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In a new and better world order, in a global civil society, the international political economy will treat its weakest members in a more civilized way. . . . Looking after our children internationally could be the leading edge of the project of civilizing the world order.

Introduction to the Purpose and Scope of this Inquiry

In the closing years of the late twentieth century, it is unacceptable that so many of humanity's youngest members, estimated in the hundreds of millions2, should still be labouring under intolerable conditions of exploitation and inhumane treatment, even of slavery and mortal danger. Children represent society's hopes for a better tomorrow. When their most basic rights are ignored or denied, there is an especially glaring contradiction with the transgenerational goals of sustainable human development. While elements of a solution will often have to be found and implemented at the domestic family, local and national levels, the challenges presented by child labour abuses call for global engagements that include commitments made, and observed, among nations.

It is heartening that combatting the worst forms of child labour exploitation has attracted increased attention within the international community in recent months. Reinforcing the seminal work of the International Labour Organization (ILO), UNICEF's The State of the World's Children 1997 report is the latest and most comprehensive global statement of concern and call to action. Within Canada, Canadians have also been sensitized to the issues and inspired by the efforts of young activists and advocates of all ages. This has begun to make its mark on government policies. Nevertheless, the real tests lie ahead in terms of concrete progress towards arresting the phenomenon of child labour and, ultimately, ending its exploitation in all countries.

In light of the compelling urgency for additional actions by governments, the Subcommittee on Sustainable Human Development decided to focus on child labour exploitation as a fitting subject for its first inquiry. During October and November 1996, the Subcommittee heard from more than 30 witnesses and received a number of written submissions. A series of roundtables - including a young people's panel - were organized around major issue themes and Canadian policy responses. In regard to the latter, three ministers with primary responsibilities for international child labour issues also testified.3 We were encouraged early in the process by the Minister of Foreign Affairs' statement opening the first roundtable that Canada is "working hard to make children's rights a key foreign policy priority". [Evidence 5:2] At the same time, we wish to underline at the outset that Canada's effectiveness in acting abroad is very much linked to the strength of our commitments to and record on implementing international children's rights obligations within Canada itself. Foreign policy priorities must be linked with and reinforced by supportive domestic priorities.

Beyond helping sustain the political momentum generated thus far, the aim of the report which follows from these deliberations is to pursue further foreign policy approaches with the most promising potential for ameliorating the lives of children, and from that basis to submit a priority list of clear, concrete recommendations to the government. We believe these offer constructive support to making Canada's contribution to the international movement to end child labour exploitation as effective as possible.

Witnesses have told the Subcommittee that the issues are complex and multi-dimensional, requiring a broad range of policy responses. In addition to the problems of children working in bondage and under hazardous conditions, Minister Axworthy also highlighted the need for international initiatives in regard to the commercial sexual exploitation of children, and their victimization, including as soldiers, in situations of armed conflict. In focusing on the worst manifestations of child labour, the Subcommittee has not been able to explore in depth all of the issues related to these violations of children's rights, though we certainly acknowledge their importance. We have necessarily had to be selective as well in drawing from the detailed findings of recent international reports and from the impressive body of testimony which we received. Notwithstanding that limitation, the Subcommittee urges the government, in formulating its comprehensive response to our recommendations, to take into account the full record of the testimony and of current international scrutiny devoted to progress on children's rights and conditions for sustainable child development.

Part I of the Subcommittee's report defines the parameters of child labour exploitation as a global challenge demanding Canadian responses. Insights from ongoing international research and from our witnesses provide a basis for developing a better understanding and analysis that can in turn lead to more effective Canadian actions in concert with those of other countries. The approach taken is also to begin to identify those areas which can benefit most from international attention, and where opportunities exist for Canadian initiatives to make the most difference.

Part II of the report proceeds from this to elaborating an action-oriented foreign policy framework for tackling child labour exploitation. Such a strategy must be capable of operating at several levels and of involving fully both governmental and nongovernmental actors. The Subcommittee's recommendations accordingly encompass: exercising Canadian leadership working within key international organizations and through the multilateral system; making full use of development cooperation assistance and trade-related instruments; enlisting the responsible participation of the Canadian private sector; promoting public awareness, encouraging NGO activities and supporting civil-society partnerships; emphasizing in particular the unique contribution of young people themselves; committing to ongoing follow-up of parliamentary attention to these issues and oversight of policy implementation and results.

1
International Political Economy Series, Macmillan Press Ltd. and St. Martin's Press Inc., Houndmills and New York, 1995, p. 177.

2
The International Labour Organization recently revised its totals sharply upwards from a previous estimate of 73 million children aged 10 to 14 working. However, UNICEF's latest report, The State of the World's Children 1997, noting continuing deficiencies in the data, observes that: "If all the children who are economically active were included, the figure would rise to around 250 million. And if those who carry water for the family were counted, the total would jump to 400 million. Other child workers are hidden from the statistician's view, particularly girls doing domestic work; their numbers would push the total higher still."

3
The Hon. Lloyd Axworthy, Minister of Foreign Affairs with overall responsibilities for making childrens' rights issues a priority of Canadian foreign policy, was the first to appear. He was accompanied by Senator Landon Pearson in her capacity as special advisor on childrens' issues. The former Minister of International Cooperation, Hon. Pierre Pettigrew appeared with the President of CIDA to elaborate on the role of Canadian development assistance policies and programs in this area. The Minister of Labour, Hon. Alfonso Gagliano also testified on his Department's role with respect to child labour standards, participation in the work of the ILO, and also within the ongoing NAFTA process of labour cooperation.

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