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Viewing cable 09TASHKENT327, UZBEKISTAN: EDUCATION MINISTRY ON ANTI-CHILD LABOR EFFORTS;
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
09TASHKENT327 | 2009-03-19 13:01 | 2011-08-26 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Tashkent |
VZCZCXRO5532
RR RUEHDBU RUEHIK RUEHLN RUEHPOD RUEHSK RUEHVK RUEHYG
DE RUEHNT #0327/01 0781030
ZNR UUUUU ZZH
R 191301Z MAR 09
FM AMEMBASSY TASHKENT
TO RUEHC/SECSTATE WASHDC 0626
INFO CIS COLLECTIVE
NATO EU COLLECTIVE
RHEFDIA/DIA WASHINGTON DC
RHEHAAA/NSC WASHINGTON DC
RUEAIIA/CIA WASHINGTON DC
RUEHGV/USMISSION GENEVA 0139
RUEHIL/AMEMBASSY ISLAMABAD 0197
RUEHKA/AMEMBASSY DHAKA 0157
RUEHKT/AMEMBASSY KATHMANDU 0154
RUEHLM/AMEMBASSY COLOMBO 0157
RUEHNE/AMEMBASSY NEW DELHI 0188
RUEHNT/AMEMBASSY TASHKENT
RUEHVEN/USMISSION USOSCE 0144
RUEKJCS/SECDEF WASHDC
UNCLAS SECTION 01 OF 03 TASHKENT 000327
C O R R E C T E D C O P Y ADDED SENSITIVE
SENSITIVE
SIPDIS
DEPT FOR SCA, DRL, AND G/TIP
DRL/ILCSR FOR TRACY HAILEY AND TU DANG
G/TIP FOR MEGAN HALL
DOL/ILAB FOR CHARITA CASTRO, TINA MCCARTER, AND SEROKA MIHAIL
ASTANA FOR ALMATY/USAID
E.O. 12958: N/A
TAGS: PHUM ECON ELAB KCRM PGOV PREL SCUL SOCI UZ
SUBJECT: UZBEKISTAN: EDUCATION MINISTRY ON ANTI-CHILD LABOR EFFORTS;
EDUCATION REFORM
REF: TASHKENT 73
TASHKENT 00000327 001.3 OF 003
¶1. (U) Summary: During a meeting on February 23, Ministry
of Public Education officials discussed their efforts to combat child
labor during the cotton harvest season. They reported that
Uzbekistan's transition from 9-year to 12-year mandatory free
secondary education, a major reform, would be fully implemented ahead
of schedule in 2009. The officials also described the government's
significant investments in the refurbishment of old schools and
opening of new schools in recent years, particularly in rural areas.
In contrast to other regions such as South Asia, the impact of child
labor on the education of Uzbek children appears limited. Some Uzbek
schoolchildren still miss school for several weeks a year to
participate in the cotton harvest (reftel), but since they attend
school six days a week and enjoy fewer vacations throughout the year,
they ultimately have at least as many classroom hours as students in
the United States. Separately, contacts provided Emboffs with
additional government statistics on Uzbekistan's systems of secondary
and higher education (septels). End summary.
"STEP-BY-STEP PROGRESS" ON COMBATING CHILD LABOR
--------------------------------------------- ---
¶2. (U) On February 23, poloff met with Ministry of Public
Education Planning Department for Educational Institutions Chief
Bakhtiyor Daniyarov and International Cooperation Department Head
Hikmatilla Daminov, who described the Ministry's efforts to combat
the use of schoolchildren to pick cotton during Uzbekistan's harvest
each fall (a long-standing practice that has continued since the
Soviet era). Citing Uzbekistan's adoption last year of a new law on
children's rights, ILO anti-child labor conventions (as of March 10,
ILO now recognizes Uzbekistan's adoption of ILO Conventions 182 and
138), and a National Action Plan on their implementation, Daniyarov
argued that the government was making "step-by-step progress"
combating child labor, while also noting that "reality cannot be
changed in a minute." "We do not want our kids to work, we want them
to study at school," he emphasized.
