Child Labor and Forced Labor Reports
Kiribati
Minimal Advancement
In 2022, Kiribati made minimal advancement in efforts to eliminate the worst forms of child labor. In 2022, the Ministry of Women, Youth, Sports, and Social Affairs launched a child protection case management and referral system called SafeNet, which allows personnel from the government, churches, and NGOs to share information and assist child victims, including those found in exploitive situations. Although research is limited, there is evidence that children in Kiribati are subjected to the worst forms of child labor, including in commercial sexual exploitation. Existing laws do not identify hazardous occupations and activities prohibited for children. The law also does not specify the conditions under which light work can be undertaken. In addition, the government has not adopted a national policy to address the worst forms of child labor.
Table 1 provides key indicators on children's work and education in Kiribati. Data on some of these indicators are not available from the sources used in this report.
| Children | Age | Percent |
|---|---|---|
| Working (% and population) | 5 to 14 | 14.6 (Unavailable) |
| Attending School (%) | 5 to 14 | 95.8 |
| Combining Work and School (%) | 7 to 14 | 29.7 |
| Primary Completion Rate (%) | 93.4 |
Source for primary completion rate: Data from 2020, published by UNESCO Institute for Statistics, 2023. (1)
Source for all other data: International Labor Organization's analysis of statistics from Multiple Indicator Cluster Survey 6 (MICS 6), 2018–2019. (2)
Based on a review of available information, Table 2 provides an overview of children's work by sector and activity.
| Sector/Industry | Activity |
|---|---|
| Industry | Construction and cargo loading (3) |
| Services | Street work, including vending and working in kava bars (4,5) |
| Categorical Worst Forms of Child Labor‡ | Commercial sexual exploitation, including on foreign fishing vessels (3,6,7) |
‡ Child labor understood as the worst forms of child labor per se under Article 3(a)-(c) of ILO C. 182.
In 2022, children were found street vending, selling food at night, and working in kava bars. They worked late hours and were exposed to extreme weather and other physical safety hazards. (5) A survey conducted in 2018 and 2019 found that 7 percent of children (approximately 357 individuals) worked in economic activities for more than the legally permitted number of hours. Moreover, 9 percent of children (approximately 463 individuals) were similarly involved in household chores at or above the age‐specific thresholds, and 15 percent of children (approximately 750 individuals) were engaged in hazardous activities. (8)
Underage girls have been subjected to commercial sexual exploitation by crew members from foreign vessels. (3,6) However, there have been no reports of this occurring in the last 2 years as COVID-19 pandemic-related regulations have restricted entry of vessels into Kiribati. (4,5)
Kiribati has ratified all key international conventions concerning child labor (Table 3).
| Convention | Ratification |
|---|---|
| ILO C. 138, Minimum Age | ✓ |
| ILO C. 182, Worst Forms of Child Labor | ✓ |
| UN CRC | ✓ |
| UN CRC Optional Protocol on Armed Conflict | ✓ |
| UN CRC Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography | ✓ |
| Palermo Protocol on Trafficking in Persons | ✓ |
The government has established laws and regulations related to child labor (Table 4). However, gaps exist in Kiribati's legal framework to adequately protect children from the worst forms of child labor, including the identification of hazardous occupations or activities prohibited for children.
| Standard | Meets International Standards | Age | Legislation |
|---|---|---|---|
| Minimum Age for Work | Yes | 14 | Section 115 of the Employment and Industrial Relations Code (9) |
| Minimum Age for Hazardous Work | Yes | 18 | Section 117 of the Employment and Industrial Relations Code (9) |
| Identification of Hazardous Occupations or Activities Prohibited for Children | No | ||
| Prohibition of Forced Labor | Yes | Sections 244 and 249 of the Penal Code; Sections 118(1)(a, c, d) and 122 of the Employment and Industrial Relations Code (9,10) | |
| Prohibition of Child Trafficking | Yes | Sections 2, 43, and 44 of the Measures to Combat Terrorism and Transnational Organized Crime Act; Section 118(1)(b) of the Employment and Industrial Relations Code (9,11) | |
| Prohibition of Commercial Sexual Exploitation of Children | Yes | Sections 136, 141, and 142 of the Penal Code; Sections 118(1)(f), 118(1)(g), and 118(2) of the Employment and Industrial Relations Code (9,10) | |
| Prohibition of Using Children in Illicit Activities | Yes | Section 142 of the Penal Code; Sections 118(1)(h) and 118(1)(i) of the Employment and Industrial Relations Code (9,10) | |
| Minimum Age for Voluntary State Military Recruitment | N/A† | ||
| Prohibition of Compulsory Recruitment of Children by (State) Military | N/A† | ||
| Prohibition of Military Recruitment by Non-state Armed Groups | Yes | Sections 118(1)(e) of the Employment and Industrial Relations Code (9) | |
| Compulsory Education Age | Yes | 15 | Section 7 of the Education Act (12) |
| Free Public Education | Yes | Section 11 of the Education Act (12) |
† Country has no standing military (13)
The government has not identified by national law or regulations the types of hazardous work prohibited for children. Also, under Article 116 of the Employment and Industrial Relations Code, the laws do not specify the activities and hours of work per week that are acceptable for children engaged in light work, or the conditions under which light work can be undertaken. (9) In addition, as the minimum age for work of 14 is lower than the compulsory education age of 15, children may be encouraged to leave school before the completion of compulsory education. (9,12)
The government has established institutional mechanisms for the enforcement of laws and regulations on child labor (Table 5).
