Children in Mali are subjected to the worst forms of child labor, including in hereditary slavery and in armed conflict. (1-7) Children also engage in dangerous tasks in agriculture, particularly in the production of cotton and rice, and in artisanal gold mining. (2,4,7) Table 1 provides key indicators on children’s work and education in Mali. Data on some of these indicators are not available from the sources used in this report.

Source for primary completion rate: Data from 2017, published by UNESCO Institute for Statistics, 2021. (8)
Source for all other data: International Labor Organization’s analysis of statistics from Multiple Indicator Cluster Survey (MICS 5), 2015. (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.

Children, especially of the Bellah community (black Tuareg), are subject to hereditary slavery in northern and southwestern Mali. (1,4,12,19,29,30) Some children are born into slavery, while others are born free but remain in dependent status. As a result, these children, along with their parents, are forced to work for their parents' former masters in exchange for food, money, and lodging. (29,30) Child slaves perform agricultural or domestic labor, and are often sexually abused. (29,30) In 2020, the Malian National Commission on Human Rights identified at least 670 displaced child slaves from the southwestern region of Mali. Research indicates that the number of persons displaced as a result of hereditary slavery increased during the reporting period relative to the previous year. (7)

Children, particularly those of Songhai ethnicity, work in debt bondage in the northern salt mines of Taoudenni. (29,31) Thousands of children in the north, south, and west are also involved in artisanal gold mining, in which they are exposed to toxic substances and extreme temperatures, transport heavy loads, and work long hours. (4,7,13,16,17,32) Research indicates that around mining sites, children are also victims of commercial sexual exploitation and domestic servitude. (7) An NGO study from September 2019 to March 2020 identified 483 children at two mining sites. Most of the children were from Mali, but some were from other countries, and most of the latter were victims of commercial sexual exploitation. (7) To address this issue, during the reporting period Mali passed a decree to implement the mining code, which forbids child labor in artisanal gold mines. (7,12)

Some boys placed in the care of Koranic teachers for education are forced by their teachers to beg on the street or work in fields, after which they must surrender the money they have earned to their teachers. (4,7,13,29,31) Research indicated that children forced to beg were not only from Mali, but also from neighboring countries, including Burkina Faso, Senegal, and Côte d'Ivoire. (7) While the government frequently encountered cases of child begging, it did not have the capacity or the appropriate facilities to provide shelter and social services to these children, given the widespread nature of this issue in the country. (7)

During the reporting period, there was an increase in child trafficking, forced child labor, and forced recruitment of children by non-state armed groups in Mali due to insecurity and the COVID-19 pandemic. (7) There was also an increase in the recruitment and use of child soldiers by non-state armed groups in an effort to replace fallen combatants. (12,17,33,34) As in past years, children continued to be forcibly recruited and used by the Platform, the Coordination of Movements for Azawad, Katiba Macina, Dan Na Ambassagou, and Dozos, among others; in 2020, at least 335 Malian, Nigerien, and Burkinabe children were recruited by these groups. The UN reported 284 cases of children being forcibly recruited during 2020, compared to 215 for the previous year. (7,12,17,35) Three of these children remained with armed groups, while the rest were removed and reintegrated with their families. (7) In addition, armed groups controlled some artisanal gold mines in northern Mali and used children for forced labor at those locations. (7,12,32)

In 2020, the Malian Armed Forces (FAMa) employed 23 children in courier and domestic service roles. (12,35,36) As of March 2020, however, all children were demobilized. (7,12,32) The government also continued to provide in-kind support to non-state armed groups which forcibly recruited and used children in armed conflict. (2,21,29,37-40)

Although the Constitution guarantees free and compulsory education, many children, especially girls, do not attend school because parents are expected to pay fees for registration, uniforms, and supplies, which are cost prohibitive for many impoverished families. (2,4,19,31,41-43) Long distances between villages and schools and lack of classes and teachers, are also significant barriers to education. (7) In addition, many children in Mali are not registered at birth, which may prevent them from accessing services such as education. (2,4,31,44) Research indicates that there are hundreds of thousands of children in Mali without birth certificates, and that while lack of documentation does not exclude children from schooling, these students may not be allowed to take national exams. (7) Evidence also suggests that incidences of physical, psychological, and sexual abuse, including corporal punishment, prevent some children from remaining in school. (19,31) In 2020, numerous attacks on schools by armed groups in northern Mali resulted in lootings, destruction of learning materials and infrastructure, and occupancy of school facilities by armed groups. (4,12,45,46) Research indicates that internally displaced children faced interruptions in their education and barriers to enrolling in school after fleeing their homes. (7)

