Types of ZSR
Inequality
How ZSR can be implemented:
- Compensation, as monetary and/or in-kind (e.g. housing) benefits, should be offered to all those who have lost livelihoods due to the development of the zone, not just to those who lost land. Focus should be on those with lower social and economic status, assuring compensation payments reach them in full.
- Local measures should be put in place to cushion negative impacts for those with lower social and economic status, including (re-)training schemes and financial literacy education to encourage investment of compensation funds in the development of sustainable livelihoods.
- Opportunities to work in factories established in the SEZ should be sufficiently offered to local women and men.
- Benefits of zone development resulting from expansion of urban infrastructure should, as much as possible, be spread across the whole SEZ area.
Overview of the problem:
Urbanisation, dispossession and in-migration can heighten existing inequalities in and around SEZs. Faced with uncertain outcomes, those with higher social and economic status are better able to respond to such changes. For example, those who can prove ownership of land before SEZ construction – usually those of higher social standing within their communities – are in a better position to receive compensation during land acquisition. Landless labourers, by contrast, are unlikely to receive any form of recompense or resettlement.
With increasing urbanisation, this pattern is exacerbated as those in possession of (or able to buy) alternative land can make use of escalating real estate prices, for example by building rooms to let to incoming migrant workers and benefiting from associated increases in housing costs. Those with capital to invest can also engage in new commercial ventures, including offering services to the growing urban population. By contrast, those who have lost all access to land, and in the worst cases received no compensation, find it hard to find alternative stable incomes.
This pattern is exacerbated in cases where infrastructure development benefits only some villages or local areas, and where industries show a preference for hiring only some groups of locals, or prefer employing migrants over locals. Landless locals find it harder to survive in the transitional economy in the absence of alternative employment opportunities. In some zones, there is a preference for hiring either women or men, or only those from a certain age group. Meanwhile, migrants are often exploited within factories and may also be subject to extortionate rent regimes in local communities. Where migrants belong to already marginalised groups, ethnicities or tribes, they are likely to have limited social power among the dominant locals, and concentrations of specific groups in certain sectors can exacerbate ethnic or other tensions.
Examples:
In the areas surrounding the Lekki Free Zone, in Nigeria’s Lagos State, economic and social inequality has increased since 2010, including between locals and in-migrants. The Yoruba ethnic group is dominant in the region, and tend to extract higher rents from non-Yorubas from other parts of the country. By contrast, it is migrants who capture most of the better-paid factory jobs in the zone, while locals who are employed there tend to work as security guards, gardeners and cleaning staff (Adunbi, 2022). Local young men, known as omo-onile (‘sons of the soil’), now disaffected and without formal occupation, have turned to extortion of funds from those buying or upgrading property in the area, or even parking their car at the roadside. Some have also targeted investors in the Lekki Free Zone (Goodburn, Knoerich, Mishra & Calabrese, 2024).
Although few locals have found formal sector employment in the Lekki Free Zone, more have benefited economically from the broader development of the local area. An influx of migrant workers has provided rental opportunities to local communities, with wealthier omo-onile constructing ‘face-me-face-you’ blocks of rooms to let, and the villages nearest the zone have seen an increase in market stalls, street vending and small enterprises. Population increase has thus led to commercial development in the area, benefiting those locals who could afford to construct rooms or engage in small businesses. Those without the capital to invest in construction or entrepreneurship have not experienced the same benefits, leading to complaints of increased inequality (Goodburn, Knoerich, Mishra & Calabrese, 2024).
Around Liaoshen Industrial Park in Kapeeka, Uganda, economic and social inequality have increased since the zone’s establishment in 2015 (Wyrod, 2019). Many locals have experienced significant indirect economic benefits from the park. Local agricultural markets have considerably expanded, both to supply the zone’s food processing plants and to cater to the demands of the rapidly increasing local population. Another major benefit for locals is the growth of the market for rental housing in Kapeeka and surrounding villages. Market stalls, street vending and small enterprises such as entertainment and catering have all also boomed. Kalagala, one of the villages nearest the zone, has seen its quiet bi-weekly market expanded to a lively daily market until well after dark (Goodburn, Knoerich, Mishra & Calabrese, 2024). However, migrants from northern Uganda have lower social status than Baganda locals and are more willing to work long hours under harsh conditions for low pay in the zone. Those who fail to find sustainable jobs in Liaoshen’s factories often end up as domestic servants or farm labourers for wealthier Baganda locals (Goodburn, Knoerich, Mishra & Calabrese, 2024). These distinctions may exacerbate long-standing Ugandan ethnic divisions.
Assembly line jobs in the factories of India’s Sri City were available to only specific groups of locals, typically women aged 18-25 with an education to at least age 16. Local men, by contrast, were seen as disruptive and were forced to find work outside the zone. Where this was not possible, households became dependent on the temporary earning power of one daughter. Protests broke out in 2010 over the failure of the zone to provide at least one job per household, as promised during land acquisition (The Hindu, 2010).
