Children in Bosnia and Herzegovina (BiH) are subjected to the worst forms of child labor, including in forced begging, sometimes as a result of human trafficking. (1-4) Table 1 provides key indicators on children’s work and education in BiH. Data on some of these indicators are not available from the sources used in this report.

Primary completion rate was unavailable from UNESCO Institute for Statistics, 2021. (5)
Source for all other data: International Labor Organization's analysis of statistics from Multiple Indicator Cluster Survey 3 (MICS 3), 2006. (6)

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

‡ Child labor understood as the worst forms of child labor per se under Article 3(a)–(c) of ILO C. 182.

Street begging is the most common form of child labor in BiH. (2,7) Organized groups sometimes traffic children to lucrative locations, both domestically and internationally, in regional and EU countries, where they are forced to beg. (2,4,11-13) In 2020, BiH was part of a major migration transit corridor through the Western Balkans, with most new arrivals to the country coming from Bangladesh, Afghanistan, and Pakistan. (13,14)

Children in the largest minority group in BiH, the Roma, are vulnerable to the worst forms of child labor due to their difficulty in accessing education. The costs of school supplies and uniforms may be prohibitively expensive for some families. (8,15,16) Roma students also face discrimination from teachers, peers, and school administrators, which has resulted in a disproportionate number of Roma children being enrolled in schools for children with intellectual disabilities. (17) In addition, some Roma children lack birth registration documents, which are required to attend school in BiH. (8,9,18) Sources indicated that the government has not allocated enough financial resources for adequate implementation of inclusive education initiatives, particularly for students with disabilities. (1,7,18-20)

Schools in Republika Srpska (RS) deny the right for some Bosniak children to receive instruction in the Bosnian language; as a result, these children sometimes travel long distances to the Federation of Bosnia and Herzegovina (FBiH) to receive education in their language. (2,18,21) In addition, discrimination persists under the "Two Schools Under One Roof" practice between Bosniaks and Croats in FBiH. This practice creates obstacles for students who wish to attend schools other than those which match their ethnic identity and also enables ethnic discrimination in schools, which can lead to absenteeism. (2,18,21) Children with disabilities generally face barriers to access education, which may make them vulnerable to child labor. Although the number of school programs for children with disabilities is increasing, parents of such children sometimes receive insufficient support from the government, and some schools are unable to provide accommodations for the children's disabilities. (21)

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

Bosnia and Herzegovina is a democratic republic with a bicameral parliament. Governmental responsibilities lie with the state, the two entities of Bosnia and Herzegovina, Federation of Bosnia and Herzegovina (FBiH) and Republika Srpska (RS), and the self-governing Brčko District (BD). (19) The Government of Bosnia and Herzegovina has established laws and regulations related to child labor, at the state, entity, and district levels (Table 4). However, gaps exist in Bosnia and Herzegovina's legal framework to adequately protect children from the worst forms of child labor, including the minimum age for work and the prohibition of military recruitment by non-state armed groups.

* No conscription (30)
‡ Age calculated based on available information (31)

The labor laws of FBiH, RS, and BD do not conform to international standards that require all children to be protected by the minimum age to work because the labor laws do not apply to children who are self-employed or working outside of formal employment relationships. In addition, FBiH, RS, and BD do not include street begging in their lists of hazardous occupations prohibited for children. (22-24) Although the Criminal Code in FBiH criminalizes human trafficking for forced labor, it fails to specifically outlaw forced labor, debt bondage, and slavery separately from trafficking in persons. (27)

Laws related to illicit activities in BiH are not sufficient because using, procuring, and offering children for the production and trafficking of drugs is not criminally prohibited. In addition, laws in BiH do not meet international standards for the prohibition of recruitment of minors by non-state armed groups. (26)

The Criminal Code of BiH fails to prohibit using children for prostitution, the production of pornography, or pornographic performances. Further, the Criminal Codes in FBiH and in BD do not criminally prohibit the use of children for prostitution. (26,27,29) Although the Criminal Code of RS prohibits using children who are victims of human trafficking for prostitution, the production of pornography, and pornographic performances, there is a gap in the law for children who are not victims of trafficking. (28)

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 enforcement agencies that may hinder adequate enforcement of their child labor laws.

Labor Law Enforcement

In 2020, labor law enforcement agencies in BiH took actions to combat child labor (Table 6). However, gaps exist within the operations of the labor law enforcement agencies that may hinder adequate labor law enforcement, including proper application of referral mechanisms.

