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Viewing cable 07NAIROBI200, UPDATE OF WORST FORMS OF CHILD LABOR REPORT FOR KENYA
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 07NAIROBI200 | 2007-01-10 14:00 | 2011-08-25 00:00 | UNCLASSIFIED | Embassy Nairobi |
VZCZCXYZ0035
PP RUEHWEB
DE RUEHNR #0200/01 0101400
ZNR UUUUU ZZH
P 101400Z JAN 07
FM AMEMBASSY NAIROBI
TO RUEHC/SECSTATE WASHDC PRIORITY 6571
RUEHGV/USMISSION GENEVA 4085
UNCLAS NAIROBI 000200
SIPDIS
DEPT FOR AF/E MEYERS AND AF/RSA HARPOLE
DEPT FOR DRL/IL TU DANG
DEPT ALSO PASS TO DEPT OF LABOR ILAB FOR TINA MCCARTER
SIPDIS
E.O. 12958: N/A
TAGS: ELAB ECON PHUM PGOV KE
SUBJECT: UPDATE OF WORST FORMS OF CHILD LABOR REPORT FOR KENYA
REF: 2006 STATE 184972
¶1. The following is the updated text of the worst
forms of child labor report for Kenya for 2006, as
required under the Trade Act, for Department of Labor.
Kenya
Selected Child Labor Measures Adopted by Governments
Ratified Convention 138 4/9/1979 U
Ratified Convention 182 5/7/2001 U
ILO-IPEC Member U
National Plan for Children No
National Child Labor Action Plan Yes
Sector Action Plan No
Incidence and Nature of Child Labor
Although most available data is from the 1999
national household survey, the Central Bureau of
Statistics (CBS) plans to release the 2006 survey
in January 2007 that should provide updated
comprehensive statistics on child labor. In early
2006, the Government of Kenya (GOK) reported that
1.9 million children, between the ages of 5-17, are
working. Only 3.2% of these children have attained a
secondary school education and 12.7% have no formal
schooling at all. (ILO: The End of Child Labor, May
2006). An estimated 32.5% of children ages 5 to 14
years in Kenya were counted as working in 2000.
Approximately 34.7% of all boys 5 to 14 were working
compared to 30.4% of girls in the same age group.2583
Children living in rural areas were more likely to
work than children living in urban areas.2584
The commercial and subsistence agriculture,
fishing and domestic service sectors employ the
largest number of working children.2585 Children
are found working on tea, coffee, sugar, and rice
plantations, fishing boats, and in sand
harvesting (quarrying). Children also work in
the informal sector, predominantly in family
businesses.2586 There are large numbers of street
children in Kenya's urban centers. Street
children are often involved in illegal activities
such as drug trafficking.2587 Child prostitution
is widespread in Kenya, and takes place in bars,
discos, brothels, massage parlors, and on the
streets.
The joint UNICEF/Ministry of Home Affairs
research report released on December 19 2006,
Extent and Effect of Sex Tourism and Sexual
Exploitation of Children on the Kenyan Coast,
found that 10-15,000 girls living in four main
coastal resort areas are involved in casual sex
work - up to 30% of all 12-18 year olds living in
these areas. A further 2-3,000 girls and boys,
up to 45% whom have migrated from other parts of
the country, are involved in full-time year round
commercial sex activity. 39% of the clients were
Kenyan, followed by Italian (18%), German (14%)
and Swiss (12%). Unemployment and poverty are
prevalent on the Coast, and child sex tourism
earns far more than available wage labor.
Families turn a blind eye to, or even encourage,
their daughters to engage in child sex tourism
(CST), seeing foreign tourists as a potential
long-term lifeline or path to relative
prosperity. The report notes the lack of
investigation and prosecution of men, domestic or
foreign, for CST and police corruption create a
sense of impunity for clients and contributes to
community acceptance of CST.
