14.6.93 OfficialJournaloftheEuropeanCommunities NoC161/1
II
(PreparatoryActs)
ECONOMIC ANDSOCIALCOMMITTEE
OpinionontheproposalforaCouncilDirectiveconcerningtheminimumsafetyandhealth
requirementsfortransportactivitiesandworkplacesonmeansoftransport(!)
(93/C161/01)
On10December1992theCouncildecidedtoconsulttheEconomicandSocialCommittee ,
underArticle118AoftheTreatyestablishingtheEuropeanEconomicCommunity ,onthe
abovementioned proposal.
TheSectionforSocial,Family,EducationalandCulturalAffairs,whichwasresponsiblefor
preparingtheCommittee'sworkonthesubject,adopteditsOpinionon15April1993.The
RapporteurwasMrWhitworth .
Atits305thPlenarySession(meetingof28April1993),theEconomicandSocialCommittee
adoptedthefollowingOpinionunanimously .
2.2.Thefirstindentclearlycoversthecrewsofall
vehicleswhichcarrygoodsorpassengersbyland,sea,
inlandwaterwayorair.Thescopeofthesecondand
thirdindentsappeartobeself-explanatory .Thecate­
goryofpeoplecoveredbythefourthindentappears
equallytobecoveredbythefirstindentaspersons
engagedinthedeliveryandcollectionofgoodsare
essentiallyengagedintransportactivities.1.Introduction
1.1.ThisproposedDirectiveisoneofaseriesof
individualDirectivesforeshadowed inArticle16(1)of
the'Framework'DirectiveonSafetyandHealthat
Work(89/391/EEC).Itseekstolaydownminimum
safetyandhealthrequirementsrelatingtotransport
activitiesandworkplacesonmeansoftransport.Itis
notedthatthesewerespecificallyexcludedfromthe
firstindividualDirectivewithinthemeaningofArticle
16(1)ofthe'Framework'Directive(i.e.89/654/EEC).
3.Applicabilityofexistinginternationalprovisions
andnationallawsandregulations2.Scope
2.1.AccordingtoArticle2andAnnexIofthepro­
posedDirectiveitsprovisionswouldapplyto
—activitiesonboardandoutsideallmeansoftrans­
portbypeoplewhonormallyworkonboard;
—activitiesontheinfrastructure ofarailway;
—activitiesoutsideaircraftandintrafficareasof
airports;
—activitiesinvolvingdeliveryandcollectionworkby
road(involvingfrequentstops).3.1.AlthoughtheproposedDirectiveitselfissilent
onthematter,theCommission'sExplanatoryMemor­
andumrightlypointsoutthatcertaintransportmodes
(particularlymaritimetransportandaviation)aregov­
ernedbydetailedandstringentinternationalagree­
mentsconcerningthesafetyandhealthofthosewho
workonthem;suchagreementsarereflectedeitherin
nationallawsandregulationsorestablishedpractice.
Totheextentthattheyconcernaspectsalreadycovered
bysuchlaws,regulationsandpracticetheprovisions
oftheproposedDirectivemaybethoughttobe
superfluous . (i)OJNoC25,28.1.1993,p.17.

NoC161/2 OfficialJournaloftheEuropeanCommunities 14.6.93
ableorganizational measurestosafeguardsafetyand
health.Subjecttothespecificcommentswhichfollow,
theindividualmeasuresaregenerallyunexceptionable
inisolation,but,again,itisdifficulttovisualizehow
themajorityofthemeasuresinparagraph2couldbe
appliedtothegeneralityoftransportunits.3.2.InthiscontexttheCommitteebelievesittobe
ofparamountimportancethatallsuchinternational
instrumentsgoverningsafetyandhealthofthosework­
inginthetransportfieldshouldberatifiedbyall
MemberStatesandtheirprovisionsintegratedin
nationallawsandregulations .TheCommissionshould
takeallpossiblestepstoachievethisobjective.
4.7.Paragraph3ofAnnexIIIsuggestsanumber
ofrulesapplicabletowaterborne,air,railandroad
transportindividually .Thesearemeagreintheextreme
andfallfarshortofthecomprehensive regulationsand
codesofpracticewhichalreadygovernsuchoperations .
Thethreeprovisionsinparagraph3.2forexample
(concerningairtransport)addressonlyaminuscule
partofitssafetyandhealthrequirements .Indeedthere
couldbeadangerthatthemeasuresproposedmaybe
perceivedtobeallthatneedbetakentoensurethe
safetyandhealthoftheoperativesconcerned.
