National

Migration
Management &
Diaspora Policy
The Government of Zimbabwe
This is a Draft National Migration Management and
Diaspora Policy issued by the Government of Zimbabwe
for due consideration and debate.

The Government of
The Republic of
Zimbabwe
Harare
Zimbabwe
Draft

Republic of Zimbabwe

NATIONAL MIGRATION MANAGEMENT

AND DIASPORA POLICY
2010

Executive Summary

INTRODUCTION

Background

Migration, today propelled by the forces of globalization, changing demographics, and persistent
wage and regional differentials, among others, has gained prominence to become a defining feature
of economic, social and political life in a dynamic world. There is growing interest in the relationship
between migration and development, otherwise known as the migration – development nexus.
International migration has grown phenomenally and has presented both developmental challenges
and opportunities alike. Global concern over the issue culminated in the setting up of the United
Nations High Level Dialogue on Migration and Development in 2006 which generated several useful
findings, outcomes and suggestions for concrete action on migration and development. This dialogue
inspired regional processes and platforms for informal and non-binding dialogue and information
exchange on migration- related issues of common interest and concern.

At the political level, these efforts have complimented similar initiatives such as the first EU- AU
Ministerial Conference on Migration and Development, held in Morocco in 2006; the Joint Africa-EU
Declaration on Migration and Development, adopted in Tripoli in 2006; the Second Euro-African
Summit, held in Lisbon; the Euro-Mediterranean Partnerships under the Barcelona Process; and the
5+5 Dialogue on Migration in the Western Mediterranean; among others. Deliberations at these fora
have, among other things, accentuated the need for comprehensive strategies and policy responses
for the enhancement of the maximization of the benefits of migration, whilst at the same time
minimizing its negative effects.

There were other international and regional fora and initiatives such as the Global Forum on Migration
and Development (GFMD), Migration Dialogue in Africa (MIDA) and Migration Dialogue for Southern
Africa (MIDSA), on the same issue of migration. These further transformed the traditional negative
perception that mirrored migration as a process fraught with huge undesirable development impacts
to one with attendant advantages if properly managed and regulated. Thus migration has been
identified as possessing potential development opportunities. The key benefits of migration for
countries of origin if properly managed include the positive impact of remittances on poverty
reduction, creation of foreign reserves and support for balance of payments, knowledge and skills-
transfer when migrants return home on a temporary or permanent basis, relief from unemployment
and underemployment, and increased levels of indigenous entrepreneurship through new
opportunities in the private sector by those in the diaspora.

It is thus important to note that the ultimate impact that migration has on development is largely
dependent upon the policy framework in which the migration process unfolds. It therefore follows that
for a country to deal with the migration-related challenges and simultaneously maximize on the
associated benefits it needs a clear and coherent migration management policy.

In view of the migration challenges that Zimbabwe faces, and in line with the global imperative for the
formulation of clear and coherent national migration management policies, the Government, with the
assistance of its co-operating partner, the International Organization for Migration (IOM), conducted
four workshops in 2007 with a view to formulating a national migration management and development
strategy. One of the outcomes of this effort was the formulation of Zimbabwe’s Migration Management
and Development vision thus: “To be an excellent model in the effective management and integration
of migration for national development.”

The Government of The Republic of Zimbabwe – Draft Policy

Rationale for a Migration Management and Development Policy

The Migration Management and Development nexus calls for a coherent national policy for managing
migration in order to promote the socio-economic development of a country. Whilst the subject of
migration and development has generated much attention, enthusiasm, debate and related
researches, these efforts in most cases, have so far yielded little in terms of concrete, practicable
policy positions in Zimbabwe. Furthermore, despite the growing recognition of the significance of the
link between migration and development, the two have constituted separate national development
policy fields.

The increased movement of people internally and externally due to a variety of push and pull factors
has presented challenges to the country, and these need to be tackled in a systematic way. These
challenges include the brain drain, increased irregular migration, management of remittances and
human trafficking. These challenges have negatively impacted on the growth of the economy at a
time when the country is facing various other socio-economic and political challenges.

In response, various government ministries and departments have tried to address some of these
migration challenges without conscious co-operation of sister Departments. For example, the
Ministries of Foreign Affairs, Home Affairs, Labour and Social Welfare, Justice, Legal and Affairs,
Information and Publicity, Education, Sports and Culture; President’s Office, Parliament of Zimbabwe,
and Finance (Zimbabwe Revenue Authority), which form the core of the Inter-Ministerial Taskforce on
Human Trafficking, have attended to the issue of human trafficking with the assistance of IOM. The
Ministry of Higher and Tertiary Education is grappling with the issue of the loss of skills due to
migration. The Institute of Continuing Health Education (ICHE) at the University of Zimbabwe College
of Health Sciences has an initiative whereby some doctors in the diaspora are returning to Zimbabwe
at their own expense to lecture, moderate examinations and provide clinical services. The Reserve
Bank of Zimbabwe incorporated Homelink (Pvt) Ltd, a company that has since 2005 implemented a
programme that seeks to mobilise foreign currency from non-traditional sources – primarily from
Zimbabweans in the diaspora.

While the above initiatives point to the government’s desire to grapple with the challenges posed by
migration, there has been no common strategy uniting these commendable efforts. It is common
cause that these efforts could be better coordinated to eliminate duplication of effort and expense,
and for maximum impact. Unfortunately, at the national level, up until now, Zimbabwe did not have an
institutional framework and a coherent, comprehensive policy and legal framework to facilitate the
effective management of migration as a tool for national development. As a result, the migration and
development nexus explained above has lagged behind. This situation needs to be addressed, hence
the formulation of the national migration management and development policy.