In 2020, insecurity, teacher strikes, and the pandemic significantly affected children's access to education throughout Mali. The pandemic closed all schools from mid-March to the beginning of May; teacher strikes began in January 2020 and lasted until September 2020 when the teachers’ unions and the transition government reached a salary agreement. (7) This agreement allowed the government to partially reopen schools and organize exams in October 2020. However, schools were then closed again in December due to the second wave of the pandemic. (7)

Mali 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 Mali's legal framework to adequately protect children from the worst forms of child labor, including recruitment by non-state armed groups and use of children in illicit activities.

‡ Age calculated based on available information (52)

In November 2020, Mali passed into law a decree permitting the implementation of the mining code, which forbids child labor in artisanal gold mines. The code will prohibit child labor in traditional goldmines, and the use of mercury, cyanide, acids, and explosives, per Article 50 of the new code. (7,12,32) Article 189f of the new code states that mining titles will be canceled if a mining operation uses child labor or any other practices that violate human rights. Article 194 imposes penalties for the use of child labor in quarries, ranging from an imprisonment of 11 days to 2 years and the payment of fines ranging from $1,700 to $8,500. (7,32)

The Ministry of Justice, in collaboration with UNODC, revised the 2012 Anti-Trafficking Law to provide aggravated penalties if trafficking is committed against a child under the age of 18, whereas previously, aggravated penalties were only applied if the child was under the age of 15. However, drafts of the migrant smuggling law and anti-trafficking law remained pending. (2,7,12,37,56)

In December 2020, the National Technical Monitoring Committee of the Safe Schools Declaration co-facilitated a workshop with the UN on a draft bill on the protection of education from attacks. The bill specifies the obligations of parties to conflict vis-à-vis the protection of education from attacks, and criminal sanctions for attacks on schools and related offences. (35)

Articles 189.35 and 189.36 of the Labor Code allow children between the ages of 12 and 14 to perform domestic or light seasonal work, as long as it does not impede school attendance or exceed 4.5 hours of work per day. (48) The light work framework does not meet international standards because it applies to children under the age of 13. In addition, the law does not specify the conditions under which light work may be undertaken. (47,57,58)

Although Mali's Trafficking in Persons Law criminalizes human trafficking for the purpose of slavery, it does not more broadly criminalize the act of slavery, and Mali’s labor code, while prohibiting forced labor generally, does not specifically prohibit hereditary slavery. In addition, Malian law does not prohibit using, procuring, or offering a child for the production and trafficking of drugs as established by international standards. (1,2,51,53)

While the Child Protection Code provides protection for children under age 18, and the Penal Code establishes criminal penalties for several of the worst forms of child labor, some offenses included in the Child Protection Code do not carry criminal penalties, such as the prohibition of military recruitment by non-state armed groups. (13,52,53) Although the Child Protection Code prohibits children under age 18 from participating in armed conflicts or joining the armed forces, it only provides for imprisonment of perpetrators in the case of repeat offenses. Meanwhile, the Penal Code only provides criminal penalties if the children are under age 15. (52,53)

Article 28 of the Penal Code states that crimes committed out of self-defense or under a force that could not be resisted should not be penalized as prescribed by the Penal Code. Although a 2013 Inter-Ministerial Circular on the Prevention, Protection, and Rehabilitation of Child Soldiers states that Article 28 of the Penal Code is applicable to children involved in armed conflict, the Circular does not define the age range of the children it covers. (52,59) This means that some children under age 18 who are affiliated with non-state armed groups may be penalized as a direct result of being a victim of the worst forms of child labor. (52,59)

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, including insufficient financial resources allocation.