4.8.Theforegoingconsiderations leadtheCom­
mitteetotaketheviewthatAnnexesIIandIIIintheir
presentformwillnotserveanyreallyusefulpurpose
anddonotconstituteanadequatesetofprovisions
forminimumsafetyandhealthrequirements inthe
transportfield.
4.9.TheCommitteebelievesthatitwouldbemore
appropriatetoprepareaseparateAnnexforeachtrans­
portmode.Thatformaritimetransportshouldreflect
theprovisionsoftherelevantIMOandILOinstru­
ments,thatforaviationshouldadopttheJointAirwor­
thinessRequirementsagreedintergovernmentally while
thoseforroadandrailshouldembracethecurrentbest
practicesdeterminedbytherelevantauthoritiesinthe
variousMemberStates.4.Generalcomments
4.1.Notwithstanding theforegoing,thesubstantive
provisionsofthevariousArticles(asdistinctfromthe
detailedrequirementsoftheAnnexes)oftheproposed
Directiveappearforthemostpartunexceptionable and
couldbeapplicabletothemajorityofsituationsinall
transportmodes.Generallyspeakingtheyreflectthe
provisionsofthe'Framework'Directiveandplacethese
inatransportcontext.AccordinglytheDirectiveitself
shouldbewelcomedasfillingagapintheCommunity's
safetyandhealthlegislationwhichcurrentlyexists.
HowevertheCommitteeisunabletoaccordasimilar
endorsement totheAnnexes.
4.2.Ifthereaderattemptstovisualizethepractical
effectofeachofthenumerousprovisionsintheAnnexes
whenapplied,forexample,toasea-goingship,an
inlandwaterwayvessel,anaircraft,agoodsvehicleand
abusitbecomesimmediatelyapparentthatfewifany
oftheprovisionscouldbeapplicabletoeachofthese
transportunits.
4.3.IndeedsomeoftheprovisionsofAnnexII
(especiallythosegoverningemergencyandtrafficrout­
es,restrooms,sanitaryequipmentandlivingquarters)
couldonlyapplytotheminorityoftransportmodes
onwhichtheoperativesliveonboardorworkfor
extendedperiods.
4.4.Suchcharacteristicsarechieflyapplicabletosea­
goingshipsyetalltheaspectsspecifiedarealready
muchmoreextensivelycoveredbytheinternational
maritimeinstrumentsadoptedbytheInternational
MaritimeOrganization (IMO)andtheInternational
LabourOrganization (ILO)andreflectedinthedetailed
lawsandregulationsofMemberStates.Similarly,inso
farastheprovisionsofAnnexIIcanbeappliedto
aircraft,thetechnicalstandardsrequiredarelaiddown
inmuchgreaterdetailintheJointAirworthiness
Requirements (JAR)whichhavebeenpreparedbythe
JointAviationAuthoritiesrepresentingthenineteen
MemberandEuropeanFreeTradeAssociation (EFTA)
states.
4.5.Accordinglyfewoftheprovisionscontainedin
AnnexIIcouldbeappliedinpracticetoalltransport
modesandtherequirementsdonotconstituteacompre­
hensivesetofprovisionsforanyoneofthem.
4.6.AnnexIIIamplifiesthegeneralrequirementcon­
tainedinArticle6thattheemployershouldtakesuit­4.10.Notwithstanding thismoreradicalproposal,a
numberofspecificcommentsconcerningtheprovisions
oftheAnnexesascurrentlydraftedwillfollow.Some
ofthesewillexemplifytwofurthergeneralcomments
asfollows.
4.11.DespitetheclearstatementintheCom­
mission'sExplanatoryMemorandumthattheproposal
isnotconcernedwithgeneraltrafficregulationsanum­
beroftheprovisionsoftheAnnexesappearmore
directedtowardsthesafetyofthetransportenterprise
assuchand/oritspassengersandbystanders .Insofar
astheseaspectsmayneedtobefurthercoveredby
Communitylegislationtheyshouldbeaddressedby
DGVII(Transport)underArticles75or100Aofthe
TreatyandhavenoplaceinaDirectivedealingwith
thesafetyandhealthofworkersunderArticle118A.
4.12.Certainofthespecificprovisionsappearto
postulateastandardofabsolutesafety.Therecanbe
nosuchthinginanytransportenterprise.Allthatcan

14.6.93 OfficialJournaloftheEuropeanCommunities NoC161/3
bedoneistotakeallreasonableandpracticablesteps
toobviatelevelsofriskfollowingaproperassessment
oftheworkplace .shouldberequiredtomaintainsimilarlevelsofsafety
andhealthprotection .Distortionofcompetitionisalso
anissueinthisrespect.
