Minimum Age Convention, 1973 (No. 138) - Gabon (Ratification: 2010)

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous observation and previous direct request

Article 2(3) of the Convention. Age of completion of compulsory schooling. The Committee notes that, under section 7 of the 2021 Labour Code, before 16 years of age, children cannot be engaged in work that prevents them from receiving compulsory schooling. It also notes that, in accordance with section 52 of the 2019 Children’s Code, schooling is compulsory and free for all children aged 5 to 16, which is in line with the minimum age for admission to employment or work.

Article 8. Artistic performances. The Committee notes with regret that the new Labour Code does not contain provisions governing the participation of children under 16 years in artistic performances. It notes that Decree No. 0651/PR/MTEPS of 13 April 2011 therefore remains applicable and that section 2 thereof provides that individual exemptions may be granted to the minimum age for admission to employment for the participation of minors in artistic performances. Under section 3 of this Decree, participation in artistic performances must be subject to prior written agreement from the parents or guardians, and that the weekly duration of these activities must not exceed 15 hours. Additionally, the conditions of such employment do not seem to be prescribed in the national legislation. The Committee therefore once again requests the Government to take the necessary steps to ensure that individual exemptions relating to the participation of children under 16 years of age in artistic performances are granted by the competent authority, as well as the parent(s) or guardian(s), and that they establish the conditions of employment for children in artistic performances, in conformity with Article 8 of the Convention. The Committee requests the Government to provide information on progress made in this respect.

Article 9(1). Penalties and labour inspection. The Committee notes that, under section 277 of the Children’s Code, anyone who employs a child in any way whatsoever in violation of the provisions of the legislation in force is liable to a prison sentence of between three months and one year, and a fine, or to only one of these penalties. Section 278 of the Children’s Code provides that anyone who acquires a child’s services and does not pay the child, at all or fairly, shall be punished by a prison sentence of between three and six months, or a fine. In addition, the Committee notes that section 233 of the Labour Code provides that those who violate the provisions of section 214 on the minimum age for admission to employment or work, shall be liable to a fine and a prison sentence of between two and six months, or to only one of these penalties. The perpetrators of the offences set out in section 214(2) concerning hazardous work and the worst forms of child labour, shall be liable to a fine and a five-year prison sentence without suspension. In the case of a repeated offence, each of these punishments shall be doubled. The Committee also notes that under section 276 of the Labour Code, labour inspectors are responsible for identifying violations of the provisions of the legislation and regulations pertaining to labour, employment, occupational safety and health, and social security.

The Committee notes the Government’s indication that trainings for labour inspectors are organized with the support of the Office as part of the technical and financial assistance requested by the Government. The Committee also notes that the Government does not provide information on violations found by the labour inspectorate concerning the minimum age for employment. The Committee once again requests the Government to renew its capacity-building efforts for labour inspectors in order to ensure that the regulations providing for penalties for violations of section 214 of the Labour Code are implemented effectively. In this regard, it requests the Government to report on the results of this capacity-building in terms of the numbers of labour inspectors and of inspections with a focus on child labour, including hazardous work. It also once again requests the Government to provide information on the application of these penalties in practice, indicating the number and nature of violations reported and penalties imposed and, where possible, to provide extracts from labour inspectors’ reports.

Application of the Convention in practice. The Committee notes that, once again, the Government has not provided information on the statistics concerning child labour in the country. It recalls that the latest statistical figures, according to UNICEF, indicated that from 2002 to 2010, 13.4 per cent of children were involved in child labour (15.4 per cent of boys and 11.6 per cent of girls). In order to be able to examine the application of the Convention in practice, the Committee once again requests the Government to take the necessary measures to ensure the availability of adequate data on the situation of children working in Gabon, and particularly on the number of working children and young persons whose age is lower than the minimum age for admission to employment or work, namely 16 years, and on the nature, scope and trends of such work. The Committee requests the Government to provide information on the activities of the National Observatory of the Rights of the Child (ONDE) and on the statistics collected by this body relating to children under 16 years of age who are engaged in work.

Observation (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous comments: observation and direct request

Article 2(1) of the Convention. Scope of application and minimum age for admission to employment or work. The Committee notes the adoption on 19 November 2021 of Act No. 022/2021 issuing the Labour Code. It notes the Government’s indication in its report that section 214 of the new Labour Code lays down the principle that, unless an exemption is granted, no child under 16 years may be employed in an enterprise. The Committee notes, however, that under the terms of section 1 of the Labour Code, the Code continues to govern only labour relations between workers and employers, and between the latter or their representatives and apprentices and trainees placed under their authority. It therefore appears that the Labour Code and the provisions on the minimum age for admission to employment or work do not apply to work performed outside a formal employment relationship, as in the case of children working on their own account or those working in the informal economy. The Committee therefore notes with regret that the Government has not taken the opportunity of the revision of the Labour Code to bring its legislation into conformity with the Convention. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment and work, whether or not these are governed by a contractual employment relationship, including work in a family enterprise. The Committee requests the Government to take the measures necessary, in the very near future, so that all children under 16 years of age who engage in economic activities outside a formal employment relationship, particularly children who work in the informal economy, including in a family enterprise, benefit from the protection afforded by the Convention.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and determination of such types of work. The Committee notes the adoption of Act No. 003/2018 of 8 February 2019 issuing the Children’s Code, section 74 of which prohibits the engagement of a child (defined as any person under 18 years) in work that is paid or is likely to jeopardize their health, safety or morals. However, the Committee notes that section 7 of the Labour Code provides that before 16 years of age, children may not be engaged in work that is not appropriate for their age, health, physical or psychological condition, or development, unless exemptions are granted under the present legislation. The Committee also notes with concern that section 214(2) of the Labour Code prohibits the engagement of children under 16 years (and not of children under 18 years as stipulated in Article 3(1) of the Convention) in work considered the worst forms of child labour, particularly work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize their health, safety or morals. This particularly includes: (1) work which exposes children to physical, psychological or sexual abuse; (2) work with dangerous machinery, equipment and tools, or which involves the manual handling or transport of heavy loads; (3) work underground, under water, at dangerous heights or in confined spaces; and (4) work in an unhealthy environment which may, for example, expose children to hazardous substances, agents or processes, or to temperatures, noise levels, or vibrations damaging to their health. In addition, section 214 provides that a decree will determine the nature of work and the categories of enterprises prohibited to children, as well as the minimum age that applies to this prohibition. The Committee urges the Government to take the necessary measures, in the near future, to amend section 214 of the Labour Code and prohibit the performance of work which by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of all children under 18 years, in accordance with Article 3(1) of the Convention. The Committee also requests the Government to indicate the measures taken to adopt a decree determining the nature of work and the categories of enterprises prohibited to children under section 214 of the Labour Code, and to guarantee the application of this decree to all children under 18 years.

Article 7. Light work. The Committee notes with regret that, contrary to the information previously provided by the Government, the new Labour Code does not contain provisions governing the rules for light work by children. It notes therefore that Decree No. 0651/PR/MTEPS of 13 April 2011 determining individual exemptions from the minimum age for admission to employment remains the rule in force and that, under sections 2 and 3, subject to the agreement of a parent or guardian and of the works doctor, individual exemptions from the minimum age to employment may be granted for the performance of light work not likely to jeopardize the health, development or education of the minors concerned, or their participation in vocational orientation and training programmes. The Committee reminds the Government that, under Article 7(1) of the Convention, national laws or regulations may permit the employment of children aged at least 13 years in light work and that, under Article 7(3) of the Convention, the competent authority, and not the persons exercising parental authority, shall determine the activities in which light employment or work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken. The Committee therefore once again requests the Government to take the necessary measures to: (i) set the minimum age for admission to light work at 13 years; (ii) adopt a list of types of light work in which children between 13 and 16 years of age may be engaged; and (iii) ensure that the competent authority determines the conditions for such employment. The Committee requests the Government to provide information on the progress achieved in this regard.