Although the government did not provide information on its labor inspectorate funding for inclusion in this report, officials in each entity reported that labor inspectors had sufficient resources to carry out inspections in 2020. However, no labor inspectors received training on detecting hazardous child labor in agriculture, including handling agricultural chemicals. (2,35,36) Complaint mechanisms exist in all entities, including a mechanism for receiving online complaints, but research found that BiH does not have an official system for referring children identified during labor inspections to social services providers unless they are victims or potential victims of human trafficking. (2)

Criminal Law Enforcement

In 2020, criminal law enforcement agencies in BiH took actions to combat child labor (Table 7). However, gaps exist within the operations of the criminal law enforcement agencies that may hinder adequate enforcement, including proper application of referral mechanisms.

Forced begging cases are pursued by cantonal- and entity-level police and cantonal-, entity-, and state-level prosecutors. (2,9,38) Children who are detained for begging are generally referred to social services providers, which are often run by NGOs with funding from the Ministry of Security or the Ministry for Human Rights and Refugees. (2,9,10) However, law enforcement officials sometimes penalize child victims of forced begging by issuing fines against the children. (2,39)

Throughout 2020, the international community, in cooperation with the National Coordinator, facilitated multiple trainings on indicators of trafficking in persons, with an emphasis on irregular migrants, including unaccompanied minors, for the Border Police and regional police forces. (2) However, research indicates that law enforcement officials and social workers would benefit from additional training on identifying children used for forced labor and begging, as these cases are often classified as child negligence or Roma custom instead. (2,3,9) The courts sometimes impose sentences under the legal minimum, decrease the severity of the sentences, or dismiss the charges against the perpetrators altogether. (2,8,9) In addition, enforcement officials are often unwilling to pursue investigations and prosecutions against parents involved in the trafficking of their children, particularly for forced labor, and the shelters subsequently return the children to the parents who were involved in the trafficking process. (2,8)

During the reporting period, FBiH courts convicted 10 traffickers and Federation judges issued sentences ranging from 1 year and 10 months’ imprisonment to 10 years’ imprisonment for six traffickers. In addition, one judge from Tuzla Canton issued a sentence of 10 years’ imprisonment, the highest sentence to date for forced child begging, and the RS Supreme Court upheld a conviction and sentenced a child trafficker to 5 years’ imprisonment. (38)

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 inclusion of all relevant agencies.

Although the Strike Force is meant to coordinate anti-trafficking efforts across agencies, representatives from the Ministries of Labor are not included. (2,8) During the reporting period, the Council of Ministers expanded the Strike Force with one additional prosecutor from the State Prosecutor's Office and one official from the Border Police. (2)

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

† 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. (45)

During the reporting period, the Government of BiH continued to implement the National Action Plan to Counter Trafficking, which includes provisions dedicated to preventing labor exploitation of Roma children. (2,38) In addition, Roma organizations and government agencies have expressed intentions to develop an auxiliary action plan to combat child begging; however, the plan has not been completed. (36)

In July 2020, the Government of BiH created a portal for potential victims of trafficking for use in the collection and analysis of statistical data on trafficking in human beings. (2)

In 2020, 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 a lack of adequate funding.

† Program is funded by the Government of BiH.

Because labor inspectors do not have a mandate to inspect informal work, staff from Daily Centers are often the first to identify children engaged in hazardous street work. Sarajevo's Mobile Team staff continues to lack sufficient resources for their work, especially reliable transportation. (35,36) Although most Daily Centers collaborate with local Centers for Social Welfare, Daily Centers are not institutionalized and, therefore, lack consistent financial and technical support. (35,36) This may limit the ability of Daily Centers to identify and assist children working on the streets. In addition, government support for outreach to street children in areas outside Sarajevo varies significantly. (2) Although the government provides some social services for low-income families through the Centers for Social Welfare, many families do not receive enough assistance to reduce their reliance on child labor, especially begging. (21,35,36)

During the reporting period, the government partly funded five NGO-run shelters. The Ministry of Human Rights and Refugees allocated $37,450 to four NGOs assisting domestic trafficking victims in 2020, and the Ministry of Security allocated $43,695 to two NGOs assisting foreign victims in 2020. (13,38) In addition, the government merged the internal domestic and foreign victim funds into one victim protection fund worth $81,148, which will be administered by the State Coordinator to provide more effective use of funds for victim assistance. (38)

