Politics of International Labor Migration and the Survival of (Illegal) Brokers in Indonesia

Abstract

Indonesian labor migration is a multifaceted process heavily influenced by private actors, particularly brokers who operate both within the bounds of legality as recruitment agencies and outside it as illicit recruiters. These brokers are frequently accused of exploiting Indonesian migrant workers, leading to government efforts to limit their roles. However, despite legislative efforts, such as the 2017 law aimed at restricting the roles of labor-recruiting companies and illegal brokers, these intermediaries persist. Drawing on the concept of brokerage and the Theory of Strategic Action Field, this article explains why brokers remain despite legislative challenges. This study also argues that state regulations inadvertently create structural holes, thereby providing brokers with opportunities to maintain their involvement in labor migration. Through 56 in-depth interviews with various actors—including current and former migrant workers, recruiters, recruitment agencies, civil society organizations (CSOs), and government officials—the study illuminates how the Indonesian government’s framing of "procedural migration” contains inherent loopholes. Brokers then exploited these gaps to legitimize their presence and assert control over workers’ destinies. These brokers adeptly adapt to regulatory changes and influence migration.