Children in the Central African Republic (CAR) engage in the worst forms of child labor, including in diamond mining and armed conflict by non-state armed groups. Children also engage in child labor in agriculture and domestic work. (1-7) Table 1 provides key indicators on children's work and education in CAR.

Source for primary completion rate: Data from 2016, published by UNESCO Institute for Statistics, 2020. (8)
Source for all other data: International Labor Organization's analysis of statistics from Multiple Indicator Cluster Survey 4, 2010. (9)

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.

In February 2019, the government and 14 armed groups signed the Political Agreement for Peace and Reconciliation in the Central African Republic. (24,25) The peace agreement calls for the immediate cessation of recruitment of child soldiers by all parties to the conflict. (25) However, implementation has been challenged by the government's limited control of territory outside the capital, Bangui. Non-state armed groups contest about 80 percent of the territory. (7,26) Many of these groups—including Anti-Balaka associated militias; ex-Seleka factions Front Populaire pour la Renaissance de la Centrafrique, Mouvement des Libérateurs Centrafricains pour la Justice, Mouvement Patriotique pour la Centrafrique, and Unité pour la Paix en Centrafrique; and unaffiliated elements—continued to recruit children as combatants, informants, cooks, and sex slaves. (10) During the reporting period, 1,150 child soldiers were demobilized from armed groups, and UNICEF documented more than 500 grave violations against children, including recruitment and use. (7,10,27) However, due to lack of funding and persistent insecurity, as many as 25 percent of children released since 2014 have not received reintegration support. (28,29)

Armed groups and criminal elements, including in some pastoralist groups, subjected children to forced domestic servitude and commercial sexual exploitation. (6,7) Children in rural areas were forced to work in artisanal diamond and gold mines, often for long hours and without protective equipment. (7) Children exposed to silver nitrate in gold mines often sustained injuries as a result. In some instances, relatives willfully exploited family members to generate additional income to support their households. (6,7) Girls may be trafficked into forced domestic servitude, especially in rural areas where government presence is limited or non-existent. In maisons de joie ("houses of joy"), girls as young as age 13 are subject to commercial sexual exploitation. (7) Maisons de joie are typically private residences at which alcohol and food are served to middle and upper-class customers. (7) As of September 2019, approximately 600,136 people were displaced within CAR, half of whom were children. (28,30) An estimated 2.9 million people, half of them children, require assistance and protection, while 2.1 million people were food insecure. (24,27) Displacement and chronic food insecurity are aggravating risk factors for forced labor and sex trafficking. (6)

Between 2017 and 2019, CAR saw a 21 percent increase in verified attacks on schools. (30) Fewer than three in five children in CAR complete their primary education, and only 6 percent graduate from secondary school. An estimated 1.3 million children lacked access to education because of ongoing instability. (27,31) The Ministry of Education has attempted to improve access to education by providing free school admission to children from IDP camps, waiving school exam fees for children affected by conflict, and expanding programs to provide birth registration, which may be required for school enrollment. (10,18,32-34) However, children continue to experience difficulties accessing education due to school fees, an absence of teachers, security concerns, destruction or looting of school materials and buildings by armed groups, and the unavailability of schools, especially in rural areas or IDP camps. (10,20,27,35-42) The continued occupation of school buildings by non-state armed groups presents additional challenges. (10,43) The state's limited reach outside the capital precluded efforts to distribute educational resources in rural areas. (10,43,44) In 2019, some public school teachers were reportedly paid to work in rural areas, but due to persistent insecurity, they opted to remain in Bangui. Consequently, most rural schools remained closed. (10) During the reporting period, some civil society organizations reported that ethnic minority Muslims in the east were denied access to education. (5,10)

CAR's birth registration rate, stymied by endemic poverty and administrative collapse, remains one of the lowest in Africa. (45) However, CAR's new Child Protection Code enshrines the right to free, universal birth registration for all children. (46) Despite the new provision, the Family Code and a Presidential Decree mandate that schools will only accept children with documented proof of identity, such as a birth record/certificate. Based on this legal requirement, undocumented children were denied access to education and other social services. (10) Nevertheless in July 2019, the government, in collaboration with NGOs, delivered birth certificates to children who did not have civil status documentation. A total of 120 undocumented children received alternative judgments in the sub-prefecture of Berberati. (10)

The government did not collect or publish data on child work, child labor, or the worst forms of child labor in 2019. (10)

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

The government has established laws and regulations related to child labor (Table 4). However, gaps exist in CAR's legal framework to adequately protect children from the worst forms of child labor, including the minimum age for work.

* No conscription (52,55)

The Child Protection Code (CPC) was adopted by the National Assembly on February 27, 2020. (46,56) The legislation guarantees children ages 5–18 the right to free education, with public primary education compulsory and free. However, research was unable to locate original copies of laws establishing the compulsory education age at 15. (46,54)

Although the Labor Code prohibits work by children under age 14, the law does not apply to children outside of formal employment relationships. This fails to meet international standards, which require the protection of all children under minimum age for work laws. (47,61) Despite a 2016 study on hazardous work, CAR has not determined by national law or regulation the types of hazardous work prohibited for children. (10,47,60,62) The minimum age for work is lower than the compulsory education age, which may encourage children to leave school before the completion of compulsory education. Lastly, while CAR has ratified the declaration to the UN CRC Optional Protocol on Armed Conflict, it is unclear if law has been domesticated or published. (51)

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 Service, Modernization of Administration, Labor, Employment and Social Protection (MOL) that may hinder adequate enforcement of their child labor laws.

