruitment approach that is sensitive to gender, disability and youth. These attachés should be trained on inclusive rights-based approach to the protection of migrant workers.

• Develop comprehensive guidelines for recruitment in line with ILO’s Private Employment Agencies Convention (C181, 1997) and the General Principles and Operational Guidelines for Fair Recruitment to prevent abuse of the process, violation of workers’ rights and improve regulation and monitoring of private employment agencies.

12


• Develop guidelines for migrant workers’ access to social protection based on existing international standards and frameworks adapted to the local context.

• Develop a programme that enables the private sector to facilitate the establishment of links with prospective foreign employers.

Section 2: Protection and empowerment of migrant workers

Regulating labour migration not only consists of adopting better governance frameworks aligned to international standards but also ensuring the actual protection and empowerment of migrant workers, whether non-nationals working in Zimbabwe or Zimbabwean workers abroad. This is what this section proposes.

(a) Policy challenges in protection and empowerment of migrant workers

The policy challenges include the following:

• Multiple abuses, malpractice and exploitation of Zimbabwean migrant workers, particularly women, in most destination countries especially in the face of globalization and the search for cheaper labour;

• Limited awareness among migrant workers, especially female migrants, of their legal rights and social provisions in the host countries;

• Irregular status, lack of travel documents and work permits among many Zimbabwean workers abroad, as well as foreign nationals employed in Zimbabwe;

• Employment in “three D” (dirty, dangerous and degrading) jobs, which are characterized by the lack of employment contracts, exploitative wages and long working hours, lack of social protection, absence of unionization and lack of representation;

• Weak complaints mechanisms (at origin and destination countries) to bring forward claims against abuse during recruitment, employment and termination of employment; some of the workers who end up being deported have no access to unpaid wages and savings and are unable to retrieve personal belongings from their homesteads; and

• Emergence of challenges in migration, such as social exclusion, xenophobia and covert human trafficking processes that require both the sending and receiving countries to take explicit action.


• Adopt rights-based approach to prevention and protection against abusive recruitment practices and enforce national laws and regulations in accordance with ILS. A rights-based approach also includes provision of social protection for migrant workers in the host countries including foreign workers in Zimbabwe.

13


• Enter into bilateral and multilateral labour agreements and MoUs with other countries particularly the major labour migrant receiving countries, such as Botswana, Namibia, South Africa and the United Kingdom for specific sectors where Zimbabwe has comparative advantage such as nursing and teaching. Due diligence must be undertaken to avoid creation of skills gap in the country at the expense of exporting labour.

• Enter into bilateral and multilateral social security agreements with labour migrant destination countries to allow for portability of social security benefits.

• Establish a Labour Migrants Welfare Fund (LMWF) for migrants and their families. This fund will be voluntary membership-based and government-operated with MoPSLSW taking a lead role. The fund can provide welfare services to its contributing members, as well as insurance and loans for businesses upon return. However, there is a need to develop the capacity of the relevant ministry to effectively deliver services, ensuring accountability and transparency to and representation of migrant workers.

• Disseminate information and raise awareness to the public about labour migration processes in the print and electronic media. Issues for discussions include rights of all migrant workers, pre-departure trainings, discrimination, sexual harassment, smuggling and human trafficking, gender-based violence, xenophobia, HIV and AIDS and advice on referral processes for assistance.

• Develop comprehensive national anti-discrimination legislation and provisions to prohibit and criminalize xenophobic discrimination and perpetrators of xenophobic violence.

• Negotiate with receiving countries governments to put in place legislation that prohibit and criminalize xenophobic discrimination and perpetrators of xenophobic violence.

• Set up mechanisms for migrant workers in the country of destination to lodge complaints about abuse and violations in workers’ rights through trade unions and CSOs.

• Issue regulations prohibiting retention of documents belonging to migrant workers.

• Adopt a standard or model BLA checklist that should include, among other issues, living conditions for migrant workers, provision of payslips and decent employment conditions including social protection and prohibition of retention of documents.

• Develop tools for pre-departure training that include financial literacy, language, occupational and generic health and safety, communicable diseases including HIV and AIDS, tuberculosis and malaria. The trainings can be undertaken by IOM, ILO, the Government, NGOs and recruitment agencies.

• Promote the formation of community organizations of Zimbabweans in the diaspora.

14


• Strengthen Migration Resource Centres (MRC) that provide for education, information and awareness materials on migrants’ rights, safe migration, conditions in the destination countries, issues on discrimination, sexual harassment, human trafficking, xenophobia and health (including HIV and AIDS).

• Coordinate action with ministries of Home Affairs and Foreign Affairs to improve accessibility and affordability of identity documents, such as passports, national IDs and birth certificates for Zimbabwean nationals to reduce irregular migration and promote safe migration.

Section 3: Harnessing labour migration for development

Labour migration can positively contribute towards development, growth and poverty reduction through remittances and investments in the domestic market by migrant workers. Therefore, remittances have a double impact, both at the household and national levels.

(a) Key policy challenges in labour migration for development

The policy challenges regarding labour migration for development include the following five crucial issues:

• Inconsistent mainstreaming of labour migration in national policies (fiscal and monetary), national development plans, National Employment Policy Framework, the Zimbabwe Decent Work Country Programme (DWCP) and sectorial policies;

• Limited impact of migrant workers’ remittances due to high transfer costs and limited remittance channels;

• Limited mechanisms to facilitate the participation of migrants in the home financial system;

• Inadequate return and reintegration services especially in migrant sending areas; and

• Limited engagement with the diaspora.


• Mainstream labour migration issues in the national policies (fiscal and monetary), national development plans, National Employment Policy Framework, DWCP and ZUNDAF, among others.

• Harmonize the NLMP with the Diaspora Policy and Labour Export Policy.

• Establish more financial institutions for remitting money in both rural and urban areas as to raise the volume of remittances, reduce costs and widen the choices for migrant workers to use institutional channels for remitting money.

• Negotiate with labour-receiving countries in facilitating migrant workers’ access to financial services.

• Develop financial literacy tools for migrant workers.

15


• Negotiate with labour-receiving countries in encouraging employers to deposit migrant worker salaries in their bank accounts, instead of paying cash.

• Create an enabling environment for maximizing migrant savings, flow of remittances and utilization of remittances for productive investment.

• Improve collection and quality of data on remittances to create a solid basis for future policy options on remittances.

• Coordinate with countries of destination in providing information about returnees (both legal and irregular migrants) before repatriation.

• Develop and disseminate information on reintegration services provided for return migrants.

• Promote reintegration packages that include loans, counselling, training and retraining, scholarship and entrepreneurship.

• Improve registration and monitoring systems for return migrant workers at arrival and border checkpoints.

• Establish incentives for migrant savings and investment, access to credit and entrepreneurial/business development.

