Making decent work a reality: A systematic approach to improving occupational safety and health and labour inspection

1. Making decent work a reality: A systematic approach to improving occupational safety and health and labour inspection Annie Rice, ILO Sub-regional Office for Central and Eastern Europe Strengthening social dialogue for improving OSH in South East Europe Budapest, Hungary, 28-29 June 2007 From an ILO perspective.From an ILO perspective.

2. The burden of work-related accidents and diseases: 2.2 million deaths per year from occupational accidents and diseases 270 million workers suffer non-fatal injuries 160 million workers suffer short- or long-term illnesses from work-related causes 4% of world’s GDP lost to work-related accidents and diseases You have all seen these statistics before. More than 5,000 workers die every day. Of these, 1,000 go out to work in the morning or evening and don’t return home because they die in an accident at work. 4% of GDP is wasted – 4% which may as well be thrown in the Danube – or the Adriatic or Black Seas. It’s sad. But the saddest thing is that most of these accidents and diseases could have been prevented!You have all seen these statistics before. More than 5,000 workers die every day. Of these, 1,000 go out to work in the morning or evening and don’t return home because they die in an accident at work. 4% of GDP is wasted – 4% which may as well be thrown in the Danube – or the Adriatic or Black Seas. It’s sad. But the saddest thing is that most of these accidents and diseases could have been prevented!

3. Global figures are a challenge, but perhaps they are a bit impersonal – we can put a face to it – my neighbour or your neighbour? I have a neighbour who did this but in an even more dangerous manner! We pass construction sites every day with dangerous practices. Think about what is happening here and the possible consequences. Death?Global figures are a challenge, but perhaps they are a bit impersonal – we can put a face to it – my neighbour or your neighbour? I have a neighbour who did this but in an even more dangerous manner! We pass construction sites every day with dangerous practices. Think about what is happening here and the possible consequences. Death?

4. Who is responsible? The worker? The employer? The manager? The government? The labour inspector? The safety and health professional? Who is responsible for such activities? It is easy to say it’s the worker. We don’t know exactly, but it is probably the result of a whole long list of neglect on the part of different actors: The worker is working dangerously. It may be because of a macho/risk-taking attitude – “it can’t happen to me”, or he may be genuinely ignorant of the dangers or plain apathetic BUT Has the employer given him the right tools and equipment? Has he been trained? Has the manager even encouraged it – after all the right equipment may be in use at another site, and he’s got a deadline to meet? What regulations apply – and has the government informed employers and workers about them? Where is the labour inspector, and the trade union OSH representative? What has the health and safety professional done to evaluate such situations and advise the employer on avoiding them? Would the insurance company pay compensation if it were aware of such practices? In other words, who is responsible? And as individuals what do we care – don’t we all try and shift blame to one or more of the others in the chain? And so it continues…Who is responsible for such activities? It is easy to say it’s the worker. We don’t know exactly, but it is probably the result of a whole long list of neglect on the part of different actors: The worker is working dangerously. It may be because of a macho/risk-taking attitude – “it can’t happen to me”, or he may be genuinely ignorant of the dangers or plain apathetic BUT Has the employer given him the right tools and equipment? Has he been trained? Has the manager even encouraged it – after all the right equipment may be in use at another site, and he’s got a deadline to meet? What regulations apply – and has the government informed employers and workers about them? Where is the labour inspector, and the trade union OSH representative? What has the health and safety professional done to evaluate such situations and advise the employer on avoiding them? Would the insurance company pay compensation if it were aware of such practices? In other words, who is responsible? And as individuals what do we care – don’t we all try and shift blame to one or more of the others in the chain? And so it continues…

