子どもの権利委員会の最終所見（第４回・第５回）による日本への推奨

２０１９年３月５日に、日本政府報告書（第４回及び第５回）についての国連子どもの権利委員会の最終所見が発表されました。原文（英文）はこちらからご参照ください。

以下では、第３章を、英文と日本語訳を対比しつつ推奨事項を列挙します。

III.Main areas of concern and recommendations

主要な懸念と督促・推奨

5.The Committee recommends that the State party ensure the realization of children’s rights in accordance with the Convention, the Optional Protocol on the involvement of children in armed conflict and the Optional Protocol on the sale of children, child prostitution and child pornography throughout the process of implementing the 2030 Agenda for Sustainable Development. It also urges the State party to ensure the meaningful participation of children in the design and implementation of policies and programmes aimed at achieving all 17 Sustainable Development Goals as far as they concern children.

5. 委員会は、日本に対し、2030アジェンダ – 持続可能な開発目標（SDGs）の実施プロセスを通じ、子どもの権利条約、武力紛争への子どもの関与に関する任意議定書、子どもの売買、児童買春、児童ポルノに関する任意議定書にのっとり、子どもの権利の実現を確保することを推奨する。また国に対し、子どもに関連する全ての17の持続可能な開発目標の達成を目指した政策とプログラムの策定と実施において、子どもの意義ある参加を確保することを督促する。

A.General measures of implementation (arts. 4, 42 and 44 (6))

実施のための一般的な措置(条文4、42、44(6))

Reservations

留保

6. The Committee, in line with its previous recommendations (CRC/C/JPN/CO/3, para. 10), recommends that the State party consider withdrawing its reservation to article 37 (c), which constitutes an obstacle to the full application of the Convention.

委員会は第３回最終所見の推奨(CRC/C/JPN/CO/3、パラ10)に沿って、条約の完全な適用の障害となっている第37条(c)への留保を撤回することを日本に考慮するよう推奨する。

Legislation

法令

7. 日本政府から提供された様々な法律の改正に関する情報に留意しつつ、委員会は強く日本に対し、子どもの権利に関する包括的な法律を制定し、既存の法制度を条約の原則および規定に完全に調和させるための措置を取るよう推奨する。

Comprehensive policy and strategy

包括的な政策と戦略

8. The Committee recommends that the State party develop a comprehensive child protection policy that encompasses all areas covered by the Convention and ensures coordination and complementarity among government entities, and also a comprehensive implementation strategy for the policy, supported by sufficient human, technical and financial resources.

委員会は、この条約でカバーされるすべての分野を包含し、政府機関の間の調整と補完性を確保する包括的な子どもの保護政策を開発し、その政策を十分な人的、技術的、財政的資源で支えつつ包括的に実施に移す戦略を立てるよう推奨する。

Coordination

調整

9. The Committee reiterates its previous recommendation ( ibid., para. 14) that the State party establish an appropriate coordinating body with a clear mandate and sufficient authority to coordinate all activities related to the implementation of the Convention at the cross-sectoral, national, regional and local levels, as well as evaluation and monitoring mechanisms targeting all children and areas of the Convention. The State party should ensure that such a coordinating body is provided with the necessary human, technical and financial resources for its effective operation.

9. 委員会は、第３回最終所見でも行ったが(調整のパラ14) 、繰り返し、日本に対し、条約の実施に関連する全ての活動を国際、地域、及び地方レベルで横断的に調整する明確な任務と十分な権限を持つ適切な調整機関を設立することを推奨する。この調整機関はこの条約の全ての子どもと分野を対象として評価と監視のメカニズムを持つものでなくてはならない。またこの調整機関には、効果的な運営のために必要な人的、技術的、財政的資源が提供されなければならない。

Allocation of resources

10. In view of the fact that the relative child poverty rate has remained high over the past few years, and recalling its general comment No. 19 (2016) on public budgeting for the realization of children ’ s rights, the Committee strongly recommends that the State party set up a budgeting process that includes a child-rights perspective, specifies clear allocations to children, and includes specific indicators and a tracking system to monitor and evaluate the adequacy, efficacy and equitability of the distribution of resources allocated for implementation of the Convention, including by:

(a) Developing detailed budget lines and codes for all planned, enacted, revised and actual expenditures that directly affect children ;

(b) Using budget classification systems that allow expenditures related to the rights of the child to be reported , tracked and analysed;

(c) Ensuring that the fluctuation or reduction in budget allocations for the delivery of services does not reduce the existing level of enjoyment of children ’ s rights ;

(d) Allocating adequate resources for implementing the “ Outline for the Promotion of the Development of and Support for Children and Young People ” .