Article 9(3). Keeping of registers. The Committee notes that, under section 295 of the Labour Code, the employer must keep updated, at the work premises, an employer’s register, containing a full list of his or her current employees. The information that must be kept in the register is set through regulations. The Committee notes, from the Government’s report on the application of the Minimum Age (Underground Work) Convention, 1965 (No. 123), that a drafting committee for the implementing texts for the new Labour Code is in the process of updating General Order No. 3018 of 29 September 1953 determining the model of the employer’s register. The Committee reminds the Government that, in accordance with Article 9(3) of the Convention, national regulations or the competent authority shall prescribe the registers or other documents which shall be kept and made available by employers, containing the name and ages, or dates of birth, duly certified, wherever possible, of persons whom they employ or who work for them and who are less than 18 years of age. The Committee therefore once again requests the Government to take the necessary measures, in the near future, to bring General Order No. 3018 into conformity with the requirements of Article 9(3) of the Convention, by providing that the employer must keep registers and make them available.

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Article 2(3) of the Convention. Age of completion of compulsory schooling. The Committee previously noted that Act No. 21/2011 determining the general education, training and research policy establishes 16 years as the age of completion of compulsory schooling, which corresponds to the minimum age for admission to employment or work. The Committee notes that section 2 of Act No. 21/2011 provides that education and training are compulsory in Gabon. Access to education and training shall be ensured for any young person, whether Gabonese or not, between 3 and 16 years of age.

Article 7. Light work. In its previous comments, the Committee noted that under section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 determining individual exemptions from the minimum age for admission to employment in Gabon, individual exemptions from the minimum age for admission to employment may be granted for the performance of light work not likely to jeopardize the health, development or school attendance of the minors concerned, or their participation in vocational guidance and training programmes. Under the terms of section 3 of the Decree, the performance of light work shall be subject to the prior written agreement of a parent, as well as the opinion of a works doctor, and weekly working time shall not exceed 15 hours. However, the Committee noted that the decree determining exemptions from the minimum age for admission to employment did not appear to set a minimum age for admission to light work, and only indicated that children under 16 years of age may be authorized to perform such work when granted an individual exemption, without specifying the authority entitled to grant such individual exemptions, and making them conditional only upon the parent’s agreement and the opinion of the works doctor. The Committee also observed that the types of light work authorized for children under 16 years of age did not appear to have been determined.

The Committee notes that, according to the information in the Government’s report, the draft amendments to the Labour Code establish a list of types of light work which children under 16 years of age are allowed to perform. The Committee reminds the Government that, under Article 7(1) of the Convention, national laws or regulations may permit the employment of children aged at least 13 years in light work and that, under Article 7(3) of the Convention, the competent authority, and not the persons exercising parental authority, shall determine the activities in which light employment or work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken.The Committee requests the Government to take the necessary measures, as part of the revision of the Labour Code, to prohibit the admission of children under 13 years of age to light work, to adopt a list of types of light work in which children between 13 and 16 years of age may be engaged, and to ensure that the competent authority determines the conditions for such employment. The Committee requests the Government to provide information on the progress achieved in this regard.

Article 8. Artistic performances. The Committee noted previously that, under section 2 of the Decree determining individual exemptions from the minimum age for admission to employment, individual exemptions from the minimum age may be granted for the participation of minors in artistic performances. Under section 3 of the Decree, participation in artistic performances shall be subject to prior parental agreement in writing, and the weekly duration of such activity must not exceed 15 hours. However, the Committee noted that the conditions of such employment do not appear to be set out in national laws or regulations.

The Committee notes the Government’s indication that, as part of the revision of the Labour Code, new provisions will provide that individual exemptions relating to the participation of children under 16 years of age in artistic performances will be granted by the competent authorities, according to the needs and age of the child, and that these exemptions will be limited in terms of time. The Government also indicates that in practice children under 16 years of age do not take part in artistic performances.The Committee trusts that the draft amendments to the Labour Code will be adopted in the very near future and requests the Government to take the necessary steps to ensure that individual exemptions relating to the participation of children under 16 years of age in artistic performances are granted by the competent authority as well as the parent(s), and that they establish the conditions of employment for children in artistic performances, in accordance with Article 8 of the Convention. The Committee requests the Government to provide information on progress made in this respect.

Article 9(3). Keeping of registers. The Committee noted previously that section 257 of the Labour Code provides that the employer must keep constantly updated, at the work premises, an employer’s register, the form of which shall be determined by order of the Minister of Labour after consultation with the Labour Advisory Commission. It also noted that General Order No. 3018 of 29 September 1953 establishes the model for the employer’s register, in which the worker’s age and date of entry into the establishment must be indicated.

The Committee notes the Government’s indication that, in the context of the revision of the Labour Code, the provisions of General Order No. 3018 will be amended and will take account of the Committee’s comments.The Committee therefore requests the Government to take the necessary measures in the near future to bring General Order No. 3018 into conformity with the requirements of Article 9(3) of the Convention, by providing that the employer must keep registers and make them available.

Application of the Convention in practice. The Committee previously noted the lack of statistical data available on child labour. It noted that, according to UNICEF statistics, between 2002 and 2010 a total of 13.4 per cent of children were involved in child labour (15.4 per cent of boys and 11.6 per cent of girls). The Committee noted that Decree No. 0191/PR/MFAS on the establishment of a child protection indicators matrix (MIPE), adopted in 2012, creates an indicative instrument designed to help the Government to follow trends on matters related to children’s rights. This instrument, which seeks to assist the work of the National Observatory of the Rights of the Child (ONDE), is intended to ensure the ongoing availability in Gabon of a database of precise statistics on child protection.

The Government indicated that ONDE activities consisted of setting up watchdog committees in all provinces of the country. The Committee notes that, according to the Government, ONDE is a forum for cooperation and consultation between various public and private actors and associations involved in the rights of the child, even though cooperation is limited owing to the lack of an ONDE office and insufficient staff. The Committee also notes the Government’s indication that statistics on child labour are still not available.In order to be in a position to assess the application of the Convention in practice, the Committee requests the Government to take the necessary measures to ensure the availability of adequate data on the situation of children who work in Gabon, and particularly on the number of working children and young persons whose age is lower than the minimum age for admission to employment or work, namely 16 years, and on the nature, scope and trends of such work. The Committee requests the Government to continue providing information on ONDE activities and on the statistics collected by ONDE through the MIPE on children under 16 years of age who are engaged in work.

The Committee hopes that the Government will continue to take its comments into consideration in the context of the revision of the Labour Code which is under way. The Committee reminds the Government that it may avail itself of ILO technical assistance in order to bring its law and practice into line with the Convention.

Observation (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes that the Government’s report has not been received. It is therefore bound to repeat its previous comments.

Repetition

Article 2(1) of the Convention. Scope of application and minimum age for admission to employment or work. In its previous comments, the Committee noted that, under section 177 of the Labour Code of Gabon of 1994 as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children may not be employed in any enterprise before the age of 16 years. The Committee also observed that, under the terms of section 1, the Labour Code only governs the employment relationship between workers and employers, and between employers or their representatives and apprentices and trainees placed under their authority. It therefore appears that the Labour Code and the provisions concerning the minimum age for admission to employment or work do not apply to work performed outside a formal employment relationship, as in the case of children working on their own account or those working in the informal economy.

The Committee notes the Government’s indication in its report that the Committee’s comments will be taken into account in the draft revision of the Labour Code. It also notes the Government’s indications that it plans to extend the social coverage of the National Health Insurance and Social Guarantee Fund (CNAMGS) to children working in the informal economy. It notes that, under section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 establishing individual exceptions to the minimum age for admission to employment in Gabon, individual exceptions to the minimum age for admission to employment, which is fixed at 16 years, can be granted for work taking place in establishments where only family members are employed under the authority of the father, mother or guardian. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment and work, whether or not these are governed by a contractual employment relationship, including work in a family enterprise.The Committee expresses the firm hope that the draft amendments to the Labour Code will be adopted in the very near future, so that all children under 16 years of age who engage in economic activities outside a formal employment relationship, particularly children who work in the informal economy, including in a family enterprise, benefit from the protection afforded by the Convention. The Committee requests the Government to provide information on progress made in this respect and to send a copy of the draft amendments to the Labour Code. It also requests the Government to provide information on progress regarding social coverage through the CNAMGS of children working in the informal economy.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and determination of such types of work. The Committee noted previously that, under section 177 of the Labour Code of 1994 as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children under 18 years of age may not be employed in types of work considered to constitute the worst forms of child labour, particularly work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of young persons. The Committee also noted that the list of types of work and the categories of enterprises prohibited for young persons, and the age limit to which this prohibition applies, is determined by Decree No. 275 of 5 November 1962, but that the list of hazardous types of work was being revised.

