Children in Mexico engage in the worst forms of child labor, including in commercial sexual exploitation, sometimes as a result of human trafficking, and in illicit activities, such as the production and trafficking of drugs. (1-7) Children also perform dangerous tasks in agriculture, including in the production of chile peppers, coffee, sugarcane, and tomatoes. (8-11) The Child Labor Module (MTI) estimates that the population of children ages 5 to 17 years engaged in child labor fell from 3.5 million in 2007 to 2.1 million in 2017. This represents a decrease of 41 percent over 10 years, in part due to government policies and programs designed to combat child labor. (8,12) Current data show that 61 percent of child laborers engage in hazardous work and 40 percent of children who engage in unpaid work do not attend school. Child labor primarily occurs in the central and southern states of Nayarit, Zacatecas, Campeche, Tabasco, and Colima, and 73 percent of child laborers are boys. (8)

During the reporting period, the ILO assisted the National Institute of Geography and Statistics in carrying out the National Child Labor Survey (ENTI 2019), which will be used to develop policies and action plans to combat child labor based on the survey results. (13,14) Table 1 provides key indicators on children's work and education in Mexico.

Source for primary completion rate: Data from 2017, published by UNESCO Institute for Statistics, 2020. (15)
Source for all other data: International Labor Organization's analysis of statistics from Instituto Nacional de Estadística y Geografía (INEGI), Encuesta Nacional de Ocupación y Empleo (ENOE), Modulo de Trabajo Infantil (MTI), 2017. (16)

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

† 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.

Children in Mexico are trafficked internally for commercial sexual exploitation and illicit activities, including by organized criminal groups. The state of Tlaxcala is known as the predominant source and transit center for child commercial sexual exploitation in Mexico, but it also occurs in tourist areas such as Acapulco, Puerto Vallarta, and Cancun, and in northern border cities such as Tijuana and Ciudad Juárez. (1-7) A report by the Regional Coalition Against Trafficking in Women and Girls in Latin America and the Caribbean (CATWLAC) found that 26 percent of female trafficking victims in Mexico are minors and 70 percent are of indigenous descent. (1-6,34,35)

Since 2006, the Government of Mexico has taken increased military action against drug cartels and organized criminal groups. Due to reports of violence and corruption, some state and municipal governments are unable to fully ensure the security of their population. (36-38) In response to the insecurity, some communities have formed self-defense militia groups. Reports indicate that one of these militias recruited and trained children as young as 6 years old to protect their community against organized criminal groups. (31-33) The group later agreed to disarm children after reaching an agreement with the Guerrero state government to increase police presence in the area. (39,40)

Child labor in agriculture is more prevalent among boys than girls. Although children engage in agricultural activities throughout the country, the majority of child labor in this sector occurs in the central and southern states of Nayarit, Campeche, Tabasco, and Colima. (8) Children's work in agriculture often includes long working hours, use of sharp tools, handling pesticides, and carrying heavy loads.(41,42) A 2016 study by UNICEF found that 44 percent of migrant agricultural worker households had at least one child engaged in child labor. (17,43,44)

Children from indigenous populations are more likely to work than non-indigenous children. (17,45-47) According to the National Committee on Human Rights, indigenous populations are especially vulnerable to child labor and human trafficking due to low educational levels, linguistic barriers, and discrimination, especially in the agricultural sector. (26,48-50) Indigenous children are also less likely to attend school due to the lack of schools near their homes, and the lack of educational materials and instruction in native languages. (45,47,51) In addition, some children ages 15 to 17 living in agricultural export-producing communities may be vulnerable to involvement in organized crime as they may not be able to find legal work. (52-55)

In 2019, Mexico hosted over 115,000 migrant children, mostly from the Northern Triangle countries of El Salvador, Guatemala, and Honduras, who are fleeing violence and poverty. Approximately 40,500 of these children were unaccompanied minors. (56-59) Migrant children, especially those travelling by themselves, are more vulnerable to trafficking in persons, forced recruitment by organized criminal groups, and other worst forms of child labor. (2,60-62) The National Institute of Migration (INM) is responsible for enforcing the rights of migrant children and the Mexican Commission for Refugee Assistance (COMAR) is tasked with refugee assistance. However, due to an increase in the number of migrants, including unaccompanied children, both INM and COMAR may have decreased funding to carry out their mandates. (59,63-77) In addition, many migrant children do not have access to education. Although Mexican law states that unaccompanied migrant children must be placed in child protection centers while waiting to be repatriated, many times they remain in detention centers without access to education. (58,60,63-65,77-79)

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

The government's laws and regulations are in line with relevant international standards (Table 4).

