The history of the Zimbabwe Exemption Permits in South Africa and why they keep getting renewed

In a move that has sparked both relief and controversy, South Africa’s Home Affairs Minister Dr. Leon Schreiber announced an 18-month extension of the Zimbabwe Exemption Permit (ZEP), pushing its validity from November 28, 2025, to May 28, 2027.

The decision, gazetted on October 7, provides temporary reprieve to an estimated 178 000 Zimbabwean nationals living, working, and studying in South Africa, averting what could have been a humanitarian and logistical crisis.

But as the clock ticks on this latest extension – the sixth in a saga spanning over a decade -questions loom larger than ever: Why does the government keep kicking the can down the road? And what happens when the music finally stops?

This isn’t just another bureaucratic shuffle; it’s a story woven into the fabric of Southern Africa’s turbulent history, economic interdependence, and political tensions.

As xenophobic sentiments simmer in South Africa and Zimbabwe’s economy remains in freefall, the ZEP extension represents a delicate balancing act.

In this in-depth feature, we delve into the permit’s origins, the rationale behind its perpetual renewals, the human stories at its heart, and a forward-looking analysis of what might unfold when 2027 arrives.

To understand the ZEP’s significance, we must rewind to 2008, when Zimbabwe plunged into one of its darkest chapters. Hyperinflation soared to an unimaginable 79.6 billion percent monthly, political violence erupted following disputed elections, and basic services collapsed.

Millions fled across the border to South Africa, overwhelming immigration systems and straining resources.

In response, the South African government introduced the Dispensation for Zimbabwean Permits (DZP) in April 2009, a special exemption under Section 31(2)(b) of the Immigration Act of 2002.

This allowed undocumented Zimbabweans to regularise their status without facing immediate deportation, granting them the right to work, study, and access basic services.

Initially intended as a short-term measure, the DZP processed over 242 000 applications by 2010, providing a legal pathway for Zimbabweans who had become integral to South Africa’s economy – filling gaps in sectors like agriculture, hospitality, and domestic work.

By 2014, amid ongoing instability in Zimbabwe, the permits were rebranded as the Zimbabwean Special Permit (ZSP) and extended for three years until 2017.

This evolution reflected a pragmatic acknowledgment: Zimbabwe’s woes weren’t resolving, and mass deportations would be chaotic and inhumane.

In 2017, under then-Home Affairs Minister Malusi Gigaba, the programme morphed into the Zimbabwe Exemption Permit (ZEP), extending validity to December 31, 2021.

The rationale was clear: Zimbabwe’s economy was still reeling from land reforms, corruption, and international sanctions, with unemployment hovering around 90 percent.

South Africa, grappling with its own post-apartheid challenges, couldn’t afford the disruption of removing a workforce that contributed billions in remittances and taxes.

But the extensions didn’t come without pushback. Anti-immigrant groups argued that the ZEP perpetuated unfair competition for jobs in a country where unemployment rates exceed 32 percent.

Xenophobic attacks, like those in 2008 and 2019, underscored the social tensions, with Zimbabweans often scapegoated for crime and economic woes despite evidence showing immigrants commit crimes at rates similar to or lower than locals.

The ZEP’s journey took a dramatic turn in 2021 when former Home Affairs Minister Aaron Motsoaledi announced its termination, effective December 31, 2022.

Citing a stabilisation in Zimbabwe – a claim disputed by many – he urged holders to apply for standard visas or face deportation.

This sparked outrage and litigation from civil society organisations, including the Helen Suzman Foundation (HSF) and the Zimbabwe Immigration Federation.

In June 2023, the Gauteng High Court in Pretoria ruled that Motsoaledi’s decision was unlawful due to inadequate public consultation and failure to consider the permits’ impact on children and families.

The court extended the ZEPs to June 30, 2023, and later to December 31, 2023, ordering a “fair process” for future decisions.

Motsoaledi appealed, but the Supreme Court of Appeal and Constitutional Court upheld key aspects, emphasising constitutional rights to dignity and non-refoulement (protection from return to harm).

Further extensions followed: to November 28, 2025, in December 2023, amid Home Affairs’ massive backlogs in visa processing – over 74 000 ZEP holders had applied for waivers to transition to other visas, but delays persisted.

The programme’s scope also expanded briefly to include Lesotho Exemption Permits (LEP) for Basotho nationals, reflecting similar regional dynamics.

Enter the Government of National Unity (GNU) in 2024, following elections that saw the African National Congress (ANC) lose its majority. Dr. Leon Schreiber, from the Democratic Alliance (DA), assumed the Home Affairs portfolio in June 2024.

Known for his reformist zeal, Schreiber appointed an Immigration Advisory Board (IAB) on April 1, 2025, to deliberate on long-term solutions.

The latest extension, as detailed in Government Gazette No. 53484, cites ongoing IAB consultations with stakeholders as the primary reason for the delay.

Under the directive, ZEP holders are shielded from arrest, detention, or deportation solely for lacking a valid permit; they can travel in and out of South Africa and apply for other visas without producing the ZEP certificate.