5.Timetable6.4.Article1
6.4.1.ThisArticleshouldcontainafourthparagraph
regardinginternationalagreementsinthetransport
industrytoreflectthefirstindentofparagraph3ofthe
ExplanatoryMemorandum .5.1.TheproposedDirectivecontainsatimetablefor
compliance .Article13.1requiresMemberStatesto
bringthenecessarylawsandregulationsintoeffectby
31December1994.Articles3.2and4.3allowafurther
threeyearsforcompliancewiththeconstructional
requirementsofAnnexIIinrespectofmeansoftrans­
portalreadyinserviceatthatdate.
5.2.Thisappearsreasonableonthefaceofitbut
theproposalshouldbecarefullyexaminedtoensure
thatitwouldnotnecessitatetheprematurescrapping
ofavastlyexpensivepieceoftransportequipmentata
relativelyearlystageofitsnormallifebecauseitcould
notbephysicallymodifiedataneconomiclevelofcost.6.5.Article2
6.5.1.ThisArticleshouldcontainaspecific
exclusionforthosetransportmodeswhicharealready
adequatelycoveredbyotherDirectives—e.g.Under­
groundTransportSystemsinMineswhicharealready
coveredbytheDirectiveconcerningSafetyandHealth
inExtractiveIndustriesandFishingVesselsbythe
Directivesoentitled.
6.5.2.TheDirectiveissilentastoanimportant
aspectofthescopeofitsapplication .TheCommittee
believesthatitsprovisionsshouldbeequallyapplicable
totransportunitsfromoutsidetheCommunitywhen
operatingwithintheCommunity .6.Specificcomments
6.1.Title
6.1.1.Fortheavoidanceofdoubtandpursuantto
paragraph4.11ofthisOpinionthetitleoftheproposed
Directiveshouldbeamendedtoread'concerningthe
minimumsafetyandhealthrequirementsforworkers
engagedintransportactivitiesandworkplaceson
meansoftransport.'6.6.Article4
6.6.1.TheCommitteeobservesthatthepractical
implementation oftherequirementsofArticles4.1and
4.4willdependentirelyonthemeaningsimputedto
thewords'appropriate'and'sorequire'butnotesthe
Commission'sexplanationthattheprovisionisa'shin­
ingexampleofsubsidiarity'inthattheapplicationof
therequirementswillneedtobesortedoutinapractical
mannerattheleveloftheworkplaceinquestion.
6.2.Secondrecital
6.2.1.TherecitalreferstotheprovisionofArticle
118AoftheTreatythatDirectivesconcerningthe
safetyandhealthofworkersshouldavoidimposing
administrative ,financialandlegalconstraintsinaway
whichwouldholdbackthedevelopmentofsmalland
medium-sizedenterprises (SMEs).Therearenofurther
referencestoSMEsinthetextoftheDirectiveandno
derogationsforthem.TheCommissionshouldcarefully
examinetheprovisionstoensurethatthisprincipleis
compliedwith.6.7.Article7
6.7.1.Thereisanimportantdeparturefromthepar­
allelclauseinthe'Framework'Directiveconcerning
medicalsurveillance .Quiteproperlyitisproposedthat
suchsurveillancebemandatoryforworkersengagedin
transportactivities(reflectingexistingpracticesand
standardsinthemajorityoftransportmodes).However
theprovisionshouldreflectthoseofthe'Framework'
Directiveinotherrespects.Thusthethirdindentshould
read:'whenevercalledforbycircumstances atthe
workplaceorrequestedbytheworkersthemselvesin
suchcircumstances '.
6.3.Eighthrecital
6.3.1.Itisnotedthattheeighthrecitalstatesthat
theprovisionsofthisDirectivecannotbeappliedto
self-employedworkersandthattheirpositionshould
bedealtwithinaseparateDirective.TheCommittee
believesittobeimportantthatself-employedworkers6.8.Article8
6.8.1.Article8.2containsanimportantderogation
fromArticle8.4ofthe'Framework'Directiveinthat
thelicenceaffordedbytheformertoworkerstoleave

NoC161/4 OfficialJournaloftheEuropeanCommunities 14.6.93
appearstobeinconflictwith4.1.2whichstatesthat
emergencydoorsmustremainclosedand'ifnecessary
bolted'.Redraftingisneeded.theirworkingpostsintheeventofseriousdangeris
nottobeapplicableintransportactivitieswheresuch
actionwouldendangerothersonboard.TheCom­
mitteeendorsesthisprovisowhichitperceivestobein
theinterestofoverallsafetyalthoughthecircumstances
inwhichthederogationwouldbeapplicableshouldbe
clearlydefined.
