COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 12.07.1995 
COM(95) 282 final 
95/0155 (CNS) 
COMMUNICATION FROM THE COMMISSION 
on a Community programme concerning safety, hygiene and health at work 
(1996-2000) ; 
Proposal for 
COUNCIL DECISION 
adopting a programme of non-legislative measures to improve 
health and safety at work 
(presented by the Commission) 

COMMUNICATION FROM THE COMMISSION 
on a Community programme concerning safety, hygiene and health at work 
(1996-2000) 
TABLE OF CONTENTS 
I OVERVIEW 4 
IL THE CURRENT SITUATION 7 
A. Historical perspective 
The earlier programmes 
Improving the availability of information 
B. The situation in the European Union 
ffl. THE PROGRAMME 9 
Legal basis 
Structure and contents 
Part I. Non legislative measures to improve 
safety and health at work 10 
A. Action 1: Guidance notes and core information 
material on legislation 
Action 2: Information, education and training 
on non-legislative matters 
Action 3: The emergence of new health and safety risks 
B. Action 4: The SAFE programme (Safety Actions for Europe) 
Part n. Existing and new legislative measures 14 
Action 5: Correct implementation by Member States of the 
Community legislation already adopted 
Action 6 
Action 7 
Action 8 Progress the Commission proposals already made 
Review of Community legislation 
New proposals for high risk activities, or for 
certain categories of workers 
Part in. Safety and health in other policies 
Action 9: Improved coherence among Commission 
activities 
Action 10: Links with those third countries which 
have Association Agreements with the 
European Community 
Action 11: Improved system of cooperation inside the 
European Union and internationally 
IV. CONSULTATIONS 20 
V. EVALUATION AND REPORTS 21 
ANNEX - Indicative list of activities in the course of 1996-1997 22 
I. OVERVIEW 
New circumstances call for an innovative approach to health and safety 
The European Union is undergoing a period of profound change. The forthcoming period to 
the year 2000 will be characterised by rapid and far-reaching changes in technology and 
skills. The EU economy is becoming increasingly knowledge-based. Manufacturing activities 
are being contracted out and more high added value goods are being produced. Services are 
accounting for an ever greater share of total output. The revolution in information technology 
is leading to the prospect of a new "information society" where the possession and 
transmission of information is assuming ever greater importance. 
This means in practice that the European Union muft also adapt its programme of action on 
health and safety to these changed circumstances. A rapidly changing world means that the 
Union must be ready to try new means of developing its policy in this area. Therefore, this 
programme aims to be both innovative and forward looking. The challenge is to ensure that 
this new approach can be realised while remaining faithful to the need to ensure that the 
safety and health at work of the citizens of the Union is protected. 
Work accidents continue to account for huge human and economic losses 
The objective of the Commission's policy in the field of safety and health at work over the 
past thirty years has been to reduce to a minimum both work accidents and occupational 
diseases. However, despite the considerable progress made, both the number of work 
accidents and the incidence of occupational diseases are too high. About eight thousand 
workers die each year in the Union as a result of work accidents. A further 10 million 
workers are the victims of work accidents or occupational diseases. This entails a huge cost 
in terms of human suffering. However, it also represents a huge cost in economic terms. The 
direct costs alone are estimated by the Commission at ECU 27 billion in 1992. This acts as 
an impediment to increased growth in output and employment. 
Health and safety has been driven by legislation in the past 
In the past the main focus of EU action on health and safety at work has been legislative. 
This was particularly the case under the third action programme, initiated in 1988, which 
coincided with the introduction of the Single European Act. It gave the Commission a new 
competence under Article 118a of the Treaty to promote improved health and safety. In 
particular it was considered essential to provide a set of minimum standards in health and 
safety to facilitate the completion of the internal market and the freedom of movement of 
workers. This was also necessary to assure workers that increased European integration would 
have a social as well as an economic dimension. 
A new focus on information is proposed for the future 
The focus of the new programme will be broadened to provide a much greater emphasis on 
information. This is necessary to ensure that the substantial body of EU health and safety 
legislation in place is correctly and effectively communicated. It is also required to ensure that 
the particular needs of small and medium sized enterprises are accommodated. In this respect 
a new initiative will be launched aimed specifically at SMEs. This programme (SAFE, Safety 
Actions for Europe) will use best practices as a standard for the development of a work 
environment that is safe, productive and competitive. 