Wealthier former farmers with larger landholdings received enough compensation for their land to enable them to capitalise on opportunities from zone development (Aggarwal & Garg, 2024). They upgraded their homes by adding extra rooms, and in better located, wealthier and higher-caste villages, rented these rooms out to white-collar in-migrants, thus gaining a new source of income. For most villagers, however, expanding homes to offer rental accommodation was infeasible financially and practically, especially in villages further from the industrial sites and lacking paved roads or access to public transport.
The industrial city and SEZ of Noida, in India’s Uttar Pradesh, has at least three forms of inequality generated or exacerbated by industrial development. First, because the city has attracted large-scale in-migration since the 1980s, many former landowners have developed lucrative new livelihoods providing rental and other services to migrants, whereas former landless farm labourers have struggled to generate sustainable incomes (Bali & Bhatia, 2021). A second form of inequality is that between wealthy villagers and impoverished blue-collar migrant workers, who may be exploited for rent, food and other services in villages as well as on the factory floor (Mishra, forthcoming). A third form is the economic and cultural gulf between villagers and the new professional urban elites who have taken up residence in the new, gated urban estates, with exclusive access to leisure and other amenities (Das & Kumar, 2023).
The dispossession of local villagers from their farmlands for SEZ establishment in 2001 in Polepally, Telangana, exacerbated existing inequalities between Dalit communities (India’s lowest castes) and upper caste groups, with the former faring worse inter-generationally and becoming locked in debt traps (Agarwal and Levien, 2019). Nearly all of those who lost land were from backward castes, while those of higher status were spared dispossession. Dalit households also suffered disproportionately from the uncompensated acquisition of common grazing land, on which many had depended, with nearly three-quarters having to liquidate all their livestock (Agarwal and Levien, 2019). By contrast, upper-caste families who had retained most of their landholdings were able to engage in land speculation, cementing their economic dominance.
The case of China:
The construction of SEZs, and economic development more generally, has led to increased inequality in China. In particular, location-based inequalities have been exacerbated, since villagers whose homes were located more centrally within new urban developments received much larger compensation payments when their urban villages were upgraded. Other forms of inequality were generated through corruption and clan-ism, with compensation sometimes based on informal or kinship networks rather than legal entitlements (Wang, 2016).
However, because of extensive land redistribution from the 1940-50s, China has not faced the problem of landless labourers losing livelihoods as SEZs are developed and being unable to access any form of compensation. The availability of collectively-owned farmland and related assets, and the relatively equitable distribution of compensation for these, as well as dividends from shareholding in joint stock companies formed to manage assets on collectively-owned land, has contributed to comparatively widespread satisfaction with zone development among locals in China (Tong et al., 2021).
For migrant factory labourers, despite precarious living conditions and often exploitative working conditions, the large improvement in incomes meant that most were able to remit significant funds to their home villages, contributing to development and wealth creation there as well as in economic zones and urban areas. Some migrants also engaged in service economies that grew up around zones.
Locals in most Chinese urban villages tended to be better off than migrants, as a result of compensation, shareholdings and increasing land and real estate prices. Where economic development zones were established, remaining non-acquired collectively owned land often enabled households to benefit from shares in new residential and commercial developments on that land. Where villagers had to be resettled, they were usually provided with resettlement apartments, including often an additional apartment to let out for the purposes of income generation. Sometimes, training centres were provided to assist farmers in transitioning to urban work (Kan, 2021; Kan & Chen, 2022).
Many villagers constructed accommodation for migrant workers, facilitated by the exclusion of formerly rural villages from urban planning regulations. Building and renting out rooms has been so lucrative that many locals have purchased property elsewhere and left the village altogether (Liu et al., 2010). As these new financial opportunities led to a generally favourable view of SEZs among locals, discontent has centred not on zone development but on later attempts by municipal governments to redevelop the urban villages, depriving locals of these opportunities to generate revenue (Zhang, 2011).
China-associated zones overseas
There is no evidence that China-associated zones have any specific impacts on inequality in the local area, compared with any other types of SEZs or industrial parks. However, there may be concerns that China-associated zones increase inequalities between Chinese firms and local businesses and entrepreneurs, making it difficult for local businesses to compete with those from China (Goodburn, Knoerich, Mishra & Calabrese, 2024). Chinese firms may have access to more advantageous credit lines in China, or may benefit from informal preferential policies for Chinese investors by host nations, allowing them to develop larger SEZ operations or to squeeze host country companies out of zones. Where producing within a host-country SEZ allows Chinese firms to sell to the domestic market without import duties, there may also be concerns about the impacts on local producers and retailers (see, for example, AP News, 2017 and Musoke, 2017 for reports of related protests in Uganda in 2017).
Further reading
Johnston, M. F. (1999). Beyond regional analysis: Manufacturing zones, urban employment and spatial inequality in China. The China Quarterly, 157, 1-21.
Mendoza, O. M. V. (2016). Preferential policies and income inequality: Evidence from special economic zones and open cities in China. China Economic Review, 40, 228-240.
Hornok, C., & Raeskyesa, D. G. S. (2024). Economic zones and local income inequality: Evidence from Indonesia. The Journal of Economic Inequality, 22(1), 69-100.