• Strengthen livelihood community development projects and interventions.

• Identify the diaspora communities and establish a database to promote networking.

• Government to foster systematic and sustained diaspora-centric engagement strategies.

• Create systems and infrastructure (ICTs) that allows the diaspora to exchange information easily with people in the home country.

• Foster links between local and diaspora professional associations (such as Zimbabwe Nurses Association and UK Nurses Association).

• Promote the effective use of diaspora’s resources (skills and financial) for community development in line with the migration and development strategy.

16


Section 4: Labour migration data

Timeous availability in the public domain of official information and gender-disaggregated statistics on labour migration is critical for the development of sound policies on labour migration.

(a) Key policy issues on labour migration data

The policy challenge is the lack of integration of gender-disaggregated labour migration data within the national labour market information system.


• In collaboration with ZIMSTAT, align all indicators of labour migration to existing standard indicators adopted at African Union and SADC levels.

• Develop a labour migration information system that will help gather reliable and accurate data on labour migrants abroad by gender, professions, duration of stay, wages and salaries and working conditions.

• Strengthen/capacitate the migration unit at ZIMSTAT and analytical capacity within MoPSLSW.

• Develop engendered systemized registration mechanisms at embassies on diaspora associations.

17


5. MONITORING AND EVALUATION OF THE LABOUR MIGRATION POLICY

The monitoring and evaluation process will be executed by a Committee on Labour Migration. In its work, the committee will be underpinned by tripartite consultations in line with ILO’s Tripartite Consultation (International Labour Standards) Convention (C144, 1976). The committee will convene meetings at least twice a year to review updates and come up with a comprehensive annual report on the activities taken under the framework of the Labour Migration Policy. The committee will adopt an implementation plan that has key monitoring indicators and outcomes that will be used in the review and evaluation of the policy.

6. RESOURCE MOBILIZATION

The NLMP will be funded by the Government, with complimentary funding from ILO, IOM and other development partners, in line with their programming under the Zimbabwe DWCP and the NLMP Implementation Plan.

18

7. NATIONAL LABOUR MIGRATION POLICY MATRIX: STRATEGIC AREAS, POLICY OPTIONS, ACTION PLAN, EXPECTED OUTCOMES, TIME FRAME, KEY STAKEHOLDERS AND LEAD MINISTRIES

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19


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nal i

nstr

umen

ts t

hat

gove

rn

labo

ur m

igra

tion.

• D

omes

ticat

ion

and

ratifi

catio

n of

ILO

C

onve

ntio

ns N

o. 9

7 an

d 14

3 an

d Re

com

men

datio

ns (R

086

and

R151

) an

d In

tern

atio

nal C

onve

ntio

n on

the

Pr

otec

tion

of t

he R

ight

s of

All

Mig

rant

W

orke

rs a

nd M

embe

rs o

f The

ir Fa

milie

s, C

EDAW

Gen

eral

Rec

omm

enda

tion

No.

26

and

the

2017

Agr

eem

ent

Am

endi

ng t

he S

AD

C P

roto

col o

n G

ende

r an

d D

evel

opm

ent.

• Sy

stem

atic

trip

artit

e co

nsul

tatio

n w

ith

soci

al p

artn

ers.

• D

evel

op c

ompr

ehen

sive

and

gend

er-

sens

itive

gui

delin

es fo

r re

crui

tmen

t in

line

w

ith IL

O C

onve

ntio

n 18

1 an

d G

ener

al

Prin

cipl

es a

nd O

pera

tiona

l Gui

delin

es fo

r Fa

ir Re

crui

tmen

t to

pre

vent

abu

se o

f the

pr

oces

s an

d vi

olat

ion

of w

orke

rs’ r

ight

s an

d im

prov

e re

gula

tion

and

mon

itorin

g of

priv

ate

empl

oym

ent

agen

cies

.

• G

over

nanc

e of

labo

ur

mig

ratio

n is

in c

ompl

ianc

e w

ith r

egio

nal a

nd

inte

rnat

iona

l sta

ndar

ds.

• In

tern

atio

nal i

nstr

umen

ts

gove

rnin

g la

bour

mig

ratio

n ar

e do

mes

ticat

ed a

nd

ratifi

ed.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW

• M

inist

ry o

f Fo

reig

n A

ffairs

an

d In

tern

atio

nal

Trad

e (M

oFA

IT)

• M

inist

ry o

f Jus

tice,

Leg

al

and

Parli

amen

tary

Affa

irs

(MoJ

LPA

)

• Pa

rliam

ent

of Z

imba

bwe

• IL

O

• Tr

ade

unio

ns

• Em

ploy

ers’

orga

niza

tion

Legi

slat

ive

fram

ewor

k•

Mai

nstr

eam

ing

labo

ur m

igra

tion

in

natio

nal l

egisl

atio

n.

• Fo

rmul

ate

a de

liber

ate

polic

y to

exp

ort

skills

in s

ecto

rs t

hat

Zim

babw

e ha

s co

mpa

rativ

e ad

vant

age.

• M

ains

trea

min

g of

labo

ur m

igra

tion

into

ex

istin

g le

gisla

tion.

• Im

plem

enta

tion

of a

del

iber

ate

polic

y fo

r ex

port

of l

abou

r.

• C

lear

, firm

and

spe

cific

po

licie

s fo

r effi

cien

t ad

min

istra

tion

of la

bour

m

igra

tion.

• Sh

ort

term

(2

020–

2023

)•

MoP

SLSW

• M

oJLP

A

• M

inist

ry o

f Hom

e A

ffairs

an

d C

ultu

ral H

erita

ge

(MoH

AC

H)

• Pa

rliam

ent

of Z

imba

bwe

• M

inist

ry o

f Fin

ance

and

Ec

onom

ic D

evel

opm

ent

(MoF

ED)

• M

oHTE

SITD

• M

inist

ry o

f You

th, A

rts,

Spor

ts a

nd R

ecre

atio

n (M

oYA

SR)

• C

SOs

• IO

M

• IL

O

• M

oPSL

SW

• H

arm

onize

the

sev

eral

legi

slativ

e pr

ovisi

ons

on la

bour

mig

ratio

n pr

oced

ures

to

esta

blish

a h

igh

stan

dard

of

pro

tect

ion

and

prom

otio

n of

m

igra

nt w

orke

rs.

• St

reng

then

trip

artis

m a

nd in

volv

e IL

O

soci

al p

artn

ers

and

othe

r C

SOs

in

prep

arin

g th

e le

gisla

tion

rela

ting

to

labo

ur m

igra

tion.

Thi

s w

ill re

med

y th

e ga

ps in

the

law

in t

erm

s of

reg

ulat

ions

, se

rvic

e pr

ovisi

on, a

ccou

ntab

ility

and

mon

itorin

g iss

ues.

