Early intervention matters

Germany’s reliance on workers from third countries is growing rapidly. Even today, we are seeing shortages of both skilled and unskilled workers in the healthcare and care sectors, construction, logistics and the skilled trades. Demographic changes mean this demand will only increase. However, another growing problem has long been overlooked: migrant workers frequently face the risk of exploitation – in many cases even before they reach their new workplace in Germany, with abuse beginning during recruitment in their home countries. 

High fees, false promises and limited agency 

Although the German Federal Employment Agency (BA) runs official recruitment programmes, the majority of work placements in Germany are arranged by private employment agencies. Alongside reputable agencies, there are also unscrupulous actors advertising misleading job offers, providing opaque contracts and charging excessive fees – with brokerage costs in the thousands not uncommon. Many migrant workers find themselves in debt, dependent on intermediaries, who also act as creditors, and on employers who are fully aware of the limited options their employees have. Those with little knowledge of their rights, poor language skills and only temporary residence status are particularly vulnerable.

A new policy framework – but many unanswered questions remain

In early 2025, the German government adopted a National Action Plan against Labour Exploitation and Forced Labour (NAP A/Z) – the first comprehensive policy framework aimed at addressing these problems preventatively. One of the NAP’s priorities is to implement measures protecting foreign workers during the recruitment stage.

These measures include improving information provision in workers’ countries of origin, strengthening monitoring and control mechanisms throughout recruitment, and promoting closer cooperation with partner countries. The crucial question, however, is whether these steps will effectively prevent unfair practices at an early stage and genuinely focus on safeguarding the interests of migrant workers themselves.

Protection needs cooperation that transcends borders 

Drawing on perspectives from key Eastern European and African countries of origin, this Policy Brief – Working in Germany : shaping fair recruitment - preventing exploitation – shows that regulating transnational recruitment chains within national borders is extremely difficult. On 16 September 2025, in cooperation with the Service Centre against Labour Exploitation, Forced Labour and Human Trafficking, the FES held the international conference Preventing Exploitation – Securing Decent Work: Approaches to Fair Recruitment. One of the key findings from the conference discussions was the urgent need for transnational approaches to protection and cooperation. 

Trade unions, advice centres and diaspora organisations all play a key role here. These actors are well placed to inform migrant workers about the risks of unfair recruitment practices at an early stage and help them exercise their rights. Involving these organisations would also help prevent abuse more effectively. 

Making fair recruitment a policy priority

Reforms aimed at improving the recruitment of workers from abroad often focus too heavily on simplifying the legal and administrative process. While further simplification would certainly be welcome, the German government’s planned “Work and Stay Agency” should also include instruments designed to better protect workers from unfair recruitment.

Beyond this, the German government should push harder for the joint regulation of private recruitment agencies, especially those based abroad, with binding licensing procedures and systematic controls, including at the EU level, and should provide more consistent support for international approaches to fair recruitment. 

This FES Policy Brief makes it clear that fair recruitment is not an optional add-on but a core prerequisite for ensuring decent work. It combines political debate with the practical experience of trade union actors from both Germany and key countries of origin, highlighting where progress has been made – and where urgent action is needed in line with the NAP A/Z.

David Kipp is a Senior Associate for the Global Issues Research Division at the German Institute for International and Security Affairs (SWP), where he is part of the development-oriented Strategic Refugee and Migration Policy project. He is a co-author of the SWP study Germany is Looking for Foreign Labour and has further explored labour recruitment in another SWP study A Migration Miracle? Indian Migration to Germany.