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The Experience of Mexico in Documenting Guatemalan Border Workers. Second RCM Workshop on Temporary Foreign Worker Programs (TFWP): Intra-regional or “South-South” Approach Dominican Republic, April 28-29 , 2011. Ernesto Rodríguez Chávez Centre for Migration Studies - PowerPoint PPT Presentation
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The Experience of Mexico in Documenting Guatemalan Border
Workers
Ernesto Rodríguez ChávezCentre for Migration Studies
Instituto Nacional de Migración [National Institute of Migration]
Second RCM Workshop on Temporary Foreign Worker Programs (TFWP): Intra-regional or “South-South” Approach
Dominican Republic, April 28-29, 2011
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OBJECTIVE:
To analyze the conditions and characteristics of Guatemalan border workers in southern Mexico that are relevant to the definition and implementation of specific immigration documentation schemes.
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Intense cross-border family life, trade, services, and labour. 19th – 21st century.
Historical presence of Guatemalan workers in agriculture in southern Mexico, particularly in the region of Soconusco, Chiapas: 20th – 21st century.
Border mobility and autonomy of some regions between Guatemala and Mexico: 19th century. Current border 1882.
Guatemalan workers in various activities, without the required documentation. Expansion in the last decade of 20th century and 21st century.
High presence of informal trade in border areas. 20th – 21st century.
Highly permeable border due to insufficient infrastructure and lacking presence of authority to manage the international movement of persons, hundreds of pedestrian crossings and over 50 informal vehicle crossings. 21st century.
HISTORICAL BACKGROUND
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Permissiveness about the settlement of colonists and recruitment of foreign workers: late 19th century to early decades in 20th century.
Banning the entry of unskilled labour, including agricultural labour: Migration Act of 1930.
Deregulation in the 60s and 70s.
Lists of workers negotiated with the authorities by employers through recruiters, only once and for a specific workplace. 80s and 90s.
Visiting Agricultural Worker Migration Form (FMVA) 1997-2008. Only for Chiapas and a specific workplace. It is complemented by previous lists partially registered in Guatemalan employment centres.
BACKGROUND REGARDING IMMIGRATION DOCUMENTS, GUATEMALAN WORKERS IN SOUTHERN MEXICO:
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QUALITATIVE EVIDENCE Migrant workers who work in the southern part of Mexico are
primarily from Guatemala, although there is information on the presence of some Hondurans and Salvadorans.
Essentially they DO NOT establish their permanent residence in Mexico and the time they spend in the country varies according to the distance between their place of origin and workplace and/or available resources. Mainly, there are daily crossings and stays of less than a month.
There are more historical, geographic, and population connections between some areas of Chiapas (Mexico) and Guatemala than between the low and high or central areas in Chiapas.
Presence by Mexican States and Sectors
SECTORES O ÁREAS DE ACTIVIDAD ENTIDAD AGRICULTURA GANADERÍA CONSTRUCCIÓN COMERCIO SERVICIOS
CHIAPAS X X X X X QUINTANA ROO X X X TABASCO X X X X X CAMPECHE X X
4Source: National Institute of Migration - INM.
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Documented flows (FMTF)
Documented with FMVL (local
visitor)
Tabasco, Quintana Roo
and Campeche Chiapas
Undocumented flows
Agricultural: coffee, mango, orange, papaya,
plantain, sugar cane
Other sectors: trade, construction, services,
etc.
FLOWS OF GUATEMALAN WORKERS IN MEXICO
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QUALITATIVE EVIDENCE
Source: National Institute of Migration - INM.
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Intense and varied short stay migration circularity
Source: National Institute of Migration - INM. Preliminary estimates based on data of EMIF SUR, 2010. Flows from Mexico to Guatemala. INM, CONAPO, COLEF, STPS and SRE.
GUATEMALANS WHO WORKED IN CHIAPAS AND RETURNED, EMIF SUR, 2010 (Jan-Sep)
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QUANTITATIVE EVIDENCE
• Most have 3 or more years work experience in Mexico. 79% began working in Chiapas in 2007 or earlier.
• 72% had never worked in Guatemala.
Up to 24 hrs.38%
1 -15 days16%
16 days - 1 mo.28%
1 mo. – 1 yr.
18%
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Activity Sector, by Length of Stay(Includes documented and undocumented workers)
Total
44%
22%
16%
12%
5%
1%
Source: National Institute of Migration - INM. Preliminary estimates based on data of EMIF SUR, 2010. Flows from Mexico to Guatemala. INM, CONAPO, COLEF, STPS and SRE..
GUATEMALANS WHO WORKED IN CHIAPAS AND RETURNED, EMIF SUR, 2010 (Jan-Sep)
20% are self-employed workers, mainly ambulatory salespersons
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QUANTITATIVE EVIDENCE
56% in non-agricultural work
70 50 30 10 10 30 50 70
Industry, Manufacturing
Services, Transport
Household Work
Industry, Construction
Trade
Farming
%Up to 24 hours More than 1 day
70 50 30 10 10 30 50 70
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Local visitor (FMVL) (permission to stay for 72
hours, not to work) 62% - 201072% - 2007
FMTF (authorizes work with multiple entries)
21% - 201010% - 2007
Without immigration documents 17% - 201018% - 2007
Source: National Institute of Migration - INM. Preliminary estimates based on data of EMIF SUR, 2010. Flows from Mexico to Guatemala. INM, CONAPO, COLEF, STPS and SRE.