The Committee notes with satisfaction the adoption of Decree No. 0023/PR/MEEDD of 16 January 2013 determining the nature of the worst forms of labour and the categories of enterprises prohibited for children under 18 years of age, pursuant to section 177 of the Labour Code. Section 2 of the Decree prohibits the employment of children under 18 years of age in certain types of work such as: work in abattoirs and tanneries; extraction of minerals, waste, materials and debris in mines and quarries; driving of motor vehicles and mechanical equipment; and work in construction, except for finishing work that does not require the use of scaffolding.The Committee requests the Government to provide information on the application in practice of Decree No. 0023/PR/MEEDD, including the number and nature of infringements detected relating to the performance of hazardous work which is prohibited for children under 18 years of age, and the penalties imposed.

Article 9(1). Penalties and labour inspection. In its previous comments, the Committee noted that section 195 of the Labour Code provides that any person who violates the provisions of section 177, concerning the minimum age for admission to employment or work, shall be liable to a fine and/or imprisonment of two to six months. Any person violating section 177(3), concerning hazardous work, shall be liable to a fine and five years’ imprisonment without the possibility of a suspended sentence. Each of these penalties is doubled for repeat offences. The Committee also noted that, under section 235 of the Labour Code, labour inspectors are responsible for reporting violations of the laws and regulations relating to labour, employment, occupational safety and health, and social security. The Committee also noted with concern the Government’s indication that no penalties had yet been imposed in this regard, even though the Committee on the Rights of the Child, in its concluding observations of 2016, had highlighted the large number of children working in sand quarries and gargotes (low-quality restaurants) and on taxis and buses. It further noted, in its comments on the Worst Forms of Child Labour Convention, 1999 (No. 182), that the labour inspectorate had not recorded any offences involving child labour.

The Committee notes the Government’s indication that the labour inspection services do not have the necessary resources to investigate child labour properly but that in 2017, with support from partners including UNICEF, a pilot phase of capacity-building for inspectors was launched, involving training for labour inspectors relating to the exploitation of child labour. The Government explains that the pilot phase of capacity-building for labour inspectors is due to be extended to the whole country to enable effective implementation of the provisions of the Convention. However, the Committee notes that the Government still provides no details of any convictions of offenders under section 177 of the Labour Code.The Committee requests the Government to renew its capacity-building efforts for labour inspectors in order to ensure that the regulations providing for penalties for violations of section 177 of the Labour Code are implemented effectively. In this regard, it requests the Government to report on the results of this capacity-building in terms of the numbers of labour inspectors and of inspections with a focus on child labour, including hazardous work. It also requests the Government to provide information on the application of these penalties in practice, indicating the number and nature of violations reported and penalties imposed and, where possible, to provide extracts from labour inspectors’ reports.

The Committee is raising other matters in a request addressed directly to the Government.

The Committee hopes that the Government will make every effort to take the necessary action in the near future.

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

Article 2(3) of the Convention. Age of completion of compulsory schooling. The Committee previously noted that Act No. 21/2011 determining the general education, training and research policy establishes 16 years as the age of completion of compulsory schooling, which corresponds to the minimum age for admission to employment or work. The Committee notes that section 2 of Act No. 21/2011 provides that education and training are compulsory in Gabon. Access to education and training shall be ensured for any young person, whether Gabonese or not, between 3 and 16 years of age.

Article 7. Light work. In its previous comments, the Committee noted that under section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 determining individual exemptions from the minimum age for admission to employment in Gabon, individual exemptions from the minimum age for admission to employment may be granted for the performance of light work not likely to jeopardize the health, development or school attendance of the minors concerned, or their participation in vocational guidance and training programmes. Under the terms of section 3 of the Decree, the performance of light work shall be subject to the prior written agreement of a parent, as well as the opinion of a works doctor, and weekly working time shall not exceed 15 hours. However, the Committee noted that the decree determining exemptions from the minimum age for admission to employment did not appear to set a minimum age for admission to light work, and only indicated that children under 16 years of age may be authorized to perform such work when granted an individual exemption, without specifying the authority entitled to grant such individual exemptions, and making them conditional only upon the parent’s agreement and the opinion of the works doctor. The Committee also observed that the types of light work authorized for children under 16 years of age did not appear to have been determined.

The Committee notes that, according to the information in the Government’s report, the draft amendments to the Labour Code establish a list of types of light work which children under 16 years of age are allowed to perform. The Committee reminds the Government that, under Article 7(1) of the Convention, national laws or regulations may permit the employment of children aged at least 13 years in light work and that, under Article 7(3) of the Convention, the competent authority, and not the persons exercising parental authority, shall determine the activities in which light employment or work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken. The Committee requests the Government to take the necessary measures, as part of the revision of the Labour Code, to prohibit the admission of children under 13 years of age to light work, to adopt a list of types of light work in which children between 13 and 16 years of age may be engaged, and to ensure that the competent authority determines the conditions for such employment. The Committee requests the Government to provide information on the progress achieved in this regard.

Article 8. Artistic performances. The Committee noted previously that, under section 2 of the Decree determining individual exemptions from the minimum age for admission to employment, individual exemptions from the minimum age may be granted for the participation of minors in artistic performances. Under section 3 of the Decree, participation in artistic performances shall be subject to prior parental agreement in writing, and the weekly duration of such activity must not exceed 15 hours. However, the Committee noted that the conditions of such employment do not appear to be set out in national laws or regulations.

The Committee notes the Government’s indication that, as part of the revision of the Labour Code, new provisions will provide that individual exemptions relating to the participation of children under 16 years of age in artistic performances will be granted by the competent authorities, according to the needs and age of the child, and that these exemptions will be limited in terms of time. The Government also indicates that in practice children under 16 years of age do not take part in artistic performances. The Committee trusts that the draft amendments to the Labour Code will be adopted in the very near future and requests the Government to take the necessary steps to ensure that individual exemptions relating to the participation of children under 16 years of age in artistic performances are granted by the competent authority as well as the parent(s), and that they establish the conditions of employment for children in artistic performances, in accordance with Article 8 of the Convention. The Committee requests the Government to provide information on progress made in this respect.

Article 9(3). Keeping of registers. The Committee noted previously that section 257 of the Labour Code provides that the employer must keep constantly updated, at the work premises, an employer’s register, the form of which shall be determined by order of the Minister of Labour after consultation with the Labour Advisory Commission. It also noted that General Order No. 3018 of 29 September 1953 establishes the model for the employer’s register, in which the worker’s age and date of entry into the establishment must be indicated.

The Committee notes the Government’s indication that, in the context of the revision of the Labour Code, the provisions of General Order No. 3018 will be amended and will take account of the Committee’s comments. The Committee therefore requests the Government to take the necessary measures in the near future to bring General Order No. 3018 into conformity with the requirements of Article 9(3) of the Convention, by providing that the employer must keep registers and make them available.

Application of the Convention in practice. The Committee previously noted the lack of statistical data available on child labour. It noted that, according to UNICEF statistics, between 2002 and 2010 a total of 13.4 per cent of children were involved in child labour (15.4 per cent of boys and 11.6 per cent of girls). The Committee noted that Decree No. 0191/PR/MFAS on the establishment of a child protection indicators matrix (MIPE), adopted in 2012, creates an indicative instrument designed to help the Government to follow trends on matters related to children’s rights. This instrument, which seeks to assist the work of the National Observatory of the Rights of the Child (ONDE), is intended to ensure the ongoing availability in Gabon of a database of precise statistics on child protection. The Government indicated that ONDE activities consisted of setting up watchdog committees in all provinces of the country.

