Labour law establishes the minimum age for employment which is lower than the age of adulthood established by the civil law, and, in addition, provides a range of protective measures that should contribute to the unobstructed development and education of minors. In this regard, we should bear in mind that despite the universally accepted ban on employment of persons under the prescribed age and the great progress that has been made in combating child labour, it still exists in many regions of the world. However, in addition to harmful effects, work can have many positive effects on the development of minors, which is why many modern legal systems developed dual work related rules: harmful effects of work are prevented by prohibiting the employment of persons under 15 years of age as well as employment of mature minors in dangerous jobs, and positive effects of work are acknowledged via the possibility of persons under 15 years of age to perform light work and by recognizing the rights of mature minors to independently enter into employment. This deviates from the initial idea that underage workers are only temporary participants in the adult labour market and potential victims of exploitation. This ambivalent understanding of the work of minors makes the re-examination of the universal international labour standards on the prohibition of child labour and their implementation into the legal system of the Republic of Serbia justified.
This paper identifies the basic tendencies in the regulation of employment of minors under the auspices of the International Labour Organization (ILO), starting with the sectoral rules and common standards on minimum age for employment (14 years of age) – to its replacement with 15 years of age as the standard on minimum age for employment, adopted to further humanize the working conditions and develop education, as well as to reduce the numbers of unemployed workers after the great economic crisis (ILO Convention No. 138 of 1973). This paper provides a detailed analysis of these standards, as well as their legal nature. In addition, the author examines the harmonisation of Serbian legislation wuth the analysed standards of the International Labour Organisation, particularly regarding the following issues: special protection of persons who meet the general requirements for employment, but have not completed compulsory education; the issue of authorised employment of minors; if it is suitable to introduce the category of light work allowed for persons under the age of 15, as well as getting minors to work as non-registered workers.
Serbian legislator does not limit employment by introducing the age of completion of compulsory schooling as a requirement, as specified in international standards, which means that in Serbia, a person from 15 to 18 years of age can enter into a contract of employment while still in primary school. Prima facie, this legal provision is not contrary to ILO Convention No. 138, but its consistent application requires instruments that will ensure that minors, who did not complete compulsory schooling, fulfil the duties they have in this regard (e.g. by identifying fields in which employment of these persons may be permitted, or by prescribing the number of working hours and conditions in which subordinate work for the employer can be performed).
Author believes that, in addition to these amendments, it would be extremely important for the Serbian legislator to regulate, not only employment realtionship, but also work of minors on the basis of other contract of civil or commercial law, which is a fundamental obligation of each State ratifying ILO Convention No. 138. This further means that there is a need to establish the minimum age for any kind of (paid or unpaid) work of minors, regardless of whether they entered into a contract or they (de facto) work for somebody else with no legal basis. This is because, in practice, this form of engagement of persons 15 years of age or younger undeniably exists and, as it represents the non-regulated form of underage work, it falls into this „open space“ where everything that’s not forbidden is allowed, which requires special care and concern. This applies to children's participation in artistic events or events organized for similar (traditional or highly commercialized) purposes.
Although ILO Convention No. 138 states that children under the age of 15, as a rule, should not participate in professional art events, the need for their involvement in these events can be acceptable in exceptional cases, provided that the responsible authority approves each individual case. It is therefore important that the practice of recruiting children, no matter how socially acceptable it might seem at first glance, be qualified as child labour, with awareness that it can produce quite negative consequences, without adequate protection of children. In addition to protecting health, safety, morals and education of children participating in artistic or similar events, it is important to ensure effective measures to prevent their exploitation and to prevent placing them at a disadvantage, regarding working hours or compensation. In addition, there is a need to establish a minimum age for recruitment of children in this field, e.g. 14 years of age, unless the work involves an acting role or a dancing role that cannot be performed by an older person.
ILO Convention No. 138 (and the general standard of the minimum age of 15) does not apply to work in schools and the work organized in companies. However, there is a need to regulate situations, as part of formal courses and training programs, where the work of minors is related to education or training, even when it’s not fully integrated into the formal school curriculum. Since Serbian legislation on education regulates only the involvement of pupils in relation to teaching, in order to perform the so-called expanded activities of the school (i.e. services, manufacturing, sales and other activities that “contribute to a more rational and effective education”), there is a need to regulate other situations where the work of minors is only indirectly related to education or training.
However, when it comes to the rules on authorised employment of minors, there is a need to regulate, in addition to the form of consent for employment of a minor and the circle of persons authorized to provide such consent, through the Labour Act the phase of employment in which the parent or other legal guardian may give consent for the employment of a minor. It should precisely be established if the consent of the legal guardian represents permission or approval, or a tacit or explicit ratification of the concluded employment contract. There is also a need to regulate employment in case of conflict between the interests of the child and that of the parents, as well as the matter of consent of a parent who does not exercise parental rights. These issues should be regulated to provide the necessary protection of personality of minors and their interest to, on the basis of a freely chosen profession and employment, earn a living and to develop their personality through work, while simultaneously respecting the rights and duties of parents to ensure the child the best possible education, upbringing and career choice.
Finally, there is a need to improve control over the implementation of regulations relevant to the prohibition of child labour, as the punishment of persons who employ minors contrary to legal prohibitions and restrictions - provides long-term benefits that society reaps from special protection of minors. This is why it’s important to strengthen the inspections in this field, by granting additional powers to the labour inspectors and by establishing the obligation of employers to keep separate records on minor workers. There is also a need for a dedicated involvement of the social partners to create the conditions for effective protection of minors at work and in connection with work. Also, implementation of ILO Convention No. 182 requires adoption of national list of activities which, by its nature or the circumstances in which they are carried out, is likely to harm the health, safety or morals of children (its draft was made in 2016 by Ministry of Labour, Employment and Social Affairs).