USDOL – US Department of Labor (Autor): „2019 Findings on the Worst Forms of Child Labor: Angola“, Dokument #2040497

In 2019, Angola made a moderate advancement in efforts to eliminate the worst forms of child labor. The government approved the Law on Trafficking Victims Protection, which provides comprehensive protections for human trafficking victims, including specific measures for the protection of children. In addition, the government convicted 15 individuals of child trafficking crimes, and the Ministry of Social Action, Family, and the Promotion of Women conducted several national awareness-raising campaigns regarding the worst forms of child labor. The government also approved its first National Action Plan to Prevent and Combat Trafficking in Persons, and began opening registry offices in maternity wards throughout all 18 provinces to facilitate birth registrations. However, children in Angola engage in the worst forms of child labor, including in commercial sexual exploitation, sometimes as a result of human trafficking. Children also perform dangerous tasks in construction. Although Angola made meaningful efforts in all relevant areas during the reporting period, prohibitions against the commercial sexual exploitation of children do not meet international standards because they do not prohibit the procuring or offering of a child for the production of pornography or the use, procuring, or offering of a child for pornographic performances. In addition, there are not enough labor inspectors to provide sufficient coverage of the workforce, and social programs do not target all sectors in which children work.

I. Prevalence and Sectoral Distribution of Child Labor

Children in Angola engage in the worst forms of child labor, including in commercial sexual exploitation, sometimes as a result of human trafficking. (1-4) Children also perform dangerous tasks in construction. (1,5) The 2015–2016 Survey on Multiple Health Indicators found that 23 percent of children, ages 5 to 17, engage in child labor. The percentage of children engaged in child labor is higher in rural areas compared to urban areas; Cuanza Sul and Cuando Cubango provinces have the highest percentage of child laborers. (6) Table 1 provides key indicators on children's work and education in Angola.

**Table 1. Statistics on Children's Work and Education**
Children	Age	Percent
Working (% and population)	5 to 14	15.1 (1,246,354)
Attending School (%)	5 to 14	69.4
Combining Work and School (%)	7 to 14	13.6
Primary Completion Rate (%)		46.2

Source for primary completion rate: Data from 2011, published by UNESCO Institute for Statistics, 2020. (7)
Source for all other data: International Labor Organization's analysis of statistics from Demographic and Health Survey (DHS), 2015–2016. (8)

Based on a review of available information, Table 2 provides an overview of children's work by sector and activity.

**Table 2. Overview of Children's Work by Sector and Activity**
Sector/Industry	Activity
Agriculture	Farming, including plowing, planting, and picking tomatoes, harvesting vegetables, and the production of rice (1,5,9,10)
	Fishing, including artisanal fishing, and cleaning fish for deep freezing or sun drying (1,11,12)
	Cattle herding (1,4)
	Production of charcoal (13)
Industry	Artisanal diamond mining (1,4)
	Mining coal (1)
	Construction, including making and transporting bricks† (1,5)
	Slaughtering animals,† including cattle, goats, and pigs (14)
Services	Street work, including vending, car washing, shoe shining, and transporting heavy loads† (1,5,9,10)
	Domestic work (1)
Categorical Worst Forms of Child Labor‡	Commercial sexual exploitation, sometimes as a result of human trafficking (1-4)
	Forced labor, including in agriculture, construction, artisanal diamond mining, and domestic work, each sometimes as a result of human trafficking (4,9,15)
	Use in illicit activities, including for the transport of illicit goods across the border of Angola and Namibia (4)

† Determined by national law or regulation as hazardous and, as such, relevant to Article 3(d) of ILO C. 182.
‡ Child labor understood as the worst forms of child labor per se under Article 3(a)–(c) of ILO C. 182.

Undocumented Congolese migrant children enter Angola for work in diamond-mining districts, and some experience conditions of forced labor or commercial sexual exploitation in mining camps. (4) Girls as young as age 12 are trafficked from Kasai Occidental in the Democratic Republic of the Congo to Angola for forced labor and commercial sexual exploitation. Angolan boys are taken to Namibia and forced to herd cattle or work as couriers to transport illicit goods. (4) Reports also indicate that some adults force children younger than age 12 to commit crimes because children cannot be criminally prosecuted. (16)

In 2019, the National Association of Street Vendors reported that nearly 50 percent of street vendors in the country are children under the age of 18. These children are vulnerable to exploitative conditions, including commercial sexual exploitation. (17)

Education is free up to the ninth grade; however, families often face difficulty in paying informal school fees, such as for textbooks or fees paid to education officials. (18) Additional barriers to education for children include lack of classrooms and teachers and poor infrastructure. (19-22) Although the government only permits children without a birth certificate to attend school up to the sixth grade, programs to improve the rate of birth registration were conducted in all 18 provinces during the reporting year. (23)

II. Legal Framework for Child Labor

Angola has ratified all key international conventions concerning child labor (Table 3).

