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WORKERS' RIGHTS AIND APARTHEID
In addition to the four treaty-based regimes considered above (racial discrimination, women's rights, torture, and rights of the child), more diffuse single-issue regimes on workers' rights and apartheid have been important in the development of multilateral human rights procedures.
 
Workers' Rights
 
The first international human rights regime was the workers' rights regime developed in the International Labor Organization. Major ILO conventions (treaties) have dealt with freedom of association, the right to

organize and bargain collectively, forced labor, migrant workers, and indigenous peoples, as well as a variety of issues of working conditions and workplace safety. Even nonbinding ILO recommendations provide an important international reference point for national standards.

ILO monitoring procedures, which date back to 1926, have been the model for other international human rights reporting systems. The Committee of Experts meets annually to review periodic reports submitted by states on their implementation of ratified conventions. If apparent problems are uncovered, the committee may issue a "direct request" for information or for changes in policy. Over the past two decades, more than a thousand such requests have brought changes in national policies. If the problem remains unresolved, the committee may make "observations," that is, authoritative determinations of violations of the convention in question.

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OTHER WESTERN APPROACHES TO INTERNATIONAL HUMAN RIGHTS
Although the United States led the way in the 1970s in introducing human rights into bilateral diplomacy, other countries also incorporated human rights into their foreign policies. Particularly notable have been the efforts of the like-minded countries, a dozen smaller Western countries that since the mid-1970s have attempted to act together in international diplomacy as intermediaries between the larger Western countries, with which they are formally or informally aligned, and the countries of the

Third World, for whose aspirations they have considerable sympathy. Norway and the Netherlands in particular have emphasized human rights in their foreign policy and issued White Papers in 1977 and 1979.

Even more than in the United States, foreign aid has been a central instrument in the international human rights policies of the like-minded countries. Development assistance tends to be an important element of their foreign policies and a matter of consensus among the major political parties. In the Netherlands, there is even a separate minister for development cooperation within the Foreign Ministry.  By contrast, in the United States foreign aid is a relatively peripheral part of foreign policy yet is a subject of considerable political controversy.

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EXPLAINING DIFFERENCES IN INTERNATIONAL HUMAN RIGHTS POLICIES
Jan Egeland, in comparing Norwegian and U.S. international human rights policies, argued that "small and big nations are differently disposed to undertaking coherent rights-oriented foreign policies." In fact, Egeland argued that the relatively meager international human rights accomplishments of the United States are "because of, rather than in spite of, her superpower status." Small countries are not so much "better," in this analysis, as less constrained than large states. "The frequency and intensity of the conflict between self-interest and [international human

rights] norms seems, in short, proportional to a nation's economic and military power, as well as to its foreign policy ambitions." Large states have multiple interests and responsibilities that preclude the consistent pursuit of human rights objectives. Small states rarely have to choose between human rights and other foreign policy goals.

This explanation focuses on the structure of the international system. Large states are also more likely to pursue bilateral policies because they are more likely to have the power to achieve their aims by unilateral action. Small states, by contrast, tend to prefer international organizations because multilateral processes allow them greater opportunities to exert international influence. Such structural explanations would also seem to be supported by the fact that larger powers such as Britain, France, Japan, and to a lesser extent Germany, have international human rights policies closer to those of the United States than to Norway or the Netherlands.

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International Human Rights

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Human Rights as an Issue in World Politics

Before World War II, human rights were rarely discussed in international politics. Most states violated human rights systematically. Racial discrimination pervaded the United States. The Soviet Union was a totalitarian secret-police state. Britain, France, the Netherlands, Portugal, Belgium, the United States, and Spain maintained colonial empires in Africa, Asia, and the Caribbean. And the political history of most Central and South American countries was largely a succession of military dictatorships and civilian oligarchies.

Such phenomena troubled many people. They were not, however, considered a legitimate subject for international action. Rather, human rights were viewed as an internal (domestic) political matter, an internationally protected exercise of the sovereign prerogatives of states. Even genocidal massacres, such as Russian pogroms against the Jews or the Turkish slaughter of Armenians, drew little more than polite statements of disapproval. Less egregious violations were typically not even considered a fit subject for diplomatic conversation.

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THE SOURCE OR JUSTIFICATION OF HUMAN RIGHTS

How does being human give rise to rights? To answer this question we need a theory of human nature. Although I despair of being able to offer one, I can point out some basic distinctions that provide useful insights.

Theories of human nature deal with how we define, or what it means to be, "human." In a very crude way, we can say that a scientific approach to human nature involves an empirical investigation of the psychobiological makeup of human beings. A moral or philosophical approach focuses on what it means to be a person, a human being capable of reflective action and subject to the constraints of morality. Although moral theories may be constrained by science, they address different issues.

Those who seek to ground human rights in science usually speak of basic human needs. But any list of needs that can plausibly claim to be empirically established provides an obviously inadequate list of rights: life, food, protection against cruel or inhuman treatment, and perhaps companionship. The problem may lie in contingent shortcomings of our current scientific procedures or knowledge. I would argue, however, that science is in principle incapable of providing the appropriate kind of theory of human nature. We have human rights not to what we need for health but to what we need for a life of dignity.

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CULTURAL RELATIVISM AND UNIVERSAL HUMAN RIGHTS

Realist arguments are often reinforced by relativist arguments that moral values are historically or culturally specific rather than universal. For example, Kennan argued that "there are no internationally accepted standards of morality to which the U.S. government could appeal if it wished to act in the name of moral principles."  Many nonrealists share such relativist skepticism.