The majority of children exploited in
prostitution are between 13 and 17 years old.2588
Poverty and an increased number of children
orphaned by HIV/AIDS have contributed to a rise
in the number of child prostitutes.2589 Many
girls who hawk or beg during the day reportedly
work as prostitutes at night.2590 In the
agricultural sector, girls are sometimes forced
to provide sexual services in order to obtain
plantation work. Sudanese and Somali refugee
children are also alleged to be involved in
prostitution in Kenya.2591 Child labor is one of
many problems associated with poverty. The
proportion of the population living in poverty
(less than USD 1 per day) has risen from about
48.8% in 1990 to 56% in 2004 according to a 2004
report by Society for International Development.
Kenya is a source, transit, and destination
country for child trafficking.2593 Poverty, the
death of one or both parents, and self-interest
may contribute to a family's decision to place a
child in the hands of better-off relatives,
friends, or acquaintances who may end up
trafficking and/or exploiting the child. Child
trafficking in Kenya occurs mainly through
personal and familial networks.2594 Kenyan
children are trafficked internally for sexual
exploitation, as well as for work in street
vending, agriculture, and forced domestic labor.
Kenya's coastal area is a known destination for
trafficked children. Children are trafficked
there to be sexually exploited in Kenya's growing
sex tourism industry. Children from Burundi and
Rwanda may have been trafficked to Kenya for
sexual exploitation and domestic work.2595
Primary education is free and schooling is
compulsory through grade 12. However, less than
half of children who graduate from primary school
continue on to secondary school. The government
has provided tuition-free primary education since
2003.2596 As a result of this policy, first-time
enrollment increased by between 1.1 million2597
and 1.3 million children in the year following
implementation.2598 Unintended results of the
policy have included overcrowded classrooms due
to increased enrollment, insufficient numbers of
teachers, and inadequate financial resources.
Enrolment in primary schools rose from 7.4
million in 2004 to 7.6 million in 2005.
According to the Kenyan Economic Survey 2006,
primary schools gross enrollment ratio was about
105% in 2005, while net enrollment ratio
increased from 82.1% to 83.2% between 2004 and
¶2005. Gross and net enrollment ratios are based
on the number of students formally registered in
primary school and therefore do not necessarily
reflect actual school attendance. In 2000, 74.9%
of children ages 5 to 14 years were attending
school.2600 As of 2001, 59% of children who
started primary school were likely to reach grade
5.2601 However, there remains a gender bias in
school access, with girls reportedly experiencing
greater difficulty in accessing education than
boys.2602 As the government expands primary
education, it faces the challenges of high
numbers of overage students, lack of teachers in
some areas or overworked teachers, teaching
material shortages, large class sizes, lack of
classrooms, and inadequate facilities.2603
Child Labor Laws and Enforcement
The Children's Act of 2001 prohibits all forms of
child labor that are exploitative and hazardous,
or that would prevent children under the age of
16 from going to school.2604 However, this law
does not apply to children who work in
agriculture or as apprentices under the terms of
the Industrial Training Act.2605 The worst forms
of child labor may be prosecuted under different
statutes in Kenya. The Constitution prohibits
forced and bonded labor, servitude, and
slavery.2606 The Children's Act prohibits child
sexual exploitation.2607 The Penal Code prohibits
procurement of a girl under 21 for the purpose of
unlawful sexual relations.2608 Kenya does not
explicitly prohibit trafficking in persons, but
the Penal Code criminalizes child commercial
sexual exploitation, child labor, and the
transportation of children for sale.2609 On July
14, 2006, President Mwai Kibaki signed into law
the Sexual Offenses Act, which specifically
criminalizes trafficking for sexual exploitation,
child trafficking, and promotion of child sex
tourism and child prostitution, and imposes
prison terms of 10-20 years and/or large fines.
The Children's Act prohibits children under 18
years from being recruited in armed conflicts or
participating in hostilities.2610
The Ministry of Labor and Human Resource
Development is responsible for enforcing child
labor legislation with its Child Labor Division,
but is assisted by other departments and agencies
when specific expertise is required.2611 Labor
inspectors and occupational health and safety
officers have been trained in child labor
reporting2612 and labor inspection reports
include findings on child labor.2613 According to
the U.S. Department of State, the Ministry of
Labor and Human Resource Development's
enforcement of the minimum age law was
minimal.2614 The Ministry of Labor and Human
Resource Development has indicated that its
inspectorate department, which is the main unit
responsible for enforcing compliance, is
understaffed.2615 As of late 2005, the Ministry's
Directorate of Occupational Health and Safety
Services only had 57 inspectors to cover the
whole country.2616 The Department of Children's
Services is responsible for the administration of
all laws regarding children, conducts awareness-
raising activities regarding children's rights,
and manages child rehabilitation institutions.
