Loren B. Landau
Johannesburg, 5th July 2017
South Africa’s National Assembly recently passed a bill to set up a new border management agency. The Border Management Authority will fall under Home Affairs, a government department long distinguished by its lack of respect for immigrant and refugee rights. But there are other, deeper causes for concern. Whereas previously, police and customs officers were under strict (if not always effective) civilian oversight, this new agency will be able to circumvent constitutional constraints. Broader changes to immigration and asylum policies are also in the works, such as a “risk-based” vetting system that could be used to justify barring most people from entering the country overland. Bolstering these efforts are plans to detain asylum seekers at processing centres dotted along the border.
South Africa’s new border management strategy has equivalents across the continent that likely do little to prevent smuggling and human trafficking or to stop terrorism – the justifications often used for such securitisation. Instead, they help reinforce authoritarian leadership and undermine regional governance initiatives. In the longer term, they are likely to impact development. Free movement – within countries or to neighbouring areas – is central to people finding work and surviving in these precarious times.
Constraints on such movement, whatever the source, are fundamentally anti-poor and anti-freedom. They treat migrants as suspected criminals, rather than as people legitimately seeking protection or employment. Many of these policies are being implemented with aid from the European Union and strong domestic support. Countries like Eritrea already maintain a repressive “exit visa” system while Central African Republic, Ethiopia, Niger, and Sudan are all planning enhanced border management strategies, including bio-metric tracking and militarisation. Containment era Militarising the margins has become an integral plank in the continent’s new approach to “migration management”. Following the Valletta Summit in late 2015, the EU created a trust fund that is funnelling billions of euros of development aid through bilateral arrangements with African states, including those with appalling human rights records, such as Sudan and Eritrea. Legitimised by a language of sovereignty, greater border controls are part of an emerging containment era in which Africans’ movements – not only towards Europe but even across the continent – are becoming pathologised and criminalised. There are continental variations. Some countries and sub-regions are less committed to control than others, but so-called containment development is undeniably on the rise. In this new developmental mode, success is measured primarily by the ability to keep people at home.
Critics of this approach focus heavily and justifiably on the migrants condemned to camps and detention centres, and the growing numbers who die before reaching their destination. Others note the extraordinary growth in a range of unsavoury professions: smuggling, kidnapping, and trafficking. Although often tinged with an alarmism driven by moral outrage or professional interest, these stories of exploited people and extinguished lives need to be told. Yet focusing exclusively on the migrant victims of new containment technologies and practices, risks overlooking their implications for the continent’s governance and all Africans’ human rights. At the very least, the kind of bilateral arrangements various African countries are signing with the EU will scupper African Union plans to promote easier and safer movement within the continent. They will similarly curtail free movement policy proposals circulating within sub-regional economic communities.
While the Economic Community of West African States (ECOWAS), already has a working protocol, it has been compromised by fears of terrorism and EU-funded programmes to deter migration through the region. In the Southern African Development Community (SADC) and the East African Community (EAC), proposals modelled on the ECOWAS framework are now less likely to move forward. This domesticates politics in ways that weaken the regional governance mechanisms needed to address collective development concerns and negotiate more favourable global trade positions. In place of multilateralism, we are likely to get stronger militaries and more authoritarian leaders. Indeed, directing aid and weapons to existing leadership in the region will almost certainly erode democracy and heighten insecurity and instability.
Growth industry. What is perhaps most worrying is how emergent border management approaches are likely to extend and proliferate beyond borders. Efforts promoted by the EU, with complicity from many African leaders, effectively seek to limit movement and freedom across and within countries. Europe fears that any movement – typically towards cities – will beget further moves, some of which will be towards the European motherland.
The EU’s new migration-linked development aid emphasises the need to create local opportunities so people need never move. The results are likely to be increased investment in rural areas. While not in itself a bad thing, such spending will be distorted by the desire to fix people in place. African leaders may care little about migration towards Europe, but under these new agreements they risk losing aid money if they fail to control populations within their borders. And ongoing urbanisation can also present a political challenge to their power. Maintaining people in situ – not only within their countries but within “primordial” rural communities – helps maintain systems of ethnic patronage and prevents unruly urbanites from protesting at the presidential gates. Securitised border management of the kind South Africa is mooting is a gateway to the kind of containment strategies the EU is promoting. Within this new paradigm, millions will be detained in facilities across Africa or condemned to die along land and water borders. Smuggling, trafficking, and corruption will blossom in place of trade that could increase prosperity. Overseeing this will be politicians empowered by military aid windfalls and a global community without the moral authority to condemn their human rights abuses.
The vast majority of Africans who have no European fantasies will live in decreasingly democratic countries. The African Union and regional campaigns promoting development through accountable institutions and freer movement will also likely lead nowhere. The results – heightened inequality within and between countries, along with increased poverty and likelihood of conflict – will create precisely the pressures to migrate that Europe hopes to contain.
Loren B. Landau