2019 Findings on the Worst Forms of Child Labor: Liberia

 

In 2019, Liberia made a minimal advancement in efforts to eliminate the worst forms of child labor. The Ministry of Justice successfully prosecuted one case of child trafficking and the government endorsed the National Action Plan on the Elimination of the Worst Forms of Child Labor. However, children in Liberia engage in the worst forms of child labor, including in forced domestic work, sometimes as a result of human trafficking. Children also perform dangerous tasks in the production of rubber and the mining of gold and diamonds. In addition, Liberia has yet to accede to the UN CRC Protocol on Armed Conflict and the Protocol on the Sale of Children, Child Prostitution, and Child Pornography and the minimum age for work is not in compliance with international standards. Social programs are not sufficient to address the scope of the problem in the country.

I. Prevalence and Sectoral Distribution of Child Labor

Children in Liberia engage in the worst forms of child labor, including in forced domestic work, sometimes as a result of human trafficking. (1) Children also perform dangerous tasks in the production of rubber and the mining of gold and diamonds. (2) Table 1 provides key indicators on children's work and education in Liberia.

Table 1. Statistics on Children’s Work and Education

Children

Age

Percent

Working (% and population)

5 to 14

16.6 (136,340)

Working children by sector

5 to 14

 

Agriculture

 

78.4

Industry

 

4.2

Services

 

17.4

Attending School (%)

5 to 14

75.9

Combining Work and School (%)

7 to 14

14.0

Primary Completion Rate (%)

 

60.6

Source for primary completion rate: Data from 2017, published by UNESCO Institute for Statistics, 2020. (3)
Source for all other data: International Labor Organization's analysis of statistics from Labour Force Survey (LFS), 2010. (4)

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

Production of rubber, including cutting trees with machetes and using acid (2,5,6,12)

 

Production of charcoal (2)

 

Farming activities, including production of cocoa, coffee, cassava, and sugarcane (7)

Industry

Mining† diamonds and gold activities, including washing gravel and using mercury and cyanide (1,8,9)

 

Cutting and crushing stone (2,5,6,10)

 

Construction, including carrying heavy loads† (2,5,6)

Services

Domestic work (6)

 

Street work, including vending, begging, hawking goods, and carrying heavy loads (5,6,11-13)

Categorical Worst Forms of Child Labor‡

Use in illicit activities, including selling drugs (14)

 

Forced labor in domestic work, street vending, mining, begging, and work on rubber plantations, each sometimes as a result of human trafficking (1,9)

 

Commercial sexual exploitation, sometimes as a result of human trafficking (1,15)

† 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 rural communities more often engage in rubber tapping and coal-burning activities, while children in cities and surrounding urban communities crush rocks, engage in domestic work, and sell goods. (10) While the government has yet to collect comprehensive data on child labor activities to inform policies and social programs, research has shown that children are generally transported from Liberia to Côte d'Ivoire, Guinea, Nigeria, and Sierra Leone. (1,5,6)

Section 9 of the Children's Law mandates free basic education from grades one to nine, but the cost of uniforms, transportation, books, and school supplies limits access to education for some children. For secondary school students (grades 10–12), reports indicate there is a shortage of teachers, insufficient learning materials, a lack of educational facilities, and inadequate transportation, all of which limit access to education. (6) In addition, some teachers sexually exploit students in exchange for the promise of good grades, resulting in children avoiding or dropping out of school. (6,7) Research also indicates the ongoing practice of temporarily removing boys and girls from formal schooling to participate in initiation rituals that transition a child into adulthood. Many children may not return to school after their participation in these initiation ceremonies, making them more vulnerable to child labor. (6,16)

II. Legal Framework for Child Labor

Liberia has ratified some 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 Liberia's legal framework to adequately protect children from the worst forms of child labor, including the 1-year break between the compulsory education age and the minimum age for work.

Table 4. Laws and Regulations on Child Labor

Standard

Meets International Standards

Age

Legislation

Minimum Age for Work

No

 

Section 74 of the Labor Law (17)

Minimum Age for Hazardous Work

Yes

18

Article 7, Section 9.1 of the Children's Law (18)

Identification of Hazardous Occupations or Activities Prohibited for Children

Yes

 

Article 21.4 of the Decent Work Act (5,19)

Prohibition of Forced Labor

Yes

 

Article 12 of the Constitution; Article 2.2 of the Decent Work Act; Article 7, Section 8 of the Children's Law; Article 1, Section 5 of the Act to Ban Trafficking in Persons Within the Republic of Liberia (19-21)

Prohibition of Child Trafficking

Yes

 

Article 7, Section 8 of the Children's Law; Article 1, Section 5 of the Act to Ban Trafficking in Persons Within the Republic of Liberia (18,21)