SAFE will support the development of reference workplaces which have developed practical 
solutions to workplace risks and which can serve as models for others. Industry and workers 
will learn from the best practices of their peers rather than from the EU or national 
authorities. SAFE will also promote innovative approaches to emerging areas of risk or to 
high risk activities. The aim of the programme is also to demonstrate that improved health 
and safety in the workplace can strengthen companies competitiveness rather than be a 
burden. 
Better health and safety standards will strengthen competitiveness 
The over-riding priority of the actions that the Union will unde; take on health and safety will 
remain the protection of workers. This is not incompatible with the need to support the 
competitivity of enterprises, in particular SMEs. The Commission considers that measures 
aimed at reducing the costs (to employers, workers and Member States) of ill-health and 
accidents can all play their part in the development of an efficient, competitive, quality-based 
economy. The Commission will encourage the integration of efficient health and safety 
practices in best management practices under this programme. In addition tb reducing costs, 
this can improve competitiveness as a workforce convinced that serious efforts have been 
made to protect its safety will respond with improved productivity. This in turn will contribute 
towards a better employment performance and a reduction in the EU's current unacceptable 
jobless level. 
Existing legislation on health and safety will be better enforced 
Legislation will also remain a focus of EU activity. EU legislation on health and safety must 
be transposed accurately and on time into national legislation. It must also be enforced 
effectively and impartially in all Member States. Otherwise the effectiveness of this legislation 
will be impaired and sa/ety standards will be damaged. The Commission aims to ensure that 
the Member States fulfil their obligations and transpose accurately and on time the 
Community health and safety directives. It is proposed, therefore, under this programme to 
initiate infringement proceedings in those cases where Member States fail to do so. 
To facilitate the improved enforcement of EU legislation, the Commission proposes that the 
"Group of Senior Labour Inspectors" be placed on a formal footing. This will assist, on the 
basis of close cooperation between its members and the Commission, the effective and 
equivalent enforcement of Community health and safety legislation. Similarly, the 
Commission proposes to formally establish a scientific committee to provide it with expert 
scientific advice, where legislation require it. 
The programme, therefore, includes draft Commission decisions to establish both of these 
committees. 
Finally, the Commission will also press for the adoption by Council of the draft directives 
presented to it on "physical agents", "chemical agents", "transport" and "work equipment". 
The enactment of these directives would serve to consolidate and rationalise the Union's 
overall approach to health and safety. 
New risks and hazards may require new legislation 
New legislation will be considered where appropriate. The rapid pace of technological change 
can result in the resurgence of occupational diseases which had been mastered previously or 
the appearance of new risks. Additional measures, including new legislation, may be 
necessary to deal with such developments. The Commission will be undertaking investigations 
to evaluate the health and safety implications of such developments and the appropriate 
response. The Commission will also use all the legal powers at its disposal to combat 
accidents and occupational diseases arising from the worst cases of risks and hazards. Finally, 
new legislation may also be necessary to review and update existing legislation in line with 
changed circumstances and technical developments. 
The social dialogue will remain central to the development of policy 
The success of the Commission's actions in safety and health at work has been largely due 
to the involvement of the social partners. It is evident that the development of future 
EU action in this area will require close collaboration between the social partners in the 
preparation of Commission decisions. Successful action on health and safety can only be 
achieved with their joint support. In its previous three programmes the Commission has 
ensured that the social partners have been consulted by means of the two advisory committees 
set up for this purpose. This policy will continue under the new programme which has already 
benefited from their close collaboration with the Commission services. 
II. THE CURRENT SITUATION 
A. Historical perspective 
The earlier programmes 
The Commission has implemented three action programmes on safety and health at work 
since 1978, which were all the subject of Council resolutions. The third action programme 
was an essential complement to the social aspects of the development of the internal market. 
The principles used in that programme are still valid today, and form an essential base for the 
further actions now being developed. 