5. But in reality, we are all responsible in some way. There are many different actors with different responsibilities, but all too often efforts to prevent OSH problems are dispersed and fragmented so they don’t have the coherence to produce an effective impact. Even the best intentioned of one of these actors will fail if there is no support and willingness from the others. It’s obvious then that there is a need for a more coherent integrated and preventive approach to OSH issues. Sound prevention needs to be taken on a more systematic level at national and enterprise level, and I’ll add sectoral level to that. All have a role to play, like instruments in an orchestra, singly and together. Everyone plays their part, knows their role, but plays the same tune. How to go about it?But in reality, we are all responsible in some way. There are many different actors with different responsibilities, but all too often efforts to prevent OSH problems are dispersed and fragmented so they don’t have the coherence to produce an effective impact. Even the best intentioned of one of these actors will fail if there is no support and willingness from the others. It’s obvious then that there is a need for a more coherent integrated and preventive approach to OSH issues. Sound prevention needs to be taken on a more systematic level at national and enterprise level, and I’ll add sectoral level to that. All have a role to play, like instruments in an orchestra, singly and together. Everyone plays their part, knows their role, but plays the same tune. How to go about it?

6. If the objective is prevention of occupational accidents and work-related diseases then there are certain key elements needed to achieve the goal: Modern legislation (and activities needed to get there – review of legislation and risk-based insurance schemes) Ensuring compliance - Inspection services (trend for market economy conditions for integrated occupational safety and occupational health inspection services; prevention-oriented, technically-competent services which are targeted, predictable and fair – more later) Institutions with a tripartite or tripartite plus consultation mechanism (and the activities which are necessary for capacity-building of these – mainly training. These are areas that the ILO deals with. Could add occupational health and safety services (multidisciplinary) as part of the institutional capacity, of course. But HOW can these institutions work together – what tools do they have at their disposal to apply a systematic approach to OSH? If the objective is prevention of occupational accidents and work-related diseases then there are certain key elements needed to achieve the goal: Modern legislation (and activities needed to get there – review of legislation and risk-based insurance schemes) Ensuring compliance - Inspection services (trend for market economy conditions for integrated occupational safety and occupational health inspection services; prevention-oriented, technically-competent services which are targeted, predictable and fair – more later) Institutions with a tripartite or tripartite plus consultation mechanism (and the activities which are necessary for capacity-building of these – mainly training. These are areas that the ILO deals with. Could add occupational health and safety services (multidisciplinary) as part of the institutional capacity, of course. But HOW can these institutions work together – what tools do they have at their disposal to apply a systematic approach to OSH?

7. ILO Promotional Framework for OSH Convention (C.187), 2006 The ILO’s response to this has been, among other things, that last year it adopted a Convention and Recommendation establishing a Promotional Framework for OSH. The Convention is designed to promote the continuous improvement in OSH through the development of a preventive safety and health culture. And this by applying a systematic management approach at the national level. It, and its accompanying Recommendation, are promotional rather than prescriptive, which makes a change from previous instruments. They aim to increase policy coherence and help countries acquire the capacity to improve OSH through these key tools: A national OSH policy – or an expression of a country’s concern and commitment to OSH. A policy will act as a basis for developing and implementing a national programme for securing OSH improvements. Developing a national OSH policy is a requirement of C.155 on OSH. Most of the countries here (Albania, BiH, Croatia, Macedonia, Moldova, Montenegro, and Serbia) have ratified that Convention and so should be in the possession of an OSH policy already. National OSH system – or the infrastructure which provides the framework for implementing the OSH policy and programme. Here we are talking about improving OSH legislation, capacity-building of mechanisms such as labour inspection to ensure compliance with the legislation, OSH services, OSH data collection and analysis, information and advisory services, provision of training and education, research, collaboration with relevant insurance or social security schemes covering occupational injuries and diseases, and arrangements to promote management/worker collaboration at the enterprise level – and a mechanism for tripartite consultation – the National OSH Councils or ECOSOC committees. A National OSH Programme: A medium-term strategic programme with objectives, priorities, means of action, targets and indicators of progress. It is this programme which will facilitate the continuous improvement of national OSH performance with systematic review and planning. The endorsement of the national programme by the highest national authorities is essential to ensure that OSH is placed high on the national agenda. And all this in a spirit of social dialogue - The policy, the system and the programme need to be developed on a tripartite or tripartite plus basis.The ILO’s response to this has been, among other things, that last year it adopted a Convention and Recommendation establishing a Promotional Framework for OSH. The Convention is designed to promote the continuous improvement in OSH through the development of a preventive safety and health culture. And this by applying a systematic management approach at the national level. It, and its accompanying Recommendation, are promotional rather than prescriptive, which makes a change from previous instruments. They aim to increase policy coherence and help countries acquire the capacity to improve OSH through these key tools: A national OSH policy – or an expression of a country’s concern and commitment to OSH. A policy will act as a basis for developing and implementing a national programme for securing OSH improvements. Developing a national OSH policy is a requirement of C.155 on OSH. Most of the countries here (Albania, BiH, Croatia, Macedonia, Moldova, Montenegro, and Serbia) have ratified that Convention and so should be in the possession of an OSH policy already. National OSH system – or the infrastructure which provides the framework for implementing the OSH policy and programme. Here we are talking about improving OSH legislation, capacity-building of mechanisms such as labour inspection to ensure compliance with the legislation, OSH services, OSH data collection and analysis, information and advisory services, provision of training and education, research, collaboration with relevant insurance or social security schemes covering occupational injuries and diseases, and arrangements to promote management/worker collaboration at the enterprise level – and a mechanism for tripartite consultation – the National OSH Councils or ECOSOC committees. A National OSH Programme: A medium-term strategic programme with objectives, priorities, means of action, targets and indicators of progress. It is this programme which will facilitate the continuous improvement of national OSH performance with systematic review and planning. The endorsement of the national programme by the highest national authorities is essential to ensure that OSH is placed high on the national agenda. And all this in a spirit of social dialogue - The policy, the system and the programme need to be developed on a tripartite or tripartite plus basis.