Aims of the National Migration Management and Diaspora Development Policy

This national policy aims to address the migration management and diaspora development policy gap
by providing a coherent and effective framework of action at national level, which serves as the
cornerstone and reference point for the Government of Zimbabwe and all other stakeholders to
respond to the challenges and opportunities related to migration and development today and in the
future. This consolidated framework will transform the raised consciousness into constructive actions
for the pursuance of a coordinated and effective migration and development strategy. This will
facilitate the achievement of the Government of Zimbabwe’s Migration Management and Diaspora
Development vision.

Objectives of the National Migration Management and Diaspora Development Policy

The overall objective of the National Migration Management and Diaspora Development Policy is to
provide a framework for the implementation of migration and development strategies and actions for
national benefit.

The policy also seeks to ensure that there is coherence between migration policies and policies in
other domains that address or are affected by migration. This, in addition to avoiding inconsistency
and preventing actions in one domain from inadvertently prejudicing priorities in other domains,
consolidates synergies between distinct but related policies.

The Government of The Republic of Zimbabwe – Draft Policy

In order for the above to be achieved, the policy identifies seven thematic migration- development
issues namely, brain drain, remittances, labour migration, migration and health, migration and gender,
irregular migration and human trafficking. While some of these migration-development issues are of a
cross-cutting nature, each of these areas has specific strategic objectives. In an endeavour to deal
with these migration-development issues the strategic objectives have been formulated under the
auspices of the following themes; legal and National Migration Management and Diaspora
Development Policy institutional framework, labour migration, diaspora-led investments, economic
and community development for migration, skills retention, attraction and development, diaspora
remittances, and safe migration.

Situation Analysis of Key Migration Issues

Brain Drain

Zimbabwe has in the past decade, suffered its worst brain drain since independence in 1980. A study
undertaken by the Scientific and Industrial Research and Development Centre (SIRDC) in 2004 on
the causes and effects of brain drain in Zimbabwe concluded that the level and trend of the brain
drain in Zimbabwe has reached unacceptable and unsustainable heights. Brain drain has certainly
emerged as one of the greatest development challenges facing Zimbabwe today.

The brain drain has mainly been driven by a combination of push-pull factors, both socio-economic
and political in character. As with other developing countries, Zimbabwe’s brain drain can be
attributed to unfulfilled expectations relative to political freedoms, uncompetitive salaries, poor working
conditions, limited career development and opportunities, issues of governance and social security
and attendant benefits.

The magnitude of brain drain is typified by the flight of professionals from the health and education
sectors. It has been noted that between 2000 and 2002 Zimbabwe was United Kingdom’s fourth
largest supplier of health workers after Philippines, India and South Africa. It was also noted that
between 1998 and 2000 Zimbabwe lost about 18,000 nurses and 100 doctors. With the trend
increasing over the years due to the deterioration of the nation’s economic and political performance
and poor working conditions in the health sector the country’s public health institutions have been
grossly understaffed. Further, due to the shortage of suitably qualified staff, the skeletal staff has been
overwhelmed by increased workloads. Consequently, service delivery was seriously compromised.

The education sector is increasingly facing challenges in retaining trained and qualified teachers as a
result of the increased demand for mathematics and science teachers in South Africa. Consequently,
vacancy rates are very high across all levels in the education sector. The situation at tertiary
institutions is typified by the staffing situation at the University Of Zimbabwe. As of 2009, the
institution had an overall vacancy rate of 67%. Similarly, the Bindura University of Technology and the
National University of Science and Technology similarly had vacancy rates of 64% and 53%
respectively as of 2009. The high vacancy rates at the universities have resulted in a high lecturer –
student ratio. A case in point is the situation at the University of Zimbabwe’s College of Health
Sciences where lecturers conducting clinical hospital ward lessons were overseeing between 30 - 50
students, instead of the recommended 5 students. Due to the massive brain drain, many faculties and
departments at the state tertiary institutions are increasingly finding it difficult to continue offering
certain courses. Indications are that further loses of lecturers without replacement could lead to
further reduction in the number of courses offered.

The loss of trained and experienced professionals is of growing concern, as it has negatively
impacted on service delivery. Universities, technical and teachers’ colleges have not been able to fulfil
their mandates of adequately providing trained human resources for the labour market. In the same
vein, Zimbabwe is gradually losing the value of its investment in education. The skills flight and the
subsequent shortage of qualified manpower have also negatively impacted on capacity utilization in
industry. Before the introduction of the multi-currency regime in February 2009, it was reckoned that
on average capacity utilization in industry was below 10%. It is also worth noting that the flight of
skilled workers has further lowered the level of attractiveness for foreign direct investment and human
capital formation and growth.

The Government of The Republic of Zimbabwe – Draft Policy

While government has put in place policy responses to stem brain drain, indications are that existing
policy polices are not having a significant impact on the retention and return of professionals that have
left for greener pastures abroad.

Zimbabweans in the Diaspora

Although no systematic headcount has been undertaken, it is estimated that around 4,000,000
Zimbabweans are living abroad, the majority having left in the past five to six years. There are
indications that most Zimbabweans have migrated to South Africa, Botswana, Namibia, United
Kingdom, United States of America, Australia and New Zealand. It is also reckoned that the greater
proportion of these people represent the country’s professionals and academics.