**Table 3. Ratification of International Conventions on Child Labor**
Convention	Ratification
ILO C. 138, Minimum Age	✓
ILO C. 182, Worst Forms of Child Labor	✓
UN CRC	✓
UN CRC Optional Protocol on Armed Conflict	✓
UN CRC Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography	✓
Palermo Protocol on Trafficking in Persons	✓

The government has established laws and regulations related to child labor (Table 4). However, gaps exist in Angola's legal framework to adequately protect children from the worst forms of child labor, including the prohibition of the commercial sexual exploitation of children.

**Table 4. Laws and Regulations on Child Labor**
Standard	Meets International Standards	Age	Legislation
Minimum Age for Work	Yes	14	Article 254 of the Labor Law (24)
Minimum Age for Hazardous Work	Yes	18	Articles 3(21) and 256 of the Labor Law (24)
Identification of Hazardous Occupations or Activities Prohibited for Children	Yes		Article 256 of the Labor Law; Hazardous Work List (24,25)
Prohibition of Forced Labor	Yes		Articles 18–19 and 23 of the Money Laundering Law (26)
Prohibition of Child Trafficking	Yes		Articles 19 and 23 of the Money Laundering Law (26)
Prohibition of Commercial Sexual Exploitation of Children	No		Articles 19 and 22–23 of the Money Laundering Law; Articles 197–200 of the Penal Code (26,27)
Prohibition of Using Children in Illicit Activities	Yes		Articles 4 and 7 of the Drug Trafficking Law (28)
Minimum Age for Voluntary State Military Recruitment	Yes	18	Article 11 of the Military Service Law (29)
Prohibition of Compulsory Recruitment of Children by (State) Military	Yes		Article 2 of the Military Service Law (29)
Prohibition of Military Recruitment by Non-state Armed Groups	No		Article 381 of the Penal Code (27)
Compulsory Education Age	Yes	14	Articles 12, 27, and 31 of the Basic Law of the Education System (30)
Free Public Education	Yes		Article 11 of the Basic Law of the Education System (30)

During the reporting period, the Government of Angola drafted a Trafficking Victims Protection law aimed at providing comprehensive protections for human trafficking victims.(16) The law includes specific measures for the protection of minor victims, including strengthening efforts to locate their families, ensuring access to education, providing victims with government legal representation, and facilitating social reintegration. The law was promulgated in January 2020. (16,31)

The Penal Code, approved in January 2019, criminalizes the use of children for the production of pornography; however, this legislation does not meet international standards because it does not prohibit the procuring or offering of a child for the production of pornography, or the use, procuring, or offering of a child for pornographic performances. (27) Although the list of hazardous activities and occupations identifies 57 activities prohibited for children, the legislation does not include diamond mining, a sector in which there is evidence of work conducted underground. (25)

III. Enforcement of Laws on Child Labor

The government has established institutional mechanisms for the enforcement of laws and regulations on child labor (Table 5). However, gaps exist within the operations of the Ministry of Public Administration, Labor, and Social Security (MAPTSS) that may hinder adequate enforcement of their child labor laws.

**Table 5. Agencies Responsible for Child Labor Law Enforcement**
Organization/Agency	Role
Ministry of Public Administration, Labor, and Social Security (MAPTSS)	Enforces laws against child labor. Fines employers or sends cases to the Ministry of Interior, through the Criminal Investigations Services, for further investigation, and to the Ministry of Justice and Human Rights for prosecution. (1) Employs labor inspectors in all 18 provinces to carry out inspections and joint operations with social services providers. (32)
National Children's Institute (INAC)	Receives complaints about cases of child exploitation, including child labor. Conducts inspections and responds to reports of child labor. (33)
Ministry of Interior's National Police	Enforces criminal laws, and conducts operations and investigations related to the worst forms of child labor. (1) Through its Criminal Investigation Services, collaborates with the Juvenile Court on child labor, child trafficking, commercial sexual exploitation, and illicit recruitment investigations. (34)
Ministry of Justice and Human Rights	Investigates and prosecutes cases of the worst forms of child labor. (1)

Labor Law Enforcement

In 2019, labor law enforcement agencies in Angola took actions to combat child labor (Table 6). However, gaps exist within the operations of the MAPTSS that may hinder adequate labor law enforcement, including the allocation of financial and human resources.