8. National OSH Profile: Summary of the OSH situation (such as accident data) Summary of OSH system status (the infrastructure) The OSH Profile can serve as: A tool for developing the National OSH Programme Benchmarking information for reviewing national OSH systems and performance The ILO Recommendation on a Promotional Framework for OSH also proposes that member states develop and regularly update a national OSH profile. This is basically a summary of the existing or present OSH situation. It includes information on occupational accidents and diseases, the OSH system or infrastructure and activities carried out by the different organisations. This is what has already been carried out in your countries or entities. There are OSH profiles available now and which will be made more accessible soon after some editing for format, and you will all receive a copy of your profile. The profile is a useful tool for preparing a national OSH programme as it helps to analyse the situation, identify strengths and gaps and set priorities. The profile can also be used to benchmark information for reviewing the system and progress – and for comparing the situation in relation to other countries.The ILO Recommendation on a Promotional Framework for OSH also proposes that member states develop and regularly update a national OSH profile. This is basically a summary of the existing or present OSH situation. It includes information on occupational accidents and diseases, the OSH system or infrastructure and activities carried out by the different organisations. This is what has already been carried out in your countries or entities. There are OSH profiles available now and which will be made more accessible soon after some editing for format, and you will all receive a copy of your profile. The profile is a useful tool for preparing a national OSH programme as it helps to analyse the situation, identify strengths and gaps and set priorities. The profile can also be used to benchmark information for reviewing the system and progress – and for comparing the situation in relation to other countries.

9. Steps for a National OSH Programme: Tripartite decision to develop a National OSH Programme Preparation of the National OSH Profile Situational analysis Identification of priorities for national action Draft National Programme Establish coordinating mechanism for implementation of National Programme Mobilise resources High level endorsement and official launching Review and evaluation new Programme So these steps can be envisaged in the development and implementation of a national programme on OSH: A formal agreement of involved parties to establish a National Programme which will be developed and owned by the country Preparation of the OSH profile. A situational analysis to identify the strong points and gaps in the country’s OSH framework raised by the National Profile. Most of the profiles done before this seminar already have a brief analysis as a starting point. Identification of priorities for national action to improve the level of OSH. We have to be realistic – can’t tackle everything at once so priorities have to be made. Draft the national programme, with a plan of action for the agreed priorities, including targets and indicators. Essential to have some form of coordinating mechanism for implementation of the Programme – like the NCOSH or a sub-committee of the ECOSOC. And, of course, resources will have to be earmarked for the action plans. Launching of the Programme, supported or endorsed at the highest level. Minister of Labour, Prime Minister… And finally, the Programme has to be reviewed, with eventual designation of new priorities. A suitable mechanism has to be used for this – perhaps the same NCOSH or ECOSOC committee. So these steps can be envisaged in the development and implementation of a national programme on OSH: A formal agreement of involved parties to establish a National Programme which will be developed and owned by the country Preparation of the OSH profile. A situational analysis to identify the strong points and gaps in the country’s OSH framework raised by the National Profile. Most of the profiles done before this seminar already have a brief analysis as a starting point. Identification of priorities for national action to improve the level of OSH. We have to be realistic – can’t tackle everything at once so priorities have to be made. Draft the national programme, with a plan of action for the agreed priorities, including targets and indicators. Essential to have some form of coordinating mechanism for implementation of the Programme – like the NCOSH or a sub-committee of the ECOSOC. And, of course, resources will have to be earmarked for the action plans. Launching of the Programme, supported or endorsed at the highest level. Minister of Labour, Prime Minister… And finally, the Programme has to be reviewed, with eventual designation of new priorities. A suitable mechanism has to be used for this – perhaps the same NCOSH or ECOSOC committee.