The Committee notes that, according to the Government, ONDE is a forum for cooperation and consultation between various public and private actors and associations involved in the rights of the child, even though cooperation is limited owing to the lack of an ONDE office and insufficient staff. The Committee also notes the Government’s indication that statistics on child labour are still not available. In order to be in a position to assess the application of the Convention in practice, the Committee requests the Government to take the necessary measures to ensure the availability of adequate data on the situation of children who work in Gabon, and particularly on the number of working children and young persons whose age is lower than the minimum age for admission to employment or work, namely 16 years, and on the nature, scope and trends of such work. The Committee requests the Government to continue providing information on ONDE activities and on the statistics collected by ONDE through the MIPE on children under 16 years of age who are engaged in work.

The Committee hopes that the Government will continue to take its comments into consideration in the context of the revision of the Labour Code which is under way. The Committee reminds the Government that it may avail itself of ILO technical assistance in order to bring its law and practice into line with the Convention.

Observation (CEACR) - adopted 2019, published 109th ILC session (2021)

Article 2(1) of the Convention. Scope of application and minimum age for admission to employment or work. In its previous comments, the Committee noted that, under section 177 of the Labour Code of Gabon of 1994 as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children may not be employed in any enterprise before the age of 16 years. The Committee also observed that, under the terms of section 1, the Labour Code only governs the employment relationship between workers and employers, and between employers or their representatives and apprentices and trainees placed under their authority. It therefore appears that the Labour Code and the provisions concerning the minimum age for admission to employment or work do not apply to work performed outside a formal employment relationship, as in the case of children working on their own account or those working in the informal economy.

The Committee notes the Government’s indication in its report that the Committee’s comments will be taken into account in the draft revision of the Labour Code. It also notes the Government’s indications that it plans to extend the social coverage of the National Health Insurance and Social Guarantee Fund (CNAMGS) to children working in the informal economy. It notes that, under section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 establishing individual exceptions to the minimum age for admission to employment in Gabon, individual exceptions to the minimum age for admission to employment, which is fixed at 16 years, can be granted for work taking place in establishments where only family members are employed under the authority of the father, mother or guardian. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment and work, whether or not these are governed by a contractual employment relationship, including work in a family enterprise. The Committee expresses the firm hope that the draft amendments to the Labour Code will be adopted in the very near future, so that all children under 16 years of age who engage in economic activities outside a formal employment relationship, particularly children who work in the informal economy, including in a family enterprise, benefit from the protection afforded by the Convention. The Committee requests the Government to provide information on progress made in this respect and to send a copy of the draft amendments to the Labour Code. It also requests the Government to provide information on progress regarding social coverage through the CNAMGS of children working in the informal economy.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and determination of such types of work. The Committee noted previously that, under section 177 of the Labour Code of 1994 as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children under 18 years of age may not be employed in types of work considered to constitute the worst forms of child labour, particularly work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of young persons. The Committee also noted that the list of types of work and the categories of enterprises prohibited for young persons, and the age limit to which this prohibition applies, is determined by Decree No. 275 of 5 November 1962, but that the list of hazardous types of work was being revised.

The Committee notes with satisfaction the adoption of Decree No. 0023/PR/MEEDD of 16 January 2013 determining the nature of the worst forms of labour and the categories of enterprises prohibited for children under 18 years of age, pursuant to section 177 of the Labour Code. Section 2 of the Decree prohibits the employment of children under 18 years of age in certain types of work such as: work in abattoirs and tanneries; extraction of minerals, waste, materials and debris in mines and quarries; driving of motor vehicles and mechanical equipment; and work in construction, except for finishing work that does not require the use of scaffolding. The Committee requests the Government to provide information on the application in practice of Decree No. 0023/PR/MEEDD, including the number and nature of infringements detected relating to the performance of hazardous work which is prohibited for children under 18 years of age, and the penalties imposed.

Article 9(1). Penalties and labour inspection. In its previous comments, the Committee noted that section 195 of the Labour Code provides that any person who violates the provisions of section 177, concerning the minimum age for admission to employment or work, shall be liable to a fine and/or imprisonment of two to six months. Any person violating section 177(3), concerning hazardous work, shall be liable to a fine and five years’ imprisonment without the possibility of a suspended sentence. Each of these penalties is doubled for repeat offences. The Committee also noted that, under section 235 of the Labour Code, labour inspectors are responsible for reporting violations of the laws and regulations relating to labour, employment, occupational safety and health, and social security. The Committee also noted with concern the Government’s indication that no penalties had yet been imposed in this regard, even though the Committee on the Rights of the Child, in its concluding observations of 2016, had highlighted the large number of children working in sand quarries and gargotes (low-quality restaurants) and on taxis and buses. It further noted, in its comments on the Worst Forms of Child Labour Convention, 1999 (No. 182), that the labour inspectorate had not recorded any offences involving child labour.

The Committee notes the Government’s indication that the labour inspection services do not have the necessary resources to investigate child labour properly but that in 2017, with support from partners including UNICEF, a pilot phase of capacity-building for inspectors was launched, involving training for labour inspectors relating to the exploitation of child labour. The Government explains that the pilot phase of capacity-building for labour inspectors is due to be extended to the whole country to enable effective implementation of the provisions of the Convention. However, the Committee notes that the Government still provides no details of any convictions of offenders under section 177 of the Labour Code. The Committee requests the Government to renew its capacity-building efforts for labour inspectors in order to ensure that the regulations providing for penalties for violations of section 177 of the Labour Code are implemented effectively. In this regard, it requests the Government to report on the results of this capacity-building in terms of the numbers of labour inspectors and of inspections with a focus on child labour, including hazardous work. It also requests the Government to provide information on the application of these penalties in practice, indicating the number and nature of violations reported and penalties imposed and, where possible, to provide extracts from labour inspectors’ reports.

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2016, published 106th ILC session (2017)

Article 7 of the Convention. Light work. In its previous comments, the Committee noted that under section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 determining individual exemptions from the minimum age for admission to employment in Gabon, individual exemptions from the minimum age for admission to employment may be granted for the performance of light work not likely to jeopardize the health, development or school attendance of the minors concerned, or their participation in vocational guidance and training programmes. Under the terms of section 3 of the Decree, the performance of light work shall be subject to the prior written agreement of a parent, as well as the opinion of an occupational doctor, and weekly working time shall not exceed 15 hours. The Committee however noted that the Decree determining exemptions from the minimum age for admission to employment does not appear to set a minimum age for admission to light work, and only indicates that children under 16 years of age may be authorized to perform such work when granted an individual exemption, without specifying the authority entitled to grant such individual exemptions, and making them conditional only upon the agreement of the parental authority and the opinion of the occupational doctor. The Committee also observed that the types of light work authorized for children under 16 years of age do not appear to have been determined.

Noting the Government’s indication that there are no legislative texts in respect of light work, the Committee once again reminds the Government that, under the terms of Article 7(1) of the Convention, national laws or regulations may permit the employment of persons aged at least 13 years in light work and that, under Article 7(3) of the Convention, the competent authority, and not those exercising parental authority, shall determine the activities in which employment or work in light work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken. The Committee therefore requests that the Government take the necessary measures to ensure that children under 13 years of age cannot be admitted to the performance of light work. It requests that the Government adopt a list of types of light work in which children aged between 13 and 16 years may be engaged, to ensure that the competent authority determines the conditions in which such employment may be undertaken and to provide information on the progress achieved.

Article 8. Artistic performances. The Committee noted previously that, under section 2 of the Decree determining individual exemptions from the minimum age for admission to employment, individual exemptions from the minimum age may be granted for the participation of minors in artistic performances. Under the terms of section 3 of the Decree, participation in artistic performances shall be subject to the prior written agreement of the parental authority, and the weekly working hours for such participation shall not exceed 15 hours. However, the Committee noted that the conditions governing such employment do not appear to be set out in national laws or regulations. It therefore requested that the Government take measures to ensure that individual exemptions for participation in artistic performances are granted by the competent authority, and not under parental authority, and to determine the conditions for the employment of children and young persons in artistic performances in accordance with Article 8 of the Convention. In this regard, the Government indicates that it will take into account the Committee’s recommendations during the planned revision of the Labour Code. The Committee requests that the Government provide information on the revision of the Labour Code and to supply a copy of the draft revised text. Noting the absence of information on this subject, the Committee once again requests that the Government indicate whether in practice children under 16 years of age participate in artistic performances.