10. 過去数年間、相対的な子どもの貧困率が高止まりしていることを踏まえ、子どもの権利実現のための公的予算に関する一般コメント第19号(2016年)を想起し、委員会は日本に対し、子どもの権利の視点を含み、子どもへの明確な資源割り当てと指標や追跡システムを含む予算プロセスを設定することを強く推奨する。これは、条約の実施のために割り当てられた資源の配分の妥当性、有効性、公平性をモニタリングおよび評価するためである。

具体的には以下の事項が含まれる。

(a) 子どもに直接影響を与えるすべての計画、成立、改定、実際の支出に関する詳細な予算線とコードを開発すること。

(b) 子どもの権利に関連する支出を報告、追跡、分析できる予算分類システムを使用すること。

(d) 「子ども・若者育成支援推進大綱」の実施のために十分な資源を割り当てること。

Data collection

資源の配分

11. While noting the data-collection efforts by the State party, the Committee also notes that gaps still exist. Recalling its general comment No. 5 (2003) on general measures of implementation of the Convention, the Committee recommends that the State party improve its data-collection system in all areas of the Convention, particularly in the areas of child poverty, violence against children, and early childhood care and development, with data disaggregated by age, sex, disability, geographic location, ethnic origin and socioeconomic background, and that it use the data for policy design and programming.

Independent monitoring

独立したモニタリング

12. While noting that 33 ombudsperson units for children have been established at the local level, these units reportedly lack independence, with regard to financial and human resources, and remedy mechanisms. The Committee recommends that the State party take measures to:

(a) Expeditiously establish an independent mechanism for monitoring human rights, including a specific mechanism for monitoring children ’ s rights that is able to receive, investigate and address complaints by children in a child-sensitive manner;

(b) Ensure the independence of such a monitoring mechanism, including with regard to its funding, mandate and immunities, so as to ensure full compliance with the principles relating to the status of national institutions for the promotion and protection of human rights (the Paris Principles).

Dissemination, awareness-raising and training

普及、意識向上、トレーニング

13. Recognizing the efforts made by the State party to carry out awareness-raising programmes and children ’ s rights campaigns, the Committee recommends that the State party:

(a) Broaden the dissemination of information on the Convention, particularly among children and parents but also to legislators and judges to ensure the application of the Convention in the legislative and judicial processes ;

(b) Periodically conduct specific training sessions on the Convention and the Optional Protocols for all persons working for and with children, including teachers, judges, lawyers, investigating officers at family courts, social workers, law enforcement officials, media professionals, civil servants and government officials at all levels.

Cooperation with civil society

市民社会との協力

14. While welcoming the meeting and exchange of opinions with civil society in the process of preparing the State party ’ s report, the Committee recommends that the State party strengthen its cooperation with civil society and involve civil society organizations systematically throughout all stages of the implementation of the Convention.

Children’s rights and the business sector

15. Recalling its general comment No. 16 (2013) on State obligations regarding the impact of the business sector on children ’ s rights and the Guiding Principles on Business and Human Rights, endorsed by the Human Rights Council in 2011, the Committee recommends that the State party:

(a) When developing the national action plan on business and human rights, ensure that children ’ s rights are integrated and that companies are required to carry out periodic child-rights impact assessments and consultations and to disclose fully and publicly the environmental, health-related and human rights impact of their business activities and their plans to address such an impact;

(b) Adopt and implement regulations to hold the business sector accountable for complying with international standards, including on labour and the environment, that are relevant to children ’ s rights;

(c) Undertake awareness-raising campaigns in collaboration with the tourism industry, media and advertising companies, the entertainment industry and the public at large on the prevention of sexual exploitation of children in the context of travel and tourism;

(d) Widely disseminate the World Tourism Organization Global Code of Ethics for Tourism among travel agents and in the tourism industry.

B.Definition of the child (art. 1)

16. While noting the revision of the Civil Code that sets the minimum age of marriage at 18 years for both women and men, the Committee regrets that it will take effect only in 2022 and recommends that, in the meantime, the State party take interim measures necessary to completely eliminate child marriage in line with the State party ’ s obligations under the Convention.