• Re

view

of e

xist

ing

legi

slatio

n on

labo

ur

mig

ratio

n to

ens

ure

harm

oniz

atio

n.

• In

volv

e tr

ipar

tite

cons

titue

nts,

CSO

s an

d pr

ivat

e re

crui

tmen

t ag

enci

es in

the

fo

rmul

atio

n of

the

legi

slatio

n.

• C

lear

and

coo

rdin

ated

ro

les

and

resp

onsib

ilitie

s of

m

inist

ries

enga

ged

in la

bour

m

igra

tion

issue

s.

• Re

gula

r an

d eff

ectiv

e co

nsul

tatio

n an

d co

ordi

natio

n ac

ross

all

rele

vant

inst

itutio

ns in

ad

dres

sing

legi

slatio

n of

m

igra

tion

proc

esse

s.

• Sh

ort

term

(2

020–

2023

)

Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Inst

itut

iona

l fr

amew

ork

• St

reng

then

all

units

, age

ncie

s an

d in

stitu

tions

reg

ulat

ing

labo

ur m

igra

tion

to e

nsur

e la

bour

mig

ratio

n ta

kes

plac

e in

con

ditio

ns o

f dig

nity

, sec

urity

and

eq

uity

.

• C

apac

ity-b

uild

ing

and

stre

ngth

enin

g of

ro

les

for

all i

nstit

utio

ns in

volv

ed in

labo

ur

mig

ratio

n go

vern

ance

.

• C

lear

and

coo

rdin

ated

ro

les

and

resp

onsib

ilitie

s of

m

inist

ries

enga

ged

in la

bour

m

igra

tion

issue

s, su

ch a

s “w

ho d

oes

wha

t, ho

w a

nd

with

who

m”.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW•

MoF

ED

• Tr

ade

unio

ns,

• Em

ploy

ers’

orga

niza

tions

,

• M

oHA

CH

• M

oFA

IT

• M

inist

ry o

f Wom

en's

Affa

irs, C

omm

unity

, Sm

all a

nd M

ediu

m

Ente

rpris

es D

evel

opm

ent

(MoW

AC

SMED

)

• M

inist

ry o

f Inf

orm

atio

n,

Publ

icity

and

Bro

adca

stin

g Se

rvic

es

• Z

imba

bwe

Repu

blic

Pol

ice

• IO

M

• IL

O

• U

N-W

omen

• Pr

ivat

e se

ctor

• Fo

reig

n Re

crui

tmen

t C

omm

ittee

• St

reng

then

the

Inte

rmin

ister

ial

Com

mitt

ee o

n La

bour

Mig

ratio

n to

ad

dres

s co

here

nce

issue

s am

ong

the

polic

ies

of c

once

rned

min

istrie

s.

• St

reng

then

the

Inte

rmin

ister

ial

Com

mitt

ee o

n La

bour

Mig

ratio

n to

re

view

labo

ur m

igra

tion

proc

esse

s, ex

plor

e iss

ues

and

chal

leng

es, f

ollo

w

chan

ges

in t

he la

bour

mar

ket

and

advi

se

on a

ll as

pect

s of

the

pro

cess

.

• St

reng

then

ed m

anag

emen

t of

labo

ur m

igra

tion.

• Es

tabl

ish t

he p

ositi

on o

f lab

our

atta

chés

in la

bour

rec

eivi

ng c

ount

ries

to p

rom

ote

the

inte

rest

s of

Z

imba

bwea

n m

igra

nt w

orke

rs.

• Es

tabl

ish t

he p

ositi

on o

f lab

our

atta

chés

in

maj

or r

ecei

ving

cou

ntrie

s.

• D

evel

opm

ent

of a

tra

inin

g m

odul

e fo

r th

e tr

aini

ng o

f lab

our

atta

chés

.

• Z

imba

bwea

n at

tach

és

are

bett

er e

quip

ped

to

resp

ond

to t

he p

rote

ctio

n an

d w

elfa

re n

eeds

of

Zim

babw

ean

labo

ur

mig

rant

s ab

road

.

• Re

gula

te t

he r

ecru

itmen

t in

dust

ry

thro

ugh

adm

inist

rativ

e po

licie

s an

d pr

oced

ures

, lic

ensin

g sc

hem

es, c

odes

of

con

duct

, mon

itorin

g an

d pe

nalty

pr

ovisi

ons

to a

ddre

ss o

ffenc

es.

• Li

cens

e, s

uper

vise

and

dev

elop

co

mpr

ehen

sive

guid

elin

es fo

r pr

ivat

e re

crui

ters

and

san

ctio

n th

ose

who

do

not

com

ply

with

the

min

imum

sta

ndar

ds

to t

he r

ight

s of

the

mig

rant

wor

kers

.

• Pr

ivat

e re

crui

tmen

t co

mpa

nies

sho

uld

prov

ide

writ

ten

empl

oym

ent

cont

ract

s co

ntai

ning

wag

es a

nd h

ours

, tim

e off

, sa

fety

and

hea

lth, m

edic

al c

are,

hou

sing

amon

g ot

hers

. Thi

s w

ill al

so p

reve

nt

wor

kers

from

bei

ng le

ft ou

t w

ithou

t an

y re

med

y.

• St

reng

then

mon

itorin

g sy

stem

s fo

r pr

ivat

e re

crui

tmen

t ag

enci

es b

y th

e G

over

nmen

t.

• St

reng

then

labo

ur in

spec

tion

at

wor

kpla

ces

and

recr

uitm

ent

agen

cies

.

• Pr

even

tion

of a

buse

and

ex

ploi

tatio

n of

vul

nera

ble

jobs

eeke

rs a

nd la

bour

m

igra

nts

in e

mpl

oym

ent

(in

the

dest

inat

ion

coun

trie

s an

d fo

reig

n la

bour

in

Zim

babw

e), e

spec

ially

w

omen

and

the

you

th.

20


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

• Th

e M

oPSL

SW w

ebsit

e sh

ould

pro

vide

th

e fo

llow

ing:

(a) i

nfor

mat

ion

on li

cens

ed

priv

ate

recr

uite

rs a

nd c

onsu

late

s in

ot

her

coun

trie

s an

d w

arni

ngs

abou

t un

ethi

cal p

ract

ices

; and

(b) i

nter

-age

ncy

recr

uitm

ent

coop

erat

ion

prac

tices

.

• Le

gal a

nd r

egist

ered

re

crui

tmen

t ag

enci

es a

re in

pl

ace.

• St

reng

then

the

rol

e of

the

For

eign

Re

crui

tmen

t C

omm

ittee

to

mon

itor

(thr

ough

com

pany

visi

ts) t

he w

orki

ng

cond

ition

s of

fore

ign

wor

kers

in

Zim

babw

e. T

he c

omm

ittee

sho

uld

also

en

sure

the

pro

tect

ion

of c

ompe

tent

loca

l jo

bsee

kers

so

that

the

y ar

e no

t cr

owde

d ou

t of

the

labo

ur m

arke

t by

em

igra

nts.