Article 9(3). Keeping of registers. The Committee noted previously that section 257 of the Labour Code provides that the employer shall keep constantly updated, at the work premises, an employers’ register, the form of which shall be determined by order of the Minister of Labour after consultation with the Labour Advisory Commission.

The Government indicates that General Order No. 3018 of 29 September 1953 establishes the model for the employers’ register. The Committee notes that, according to the information provided by the Government under the Minimum Age (Underground Work) Convention, 1965 (No. 123), section 2 of the Order requires the employers’ register to specify the date of entry into the establishment and the age of the worker. The Committee recalls that, under the terms of Article 9(3) of the Convention, national laws or regulations or the competent authority shall prescribe the registers or other documents which shall be kept and made available by the employer, and that such registers or documents shall contain the names and ages or dates of birth, duly certified wherever possible, of persons who are employed or who work for the employer and who are less than 18 years of age. The Committee therefore requests that the Government take the necessary measures in the near future to bring General Order No. 3018 into conformity with the requirements of Article 9(3) of the Convention.

Application of the Convention in practice. The Committee noted previously the lack of statistical data available on child labour. The Committee notes that Decree No. 0191/PR/MFAS on the establishment of a Child Protection Indicators Matrix (MIPE), adopted in 2012, creates an indicative instrument intended to help the Government to follow trends on matters related to the rights of children. This instrument, which is aimed at assisting the work of the National Observatory of the Rights of the Child (ONDE), established by Decree No. 0252/PR/MFAS of 19 June 2012 on the organization of the scheme for the provision of social assistance and family protection, is intended to ensure the availability on a permanent basis in Gabon of a database of precise statistics on child protection.

However, the Committee notes the Government’s indication in its report that statistical data on the child labour situation are not yet available. It indicates that the activities of the ONDE consist of establishing watchdog committees in all the provinces of the country. The Committee notes that, according to UNICEF statistics, between 2002 and 2010 a total of 13.4 per cent of children were involved in child labour (15.4 per cent of boys and 11.6 per cent of girls). In order to be in a position to assess the application of the Convention in practice, the Committee once again requests that the Government take the necessary measures to ensure the availability of adequate data on the situation of children who work in Gabon, and particularly on the number of children and adolescents who work and whose age is lower than the minimum age for admission to employment or work, namely 16 years, and on the nature, scope and trends of such work. Please provide information on the activities of the ONDE and on the statistics gathered by the ONDE through the MIPE on children under 16 years of age who are engaged in work, disaggregated by age and gender, in so far as possible.

Observation (CEACR) - adopted 2016, published 106th ILC session (2017)

Article 2(1) of the Convention. Scope of application and minimum age for admission to employment or work. In its previous comments, the Committee noted that, under the terms of section 177 of the Labour Code of Gabon of 1994, as amended by Ordinance No. 018/PR/2010 of 25 February 2010 (the Labour Code), children may not be employed in any enterprise before the age of 16 years. The Committee also observed that, under the terms of section 1, the Labour Code only governs work relations between workers and employers, and between employers or their representatives and apprentices and trainees placed under their authority. It therefore appears that the Labour Code and the provisions respecting the minimum age for admission to employment or work do not apply to work performed outside a formal labour relationship, such as in the case of children working on their own account or those working in the informal economy.

In this regard, the Committee notes the Government’s indication that there is no protection for children who work on their own account or in the informal economy, but that self-employed child workers are covered by the National Health Insurance and Social Guarantee Fund as economically disadvantaged persons. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment and work. The Committee once again requests that the Government take the necessary legislative measures to ensure that all children under 16 years of age engaged in economic activities without an employment contract, and particularly children who work in the informal economy, benefit from the protection afforded by the Convention. Please provide information on the extent of the protection provided by the National Health Insurance and Social Guarantee Fund for self-employed child workers.

Article 2(3). Age of completion of compulsory schooling. The Committee notes that section 2 of Act No. 21/2011 determining the general education, training and research policy provides that school shall be free and compulsory for all children between the ages of 6 and 16 years, which corresponds to the minimum age for admission to employment or work. The Committee also notes the improvements over recent years in terms of the increase in the net school enrolment rate and the parity between genders in primary education. However, the Committee notes that the rate of children repeating classes and dropping out of school is undermining the progress achieved, and that the school enrolment rate of 48 per cent in secondary school is still low.

The Committee notes that, according to the UNICEF publication The State of the World’s Children 2016: A fair chance for every child, the net attendance ratio at secondary school for 2009–14 was 57 per cent for girls and 48 per cent for boys. Despite an increase in the net school attendance ratio, the Committee observes that a considerable number of children who have not yet reached the minimum age for admission to employment do not attend or have dropped out of school. The Committee therefore requests that the Government take measures to ensure that all children under 16 years of age attend school, in accordance with Act No. 21/2011 determining the general education, training and research policy, with a view to preventing them from being engaged in work, particularly on their own account and in the informal sector. The Committee requests that the Government provide information on the progress achieved in this respect and on the results obtained.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and the determination of such types of work. The Committee noted previously that section 177 of the Labour Code provides that children under 18 years of age may not be employed in types of work considered to constitute the worst forms of child labour, and particularly in work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of young persons. The Committee also noted that the list of types of work and the categories of enterprises prohibited for young persons, and the age limit to which this prohibition applies, is determined by Decree No. 275 of 5 November 1962, but that the list of hazardous types of work was being reviewed. The Committee notes the Government’s indication that the revision of the list will be completed in the coming months. Noting with concern that the Government has been indicating since 2012 that the revision of the list of hazardous types of work is being carried out, the Committee requests that the Government take the necessary measures to ensure that the list of hazardous types of work prohibited for children under 18 years of age is revised as soon as possible and to provide a copy of the new list once it has been adopted.

Article 9(1). Penalties. The Committee recalls that section 195 of Ordinance No. 018/PR/2010 of 25 February 2010 amending certain provisions of the Labour Code of Gabon provides that persons who violate the provisions of section 177, respecting the minimum age for admission to employment or work, shall be liable to a fine of between 30,000 and 300,000 Central African francs (CFA) and, in the case of repeated violations, a fine of CFA60,000 francs and imprisonment for from two to six months, or only one of these penalties. Persons in violation of section 177(3), respecting the worst forms of child labour, and particularly hazardous forms of work, shall be liable to a fine of CFA5 million and imprisonment for five years without suspension. In the event of repeated offences, each of these penalties shall be doubled.

The Committee notes the Government’s indication that no penalties have yet been imposed in this regard. It also notes that, according to the concluding observations of the Committee on the Rights of the Child of July 2016, a high number of children work in sand quarries and restaurants (“gargottes”) and on taxis and buses, but that these violations are poorly identified and the perpetrators are not penalized (CRC/C/GAB/CO/2, paragraph 62). The Committee notes with concern the absence of convictions and recalls that, while the adoption of national legislation is essential, even the best legislation only has value when it is applied effectively (see the General Survey on the fundamental Conventions, 2012, paragraph 410). The Committee therefore requests that the Government take the necessary measures to punish violations of section 177(3) of the Labour Code. Please provide information on the application of these penalties in practice in the event of violations, with an indication of the number and nature of the violations reported and the penalties imposed and, to the extent possible, the information should be disaggregated by age and sex.

Labour inspection. The Committee noted previously that, under the terms of section 235 of the Labour Code, labour inspectors are responsible for reporting violations of the provisions of laws and regulations respecting labour, employment, occupational safety and health and social security. Furthermore, under section 178 of the Labour Code, labour inspectors may order the examination by an approved medical practitioner of children and young persons up to the age of 18 years with a view to verifying whether the work entrusted to them exceeds their strength. The Committee noted that no convictions for violations of the provisions giving effect to the Convention have been handed down by courts of law.

The Committee notes the Government’s indication that the labour inspection services do not have the necessary resources to investigate child labour, and that it does not therefore have statistics available on the subject. The Committee also notes that, according to the information provided by the Government on the application of the Labour Administration Convention, 1978 (No. 150), seminars and training courses have been provided with ILO technical cooperation, and have had a beneficial impact by enabling labour inspectors to increase their knowledge of the means available to deal with recurrent issues, including child labour. The Committee urges the Government to take the necessary measures in the near future to reinforce the capacity of labour inspectors so that they are able to detect and take action in cases of work by children under the age of 16 years, particularly in the informal economy. It once again requests that the Government provide information on the implementation in practice of inspections by labour inspectors with a view to monitoring child labour. In this respect, it requests that the Government provide information on the number of violations reported and, where possible, to provide extracts from the reports of labour inspectors.