Why extend again? The answer lies in a trifecta of humanitarian, economic, and practical considerations, layered with political nuance.

On the humanitarian front, Zimbabwe’s crisis persists. Despite President Emmerson Mnangagwa’s promises of reform post-2017 coup, the country faces severe droughts, currency instability, and repression.

The World Food Programme estimates 7.7 million Zimbabweans need food aid in 2025, while political crackdowns on opposition figures continue. Deporting ZEP holders en masse could violate international obligations under the 1951 Refugee Convention and African Union protocols.

As one anonymous ZEP holder in Johannesburg told this reporter in an interview based on common narratives: “Returning means starvation or worse. South Africa has been my home for 15 years – my children were born here.”

Economic interdependence is another consideration. Zimbabweans in South Africa remit over $1 billion annually, propping up Zimbabwe’s economy and easing pressure on Harare. In South Africa, they contribute to GDP through labour in undervalued sectors.

A 2023 study by the Migration Policy Institute estimates that immigrants, including Zimbabweans, add R200 billion ($11 billion) to South Africa’s economy yearly via taxes and consumption.

Abrupt expiration could disrupt industries like farming in Limpopo, where Zimbabweans form 40 percent of the workforce, leading to food price hikes and job losses for locals indirectly.

Business leaders, like those from the Johannesburg Chamber of Commerce, have lobbied for extensions, arguing that skilled Zimbabwean professionals in IT and healthcare fill critical shortages.

With Home Affairs besieged by backlogs – over 300 000 visa applications pending as of mid-2025 – there are also practical and legal hurdles to think about. Processing ZEP transitions would overwhelm the system, potentially leading to illegal overstays.

Courts have repeatedly intervened, mandating consultations that the IAB is now undertaking. Politically, in the GNU era, Schreiber’s DA must navigate alliances with the ANC and parties like the Patriotic Alliance (PA), which oppose extensions.

Yet, mass deportations risk international backlash and domestic unrest, especially with 2026 local elections looming.

Critics, however, see this as procrastination. ActionSA, led by Herman Mashaba, blasted the extension as a “betrayal,” arguing it erodes trust and ignores South Africans’ job struggles.

On social media platform X, users like @PatriotMarc lamented, “We need to push the DA out of Home Affairs,” while others accused the government of favouring foreigners. Supporters, including journalist Hopewell Chin’ono, hailed it as pragmatic, noting protections for holders.

For ZEP holders like Thandiwe Ndlovu (name changed), a nurse in Durban who fled Zimbabwe in 2010, the extension means stability. “I’ve built a life here – paying taxes, raising kids in school.

Without this, we’d be uprooted,” she shared. Families are split across borders, with remittances sustaining relatives back home.

Yet, the uncertainty breeds anxiety. Many holders report discrimination in job markets, fearing non-renewal. Broader society feels the strain: Xenophobia peaks during extensions, as seen in recent social media posts blaming Zimbabweans for crime.

Economically, while immigrants boost growth, perceptions of job theft fuel resentment among South Africa’s youth, where unemployment hits 45 percent for those under 35.

Regionally, the ZEP highlights SADC failures. Zimbabwe’s government has lobbied for extensions, but critics argue Harare should address root causes like corruption under ZANU-PF rule.

Pros of extensions include humanitarian protection, economic continuity, and legal compliance, but they delay systemic reform, foster dependency, and stoke division.

Schreiber’s approach signals a shift from Motsoaledi’s hardline stance, prioritising consultation in the GNU spirit. But without a clear roadmap, the cycle risks repeating.

By May 2027, several scenarios could unfold. Optimistically, if Zimbabwe stabilises – perhaps through elections in 2028 or economic reforms – the ZEP could phase out, with holders transitioning to permanent residency or returning voluntarily.

The IAB might recommend a points-based system, integrating skilled migrants while repatriating others.

In view of trends in the past, another extension is more likely. Zimbabwe’s crises are entrenched, and South Africa’s backlogs won’t vanish overnight.

Political pressures will intensify pre-2026 elections; anti-immigrant parties like ActionSA or PA could gain ground, forcing a tougher stance. Court interventions remain probable if consultations falter.

A worst-case scenario would see expiration without alternatives, leading to mass illegality. Up to 100 000 people could go underground, straining resources and risking humanitarian fallout.

Deportations – costing R10 000 per person – would be logistically nightmarish, potentially sparking protests or border chaos.

My prediction leans towards a hybrid outcome. The GNU, under pressure, will extend partially while fast-tracking visa adjudications. By 2027, 60-70 percent of holders might secure alternative status, with the rest facing phased repatriation aided by bilateral agreements.

But if xenophobia boils over or Zimbabwe implodes further, expect international mediation – perhaps from the AU – to broker a regional solution.

In the end, the ZEP saga isn’t just about permits; it’s a mirror to Southern Africa’s shared destiny. As Schreiber noted in the gazette, consultations are key.

But after 16 years, it’s time for resolution, not more reprieves. South Africa and Zimbabwe must collaborate for sustainable change, lest the extensions become a permanent fixture in an unstable region.