Social Security Protection for Workers in the Informal Economy in Light of ILO Recommendations

Authors

DOI:

https://doi.org/10.25159/2521-2583/20338

Keywords:

social security law, social protection, informal economy workers, Basic Income Grant, Namibia, Mauritius, International Labour Organization

Abstract

South Africa’s social security schemes systematically exclude workers in the informal economy, despite their significant contribution to the labour market and the constitutional guarantee of access to social security. This paper critically examines the legal and policy frameworks underpinning this exclusion, concentrating on the coverage gap for unemployed individuals aged between 18 and 60. Drawing on international standards, particularly International Labour Organization Recommendations 202 and 204 and comparative insights from Namibia and Mauritius, the paper explores two main pathways for reform: a targeted Basic Income Grant (BIG) and the adaptation of the Unemployment Insurance Fund (UIF) to include informal economy workers. The study argues that a means-tested BIG, together with flexible contribution and eligibility models for UIF, can provide inclusive and sustainable protection. The findings highlight the need for rights-based reforms that align domestic policy with constitutional and international obligations, advancing the progressive realisation of social security for all.

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Published

2026-02-18

How to Cite

Kgaphola, Justice Mokgwati, and Kamalesh Newaj. 2026. “Social Security Protection for Workers in the Informal Economy in Light of ILO Recommendations”. South African Yearbook of International Law, February, 41 pages. https://doi.org/10.25159/2521-2583/20338.

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Articles