It is often claimed that there are a variety of distinctive and defensible conceptions of human rights that merit our respect and toleration even if we disagree with them. One standard form of this argument, which was particularly prominent in the 1980s, was the claim that there are "three worlds" of human rights. The "Western" (First World) approach, it is asserted, emphasizes civil and political rights and the right to private property. The "socialist" ( Second World) approach emphasizes economic and social rights. The "Third World" approach emphasizes self-determination and economic development. Furthermore, both the socialist and the Third World conceptions are held to be group oriented, in contrast to the fundamental individualism of the "Western" approach.

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POLITICS BEFORE THE COUPS

In Chile, military rule had been rare since the mid-nineteenth century. After World War II, a stable three-party democratic system emerged. And in 1970, Salvador Allende became the world's first freely elected Marxist president. Allende dramatically intensified the economic and social reforms begun under his Christian Democratic predecessor, Eduardo Frei. Large agricultural estates were expropriated. Key private industries and banks were nationalized, including Chile's (largely U.S.-owned) copper industry. Social services were expanded.

These changes were both lavishly praised and reviled, both within Chile and abroad. The resulting ideological polarization helped to set the stage for a military coup in September 1973. Allende was assassinated and a repressive military regime was installed that ruled until 1990.

In Uruguay, the military had not intervened in politics since the 1860s. Furthermore, beginning in the first two decades of the twentieth century, under President José Batlle y Ordoñez, Uruguay implemented a series of model social and political reforms that created a widely admired democratic welfare state that provided education and health care for all. The system, however, began to collapse in the late 1960s.

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Economic Reform and Economic and Social Rights

National purification also had a major economic dimension. In Chile, the Pinochet government tried to reverse not only Allende's reforms but also those of the 1960s as well. In 1975 the junta applied "Shock Treatment" (Plan Shock). Government spending declined by more than one-fourth and public investment was cut in half. Uruguay and Argentina pursued similar plans somewhat less vigorously. The aim was to privatize the economy and weaken or destroy organized labor, which was seen as a focal point for subversion. (In Argentina, for example, as many as half of the disappeared were labor activists.)

This forced march toward "free" markets produced a rapid decline in living standards. For example, real wages in Chile were one-third lower in 1976 than in 1970. Infant mortality increased dramatically.  But after the initial shock, there was limited economic recovery, especially in Chile. Although most of the benefits of growth were concentrated in the hands of a small elite, employment and wages increased while inflation declined. Economic success helped to calm at least some of the discontent with military rule. In fact, all three military governments relied on economic success to deflect attention from, or compensate for, political repression.

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HUMAN RIGHTS NGOS

If the Southern Cone provides a particularly striking example of human rights violations, it also provides a moving example of resistance. On April 30, 1977, fourteen middle-aged women, frustrated in their search for their disappeared children, met publicly in the Plaza de Mayo (the main square of Buenos Aires) in front of the Casa Rosada (the president's residence and the seat of government). The weekly Thursday afternoon vigil of the Mothers of the Plaza de Mayo -- white scarves on their heads, silently walking around the square -- became a symbol of both the cruelty of the military regime and the refusal of at least some ordinary people to bow to repression.

Although subject to harassment and even attack -- nine people associated with the mothers, including two French nuns, permanently disappeared on December 10, 1977, after evening mass -- the mothers persevered and grew in numbers and in strength. By 1980, they had almost five thousand members and were able to set up a small office.

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THE COLLAPSE OF MILITARY RULE

The Argentine military, ironically, finally fell from power after it lost a conventional war with Britain over control of the obscure Falkland Islands. Argentina had long protested British occupation and control of the Malvinas, as they are known in Latin America. In April 1982, the junta decided to reclaim them by force, a ploy to deflect public attention from the collapse of the economy during the global recession of the early 1980s.

But when the invasion was decisively repulsed, the Malvinas episode completed the military's humiliation rather than rescuing its reputation. Having attacked its own people, brought the economy to the brink of ruin, and then embarrassed itself and the country before the entire world, the Argentine military had little choice but to permit a return to civilian government. On October 30, 1983, Raúl Alfonsin won the national presidential election. He took office on December 10, the thirty-fifth anniversary of the adoption of the Universal Declaration of Human Rights.

In Chile, the economy also collapsed in the early 1980s. In 1982, per capita gross domestic product declined one-sixth. By March 1983, onethird of the labor force was unemployed. The minimum wage lost between one-fifth and one-half of its purchasing power. Close to half of Chile's children were malnourished, an appalling situation in a country that had previously been relatively prosperous. A wave of bankruptcies brought hard times even to the middle and upper classes.

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Racial Discrimination, Women's Rights, Torture, and Children

Regimes on racial discrimination, women's rights, torture, and the rights of the child have developed around similar treaty-reporting schemes.

These treaties give added international prominence to the rights they address. The mandated periodic review of reports provides additional international scrutiny of state practices in these areas. And the treaties give greater range, precision, and force to the much more general formulations of the universal Declaration and the Covenants.

For example, the torture convention states that "No exceptional circumstances whatsoever, whether a state of war or threat of war, internal political instability or any other public emergency, may be invoked as a justification of torture". Orders from superiors are explicitly excluded as a defense. Special obligations are established for training law enforcement personnel and reviewing interrogation regulations and methods. To reduce incentives for torture, statements obtained through torture must be made inadmissible in all legal proceedings. The convention also requires that wherever the alleged torture occurred and whatever the nationality of the torturer or victim, parties must either prosecute alleged torturers or extradite them to a country that will.

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