10. Further elements to support a systematic approach to OSH: Link National OSH Programme with other national programmes Develop labour inspection services Promote a national preventive OSH culture Establish OSH awareness campaigns Promote the business case for OSH Promote OSH management systems, such as ILO-OSH 2001 Education, training and information Social dialogue International exchange of information This lists further elements which can lend support to a systematic approach to improving OSH. Some are mentioned in the ILO Recommendation 197 on the promotional framework for OSH, but some of the more important ways of ensuring that measures are not only in place but also respected are:This lists further elements which can lend support to a systematic approach to improving OSH. Some are mentioned in the ILO Recommendation 197 on the promotional framework for OSH, but some of the more important ways of ensuring that measures are not only in place but also respected are:

11. Development of modern labour inspection services: Integration of responsibilities – “one site, one inspector” Prevention-oriented services – advice backed up with sanctions Technically-competent inspectors Use of professional procedures for targeting enterprises Inspections to be predictable, fair and equitable, with sufficiently deterrent sanctions Even the best of laws are only as good as their application. This presupposes a good labour inspection service capable of encouraging stakeholders to implement OSH measures. ILO’s work with the inspection services in SEE has led us to promote these principles in relation to modernising the services to be able to cope with the changing ecconomic conditions: Integration of responsibilities for employment relations and occupational safety and occupational health – one site, one inspector - leads to more, and more efficient, inspections. Prevention-oriented services: It is preferable to prevent non-compliance through targeted advice, information and education on OSH rather than have to deal with it after violations have occurred. Prevention approach does not do away with enforcement with sanctions, but these can be used to secure compliance on those who commit particularly serious violations or who are serial offenders. Training for technical competences is essential - many inspectors in the region rely only on on-the-job training, usually with the old-school style inspector. Use of professional procedures for targeting enterprises has been made easier with this operations manual detailing how to make priorities, cooperate with the social partners, and target the worst offenders. The manual is one of three modules in the ILO publication “A Tool Kit for Labour Inspectors”. It is available in English and Romanian (distributed in Romania and Moldova already). Versions are being done in Albanian, Bulgarian, Macedonian and Serbian (for use in several countries). And employers are more likely to comply with the law if they see their treatment as fair and equitable in relation to other employers. An enforcement policy which is transparent and predictable goes a long way towards this – again a model enforcement policy is in this manual. As is a model Code of Ethical Behaviour for inspectors.Even the best of laws are only as good as their application. This presupposes a good labour inspection service capable of encouraging stakeholders to implement OSH measures. ILO’s work with the inspection services in SEE has led us to promote these principles in relation to modernising the services to be able to cope with the changing ecconomic conditions: Integration of responsibilities for employment relations and occupational safety and occupational health – one site, one inspector - leads to more, and more efficient, inspections. Prevention-oriented services: It is preferable to prevent non-compliance through targeted advice, information and education on OSH rather than have to deal with it after violations have occurred. Prevention approach does not do away with enforcement with sanctions, but these can be used to secure compliance on those who commit particularly serious violations or who are serial offenders. Training for technical competences is essential - many inspectors in the region rely only on on-the-job training, usually with the old-school style inspector. Use of professional procedures for targeting enterprises has been made easier with this operations manual detailing how to make priorities, cooperate with the social partners, and target the worst offenders. The manual is one of three modules in the ILO publication “A Tool Kit for Labour Inspectors”. It is available in English and Romanian (distributed in Romania and Moldova already). Versions are being done in Albanian, Bulgarian, Macedonian and Serbian (for use in several countries). And employers are more likely to comply with the law if they see their treatment as fair and equitable in relation to other employers. An enforcement policy which is transparent and predictable goes a long way towards this – again a model enforcement policy is in this manual. As is a model Code of Ethical Behaviour for inspectors.