Immigration Status
• Undocumented immigrants do not use “coyotes” to cross the border due to easy access.
GUATEMALANS WHO WORKED IN CHIAPAS AND RETURNED, EMIF SUR, 2010 (Jan-Sep)
Worker has worked without immigration document authorizing this activity. 79% - 201090% - 2007
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QUANTITATIVE EVIDENCE
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Where do they come from and what is their destination in Chiapas?
CHIAPAS
San Marcos
Retalhuleu 4 %
Quetzaltenango 8%
GUATEMALA
Suchitépequez 5%
Huehuetenango 18%
Border Region 17%
Soconusco Region 82%San Marcos 63%
GUATEMALANS WHO WORKED IN CHIAPAS AND RETURNED, EMIF SUR, 2010 (Jan-Sep)
Source: National Institute of Migration - INM. Preliminary estimates based on data of EMIF SUR, 2010. Flows from Mexico to Guatemala. INM, CONAPO, COLEF, STPS and SRE. 9
Main destination cities in Chiapas:• Tapachula• Suchiate• Cacahoatán• Tuxtla Chico
Destination:• City – 58% • Farm or ranch – 42%
QUANTITATIVE EVIDENCE
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Where do they come from and what is their destination in Chiapas?
CHIAPAS
Soconusco Region 42%
GUATEMALAN AGRICULTURAL WORKERS DOCUMENTED BY INM WITH FMTF 2010
San Marcos
Quetzaltenango
GUATEMALA
Suchitépequez
Alta Verapaz
San Marcos
Huehuetenango
Frailesca Region 45%
Source: Centre for Migration Studies of the National Institute of Migration based on immigration records, 2010.
Cd. Hidalgo Cd. CuauhtémocFrailescaLa Concordia 328 Km. 328 Km.Ángel Albino Corzo 449 Km. 380 Km.
Distance from Border
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QUANTITATIVE EVIDENCE
Main destination regions and municipalities in Chiapas:
Frailesca Region (IV): • La Concordia• Ángel Albino Corzo
Soconusco Region (VIII):• Mazatán• Tapachula• Hidalgo Border
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2010-2007 (vs.) 2000-1990- 61%
GUATEMALAN WORKERS DOCUMENTED BY INM IN BORDER CROSSINGS IN CHIAPAS, 1990 - 2010
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0
10.000
20.000
30.000
40.000
50.000
60.000
70.000
80.000
90.000
100.000
1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010
Average 70,000
Average 42,000
Average 28,000
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An indicator of:• Deterioration of the agricultural labour market in Chiapas.• Increase in labour informality in the region.• Movement to non-agricultural sectors.• Existence of a binational formal labour market, regardless of
the immigration procedures that are in force.
Recent Characteristics and Trends in Documentation for Guatemalan Border Workers, 1990 - 2010
Guatemalan Agricultural Workers (FMVA) (1997 – March
2008)• Chiapas• Agricultural sector • Valid for one year• Employment offer
required
Border Workers (FMTF) (April 2008 to date)
• Chiapas, Tabasco, Quintana Roo and Campeche
• Any economic sector• Valid for one year• Employment offer required
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ALTERNATIVE FOR DECISION-MAKING ON MIGRATION POLICY
RECENT STATUS OF GUATEMALAN MIGRANT WORKERS IN SOUTHERN MEXICO
ALTERNATIVES
Maintain the status quo
Recognize the reality and promote a legal stay for workers
The most viable way to provide certainty and facilitate the protection of the rights of workers is to provide migration documents in a broad and flexible manner. However, this is not enough. 13
Try to block the border
Temporary worker programme
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EXPANDED AND IMPROVED IMMIGRATION DOCUMENTS
To facilitate cross-border life in southern Mexico and the binational regional development
Expanding Immigration Form for Local Visitors
(FMVL)
Immigration Form for Border Workers
(FMTF)
Migration Regularization Programme 2008-2011
New technologies for immigration documents
Electronic entry and exit records
Contributes to national and regional border security.
Contributes to the protection of the rights of migrants.
Basis: Acknowledging the Existing Reality
MIGRATION PROGRAMME FOR THE SOUTHERN BORDER
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FINAL CONSIDERATIONS
.
Given the current conditions and history of the Mexican southern border, the mobility of Guatemalan workers occurs according to the economic dynamics in the region with a binational formal labour market.
FMTF has advanced in managing the flows of Guatemalan migrant workers and defending their rights. However, this does not guarantee the enforcement of labour and social rights.
Various employers, mainly coffee growers, have adopted partial or specific schemes to provide health care and education to migrant workers and/or their companions.
Changes in rules and agreements between Mexican government agencies are
required as well as binational agreements with Guatemala in terms of contributions to social security and its portability from one country to another.
FMTF shows interest in a migration policy oriented towards migration regulation and flexibility.
However, thousands of undocumented workers are still entering, as well as others without a work permit, although there is evidence of the beginning of a gradual change.
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Primary Challenges:
2. To direct crossings to formal points of entry.
3. To improve migration records and controls.
4. To improve infrastructure and equipment.
6. To increase coordination and cooperation between Mexican federal and state entities.
To address the demands arising from cross-border
life in a comprehensive manner, in terms of
facilitating mobility, rights, and security.
1. To achieve an increased and improved documentation of Guatemalan migrant workers.
7. To increase coordination and cooperation with Guatemala. 16
5. To obtain contributions and access to social security for workers, within a context of high labour mobility.
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