2617 The Ministry of Tourism and Wildlife's
Hotel and Restaurant Authority (HRA), inspects
and annually licenses all hotels, lodges and
restaurants, sites where child sex tourism is
rampant at Coastal resorts.
The Government of Kenya is working with the
International Organization for Migration to
institutionalize efforts to combat trafficking
in persons. On December 5, an inter-Ministerial
meeting including the Office of the President,
Home Affairs (MHA), Tourism and Wildlife, Foreign
Affairs, Justice and Constitutional Affairs,
Gender, and Education, plus the Police, and
Attorney General agreed that MHA should lead the
anti-TIP Steering Committee and the Task Force to
draft a National Plan of Action. On January 5, 2007,
Vice President and Minister of Home Affairs Moody Awori
released new child welfare guidelines that create Area
Advisory Councils in the country. The councils are to
ensure that charitable children's institutions are
managed in line with stipulated regulations.
Kenya has adopted stricter border controls, and
established a Human Trafficking Unit (HTU) of the
Kenyan police. As of December 2006, the HTU had
not conducted any investigations into trafficking
cases. However, in late 2006, Kenya shifted the
HTU into a new Community Policing, Gender and
Children's Protection Unit led by a Deputy
Commissioner of Police who expressed enthusiasm
to the Embassy TIP officer about covering TIP.
Current Government Policies and Programs to
Eliminate the Worst Forms of Child Labor
In February 2006, the government renewed the
three-year mandate for the National Steering
Committee on the Elimination of Child Labor.
Members include the Attorney General, eight
ministries, representatives of children welfare
organizations, and non-governmental organizations,
unions and employers. An Inter-Ministerial
Coordination Committee on Child Labor chaired by
the Vice President is responsible for setting
general policy. The government's National
Development Plan for 2002-2008 recognizes child
labor as a problem and calls for an evaluation of
the impact of child labor on the individual and
the country, as well as its implications on the
quality of the future labor force.2621 Kenya's
National Policy on Child Labor aims at strengthening
the framework for coordination, monitoring and
initiating realistic strategies for preventing,
protecting, rehabilitating and reintegrating
children from child labor, especially in its worst
forms, and providing access to alternative forms
of education and skills training for sustainable
livelihoods. The National Steering Committee met
with stakeholders to review the updated policy and
discuss the National Plan of Action in September,
and the Inter-Ministerial Coordinating Committee
is reviewing the recommendations from the Steering
Committee.
The GOK is taking part in a 3-year, USD 5.3
million USDOL-funded ILO-IPEC regional project
aimed at building capacity to eliminate the worst
forms of child labor .2622 The government also
participates in a 4-year, USD 5 million USDOL
funded Timebound Program implemented by ILO-IPEC
that focuses on withdrawing and preventing
children from engaging in domestic service;
commercial sex; commercial and subsistence
agriculture; fishing and pastoralism; as well as
informal sector street work.2623 The Ministry of
Labor and Human Resource Development, through its
district labor officers and inspectors, plays an
important role in the child labor committees
established by ILO/IPEC NGO partners in 10
districts and five cities. In partnership with
the ILO, the government removes children from the
street and provides them with educational and
vocational training.2624 Kenya is also part of a
USDOL-funded regional project that aims to
improve access to and quality of basic,
technical, and vocational education and training
for HIV/AIDS-affected children who are working or
at risk of working in the worst forms of child
labor.2625 The government also took part in a
Swedish-funded ILO-IPEC project on child labor in
domestic work, which ended in June 2005.2626
Kenya also participated in two Dutch-funded
inter-regional ILOIPEC projects which focused on
combating child labor with educational
interventions.2627 The government also
participated in a USDOL-funded ILO-IPEC East
Africa Commercial Agriculture project, which
ended in May 2005.2628
In 2005, the Kenyan Ministry of Tourism and
Wildlife, UNICEF, the World Tourism Organization,
and ECPAT worked with hotels and tour operators
to increase their awareness of child prostitution
and sex tourism and to develop a Code of Conduct
to combat child sex tourism and protect