12. National preventive OSH culture: Increase general awareness, knowledge and understanding of hazards and risks Develop practices that contribute to prevention and reduction of risks Promote general safety consciousness through campaigns (ILO World Day, EU Week for Safety and Health at Work) Encourage strong leadership and commitment Building a national preventive OSH culture means increasing awareness and understanding of the concepts of hazard and risk, starting from the age of basic education and continuing throguhout working life. Such a culture means developing practices that contribute to prevention and risk reduction. It should include the promotion of safety consciousness in general through campaigns such as the Trade Union’s International Workers’ Memorial Day and the ILO’s World day for Safety and Health at Work, 28th April, and/or the EU Week for Safety and Health at Work, in October every year. A safety culture can be significantly enhanced by strong leadership and visible commitments to high standards of OSH, on the part of all relevant organisations, including at the highest levels of government and the social partners.Building a national preventive OSH culture means increasing awareness and understanding of the concepts of hazard and risk, starting from the age of basic education and continuing throguhout working life. Such a culture means developing practices that contribute to prevention and risk reduction. It should include the promotion of safety consciousness in general through campaigns such as the Trade Union’s International Workers’ Memorial Day and the ILO’s World day for Safety and Health at Work, 28th April, and/or the EU Week for Safety and Health at Work, in October every year. A safety culture can be significantly enhanced by strong leadership and visible commitments to high standards of OSH, on the part of all relevant organisations, including at the highest levels of government and the social partners.

13. ILO Guidelines on OSH Management Systems (ILO-OSH 2001) Systematic tool to help protect workers from hazards Reduces occupational accidents and work-related illnesses Five key steps: Policy Organising Planning and implementation Evaluation Action for improvement These ILO Guidelines provide employers with a systematic tool to help protect workers from hazards and eliminate or reduce work-related injuries and diseases. They reflect ILO values such as tripartism as they provide for worker participation and demand commitment from employers and managers. They include five key steps: Establishing a workplace policy on OSH Organsising for OSH – that is setting down responsibilities, communication channels, training and competencies etc. A third element is planning and implementation of the management system. It should include objectives, targets, indicators of performance… rather like a mini-national programme in fact. The system should also be evaluated and Actions taken for improvement These steps at enterprise level are repeated in a national framework also – the result if the promotional framework Convention were applied. That is: setting a national OSH policy, developing the national OSH system, implementing OSH programmes, reviewing them and taking action to improve them.These ILO Guidelines provide employers with a systematic tool to help protect workers from hazards and eliminate or reduce work-related injuries and diseases. They reflect ILO values such as tripartism as they provide for worker participation and demand commitment from employers and managers. They include five key steps: Establishing a workplace policy on OSH Organsising for OSH – that is setting down responsibilities, communication channels, training and competencies etc. A third element is planning and implementation of the management system. It should include objectives, targets, indicators of performance… rather like a mini-national programme in fact. The system should also be evaluated and Actions taken for improvement These steps at enterprise level are repeated in a national framework also – the result if the promotional framework Convention were applied. That is: setting a national OSH policy, developing the national OSH system, implementing OSH programmes, reviewing them and taking action to improve them.