6.9.Article106.12.5.Directive77/576/EECspecifiedinthefourth
paragraphsof4.1.1and4.2.1hasbeensupersededby
Directive92/58/EEC.Thelatterdoesnotapplytoroad,
rail,inlandwaterway,seaorairtransportandreference
toitwouldthereforebeinappropriate .Inanyevent
IMOhasdevelopedappropriatesymbolsforuseinter­
nationallytoindicatethelocationofemergencyequip­
mentandmusterandembarkationstationsonships
andtheseshouldbeadoptedinallshipsregisteredin
theEC.6.9.1.TheCommitteeattachesparticularimport­
ancetotheprovisionsregardingtheTrainingofWork­
ersasitbelievesthatthebestguaranteeofsafetyin
transportactivitiesisthepresenceonboardofqualified
andreliablepersonnel.Itisnotedthatformanytrans­
portpersonnelstringenttrainingrequirementsarelaid
downbystatuteinthevariousMemberStates.6.12.6.Paragraph4.1.2appearstobedraftedto
applytootherpersonsonboardaswellastocrew
members;theformerarenotwithinthescopeofthis
Directive.Theterms'maximumsafety'and'safely'are
unrealisticandunattainable inrelationtoevacuation .
Forexampletheevacuationofanaircraftbyemergency
chutesishazardousinitselfbutisabetteralternative
thanremainingonboardwhentheaircraftisonfire.6.10.Article11
6.10.1.ThisArticleshouldalsoprovideforappropri­
ateconsultationonsafetyandhealthissuesbetween
theCommissionandthesocialpartnersthroughthe
mediumofthevariousJointTransportCommittees .6.12.7.Similarconsiderations applytotheprovisions
regardingfire-fightingequipmentspecifiedinpara­
graph5.2tothoseoutlinedin6.12.5above.
6.11.Annex1
6.12.8.Paragraph8.3maybethoughttoobasicto
meritinclusioninaDirective.InmostifnotallMember
Statessuchdetailwillalreadybecoveredbythecon­
structionprovisionsprescribedfortherelevanttrans­
portmodes.6.11.1.Itshouldbemadeclearthat'trafficareasof
airports'referredtoinparagraph3coverthoseareas
whereaircraftarehandledorsubsidiaryoperationsare
carriedoutandnotthoseareasintheterminalaccessible
topassengers .
6.12.9.Itwouldbemorerealistictospecify'slip­
resistant'materialinparagraph9.1.6.12.Annex11A
6.12.10.Theterm'noriskofaccident'inparagraph
10.7isunrealisticandunattainable .
6.12.11.Inparagraph12.2itwouldbemorerealistic
tosubstitute'besafetouse'for'preventanyinadvertent
movementduringaccess'.6.12.1.'Stability'hasatechnicalmeaninginterms
ofshipdesignandconstructionwhichmakesitinappro­
priateforinclusionintheheadingtoparagraph2.
6.12.2.Thethirdsub-paragraph ofparagraph3is
notappropriatetoroadtransportasitimpliesthat
everyroadvehiclewillneedtoberedesignedtohavea
secondemergencyelectricalsystemtopowersignalling,
lightingandsafetyequipment .Howeverthereshould
benodilutionofanyexistingregulationsinthisarea.
6.12.3.Therecanbenoareaofabsolutesafetyon
anytransportvehicleassuggestedinthefirstparagraph
of4.1.1althoughsomeareaswillbesaferthanothers.
Theword'relatively'shouldthereforebeinserted.
6.12.4.Therequirementin4.1.1foremergencydoors
tobeopened'easilyandimmediatelybyanyperson'6.12.12.Inparagraph14themeaningofthewords
'raisedbyasafetyfactor'isunclear.Again,thisDirec­
tiveisconcernedonlywithcrewmembersandnotwith
'themaximumnumberofpersonslikelytobeonboard.'
6.12.13.Thewords'ifappropriate'shouldbesubsti­
tutedfor'ifnecessary'inparagraph15asinmost
transportmodestheemploymentofhandicappedwork­
ersisprecluded.