children.2629 In 2004, the government implemented
a new program requiring owners of tourist
guesthouses to register all workers,2630 partly
to deter sex tourism.2631 Subsequently, eight
guesthouses were closed due to violations and the
government provided assistance to seven foreign
children.2632 Beginning in 2005, the Ministry
of Tourism mounted a campaign to register villas
and cottages, putting them under the same
strictures and requirements as hotels, and
encouraging them to participate in the ECPAT Code
of Conduct initiative.2633 By August 2006, about
1,200 were registered. In February 2006, 30
hotels on the Coast, which is the destination of
many of the tourists visiting Kenya, signed the
ECPAT Code of Conduct. The Ministry of Tourism
and Wildlife and the Kenya Association of
Hoteliers and Caterers intend to see all hotel
operators and other tourism and hospitality firms
sign and implement the Code, but there were no
further signups in 2006. The Ministry of Tourism
and Wildlife plans to make implementation of the
Code a condition for annual licensing of hotels,
lodges and restaurants by the Hotel and
Restaurant Authority.
Vice President and Minister of Home Affairs Awori
publicly accepted the UNICEF report on child sex
tourism, urged wider hospitality industry
participation in the ECPAT Code, and pledged the
government would work with UNICEF to develop
long-term strategies for child protection and
social/behavioral changes. The 2006-2007 budget
authorized the Ministry of Home Affairs Child
Protection Department to hire an additional 160
children's officers, most of whom will be posted
to the field.
Government officials, prosecutors, and police
also attended training workshops on human
trafficking conducted by the American Bar
Association.2634 The government provides shelter
and medical care to street children working in
commercial sexual exploitation.2635 The
government and ILO-IPEC are also working to
improve a database on abused children,
particularly those who are working.2636
Education sector reforms undertaken by the
government include the promotion of the free
primary education policy, good governance and
school management, as well as the review and
development of the curriculum.2637 The Government
of Kenya has also received support from UNICEF to
raise the enrollment and primary completion rates
of girls.2638 The Government of Kenya is
currently receiving support from the Education
for All Fast Track Initiative to achieve its
goal of implementing universal quality primary
education.2639 To support the government's policy
of free primary education, the World Bank is
providing USD 50 million, the majority of which
will be used to expand the Government of
Kenya/British Department for International
Development textbook program. World Bank funds
will also be used for activities such as teacher
development and enhancing school accounting
policies.2640 The U.S. Department of Agriculture
is also providing funds to support nutritious
school meals for children.2641
2583 UCW analysis of ILO SIMPOC, UNICEF MICS, and
World Bank surveys, Child Economic Activity and
School Attendance Rates, October 7, 2005.
Reliable data on the worst forms of child labor
are especially difficult to collect given the
often hidden or illegal nature of the worst
forms, such as the use of children in the illegal
drug trade, prostitution, pornography, and
trafficking. As a result, statistics and
information on children's work in general are
reported in this section. Such statistics and
information may or may not include the worst
forms of child labor. For more information on the
definition of working children and other
indicators used in this report, please see the
"Data Sources and Definitions" section of this
report.
Footnotes
2584 Central Bureau of Statistics--Ministry of
Finance and Planning, The 1998/99 Child Labor
Report, September 2001, 34; available from
http://www.ilo.org/public/english/standards/i pec/
simpoc/kenya/report/ken98.pdf.
2585 Ibid., 37.
2586 U.S. Department of State, Country Reports on
Human Rights Practices- 2004: Kenya, Washington,
DC, February 28, 2005, Section 6d; available from
http://www.state.gov/g/drl/rls/hrrpt/2004/416 09.htm
2587 Ibid., Section 5. HIV/AIDS and poverty are
thought to have contributed to a rise in the
number of orphans and street children. See
Commonwealth News and Information Service, Better
Care Needed for Children Orphaned by HIV/Aids in
Kenya, [previously online] April 21, 2004 [cited
May 13, 2004]; available from
http://allafrica.com/stories/printable/200404 2108
95.html [hard copy on file].