14. Promoting the business case for OSH Safety pays! Benefits include: Reduced absenteeism Improved productivity Savings through better plant maintenance Corporate image improved Higher worker morale, motivation and concentration at work Improved worker retention Perhaps one of the biggest challenges will be changing attitudes - of those who reason that occupational accidents and diseases are part of the cost of transition, that improvements are costly and not affordable. But, as this slide shows, good health is good business for employers.Perhaps one of the biggest challenges will be changing attitudes - of those who reason that occupational accidents and diseases are part of the cost of transition, that improvements are costly and not affordable. But, as this slide shows, good health is good business for employers.

15. Social dialogue and effective management of OSH: Effective OSH improvements require the active, constructive and continued participation of employers and workers and their organisations Laws provide clear system of regulations, additional arrangements subject to agreement between the social partners: Tripartite social dialogue National (NCOSH, Funds), sectoral Collaboration within the enterprise Joint management/worker OSH committees At national level, attention has to be given to establishing tripartite or tripartite plus NCOSH or re-vitalising those which have become a bit lax in their meetings and activities. The Councils, as suggested earlier, provide a good forum on which all partners can get together to develop national policies and programmes, analyse the situation and review policy, as well as promote new regulations and ideas for research, etc. Some countries also have working conditions Funds to finance improvements, through education and training, for example. EU and ILO standards provide for participation and collaboration at the enterprise level to help reduce injuries and diseases. One of the most valuable mechanisms for effective collaboration is the joint management/worker OSH committee. In countries which have built up experience in the matter of safety representatives, evidence points to the fact that worker involvement is crucial for business and organisations in their management of OSH. Other studies have come up with concrete evidence of the particularly positive impact of trade union models of involvement – usually through the joint OSH committees. At national level, attention has to be given to establishing tripartite or tripartite plus NCOSH or re-vitalising those which have become a bit lax in their meetings and activities. The Councils, as suggested earlier, provide a good forum on which all partners can get together to develop national policies and programmes, analyse the situation and review policy, as well as promote new regulations and ideas for research, etc. Some countries also have working conditions Funds to finance improvements, through education and training, for example. EU and ILO standards provide for participation and collaboration at the enterprise level to help reduce injuries and diseases. One of the most valuable mechanisms for effective collaboration is the joint management/worker OSH committee. In countries which have built up experience in the matter of safety representatives, evidence points to the fact that worker involvement is crucial for business and organisations in their management of OSH. Other studies have come up with concrete evidence of the particularly positive impact of trade union models of involvement – usually through the joint OSH committees.

16. Conclusions – what can working together to improve safety and health mean? Workers remain employable Employers retain productivity and competitiveness Governments reduce costs of health care and employment injury benefits New role for labour inspectors Increased participation of OSH representatives Improved participation of OSH services To conclude, what does a systematic approach to OSH and integrated aaction by all mean for you? For workers, it means they have a better chance of remaining employable. Creating a safe and healthy working environment will help prevent occupational accidents and diseases, reduce disability, reduce exclusion, early retirement, even death. For employers, it means an edge on productivity and competitiveness. Government reduce the costs of health care and employment injury benefits. It provides for a new role for labour inspection services towards promoting a preventive system of effective OSH management at the workplace rather than the traditional punishment attitude which does little to get people committed to prevention. Workers and trade unions see an increased participation in developing and implementing OSH management systems at the workplace and on a sectoral and national level. And for OSH professionals, there is a new role in response to EU and ILO standards, especially in carrying out risk assessments and advising on risk management – moving away from keeping the worker employable to actually cleaning up the workplace.To conclude, what does a systematic approach to OSH and integrated aaction by all mean for you? For workers, it means they have a better chance of remaining employable. Creating a safe and healthy working environment will help prevent occupational accidents and diseases, reduce disability, reduce exclusion, early retirement, even death. For employers, it means an edge on productivity and competitiveness. Government reduce the costs of health care and employment injury benefits. It provides for a new role for labour inspection services towards promoting a preventive system of effective OSH management at the workplace rather than the traditional punishment attitude which does little to get people committed to prevention. Workers and trade unions see an increased participation in developing and implementing OSH management systems at the workplace and on a sectoral and national level. And for OSH professionals, there is a new role in response to EU and ILO standards, especially in carrying out risk assessments and advising on risk management – moving away from keeping the worker employable to actually cleaning up the workplace.

17. Thank you for your attention! See website for publications.See website for publications.