| Organization/Agency | Role & Activities |
|---|---|
| Ministry of Employment and Human Resources | Enforces labor laws, including those related to child labor. (4) |
| Kiribati Police Services | Enforce criminal laws related to forced child labor, child trafficking, commercial sexual exploitation, and the use of children in illicit activities. (5) Investigate cases of human trafficking and sexual exploitation of children through a special Domestic Violence and Sexual Offenses Unit. (14) |
Labor Law Enforcement
In 2022, labor law enforcement agencies in Kiribati took actions to address child labor (Table 6). However, gaps exist within the operations of the Ministry of Employment and Human Resources that may hinder adequate labor law enforcement, including a lack of training for labor inspectors.
| Overview of Labor Law Enforcement | 2021 | 2022 |
|---|---|---|
| Labor Inspectorate Funding | $17,300 (4) | Unknown (5) |
| Number of Labor Inspectors | 5 (4) | 5 (5) |
| Mechanism to Assess Civil Penalties | Yes (9) | Yes (5) |
| Training for Labor Inspectors Provided | No (4) | No (5) |
| Number of Labor Inspections Conducted at Worksite | 81 (4) | Unknown (5) |
| Number of Child Labor Violations Found | 0 (4) | 0 (5) |
| Number of Child Labor Violations for Which Penalties Were Imposed | 0 (4) | 0 (5) |
| Number of Child Labor Penalties Imposed that Were Collected | 0 (4) | 0 (5) |
| Routine Inspections Conducted | Yes (4) | Yes (5) |
| Routine Inspections Targeted | Yes (4) | Yes (5) |
| Unannounced Inspections Permitted | Yes (9) | Yes (5) |
| Unannounced Inspections Conducted | Yes (4) | Yes (5) |
| Complaint Mechanism Exists | Yes (4) | Yes (5) |
| Reciprocal Referral Mechanism Exists Between Labor Authorities and Social Services | Yes (4) | Yes (5) |
During the reporting period, virtual trainings for labor inspectors were conducted with the ILO, although trainings were not focused on child labor issues. (5) Although the number of labor inspectors meets the ILO's technical advice, the government's ability to inspect and report on child labor issues was affected by geographical distances, isolation, sparse population, and Internet connectivity challenges. (3) In addition, research indicates that labor inspections have not been extended to informal and high-risk sectors with evidence of child labor, including its worst forms, such as fishing vessels, kava bars, domestic work, and nightclubs. (15) Resource and capacity constraints restrict the government's services and activities related to labor law enforcement, including training for labor inspectors. (4)
Criminal Law Enforcement
Research did not find information on whether criminal law enforcement agencies in Kiribati took actions to address child labor (Table 7).
| Overview of Criminal Law Enforcement | 2021 | 2022 |
|---|---|---|
| Training for Criminal Investigators Provided | No (4) | No (5) |
| Number of Investigations | 0 (4) | 0 (5) |
| Number of Prosecutions Initiated | 0 (4) | 0 (5) |
| Number of Convictions | 0 (4) | 0 (5) |
| Imposed Penalties for Violations Related to the Worst Forms of Child Labor | 0 (4) | 0 (5) |
| Reciprocal Referral Mechanism Exists Between Criminal Authorities and Social Services | Yes (4) | Yes (5) |
Financial resource constraints hampered the government's ability to provide trainings for criminal investigators. (4)
The government has established a key mechanism to coordinate its efforts to address child labor (Table 8).