C.General principles (arts. 2, 3, 6 and 12)

C.一般原則（条文2、3、6、12）

Non-discrimination

非差別

18. The Committee urges the State party to:

(a) Enact comprehensive anti-discrimination legislation ;

(b) Repeal all provisions that discriminate against children on any basis, including those that relate to the status of children born to unmarried parents ;

(c) Strengthen the measures, including awareness-raising programmes, campaigns and human-rights education, to reduce and prevent discrimination in practice, particularly against children belonging to ethnic minorities, including Ainu people, children of Buraku people, children of non-Japanese origin, such as Korean, children of migrant workers, lesbian, gay, bisexual, transgender and intersex children, children born outside marriage and children with disabilities.

18. 委員会は日本に対し以下を直ちに行うよう督促する:

(a)包括的な反差別法令を制定すること。

(b)未婚の親から生まれた子どもの地位に関連するものを含む、あらゆる根拠に基づく子どもに対する差別規定を全て撤廃すること。

(c)アイヌの子どもや部落出身の子ども、韓国・朝鮮人の子どもや移住労働者の子ども、LGBTIの子ども、婚外子ども、障害のある子どもなど、民族的少数者に属する子どもに対する差別を実際に減らし予防するため、啓発プログラム、キャンペーン、人権教育などの措置を強化すること。

Right to life, survival and development

生命、生存及び発達に対する権利

20. The Committee recalls its previous recommendation (CRC/C/JPN/CO/3, para. 42) and urges the State party to:

(a) Take measures to ensure that children enjoy their childhood, without their childhood and development being harmed by the competitive nature of society;

(b) Research the root causes for suicide among children, implement preventive measures and equip schools with social workers and psychological consultation services ;

(c) Ensure that children ’ s facilities adhere to appropriate minimum safety standards and introduce automatic, independent and public reviews of unexpected death or serious injury involving children ;

(d) Strengthen targeted measures to prevent traffic, school and domestic accidents and ensure appropriate response, including steps to ensure road safety, the provision of safety and first-aid training and the expansion of paediatric emergency care.

20. 委員会は、第３回の日本に対する勧告(CRC/C/JPN/CO/3, para. 42)を想起し、日本に対し以下を直ちに行うよう督促する:

(a) 社会の競争的性質によってその子ども時代と発達が害されることなく、子どもが楽しめるよう措置を取ること。

(b) 子どもの自殺の根本原因を研究し、予防策を実施し、学校にスクールソーシャルワーカーや心理カウンセリングサービスを配置すること。

(d) 交通事故、学校や家庭内での事故を防止するための対策を強化し、道路の安全確保、安全・応急手当ての訓練の提供、小児救急医療の拡充など、適切な対応を確保すること。

Respect for the views of the child

子どもの意見の尊重

22. Recalling its general comment No. 12 (2009) on the right of the child to be heard, the Committee urges the State party to assure to any child who is able to form views the right to freely express those views, without age limitations, in all matters affecting the child, and that due weight be given to the child ’ s views, while providing safeguards against intimidation and punishment of a child. It further recommends that the State party provide an environment that enables the child to exercise her or his right to be heard and actively promote meaningful and empowered participation of all children in the family, schools, alternative care and health and medical settings, judicial and administrative proceedings concerning them and the local community, and on all relevant issues, including environmental matters.

22. 委員会は、一般的意見第12号(子どもが聴かれる権利)を想起し、日本に対し、全ての子どもが、影響を受ける全ての事項において、年齢の制限なく自由に想いや願いを表明する権利を保障し、表明された子どもの想いや願いが相応に尊重されるようにし、子どもが想いや願いを表明することに対する威圧や懲罰を防止するセーフガードを設けるよう、督促する。また、子どもが聴かれる権利を行使できる環境の提供、家族・学校・代替養育・医療の場、子どもに関する司法・行政手続き、地域社会での子どもの意義ある参加の推進を勧告する。

E.Violence against children (arts. 19, 24 (3), 28 (2), 34, 37 (a) and 39)

E.子どもに対する暴力

Corporal punishment

体罰

26. Bearing in mind its general comment No. 8 (2006) on the right of the child to protection from corporal punishment and other cruel or degrading forms of punishment, the Committee recalls its previous recommendation (CRC/C/JPN/CO/3, para. 48) and urges the State party to:

(a) Explicitly and fully prohibit all corporal punishment, however light, in law, particularly in the Child Abuse Prevention Act and the Civil Code, in all settings, including in the home, in alternative care and day-care settings and in penal institutions ;

(b) Strengthen its measures to eliminate corporal punishment in practice in all settings, including by intensifying its awareness-raising campaigns and promoting positive, non-violent and participatory forms of child-rearing and discipline.

