Guest workers and development–security conflict: Managing labour migration at the Sino-Vietnamese border

Abstract

This article investigates the increasing development–security conflict in China’s immigration management through the case of a policy trial regularizing Vietnamese labour migration in two Guangxi border cities. China’s border regions host low-income immigrant labourers from neighbouring nations. In the 2010s, China launched a series of policy initiatives to regulate temporary and irregular migrant flows. Based on fieldwork and policy research, this study analyses the development and early implementation of this trial, with a focus on state perspectives. It shows how state actors mobilize migrant temporariness and other policy tools within a negotiation process that aims to resolve tensions between developmental policy aims for transnational economic integration and a drive towards securitizing cross-border mobility. I conclude that state actors fail to reach a balance between the conflicting development and security concerns. I also argue that China’s current risk-averse policy environment makes the development–security policy conflict in its immigration management more difficult to resolve. My findings contribute to our understanding of contemporary Chinese policymaking, including immigration policymaking, as well as to the literature on the development–security nexus in temporary labour management schemes.