| Coordinating Body | Role & Activities |
|---|---|
| Child Protection Working Group | A government interagency group coordinated by the Ministry of Women, Youth, Sports, and Social Affairs. (5) Oversees the implementation of the Child, Young People and Family Welfare Act. (3) The Child Protection Working Group remained active during the reporting period. (16) |
In November 2022, the government launched the Child Protection Referral Pathway. (16-18) In December, the Ministry of Women, Youth, Sport, and Social Affairs held a week-long training on child protection for social welfare officers and counselors. The new Child Protection Referral Pathway was a main topic of this training. (19) In addition, the government continued to use and strengthen SafeNet, a child protection case management and referral system. (5,16,20)
The government has established policies related to child labor (Table 9). However, policy gaps exist that hinder efforts to address child labor, including coverage of all worst forms of child labor.
| Policy | Description & Activities |
|---|---|
| Children, Young People, and Families Welfare System Policy | Focuses on strengthening the welfare system, in part by implementing services to prevent the abuse, violence, neglect, and exploitation of children and young people, including in hazardous labor. (21) During the reporting period, the government remained active in strengthening child protection activities and continued implementing this policy. (5) |
| United Nations Pacific Strategy (2018–2022) | Addressed, developed, and implemented strategic economic development priorities in the South Pacific, including eliminating child labor and the worst forms of child labor. This multi-national strategic framework program covered 14 South Pacific nations. (22,23) Activities were conducted under the UNICEF Pacific Multi-Country Child Protection Program (2018–2022). (22,23) Research was unable to determine whether activities took place in Kiribati in 2022. |
‡ The government had other policies that may have addressed child labor issues or had an impact on child labor. (3,6,15)
Research found no evidence of a policy that focuses specifically on addressing the worst forms of child labor. (6)
In 2022, the government funded and participated in programs that include the goal of eliminating or preventing child labor (Table 10). However, gaps exist in these social programs, including the inadequacy to address child labor in all sectors.
| Program | Description & Activities |
|---|---|
| UNICEF Pacific Multi-Country Child Protection Program (2018–2022) | Prioritized children's rights including the elimination of the worst forms of child labor. This was a multi-country program in 14 Pacific Island countries aligned with the UN Pacific Strategy (2018–2022). (23,24) Research was unable to determine whether activities took place in Kiribati in 2022. |
| Hotlines† | Child Protection Officer-, Ministry of Women, Youth, Sports, and Social Affairs- and police-supported 24-hour hotlines for children to report violations, request information, or obtain access to services. Hotlines remained active in 2022. (5,16) |
For information about USDOL’s projects to address child labor around the world, visit https://www.dol.gov/agencies/ilab/ilab-project-page-search
† Program is funded by the Government of Kiribati.
‡ The government had other social programs that may have included the goal of eliminating or preventing child labor. (4,25)
Foreign development partners supported funding for counseling and shelter services for vulnerable women and children experiencing domestic violence and exploitation. The geographical distance, isolation, and sparsely populated nature of Kiribati's islands challenges the government's ability to provide public services. (5) Although the government has implemented programs to assist children in exploitative and abusive situations, research found no evidence that the government has carried out programs specifically designed to assist children who are engaged in construction and street vending work, or young girls subjected to commercial sexual exploitation with crew members from foreign fishing vessels. (5)
Based on the reporting above, suggested actions are identified that would advance the elimination of child labor in Kiribati (Table 11).
| Area | Suggested Action | Year(s) Suggested |
|---|---|---|
| Legal Framework | Raise the minimum age for work from 14 to 15 to align with the compulsory education age. | 2018 – 2022 |
| Ensure that the law specifies the activities and number of hours of work per week that are acceptable for children engaged in light work, and the conditions under which children can engage in light work. | 2015 – 2022 | |
| Determine by national law or regulation the types of hazardous work prohibited for children, after consultation with employers’ and workers’ organizations. | 2011 – 2022 | |
| Enforcement | Institutionalize training on child labor laws for labor inspectors and criminal investigators and allocate funding for this training. | 2017 – 2022 |
| Ensure that labor inspectors are inspecting informal and high-risk sectors where there is evidence of child labor violations, including its worst forms. | 2021 – 2022 | |
| Publish labor law enforcement information, including labor inspectorate funding and the number of labor inspections conducted at the worksite. | 2022 | |
| Government Policies | Adopt a policy that addresses the worst forms of child labor. | 2014 – 2022 |
| Social Programs | Collect and publish data on the extent and nature of child labor in all sectors to inform policies and programs. | 2017 – 2022 |
| Implement social programs to address all relevant forms of child labor, including in construction and street vending. | 2017 – 2022 |
- UNESCO Institute for Statistics. Gross intake ratio to the last grade of primary education, both sexes (%). Accessed March 15, 2023. For more information, please see "Children's Work and Education Statistics: Sources and Definitions" in the Reference Materials section of this report.
