Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

Worst Forms of Child Labour Convention, 1999 (No. 182) - Benin (Ratification: 2001)

Article 6 of the Convention. Programmes of action. 1. National plan of action for the elimination of the worst forms of child labour in Benin. In its previous comments, the Committee asked the Government to provide information on the impact of the measures taken under the “National plan of action to combat the worst forms of child labour (PAN) 2019–23”.

The Committee notes the Government’s indications in its report that, following the measures taken under PAN 2019–23 and the various campaigns implemented in this context, the multiple indicator cluster survey (MICS) 2021–22 estimates that 32.6 per cent of children are affected by these worst forms of child labour. The Government also indicates that it plans to develop the third generation of PAN for the elimination of the worst forms of child labour in 2025, with support from the United Nations Children’s Fund (UNICEF).

The Committee duly notes the integration of Benin in 2022, with ILO support, into the Alliance 8.7 global partnership for the elimination of forced labour, modern slavery, human trafficking and child labour. In this regard, it notes that the priority areas of the 2023 road map are agriculture, livestock and fisheries, mining and quarrying, and domestic work. Moreover, it notes that priority actions include: (i) prosecution of perpetrators and accomplices of trafficking in relation to child labour and forced labour; (ii) coordination of action against child labour, trafficking and forced labour; and (iii) monitoring, data collection and knowledge-sharing, as well as mobilization of resources. The Committee requests the Government to provide information on the impact of the measures taken in the context of PAN – which came to an end in 2023 – to eliminate the worst forms of child labour, as well as on the adoption of the third generation of PAN. The Committee requests the Government to provide information on the measures taken in the context of the Alliance 8.7 road map and the results achieved in this regard.

2. National policy against trafficking of persons. In its previous comments, the Committee noted that a “National policy to combat trafficking in persons 2022–31”, together with its “Plan of action 2022–26”, have been formulated.

The Committee notes with regret the Government’s indications that although the “National policy to combat trafficking in persons 2022–31” has been drawn up, it has not yet been adopted by the Council of Ministers and consequently it has not yet been possible to implement it. The Committee requests the Government to ensure that the “National policy to combat trafficking in persons 2022–31” is adopted by the Council of Ministers as soon as possible. It requests the Government to provide information on the measures taken in the context of the national policy and its plan of action, once they have been adopted.

Article 7(2). Effective and time-bound measures. Clause (a). Preventing the engagement of children in the worst forms of child labour. Access to free basic education for girls. Further to its previous comments, the Committee notes the Government’s indications that it has undertaken a number of actions, in particular: (i) continuing measures to exempt girls from school fees in lower secondary education, extending this to upper secondary education; (ii) increasing the distribution of school and hygiene kits; (iii) producing awareness-raising posters on pregnancy in school; (iv) taking action against sexual harassment and violence in school; (v) continuing to award scholarships to vulnerable girls enrolled in technical courses; and (vi) building and equipping middle and high schools to increase capacity for children from the most vulnerable areas.

In this regard, the Committee notes in particular the continuation of the “Project for the empowerment of women and the demographic dividend in the Sahel (SWEDD Benin)”, affecting around 30,000 female students, and the adoption by the Council of Ministers in July 2024 of the “National programme to accelerate the education and well-being of girls in Benin (PNAEBEFB)”, with the support of UNICEF.

However, the Committee notes the indications in UNICEF’s “2024–26 Cooperation Programme Benin” that secondary school attendance at the national level is 36.7 per cent and the secondary school completion rate is 25.4 per cent. UNICEF also indicates that the rate for basic reading skills stands at 14.9 per cent. The Committee requests the Government to continue its efforts to improve the functioning of the education system in the country. It requests the Government to continue providing information on the results achieved in the SWEDD project and the PNAEBEFB, and also, inter alia, in the pilot phase of the extension of free education to the upper secondary level.