Prohibition of Commercial Sexual Exploitation of Children

Yes

 

Article 3, Section 21 of the Children's Law; Article 2.3 of the Decent Work Act; Article 1, Section 5 of the Act to Ban Trafficking in Persons Within the Republic of Liberia (18,19,21)

Prohibition of Using Children in Illicit Activities

Yes

 

Article 2.3 of the Decent Work Act; Chapter 16 of the Penal Law (19)

Minimum Age for Voluntary State Military Recruitment

Yes

18

Article 3, Section 22 of the Children's Law (18)

Prohibition of Compulsory Recruitment of Children by (State) Military

N/A*

 

Article 3, Section 22 of the Children's Law (18)

Prohibition of Military Recruitment by Non-state Armed Groups

Yes

 

Article 3, Section 22 of the Children's Law (18)

Compulsory Education Age

No

14

Article 3, Section 9 of the Children's Law; Chapter 4 of the Education Reform Act (18,22)

Free Public Education

Yes

 

Article 3, Section 9 of the Children's Law (18)

* No conscription (23)

The minimum age for work is not in compliance with international standards because it allows children younger than 16 to engage in work as long as it is outside of school hours, the employer keeps records of the child's schooling, and the child is literate and attends school regularly. Because of this, children of any age may be vulnerable to child labor. Although the Decent Work Act prohibits children younger than 15 from working full-time, it does not prevent children below this age from engaging in part-time employment. (18,22)

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, the exceptionally low number of worksite inspections conducted at the national level in Liberia may impede the enforcement of child labor laws.

Table 5. Agencies Responsible for Child Labor Law Enforcement

Organization/Agency

Role

Ministry of Labor (MOL)

Conducts worksite inspections and addresses child labor violations. (5)

Ministry of Gender, Children and Social Protection (MOGCSP)

Acts as the lead advisory agency on policy formulation, coordination, and monitoring of child protection through its Children Protection and Development Division. Monitors the government's efforts on compliance with the Universal Declaration of Human Rights, the UN Convention on the Elimination of All Forms of Discrimination against Women, the UN CRC, and the African Union protocols on women and children. (6,24,25)

Ministry of Justice (MOJ)

Promotes and executes the rule of law for public safety, including the prosecution of child labor perpetrators. (26)

Labor Law Enforcement

In 2019, the exceptionally low number of worksite inspections conducted at the national level in Liberia may have impeded the enforcement of child labor laws (Table 6).

Table 6. Labor Law Enforcement Efforts Related to Child Labor

Overview of Labor Law Enforcement

2018

2019

Labor Inspectorate Funding

Unknown (9)

Unknown (25)

Number of Labor Inspectors

50 (9)

51 (25)

Inspectorate Authorized to Assess Penalties

No (9)

No (25)

Initial Training for New Labor Inspectors

Yes (9)

Yes (25)

Training on New Laws Related to Child Labor

N/A

N/A (25)

Refresher Courses Provided

Yes (9)

Unknown (25)

Number of Labor Inspections Conducted

450 (9)

236 (25)

Number Conducted at Worksite

50 (9)

236 (25)

Number of Child Labor Violations Found

Unknown (9)

Unknown (25)

Number of Child Labor Violations for Which Penalties Were Imposed

Unknown (9)

Unknown (25)

Number of Child Labor Penalties Imposed that Were Collected

Unknown (9)

Unknown (25)

Routine Inspections Conducted

Yes (9)

Yes (25)

Routine Inspections Targeted

Yes (9)

Yes (25)

Unannounced Inspections Permitted

Yes (9)

Yes (25)

Unannounced Inspections Conducted

Yes (9)

Yes (25)

Complaint Mechanism Exists

Yes (9)

Yes (25)

Reciprocal Referral Mechanism Exists Between Labor Authorities and Social Services

Yes (9)

Unknown (25)

In January and April 2019, labor inspectors participated in two trainings on the development of guidelines for child labor monitoring systems. (25,28) Generally, labor inspections are only conducted in the formal sector and not in the informal sector where children are more likely to be engaged in child labor. (2) In addition, the lack of funding and logistical support results in the underutilization of the labor inspectorate's complaint mechanism. (6,27) Although inspectors cannot assess penalties, they can impose corrective measures such and notices of compliance, and filing a complaint with the hearing board. (6,27) The lack of penalty assessment authorization, limited funding, and insufficient fines hamper the inspectorate's enforcement of child labor laws. (2,6,19,29)

Criminal Law Enforcement

In 2019, criminal law enforcement agencies in Liberia took actions to combat child labor (Table 7). However, gaps exist within the operations of the Liberia National Police (LNP) that may hinder adequate criminal law enforcement, including financial resource allocation.