http://data.uis.unesco.org/ - ILO. Analysis of Child Economic Activity and School Attendance Statistics from National Household or Child Labor Surveys. Original data from Multiple Indicator Cluster Survey (MICS 6), 2018–2019. Analysis received March 2023. Please see "Children's Work and Education Statistics: Sources and Definitions" in the Reference Materials section of this report.
- U.S. Embassy- Suva. Reporting. January 22, 2020.
- U.S. Embassy- Suva. Reporting. January 14, 2022.
- U.S. Embassy- Suva. Reporting. February 21, 2023.
- U.S. Embassy- Suva. Reporting. February 21, 2021.
- ILO CEACR. Observation concerning Worst Forms of Child Labour Convention 1999 (No. 182) Kiribati (ratification: 2009). 2022.
https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:13100:P13100_COMMENT_ID:4117207 - Kiribati National Statistics Office. Kiribati Social Development Indicator Survey 2018–19, Survey Findings Report. South Tarawa, Kiribati- March 2020.
https://asiapacific.unfpa.org/en/publications/kiribati-social-development-indicator-survey-2018-19 - Government of Kiribati. Employment and Industrial Relations Code. Enacted: December 24, 2015. Source on file.
- Government of Kiribati. Penal Code. Enacted: October 18, 1965.
http://www.paclii.org/ki/legis/consol_act/pc66/ - Government of Kiribati. Measures to Combat Terrorism and Transnational Organized Crime Act 2005. Enacted: June 14, 2005.
http://www.paclii.org/ki/legis/num_act/mtctatoca2005608/ - Government of Kiribati. Education Act 2013, No. 12 of 2013. Enacted: December 30, 2013. Source on file.
- U.S. Department of State. Country Reports on Human Rights Practices- 2020: Kiribati. Washington, D.C., March 30, 2021.
https://www.state.gov/reports/2020-country-reports-on-human-rights-practices/kiribati/ - U.S. Embassy- Suva official. E-mail communication to USDOL official. April 7, 2020.
- ILO CEACR. Direct Request concerning Worst Forms of Child Labour Convention 1999 (No. 182) Kiribati (ratification: 2009). 2022.
https://www.ilo.org/dyn/normlex/en/f?p=1000:13100:0::NO:13100:P13100_COMMENT_ID:4117209 - U.S. Embassy- Suva official. E-mail communication to USDOL official. June 15, 2023.
- Ministry of Women Youth Sport and Social Affairs. Facebook, November 22, 2022.
https://www.facebook.com/mwyssaKiribati - UNICEF. CP Legal & Policy Frameworks. Accessed May 26, 2023.
https://open.unicef.org/country-output?output-id=1430A006804001000 - Ministry of Women Youth Sport and Social Affairs. Facebook, December 28, 2022.
https://www.facebook.com/mwyssaKiribati - UN Women: Asia and the Pacific. More coordinated services for Kiribati women and girl survivors of violence. November 24, 2018.
https://asiapacific.unwomen.org/en/news-and-events/stories/2018/11/more-coordinated-services-for-kiribati-women - Government of Kiribati. Children, Young People and Families Welfare System Policy. April 2012. Source on file.
- UN. United Nations Pacific Strategy 2018–2022: A Multi-Country Sustainable Development Framework in the Pacific Region. 2017.
https://pacific.un.org/sites/default/files/2020-06/UNPS_2018-2022.pdf - UN. Strategy Note for the 2018–2022 Pacific Multi-Country Programme of Cooperation. New York, October 10, 2017. Source on file.
- UNICEF. Child Protection: Pacific Multi-Country Programme 2018-2022. October 10, 2017.
https://open.unicef.org/sites/transparency/files/documents/2017 Fiji PSN Child Protection TOC.pdf - ILO. Application of International Labor Standards 2021. Geneva, June 14, 2021.
https://www.ilo.org/wcmsp5/groups/public/---ed_norm/---relconf/documents/meetingdocument/wcms_802543.pdf
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