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

Worst Forms of Child Labour Convention, 1999 (No. 182) - Mali (Ratification: 2000)

Articles 3(a) and 7(1) and (2)(a) and (b) of the Convention. Worst forms of child labour, penalties and effective and time-bound measures. All forms of slavery or practices similar to slavery. Forced recruitment of children in armed conflict. The Committee notes that the Government insists in its report on the fact that the armed forces of Mali do not recruit or use children in their ranks and strictly respect the prohibition on recruiting or using children under 18 years of age in military operations. The Government indicates that several measures have been taken to prevent the recruitment of children, including: (1) the adoption of Act No. 2023-017 of 23 July 2023 amending and approving Ordinance No. 2023-015/PT-RM of 21 March 2023 issuing the General Conditions of Service of Military Personnel, which sets the age of recruitment in the armed forces at 18 years (section 3(3)); (2) the establishment of compulsory directives for all the units of the armed forces strictly prohibiting any involvement of children in military activities; (3) the provision of regular training to military personnel on the rights of the child and international obligations respecting the protection of children in times of conflict; and (4) the reinforcement of a system of internal control to ensure compliance with this prohibition in all military operations.

With regard to the process of the disarmament, demobilization and reintegration of children engaged in armed conflict, the Committee notes the Government’s indications that: (1) the Ministry of Defence is collaborating closely with national institutions and international partners to identify, demobilize and reintegrate all children who may have been associated in an involuntary or forced manner with armed groups; (2) all cases of the arrest and capture of children during military operations systematically result in referral by the police to the child protection services in accordance with the Protocol of 2013 signed by the Government of Mali and the United Nations; (3) specific mechanisms are implemented to ensure appropriate support, including psychosocial, health and educational support measures, with a view to lasting reintegration in society; and (4) investigations are undertaken regularly to ensure transparency and responsibility, and the results will be provided in future reports.

The Committee also notes, from the June 2025 report of the United Nations Secretary-General on children and armed conflict in Mali, that: (1) the United Nations verified 892 serious violations against 778 children (612 boys, 161 girls and five of unknown sex); (2) in total 285 children (264 boys and 21 girls) were recruited and used by armed groups in the conflict and by Malian armed forces in support roles (ten children); (3) the armed forces detained 12 boys for alleged association with armed groups and handed them over to child protection structures, and 11 of them were detained for extended periods in disregard of the 2013 handover protocol; (4) the killing and maiming of 387 children was attributed to armed groups and the armed forces; and (5) the rape was verified of 32 girls by individuals belonging to armed groups, including two in the armed forces (A/79/878-S/2025/247, paras 130 to 134).

The Committee once again deplores the recruitment and use of children in the armed conflict afflicting the country, including by the armed forces in support roles, especially since the persistence of this worst form of child labour entails other serious violations of the rights of children. While acknowledging the complexity of the situation prevailing on the ground and the presence of armed groups and armed conflict in certain regions of the country, the Committee urges the Government to intensify its efforts to bring an end to the forced recruitment of children under 18 years of age by the parties to the conflict, including the armed forces of Mali.It also requests the Government to provide detailed information on the immediate and time-bound measures taken to: (i) continue to ensure the process of disarmament, demobilization and reintegration of all children associated with the armed forces and armed groups and to ensure their rehabilitation and social integration, and to indicate the number of children who have been demobilized and the nature of the assistance provided to them; and (ii) ensure that persons who use force to recruit children under 18 years of age for their use in armed conflict are prosecuted and penalized. The Committee also requests the Government to indicate the number of investigations carried out, prosecutions and convictions against the perpetrators.

Forced or compulsory labour. Begging. The Committee notes the confirmation by the Government that talibé children are often exploited by their masters, who require them to go out begging on their behalf, and that they suffer from violence and harassment. The Government adds that the new Penal Code has been adopted (by Act No. 2024-027 of 13 December 2024), and provides that any person who is convicted of incitement to begging shall be liable to a sentence of six months of imprisonment, and if the person incited to engage in begging is a minor, the sentence shall be one year of imprisonment (section 242-91). The Committee takes due note of the adoption of the new Penal Code, but observes that the Government has not provided information on the implementation in practice of section 242-91. It therefore once again requests the Governmentto take the necessary measures to ensure that in-depth investigations are completed and prosecutions carried out to ensure that marabouts who exploit children for purely economic purposes are subject to effective and dissuasive penalties. In this regard, the Committee requests the Government toprovide information on the results achieved in terms of the number of convictions and criminal penalties imposed under section 242-91 of the Penal Code.