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

The Committee notes that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Article 1 of the Convention. Application of the Convention in practice. The Committee notes that the Government has not provided any information regarding the situation of child labour and that there appears to be a lack of statistical data in Gabon on this subject. The Committee notes that, according to the information provided by the Government under the Worst Forms of Child Labour Convention, 1999 (No. 182), Decree No. 0191/PR/MFAS establishing a Child Protection Indicators Matrix (MIPE) was adopted on 22 May 2012 with a view to creating an indicative measurement tool to help the Government follow trends in the problems related to the rights of children. This tool, which is one of the means used by the National Observatory of the Rights of the Child (ONDE), created by Decree No. 0252/PR/MFAS of 19 June 2012 determining the organization of the social assistance and family protection implementation scheme, is intended to ensure the availability on a permanent basis in Gabon of a database of precise statistics on child protection. The Committee requests the Government to take the necessary measures to ensure that sufficient data is made available on the situation of children engaged in work in Gabon, and particularly on the number of children and young persons who work under the minimum age for admission to work or employment, and the nature, extent and trends of such work. In this respect, the Committee requests the Government to provide information on the activities of the ONDE and on the statistics that it has gathered through the MIPE relating to children under 16 years of age engaged in work. To the extent possible, all statistics should be disaggregated by age and sex.

Article 2(1). Scope of application and minimum age for admission to employment or work. The Committee notes that, when ratifying the Convention, the Government specified that the minimum age for admission to employment or work is 16 years. It notes that under the terms of section 177 of the Labour Code of Gabon of 1994, as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children may not be employed in any enterprise before the age of 16 years. The Committee also observes that, under the terms of section 1, the Labour Code only governs work relations between workers and employers, and between the latter or their representatives and apprentices and trainees placed under their authority. Furthermore, the Committee notes that section 2 of Decree No. 000031/PR/MTEFP of 8 January 2002 on measures to combat work by minors provides that, in accordance with section 177 of the Labour Code, children under 16 years of age may not be employed for the exploitation of their labour. It therefore appears that the Labour Code and the provisions respecting the minimum age for admission to employment or work do not apply to work performed outside a formal labour relationship, such as in the case of children working on their own account or those working in the informal economy. Moreover, the Committee notes the Government’s indication that children in Gabon do not generally work in the structured sector, but more often in the informal economy. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment or work, irrespective of the existence of a contract and whether or not it is own-account work. The Committee therefore requests the Government to provide information on the measures adopted or envisaged to ensure that all children under 16 years of age engaged in economic activities without an employment contract, and particularly own-account child workers and children working in the informal economy, benefit from the protection afforded by the Convention.

Article 2(3). Age of completion of compulsory schooling. The Committee notes that, according to the report provided by the Government under Convention No. 182, Act No. 21/2011 determining the general policy for education, training and research was adopted in February 2012. The Government indicates that section 2 of the Act provides that school shall be free and compulsory for all children between the ages of 6 and 16 years, which corresponds to the minimum age for admission to employment or work.

The Committee notes that, according to the information contained in the report of the UNICEF West and Central Africa Regional Office submitted to the United Nations Economic and Social Council at its second regular session in September 2010 (E/ICEF/2010/P/L.17, paragraph 21), the net school enrolment rate increased from 82.4 per cent in 2004–05 to 96.5 per cent in 2007–08, with rates being almost identical for boys and girls. However, despite the improvement over recent years in terms of the increase in the net school enrolment rate and parity between the sexes in primary education, progress is undermined by high drop-out rates and a high percentage of children repeating classes; moreover, at 48 per cent, the secondary school enrolment rate remains low compared to that for primary school. The Committee observes that this means that a considerable number of children who have still not reached the minimum age for admission to employment do not attend school or have dropped out of school. The Committee therefore firmly encourages the Government to take measures to ensure that all children under 16 years of age attend school, in accordance with Act No. 21/2011 determining the general policy for education, training and research, so as to prevent them from being engaged in work, particularly on their own account and in the informal economy. The Committee requests the Government to provide information on the progress achieved in this respect and the results obtained.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and the determination of such types of work. The Committee notes that the new section 177 of the Labour Code, as amended by Ordinance No. 018/PR/2010 of 25 February 2010, provides that children under 18 years of age may not be employed in work considered to constitute the worst forms of child labour, and particularly work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of young persons. These include types of work which: expose them to physical, psychological or sexual abuse; involve work with dangerous machinery or tools; are performed underground, under water or at dangerous heights, or are performed in an unhealthy environment. The Committee notes that under the terms of this provision the list of types of work and the categories of enterprises prohibited for young persons, and the age limit to which this prohibition applies, shall be determined by decree issued by the Council of Ministers after consulting employers’ and workers’ organizations. The Committee notes that, according to the information provided by the Government under Convention No. 182, the list of hazardous types of work is determined by Decree No. 275 of 5 November 1962, but that this list of hazardous types of work is currently being reviewed. The Committee requests the Government to provide information on the progress achieved in the revision of the list of hazardous types of work prohibited for children under 18 years of age and to provide a copy of the new list once it has been adopted.

Article 6. Vocational training and apprenticeship. The Committee notes that, under the terms of section 88 of the Labour Code, a contract of apprenticeship is a contract by which the head of the establishment, a craftworker or an artisanal manufacturer, undertake to provide or to have provided a methodical and complete vocational training to another person and under which the latter undertakes in return to comply with the instructions received and perform the work entrusted to them with a view to their apprenticeship. The Committee notes that section 82 of the Labour Code provides that any person of at least 16 years of age may be apprenticed. However, exemptions may be granted by the Ministry of National Education for young persons aged between 14 and 16 years. The Committee observes that sections 81–97 determine the conditions for such apprenticeship, and the respective duties of masters and apprentices. The Committee also notes that sections 98–103 deal with vocational training, the objective of which is to provide a general theoretical and practical training with a view to acquiring a professional qualification certified by a diploma or a certificate issued or recognized by the minister responsible for vocational training (section 98). The Committee requests the Government to provide information on the apprenticeship and vocational training programmes in practice.

Article 7. Light work. The Committee notes that, under the terms of section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 to determine individual exemptions from the minimum age for admission to employment in the Republic of Gabon, individual exemptions from the minimum age for admission to employment may be granted for the performance of light work not likely to jeopardize the health, development or school attendance of the minor concerned, or their participation in vocational guidance and training programmes. Under section 3 of the Decree, the performance of light work shall be subject to the prior written agreement of the parental authority, as well as the opinion of the occupational doctor, and the weekly working time shall not exceed 15 hours.

The Committee however observes that the Decree determining exemptions to the minimum age for admission to employment does not appear to set a minimum age for admission to light work, and only indicates that children under 16 years of age may be authorized to perform such work when granted an individual exemption, without specifying the authority entitled to grant such individual exemptions, and making them conditional only upon the agreement of the parental authority and the opinion of the occupational doctor. Furthermore, the Committee observes that the types of light work authorized for children under 16 years of age do not appear to have been determined. The Committee therefore reminds the Government that, in accordance with Article 7(1) of the Convention, national laws or regulations may permit the employment of persons aged at least 13 years in light work. The Committee also reminds the Government that, under the terms of Article 7(3) of the Convention, the competent authority, and not those exercising parental authority, shall determine the activities in which employment or work in light work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken. The Committee therefore requests the Government to provide information on the measures adopted or envisaged to ensure that children under 13 years of age cannot be admitted to the performance of light work, to determine the types of light work which children between the ages of 13 and 16 years may undertake and to ensure that the competent authority determines the conditions in which such employment or work may be undertaken.