Given the recent national socio-economic and political context and the nature of the push factors
responsible for the recent wave of emigration, there has been some disjoint between the government
and some sections of Zimbabwe’s diaspora community. It is noteworthy that the formulation of the
inclusive government has ushered in a new era resulting in the willingness to build bridges between
the government and the diaspora community. Further, the government is cognizant of the fact that
some members of diaspora community reckon that they have been left out of the national processes
in Zimbabwe and are not given the recognition that they deserve.

While there is the realization that the Zimbabwean diaspora represents social, intellectual and political
capital, a pool of knowledge and expertise which is of immense benefit to various sectors of the
Zimbabwean economy it has been noted that the country does not have accurate information on the
location and profile of the Zimbabweans in the diaspora. It is acknowledged that efforts to harness
and tap into this pool of expertise may be hampered by the absence of a database of Zimbabweans
abroad by their locations and skills areas.

While it is noteworthy that an institutional framework based in the Office of The Prime Minister has
been created within government to coordinate and spearhead the national migration and development
strategy, which among other things includes spearheading the diaspora engagement effort, the
government fully acknowledges the need to put in place measures and policies that ensure effective
diaspora participation in national reconstruction and development.

Voting Rights & Dual Citizenship

Remittances

Remittances from the Zimbabwean diaspora have the potential to benefit the national development
process. Remittances are an invaluable source of income and foreign exchange earnings, especially
for a country like Zimbabwe which has experienced foreign exchange constraints over the past
decade.

Remittances are also less volatile than private capital flows, and may even rise during recessions,
helping to stimulate vulnerable economies. They are also more likely to reach areas of the economy
and society that are relatively untouched by official development assistance (ODA) and private capital
from overseas investors. Further, they generate positive multiplier effects, as recipient households
increase their consumption of local goods and services, thereby stimulating production (and
employment) in local industry. Depending on their volume and consistency, remittance flows can
support a country’s balance of payments and enhance its creditworthiness.

In recent years, remittances have assumed great importance in Zimbabwe. According to a recent
study, about 80% of Zimbabweans in Northern England remit monies back home. Another study by
International Fund for Agricultural Development revealed that, in 2006 the Zimbabwean diaspora sent
US$361 million back home. This amount excludes informal transfers. It is reckoned that most
households have been sustained by remittances in the past few years. A recent study established that
more than half of urban households in Harare and Bulawayo were dependent on migrant remittances
for everyday consumption.

While in absolute terms, the remittances to Zimbabwe appear small in comparison to other countries,
the inflows to Zimbabwe are high as a percentage of GDP, constituting 7.2%of GDP in 2007. The

The Government of The Republic of Zimbabwe – Draft Policy

relative importance of remittance income in the economy is also typified by its contribution to GDP in
comparison to Overseas Development Assistance, Foreign Direct Investment and selected economic
sectors (agriculture, manufacturing, mining and tourism) during the period 2002-2007 (Table 2).

Table 2: Percentage Contribution to GDP

Year Remittanc ODA FDI Agricultur Manufact Mining Tourism
es e uring
2002 2.4 1.3 26 15.2 13.1 3.8 16.4
2003 3.2 2.4 4 16.9 12.2 3 12.7
2004 5.9 3.6 9 15.6 11.2 3.6 9.8
2005 6.6 10.9 103 17 15 4 11.2
2006 6.9 4 40 16.7 21.6 4 10.3
2007 7.2 5.4 31 15.3 9.02 3.2 7.6
Source: IFAD, World Bank, RBZ, Ministry of Industry & International Trade- Investing in
Zimbabwe 2005, ZIMCODD Web statistics.

Officially recorded remittance flows have grown from 2.4 percent of GDP in 2002 to 7.2 percent in
2007, surpassing in most periods ODA contributions to GDP. Investments in the mining sector,
especially platinum mining, continue to influence the FDI contribution. If unrecorded informal
remittances (estimated at 60 percent of total remittance flows) are taken into account, the picture
changes significantly.

As noted above, a large percentage of remittances are sent through informal channels. One of the
reasons for the failure to attract substantial remittances through formal channels lies in the high
transaction costs of transferring money through official channels. This is mainly due to the absence of
competition in the money transfer industry which is dominated by a few players. The lack of trust by
both remitters and recipients in the financial system is also contributory to the choice of informal over
formal channels.

Thus, Zimbabwe stands to benefit from instituting policies that encourage the transmission of
remittances through formal means. Concomitant with measures that encourage and facilitate the
transmission of remittances through formal channels should be policies that seek to increase the flow
of remittances from the diaspora. Such measures will ensure that the development potential of
remittances is maximized for national development.

Labour Migration

With very high unemployment in Zimbabwe, migration has increasingly become a survival strategy for
many Zimbabweans. Consequently, the number of Zimbabwean workers abroad has grown in leaps
and bounds over the past few years. Whilst there are obvious benefits to be derived from the process
of migration in general and labour migration in particular, there are concerns over the manner in which
it is currently unfolding.

Labour migration is heavily associated with loss of special skills across the economic sectors. Further,
it is characterized by its clandestine nature, especially into neighbouring countries South Africa and
Botswana. Prior to the introduction of the special dispensation permit for Zimbabweans by the
authorities in that country, South Africa was the major destination of undocumented migrants from
Zimbabwe. While the special dispensation permit has halted deportations of undocumented migrants
from South Africa, the majority of unskilled migrants in that country continue to face poor working
conditions. Botswana continues to return undocumented Zimbabwean migrants, with an average of
4,600 being deported to Zimbabwe every month.

