The fight against child labour is not solely an ILO issue but much more widespread and structured. First of all, we have to mention the UN’s Convention on the Rights of the Child from 1989. This Convention describe the legal notion of „child”, order to ban any work which is likely to be hazardous, interfere with the education, or to be harmful to the health or physical, mental, spiritual, moral and social development of children. The document requires the member states to take legislatives about the minimum age, working hours and other working conditions, and to apply sanctions against the facilitators of child labour.
The International Covenant on Civil and Political Rights (1976) has established the protection of minors and prohibits slavery and compulsory labour. Other international conventions prohibit
furthermore human trafficking, forced labour and the exploitation of the prostituion – factors which are related to child labour. Apart from the ILO many other UN agencies and founds – among others the UNICEF, UNESCO and the FAO – and numerous NGO’s are involved in the prohibition of child labour as one of the most important elements of children welfare.
According to Jean-Michel Servais (Working conditions and Globalization’ in Blanpain R. /ed/, International Labour Law and Globalisation /Textbook, Tilburg, 2010/), we can classify the ILO’s labour standards into three categories. The first one concerns the fundamental rights, the second one covers standards of a programmatic nature and the third one relates to the technical provisions. Without any doubt, the legal norms against child labour have fallen into the first group.
Pertaining to the ILO legislation, two declarations and two recommendations deal with child labour.
The so-called Minimum Age Convention (
Convention No. 138) was adopted in 1973. This Convention unifies and simplifies the previous conventions which was made sector wise – as separate minimum age conventions existed for agricultural, industrial and fishing work, just to mention but a few. The aggregated new Convention applies a double norms: a stricter one for developed countries and another one for member states whose „economy and educational facilities are insufficiently developed” (Art. 5 of the Convention). According to the general rule, minimum age may not be less than the age of completion of compulsory schooling and in any case not less than 15 years. By contrast, developing countries under the above mentioned definition may stipulate 14 years as a minimum age. For this alteration the Convention only requires a consultation with employer’s and worker’s organisations – where such exist.
This article intends to focus on developed countries but we cannot be reluctant about this provision. Firstly, the criteria of developing nations is so broad and dim that almost every country could define itself as a developing one. Secondly, the Convention requires only a consultation and not a co-decision with concerned organisations. Thirdly, in absence of these organisations – which would be sharply controversial with ILO’s tripartism – such weak consultation is not mandatory either. In these circumstances practically every country can decrease the minimum age to 14 years.
Furthermore, the Minimum Age Convention stipulates that for jobs which are likely to jeopardise the health, safety or moral of young person shall not be less than 18 years.
The Minimum Age Recommendation (
Recommendation No.146) – among others - refers to the most vulnerable groups: migrant children and children without family, providing that a special attention is required to take towards them. Education and vocational training as solutions to prevent child labour are also mentioned. The Recommendation urges the member states to raise the minimum age to 16 years – or 15 years in developing countries.
The
Convention on the Worst Forms of Child Labour (C No. 182) stems from another mindset. Whereas the Minimum Age Convention accepts the variety of the countries and supports solutions on long term, the Worst Forms Convention applies zero tolerance and aims to prohibit immediately the worst forms indeed.
This Convention declares all forms of slavery, trafficking, forced and compulsory labour, prostitution, pornographic performance, any illicit activities, and all kind of works which are likely to harm the health, safety or morals of children as activities to prohibit and eliminate immediately and effectively concerning all children under the age of 18.
The ratifying member states are obliged to monitor the implementation of the Convention’s provisions. Action programs and penal sanctions are to be taken since active policy is required on behalf of the members. The ratifying countries are supposed to ensure the access to a free elementary education in order to avoid child labour.
Likewise to the minimum age provisions, the Worst Forms Convention was followed by a recommendation as well. Similarly again, the Recommendation introduce the most vulnerable groups: younger children and the girl child. This ILO standard contains guidelines about which type of abusive activities are deemed to be criminal offences.
The acceptance of Worst Forms Convention is one of the biggest success story of the ILO. Within a decade 90 % of its member states have ratified the Convention while Minimum Age Convention counts 151 ratifications or 80 % of members. It is considered as the quickest and almost unanimous ratification int he long history of the ILO.
As for developed countries, in the European Union child labour is explicitly banned in the
Charter of Fundamental Rights. Subject to the Art. 32, the employment of children is prohibited and the minimum age of admission to employment may not be lower than the minimum school leaving year. The Council Directive 94/33/EC classifies young workers in three categories: young people under the age of 18, children under the age of 15 or still in full-time compulsory education and adolescent between the age of 15 and 18 who are no longer in full-time compulsory education. Apart from the ban of the work of children the Directive applies regulations about the working time of young labourers and a number of general obligations for the employers from the point of view of
safe and healthy.
By contrast, due to its inter-governmental and not supranational nature, the OECD does not apply legaly binding instruments for its member states. However, self-evidently OECD members do accept the other international regulations and maybe duplicate them is not necessary within this organization. In addition, we have to notice that OECD differs from other international organizations from the point of view of control and feedback mechanism. Due to the homogenity of the member states, instead of institutionalised regulatory mechanisms, peer review and peer pressure are to designate to supervise member’s practices. It can be another reason for the absence of own legislation in this field. On the other hand,
OECD Guidelines for Multinational Enterprises worths a notice since the Guidelines requires companies to contribute to the effective abolition of child labour (OECD Guidelines 2011, V. 1. c).
To be continued.
A previous version of the whole study can be found
here