Seeing Progress on Efforts to Combat Child Labor in Botswana

The Bureau of International Labor Affairs' (ILAB) annual Findings on the Worst Forms of Child Labor assesses U.S. trade beneficiary countries' efforts to eliminate the worst forms of child labor through legislation, enforcement mechanisms, policies and social programs. The report also includes findings on the prevalence of child labor in each country and country-specific suggestions for government action.

But there is always more to the story. For 2022, Botswana received a “moderate advancement” rating for its efforts to eliminate the worst forms of child labor. This is a noteworthy achievement, as it received a minimal advancement rating for the five consecutive years prior (2017-2021). Botswana's advancement exemplifies our engagement and policy work in action.

We spoke with Caleb Owen, a senior international relations officer at ILAB, and Frances Ng'ambi from Humana People to People Botswana, an NGO, to learn more about the country's progress.

Botswana received a “minimal advancement” rating in the child labor report from 2017 to 2021. Why was that?

Owen: Country assessments in our child labor report are based on desk research and government information. Every year, we ask governments to provide us with information on their efforts to address child labor. These requests are channeled through our embassies.

Between 2017 and 2021, the Botswana government provided minimal information on its efforts to address child labor. Part of this is that there was limited information available on child labor issues in the country, which likely impacted policy prioritization. ?

Ng'ambi: In Botswana, child labor has not been perceived as a problem. This is due to limited information on the topic and cultural misperceptions regarding distinctions between child labor and other categories of children's work, such as daily chores.

This year, Botswana was upgraded to “moderate advancement.” What changed?

Owen: We received substantive feedback from the government regarding their efforts and activities to address child labor in 2022. This was not out of the blue, though. This was the result of almost three years of sustained engagement between ILAB and the State Department, the U.S. Embassy in Gaborone, the Botswana ambassador to the United States and Botswanan NGOs.

Ng'ambi: The government’s interest in addressing child labor can be attributed to three reasons. First, Botswana is committed to protecting children's rights. Second, they want to ensure that the value chain of beef or any other agriculture produced does not involve child labor. Third, they are also committed to adhering to all the international conventions Botswana has signed.

What made the engagement strategy with Botswana successful?

Owen: Our success came from good old-fashioned teamwork. The initiative’s success derived from all of us working together to identify and solve information barriers in our report.

After being briefed in 2020, the State Department’s Africa desk officer for Botswana became a strong proponent of our reports. She facilitated several briefings between ILAB and the U.S. Embassy in Gaborone and connections between us and the Botswana Embassy in Washington, D.C.

We then conducted multiple briefings with the Botswana ambassador in D.C., who was understandably concerned about the country's low assessment and the possible implications for trade. He elevated the issue in the Botswana government, meeting with his Labor Ministry in Gaborone to discuss the country's low standing in the report and connecting the ministry to our labor reporting officer at the embassy to discuss the issue.

Much credit goes to the State Department for funding the Humana People to People Botswana's child labor project. After sustained discussions about the gaps in our reporting and what we learned from Botswanan civil society organizations about child labor, the U.S. embassy submitted a proposal to the State Department's Africa Regional Fund for a child labor project. That project started in 2022 and has created opportunities for government engagement and generated significant momentum.

The engagement began in 2020, but it took until this year for Botswana's rating to advance. Should that be surprising? What were some of the challenges along the way?

Owen: Change occurred slower than I had initially expected, but it was not surprising considering the challenges discussed earlier. It took time to familiarize the government of Botswana with our reports and for them to respond. It was about a three-year process to get where we are now. It came with many disappointments: not getting the information we needed and having to report bad news regarding Botswana's assessment level to the D.C. ambassador.

But when momentum seemed to stall, we kept up communications with the Embassy of Botswana in Washington through opportunities like briefing the incoming deputy chief of mission and ambassador. We also continued to converse with the Botswana Embassy in D.C. These efforts helped sustain interest.?

How has the government of Botswana's approach to child labor changed over the years?

Ng'ambi: While this is the third project that Humana People to People Botswana carried out on child labor in Botswana, it is the first time we've received strong support from the government.

They've provided financial support and human resources for the district surveys we conducted n Ghanzi and Tsabong districts, and the Minister of Labor and Home Affairs has become a real project champion. She officially launched the project in D'Kar in August 2022 and reiterated the government's commitment to eliminate the worst forms of child labor. I think this was due to the awareness raising from the U.S. mission, ILAB, and Humana People to People Botswana's consistent consultations with her team. They also participated in training exercises on child labor concepts involving labor inspectors and have partnered with us on inspections in districts where child labor has been reported on commercial farms and cattle posts.

Owen: There have been other notable actions from the Botswana government. They ratified the International Labor Organization's Labor Inspection Convention and the Labor Inspection Agriculture Convention. The child labor report identified insufficient labor inspection in the agricultural sector as a critical challenge, so this is an important development toward one of our key policy recommendations. Botswana's police services are also increasing efforts to address child labor. For instance, they conducted educational campaigns in schools to inform teachers and students about trafficking in persons and sexual exploitation and have set up child-friendly police stations. ?

Where do things stand today in Botswana in terms of child labor? What gives you confidence that progress will continue?

Ng'ambi. There are three sectors where child labor is suspected: agriculture, livestock and domestic work in urban areas involving young girls. We see that children aged 8-12 years take care of small livestock while those aged 13-17 are hired to herd and care for cattle. Many children involved in child labor have dropped out of school.

People are starting to learn, including the government, but there is more to do. We need a countrywide program that involves other critical government sectors such as the Ministry of Justice, the Ministry of Education and the Department of Social Welfare. There is also a need for more work with laws and policies dealing with child labor, including strengthening institutions charged with the promotion of children's rights.

Owen: The government’s collaboration with Humana People to People Botswana is very encouraging and suggests there might be greater political will within the Botswana government for dialogue and collective action on child labor matters than there was three years ago.