**Table 6. Labor Law Enforcement Efforts Related to Child Labor**
Overview of Labor Law Enforcement	2018	2019
Labor Inspectorate Funding	Unknown (34)	$210,000 (1)
Number of Labor Inspectors	117 (34)	132 (1)
Inspectorate Authorized to Assess Penalties	Yes (34)	Yes (1)
Initial Training for New Labor Inspectors	Yes (34)	Yes (1)
Training on New Laws Related to Child Labor	Yes (34)	Yes (1)
Refresher Courses Provided	Yes (34)	Yes (1)
Number of Labor Inspections Conducted	4,871 (34)	5,461 (1)
Number Conducted at Worksite	Unknown (34)	4,935 (1)
Number of Child Labor Violations Found	395 (12,35)	11(1)
Number of Child Labor Violations for Which Penalties Were Imposed	Unknown (34)	Unknown (1)
Number of Child Labor Penalties Imposed that Were Collected	Unknown (34)	Unknown (1)
Routine Inspections Conducted	Yes (34)	Yes (1)
Routine Inspections Targeted	Yes (34)	Yes (1)
Unannounced Inspections Permitted	Yes (34)	Yes (1)
Unannounced Inspections Conducted	Yes (34)	Yes (1)
Complaint Mechanism Exists	Yes (34)	Yes (1)
Reciprocal Referral Mechanism Exists Between Labor Authorities and Social Services	Yes (34)	Yes (1)

The 11 child labor violations reported by the government during the reporting year are currently under investigation. (1) In addition, research found that the National Children's Institute (INAC) registered over 700 cases of hazardous child labor during the first 3 months in 2019. (36)

Although the number of labor inspectors increased by 15 during the reporting period, the reported number of labor inspectors is likely insufficient for the size of Angola's workforce, which includes approximately 12.51 million workers. According to the ILO's technical advice of a ratio approaching 1 inspector for every 40,000 workers in less developed economies, Angola would employ about 313 labor inspectors. (1,37-39) Moreover, the MAPTSS indicated that the budget allocated for labor inspections was insufficient to conduct inspections in sectors in which child labor is known to occur. (1)

Inspectors from the MAPTSS work with INAC and the Ministry of Social Action, Family, and the Advancement of Women (MASFAMU) to ensure that child labor victims receive the appropriate social services. (1)

Criminal Law Enforcement

In 2019, criminal law enforcement agencies in Angola took actions to combat child labor (Table 7). However, gaps exist within the operations of the criminal enforcement agencies that may hinder adequate criminal law enforcement, including the sufficient training of inspectors.

**Table 7. Criminal Law Enforcement Efforts Related to Child Labor**
Overview of Criminal Law Enforcement	2018	2019
Initial Training for New Criminal Investigators	Yes (34)	Yes (1)
Training on New Laws Related to the Worst Forms of Child Labor	N/A (34)	N/A (1)
Refresher Courses Provided	Yes (34)	Yes (1)
Number of Investigations	9 (40)	10 (16)
Number of Violations Found	5 (41)	Unknown
Number of Prosecutions Initiated	5 (41)	Unknown
Number of Convictions	9 (41)	Unknown
Imposed Penalties for Violations Related to The Worst Forms of Child Labor	Yes (40)	Yes (16)
Reciprocal Referral Mechanism Exists Between Criminal Authorities and Social Services	Yes (34)	Yes (1)

The government did not provide disaggregated data on the number of violations or convictions found for the worst forms of child labor; however, research indicates that there were more than 70 cases of child trafficking registered during the first 6 months of 2019, with 15 secured convictions. (42) In addition, the government secured six trafficking in persons convictions in the Province of Cunene, including a sex trafficking case involving a 16-year-old female victim, for which the perpetrator received a 1-year sentence. The government also reported the prosecution of 26 individuals for human trafficking crimes, although it is unknown how many of these cases involved children. (16)