Due to their irregular status, labour migrants are vulnerable to various forms of exploitation and
abuse, ranging from unfair labour practices to sexual abuse. In addition to the exploitation they suffer
in destination countries, migrant workers also face challenges around social integration, a factor that
exposes them to xenophobic attacks and limited access to social services, particularly health care.
The wave of violent attacks on foreign nationals in South Africa in May 2008 displaced about 15,000
people, the majority being Zimbabweans. At least 62 people were killed in the violence. In November
2009, scores of Zimbabwean farm workers were displaced in the Western Cape, South Africa, as a
result of xenophobic attacks. In view of the serious violations of human and labour rights of

The Government of The Republic of Zimbabwe – Draft Policy

Zimbabwean migrant workers, xenophobic and racist attacks in South Africa, deportations protection
of migrant rights has become a priority at the national level.

Currently Zimbabwe does not have a labour migration policy to promote good governance and
effective regulation of labour migration, and protecting migrant workers with a view to maximizing its
development benefits for Zimbabwe, and migrant workers themselves. It therefore follows that there is
need to take measures to ensure that Zimbabwe and its citizens gain from labour migration.

Irregular Migration

In recent years there has been an upsurge in irregular (undocumented) migration of predominantly
youths from Zimbabwe to neighbouring countries, notably South Africa and Botswana. While precise
data on the extent of this exodus is lacking, the increase in deportations from South Africa and
Botswana is a proxy to the magnitude of the phenomenon. Prior to the introduction of the Special
Dispensation Permit which allows Zimbabweans to enter South Africa and seek for work, about
14,000 Zimbabwean irregular migrants were deported through Beitbridge border post every month.
Between June 2008 – May 2009, IOM recorded 53,650 cases of Zimbabwean returnees (irregular
migrants) from Botswana whom the organization provided with assistance. Of this figure 68.4%
(36,727) were male while 31.6% (16,923) were female. In 2008 IOM registered a total 126,229 cases
of returnees at the Beitbridge Reception and Support Centre coming from South Africa. Of this figure,
109,630 cases were male while 16,599 were female.

According to a survey conducted by IOM among deportees at Beitbridge, the main reason given for
irregular migration was the difficulty associated with securing travel documents (passports and visas).
Despite the well known dangers and risks of irregular migration, the prohibitive costs of securing
travel documents or visas and/or the fact the offices issuing the passports/visas are located in towns
that are a considerable distance from the respondents were contributory to the decision migrate
without proper documentation. These are more prone to abuse and exploitation on the journey, to and
from, and in the receiving country. Reports abound of women and girls who have been raped while
jumping the border. Due to their irregular status, undocumented migrants are vulnerable to various
forms of exploitation and abuse, ranging from unfair labour practices to sexual abuse.

Informal Traders

Informal cross-border traders are small scale entrepreneurs who carry goods across one or more of
the borders in the region. They are called “informal” because they, generally, travel with their goods,
operate on a relatively small scale, do not access preferential tariff agreements, often buy and/or sell
in informal sector markets, do not always pass through formal import and export channels and may be
involved in smuggling. Factors driving the growth of informal cross-border trade in Southern Africa
include shrinking formal sector employment, declining living standards, rigorous and often
cumbersome import controls imposed on formal businesses.

Informal cross-border trade is increasingly becoming a viable source of livelihood. The sector not only
provides employment for traders and their employees in their home countries, but also in the
countries they trade in. Through backward and forward linkages, the sector also supports employment
in other sectors. Further, informal cross - border trade is contributing significantly to the transformation
of gender relations in the region by thrusting women into non-traditional areas of operation and into
the public arena.

Although immensely contributing to socio-economic development in the country informal cross-border

traders face a number of problems which are as a result of lack of formal recognition of this activity by
authorities in the SADC region. Owing to this non recognition, some informal cross-border traders
travel on “inappropriate” holiday/tourist visas and thus rendering them vulnerable as irregular
migrants. As long as informal cross-border traders do not have permits, which recognize and allow
them to conduct business in the region, they will still be operating illegally, as is currently the case.

Given the circulatory nature of migration and the high HIV prevalence in the region and the paucity of
HIV and AIDS interventions that address the specific vulnerabilities of this group, HIV and AIDS are
likely to have devastating impact on the sector and beyond.

The Government of The Republic of Zimbabwe – Draft Policy

Human Trafficking and Smuggling

Human trafficking is a violation of human rights, as it entails coercion, exploitation and abuse. It
involves the recruitment, transportation, transfer, harbouring or receipt of an individual for the
purposes of exploitation. Exploitation entails the prostitution of others or other forms of sexual
exploitation, forced labour or services, slavery or practices similar to slavery, servitude or the removal
of organs. Trafficking is a complex process that occurs within a country or across borders. In the
absence of national legislation to combat trafficking and the general lack of interstate cooperation to
address the problem, the investigation and prosecution of traffickers and the protection of trafficked
persons, is extremely difficult.

There is a global increase in the prevalence of human trafficking and smuggling to which Zimbabwe is
not immune. While a recent study by IOM and UNICEF established that information about human
trafficking in and from Zimbabwean is scant, it observed that trafficking of children is a serious and
growing problem in Zimbabwe and in the region, and that there is limited understanding of the
problem and its broader implications. Authorities and the public at large generally have a low
awareness of what trafficking is and what constitutes a crime and an infringement of children’s rights.