There is approximately 1 police officer for every 1,300 Central Africans. Government authority is largely absent outside the capital, and security forces outside Bangui may lack the resources and knowledge to enforce the law, including a lack of access to copies of relevant laws. (66)

The Special Criminal Court held its inaugural session in late 2018, and the Special Prosecutor announced a prosecutorial strategy in 2019. (10,59) The 2020 Child Protection Code establishes a National Council for the Promotion and Protection of Children, which will report directly to the Prime Minister, and a Children's Parliament. A Juvenile Court, also established under the law, will field all cases involving the health, safety, morals, and education of children. (46)

Labor Law Enforcement

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

During the reporting period, the country's 7 regional labor directorates conducted 58 investigations. Inspectors issued 36 citations for labor violations, but no cases of child labor were reported. (7,10) However, research indicates that child labor is prevalent in all sectors of the economy. (7,10) Government efforts to combat child labor were hindered by a lack of labor inspectorate capacity and inadequate financial and material resources, including transportation, office facilities and supplies, and computers. (34,62,67-69) Also, the passage of Decree No. 12.177 in 2012 effectively removed regional labor directorates from the general directorate's chain of command. Thus, regional directorates are no longer required to submit periodic reports on inspection activities, as required under ILO C. 81. (67,70) In addition, civil unrest prevented labor inspectors outside Bangui from visiting artisanal mining sites. (7) Labor inspections remain limited to the formal sector and do not target the informal sector, in which child labor is most prevalent. (5,10)

In 2019, the government hired 17 additional labor inspectors, bringing the total number of labor inspectors and controllers employed to 70. Although newly hired labor inspectors received initial training, there was no record of child labor-specific training during the reporting period. (10,35) However, 5 inspectors and controllers received additional labor training at the African Work Administration Regional Center in Cameroon, and UNDP funded local training for 30 inspectors. (10) The Ministry of Labor also submitted a formal request to the ILO to provide training to labor inspectors. This training is scheduled to take place in 2020. (7) A complaint mechanism for filing and responding to reports of child labor exists, but there was no evidence that it was operational during the reporting period. (10)

Criminal Law Enforcement

In 2019, criminal law enforcement agencies in CAR 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 human resources.

The 2020 CPC created specialized children's police units to monitor industrial or mining areas for hazardous conditions. The units, under the expanded jurisdiction of the juvenile court system, will also be responsible for identifying criminal offenses against children. (10,46,56-60) The CPC also broadens social protections and creates new enforcement mechanisms for victims of sexual exploitation, forced labor, or human trafficking, and includes provisions for at-risk groups such as demobilized child soldiers, children of religious and ethnic minorities, and non-residents. (7,10,46) Under the new law, children associated with armed groups are entitled to state social protection services and immunity from prosecution. (10,46)

Nevertheless, judicial authorities lack the staff and resources to conduct investigations outside Bangui. (6,41,66,71) Cases were widely resolved outside of formal legal proceedings due to a lack of public trust, access, or knowledge about the justice system. (41,72-74)

Furthermore, juvenile criminal offenders may be imprisoned with adults, despite a 2016 decree that prohibits this practice, because no separate juvenile cells or juvenile prisons exist. (20,32) In 2019, in an isolated event, two child soldiers were arrested and detained in the prison of Bangui for several days following the fighting in Birao, located in northern CAR. (10,75) The UN Multidimensional Integrated Stabilization Mission in CAR Child Protection Unit successfully advocated for their release. The two child soldiers were admitted to a host family for reintegration. (10)

The MOL is supposed to work with other ministries and UNICEF to provide assistance to victims of child labor, including its worst forms. Due to a lack of resources, the government relies primarily on the UN Multidimensional Integrated Stabilization Mission in CAR, NGOs, and UNICEF to provide social services to victims. (5,20,76,77) In 2019, UNICEF reported cases of forced child labor, commercial sexual exploitation, and child soldiering, with some children also forced to engage in illicit activities. (10,78) The Mixed Unit for Rapid Intervention and Repression of Sexual Violence (UMIRR) operated a 24-hour hotline to report cases of child trafficking but did not provide statistics on the number of calls received in 2019. (6) UMIRR officers identified two children who were victims of commercial sexual exploitation. Officials initiated an investigation into the alleged recruiter, but the case had not been referred for prosecution at the end of the reporting period. (79) Although the government has referral mechanisms that enable enforcement authorities and social services to refer children found in child labor situations, due to limited resources, the majority of cases were handled by NGOs. (10)

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.

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

While the government has established mechanisms to address some of the worst forms of child labor—including human trafficking, commercial sexual exploitation, and children in armed conflict—these efforts do not extend to other sectors, such as mining, where child labor is prevalent. (20)

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

† Policy was approved during the reporting period.
‡ The government has other policies that may have addressed child labor issues or had an impact on child labor. (75)

In 2019, several major parties to the conflict committed to a UN Action Plan to end and prevent grave violations against children. (82-84) In addition, research found no evidence of a policy on other worst forms of child labor, and a draft of a national policy addressing the elimination of child labor has yet to be adopted. (60,63) Furthermore, the government has not included child labor elimination and prevention strategies in the National Strategy for the Education Sector (2008–2020). (89)

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

† Program is partially funded by the Government of CAR.

Although the government participates in a program that assists former child soldiers, coordination with non-government actors is weak, and the scope of this program is insufficient to fully address the extent of the problem. (5,34,74,87,95) The absence of resources and government authority throughout much of the country significantly hindered the government's ability to combat child labor, and research found no evidence that the government has programs to assist children engaged in other worst forms of child labor. (34)

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

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