26. 委員会は、一般的意見第8号(子どもに対する体罰その他残虐なまたは品位を傷つける形式の刑罰からの保護についての子どもの権利)及び第３回の勧告(CRC/C/JPN/CO/3, para. 48)を想起し、国に対し以下を督促する:

(a) 児童虐待防止法や民法において、家庭内や代替養育・保育施設および刑事施設を含むあらゆる場における体罰を明示的かつ完全に禁止すること。たとえ軽微なものであっても同様である。

(b) 啓発キャンペーンの強化などを通じ、あらゆる場での体罰撤廃のための取組を強化するとともに、子育て・規律における肯定的で非暴力的かつ参加型の形態を推進すること。

F.Family environment and alternative care (arts. 5, 9–11, 18 (1) and (2), 20, 21, 25 and 27 (4))

F.家庭環境及び代替養育

Children deprived of a family environment

家庭環境を奪われた子ども

29. Drawing the State party ’ s attention to the Guidelines for the Alternative Care of Children, the Committee urges the State party to:

(a) Introduce a mandatory judicial review for determining whether a child should be removed from the family, set up clear criteria for removal of the child and ensure that children are separated from their parents as a measure of last resort only, when it is necessary for their protection and in their best interests, after hearing the child and its parents;

(b) Ensure the prompt and effective enforcement of the “ New Vision for Alternative Care and the Role of Society in Child Well-being ” with clear timelines, prompt deinstitutionalization of children starting with those younger than 6 years old and the establishment of fostering agencies;

(d) Prevent, investigate and prosecute those responsible for child abuse in alternative care settings, ensure periodic independent external review of the placement of children in foster care and institutional settings, such as child guidance centres, and monitor the quality of care therein, including by providing accessible and safe channels for reporting, monitoring and remedying maltreatment of children;

(e) Redirect financial resources from institutions to family-like settings, such as foster families, and strengthen the municipal capacity to implement deinstitutionalization and simultaneously strengthen family-based arrangements, ensuring that all foster parents receive comprehensive support, adequate training and monitoring;

(f) Amend the Foster Parent Placement Guidelines to clearly instruct child guidance centres to bring cases to family court when the biological parents ’ decision on their children ’ s placement is against their children ’ s best interests.

29. 子どもの代替養育のためのガイドラインを日本に注意喚起した上で、委員会は日本に対し以下を督促する:

(a) 子どもを家族から引き離す必要性を判断するために義務的な司法判断を導入し、引き離しのための明確な基準を設定すること。子どもとその親に聴取した上で、保護のために必要かつ子どもの最善の利益に資する場合にのみ、最後の手段として親からの引き離しが行われることを確保すること。

(b) 「子どもの福祉のための代替養育ビジョン」の速やかなかつ効果的な施行を確保すること。6歳未満の子どもから始めて施設ケアからの脱却を速やかに行い、里親機関の設立を行うこと。

(d) 代替養育における子どもへの虐待の防止・捜査・訴追および施設と里親ケアへの子ども配置の定期的独立外部チェックとケアの質のモニタリングを実施すること。

(e) 財源を施設から家庭的養育へと移行させ、非施設ケアへの移行と家庭的養育の同時強化を図ること。里親への包括的支援、適切な訓練とモニタリングを確保すること。

(f) 里親委託ガイドラインを改正し、子どもの最善の利益に反する場合に家庭裁判所への申立てを行うことを指示すること。

G.Disability, basic health and welfare (arts. 6, 18 (3), 23, 24, 26, 27 (1)–(3) and 33)

障害、基礎的健康・福祉

Reproductive and mental health

生殖保健と精神保健

35. Recalling its general comments No. 4 (2003) on adolescent health and development in the context of the Convention and No. 20 (2016) on the implementation of the rights of the child during adolescence, and bearing in mind target 5.6 of the Sustainable Development Goals, the Committee urges the State party to:

(a) Adopt a comprehensive sexual and reproductive health policy for adolescents and ensure that sexual and reproductive health education is consistently implemented as part of the mandatory school curriculum and targeted at adolescent girls and boys, with a special focus on preventing early pregnancy and sexually transmitted infections;

(b) Improve access to quality, age-appropriate HIV/AIDS services, and education in schools, improve access to and coverage of antiretroviral therapy and prophylaxis for HIV-infected pregnant girls and provide adequate support to the AIDS Clinical Centre and its 14 regional core hospitals;

(c) Consider decriminalizing abortion in all circumstances and increase access to safe abortion and post-abortion care services for adolescent girls ;

(d) Address the emotional and psychological well-being of children and adolescents through a multidisciplinary approach, including analysis of root causes, awareness-raising and increasing the number of specialists;

(e) Ensure that diagnoses of children with attention deficit hyperactivity disorder are thoroughly examined, that prescription of drugs are used as a measure of last resort and only after an individualized assessment and that children and their parents are properly informed about the possible side effects of such treatment and non-medical alternatives, and conduct a study on the root causes of the increase in attention deficit hyperactivity disorder diagnoses and psychostimulant drug prescriptions.

35. 委員会は、一般的意見第4号(条約の文脈における思春期の健康と発達)及び第20号(思春期の子どもの権利の実施)を想起し、持続可能な開発目標のターゲット5.6を念頭に置きつつ、日本に対し以下を督促する:

(a) 思春期の男女を対象とした総合的な性と生殖に関する健康政策を採択し、義務教育の一環として性教育と生殖保健教育が継続的に実施されることを確保すること。早期妊娠と性感染症の予防に特に力を入れること。

(b) エイズ治療研究会とその14の地域中核病院への充分な支援の提供を含め、HIV/エイズに関する適切な年齢のサービスと情報へのアクセスを改善すること。

(d) 根本原因の分析、啓発、専門家の増員など多角的アプローチで、子どもと思春期の精神保健の向上に取り組むこと。

(e) ADHDと診断される子どもに対して、処方薬を最後の手段とし、個別評価の上で用いられることを確保するとともに、患者とその親への副作用と非薬物療法の選択肢の説明を適切に行うこと。ADHDの増加原因の調査と必要な対策をとること。

I.Special protection measures (arts. 22, 30, 32, 33, 35, 36, 37 (b)–(d) and 38–40)

特別の保護

Administration of juvenile justice

少年司法の運営

45. The Committee urges the State party to bring its juvenile justice system fully into line with the Convention and other relevant standards. In particular, the Committee recalls its previous concluding observations (CRC/C/JPN/CO/3, para. 85) and urges the State party to:

(a) Study the root causes of child offending and urgently implement preventive measures ;

(b) Study child offending trends since 2000 to inform a reconsideration of shifting the “ minimum age for criminal punishment ” back to 16 years of age ;

(c) Ensure the provision of qualified and independent legal aid to children in conflict with the law at an early stage of the procedure and throughout the legal proceedings ;

(d) Ensure that no child is tried by adult criminal courts, increase the use of non-judicial measures in the case of children accused of criminal offences, such as diversion, probation, mediation, counselling or community service, and, whenever possible, use non-custodial sentences;

(e) Ensure that pretrial and post-trial deprivation of liberty are used as a measure of last resort and for the shortest possible period of time and that such deprivation of liberty is reviewed on a regular basis with a view to its withdrawal, in particular:

(i) Review the designation of children as “ likely to commit crime ” and end the detention of such children;

(ii) Reconsider the use of life imprisonment and indeterminate sentences for crimes committed by children and apply the specialized parole system to ensure that detention is used for the shortest appropriate period.

45. 委員会は、日本に対し少年司法制度を条約その他の関連基準に完全に符合させることを督促する。特に、第３回の最終所見(CRC/C/JPN/CO/3、パラ85) を想起し、以下を督促する:

(a) 子どもの非行の根本原因に関する研究と予防策の緊急の実施をすること。

(b) 2000年以降の子どもの非行傾向に関する研究を行い、刑事責任年齢を16歳に戻すことを再考するための基礎情報とすること。

(d) 成人の刑事裁判所で子どもが裁かれることがないようにし、更生や保護観察などの司法外措置を拡大するとともに、可能な限り非拘束刑を用いること。

(e) 勾留前後の自由剥奪が最後の手段として最短期間で用いられ、定期的に見直されて早期解消を図ることを確保すること。