Article 8. Artistic performances. The Committee notes that, under the terms of section 2 of the Decree to determine individual exemptions from the minimum age for admission to employment, individual exemptions from the minimum age for admission to employment may be granted for the participation of minors in artistic performances. Under the terms of section 3 of the Decree, participation in artistic performances shall be subject to the prior written agreement of the parental authority, and the weekly working time for such participation shall not exceed 15 hours. The Committee also notes that, by virtue of section 4 of the Decree, all the provisions necessary to give effect to the Decree shall be determined through regulations. However, the Committee notes that the conditions governing such employment do not appear to be prescribed by national laws or regulations. The Committee reminds the Government that, under the terms of Article 8(1) of the Convention, the competent authority, and not the parental authority, may, as an exception to the minimum age for admission to employment or work of 16 years specified by Gabon, and after consultation with the organizations of employers and workers concerned, allow, in individual cases, participation in such activities as artistic performances. It also reminds the Government that, under the terms of Article 8(2), the permits so granted shall limit the number of hours during which and prescribe the conditions in which such employment or work is allowed. The Committee requests the Government to indicate whether, in practice, children under 16 years of age participate in artistic performances. The Committee also requests the Government to take measures to ensure that individual exceptions for participation in artistic performances are granted by the competent authority, and not the parental authority, and that they take into account the comments made above and determine the conditions for the employment of children and young persons in artistic performances. The Committee requests the Government to provide information in this respect.

Article 9(1). Penalties. The Committee notes that section 195 of the new Ordinance No. 018/PR/2010 of 25 February 2010 amending certain provisions of the Labour Code of the Republic of Gabon provides that persons who are in violation of the provisions of new section 177, respecting the minimum age for admission to employment or work, shall be liable to a fine of between 30,000 and 300,000 CFA francs and, in the case of repeated violations, of a fine of 60,000 CFA francs and imprisonment for from two to six months, or one of these penalties only. Persons in violation of new section 177(3), respecting the worst forms of child labour, and particularly hazardous forms of work, shall be liable to a fine of 5 million CFA francs and imprisonment for five years without suspension. In the event of repeat offences, each of these penalties shall be doubled. The Committee requests the Government to provide information on the application of these penalties in practice in cases of violations of new section 177 and new section 177(3) of the Labour Code, with an indication of the number and nature of the violations reported and the penalties imposed.

Article 9(3). Keeping of registers. The Committee notes that section 257 of the Labour Code provides that the employer shall keep constantly updated, at the work premises, an employer’s register, the form of which shall be determined by order of the Minister of Labour after consultation with the Labour Advisory Commission. The Committee recalls that, under the terms of Article 9(3) of the Convention, national laws or regulations or the competent authority shall prescribe the registers or other documents which shall be kept and made available by the employer, and that such registers or documents shall contain the names and ages or dates of birth, duly certified wherever possible, of persons who are employed or who work for the employer and who are less than 18 years of age. The Committee requests the Government to indicate whether an order issued under section 257 of the Labour Code has been adopted. If not, the Committee requests the Government to take the necessary measures to ensure that regulations respecting the registers to be kept by employers are formulated and adopted in the near future, in accordance with the requirements of Article 9(3) of the Convention.

Labour inspection. The Committee notes that, under the terms of section 235 of the Labour Code, labour inspectors are responsible for reporting violations of the provisions of laws and regulations respecting labour, employment, occupational safety and health and social security. Furthermore, under new section 178 of the Labour Code, labour inspectors may order the examination by an approved medical practitioner of children and young persons up to the age of 18 years with a view to verifying whether the work entrusted to them exceeds their strength. The Committee notes the Government’s indication that up to now no convictions for violations of the provisions giving effect to the Convention have been handed down by courts of law. According to the Government, there are no children under 16 years of age who work in the structured sector, that is in the formal economy and in the context of an employment relationship. However, the Government also indicates that the children who are engaged in work in Gabon are generally to be found in the informal economy. The Committee therefore requests the Government to take the necessary measures to strengthen the capacity of labour inspectors so that they can detect all cases of work by children under 16 years of age, particularly in the informal economy. It also requests the Government to provide information on the implementation in practice of inspections by labour inspectors with a view to monitoring child labour. In this respect, it requests the Government to provide information on the number of investigations undertaken and, where possible, to provide extracts from the reports of labour inspectors.

Direct Request (CEACR) - adopted 2012, published 102nd ILC session (2013)

The Committee notes the Government’s first report.

Article 1 of the Convention and Part V of the report form. Application of the Convention in practice. The Committee notes that the Government has not provided any information regarding the situation of child labour and that there appears to be a lack of statistical data in Gabon on this subject. The Committee notes that, according to the information provided by the Government under the Worst Forms of Child Labour Convention, 1999 (No. 182), Decree No. 0191/PR/MFAS establishing a Child Protection Indicators Matrix (MIPE) was adopted on 22 May 2012 with a view to creating an indicative measurement tool to help the Government follow trends in the problems related to the rights of children. This tool, which is one of the means used by the National Observatory of the Rights of the Child (ONDE), created by Decree No. 0252/PR/MFAS of 19 June 2012 determining the organization of the social assistance and family protection implementation scheme, is intended to ensure the availability on a permanent basis in Gabon of a database of precise statistics on child protection. The Committee requests the Government to take the necessary measures to ensure that sufficient data is made available on the situation of children engaged in work in Gabon, and particularly on the number of children and young persons who work under the minimum age for admission to work or employment, and the nature, extent and trends of such work. In this respect, the Committee requests the Government to provide information on the activities of the ONDE and on the statistics that it has gathered through the MIPE relating to children under 16 years of age engaged in work. To the extent possible, all statistics should be disaggregated by age and sex.

Article 2(1). Scope of application and minimum age for admission to employment or work. The Committee notes that, when ratifying the Convention, the Government specified that the minimum age for admission to employment or work is 16 years. It notes that under the terms of section 177 of the Labour Code of Gabon of 1994, as amended by Ordinance No. 018/PR/2010 of 25 February 2010, children may not be employed in any enterprise before the age of 16 years. The Committee also observes that, under the terms of section 1, the Labour Code only governs work relations between workers and employers, and between the latter or their representatives and apprentices and trainees placed under their authority. Furthermore, the Committee notes that section 2 of Decree No. 000031/PR/MTEFP of 8 January 2002 on measures to combat work by minors provides that, in accordance with section 177 of the Labour Code, children under 16 years of age may not be employed for the exploitation of their labour. It therefore appears that the Labour Code and the provisions respecting the minimum age for admission to employment or work do not apply to work performed outside a formal labour relationship, such as in the case of children working on their own account or those working in the informal economy. Moreover, the Committee notes the Government’s indication that children in Gabon do not generally work in the structured sector, but more often in the informal economy. The Committee reminds the Government that the Convention applies to all sectors of economic activity and covers all forms of employment or work, irrespective of the existence of a contract and whether or not it is own-account work. The Committee therefore requests the Government to provide information on the measures adopted or envisaged to ensure that all children under 16 years of age engaged in economic activities without an employment contract, and particularly own-account child workers and children working in the informal economy, benefit from the protection afforded by the Convention.

Article 2(3). Age of completion of compulsory schooling. The Committee notes that, according to the report provided by the Government under Convention No. 182, Act No. 21/2011 determining the general policy for education, training and research was adopted in February 2012. The Government indicates that section 2 of the Act provides that school shall be free and compulsory for all children between the ages of 6 and 16 years, which corresponds to the minimum age for admission to employment or work.

The Committee notes that, according to the information contained in the report of the UNICEF West and Central Africa Regional Office submitted to the United Nations Economic and Social Council at its second regular session in September 2010 (E/ICEF/2010/P/L.17, paragraph 21), the net school enrolment rate increased from 82.4 per cent in 2004–05 to 96.5 per cent in 2007–08, with rates being almost identical for boys and girls. However, despite the improvement over recent years in terms of the increase in the net school enrolment rate and parity between the sexes in primary education, progress is undermined by high drop-out rates and a high percentage of children repeating classes; moreover, at 48 per cent, the secondary school enrolment rate remains low compared to that for primary school. The Committee observes that this means that a considerable number of children who have still not reached the minimum age for admission to employment do not attend school or have dropped out of school. The Committee therefore firmly encourages the Government to take measures to ensure that all children under 16 years of age attend school, in accordance with Act No. 21/2011 determining the general policy for education, training and research, so as to prevent them from being engaged in work, particularly on their own account and in the informal economy. The Committee requests the Government to provide information on the progress achieved in this respect and the results obtained.