‡ Age calculated based on available information

The Mexican Senate ratified the United States-Mexico-Canada Agreement (USMCA) on June 19, 2019, and the subsequent Protocol of Amendment on December 12. The USMCA includes a labor chapter that brings labor obligations into the core of the agreement and makes them fully enforceable. (87-90) Under this chapter, Mexico commits to adopt and maintain in its statutes, regulations, and practices to effectively abolish child labor and prohibit the worst forms of child labor. The USMCA labor chapter also requires each country to prohibit the importation of goods into its territory from other sources produced in whole or in part by forced or compulsory labor, including forced or compulsory child labor. (87,90)

Complimentary to the USMCA, in May 2019, Mexico also enacted historic labor reforms to strengthen worker rights, including regulating domestic work and requiring employers to develop and implement protocols to combat child labor and forced labor. (91-93) The government also revised the National Forfeiture Law, which enables the government to seize individual and company assets acquired illicitly, including through trafficking in persons. (93-95)

In 2019, the government revised the General Law on Education to strengthen educational access for indigenous, Afro-descendant, and migrant children, as well as children of migrant agricultural workers. The revised law requires educational authorities to provide learning materials in indigenous languages, develop programs to support indigenous and Afro-descendant children, and to improve education infrastructure in marginalized communities.(82) In addition, the revised law extended the period of time that children are required to attend school from pre-kindergarten through high school, which is usually completed by age 18. (82) As the minimum age for work at 15 years is lower than the compulsory education age, children may be encouraged to leave school before the completion of compulsory education.

The government has established relevant institutional mechanisms for the enforcement of laws and regulations on child labor (Table 5). However, gaps exist within the operations of the Secretariat of Labor and Social Welfare (STPS) that may hinder adequate enforcement of child labor laws.

Beginning in 2019, the Government of Mexico carried out a structural change known as the "Fourth Transformation," which is designed to combat corruption and alleviate poverty. (132,133) Under this structural change, approximately 21,000 technical experts departed their positions due to significant budget cuts across many government agencies and programs. This situation left many secretariats and agencies without the appropriate personnel, expertise, and leadership to carry out core government functions, including establishing and implementing policies and programs related to the worst forms of child labor and enforcing related laws. (134-136)

Although the STPS inspectorates at the federal and state levels are responsible for carrying out child labor and occupational safety and health inspections in formally registered businesses, only state-level labor inspectorates have authority to conduct general labor conditions inspections in all commercial entities. (96,97,103) However, some Mexican states lack state-level labor inspectors. (55) In addition, while some state-level inspectorates can conduct unrestricted labor inspections in the informal sector, the federal-level and some state-level labor inspectorates can only conduct inspections in the informal sector in response to a complaint. As informal sector employment accounts for 57 percent of employment in Mexico, restrictions on conducting inspections in this sector leaves working children more vulnerable to labor law violations and crimes related to the worst forms of child labor. (10,93,96,98,103,137,138)

Labor Law Enforcement

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

† Data are from January 1, 2018 to October 31, 2018.

The number of labor inspectors is likely insufficient for the size of Mexico's workforce, which includes approximately 54 million workers. According to the ILO's technical advice of a ratio approaching 1 inspector for every 15,000 workers in developing economies, Mexico would employ roughly 3,634 labor inspectors.(101,145-147) Although the government planned to hire and train 500 additional labor inspectors in 2019, restructuring of the STPS and austerity measures resulted in a reduction in the number of federal labor inspectors by almost 50 percent. (96,98,148)