Angola's provinces have standard operating procedures that are used to inform INAC and MASFAMU officials whenever victims of the worst forms of child labor are identified. Both agencies use a network of 114 counseling and housing shelters to support victims and provide them with social services. (16) Child trafficking victims are also referred to the Ministry of Assistance and Social Reintegration shelters before a determination is made regarding their reintegration with their families or guardians. (1) During the reporting period, the government implemented IOM-recommended procedures on the proactive identification of human trafficking victims, using two separate manuals that were widely distributed and adapted specifically to law enforcement officials and civil society organizations. (16) Each manual includes procedures on the interviewing of potential victims and the screening of vulnerable groups, and how to assess risk, refer victims to social services, and care for victims. (16)

Although training for criminal investigators is an ongoing process for new and established employees, reports indicate that during the reporting period, training was insufficient, particularly training for investigators located outside the capital and in remote areas across the country. (1)

IV. Coordination of Government Efforts on Child Labor

The government has established mechanisms to coordinate its efforts to address child labor (Table 8). However, gaps exist that hinder the effective coordination of efforts to address child labor, including efforts to address all forms of child labor.

**Table 8. Key Mechanisms to Coordinate Government Efforts on Child Labor**
Coordinating Body	Role & Description
Commission to Combat Trafficking in Persons	Coordinates enforcement efforts on human trafficking, including child trafficking for labor and commercial sexual exploitation. Led by the Ministry of Justice and Human Rights. (1) In 2019, completed a draft of the National Action Plan to Prevent and Combat Trafficking in Persons. Conducted two training workshops in preparation for the Plan, and secured funding in the fiscal year's budget. (16)
National Council for Social Action	Promotes and defends children's rights through social consultation and monitoring of public policies. Led by the Ministry of Social Action, Family, and the Advancement of Women (MASFAMU). (43,44) Active in 2019, and met periodically to address objectives of the National Action Plan to Eradicate Child Labor. (13)
MASFAMU	Ensures coordination among various government agencies related to social welfare and victim protection. Oversees a national network of support centers established for the protection of children, offering health care, psychological care, legal and social assistance, meals, basic education, and family reunification for victims of crime, including victims of human trafficking. (1) In 2019, conducted awareness-raising campaigns to sensitize the public on the worst forms of child labor, including through the broadcast of television shows and national roadshows, specifically targeting rural populations. (1)
INAC	Coordinates child protective services. Works with MASFAMU to provide shelter and helps with family reintegration for children found in child labor situations. (1) In 2019, conducted numerous public awareness campaigns and distributed thousands of brochures in schools, children's shelters, and bus stations. (16)

Despite the existence of the Commission to Combat Trafficking in Persons, the government faces challenges aggregating and synthesizing data on human trafficking cases. (40) In addition, research shows that there is no specific coordinating mechanism dedicated solely to addressing issues related to the worst forms of child labor that are outside the scope of human trafficking.

V. Government Policies on Child Labor

The government has established policies related to child labor (Table 9). However, policy gaps exist that hinder efforts to address child labor, including implementation.

**Table 9. Key Policies Related to Child Labor**
Policy	Description
National Action Plan to Eradicate Child Labor (2018–2022)	Aims to eliminate child labor by strengthening the rights of children, increasing access to education, and mapping areas and types of child labor found across the country to better inform relevant policies to combat child labor. (45) In 2019, MAPTSS and MASFAMU conducted workshops and trained provincial and regional labor inspectors on policy objectives. (13)
Plan of Action and Intervention Against the Sexual and Commercial Exploitation of Children	Aims to protect and defend the rights of child victims of sexual and economic exploitation, including by providing rehabilitation. (45,46) Research was unable to determine whether activities were undertaken to implement the Plan of Action and Intervention Against the Sexual and Commercial Exploitation of Children during the reporting period.
National Action Plan on Preventing and Combating Trafficking in Persons†	Outlines Angola's strategy to address human trafficking, including domestic human trafficking. The 5-year plan commits to specific activities designed to improve the prevention, protection, and prosecution components involved in combating human trafficking. (47) Plan was published in February 2020. (47)

† Policy was approved during the reporting period.
‡ The government had other policies that may have addressed child labor issues or had an impact on child labor. (21)

Although the National Action Plan to Eradicate Child Labor was implemented by the MAPTSS and the MASFAMU during the reporting period, reports indicate that lack of resources hindered the government's ability to pursue many of the Plan's objectives. (1)

VI. Social Programs to Address Child Labor

In 2019, the government funded and participated in programs that include the goal of eliminating or preventing child labor (Table 10). However, gaps exist in these social programs, including the adequacy of programs to address the full scope of the problem.