Members of the police noted that even within the police force, there exists no clear definition of this
practice. In addition, Zimbabwe does not have coordinated anti-trafficking policies, legislation or
programmes, and there is a lack of understanding of human trafficking and its broader implications
amongst policy-makers, law enforcement agencies, including police and border officials, local NGOs,
and the general public. The most notable instrument that addresses human trafficking is the UN
Protocol to Prevent, Suppress, and Punish Trafficking in Persons Especially Women and Children,
otherwise known as the Palermo Protocol, which the Government of Zimbabwe is yet to ratify.

The IOM/UNICEF study notes that girls who are trafficked are usually recruited for domestic work, or
may end up in the sex trade while boys most often end up on farms. Both boys and girls are also quite
often used to vend goods. In some cases boys who are taken to South Africa or who are recruited
after having crossed the border on their own are sometimes lured into gangs and are made to steal or
deal in drugs. These children are usually made to work long hours, for very little or no pay. Basic
needs are often not met and almost none attend school. Those children who escape from their
circumstances rarely benefit from counselling or other support, and the police and other stakeholders
note that they are ill-equipped to offer such support, or to even detect such cases.

CROSS BORDER MANAGEMENT

At the regional level, Zimbabwe as a member of SADC is bound by both the founding Treaty and its
Protocols. Of particular importance is the SADC Protocol on Facilitation of Movement of Persons. The
overall objective of this Protocol is to develop policies aimed at the progressive elimination of
obstacles to the movement of persons in into and within the territories of State Parties. An
assessment of the Protocol reveals that some of the concerns of Member States over the
implementation of the SADC Protocol on Facilitation of Movement of Persons include security and
cross border crime, differences in border policies and procedures and degree of computerization, lack
of infrastructure, and incompatibility of data collection systems. The assessment recommended that
States should aim to strengthen and enhance border management and border security by, inter alia,
setting regional standards for data collection and sharing; and standards for computerization of border
processing and for compatibility across the region, to facilitate communication and data sharing.

With the increased integration of the sub-region into the regional trade networks and being centrally
situated in the region, Zimbabwe is a transit country with busy ports of entry and exit. In this regard
Zimbabwe border posts are arguably the busiest in the SADC region, yet their capacity to adequately
manage cross border movement is currently hampered by the manual based system used to maintain
control over arrival and departure information. A recent assessment of Zimbabwe’s border posts
revealed that the data management system at the ports of entry/exit is weak, and that the Department
of Immigration lacks dependable communication networks.

While the Harare international airport has been computerized, there is need for a comprehensive
border management initiative that will ease the movement of both human and vehicular traffic
especially at such busy ports as Beitbridge, Chirundu, Nyamapanda Forbes and Plumtree. In addition

The Government of The Republic of Zimbabwe – Draft Policy

there is need to integrate the country’s border management system with those in use in countries that
share common borders with Zimbabwe.

Cross cutting Issues

Migration and Gender

Gender constitutes an important factor shaping migration. The increasing number of women migrants
is accounted for by the fact that migration provides new opportunities for both women and men. It is
important to note that many women are now moving independently of spouses or partners and it is
estimated that women account for almost half of all international migrants. The increasing feminization
of migration partly reflects the changing demands for particular types of skills especially in the service
industries and other female dominated professions.

While recognizing the new opportunities provided by migration to, both, men and women, it is
important to note that migration can also expose the same migrants to new vulnerabilities as a result
of their precarious legal status, abusive working conditions and exposure to certain health risks. The
impacts of migration for women and men depend on many factors, all of which have gender
implications. Gender also affects how migrants adapt to the new country, the extent of contact with
the original country and the possibility of return and successful reintegration.

Even where migration involves economic betterment for the individual, there still remain attendant
disadvantages which include deep gender discrimination in the host country. As the bulk of both
female and male migrants occupy the lowest jobs at the destination due to their migration status and
skill level, gender inequalities frequently combine with race/ethnicity, and foreign nationality, to make
many migrant women seriously disadvantaged, and most likely to be over-represented in marginal,
unregulated, and poorly paid jobs, which may lead to de-skilling of qualified migrants. Access to social
rights may be heavily constrained, and the migrant may be subject to sexual and racial harassment. It
is generally accepted that female migrants are generally more vulnerable than their male
counterparts.

Policies that link gender equality concerns with migration from a development perspective are rare in
most host countries. Government recognizes that women are also migrants and that the causes and
impacts of migration which are gendered, should be mainstreamed.
Migration and Health

The severity of the AIDS epidemic in Southern Africa cannot be overstated. Southern Africa is the
worst affected region with most countries experiencing adult HIV prevalence of between 15% and
39%. Zimbabwe’s HIV prevalence stands at 18.1%. Factors that explain the general picture of HIV
and AIDS in Southern Africa include poverty and economic marginalization; high rates of sexually
transmitted infections (STIs) and other opportunistic infections; sexual networking and patterns of
sexual contact, including high levels of concurrent sexual partners; the absence of male circumcision;
and the role of core transmission groups, such as commercial sex workers. It is reckoned that
perhaps the key factor explaining the rapid spread of HIV over the last decade is population mobility.

The system of circular (temporary/seasonal) migration, which exists in many countries of Southern
Africa increases the vulnerability of migrants to infection and greatly facilitates the spread of STIs and
infectious diseases such as TB. In Southern Africa, migrants and mobile populations work and live in
environments that are breeding grounds for unsafe sexual practices.