The STPS initiates routine and targeted inspections based on analysis of compliance data and patterns of complaints. Unannounced inspections for child labor violations are only conducted in response to complaints and must be coordinated with representatives from the National System for Integral Family Development (SNDIF) and the local Office of the Attorney General (FGR). (97,103,144) The STPS reported carrying out inspections due to complaints of child labor in 2019, but the total number of complaints received or complaint-based inspections carried out is not known, as the STPS does not have an internal system to track cases of child labor violations. (101,103,144) Moreover, concerns remain with Mexico's lack of enforcement of laws governing the minimum age for employment in rural areas or at small and medium enterprises, particularly in the agricultural sector. (92,149,150) Although inspections were carried out by STPS at the federal level, research could not verify that all state-level STPS also conducted child labor inspections or sanctioned establishments in violation of the Labor Code. (118-122,124-126,151) It is also unclear whether the STPS at the federal and state levels apply the guidelines on identifying and sanctioning child labor violations as outlined in the "Labor Inspection Protocol to Eradicate Child Labor and Protect Adolescent Workers". (97,101) The STPS and state-level labor ministries share enforcement authority of child labor laws, and are authorized to establish agreements for coordination of inspection duties. However, due to limited information sharing between federal and state-level inspectorates, some establishments may not be inspected for labor law violations. (96,144,152)

Even though federal labor inspectors have the authority to assess penalties for most labor infractions, child labor and forced labor infractions are considered criminal offenses. In such cases, inspectors are required to file a citation with the STPS's Directorate of Judicial Affairs to initiate sanctioning procedures with the state-level finance ministries or the FGR, who are then responsible for collecting fines or initiating criminal sanctions. (96,103,144)

Although children between the ages of 15 and 17 are required to obtain work permits, only the state of Jalisco reported issuing 1,917 permits in 2019. (118) Information on the issuance of work permits in other states was not provided for inclusion in this report.

In 2019, the STPS established a new reporting system, "CumpliLab," to build a database of formally registered businesses and identify those in compliance with the Labor Code, including provisions related to child labor. (144,153) Registered businesses deemed to be in compliance will be exempt from labor inspections for one year and granted export certificates for their goods. (103,144,154)

Criminal Law Enforcement

In 2019, criminal law enforcement agencies in Mexico 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 insufficient financial resources.

The total number of investigations launched, prosecutions initiated, and convictions made related to the worst forms of child labor at the federal level is not known due to weak coordination and data sharing among government ministries. Research identified that inconsistent data collection and the lack of coordination amongst government ministries may hinder adequate criminal prosecution of employers and impact government efforts to provide victim services. (55,93) During the reporting period, Specialized Unit for Crimes against Women and Trafficking in Persons (FEVIMTRA) collaborated with the governments of Colombia, Peru, the United States, and Venezuela in human trafficking investigations that resulted in at least four convictions. Federal authorities also launched 133 investigations, and FEVIMTRA reported assisting 21 minors during the year. (55,93,141) In addition, specialized Trafficking in Persons (TIP) units at the state level launched at least 545 trafficking in persons investigations and identified 658 victims during the reporting period. However, in both instances, it is unknown whether any of the victims were children. (55,93,113,141) The Federal District and the states of Chihuahua and Mexico were responsible for over half of the investigations conducted in 2019. Nevertheless, 14 other states opened fewer than five trafficking cases each. (113) Successful investigation and prosecution of human trafficking crimes varies by state, with the State of Mexico securing convictions in the highest percentage of cases. In 2019, the specialized prosecutor in the State of Mexico investigated and successfully prosecuted at least 12 cases of child trafficking for purposes of forced begging, commercial sexual exploitation, and forced domestic work. (35,93,113)

In 2019, FEVIMTRA provided refresher courses for 1,019 government officials, mainly law enforcement officials, on trafficking in persons investigations. Additionally, UNODC conducted workshops on trafficking in persons issues at the request of several state governments for government officials and NGOs. (93) Despite this, reports indicate that the lack of training for criminal law enforcement officers on how to perform judicial and police investigative functions, as well as confusion over territorial jurisdictions, has hampered the ability of criminal law enforcement officers to adequately investigate and prosecute cases involving the worst forms of child labor. (2,93) In addition, the insufficient capacity of judges and prosecutors to identify and investigate criminal cases related to human trafficking meant that many traffickers were prosecuted for more minor offenses or were acquitted. (2)

