‘State Brokerage’ in Migration Infrastructure: A Case of State-Led Multilevel Governance of the Employment Permit System in South Korea

Abstract

This paper examines ‘state brokerage’ in migration infrastructure through South Korea's Employment Permit System (EPS). It introduces the concept of state-led multilevel governance (sMLG)—a synthesis of multilevel governance (MLG) and state transformation (ST)—as a framework for understanding state brokerage, thereby contributing to the greater diversity in migration infrastructure scholarship. By analyzing state archival documents, the paper examines how South Korean state has developed a governance framework that spans multiple political-territorial boundaries through state transformation. The transformation encompasses forging diplomatic relationships with foreign governments and orchestrating cross-border policy collaborations as well as (re)arranging domestic governance by establishing new institutions, enacting and revising laws, and reconfiguring the relationships among these entities. These processes have allowed the EPS to facilitate the migration of less-skilled labor without the involvement of private actors.