Clause (b). Providing the necessary and appropriate direct assistance for the removal of children from the worst forms of child labour and for their rehabilitation and social integration. Sale and trafficking of children. Further to its previous comments, the Committee notes the Government’s indications that capacity-building workshops for child protection actors, including NGOs and other actors, were organized in 2023 and 2024.

Furthermore, the Government emphasizes that, through the Ministry of Social Affairs, the care system for child victims or children at risk has evolved with the establishment of one-stop child protection centres, aimed at providing comprehensive care for children in emergency situations. To this end, capacity-building activities for the managers of these centres are regularly carried out. In this regard, the Committee notes Decree No. 2022-072 of 9 February 2022 establishing procedures for the creation, organization and operation of child reception and protection centres in Benin.

The Committee further notes the information contained in the 2022 report of the “Integrated data system for the family, women and children – New generation (SIDoFFE-NG)”, in particular: (i) a total of 783 boys and 1,016 girls who were victims of trafficking were received by the various reception centres; (ii) a total of 354 boys and 555 girls who were trafficking victims were cared for by the reception centres; and (iii) a total of 598 boys and 753 girls who were trafficking victims were reintegrated by the reception centres. The Committee requests the Government to continue providing information on the measures taken to prevent children from becoming victims of trafficking, to remove children from the worst forms of child labour, and to ensure their rehabilitation and social integration. It requests the Government to continue providing information on the results achieved, particularly in the context of the SIDoFFE-NG.

Clause (d). Identification of children at special risk.HIV/AIDS orphans. In its previous comments, the Committee noted that a number of measures are being taken in terms of education and training to ensure the protection of orphans and vulnerable children (OVCs), particularly HIV/AIDS orphans. The Committee asked the Government to provide information on the number of OVCs who have received support and thus been protected from the worst forms of child labour.

While noting the lack of information from the Government in this regard, the Committee notes that, according to UNAIDS statistics for 2024, some 38,000 children have been orphaned as a result of HIV/AIDS in Benin. The Committee once again requests the Government to indicate the results achieved following the implementation of institutional measures, in terms of the number of OVCs, particularly HIV/AIDS orphans, who have received support and thus been protected from the worst forms of child labour.

Article 8. International cooperation and assistance. Regional cooperation concerning the sale and trafficking of children. In its previous comments, the Committee asked the Government to provide information on the measures taken and results achieved through the various international cooperation agreements with neighbouring countries aimed at preventing the trafficking of children under 18 years of age.

While noting the absence of information from the Government on this issue, the Committee notes the information provided by the UN Committee on the Elimination of Racial Discrimination (CERD), in its concluding observations of 16 September 2022 on the report of Benin, according to which measures have been taken by the State party to combat trafficking in persons, including the signing of bilateral agreements with countries in the subregion and interministerial actions to combat the specific problem of the exploitation of Beninese migrant workers in the Gulf States (CERD/C/BEN/CO/1-9, para. 31).

In addition, the Committee notes the indications in the 2022 report of the “Observatory for women and children (FFE)” of the Ministry of Social Affairs and Microfinance, according to which a total of 212 children were identified as victims of cross-border trafficking in 2022 (138 boys and 74 girls, including seven between 0 and 4 years of age, 21 between 5 and 9 years of age, 114 between 10 and 14 years of age, and 70 between 15 and 17 years of age). A total of 238 children who were victims of cross-border trafficking were also identified in 2021.

However, the Committee notes the concerns of the Committee on the Protection of the Rights of All Migrant Workers and Members of Their Families, in its concluding observations of 13 January 2025 on the initial report of Benin, in particular that the implementation of the bilateral agreement concluded with Congo to combat trafficking in persons and of the tripartite agreement concluded with Burkina Faso and Togo remains inadequate (CMW/C/BEN/CO/1, para. 53). The Committee encourages the Government to continue its cooperation efforts with neighbouring countries to prevent the trafficking of children under the age of 18. It requests the Government to continue providing information on the measures taken to this end and the results achieved through these various international cooperation agreements. The Committee also requests the Government to continue providing information, including though the FFE, on children who are victims of cross-border trafficking.