14.6.93 OfficialJournaloftheEuropeanCommunities NoC161/5
6.14.4.InconformitywiththeInternationalMari­
timeDangerousGoodsCodedrawnupbytheIMO,
paragraph3.1.2shouldprovidethatliquifiedgastanks
onboardthevesselshouldbesecuredagainstleakage
ratherthanlocked.
6.14.5.TheCommittee attachesconsiderable
importancetotheprovisionsofparagraph3.2.2inthe
lightoftheseriousaccidentswhichhaveoccurredin
thecourseofsuchoperations .Radiocommunication is
particularlydesirableinsuchcircumstances .6.13.Annex11B
6.13.1.Accountshouldbetakenofthefactthatthe
scopefortheprovisionofthefacilitiescalledforinthis
AnnexmayneedadaptinginthecaseofSMEs,but
withoutdetractingfromessentialsafetyrequirements .
6.13.2.Althoughtheprovisionofrestroomsandrest
areasadjacenttothetransportunitinparagraph2may
benecessary (e.g.intransportdepots)theirprovision
onboardthetransportvehicleitselfwillonlybepracti­
cableonboardseagoingandinlandwaterwayships
andeventherethesegregationofsmokersandnon­
smokersmaynotbephysicallypossible.
6.13.3.Certainoftheprovisionsconcerning,for
example,changingroomsandlockers(perparagraph
4)couldbeappropriatelydealtwithbetweenthesocial
partnersattheworkplaceassocialwelfareitems.
6.14.AnnexIII
6.14.1.Asdrafted,paragraph2.1ofAnnexIIIis
moreappropriatetotherequirementsofroadtransport
thantothoseofothertransportmodes.Inmaritime,
inlandwaterwaysandairtransporttherouteplanning
isfrequentlytheresponsibilityofthemasterorcaptain
andinanyeventnothingshouldinterferewiththeduty
ofthecaptainofashiporaircrafttoexercisehis
unfettereddiscretionastotherouteheshouldtake
intheinterestsofthesafetyofthevesselunderhis
command .
6.14.2.Thephrase'guaranteeanadequatelevelof
safety'(paragraph2.7)impliesavaluejudgementwhich
hasnoplaceinlegislation .Thesecondsentenceshould
beamendedtoread'Ifrecognizabledangerstosafety
aredetectedbythoseresponsible,thetransportactivity
mustbeadapted....'.Further,thisprovisionseemsto
addressthesafetyofthetransportactivityitselfrather
thanthatoftheoperativesconcerned.
6.14.3.Asindicatedinparagraph4.7ofthisOpinion
thedetailedprovisionsforthevarioustransportmodes
containedinparagraph3appeartohavebeenselected
entirelyatrandomandmakenoattempttobeinany
waycomprehensive .Therecouldbearealdangerif
thisledtoaperceptionthatitwasonlynecessaryto
observetheseprovisionstoensurethesafetyofthose
engagedintherespectivetransportactivities.7.Conclusion
7.1.TheCommitteerecognizesthenecessityforan
effectiveDirectiveconcerningminimumsafetyand
healthrequirementsforworkersengagedintransport
activities .
7.2.Thisshouldapplythemainprovisionsofthe
FrameworkDirectivetotheparticularcircumstancesof
transportandshouldcontaininitsAnnexesspecific
safetyandhealthstandardsforeachofthetransport
modes.
7.3.Thelattershouldreflecttherelevantprovisions
ofinternational instrumentswheresuchexistandthe
Directiveitselfshouldurgetheirratificationand
implementation byallMemberStates.
7.4.Fortransportmodeswherenosuchinter­
nationalinstrumentsobtain,theAnnexesshouldreflect
thecurrentbestpracticesdeterminedbytherelevant
authoritiesinthevariousMemberStatesforadoption
byallMemberStatesinaccordancewiththeprinciple
ofsubsidiarity .
7.5.TheCommitteeregretsthattheAnnexestothe
proposedDirectivefailtomeettheabovecriteria.They
arebothinaccurateasregardstheirapplicationtothe
varioustransportmodesandinadequateasacompre­
hensivecorpusofgoodsafetyandhealthpractice.
7.6.AccordinglytheCommitteebelievesthatthe
proposedDirectiveshouldbemodifiedbytheCom­
missionthroughthepreparationofnewAnnexesto
meettheabovecriteria.TherespectiveJointTransport
Committeesshouldbeconsultedaspartofthisprocess.
DoneatBrussels,28April1993.
TheChairman
oftheEconomicandSocialCommittee
SusanneTIEMANN