The National Unit to Fight Against Child Labor (CNLTE) received a budget of $56,000 (30 million CFA) in 2020, which represents a 40 percent decrease from the 2019 budget due to the need to reallocate funds as a response to the pandemic. (7,12) The CNLTE considers its budget insufficient given the extent and severity of the child labor problem in Mali, as it lacks funding to meet its office needs and it does not have a vehicle or fuel for its staff to carry out its mission. (7)

Labor Law Enforcement

In 2020, labor law enforcement agencies in Mali took actions to combat child labor (Table 6). However, gaps exist within the operations of the Ministry of Labor that may hinder adequate labor law enforcement, including insufficient financial and human resource allocation.

The number of labor inspectors is likely insufficient for the size of Mali’s workforce, which includes approximately 6.5 million workers. According to the ILO’s technical advice of a ratio approaching 1 inspector for every 40,000 workers in less developed countries, Mali would employ about 161 inspectors.(63-65) Although all regions have labor inspectors, government services are limited or non-existent in some areas due to the insecurity caused by the presence of non-state armed groups. (2,4,63) In addition, reports indicate that a lack of trained staff, equipment, transportation, and funding hampered both CNLTE and the labor inspectorate’s ability to conduct child labor inspections and legal proceedings, especially in remote areas of northern Mali. (4,31,57,63,66) CNLTE did not remove any children from the worst forms of child labor. (7) Research indicates that the government rarely collects statistics on the matter, and that there is no central database to maintain any data related to worst forms of child labor. (12) In 2020, CNLTE developed a training module for farmers related to the new hazardous occupations list and held a number of workshops related to the hazardous occupations list. Four new employees of the labor inspectorate received an initial training at Mali’s National School of Administration. (7) In 2020, the government budgeted $371,747 (CFA 200 million) to fight human trafficking, allowing the government to partner with NGOs to undertake activities, including awareness campaigns, training sessions, and workshops. Employees of the CNLTE received one training related to child labor in 2020. (7)

While the budget for the National Directorate of Labor and other labor offices decreased from approximately $1.2 million (CFA 666,309,000) in 2019 to approximately $675,275 (CFA 363,973,000) in 2020, the labor inspectorate budget increased from $85,000 (CFA 50,000,000) to $123,555 (CFA 66,596,000). (7) In addition, the Brigade for the Protection of Morals and Children (BPMC) reported 10 investigation cases of mistreatment of children employed as house cleaners. Research indicates that the reported number of child labor victims is likely lower than the actual number of victims given the widespread nature of child labor and inadequate enforcement of child labor laws in Mali. (4,7) However, the government did not provide specific data for this report from labor inspections carried out in the field, including the number of child labor law violations, the number of child labor violations found, the number of penalties imposed, or the number of penalties imposed that were collected in 2020. While the CNLTE’s annual report usually includes information related to children removed from child labor by NGOs, there is no information on children removed from child labor as a result of labor inspections. (7)

Criminal Law Enforcement

In 2020, criminal law enforcement agencies in Mali 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 and human resource allocation.

In 2020, the BPMC benefited from a significant increase in its personnel as 23 new staff members were recruited. (7,12) Research indicates that the number of law enforcement agents is inadequate given the prevalence of the worst forms of child labor in the country. (4) During the reporting period, the government did not provide information on training on new laws related to the worst forms of child labor, nor on imposed penalties for violations related to the worst forms of child labor. (7) While the government made efforts to increase training and resources, research found that Mali lacks trained staff, equipment, transportation, and funding to adequately conduct criminal law enforcement efforts related to the worst forms of child labor, particularly in remote areas. (4,29,63,67) Reports indicate that because of political instability, which may hinder labor and criminal law enforcement efforts in northern Mali, the prevalence of hereditary slavery, forced labor, and trafficking in persons has worsened since the conflict began in 2012. (4,12,29,31,63,68) Research showed that the BPMC budget was insufficient, and the force had only one vehicle to conduct inspections and very limited amounts of fuel for each quarter in 2020. Furthermore, there were reports that staff did not receive office materials and had to use personal resources for official documents and furniture. (7,12)