• Pr

even

tion

of v

iola

tion

of

emig

rant

wor

kers

’ rig

hts.

• Sh

ort

term

(2

020–

2023

)M

oFA

IT

• Th

e Fo

reig

n Re

crui

tmen

t C

omm

ittee

sh

ould

mon

itor

the

adhe

renc

e of

fo

reig

n re

crui

tmen

t gu

idel

ines

by

com

pani

es in

ord

er t

o sa

fegu

ard

jobs

for

Zim

babw

eans

.

• Sk

ills t

rans

fer

from

fo

reig

n w

orke

rs t

o lo

cal

Zim

babw

eans

.

• Th

e Fo

reig

n Re

crui

tmen

t C

omm

ittee

sh

ould

dev

elop

a p

rogr

amm

e th

at a

llow

s ca

scad

ing

of s

kills

from

fore

ign

wor

kers

to

nat

iona

ls.

• Pr

otec

tion

of jo

bs fo

r lo

cal

citiz

ens.

Reg

ulat

ory

fram

ewor

k•

Form

ulat

e co

mpr

ehen

sive

regu

latio

ns

gove

rnin

g th

e m

anag

emen

t of

the

la

bour

mig

ratio

n pr

oces

s an

d th

e pr

otec

tion

and

rein

tegr

atio

n of

mig

rant

w

orke

rs.

• D

raft

the

com

preh

ensiv

e re

gula

tions

co

verin

g th

e ad

min

istra

tion

of la

bour

m

igra

tion,

rec

ruitm

ent

plac

emen

t an

d pr

otec

tion

and

rein

tegr

atio

n of

mig

rant

w

orke

rs.

• C

lear

, firm

and

spe

cific

le

gisla

tion

for

effici

ent

adm

inist

ratio

n of

labo

ur

mig

ratio

n.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW•

MoF

ED

• M

oHA

CH

• M

oWA

CSM

ED

• U

N-W

omen

• Tr

ade

unio

ns

• Em

ploy

ers

orga

niza

tion

• IO

M

• IL

O

• C

SOs

• Pr

ivat

e se

ctor

• St

reng

then

trip

artis

m a

nd in

volv

e IL

O

soci

al p

artn

ers

and

othe

r C

SOs

in

prep

arin

g th

e re

gula

tory

fram

ewor

k re

latin

g to

labo

ur m

igra

tion.

Thi

s w

ill re

med

y th

e ga

ps in

the

law

in t

erm

s of

reg

ulat

ions

, ser

vice

pro

visio

n,

acco

unta

bilit

y an

d m

onito

ring

issue

s.

• In

volv

e tr

ipar

tite

cons

titue

ncie

s, C

SOs

and

priv

ate

recr

uitm

ent

agen

cies

in t

he

form

ulat

ion

of t

he r

egul

atio

ns.

• So

cial

dia

logu

e is

stre

ngth

ened

in la

bour

m

igra

tion

proc

esse

s.

• St

reng

then

reg

ulat

ions

tha

t re

gula

te

priv

ate

sect

or in

volv

emen

t in

labo

ur

mig

ratio

n.

• M

oPSL

SW s

houl

d es

tabl

ish li

nks

with

na

tiona

l tra

inin

g in

stitu

tions

and

the

pr

ivat

e se

ctor

in t

he d

evel

opm

ent

and

impl

emen

tatio

n of

spe

cific

mig

rant

w

orke

r-re

late

d tr

aini

ng p

rogr

amm

es.

• St

reng

then

mig

rant

s’ rig

hts

awar

enes

s.

21


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Prot

ecti

on a

nd e

mpo

wer

men

t of

mig

rant

wor

kers

and

sec

ure

dece

nt w

orki

ng c

ondi

tion

s

Bila

tera

l lab

our

agre

emen

ts o

r M

oU

• Pr

omot

e an

d ne

gotia

te b

ilate

ral

agre

emen

ts a

nd M

oU w

ith r

efer

ence

to

ILO

Con

vent

ions

No.

97

and

143,

Re

com

men

datio

ns 8

6 an

d 15

1, t

he

Inte

rnat

iona

l Con

vent

ion

on t

he

Prot

ectio

n of

the

Rig

hts

of A

ll M

igra

nt

Wor

kers

and

Mem

bers

of T

heir

Fam

ilies,

the

prin

cipl

es a

nd g

uide

lines

pr

ovid

ed in

the

ILO

Mul

tilat

eral

Fr

amew

ork

on L

abou

r M

igra

tion,

the

M

igra

tion

Polic

y Fr

amew

ork

for

Afr

ica,

th

e SA

DC

Pro

toco

l on

the

Faci

litat

ion

of M

ovem

ent

of P

erso

ns, t

he S

AD

C

Cha

rter

on

Hum

an a

nd S

ocia

l Rig

hts

and

the

2009

Oua

gado

ugou

Roa

d M

ap

for

the

Impl

emen

tatio

n of

the

Glo

bal

Jobs

Pac

t in

Afr

ica.

• Z

imba

bwe

shou

ld e

nter

into

bila

tera

l and

m

ultil

ater

al la

bour

mig

ratio

n ag

reem

ents

an

d M

oUs

with

the

maj

or la

bour

mig

rant

re

ceiv

ing

and

send

ing

coun

trie

s. In

the

ab

senc

e of

bila

tera

l agr

eem

ents

, the

St

ate

can

sign

a M

oU w

ith fr

amew

orks

fo

r m

onito

ring

and

acco

unta

bilit

y.

• La

bour

mig

ratio

n is

man

aged

und

er c

ondi

tions

of

dig

nity

, equ

ity, s

ecur

ity

and

just

ice

in li

ne w

ith

inte

rnat

iona

l nor

ms.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW•

MoF

AIT

• M

oJLP

A

• M

oHA

CH

• Pa

rliam

ent

of Z

imba

bwe

• Tr

ade

unio

ns

• Em

ploy

ers

orga

niza

tions

• IL

O

• IO

M

• Z

imba

bwe

shou

ld e

nter

into

sec

tor-

spec

ific

agre

emen

ts o

r M

oU b

ased

on

the

com

para

tive

adva

ntag

e of

ski

lls in

se

ctor

s, su

ch a

s he

alth

, edu

catio

n an

d ag

ricul

ture

, am

ong

othe

rs.

• D

evel

op a

sta

ndar

d te

mpl

ate

for

BLA

s.

• Ex

pand

ed s

ocia

l sec

urity

co

vera

ge fo

r la

bour

m

igra

nts

espe

cial

ly fe

mal

e la

bour

mig

rant

s.

