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

Forced Labour Convention, 1930 (No. 29) - Zambia (Ratification: 1964)

The Committee takes note of the observations of the International Organisation of Employers (IOE), received on 1 September 2025. It also takes note of the observations of the International Trade Union Confederation (ITUC), received on 2 September 2025, and of the Government’s reply thereto. The IOE and the ITUC reiterate the comments made in the discussion held by the Committee on the Application of Standards (Conference Committee) in June 2025 and express the hope that progress will be made in the application of the Convention, in line with the conclusions of the Conference Committee.

Follow-up to the conclusions of the Committee on the Application of Standards (International Labour Conference , 113th Session , June 2025)

The Committee notes the detailed discussion that was held by the Conference Committee at the 113th Session of the International Labour Conference (June 2025), regarding the application of the Convention by Zambia.

Articles 1(1), 2(1) and 25 of the Convention. Trafficking in persons. 1. National action plan and coordination mechanisms. The Committee observes that, while noting the efforts undertaken by the Government to eradicate trafficking in persons, including through the adoption of the National Policy on Human Trafficking and Smuggling of Migrants and its implementation plan in 2022, the Conference Committee noted with concern the increase in cases of trafficking in Zambia, which remains a source, transit and destination country for victims.

The Committee takes due note of the Government’s indication, in its report, that it launched the 2025–27 National Action Plan to Combat Human Trafficking and Smuggling of Migrants on 30th July 2025. The Government specifies that the new Action Plan will include a monitoring and evaluation framework to assess results, identify implementation challenges, and guide necessary adjustments over the 2025–27 period.

The Government further states that it has initiated the development of a National Communication Strategy on Human Trafficking, which is intended to raise public awareness and prevent trafficking through targeted, culturally appropriate messaging and outreach initiatives. In addition, the National Committee on Human Trafficking serves as the main coordination platform at the national level and meets once a quarter to share information and agree on joint actions in the fight against trafficking in persons. The Anti-Human Trafficking Department is responsible for driving national efforts to combat trafficking in persons, including ensuring a harmonized approach to prevention, protection and prosecution, and prepares quarterly and annual reports on the implementation of programmes to combat trafficking in persons.

The Committee requests the Government to pursue its efforts to prevent and combat trafficking in persons and to provide information on the activities undertaken to this end by the National Committee on Human Trafficking and the Anti-Human Trafficking Department. The Committee also requests the Government to take the necessary measures to ensure the effective implementation of the 2025–27 National Action Plan to Combat Human Trafficking and Smuggling of Migrants, and to specify the results achieved, the implementation challenges encountered, and the adjustments made, within the monitoring and evaluation framework.

2. Identification and protection of victims. Both the Committee and the Conference Committee have requested the Government to ensure the effective identification of victims of trafficking for sexual and labour exploitation, and to provide them with appropriate and adequate protection and assistance.

The Government indicates that a collaborative approach is being implemented to identify and assist victims of trafficking, including through enhanced coordination between immigration and police officers at border and exit points, as well as training of labour inspectors and social workers in strategic border towns. It also indicates that, from January to June 2025, 43 victims of trafficking were identified, of whom 32 females and 11 males. All received counselling, 29 received repatriation services and one received reintegration services. They were provided with shelter, clothing, food and legal services.

In addition, the Committee notes from the written information provided to the Conference Committee by the Government, that in 2024, 186 victims were identified, of whom 73 received various forms of assistance such as shelter, food, clothing, psychosocial counselling, translation and interpretation services, legal services, and repatriation support. The Government also stated that the Victim Fund had been established and guidelines for its disbursement are under development.

The Committee takes due note of the efforts made by the Government and encourages it to continue to take measures to ensure the proper identification of victims of trafficking in persons for both labour and sexual exploitation and provide them with appropriate protection and assistance. The Committee hopes that measures will be taken for the functioning of the Victim Fund. Please provide information, and where appropriate any texts, on the functioning of the Victim Fund. The Committee also requests the Government to continue to provide information on the number of victims who have been identified and who have received protection and assistance.

3. Prosecution and application of penalties. The Committee notes that the Conference Committee requested the Government to ensure the prosecution of perpetrators and the imposition of dissuasive sanctions, and to continue to strengthen the capacity of law enforcement officials.

It notes the Government’s information that, in 2024, a total of 2,204 law enforcement officials were trained in identifying, investigating, and prosecuting cases of trafficking in persons. In addition, a guide and a trafficking in persons training programme are being developed to provide structured guidance to prosecutors, investigators, and judicial officers on how to effectively handle trafficking cases.

The Government also reiterates the information communicated to the Conference Committee that, in 2024, 41 cases of trafficking were investigated, 22 cases were prosecuted, and five convictions were secured, one of which resulted in a sentence of 13 years’ imprisonment for attempted trafficking in persons, while others are awaiting sentencing by the High Court. Eight investigations related to trafficking in persons are currently under way.

Moreover, the Committee notes the information provided by the Government to the Conference Committee, according to which information on the provisions of the Anti-Human Trafficking Act, the rights of individuals, and available channels for reporting suspected cases of trafficking in persons has been disseminated to the public through the media and at community meetings.

The Committee requests the Government to continue to take the necessary measures to ensure that law enforcement bodies have adequate capacity and resources to detect cases of trafficking in persons and carry out the appropriate investigations to gather evidence and initiate legal proceedings against perpetrators. It requests the Government to continue to provide up-to-date information on the number of reports, investigations, prosecutions, convictions and penalties imposed under the Anti-Human Trafficking Act.

Article 2(2)(a). National service obligations. In line with the previous requests made by the Committee, the Conference Committee requested the Government to take the necessary measures to amend the National Service Act, 1971, so as to limit the work exacted as part of the compulsory Zambian National Service to work of a purely military nature. It also requested information on the number of citizens who have been called to perform compulsory national service, as well as on the nature of the work to which they are assigned. The Committee recalls that under section 3 of the National Service Act, the functions of the Zambian National Service include training citizens to serve the Republic and the employment of service members in tasks of national importance. According to section 7 of the Act, citizens between the ages of 18 and 35 shall be liable to have their names in the National Service register and may be called upon to serve.

The Committee notes the Government’s indication that it is actively taking steps to amend section 3 of the National Service Act, in particular to ensure that any service required under the Act is of a purely military nature. The Government states that the draft bill is currently under review by the Ministry of Justice and will be presented to Parliament once the necessary steps have been finalized. The Government adds that, despite the provisions of the legislation, the military training offered by the Zambian National Service is voluntary in practice, since individuals are invited to apply and are selected on merit through a rigorous process. The Government also points out that even if the above-mentioned sections of the Act were to be enforced, they would still comply with Article 2(2)(a) of the Convention, as the training is of a military nature.

While noting this information on the implementation of the Zambian national service in practice, the Committee emphasizes that the fact that section 3 provides for the possibility of employment in tasks of national importance permits the use of service members in work or services that are not of purely military character. Therefore, the Committee urges the Government to amend the National Service Act with a view to aligning the national legislation with the Convention and the practice indicated, for example by ensuring that the work required under the Zambian National Service is of a purely military nature, or that the voluntary nature of the Zambian National Service is expressly stated. Please provide information on the progress made in this regard and, in particular, once it has been adopted, a copy of the law amending section 3 of the National Service Act.

The Committee is raising other matters in a request addressed directly to the Government.