2588 U.S. Department of State, Country Reports-
2004: Kenya, Sections 5 and 6d. See ECPAT
International
CSEC Database, http://www.ecpat.net (Kenya;
accessed June 1, 2005).
2589 U.S. Department of State, Country Reports-
2004: Kenya, Section 5.
2590 ECPAT International CSEC Database, (Kenya;
accessed June 1, 2005).
2591 Ibid.
2592 World Bank, World Development Indicators
2005 [CD-ROM], Washington, DC, 2005.
2593 U.S. Department of State, Trafficking in Persons
Report, Washington, DC, June 3, 2005; available from
http://www.state.gov/g/tip/rls/tiprpt/2005/46 614.htm.
2594 U.S.Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
2595 U.S. Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
See also U.S. Department of State, Trafficking in Persons
Report, Washington, DC, June 3, 2005; available From
http://www.state.gov/g/tip/rls/tiprpt/2005/46 614.htm.
2596 U.S. Department of State, Country Reports-2004:
Kenya, Section 5. See also UN Commission on Human
Rights, Kenya's Statement at the 61st Session on the
Commission on Human Rights, Agenda Item 13: Rights of
the Child, 61st, April 7, 2005; available from
http://www.unchr.info/61st/docs/0408-Item13-K enya.pdf.
2597 U.S. Department of State, Country Reports-2004:
Kenya, Section 5. 2598 See Statement by Kenya 2005, 3.
See also UNICEF, Harry Belafonte urges all countries to
end school fees, New York, February 18, 2004; available
from http://www.unicef.org/media/media_19262.html.
2599 UNESCO Institute for Statistics,
http://stats.uis.unesco.org/TableViewer/table View
.aspx?ReportId=51
(Gross and Net Enrolment Ratios, Primary;
accessed December 2005).
2600 UCW analysis of ILO SIMPOC, UNICEF MICS, and
World Bank surveys, Child Economic Activity
and School Attendance Rates.
2601 UNESCO Institute for Statistics,
http://stats.uis.unesco.org/TableViewer/table View
.aspx?ReportId=55
(School life expectancy, % of repeaters, survival
rates; accessed December 2005).
2602 School completion rates for girls have
increased, and the Government of Kenya has
reported that the
completion rate among girls is higher than that
for boys. Kenya CRC Coalition, Supplementary
Report to Kenya's First Country Report on the
Implementation of the UN Convention on the Rights
of the Child, Nairobi, March 2001, 5.
2603 Integrated Regional Information Networks
(IRIN), "Kenya: Feature: The challenge of
providing free primary education", IRINnews.org,
[online], February 7, 2003 [cited June 23, 2005];
available from
http://www.irinnews.org/print.asp?ReportID=32 164.
See also UNESCO-Nairobi Office, "Kenya launches
mass literacy," EFA News No. 4 (May, 2003);
available from
http://www.unesco.org/education/efa/news_en/2 8.05
.03_kenya.shtml.
2604 U.S. Embassy- Nairobi, reporting, August 15,
¶2003. See also ILO NATLEX National Labor Law
Database, Children Act, 2001 (No.8 of 2001);
accessed June 23, 2005; available from
http://www.ilo.org/dyn/natlex/natlex_browse.h ome.
2605 See U.S. Department of State, Country
Reports- 2004: Kenya, Section 6d.
2606 The Constitution of Kenya, Revised Edition;
available from
http://kenya.rcbowen.com/constitution/.
2607 Integrated Regional Information Network,
"Kenya: Focus on New Legislation and Hopes for
Child Welfare", IRINnews.org, [online], March 1,
2002 [cited June 23, 2005]; available from
http://www.irinnews.org/print.asp?ReportID=23 483.
2608 Government of Kenya, Penal Code, [previously
online], Section 147; available from
http://209.190.246.239/protectionproject/stat utes
PDF/Kenya1.pdf [hard copy on file]. See also
ECPAT International CSEC Database, (Kenya;
accessed June 1, 2005).
2609 U.S. Department of State, Country Reports-
2004: Kenya, Section 5.