• Z

imba

bwe

shou

ld e

nter

into

bila

tera

l so

cial

sec

urity

agr

eem

ents

with

mig

rant

re

ceiv

ing

and

send

ing

coun

trie

s th

at

allo

ws

tran

sfer

/exp

ort

and

coor

dina

tion

of s

ocia

l sec

urity

ben

efits

incl

udin

g ov

erla

ps b

etw

een

coun

trie

s.

• A

rig

hts-

base

d ap

proa

ch t

o la

bour

mig

ratio

n is

real

ized.

• Im

prov

ed s

ocia

l sec

urity

be

nefit

s m

anag

emen

t.

22


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Mig

rati

on

supp

ort

serv

ices

• Pr

epar

e an

d di

ssem

inat

e in

form

atio

n an

d ra

ise a

war

enes

s to

the

pub

lic a

nd

trai

ning

on

safe

labo

ur m

igra

tion.

• In

trod

uce

mea

sure

s an

d to

ols

to

prev

ent

diss

emin

atio

n of

misl

eadi

ng

info

rmat

ion

and

take

app

ropr

iate

act

ion

thro

ugh

MRC

s an

d in

the

var

ious

med

ia

stra

tegi

es.

• Es

tabl

ish a

dditi

onal

res

ourc

e ce

ntre

s w

here

rel

evan

t.

• D

evel

op p

rom

otio

nal a

nd a

war

enes

s-ra

ising

mat

eria

l on

Zim

babw

ean

and

coun

trie

s of

des

tinat

ion

labo

ur

legi

slatio

ns a

nd c

onsu

lar

serv

ices

.

• La

bour

mig

rant

s ar

e aw

are

of r

isks

rela

ted

to

irreg

ular

mig

ratio

n, a

nd

mec

hani

sms

are

prov

ided

fo

r th

e pr

otec

tion

and

empo

wer

men

t of

labo

ur

mig

rant

s ag

ains

t ab

use

and

expl

oita

tion.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW•

Trad

e un

ions

• Em

ploy

ers

orga

niza

tions

• M

oYA

SR

• M

oWA

CSM

ED

• M

oFA

IT

• M

oFED

• U

N-W

omen

• N

GO

s

• C

SOs

• IL

O

• IO

M

• D

evel

op t

ools

for

pre-

depa

rtur

e an

d in

stitu

tiona

lize

pre-

depa

rtur

e tr

aini

ng

cove

ring

safe

wor

king

and

livi

ng

envi

ronm

ents

in h

ost

coun

trie

s, le

gal

assis

tanc

e an

d sh

elte

r fo

r di

stre

ssed

m

igra

nt w

orke

rs a

t th

e em

bass

ies

as fa

r as

res

ourc

es p

erm

it.

• Im

plem

ent

pre-

depa

rtur

e tr

aini

ng t

hat

incl

udes

fina

ncia

l lite

racy

, bac

kgro

und

situa

tion

in d

estin

atio

n co

untr

y, oc

cupa

tiona

l saf

ety

and

heal

th a

nd o

ther

co

nditi

ons

of w

ork

and

HIV

and

AID

S.

• Im

plem

ent

man

dato

ry g

ende

r tr

aini

ng

for

agen

cies

tha

t ha

ve m

ost

cont

act

with

fe

mal

e m

igra

nts,

incl

udin

g im

mig

ratio

n au

thor

ities

, the

pol

ice

and

heal

th s

ervi

ce

prov

ider

s.

• La

bour

mig

ratio

n oc

curs

un

der

cond

ition

s of

dig

nity

, eq

uity

and

sec

urity

.

• La

bour

mig

rant

s ar

e ac

quai

nted

with

in

form

atio

n re

gard

ing

the

dest

inat

ion

coun

trie

s an

d w

hat

to e

xpec

t.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW

• En

sure

dec

ent

wor

king

and

livi

ng

cond

ition

s fo

r Z

imba

bwea

n m

igra

nt

wor

kers

in t

he c

ount

ries

of d

estin

atio

n.

• N

egot

iate

with

cou

ntrie

s of

des

tinat

ion/

empl

oyer

s re

gard

ing

dece

nt w

orki

ng

cond

ition

s an

d liv

ing

cond

ition

s fo

r m

igra

nt w

orke

rs in

clud

ing

soci

al

prot

ectio

n. T

his

shou

ld b

e pa

rt o

f the

bi

late

ral a

gree

men

ts o

r M

oUs.

• Se

t up

mec

hani

sms

for

mig

rant

wor

kers

in

the

labo

ur r

ecei

ving

cou

ntry

(a

com

plai

nts

mec

hani

sm) t

o lo

dge

com

plai

nts

abou

t ab

use

and

viol

atio

ns in

w

orke

rs’ r

ight

s th

roug

h tr

ade

unio

ns a

nd

CSO

s, se

t up

a m

echa

nism

s to

rec

ord

and

follo

w-u

p on

rec

ruitm

ent

rela

ted

com

plai

nts

in Z

imba

bwe.

• Es

tabl

ish L

MW

F ba

sed

on v

olun

tary

co

ntrib

utio

ns. M

igra

nts

cont

ribut

e to

the

fund

tha

t w

ill be

man

aged

by

Gov

ernm

ent

of Z

imba

bwe.

• Bi

late

ral c

oope

ratio

n be

twee

n w

orke

rs,

empl

oyer

s’ or

gani

zatio

ns

and

gove

rnm

ents

is

stre

ngth

ened

.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW

23


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Hum

an a

nd

labo

ur r

ight

s fo

r m

igra

nts

• Pr

omot

e hu

man

and

labo

ur r

ight

s fo

r fe

mal

e an

d m

ale

mig

rant

wor

kers

.•

Neg

otia

te b

ilate

ral a

gree

men

ts b

etw

een

trad

e un

ions

fede

ratio

ns o

r affi

liate

un

ions

of b

oth

coun

trie

s of

des

tinat

ion

and

orig

in.

• La

bour

mig

rant

s an

d w

orke

rs’ r

ight

s ar

e up

held

.•

Shor

t to

m

ediu

m t

erm

(2

020–

2025

)

• Tr

ade

unio

ns•

MoF

AIT

• M

oWA

CSM

ED

• IO

M

• IL

O

• U

N-W

omen

• Tr

ade

unio

ns

• Em

ploy

er o

rgan

izat

ions

• M

igra

nt a

ssoc

iatio

ns

• Pr

omot

e an

d fa

cilit

ate

the

right

to

form

com

mun

ity o

rgan

izat

ions

of

Zim

babw

eans

in t

he d

iasp

ora.