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

1. U.S. Embassy- Sarajevo. Reporting. February 24, 2020.
2. U.S. Embassy- Sarajevo. Reporting. January 15, 2021.
3. UNICEF. Situational Analysis of Children in Bosnia and Herzegovina. March 2020. https://www.unicef.org/bih/media/4971/file/Situation Analysis of Children in Bosnia and Herzegovina.pdf
4. U.S. Department of State. Trafficking in Persons Report- 2020: Bosnia and Herzegovina. Washington, DC, June 16, 2020. https://www.state.gov/reports/2020-trafficking-in-persons-report/bosnia-and-herzegovina/
5. UNESCO Institute for Statistics. Gross intake ratio to the last grade of primary education, both sexes (%). Accessed March 2020. For more information, please see "Children's Work and Education Statistics: Sources and Definitions" in the Reference Materials section of this report. http://data.uis.unesco.org/
6. ILO. Analysis of Child Economic Activity and School Attendance Statistics from National Household or Child Labor Surveys. Original Data from Multiple Indicator Cluster Survey 3, 2006. Analysis received March 2020. Please see "Children's Work and Education Statistics: Sources and Definitions" in the Reference Materials section of this report.
7. U.S. Department of State. Trafficking in Persons Report- 2019: Bosnia and Herzegovina. Washington, DC, June 20, 2019. https://www.state.gov/reports/2019-trafficking-in-persons-report-2/bosnia-and-herzegovina/
8. U.S. Embassy- Sarajevo. Reporting. January 30, 2019.
9. U.S. Embassy- Sarajevo. Reporting. March 14, 2019.
10. U.S. Embassy- Sarajevo official. E-mail communication to USDOL official. January 26, 2018.
11. U.S. Embassy- Sarajevo. Reporting. February 9, 2018.
12. Oslobođenje. Twenty-one people trafficked in the first half of the year. Sarajevo. October 24, 2019. https://www.oslobodjenje.ba/vijesti/bih/u-prvih-pola-godine-21-zrtva-trgovine-ljudima-u-bih-500723
13. U.S. Embassy- Sarajevo. Reporting. February 12, 2021.
14. Save the Children International. Refugees and Migrants at the Western Balkans Route - Regional Overview, July–September 2020. 2020. https://resourcecentre.savethechildren.net/node/18638/pdf/refugees_and_migrants_balkans_regional_overview_q3_2020_sc_bmdh_data.pdf
15. U.S. Embassy- Sarajevo. Reporting. January 18, 2018.
16. Kali Sara-Roma Information Center official. Interview with USDOL official. May 17, 2017.
17. U.S. Embassy- Sarajevo official. E-mail communication to USDOL official. May 22, 2017.
18. Human Rights Watch. World Report: Bosnia and Herzegovina, Events of 2020. 2021. https://www.hrw.org/world-report/2021/country-chapters/bosnia-and-herzegovina
19. U.S. Department of State. Country Reports on Human Rights Practices- 2019: Bosnia and Herzegovina. Washington, DC, April 5, 2020. https://www.state.gov/reports/2019-country-reports-on-human-rights-practices/bosnia-and-herzegovina/
20. Oslobodenje. Another deadline to begin working with more than one hundred children with disabilities. March 9, 2018. http://www.oslobodjenje.ba/vijesti/sarajevo/probijen-jos-jedan-rok-za-pocetak-rada-sa-vise-od-stotinu-djece-sa-poteskocama
21. U.S. Department of State. Country Reports on Human Rights Practices- 2020: Bosnia and Herzegovina. Washington, DC, March 30, 2021. https://www.state.gov/reports/2020-country-reports-on-human-rights-practices/bosnia-and-herzegovina/
22. Government of Bosnia and Herzegovina. Labor Law of the Federation of Bosnia and Herzegovina. Enacted: 2003. http://ilo.org/dyn/natlex/docs/ELECTRONIC/104623/127699/F1877709948/BIH-2016-L-104623.pdf
23. Government of Bosnia and Herzegovina. Labor Law of Republika Srpska. Enacted: 2003. http://www.ilo.org/dyn/natlex/docs/ELECTRONIC/102220/123487/F-1030013146/BIH-2015-L-102220.pdf
24. Government of Bosnia and Herzegovina. Labor Law of Brčko District. Enacted: 2005. http://ilo.org/dyn/natlex/docs/ELECTRONIC/99959/119633/F1307714070/BIH99959 Bsn.pdf
