RWANDA COMMITTED TO ADDRESSING CHILD LABOR BUT

UNCLAS KIGALI 000192

SIPDIS

SIPDIS

DEPT FOR AF/C, DRL, AND G/TIP

E.O. 12958: N/A
TAGS: PHUM PGOV ELAB RW
SUBJECT: RWANDA COMMITTED TO ADDRESSING CHILD LABOR BUT
LACKS FUNDING


1. Summary: In a meeting February 24, UNICEF indicated
that while child labor is a problem in Rwanda, child
trafficking and prostitution do not appear to be prevalent.
UNICEF-Rwanda Head of Child Protection attributed the
incidence of child labor to the large number of vulnerable
orphans, particularly in the aftermath of the civil war and
1994 genocide, who do not have access to basic needs. She
noted that while Rwanda has child labor laws as part of its
labor code, there are gaps in the code. The Rwandan
government has acknowledged those gaps and demonstrated
political commitment to addressing the problem. It has
drafted an action plan, which includes revision of its labor
code, and has expressed interest in a nationwide
International Labor Organization (ILO) survey that would
measure the extent of child labor in Rwanda. However, the
recent government restructuring and lack of funding have
delayed progress. End summary.


2. Alessandra Dentice, UNICEF-Rwanda Head of Child
Protection, told PolCouns February 24 that child labor is a
problem in Rwanda, although she is not aware of any
organized network of perpetrators. Children (ages 1-18)
comprise 52 percent of the total population, according to a
2002 census. Of the 4.2 million children in Rwanda, 352,550
(47 percent boys, 53 percent girls) are engaged in child
labor, including 83.1 percent in the commercial agricultural
sector, 11.9 percent in the domestic sector, 1.2 percent in
commerce, and 0.7 percent in the manufacturing sector.
(Note: According to data from the Ministry of Education,
approximately 91.5 percent of primary school-aged boys and
94.5 percent of primary school-aged girls were attending
school in 2003-04. End note.) Dentice noted that child
labor is under-reported. She said that although commercial
sector exploitation is a problem, the more serious and under-
reported problem is domestic child labor.


3. She attributed the problem of child labor in Rwanda to
the large number of children orphaned and heading households
in the aftermath of the civil war and 1994 genocide which
claimed the lives of up to a million people. In addition,
widespread poverty is a contributing factor. She estimated
that 106,000 households are headed by children and that
Rwanda, with 1.3 million orphans, or approximately 30
percent of the total population of children, has one of the
highest proportions of orphans in the region compared to the
total population of children. (Note: The GOR classifies
children with one parent as orphans. End note.) Of the 1.3
million orphans, 160,000 are affected by HIV/AIDS, according
to an estimate from the 2004 UN HIV/AIDS global report. She
noted that while not all orphans are vulnerable, most are
susceptible due to lack of access to education, a steady
income, a protective environment, parental care and
guidance, basic services such as food and medical care, and
a government safety net.


4. While UNICEF-Rwanda does not have an official position
and does not keep statistics on child trafficking as it does
not deal with trafficking issues, Dentice said that child
trafficking and child sex tourism do not appear to be
problems in Rwanda. She noted that there is some child
prostitution but was unable to provide an estimate of its
incidence in the absence of UNICEF data. UNICEF has
provided piecemeal assistance to an NGO (Sharing Rwanda) to
address the problem of children, especially street children,
involved in commercial sector exploitation. UNICEF-Rwanda
Child Protection Officer Toihir Mlahaili estimated that
7,000 children throughout the country currently live on the
street.


5. The ILO Program for the Elimination of Child Labor
(IPEC) would like to conduct a nationwide, scientific survey
of child labor in Rwanda. Dentice indicated that the
government has shown strong interest in the project and for
the past two to three years has urged ILO to conduct the
survey, but lack of funding has been an issue. UNICEF has
begun fundraising for the survey, which ILO estimates would
cost USD 150,000, based on population figures, and would
take from six months up to a year to complete. ILO has
offered to pay for the first mission and is relying on donor
support for subsequent missions. Dentice noted that the
U.S. Department of Labor funded similar surveys in other
African countries last year, but that Rwanda was not on the
short list. She said that because ILO works on the basis of
donor interests, its work depends on where donors want ILO
to go. ILO has received funding from the U.S. and France,
but currently Rwanda is not on the list.


6. Dentice highlighted the need for the survey, pointing
out that it would be the first such survey in Rwanda and the

only scientific survey that would give an indication of the
extent of child labor, including commercial sector
exploitation, throughout the country. According to Dentice,
the dilemma is that no one views child labor as a priority,
and, therefore, donors are reluctant to fund the survey. If
there is no survey to show that child labor is a problem,
donors will not donate. If donors do not donate, ILO cannot
conduct the survey.


7. She pointed out that the Rwandan government has shown
strong commitment and interest in addressing the problem of
child labor. At the end of 2005, the Ministry of Public
Service and Labor (MIFOTRA) drafted a long-term national
strategic plan of action on child labor, which identified
and addressed rights at risk, including the right to
education, right to an adequate standard of living, right to
protection against all forms of discrimination, abuse, and
exploitation, and right to parental guidance and care.


8. Note: Since 1997, the Government has been committed to
combating child labor. However, activities have been
limited in scope due to limited funds and experts and lack
of an integrated national plan of action. As a result,
development of a long-term integrated national action plan
was recommended by the Second National Conference on Child
Labor in November 2003 to address victims of the worst forms
of child labor, especially in the areas of the country most
affected. The plan of action was drafted in 2005 with
reference to the 2003 national policy on orphans and other
vulnerable children, of which child laborers constitute one
of 12 categories. End note.


9. The plan, which has not yet been approved by the
Cabinet, also includes revision of the labor code. Although
currently Rwanda has a civil labor code which includes laws
against child labor, there are gaps in the code. Dentice
noted that it does not cover all elements of ILO Convention
182 (ratified in 1999 and signed in May 2000),which
addresses the worst forms of child labor, and ILO Convention
138 (ratified and signed in 1980),which covers the minimum
age for employment, which varies from country to country.


10. Dentice said that the GOR is aware of the gap and has
already conducted a survey of all local laws relating to
children. The Ministry of Justice intends to conduct a
review of those laws with a view to establishing a
comprehensive children's code to protect the rights of
children. The Minister of State is very committed to the
GOR action plan, and MIFOTRA has asked UNICEF to assist the
GOR in presenting the plan to donors once it has been
approved. The problem, said Dentice, is lack of funding and
lack of a government focal point on child labor issues.
Prior to the government restructuring, the central point of
contact was a consultant in the Ministry of Labor, who was
hired on a temporary three-year basis.


11. Comment: The GOR's commitment to addressing the issue
of child labor is a positive sign of its acknowledgment of
problems that need to be resolved. Child labor is an issue
that the government is willing and ready to resolve, with
support from the donor community. Post would appreciate
guidance as to whether funding from Department of Labor or
other sources might be available for the survey and the GOR
national strategic plan of action.

ARIETTI