• Im

prov

ed w

elfa

re o

f m

igra

nt la

bour

.•

Shor

t to

m

ediu

m t

erm

(2

020–

2025

)

• M

oPSL

SW

• D

evel

op in

form

atio

n re

sour

ce

cent

res

that

pro

vide

mat

eria

l and

aw

aren

ess

prog

ram

mes

on

the

right

s of

mig

rant

wor

kers

and

issu

es, s

uch

as d

iscrim

inat

ion,

sex

ual h

aras

smen

t, hu

man

tra

ffick

ing,

gen

der-

base

d vi

olen

ce,

xeno

phob

ia a

nd H

IV a

nd A

IDS

at b

oth

the

loca

l lev

el a

nd t

he la

bour

rec

eivi

ng

coun

trie

s.

• Im

prov

ed in

form

atio

n di

ssem

inat

ion

in o

rder

to

prot

ect

mig

rant

wor

kers

fr

om a

buse

.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• D

evel

op m

easu

res

to d

issem

inat

e in

form

atio

n on

ant

i-disc

rimin

atio

n le

gisla

tion

and

prov

ision

s in

clud

ing

xeno

phob

ia.

• D

evel

op m

easu

res

to c

omba

t pe

ople

sm

uggl

ing,

hum

an t

raffi

ckin

g an

d pr

otec

tion

and

prom

otio

n of

the

rig

hts

of v

ictim

s of

tra

ffick

ing.

• Im

prov

ed in

form

atio

n di

ssem

inat

ion

in o

rder

to

prot

ect

mig

rant

wor

kers

fr

om a

buse

.

• Sh

ort

term

(2

020–

2023

)

• N

egot

iate

with

rec

eivi

ng c

ount

ries

to p

ut in

pla

ce a

nd s

tren

gthe

n an

ti-di

scrim

inat

ion

mea

sure

s.

• Pr

omot

e ed

ucat

ion

cam

paig

ns in

SA

DC

M

embe

r St

ates

, par

ticul

arly

in r

ecei

ving

co

untr

ies

to r

aise

aw

aren

ess

agai

nst

xeno

phob

ic a

ttitu

des

and

abou

t th

e be

nefit

s of

labo

ur m

igra

tion.

• Pr

otec

tion

of r

ight

s an

d w

elfa

re o

f mig

rant

labo

ur.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oFA

IT

Safe

and

lega

l m

igra

tion

• D

ecen

tral

izat

ion

of g

over

nmen

t in

stitu

tion

that

pro

vide

nat

iona

l ide

ntity

do

cum

ents

.

• Im

prov

e de

cent

raliz

atio

n of

acc

essib

ility

and

affor

dabi

lity

of id

entit

y do

cum

ents

, su

ch a

s pa

sspo

rts,

natio

nal I

Ds

and

birt

h ce

rtifi

cate

s an

d de

ath

cert

ifica

tes

to

redu

ce ir

regu

lar

mig

ratio

n.

• Iss

ue r

egul

atio

n pr

ohib

iting

ret

entio

n of

doc

umen

ts b

elon

ging

to

mig

rant

w

orke

rs.

• Re

duct

ion

in ir

regu

lar

labo

ur m

igra

tion.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oHA

CH

• Re

gist

rar

Gen

eral

’s O

ffice

24


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Har

ness

ing

labo

ur m

igra

tion

for

deve

lopm

ent

Labo

ur m

igra

tion

in t

he n

atio

nal

deve

lopm

ent

agen

da

• M

ains

trea

m la

bour

mig

ratio

n in

to n

atio

nal e

cono

mic

and

soc

ial

deve

lopm

ent

plan

s an

d st

rate

gies

.

• In

tegr

ate

labo

ur m

igra

tion

issue

s in

na

tiona

l bud

gets

, mon

etar

y po

licie

s, D

WC

P, U

nite

d N

atio

ns p

rogr

amm

es, t

he

natio

nal d

evel

opm

ent

plan

s an

d ot

her

deve

lopm

ent

part

ners

’ pro

gram

mes

.

• M

ovem

ent

tow

ards

a m

ore

cohe

rent

app

roac

h to

la

bour

mig

ratio

n in

nat

iona

l de

velo

pmen

tal p

olic

ies.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oFED

• M

oHTE

SITD

• Tr

ade

unio

n

• Em

ploy

ers

orga

niza

tions

• U

nite

d N

atio

ns e

ntiti

es,

e.g.

ILO

, IO

M, U

ND

P an

d U

N-W

omen

• Z

IMST

AT

• Re

cogn

ize t

he s

igni

fican

t co

ntrib

utio

ns

of la

bour

mig

ratio

n to

eco

nom

ic

deve

lopm

ent

and

pove

rty

redu

ctio

n de

rived

from

rem

ittan

ces.

• In

tegr

ate

labo

ur m

igra

tion

issue

s in

na

tiona

l dev

elop

men

t po

licie

s.•

Tran

sfor

m b

rain

dra

in t

o br

ain

gain

.•

Shor

t to

m

ediu

m t

erm

(2

020–

2025

)

Rem

itta

nces

and

in

vest

men

ts•

Stre

ngth

en t

he li

nk b

etw

een

rem

ittan

ces

and

natio

nal d

evel

opm

ent

and

pove

rty

redu

ctio

n.

• Th

e fin

anci

al s

ecto

r sh

ould

exp

and

the

finan

cial

inst

itutio

ns a

nd w

iden

cov

erag

e to

rur

al a

reas

.

• Th

e St

ate

and

the

priv

ate

sect

or s

houl

d es

tabl

ish r

emitt

ance

cha

nnel

s th

at a

re

cost

effe

ctiv

e, a

cces

sible

, rel

iabl

e, q

uick

an

d tr

ansp

aren

t.

• Th

e St

ate

shou

ld p

ut in

pla

ce a

ce

ntra

lized

dat

a co

llect

ion

and

repo

rtin

g m

echa

nism

for

bank

s an

d m

oney

tra

nsfe

r or

gani

zatio

ns.

• Th

e ro

le o

f Zim

babw

ean

labo

ur m

igra

nts

in t

he

natio

nal e

cono

my

is st

reng

then

ed.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

inist

ry o

f M

acro

-Eco

nom

ic

Plan

ning

and

In

vest

men

t Pr

omot

ion

• M

oYA

SR

• M

oHTE

SITD

• IO

M

• Z

IMST

AT

• Re

serv

e Ba

nk o

f Z

imba

bwe

• Z

imba

bwe

Inve

stm

ent

Aut

horit

y

• Z

imba

bwe

Bank

ers

Ass

ocia

tion

• M

inist

ry o

f Ind

ustr

y an

d C

omm

erce

• Fi

nanc

ial s

ervi

ce p

rovi

ders

and

or

gani

zatio

ns s

houl

d fa

cilit

ate

the

inte

grat

ion

of lo

w-in

com

e ea

rner

s th

roug

h ch

eape

r re

mitt

ance

cha

nnel

s an

d in

vest

men

t op

port

uniti

es.

