The New York Times

Friday, June 18, 1999

World Panel Adopts Treaty to Restrict Child Labor

By ELIZABETH OLSON

GENEVA -- The International Labor Organization Thursday adopted a treaty meant to abolish the worst forms of child labor, one that includes a contested provision allowing people under 18 to serve in the military.

The pact is intended to end the exploitation of millions of children who are involved in pornography, prostitution, slavery, hazardous work and forced recruitment as child soldiers. Drawing attention to the treaty, President Clinton addressed the delegates, the first American President to do so.

Adopted unanimously by delegates from the 174 country members of the I.L.O., the convention aims to protect those under 18 but does not provide an across-the-board ban on child labor. The treaty's text does not prohibit people under 18 from voluntarily enlisting in the military, an omission that nongovernmental groups and some governments believe weakens the document. A compromise was adopted after insistence by the United States that there be no bar to such military service.

A number of countries, including the United States, Britain, Germany and the Netherlands, recruit 17-year-olds into their armies. The United States, among others, requires parental consent.

United States officials estimated that the American military services have fewer than 10,000 enlistees per year under 18. Of these, fewer than 100 are involved in combat units, and those are in the Balkan region, officials said.

The compromise treaty language now bars "forced or compulsory recruitment of children for use in armed conflict."

Trade unions, along with a diverse group of countries, including Canada, Norway, Denmark and France, had urged tougher provisions.

"We believe it's not appropriate for people under age 18 to be involved in the military," said Tim Noonan, of the International Confederation of Free Trade Unions.

Defending the Clinton Administration's position, the Labor Secretary, Alexis M. Herman, said, "We wanted to make sure the emphasis was on forced, compulsory child labor."

But Martin McPherson, of Amnesty International, disagreed. "In the end, it makes no difference whether the person has gone voluntarily or compulsorily," he said. "Military service is hazardous -- regardless."

Although Noonan said trade unions wanted a flat ban, the compromise was agreed to because "our primary concern was children in Uganda and Sudan -- the 10- and 12-year-olds with guns."

United States officials said many countries allow 17-year-olds to serve voluntarily. "Our concern is about the use of the younger ones being abducted and coerced by paramilitaries and militias," one official said. Amnesty says there are an estimated 300,000 such child soldiers worldwide. They are among the estimated 250 million children under age 14 who, according to I.L.O. statistics, work in developing countries, mainly in Africa and Asia.