Table 7. Criminal Law Enforcement Efforts Related to Child Labor

Overview of Criminal Law Enforcement

2018

2019

Initial Training for New Criminal Investigators

Unknown

Unknown (25)

Training on New Laws Related to the Worst Forms of Child Labor

Unknown

N/A (25)

Refresher Courses Provided

Yes (9)

Unknown (25)

Number of Investigations

Unknown

Unknown (25)

Number of Violations Found

Unknown

Unknown (25)

Number of Prosecutions Initiated

Unknown

2 (25)

Number of Convictions

Unknown

1 (25)

Imposed Penalties for Violations Related to The Worst Forms of Child Labor

Unknown

Unknown (25)

Reciprocal Referral Mechanism Exists Between Criminal Authorities and Social Services

Yes (9)

Yes (25)

In May 2019, the state successfully prosecuted a woman for exploiting two children in street vending. She received a suspended sentence in light of the time she spent in prison awaiting trial and on the conditions that she report to the sheriff's office twice a month for 6 months, that she not have any children other than her own living with her, and that she submit to inspections of her residence by the sheriff. (28)

In addition, the Ministry of Labor (MOL) reported receiving 2,220 calls to the anti-trafficking hotline between April 1, 2019 and February 14, 2020. It identified 14 possible cases of human trafficking and referred them to the LNP, although it is not known how many of these cases involved children. (28)

Despite these efforts, research indicates the LNP's Women and Children Protection Section had limited training and financial and physical resources, which hampered its ability to carry out investigations and other enforcement duties. (5,28,30) In addition, child labor is typically addressed as an issue of child endangerment, thereby causing a lack of reliable data on violations of child labor laws. (2,5)

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 financial support of the National Commission on Child Labor (NACOMAL).

Table 8. Key Mechanisms to Coordinate Government Efforts on Child Labor

Coordinating Body

Role & Description

National Commission on Child Labor (NACOMAL)

Coordinates government and civil society activities concerning child labor. Led by MOL and comprising representatives from 16 organizations, including international and civil society organizations. (30) Assists in coordinating child labor investigations. (31) Seeks to reform national child labor laws and create a national child labor database, which would assist surveys on the extent of child labor issues in Liberia. (30) In 2019, NACOMAL participated in two trainings and chaired two meetings of the National Steering Committee. (25)

National Steering Committee on Child Labor

Implements child labor policies. Chaired by NACOMAL and comprising government officials and workers' organizations. (5) Includes four subcommittees on resource mobilization, advocacy, training and legal development, and monitoring and evaluation. Met twice in 2019. (25)

Child Protection Network

Coordinates child protection efforts, including child labor and human trafficking, and refers child victims of abuse to social services providers with support from international and national organizations. Chaired by the MOGCSP, and comprising MOL, the Ministry of Health and Social Welfare, the LNP's Women and Children Protection Section, civil society organizations, and several NGOs. In 2019, stakeholders met regularly throughout 10 months of the year. (25)

Anti-Human Trafficking Task Force

Coordinates anti-human trafficking activities. Chaired by MOL, and comprising the Commissioner of the Bureau of Immigration and Naturalization, the Liberia National Police (LNP); and representatives from MOJ, Ministry of Foreign Affairs, and Ministry of Internal Affairs. (6) Research was unable to determine whether this body was active during the reporting period.

During the reporting period, NACOMAL reported it had a budget for salaries but no budget allocated for program activities. (9)

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 a lack of implementation.

Table 9. Key Policies Related to Child Labor

Policy

Description

National Action Plan on the Elimination of Child Labor†

Aims to reduce child labor and the worst forms of child labor by 50 percent by 2030 through three strategic objectives, including increasing public awareness on the causes and consequences of the worst forms of child labor, strengthening the legal and institutional frameworks to reduce child labor, and increasing social services and protection for children of vulnerable households. The government endorsed this plan in March of 2019. (32)

National Action Plan for Trafficking in Persons (2019–2024)†

Outlines the government's anti-human trafficking efforts, including those for child victims, and creates benchmark goals related to trafficking in person. (9)

National Child Welfare and Protection Policy

Focuses on the implementation and enforcement of existing child protection laws. (6) Research was unable to determine whether activities were undertaken to implement the National Child Welfare and Protection Policy.

National Social Welfare Policy

Prioritizes the development of action plans and policies that target children engaged in the worst forms of child labor, including child trafficking. (34) Research could not determine whether activities were undertaken to implement the National Social Welfare Policy during the reporting year.

† Policy was approved during the reporting period.