• In

crea

sed

inflo

w o

f re

mitt

ance

s an

d th

eir

prod

uctiv

e us

e.

• N

egot

iate

with

cou

ntrie

s of

des

tinat

ion

in fa

cilit

atin

g m

igra

nt w

orke

rs a

cces

s to

fin

anci

al s

ervi

ces.

• In

crea

sed

inflo

w o

f re

mitt

ance

s an

d th

eir

prod

uctiv

e us

e.

• Ea

sy a

cces

s to

fina

ncia

l lite

racy

for

mig

rant

wor

kers

.

• C

reat

e an

ena

blin

g en

viro

nmen

t fo

r m

axim

izin

g m

igra

nt s

avin

gs a

nd u

tiliz

atio

n of

rem

ittan

ces

for

prod

uctiv

e in

vest

men

t.

• I

mpr

ove

colle

ctio

n an

d qu

ality

of d

ata

on

rem

ittan

ces.

• Im

prov

ed s

avin

gs c

ultu

re

amon

g m

igra

nt w

orke

rs.

• Im

prov

ed s

avin

gs c

ultu

re

amon

g m

igra

nt w

orke

rs.

• C

reat

ion

of a

sol

id b

asis

for

futu

re p

olic

y op

tions

on

rem

ittan

ces.

• Sh

ort

to

med

ium

ter

m

(201

7– 20

20)

MoF

ED

25


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Ret

urn

and

rein

tegr

atio

n•

Mon

itor

and

faci

litat

e th

e re

turn

of

mig

rant

wor

kers

in c

oord

inat

ion

with

th

e ho

st c

ount

ry.

• C

oord

inat

e w

ith c

ount

ries

of d

estin

atio

n in

pro

vidi

ng in

form

atio

n ab

out

retu

rnee

s (b

oth

lega

l and

irre

gula

r m

igra

nts)

bef

ore

repa

tria

tion.

• Re

duce

the

soc

ial c

osts

re

late

d to

the

ret

urni

ng

labo

ur m

igra

nt a

nd fa

mily

le

ft be

hind

.

• Sh

ort

to

med

ium

ter

m

(202

0– 2

025)

• M

oPSL

SW•

ILO

• IO

M

• M

oHA

CH

• M

oFA

IT

• M

oFED

• M

oWA

CSM

ED

• Tr

ade

unio

ns

• C

SOs

• Ba

nks

• N

GO

s

• St

reng

then

em

ploy

men

t se

rvic

es in

re

nder

ing

coun

sellin

g an

d pl

acem

ent

serv

ices

for

the

retu

rn m

igra

nt w

orke

rs

in jo

bs s

uita

ble

to t

heir

skills

.

• D

evel

op a

nd d

issem

inat

e in

form

atio

n on

rei

nteg

ratio

n se

rvic

es p

rovi

ded

for

retu

rnin

g la

bour

mig

rant

s es

peci

ally

for

the

yout

h.

• En

rich

effec

tive

cont

ribut

ions

to

the

econ

omy

by w

ell-i

nfor

med

re

turn

ing

labo

ur m

igra

nts.

• Pr

ovid

e co

unse

lling

serv

ices

to

labo

ur

mig

rant

s pr

ior

to t

heir

depa

rtur

e an

d af

ter

thei

r re

turn

to

Zim

babw

e.

• Re

duce

the

soc

ial c

osts

re

late

d to

the

ret

urni

ng

labo

ur m

igra

nt a

nd fa

mily

le

ft be

hind

.

• Im

prov

e re

gist

ratio

n an

d m

onito

ring

syst

ems

for

retu

rnin

g m

igra

nt w

orke

rs a

t ar

rival

and

bor

der

chec

kpoi

nts.

• Im

prov

ed d

ata

colle

ctio

n on

ret

urn

labo

ur m

igra

nts.

• Pr

ovid

e an

d pr

omot

e in

cent

ives

for

mig

rant

sav

ings

and

inve

stm

ent,

acce

ss

to c

redi

t an

d en

trep

rene

uria

l/bus

ines

s de

velo

pmen

t.

• Pr

ovid

e an

d pr

omot

e in

cent

ives

for

the

retu

rn o

f tra

ined

/ski

lled

Zim

babw

eans

, e.

g. s

kills

exc

hang

e pr

ogra

mm

es a

nd

shor

t-te

rm h

ome

plac

emen

ts.

• En

rich

effec

tive

cont

ribut

ions

to

the

econ

omy

by r

etur

ning

la

bour

mig

rant

s th

roug

h jo

b cr

eatio

n, e

nter

prise

de

velo

pmen

t an

d fil

ling

in

of s

kills

gap

s in

the

cou

ntry

.

• Sh

ort

term

(2

020–

2023

)•

MoF

ED

• Pr

omot

e re

inte

grat

ion

pack

ages

tha

t in

clud

e th

e fo

llow

ing:

(a) L

oans

(b) C

ouns

ellin

g

(c) T

rain

ing

and

retr

aini

ng

(d) S

chol

arsh

ip

(e) E

ntre

pren

eurs

hip

• In

crea

sed

skills

and

te

chno

logy

tra

nsfe

r by

re

turn

ing

labo

ur m

igra

nts.

• Sh

ort

to m

ediu

m

term

• M

oPSL

SW

• Im

plem

ent

livel

ihoo

d co

mm

unity

de

velo

pmen

t pr

ojec

ts fo

r re

turn

ees

espe

cial

ly fo

r th

e m

ost

vuln

erab

le

grou

ps (s

uch

as w

omen

, you

th, p

hysic

ally

ch

alle

nged

and

peo

ple

livin

g w

ith H

IV

and

AID

S).

• Re

duce

the

soc

ial c

osts

re

late

d to

the

ret

urni

ng

labo

ur m

igra

nt a

nd fa

mily

le

ft be

hind

.

• Re

duce

the

soc

ial c

osts

re

late

d to

the

ret

urni

ng

labo

ur m

igra

nt a

nd fa

mily

le

ft be

hind

.

• Sh

ort

to

med

ium

ter

m

(202

0– 20

25)

• M

oPSL

SW

26


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Col

labo

rati

on

wit

h di

aspo

ras

• Su

ppor

t th

e ro

le o

f the

Zim

babw

e di

aspo

ra in

the

com

mun

ity fo

r na

tiona

l ec

onom

ic d

evel

opm

ent.

• Id

entif

y th

e di

aspo

ra c

omm

uniti

es

and

esta

blish

a d

atab

ase

to p

rom

ote

netw

orki

ng.

• Sy

stem

atic

eng

agem

ent

with

dia

spor

a m

ade

poss

ible

thr

ough

bet

ter

info

rmat

ion.