The government’s judicial authorities were unable to provide comprehensive and complete statistics on the number of child labor cases investigated, prosecuted, or convicted during the reporting period. In 2020, the BPMC arrested 10 Koranic teachers in Bamako who are alleged perpetrators of forced child begging, with at least 3 Koranic teachers referred to the judicial system for legal action. (7) In addition, one case of suspected child trafficking was prosecuted, but the defendant was acquitted. Malian judicial authorities reported at least three additional prosecutions related to child labor. (7) Many justice sector actors noted government officials' interference in cases involving slavery-related practices in an effort to have the charges dismissed. (37)

In October 2020, the Minister of Defense and the Chief of Defense Staff issued orders to military commanders prohibiting the use of children under age 15 and instructing army personnel to ban the presence of children around military camps. (12,69) By March 2020, the ministry also demobilized 23 children who had been employed as couriers and in domestic service roles with the FAMa. (7,12,32,35) In addition, it designated a child soldier focal point to coordinate with international organizations. (70) Despite these efforts, the Inspector General of the FAMa, General El Hadji Ag Gamou, also leads the Imghad Tuareg and Allies Self-Defense Group (GATIA), a subgroup of the pro-government signatory armed group coalition, Platform, which splintered in 2019. (12,17,71) During the reporting period, the government continued to provide in-kind support to GATIA, overseen by General Gamou, and to other non-state armed groups that recruited and used children in armed conflict. (2,12,21,29,37-40) Research found no indication that the government investigated either the actions of General Gamou and other members of the national armed forces or those of non-state armed groups who allegedly recruited and used child soldiers. (7) In addition, the government continued to keep child soldiers in custody until it established their age, with at least 15 children still held in detention at the close of the reporting period. Although there has reportedly been an improvement in the transfer process, the UN noted difficulty in securing the release of these children, who are sometimes held with adults, until their age can be confirmed to the satisfaction of the Malian authorities. (12,32)

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 lack of clarity about the roles of coordinating bodies.

During the reporting period, the MPFEF's Directorate for the Promotion of Children and Family (DPCF) continued to support formal registration of children at birth, particularly in the North, through support for other government departments involved in registration. Research indicates that children born in the midst of security crises are often unable to acquire a birth certificate. (7) Furthermore, the DPCF also worked to reunite children affected by the security crisis in the north with their families. (7) CNLTE held two research missions aimed at identifying child labor. It also held trainings and awareness campaigns on artisanal gold mining in southern Mali. (7,12) CNLTE provided support to agencies and organizations combating child labor, hosted approximately 10 activities with NGOs and relevant associations regarding the prevention of child labor, and held 2 meetings of the National Guiding Committee on Child Labor. (7) The government also held human trafficking awareness trainings for judicial officials in multiple regions. A training on child begging was also held for religious and community leaders (marabouts) in the capital. (12,32)

Reports indicate that there is confusion with regard to roles and a lack of coordination between CNLTE and the National Coordinating Committee for the Fight Against Trafficking in Persons and Associated Practices. (28,29,68)

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

‡ The government had other policies that may have addressed child labor issues or had an impact on child labor. (2,4,79-82)

The “Child Travel Card” program (Titre de Voyage pour Enfant) created by DPCF in 2002 remained a part of the directorate's efforts to combat child trafficking by facilitating proper identification of children traveling within and outside of Mali. Failure to show a child travel card will prompt follow-up actions to confirm whether the child is a victim of trafficking for forced labor, commercial sexual exploitation, or forced migration. (7) Research indicates that this program does not cover foreign citizens. (12)

In 2020, the government funded programs that include the goal of eliminating or preventing child labor (Table 10). However, gaps exist in these social programs, including adequacy of efforts to address the problem in all sectors.

* Program was launched during the reporting period.
† Program is funded by the Government of Mali.
‡ The government had other social programs that may have included the goal of eliminating or preventing child labor. (2,4,92,93)

Mali does not fund or participate in programs to address child labor in domestic work, forced begging, or commercial sexual exploitation. (94)

An informal referral mechanism exists among NGOs, UN bodies, police, and other government agencies to allow withdrawal of children from armed conflict and provide social services to victims of the worst forms of child labor. (4,28,63) Despite these efforts, reports indicate that resources and facilities available to social services agencies are inadequate. (4,7,29,31,63)

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

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