The temporary/seasonal nature of migration in the commercial farming sector in the SADC region
heightens the HIV vulnerability of migrants in this sector. Because of long periods away from home,
migrants engage in risky sexual practices in an environment where their access to condoms and
health facilities is limited. According to IOM studies, cross- border migrants from Mozambique and
Zimbabwe to the Limpopo/Mpumalanga commercial farming areas have close ties with their families
and places of origin and that they travel frequently back and forth across the South
Africa/Mozambique and South Africa/Zimbabwe borders respectively. For some, the border region is
a transit point on their way to urban destinations in South Africa.

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Measures to control the flow of migrants through legislative restrictions only drive migrants
underground and defeat many well - meant health programmes in both migrant receiving and sending
countries. One study contends that the majority of foreign migrants working on commercial farms in
South Africa are undocumented and apprehensive of any contact with authorities due to fear of
deportation. For this reason, the majority do not seek treatment (even for STIs) at health institutions
until they are seriously ill. As noted in the 2004 UNAIDS report, high levels of other STIs are a major
contributory factor to the high HIV prevalence in the SADC region, and prompt treatment of STIs
greatly reduces the probability of HIV transmission.

The migration process from the sending to the receiving country is arduous and fraught with life
threatening dangers. Cases of undocumented migrants being mauled by crocodiles/lions or trampled
by elephants have been documented. Thus, the life of a migrant is often about survival and/or pre-
occupied with securing basic necessities. In such situations, the imperatives of day-to-day survival
relegate HIV and AIDS to a low priority; HIV and AIDS are viewed as a distant threat.

It is important to note that due to the highly mobile nature of the SADC population, which to some
extent is unregulated, failure to deal with a communicable disease by one or some of the countries
will compromise efforts being made by other countries. There is need for simultaneous action by all
Member States. It is imperative therefore that Member States/SADC put in place bilateral/regional
policies that encourage people to migrate in a regular manner and harmonize access to treatment and
treatment protocols of communicable diseases. Standardizing treatment for communicable diseases
also enables patients to continue with treatment wherever they are in the region.

Policy Statement

The National Migration Management and Diaspora policy provides a coherent and effective national
framework which is the cornerstone and reference point for the Government of Zimbabwe and all
other stakeholders to respond to the challenges and opportunities presented by migration. Through
proffering concrete and practicable migration management policy recommendations the overall
objective of the National Migration Management and Diaspora policy is to maximize the development
impact of migration whilst mitigating its adverse impact.

BRAIN DRAIN AND REPATRIATION OF SKILLS

Policy Objectives
In a bid to provide adequate human resources needs for reconstruction and economic development,
there is recognition of the need to:

 Mitigate the flight of qualified professionals through skills retention programmes,

 Formalize the export of labour to maximize the benefits to the economy
 Harness remittance revenues being contributed by the diaspora
 Create a conducive investment platform and strategies for the diaspora
 Provide a framework for diaspora engagement on socio-economical developments in the
country

Policy Strategies

 Provide incentives to employers to attract skills in the diaspora and employ professionals,
highly skilled nationals and college graduates;
 Encourage nationals abroad to contribute to the development of the country through
facilitating short-term and permanent returns of qualified professionals for transfer of skills,
knowledge, financial resources, ideas and technology;
 Expand training in critical manpower shortage areas;
 Provide professional and skilled manpower with scholarships linked to local employment
opportunities;
 Enhance opportunities for career development for skilled manpower, through educational and
professional exchange programmes and other training or capacity building initiatives;
 Establish staff retention schemes and align conditions of service in the public sector to those
obtaining in the SADC region;

The Government of The Republic of Zimbabwe – Draft Policy

  Provide resources and necessary infrastructure for the sustenance of research and
development in all sectors of the economy;
 Formalize and operationalise the Skills Retention Fund.

DIASPORA ENGAGEMENT

Policy objectives
 Engage Zimbabwe’s Diaspora to take an active role in the process of rebranding Zimbabwe.
 To encourage the use of formal transparent and lucrative channels of remittances.
 Create formal, transparent and lucrative channels of investment and economic participation
by the Zimbabwean Diaspora.
 Resolve the citizenship and voting rights issues of Zimbabwe’s Diaspora using the on -going
constitution making processes.
 Assist members of Zimbabwe’s Diaspora to embark on a voluntary repatriation process.

Policy Strategies

 Establish a diaspora database that shows critical skills in the diaspora and where they are.
 The government may approach and engage critical skills under specific projects on short term
or long term basis.
 Establish sustainable and cordial networks with different categories diaspora associations and
organizations.
 Identify and engage Zimbabweans in top leadership posts in multilateral and regional
institutions with a view to tap into their established networks in order to advance the interests
of the country.

I) Investment Promotion

Policy Strategies
In order to provide Zimbabwean, and other, investors abroad with an environment
in which they can conduct their business profitably without incurring any unnecessary risk the
following strategies are proposed:

 Provide a stable macroeconomic environment characterized by policy consistencies and a

stable political environment.
 Create a predictable and non-discriminatory environment with absence of undue
administrative impediments to business.
 Provide sufficient and accessible resources including infrastructure such as roads, railways,
communication technology infrastructure, ICT, appropriate technologies and human capital to
assist operating companies to become competitive in the global market.
 Avail adequate frameworks and incentives for a healthy competitive environment such as
investor friendly tax regimes, tax holidays and concessionary taxes in order to ensure
competitive return on investments
 Remove obstacles to international trade and redress aspects of the tax system that
constitutes barriers to Diaspora investment.

II) Reintegration of Migrants

The major objective is to provide for the re-inclusion or re-incorporation of migrants into the society of
Diasporas living outside Zimbabwe who are willing to return back home.