• Sh

ort

to

med

ium

ter

m

(201

7– 2

020)

• M

oFED

• M

oFA

IT

• M

oPSL

SW

• M

oHTE

SITD

• M

oYA

SR

• M

oFED

• M

oIC

• IO

M

• C

SOs

• St

reng

then

the

dia

spor

a as

a s

ourc

e of

de

velo

pmen

t su

ppor

t, te

chno

logy

and

sk

ills t

rans

fer

to t

he lo

cal e

cono

my.

• Th

e St

ate

shou

ld fo

ster

sys

tem

atic

and

su

stai

ned

dias

pora

-cen

tric

eng

agem

ent

stra

tegi

es.

• C

reat

e sy

nerg

ies

that

allo

w t

he d

iasp

ora

to e

xcha

nge

info

rmat

ion

easil

y w

ith

peop

le in

the

hom

e co

untr

y.

• Fo

ster

link

s be

twee

n lo

cal a

nd d

iasp

ora

prof

essio

nal a

ssoc

iatio

ns (s

uch

as

Zim

babw

e N

urse

s A

ssoc

iatio

n an

d U

nite

d K

ingd

om N

urse

s A

ssoc

iatio

n).

• Pr

omot

e th

e eff

ectiv

e us

e of

dia

spor

a’s

reso

urce

s (s

kills

and

fina

ncia

l) fo

r co

mm

unity

dev

elop

men

t.

• In

crea

sed

skills

and

te

chno

logy

tra

nsfe

r.

27


Stra

tegi

c ar

eaPo

licy

opti

ons

Act

ion

plan

Expe

cted

out

com

esT

ime

fram

e (s

)Le

ad m

inis

try/

in

stit

utio

nK

ey s

take

hold

ers

Mig

rati

on d

ata

Com

preh

ensi

ve

info

rmat

ion

and

data

on

labo

ur

mig

rati

on

• St

reng

then

inst

itutio

ns r

espo

nsib

le fo

r co

llect

ion

and

anal

ysis

of in

form

atio

n an

d da

ta r

elat

ed t

o la

bour

mig

ratio

n.

• Re

gula

rly c

ondu

ct a

labo

ur fo

rce

surv

ey

that

incl

udes

a m

odul

e of

(lab

our)

m

igra

tion.

• D

evel

op a

n in

tegr

ated

labo

ur m

igra

tion

info

rmat

ion

syst

em t

hat

indi

cate

s th

e fo

llow

ing:

(a) C

lear

defi

nitio

ns o

n m

igra

nt

cate

gorie

s an

d m

igra

nt t

erm

s;

(b) P

rofil

es o

f mig

rant

s by

gen

der,

prof

essio

ns, c

ount

ry o

f des

tinat

ion

or o

rigin

, age

, dur

atio

n of

sta

y, w

ages

an

d sa

larie

s, w

orki

ng c

ondi

tions

, ex

perie

nces

and

com

pete

ncie

s; an

d

(c) E

xist

ing

jobs

at

hom

e an

d ab

road

.

• Po

licym

aker

s ha

ve r

elia

ble

gend

er d

isagg

rega

ted

data

an

d in

form

atio

n.

• Sh

ort

term

(2

020–

2023

)•

MoP

SLSW

• Z

IMST

AT

• M

oHA

CH

• Z

IMST

AT

• M

oFA

IT

• IO

M

• C

SOs

• M

oWA

CSM

ED

• U

N-W

omen

• Re

gula

r up

date

of t

he Z

imba

bwe

hum

an

capi

tal w

ebsit

e w

ith t

he fo

llow

ing

char

acte

ristic

s:

(a) J

ob-m

atch

ing

syst

em;

(b) D

atab

ase

of jo

b op

port

uniti

es

abro

ad;

(c)

Prac

tical

info

rmat

ion

abou

t de

stin

atio

n co

untr

ies

incl

udin

g ris

ks

invo

lved

;

(d) S

ectio

n on

bus

ines

s an

d in

vest

men

t op

port

uniti

es in

Zim

babw

e in

lia

ison

with

the

Nat

iona

l Man

pow

er

Adv

isory

Cou

ncil;

and

(e) M

ailin

g lis

t th

roug

h w

hich

the

Sta

te

can

cont

act

natio

nals

in t

he d

iasp

ora

on a

vol

unta

ry b

asis.

• Po

licym

aker

s ha

ve r

elia

ble

enge

nder

ed d

ata

and

info

rmat

ion.

• Sh

ort

term

(2

020–

2023

)•

MoH

TESI

TD

• St

reng

then

/cap

acita

te t

he m

igra

tion

depa

rtm

ent

at Z

IMST

AT.

• Re

liabl

e an

d up

-to-

date

da

ta t

o in

form

pol

icy.

• Sh

ort

term

(2

020–

2023

)•

ZIM

STAT

• St

reng

then

the

For

eign

Rec

ruitm

ent

Com

mitt

ee t

o pr

ovid

e da

ta o

n fo

reig

n w

orke

rs in

Zim

babw

e.

• Re

liabl

e an

d up

-to-

date

da

ta t

o in

form

pol

icy.

• Sh

ort

term

(2

020–

2023

)•

MoF

AIT

• D

evel

op a

n en

gend

ered

sys

tem

ized

regi

stra

tion

mec

hani

sms

at e

mba

ssie

s in

dica

ting

the

num

ber

of n

atio

nals

livin

g ab

road

in o

rder

to

prov

ide

them

with

th

e ne

cess

ary

assis

tanc

e.

• Re

liabl

e an

d up

-to-

date

da

ta t

o in

form

pol

icy.

• Sh

ort

term

(2

020–

2023

)

28

8. IMPLEMENTATION MECHANISM FOR THE ZIMBABWE LABOUR MIGRATION POLICY

8. IMPLEMENTATION MECHANISM FOR THE ZIMBABWE LABOUR MIGRATION POLICY

Address the coherence issues among the policies of concerned ministries with the technical backstopping from the Policy Implementation Cell.

This committee will comprise of various ministries concerned on labour migration.

Sub-Committee on Labour Migration

Policy Implementation Cell on Labour Migration

Working Group on Labour Migration

Offers technical backstopping to the Interministerial Coordination Committee on Labour Migration.

It monitors, evaluates and facilitates implementation of the National Labour Migration Policy.

Mobilize resources for implementation of the policy.

Comprises of various organizations and institutions dealing with labour migration issues, such as IOM, ILO, trade unions, specific CSOs, NGOs and media.

These bring on board all matters related to labour migration as it relate to their work and constituencies they come from.

They act as a source of new information and emerging issues or suggestions on improvements on current practices and procedures.

Ministry of Public Service, Labour and Social Welfare

9/F Kaguvi Building, P.O. Box CY 17, Causeway, Harare, ZimbabweTel.: +263 4 704085 / 703871 / 251288 / 251022 / 2511471 • Website: www.mpslsw.gov.zw

national labour migration policy for zimbabwe

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