The National Trafficking in Persons Hotline, managed by the Citizens' Council for Safety and Justice of Mexico City, received 3,526 calls and referred 575 cases of human trafficking to FEVIMTRA, Specialized Unit on Trafficking in Minors, People, and Organs (UEITMPO), and state-level TIP prosecutors during the reporting period. (55,155) In 2019, FEVIMTRA and UEITMPO also assisted at least 617 victims of trafficking, of which 21 percent were children between the ages of 13 and 17. However, the total number of children referred and assisted in both cases is unknown. (93,141) As approximately 49 percent of FEVIMTRA's $14,000 operating budget was used to provide shelter and other resources to trafficking victims as part of the investigation process, limited financial resources were available for investigations, training, and outreach. (141)

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 funding.

* Mechanism to coordinate efforts to address child labor was created during the reporting period.

Both government officials and civil society sources have stated that Mexico's federal budget allocates only 1 cent per child or $267,000 to the CITI to implement programs and activities to prevent and combat child labor. Sources have reported this amount is insufficient to address the extent of the problem. (55,171-173)

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

† Policy was approved during the reporting period.

In 2019, the government drafted the Plan of Action on Child Labor 2019–2024, National Plan on Human Rights 2019–2024, and the National Action Plan on Trafficking in Persons 2020–2024. However, these plans were not approved by the end of the reporting period. (101,141,181,182) In addition, although the government has established a National Development Plan, many government ministries have not developed, published, or implemented ministry-specific plans as required by the National Planning Law, including plans with components to prevent and eliminate child labor. (183-185)

In 2019, Mexico became a Pathfinder country under Alliance 8.7. This involves accelerating commitments toward achieving Sustainable Development Goal Target 8.7, which calls for the eradication of forced labor, modern slavery, and human trafficking by 2030, and the eradication of child labor by 2025. (186,187) The Government of Mexico created an action plan, which includes the goals of improving information generation on child and forced labor, strengthening coordination between the CITI and the Inter-ministerial Commission for the Prevention and Punishment of Human Trafficking Crimes, and establishing preventative actions to combat child and forced labor in supply chains. (188)

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 efforts to address the problem in all sectors and in all states.

* Program was launched during the reporting period.
† Program is funded by the Government of Mexico.
‡ The government had other social programs that may have included the goal of eliminating or preventing child labor. (213-217)

During the reporting period, 47 anti-poverty programs were canceled, including the Prospera conditional cash transfer program, which required regular school attendance for families to receive the cash transfer, and the Program to Assist Migrant Agricultural Workers (PAJA), which had components to improve educational access for families of migrant workers. Both of these programs assisted vulnerable populations with children at risk of engaging in child labor. (55,218-221) However, new social programs were launched using a direct cash transfer model, including the Benito Juarez Wellbeing National Scholarship Program, which requires only that children enroll in school for families to receive the benefit. Sources have criticized the elimination of Prospera, though agree that that more time is needed to evaluate the impact of the new scholarship program. (10,55,93,197,201,202,218)

In 2019, the government opened two migrant shelters operated by STPS and funded by the Ministry of Wellbeing—one in Baja California and one in Chihuahua. These shelters are intended to operate as "integration centers," assisting foreign migrants in obtaining employment and providing social services, including educational access, for migrants and their children. (222)

In addition, many programs to prevent child labor, particularly in the agricultural sector, have been implemented as a result of improved private sector diligence rather than due to government efforts. (55)

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

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22. El Español. Niños y 'chamba', la triste normalidad del trabajo infantil en México. December 23, 2017.
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26. Polaris Project. Landscape Analysis: Human Trafficking for the Purpose of Labor Exploitation in Mexico, 2017. 2017. Source on file.

27. SDP. Niños tzotziles que eran explotados en Oaxaca también sufrieron golpes y abuso sexual. October 18, 2018.
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29. El Universal. El negocio detras de los mendigos que piden dinero. December 22, 2019.
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42. Uniradio Noticias. Trabajo infantil, pobreza y desigualdad en el agro mexicano. May 1, 2019.
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45. ILO. El trabajo infantil y el derecho a la educación en México. 2014.
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