Policy Strategies
 Implement effective immigration and custom related processes to avoid delays at border
crossing or airport
 Establish collaborative efforts between government and donor community to raise funds to
support the repatriation and reintegration programmes
 Link returnees with investors and developers to speed up their integration through planned
development and economic self sufficiency.

The Government of The Republic of Zimbabwe – Draft Policy

III) Voting rights

The major objective is to extend voting right to nationals outside their home country.

Policy Strategies
 Establish a One Stop Shop in Embassies with a sizeable number of the Diaspora Community,
to enable ease of voter registration and voting.
 Encourage all Zimbabweans to register as voters at either online or at a nearby Embassy of
Zimbabwe to vote in all elections and referendums in the Nation Constitution making process.

The One Stop Shop Unit should also be equipped to provide the following services registration of
voters in their original constituencies in Zimbabwe, issuance of birth certificates, replacement of lost
IDs, issuance of passports and emergency travel documents, legal and other assistance with
repatriation of both living and deceased, Investment Opportunities in Zimbabwe, employment
Opportunities in Zimbabwe, Diaspora participation in the Constitution making process and
National Healing programme

Policy Objectives
The main goals are to:

 Increased participation of Zimbabweans in the Diaspora in the country’s development process

 Increase the remittance flows from the Diaspora through the creation of a conducive
environment in Zimbabwe

Strategies
 Provide a conducive legal and regulatory framework that facilitates and encourages the
inward transmission of remittances from the diaspora through formal channels.
 Amend the Constitution and the Citizenship Act [Chapter 4:01] to allow

for dual citizenship of Zimbabweans

 Extend voting rights to Zimbabweans in the diaspora.
 Improve the quality of data on migration statistics (including remittances) in order to create a
solid basis for evidence based migration management interventions.
 Enter into Bilateral and multilateral agreements with countries where significant Zimbabwean
Diasporas live and engage financial institutions within Zimbabwe to negotiate the lowering of
transaction costs of remittances hence encourage large volumes of transfers through official
channels.
 Develop Diaspora bonds to be marketed as attractive investment instruments for individuals
and companies in the Diaspora.
 Engage financial institutions within Zimbabwe to lower transaction costs of remittances with a
view to increasing volumes of transfers through official channels.

Labour Migration

Policy Objectives
 To formalize labour migration for national socio-economic development.
 To promote the welfare and rights of labour migrants.

Strategies
 Advocate for the harmonization of the SADC Trade Protocol and regional agreements on
Investment on one hand, and the Protocol on the Facilitation of the Movement of Persons
within SADC on the other. This would address the possible negative impact of migration
resulting from the movement of goods and capital.
 Promote and formalize the export of labour in specific skill areas through bilateral agreements
with host governments and explore and establish mechanisms for the transfer and
repatriation of social security benefits for retired returnees domiciled in Zimbabwe
 Enter into bilateral/multilateral agreements with receiving countries/economic blocs to
promote the rights of Zimbabwean migrant workers and formalize taxation arrangements.

The Government of The Republic of Zimbabwe – Draft Policy

  Deploy Labour Attaches, in migrant receiving countries, whose major responsibilities would
be to oversee the protection of the general welfare of workers abroad, identify job
opportunities and provide counsel in issues pertaining to employment;
 Develop information sources for migrants and aspiring migrants.
 Strengthen government’s capacity to facilitate and supervise the recruitment activities of
private employment agencies and individuals offering employment abroad.

Irregular Migration

Policy Objectives
The policy objective is to

 Facilitate the safe and legal migration of migrants.

 Provide communities in high migrant sending areas with alternative livelihood opportunities so
as to lessen the pressure to migrate.

Strategies
 Improve availability, accessibility (proximity) and affordability of travel documents.
 Decentralize the issuance of national identity documents and birth registrations
 Address the root causes of economically motivated migration in high migrant sending areas,
through the promotion of micro-enterprises and livelihoods projects

Informal Cross-border Trade

Policy Objectives
 Facilitate the formal recognition of informal cross-border traders as players in the mainstream
economy.
 Improve the working environment of informal cross-border traders.
 To promote and protect the human rights and the well-being of informal cross-border traders.

Strategies
 Recognize and facilitate movement of informal cross-border traders
 Negotiate bilateral preferential import tariffs for Zimbabwean informal cross-border traders
 Initiate bilateral agreements that provide for a business permit to allow the movement of
informal cross-border traders between countries without hindrance.
 Simplify and expedite customs clearing procedures through computerization and
harmonization of procedures on both sides of the border posts, for example introduction of
one-stop border posts.
 Open busy border posts for longer hours.
 Train uniformed personnel (immigration and customs officials) periodically on migrant rights.
 Grant equal access to treatment of communicable diseases.
 Ensure equal access to treatment of communicable diseases (including STIs/HIV) for all
SADC nationals, regardless of legal status.
 Advocate for the provision of affordable VCT and STI treatment for all SADC nationals within
the region, regardless of legal status.
 Harmonize treatment protocols for communicable diseases in line with the SADC Protocol on
Health
 Advocate for the standardization of treatment protocols for communicable diseases, including
TB and STIs/HIV in the region.
 Initiate and coordinate national dialogue on informal cross-border traders and HIV and AIDS
 Initiate, coordinate and monitor HIV and AIDS initiatives (policies, programmes and research)
on informal cross-border traders in collaboration with relevant stakeholders.
 Promote national/regional programmes that address communicable diseases among informal
cross-border traders and other circular migrants.
 Include informal cross-border traders (and other mobile and migrant workers) in national TB
and HIV and AIDS policies and programmes.
 In collaboration with neighbouring countries, promote/strengthen cross-border TB and HIV
and AIDS initiatives in border areas/high transmission areas targeting informal cross-border
traders and other vulnerable groups.