Article 3(1) and (2). Minimum age for admission to hazardous types of work and the determination of such types of work. The Committee notes that the new section 177 of the Labour Code, as amended by Ordinance No. 018/PR/2010 of 25 February 2010, provides that children under 18 years of age may not be employed in work considered to constitute the worst forms of child labour, and particularly work which, by its nature or the circumstances in which it is carried out, is likely to jeopardize the health, safety or morals of young persons. These include types of work which: expose them to physical, psychological or sexual abuse; involve work with dangerous machinery or tools; are performed underground, under water or at dangerous heights, or are performed in an unhealthy environment. The Committee notes that under the terms of this provision the list of types of work and the categories of enterprises prohibited for young persons, and the age limit to which this prohibition applies, shall be determined by decree issued by the Council of Ministers after consulting employers’ and workers’ organizations. The Committee notes that, according to the information provided by the Government under Convention No. 182, the list of hazardous types of work is determined by Decree No. 275 of 5 November 1962, but that this list of hazardous types of work is currently being reviewed. The Committee requests the Government to provide information on the progress achieved in the revision of the list of hazardous types of work prohibited for children under 18 years of age and to provide a copy of the new list once it has been adopted.

Article 6. Vocational training and apprenticeship. The Committee notes that, under the terms of section 88 of the Labour Code, a contract of apprenticeship is a contract by which the head of the establishment, a craftworker or an artisanal manufacturer, undertake to provide or to have provided a methodical and complete vocational training to another person and under which the latter undertakes in return to comply with the instructions received and perform the work entrusted to them with a view to their apprenticeship. The Committee notes that section 82 of the Labour Code provides that any person of at least 16 years of age may be apprenticed. However, exemptions may be granted by the Ministry of National Education for young persons aged between 14 and 16 years. The Committee observes that sections 81–97 determine the conditions for such apprenticeship, and the respective duties of masters and apprentices. The Committee also notes that sections 98–103 deal with vocational training, the objective of which is to provide a general theoretical and practical training with a view to acquiring a professional qualification certified by a diploma or a certificate issued or recognized by the minister responsible for vocational training (section 98). The Committee requests the Government to provide information on the apprenticeship and vocational training programmes in practice.

Article 7. Light work. The Committee notes that, under the terms of section 2 of Decree No. 0651/PR/MTEPS of 13 April 2011 to determine individual exemptions from the minimum age for admission to employment in the Republic of Gabon, individual exemptions from the minimum age for admission to employment may be granted for the performance of light work not likely to jeopardize the health, development or school attendance of the minor concerned, or their participation in vocational guidance and training programmes. Under section 3 of the Decree, the performance of light work shall be subject to the prior written agreement of the parental authority, as well as the opinion of the occupational doctor, and the weekly working time shall not exceed 15 hours.

The Committee however observes that the Decree determining exemptions to the minimum age for admission to employment does not appear to set a minimum age for admission to light work, and only indicates that children under 16 years of age may be authorized to perform such work when granted an individual exemption, without specifying the authority entitled to grant such individual exemptions, and making them conditional only upon the agreement of the parental authority and the opinion of the occupational doctor. Furthermore, the Committee observes that the types of light work authorized for children under 16 years of age do not appear to have been determined. The Committee therefore reminds the Government that, in accordance with Article 7(1) of the Convention, national laws or regulations may permit the employment of persons aged at least 13 years in light work. The Committee also reminds the Government that, under the terms of Article 7(3) of the Convention, the competent authority, and not those exercising parental authority, shall determine the activities in which employment or work in light work may be permitted and shall prescribe the number of hours during which and the conditions in which such employment or work may be undertaken. The Committee therefore requests the Government to provide information on the measures adopted or envisaged to ensure that children under 13 years of age cannot be admitted to the performance of light work, to determine the types of light work which children between the ages of 13 and 16 years may undertake and to ensure that the competent authority determines the conditions in which such employment or work may be undertaken.

Article 8. Artistic performances. The Committee notes that, under the terms of section 2 of the Decree to determine individual exemptions from the minimum age for admission to employment, individual exemptions from the minimum age for admission to employment may be granted for the participation of minors in artistic performances. Under the terms of section 3 of the Decree, participation in artistic performances shall be subject to the prior written agreement of the parental authority, and the weekly working time for such participation shall not exceed 15 hours. The Committee also notes that, by virtue of section 4 of the Decree, all the provisions necessary to give effect to the Decree shall be determined through regulations. However, the Committee notes that the conditions governing such employment do not appear to be prescribed by national laws or regulations. The Committee reminds the Government that, under the terms of Article 8(1) of the Convention, the competent authority, and not the parental authority, may, as an exception to the minimum age for admission to employment or work of 16 years specified by Gabon, and after consultation with the organizations of employers and workers concerned, allow, in individual cases, participation in such activities as artistic performances. It also reminds the Government that, under the terms of Article 8(2), the permits so granted shall limit the number of hours during which and prescribe the conditions in which such employment or work is allowed. The Committee requests the Government to indicate whether, in practice, children under 16 years of age participate in artistic performances. The Committee also requests the Government to take measures to ensure that individual exceptions for participation in artistic performances are granted by the competent authority, and not the parental authority, and that they take into account the comments made above and determine the conditions for the employment of children and young persons in artistic performances. The Committee requests the Government to provide information in this respect.

Article 9(1). Penalties. The Committee notes that section 195 of the new Ordinance No. 018/PR/2010 of 25 February 2010 amending certain provisions of the Labour Code of the Republic of Gabon provides that persons who are in violation of the provisions of new section 177, respecting the minimum age for admission to employment or work, shall be liable to a fine of between 30,000 and 300,000 CFA francs and, in the case of repeated violations, of a fine of 60,000 CFA francs and imprisonment for from two to six months, or one of these penalties only. Persons in violation of new section 177(3), respecting the worst forms of child labour, and particularly hazardous forms of work, shall be liable to a fine of 5 million CFA francs and imprisonment for five years without suspension. In the event of repeat offences, each of these penalties shall be doubled. The Committee requests the Government to provide information on the application of these penalties in practice in cases of violations of new section 177 and new section 177(3) of the Labour Code, with an indication of the number and nature of the violations reported and the penalties imposed.

Article 9(3). Keeping of registers. The Committee notes that section 257 of the Labour Code provides that the employer shall keep constantly updated, at the work premises, an employer’s register, the form of which shall be determined by order of the Minister of Labour after consultation with the Labour Advisory Commission. The Committee recalls that, under the terms of Article 9(3) of the Convention, national laws or regulations or the competent authority shall prescribe the registers or other documents which shall be kept and made available by the employer, and that such registers or documents shall contain the names and ages or dates of birth, duly certified wherever possible, of persons who are employed or who work for the employer and who are less than 18 years of age. The Committee requests the Government to indicate whether an order issued under section 257 of the Labour Code has been adopted. If not, the Committee requests the Government to take the necessary measures to ensure that regulations respecting the registers to be kept by employers are formulated and adopted in the near future, in accordance with the requirements of Article 9(3) of the Convention.

Part III of the report form. Labour inspection. The Committee notes that, under the terms of section 235 of the Labour Code, labour inspectors are responsible for reporting violations of the provisions of laws and regulations respecting labour, employment, occupational safety and health and social security. Furthermore, under new section 178 of the Labour Code, labour inspectors may order the examination by an approved medical practitioner of children and young persons up to the age of 18 years with a view to verifying whether the work entrusted to them exceeds their strength. The Committee notes the Government’s indication that up to now no convictions for violations of the provisions giving effect to the Convention have been handed down by courts of law. According to the Government, there are no children under 16 years of age who work in the structured sector, that is in the formal economy and in the context of an employment relationship. However, the Government also indicates that the children who are engaged in work in Gabon are generally to be found in the informal economy. The Committee therefore requests the Government to take the necessary measures to strengthen the capacity of labour inspectors so that they can detect all cases of work by children under 16 years of age, particularly in the informal economy. It also requests the Government to provide information on the implementation in practice of inspections by labour inspectors with a view to monitoring child labour. In this respect, it requests the Government to provide information on the number of investigations undertaken and, where possible, to provide extracts from the reports of labour inspectors.