25. Government of Bosnia and Herzegovina. Constitution of Bosnia and Herzegovina. Enacted: 1995. https://www.refworld.org/docid/3ae6b56e4.html
26. Government of Bosnia and Herzegovina. Criminal Code of Bosnia and Herzegovina. Enacted: 2003. https://advokat-prnjavorac.com/zakoni/Krivicni_zakon_BiH.pdf
27. Government of Bosnia and Herzegovina. Criminal Code of the Federation of Bosnia and Herzegovina, amendments in Official Gazette Number 46. Enacted: June 15, 2016. http://www.tuzilastvobih.gov.ba/files/docs/Krivicni_zakon_F_BiH_izmjene_i_dopune_46_16__bos.pdf
28. Government of Bosnia and Herzegovina. Criminal Code of Republika Srpska. Enacted: July 1, 2003. https://www.unodc.org/cld/document/bih/2003/criminal_code_of_republika_srpska_as_of_2013.html
29. Government of Bosnia and Herzegovina. Criminal Code of the Brčko District of Bosnia and Herzegovina. Enacted: May 28, 2003. http://www.ohr.int/ohr-dept/legal/laws-of-bih/pdf/005 - Criminal Code, Criminal Procedure Codes and Criminal Sanctions/Criminal Codes/BDBH/BD Criminal Code 10-03.pdf
30. Government of Bosnia and Herzegovina. Law on Service in the Armed Forces in Bosnia and Herzegovina. Enacted: 2005. Source on file.
31. Government of Bosnia and Herzegovina. Framework Law on Primary and Secondary Education in Bosnia and Herzegovina, No. 18/03. Enacted: 2003. http://fmon.gov.ba/Upload/Dokumenti/7e1e8c33-c594-4784-817a-e46de79149fa_Okvirni zakon o osnovnom i srednjem obrazovanju u Bosni i Hercegovini.pdf
32. Government of Bosnia and Herzegovina. Law on Primary Education of Republika Srpska. Enacted: 2007. https://advokat-prnjavorac.com/zakoni/Zakon-o-osnovnom-vaspitanju-i-obrazovanju-RS.pdf
33. Government of Bosnia and Herzegovina. Law on Education in Primary and Secondary Schools in Brčko District. Enacted: March 27, 2008. http://skupstinabd.ba/ba/zakon.html?lang=ba&id=/Zakon o obrazovanju u osnovnim i srednjim s--kolama
34. U.S. Embassy- Sarajevo. Reporting. January 28, 2016.
35. U.S. Embassy- Sarajevo official. E-mail communication to USDOL official. May 10, 2018.
36. U.S. Embassy- Sarajevo official. E-mail communication to USDOL official. February 12, 2019.
37. U.S. Embassy- Sarajevo. Reporting. July 9, 2020.
38. U.S. Embassy- Sarajevo. Reporting. May 24, 2021.
39. Government of Bosnia and Herzegovina. Written Communication. Submitted in response to USDOL Federal Register Notice (2017). Request for Information of Efforts by Certain Countries to Eliminate the Worst Forms of Child Labor. Sarajevo. 2018.
40. U.S. Embassy- Sarajevo. Reporting. February 1, 2016.
41. U.S. Embassy- Sarajevo official. E-mail communication to USDOL official. June 23, 2016.
42. Government of Bosnia and Herzegovina. Guidelines for Work of Regional Monitoring Teams for Combatting Trafficking in Human Beings in Bosnia and Herzegovina. 2018. https://bih.iom.int/sites/bih/files/TRAFIC/GUIDELINES FOR WORK OF REGIONALMONITORING TEAMS FOR COMBATTING TRAFFICKINGIN HUMAN BEINGS INBOSNIA AND HERZEGOVINA.pdf
43. Radio Sarajevo. KS rule is decisive: Prevent beggars and exploiting children. October 2, 2018. https://www.radiosarajevo.ba/metromahala/teme/sarajevska-vlast-odlucna-sprijeciti-prosjacenja-skitnje-i-iskoristavanje-djece/314297
44. Government of Canton Sarajevo. Protocol on cooperation and treatment in cases of unlawful behavior at the detriment of children in Canton Sarajevo. 2018. Source on file.
45. Government of Bosnia and Herzegovina. Action Plan of Bosnia and Herzegovina for Addressing Roma Issues in the Fields of Employment, Housing and Health Care 2017–2020. 2016. http://www.mhrr.gov.ba/PDF/LjudskaPrava/4 Akcioni plan BiH za rjesavanje problema Roma 2017-2020_ENG.pdf
46. UNICEF Bosnia and Herzegovina. UNICEF Bosnia and Herzegovina: Country Programme 2015 – 2019. https://www.unicef.org/bih/GeneralFS-web.pdf