2610 The Children's Act of 2001 also states that
it is the government's responsibility to protect,
rehabilitate, and re-integrate child victims of
armed conflict into society. Coalition to Stop
the Use of Child Soldiers, Child Soldiers Global
Report 2004: Kenya, London, November 17, 2004;
available from http://www.childsoldiers.
org/document_get.php?id=966.
2611 The Child Labor Division is staffed by 10
officers. Central Bureau of Statistics--Ministry
of Finance and Planning, The 1998/99 Child Labor
Report, 7. See also U.S. Embassy- Nairobi,
reporting, August 23, 2004. U.S. Embassy-
Nairobi, reporting, September 14, 2005.
2612 U.S. Department of State, Country Reports-
2004: Kenya, Section 6d.
2613 Ibid.
2614 Ibid.
2615 U.S. Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
2616 Ibid. See also U.S. State Department
official, email communication to USDOL official,
August 18, 2006.
2617 Central Bureau of Statistics--Ministry of
Finance and Planning, The 1998/99 Child Labor
Report, 7.
2618 U.S. Department of State, Trafficking in
Persons Report.
2619 Ibid.
2620 U.S. Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
2621 ILO-IPEC, Technical Progress Report:
Prevention, withdrawal, and rehabilitation of
children engaged
in hazardous work in commercial agriculture in
Kenya, Geneva, August 29, 2002, 3.
2622 The project's core countries also include
Ghana, Nigeria, Uganda, and Zambia. ILO-IPEC,
Building the Foundations for Eliminating the
Worst Forms of Child Labor in Anglophone Africa,
project document, Geneva, September 24, 2002.
2623 The project supports the National Plan of
Action for the Elimination of the Worst Forms of
Child Labor in Kenya. See ILO-IPEC, Supporting
the National Plan of Action for the Elimination
of the Worst Forms of Child Labor in Kenya,
project document, Geneva, September 30, 2004.
2624 U.S. Department of State, Trafficking in
Persons Report.
2625 World Vision, Kenya, Uganda, Rwanda, and
Ethiopia Together (KURET) Initiative, project
document, Federal Way, July 18, 2005.
2626 ILO-IPEC official, email communication to
USDOL official, November 8, 2005.
2627 One project was funded at USD 2.47 million
and ended in December 2005, while the other,
which focuses on child domestic workers, was
funded at USD 391,615 and is slated to end in
February 2006.
Ibid.
2628 ILO-IPEC, Prevention, withdrawal and
rehabilitation of children engaged in hazardous
work in the commercial agricultural sector in
Africa, project document, Geneva, September 28,
¶2000.
2629 U.S. Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
2630 U.S. Department of State, Trafficking in
Persons Report 2005.
2631 U.S. Department of State, Country Reports-
2004: Kenya, Section 5.
2632 U.S. Department of State, Trafficking in
Persons Report.
2633 U.S. Embassy- Nairobi official, email
communication to USDOL official, August 11, 2006.
2634 U.S. Department of State, Trafficking in
Persons Report.
2635 Ibid.
2636 U.S. Embassy- Nairobi, reporting, August 23, 2004.
2637 Republic of Kenya, Millennium Development
Goals: Progress Report for Kenya, 2003; available from
http://www.undp.org/mdg/kenya.pdf.
2638 UNICEF, At a glance: Kenya, in UNICEF,
[online] n.d. [cited June 23, 2005]; available
From http://www.unicef.org/infobycountry/kenya.htm l.
2639 World Bank, Education for All Fast Track
Initiative: Frequently Asked Questions, World
Bank, [online] October 14, 2005 [cited January
17, 2006]; available from
http://www1.worldbank.org/education/efafti/fa q.asp.
2640 World Bank Projects Database,
http://www.worldbank.org (Free Primary Education
Support Project; accessed September 23, 2005).
2641 U.S. Department of State, U.S. Funds Will
Provide School Meals in Latin America, Caribbean,
Press release, Washington, D.C., August 17, 2004;
available from
http://usinfo.state.gov/xarchives/display.htm l?p=
washfileenglish&y=2004&m=August&x=20040817152 631A
EneerG0.8231623&t=livefeeds/wf-latest.html
RANNEBERGER