The Government of The Republic of Zimbabwe – Draft Policy

  Develop TB and HIV and AIDS education materials in appropriate languages/appropriate
levels of education.
 Include informal cross-border traders on the national TB and HIV and AIDS agenda
 Formulate national policies and implement TB and HIV and AIDS programmes that target
informal cross-border traders and other vulnerable groups (including customs/immigration
officers, customs clearing agents, commercial sex workers, truck drivers, informal traders,
money-changers, local border-town residents and deportees).
 Improve accessibility of passports and other documents required to obtain passports by
decentralizing the Registrar General’s office to district level: provide birth registrations at
hospitals and clinics).

Human Trafficking and Smuggling

Policy Objective
The human trafficking policy thrust seeks to give due recognition to and raise awareness of the
existence of this phenomenon among law enforcement and related stakeholders while also providing
the legal instruments with which to enforce the law against offenders.

Strategies
 Develop legislation that directly addresses trafficking and smuggling;
 Ratify and domesticate the Palermo Protocol and other related instruments.
 Improve availability, accessibility and affordability of passports, and other documents required
to obtain passports,
 Accede to and domesticate relevant international conventions on trafficking and smuggling
protocols
 Implement joint border management strategies within neighbouring countries to stem
traffickers and other related criminals.
 Capacitate law enforcement agents to deal with human trafficking.
 Provide support to groups of particularly vulnerable children in line with the existing national
plans such as the National Action Plan for Orphans and other Vulnerable Children.

Cross-border Management

Policy Objective
The major policy objective is to strengthen and facilitate the smooth movement of traffic (human and
vehicular) across border posts

Strategies
 Establish/strengthen bilateral and regional cooperation on cross-border management
 Improve exit and entry point technology and infrastructure (border management) to keep
abreast with international developments.
 Build capacity and technical infrastructure to facilitate one-stop border posts at busy ports to
facilitate the movement of vehicular and human trafficking.

Migration and Gender

Policy Objectives
The policy thrust is to address the gender dimensions of migration.

Strategies
 Domesticate and implement international instruments that offer protection for women
migrants, e. g. Convention on the Elimination of All Forms of Discrimination Against Women
(CEDAW);
 Forge bilateral agreements with receiving countries on women migrants’ rights generally, and
covering women entering categories of work where they might face more abuse of their rights
(such as domestic and sex work).
 Disseminate information about safe migration through various media (brochures, posters,
billboards, radio, television, road shows, films and other public forums) and at regional and
international levels;

The Government of The Republic of Zimbabwe – Draft Policy

  Provide support for the acknowledgement and realization of the rights of migrants throughout
the migration process, including providing pre-departure information on legal rights, facilitating
remittances, ensuring access to basic services such as housing, education and health;
 Establish resource centres at foreign missions so that migrants and migrant women in
particular, can access information on, migrant rights, migrants’ access to social services in
host countries and how to deal with abuse.
 Provide gender sensitive economic opportunities in major migrant sending areas;

Migration and Health

Policy Objectives
The policy objective is to address the factors that militates against the prevention, treatment
and cure of communicable diseases among migrants and communities in both sending and
receiving areas.

Strategies
 Ratify and domesticate the UN International Convention on the Protection of the Rights of All
Migrant Workers and Members of Their Families
 Ensure equal access to treatment of communicable diseases (including STIs/HIV) for all
SADC nationals, regardless of legal status.
 Advocate for the provision of affordable VCT and STI treatment for all SADC nationals within
the region, regardless of legal status.
 Addressing HIV comprehensively amongst migrants will also contribute towards the
universally agreed Millennium Development Goal of halting and reversing the spread of HIV
by 2015.
 Harmonize treatment protocols for communicable diseases in line with the SADC Protocol on
Health
 Advocate for the standardization of treatment protocols for communicable diseases, including
TB and STIs/HIV in the region.
 Promote national/regional programmes that address communicable diseases among
migrants.
 Include migrant workers in national TB and HIV and AIDS policies and programmes.
 In collaboration with neighbouring countries, promote/strengthen cross-border TB and HIV
and AIDS initiatives in border areas/high transmission areas targeting migrant workers.
 Develop, implement and enforce regional immigration agreements that regularise the
movement and employment of people across borders. Regularising employment will facilitate:
the formulation, implementation and monitoring of minimum working and living conditions for
foreign migrants or will grant them protection under existing labour legislation; increased
access to healthcare services including VCT and treatment; increased access to social
services; and iv. worker mobilization by trade unions.
 Negotiate bilateral agreements on migrant workers
 Advocate for, develop, implement and enforce bilateral immigration agreements that
regularize the movement and employment of people across borders. Regularizing
employment of migrant workers would facilitate: the formulation, implementation and
monitoring of minimum working and living conditions for foreign migrants and will grant them
protection under existing labour legislation; increased access to healthcare services (including
TB, HIV, VCT and treatment of STIs); increased access to social services; and e) worker
mobilization by trade unions.
 Within the framework of bilateral immigration agreements, make provision for married foreign
migrants to be accompanied by their families to receiving countries and/or facilitate frequent
contact between migrants and their families.

The Government of The Republic of Zimbabwe – Draft Policy