Clause (c). Use, procuring or offering of a child for illicit activities. Further to its previous comments, the Committee notes the Government’s indication that, although there are no specific legislative provisions prohibiting the use, procuring or offering of children under 18 years of age for illicit activities, there are laws under which the use of drugs is subject to strict controls and severe penalties (including Act No. 01-078 of 18 July 2001 on the control of drugs and its precursors and Inter-Ministerial Order No. 2022-3597 prohibiting the import, distribution, sale and use of the shisha (hookah), or any other similar appliance). The Committee notes that the Government nevertheless undertakes to consult the social partners with a view to the adoption of legislative provisions prohibiting the use, procuring or offering of children under 18 years of age for illicit activities, in particular for the production, supply and sale of drugs. The Committee requests the Government to ensure the adoption in the very near future of adequate legislative provisions to prohibit the use, procuring or offering of children under 18 years of age for illicit activities, in particular for the production, supply and sale of drugs.

Articles 3(d) and 7(2). Hazardous work and effective and time-bound measures. Children working in traditional gold panning. In its previous comments, the Committee noted that there are a significant number of children working in hazardous conditions in traditional gold panning, some of whom are not even 5 years old.

The Committee notes the Government’s indication that two child labour control missions were undertaken in Yanfolila and Kadiolo. During these missions, 36 child victims of the worst forms of child labour (including seven girls) were identified, although the Government indicates that this figure is below the real level as the missions planned for February were only carried out in July during the rainy season, a period that coincided with the entry into force of the closure of traditional gold panning sites.

The Committee also notes that Government’s indication that the period of the implementation of the National Plan of Action for the Elimination of Child Labour in Mali 2011-20 (PANETEM I) was characterized by a socio-political and security crisis in the country. The Government adds that, despite that, in collaboration with certain non-State institutions (ILO, UNICEF, etc.) and the social partners, the National Unit to Combat Child Labour (CNLTE) has carried out significant action for the removal of children from the worst forms of child labour in traditional gold panning and agriculture, and for their rehabilitation and social integration. The Committee further notes the Government’s indication that PANETEM II is in its final phase prior to adoption. The Committee requests the Government to intensify its efforts, including by ensuring the adoption and implementation of the PANETEM II, for the removal of children from the worst forms of child labour in traditional gold panning and to provide the necessary and appropriate direct assistance for their removal from this worst form of child labour and for their rehabilitation and social integration. It requests the Government to provide detailed information on the progress achieved and results obtained in this regard.

Article 7(2)(a). Access to free basic education. The Committee notes the information provided by the Government on the measures taken in the context of the implementation of the second generation Ten-Year Programme for the Development of Education and Vocational Training (PRODEC 2) 2019-28, including: (1) the various measures to limit the effects of the COVID-19 pandemic on access to education; (2) the development of several strategies to improve school enrolment and the continued school attendance of girls, including the establishment of school canteens, the distribution of food and the provision of school kits; and (3) teacher training.

Among the results achieved, the Committee notes in particular that: (1) at the primary level, between 2019 and 2023, the gross enrolment rate rose from 81.92 to 83.23 per cent; and (2) the rate of completion of the first cycle of secondary education rose from 34.5 per cent in 2019 to 37.1 per cent in 2022 (the target of PRODEC 2 for 2022 was 36.2 per cent).

The Committee also notes, according to the concluding observations of the United Nations Committee on the Rights of the Child, the concern expressed relating to: (1) the lack of resources allocated to the education sector to ensure qualified teachers and quality education for all; and (2) the high drop-out rates in primary and secondary schools, in particular among girls, caused in particular by socio-economic inequality and insecurity (CRC/C/MLI/CO/3-5, 11 June 2024, para. 38). The Committee further notes, according to the Mali Humanitarian Situation Report No. 2, published by UNICEF on 31 July 2025, that as of 30 June 2025, 2,036 schools were closed due to insecurity, affecting a total of 610,800 students and 12,216 teachers.

While noting the efforts made by the Government to improve access to basic education, the Committee once again expresses concern at the large number of children deprived of education due to the armed conflict affecting northern Mali. The Committee urges the Government to take all the necessary measures to improve the functioning of the education system and facilitate access to free basic education, particularly by increasing school enrolment rates at both the primary and lower-secondary levels, and by reducing drop-out rates in all regions of the country, including for girls and children living in areas affected by armed conflict. In this regard, it requests the Government to continue providing information on the measures taken and the progress achieved through the implementation of PRODEC II.

In light of the situation described above, the Committee deplores the recruitment and use of children in the armed conflict afflicting the country, including by the armed forces in support roles. It also expresses concern at the large number of children deprived of education due to the armed conflict affecting northern Mali. The Committee further notes with concern the continued use of children for work in traditional gold panning under hazardous conditions. The Committee also notes with regret that the Government does not provide information on the measures taken to protect talibé children (those who are forced to beg) from forced or compulsory labour. Further, the Committee notes with regret the continued absence of legislative provisions to prohibit and penalize the use, procuring or offering of a child for illicit activities, in particular for the production, supply and sale of drugs. The Committee considers that this case meets the criteria set out in paragraph 67 of its General Report to be asked to come before the Conference.

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

[The Government is asked to supply full particulars to the Conference at its 114th Session and to reply in full to the present comments in 2026.]