Child labor elimination and prevention strategies are not included in the Revised National Youth Policy, the Education Sector Plan, the Rubber Industry Master Plan, or the National Employment Policy. (34-40)

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 insufficient funding.

Table 10. Key Social Programs to Address Child Labor

Program

Description

Anti-Trafficking Awareness Campaign†

Aims to raise public awareness on human trafficking through the use of radio and billboard messages. (7) In 2019, conducted an anti-trafficking public awareness campaign during the country's World Day Against Trafficking in Persons. (9,25)

Shelters†

MOGCSP-operated shelters for vulnerable street children in Lofa and Nimba County. (6,25) During the reporting period, the program provided shelter for approximately 20 children who were victims of abuse or sexual exploitation. Managers of these facilities reported that their operations were funded entirely through donations. (25)

Country Level Engagement and Assistance to Reduce Child Labor II (CLEAR II)

Implemented by Winrock International and partners Verité and Lawyers Without Borders to build the capacity of the government to address child labor. (2,42,43) Additional information is available on the USDOL website.

U.S. Government-Funded Projects on Education for Adolescent Girls

Projects that aim to improve access to education and improve child protection. Includes Accelerated Quality Education for Liberian Children; Increasing Support for Out-of-School Girls and Youth, implemented by USAID; and the McGovern-Dole International Food For Education and Child Nutrition Program, implemented by USDA. These projects were active in 2019. (25,43-45)

Liberia Social Safety Nets Project (2017–2021)

$10 million World Bank-funded 4-year project implemented by MOGCSP that aims to establish key national safety net delivery systems and provide support for low-income households. (25,47) In 2019, collected data in four counties and disbursed the Social Cash Transfer program's first quarterly payment in October 2019, reaching 3,250 participant households in Maryland and Grand Kru Counties. (48)

† Program is funded by the Government of Liberia.
‡ The government had other social programs that may have included the goal of eliminating or preventing child labor. (48-54)

Research was unable to determine if data from the 2017 labor force survey, which reportedly includes a child labor component, was analyzed in 2019. (6,9,28) Although the government funds social programs, they are not sufficient to address all sectors in which child labor occurs, including in domestic work, the production of rubber, and the mining of gold and diamonds. (25)

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 Liberia (Table 11).

Table 11. Suggested Government Actions to Eliminate Child Labor

Area

Suggested Action

Year(s) Suggested

Legal Framework

Accede to the UN CRC Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography.

2013 – 2019

 

Accede to the UN CRC Optional Protocol on Armed Conflict.

2013 – 2019

 

Raise the compulsory education age to be consistent with the minimum age for employment.

2016 – 2019

Enforcement

Ensure that penalties for employing children under the minimum age for work are stringent enough to deter violations.

2014 – 2019

 

Publish information on the labor inspectorate's funding and the number of child labor violations found.

2016 – 2019

 

Ensure labor inspections are conducted in all sectors in which children work.

2016 – 2019

 

Authorize the labor inspectorate to assess penalties for child labor violations.

2017 – 2019

 

Ensure that the labor inspectorate's complaint mechanism is adequately supported and operational.

2017 – 2019

 

Conduct an adequate number of worksite inspections to combat child labor.

2017 – 2019

 

Publish information on criminal law enforcement related to the worst forms of child labor, including the number of violations found, penalties applied, and whether initial and refresher trainings were offered.

2017 – 2019

 

Ensure adequate funding for child labor enforcement agencies, such as the Ministry of Labor, the Liberia National Police, and the Women and Children Protection Section, and provide necessary training for such officials to enforce child labor laws.

2010 – 2019

 

Disaggregate the child endangerment cases prosecuted through the Ministry of Justice to determine the number of cases related to the worst forms of child labor.

2016 – 2019

Coordination

Ensure adequate funding for the National Commission on Child Labor's program activities to address child labor.

2017 – 2019

 

Ensure coordinating bodies are active and able to implement their mandates, including the Anti-Human Trafficking Task Force.

2019

Government Policies

Integrate child labor elimination and prevention strategies into relevant policies.

2010 – 2019

 

Publish information about the activities taken to implement policies that address child labor.

2017 – 2019

Social Programs

Collect and publish comprehensive research data to determine child labor activities and to inform policies and programs.

2013 – 2019

 

Improve access to education by subsidizing the cost of school related costs and reduce barriers to education by building additional schools, addressing sexual abuse in schools, and providing adequate transportation.

2012 – 2019

 

Ensure children do not leave school before the completion of compulsory education.

2017 – 2019

 

Expand existing social programs to address the scope of the child labor problem, especially in forced domestic work, the production of rubber, and the mining of gold and diamonds.

2009 – 2019

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