¶3. (U) Daniyarov asserted that his Ministry was playing a key
role in the implementation of the National Action Plan. He
explained that his office in Tashkent had passed along copies
of the National Action Plan, as well as a separate government order from
October explaining the illegality of mobilizing children for the cotton
harvest, to all of the Ministry's branches at the provincial and
district level throughout the country. According to Daniyarov,
he made sure that all of its regional officials had "learned
the documents by heart."
ANTI-CHILD LABOR MATERIAL TO BE DISTRIBUTED THROUGH SCHOOLS
--------------------------------------------- --------------
¶4. (U) Daniyarov showed poloff copies of several
pamphlets on the worst forms of child labor, which he said were
printed in conjunction with the Ministry of Labor. The glossy
pamphlets, in both Russian and Uzbek, looked professionally-designed
and clearly listed cotton picking as a dangerous form of labor in
which children under the age of 18 should not participate. The
pamphlets also listed other worst forms of child labor and cited
Uzbekistan's recent adoption of ILO anti-child labor conventions. He
reported that enough copies of the pamphlet would be printed this
year to distribute to each of the 5,180,217 children currently
studying in Uzbekistan's schools. The Ministry also plans to
distribute additional copies to teachers and local officials.
Daniyarov further reported that the Ministry had prepared similar
posters on the worst forms of child labor which were to be
distributed and displayed in schools.
¶5. (U) Daniyarov argued that such awareness-raising activities
were especially critical for combating child labor, as he
noted that many of Uzbekistan's farmers were "poorly
educated" and ignorant about the government's recent legal
reforms. He noted that if farmers "hear that there will
be rain, they will immediately rush to gather school children
to pick cotton" before the rain damages their cotton
crop and reduces its value (Note: While Daniyarov did
not directly allude to last fall's harvest, knowledgeable
observers suggested this is exactly what had occurred.
Early in the harvest, observers noted
TASHKENT 00000327 002.3 OF 003
that there were fewer schoolchildren picking cotton than in previous
years. However, after the fall rains began earlier than normal, the
number of schoolchildren observed picking cotton noticeably
increased. While Daniyarov was clearly laying blame on private
farmers for the use of child labor during the cotton harvest, local
officials also play some role in mobilizing schoolchildren in some
areas, the extent of which varies considerably by region. End note.)
DATABASE OF DELINQUENT STUDENTS CREATED
---------------------------------------
¶6. (U) Daniyarov reported that the Ministry had created a central
database of students who habitually missed school. The information
will be used to identify truants, whose parents would then be
contacted by teachers, school officials, and mahalla (neighborhood
council)representatives. Each province has its own head juvenile
delinquency inspector, while additional inspectors worked at the
district level. In addition, each regional hokimiyat (administration)
has the power to convoke a special commission with representatives
from the local branches of the Ministries of Education and Interior
and the General Prosecutor's Office, to examine specific cases of
truants. Daniyarov also observed that students not only missed
school to work in agriculture, but also to work at bazaars, cafes,
and other locations, though he maintained that the overall number
of such delinquents was relatively low.
RELUCTANCE TO SHARE CHILD LABOR STATISTICS
------------------------------------------
¶7. (SBU) Daniyarov was reluctant to discuss whether the
Ministry maintained estimates of how many children missed school to
participate in the cotton harvest each fall, though he said the
Ministry was "now working to collect such statistics." Daniyarov
might have felt constrained to talk openly about this sensitive
matter in the presence of Daminov, as "International Cooperation
Department" staff at Uzbekistan's ministries are widely believed to
report directly to the National Security Service. In contrast, ILO
and UNICEF previously have reported that officials occasionally have
been more candid with them.
THE COTTON KING
---------------
¶8. (SBU) Daniyarov did note that
conditions for schoolchildren picking cotton had much improved since
independence in 1991. While he allowed that children still picked
cotton, he observed that they did so for much shorter periods of time
than the Soviet era, when students, including himself, missed school
for months at a time each fall (Note: We have heard more or less the
same from many individuals, including contacts and ordinary citizens.
Schoolchildren involved in the cotton harvest now appear to miss
between one and six weeks of school each fall, see reftel. End
note.) Revealing how ingrained cotton is in the local culture,
Daniyarov reminisced with pride being recognized as a "champion
cotton picker" while a student, claiming that he routinely collected
more than 120 kilos of cotton.