**Table 10. Key Social Programs to Address Child Labor**
Program	Description
Social Protection Programs†	National network of child support centers implemented by the government in coordination with NGOs, offering meals, shelter, basic education, and family reunification services to victims of crime, including child trafficking victims. MASFAMU and the Organization of Angolan Women operate 52 children's shelters that assist victims of child trafficking. (1) In 2019, assisted 34 child trafficking victims, including 20 children in Zaire province, 8 children in Bié province, and 6 children in Luanda province. All 20 child victims in Zaire province were still receiving assistance at the end of the reporting period while authorities worked to reconnect them with their families. (16)
Birth Registration and Justice for Children†	Government-run program making birth registration free for all Angolan citizens. (48) In 2019, the government began opening registry offices in maternities throughout all 18 provinces to facilitate birth registration, and authorized midwives to produce temporary certificates. In addition, the Ministry of Justice and Human Rights also announced a mobile campaign in specific pilot areas aimed at registering all Angolans by the end of 2022. (16,49)
UNICEF Country Program (2015–2019)	UNICEF program, in coordination with the government, designed to plan and implement education and child protection-focused interventions. (50) Ran a child helpline, in collaboration with the Angolan government, in Luanda Province. (51) During the reporting period, collaborated with another NGO and INAC to set up a child protection hotline that will tie into the national child hotline. (1)
National Institutes of Job and Professional Training†	Government-funded centers that provide vocational training programs for youth so that they have the skills to enter the formal labor market. Active in 2019. (1)
Mobile Schools and Free Meals for Children†	Ministry of Education program that provides education in mobile schools to migrant children who work with their parents in cattle herding. Specifically targets children at the highest risk of involvement in child labor in southern Angola. (1) Supports some mobile schools with kitchens, facilitating the free school meals program. Active in 2019. (1)

† Program is funded by the Government of Angola.

Although Angola has implemented programs that target child labor, the scope of these programs is insufficient to fully address the extent of the problem. Furthermore, research did not identify programs that seek to reach children engaged in certain worst forms of child labor, such as commercial sexual exploitation and forced labor.

VII. Suggested Government Actions to Eliminate Child Labor

Based on the reporting above, suggested actions are identified that would advance the elimination of child labor in Angola (Table 11).

**Table 11. Suggested Government Actions to Eliminate Child Labor**
Area	Suggested Action	Year(s) Suggested
Legal Framework	Ensure that the legal framework prohibits the procuring and offering of children for the production of pornography, and the use, procuring, and offering of a child for pornographic performances.	2018 – 2019
	Ensure that the law prohibits hazardous occupations or activities for children in all relevant sectors in Angola, including diamond mining.	2011 – 2019
	Ensure that the law criminally prohibits the recruitment of children under age 18 by non-state armed groups.	2016 – 2019
Enforcement	Publish information regarding the number of child labor violations for which penalties were imposed and collected.	2011 – 2019
	Increase the number of labor inspectors to meet the ILO's technical advice.	2009 – 2019
	Ensure that the Ministry of Public Administration, Labor, and Social Security receives adequate resources to conduct inspections in sectors in which child labor is known to occur.	2019
	Increase training for criminal investigators, including training of investigators outside the capital and in remote areas across Angola.	2019
	Publish information regarding the number of violations found, prosecutions initiated, convictions achieved, and penalties imposed for violations related to the worst forms of child labor.	2019
Coordination	Establish coordinating mechanisms to combat all worst forms of child labor, including those that occur outside the context of human trafficking.	2016 – 2019
	Increase the capacity to aggregate and synthesize data on human trafficking cases.	2018 – 2019
Government Policies	Ensure that the National Action Plan to Combat Child Labor has sufficient funds for implementation.	2018 – 2019
	Ensure that the Plan of Action and Intervention Against the Sexual and Commercial Exploitation of Children is effectively implemented.	2014 – 2019
Social Programs	Develop and expand existing social programs to ensure that all children have access to education and are not restricted by informal fees, lack of birth certificates, lack of teachers, or poor school infrastructure.	2013 – 2019
	Institute programs that target children engaged in commercial sexual exploitation and forced labor, and expand existing programs to address the scope of the child labor problem.	2010 – 2019

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