CONVERSION TO MANDATORY 12-YEAR EDUCATION ALMOST COMPLETE
--------------------------------------------- ------------
¶9. (U) Daniyarov also talked more generally about the
government's educational reform plan and its investment in new
schools and colleges, particularly in rural regions. He reported
that Uzbekistan's transition from 9-year to 12-year mandatory free
secondary education, which authorities have been gradually
introducing since 2007, would be fully implemented two years ahead of
schedule in 2009. Students will now attend primary and secondary
schools to grade 9, and then colleges (vocational schools) or lyceums
(academic-focused high schools) for grades 10 through 12. He noted
that Tashkent had already completed the transition, with the rest of
the provinces to follow this year.
INVESTMENT IN NEW RURAL SCHOOLS AND COLLEGES
--------------------------------------------
¶10. (U) To accommodate the switch to a 12-year schooling system,
Daniyarov reported that the government has invested enormous sums in
the past few years to build new colleges and lyceums. Since 1997,
when the construction of new colleges and lyceums began in earnest,
he reported that more than 1,100 such colleges and lyceums have been
opened in all regions of the country (Comment: Anecdotally, this
rings true: virtually every town we visit appears to have a new
college or lyceum. End comment.) In addition, the government has
TASHKENT 00000327 003.3 OF 003
invested large resources into refurbishing old primary and secondary
schools and building new ones. Since 2004, Daniyarov reported the
government has refurbished 6,504 primary and secondary schools, 80
percent of them in rural regions. He also noted that another 1,957
schools will be renovated in 2009. In total, he reported that the
government had invested approximately 1.6 billion dollars in schools
in recent years.
MOST RESIDENTS WANT JOBS, NOT NEW SCHOOLS
-----------------------------------------
¶11. (SBU) While some residents are clearly proud of their new
colleges and lyceums, many others have complained to poloff about the
enormous sums authorities have spent to construct them, observing
that the majority of their students will not find jobs (or university
slots, see septel) upon graduation. One resident sarcastically
referred to the schools as "shrines to the unemployed." Clearly,
most residents would rather have seen the money spent on programs or
projects that would have generated greater employment opportunities
for local residents. Others residents have noted that school
construction has provided lucrative kickback opportunities for local
officials and their cronies.
COMMENT
-------
¶12. (SBU) The child labor situation in Uzbekistan is
quite different from that in South Asian countries, such as India or
Pakistan, where significant numbers of children work full-time and
routinely miss school. In contrast, school attendance (as well as
literacy) is nearly universal in Uzbekistan. While students miss
some school each year due to the cotton picking season, most students
miss less than three weeks due to the harvest, which is then
sometimes made up during later school vacations. As students in
Uzbekistan also attend school half-day on Saturdays and enjoy fewer
vacations throughout the year than elsewhere, the vast majority of
Uzbek schoolchildren experience just as many (if not more) classroom
hours each year as their American counterparts. While exceptions do
exist and students in some areas pick cotton for longer amounts of
time, these are the exceptions, not the norm. The government also
has clearly invested large sums in refurbishing older schools and
building new schools in recent years, particularly in rural regions,
to accommodate the transition to a 12-year mandatory educational
system, a significant and positive development. While teacher
salaries remain low and resources are often scarce, residents appear
to be less concerned about the quality of primary and secondary
education itself than the fact that their children face extremely
limited employment opportunities upon graduation. The number of
slots for students to attend university is also limited (septel).
¶13. (SBU) The most effective strategy for combating the
use of child labor during Uzbekistan's cotton harvest is to encourage
the government to continue cooperation with UNICEF and to invite a
new ILO representative to serve in Tashkent. We should also
recommend that ILO send a delegation to Tashkent to meet with senior
Uzbek officials. In addition, we believe that ILO and/or UNICEF
could most effectively engage the Uzbeks in the context of a regional
program involving neighboring countries with similar problems. This
way, the Uzbeks are less likely to feel that they are being singled
out for criticism. Any regional program should not aim at
eradicating child labor overnight (an unrealistic goal), but rather
should present a long-term strategy that addresses broader and
related issues, such as rural poverty, unemployment, labor migration,
and the perverse effects of cotton quotas. The U.S. Department of
Labor can also play a role by providing funding for a regional ILO
anti-child labor project involving Uzbekistan, as they have done in
previous years.
NORLAND