It was based on three fundamental concepts: the need to push on with improving the safety 
and health protection of workers on a broad front; the obligation to ensure that workers have 
adequate protection from the risks of work accidents and occupational diseases; and, finally, 
the need to ensure that the competitive pressures of the Single Market did not jeopardise the 
safety and health protection of workers. With these three objectives in mind, the programme 
was strongly focused on legislation. In this context the objectives of the legislative programme 
were to: 
cover a maximum number of risks with a minimum number of directives; 
cover the specific requirements of certain high-risk activities or sectors and of certain 
categories of workers who are particularly vulnerable; 
ensure consistency between Community provisions adopted as part of the completion 
of the internal market (Article 100a), which lay down the main safety and health 
requirements to be met during the design, manufacture and marketing of products, and 
directives adopted on the basis of Article 118a, which relate to their use at the 
workplace. 
The Commission's first step was to define the essential principles underlying the main aspects 
of safety and health at the workplace. The framework Directive was adopted by the Council 
in 1989 and outlines general principles for the prevention of occupational risks and the 
protection of safety and health It also defines the respective roles and obligations of 
employers and workers in order to achieve these objectives and provides for the establishment 
of prevention, protection and emergency services at the workplace. To date 12 individual 
directives have been adopted by the Council under the framework directive. 
Improving the availability of information 
The provision of information also remained a priority. The most significant and successful 
information initiative was the 1992 European Year of Safety, Hygiene and Health Protection 
at Work. The campaign was based on the one hand on Community directives drawn up under 
the Commission's third action programme and on the other hand on the promotion of projects 
throughout the Member States to improve safety and health at work. A clear lesson from the 
exercise was the importance attached by workers to the need to improve health and safety at 
work. The creation of a system of mutual information by means of "JANUS" (a publication 
which has a circulation of over 15000 copies) has also contributed significantly to the flow 
of information between Member States. 
B. The situation in the European Union 
More than 8 000 European workers lose their lives each year as a result of industrial 
accidents. The sector of activity most affected is agriculture, where the rate of mortality per 
100 000 people employed is approximately 13, contrasted with approximately 8 in industry 
and 3 in the services sector. 
The annual number of industrial accidents and occupational diseases is estimated at about 
10 million. Survey evidence clearly highlights that workers continue to have serious concerns 
regarding their safety at work. All in all, one worker in seven claims to have had a recognised 
industrial accident or occupational disease. Quite apart from the unacceptable human and 
social costs, there is a resulting huge burden on the economy. In 1992 the direct costs paid 
out in compensation for industrial accidents and occupational diseases were nearly 
ECU 27 000 million, representing approximately 4.6% of employer social security 
contributions. This figure would be much higher if indirect costs such as production losses 
and staff replacement costs were taken into account. 
m. THE PROGRAMME 
Legal basis 
A substantial proportion of work will be either non-legislative or will involve the control of 
the implementation of the Directives which already exist, for which the basis for action is 
provided by Article 155 of the Treaty and by Article 235 where a Council Decision is 
requested. 
As far as new legislation is concerned, the main basis for action will continue to be 
Article 118a of the Treaty which states that: 
"Member States shall pay particular attention to encouraging improvements, especially 
in the working environment, as regards the health and safety of workers, and shall set 
as their objective the harmonisation of conditions in this area while maintaining the 
improvements made." 
"The Council ... shall adopt, by means of directives, minimum requirements for gradual 
implementation, having regard to the conditions and technical rules obtaining in each 
of the Member States." 
In addition the Commission will continue to use other provisions in the Treaty and in 
particular Articles 118 and 118b, when required. 
Structure and contents 
This programme has been devised in three parts covering a series of actions setting out the 
basis for current and future work between January 1996 and December 2000. 
Part I. Non legislative measures to improve safety and health at work 
Part II. Existing and new legislative issues 
Part III. Safety and health at work in other policies 
It also takes account of the rapid pace of change currently underway in technology, 
communications and work organization. These changes call for a continual surveillance of 
their effects on safety and health at work. As a consequence this programme must retain the 
flexibility to adapt to changing circumstances. The programme also draws on the result of the 
considerable number of comments made on the consultative document, the 
"General Framework for Action by the Commission of the European Communities in the field 
of safety, hygiene and health protection at work (1994-2000)" (COM(93) 560 final). Hence, 
the views of the other EU institutions (Parliament, Economic and Social Committee), of 
official bodies such as the Advisory Committee and other interested bodies have all been 
taken into account and are reflected in the contents of the programme. 
In terms of implementation the programme will focus on 11 specific actions which are 
outlined below. Their successful implementation will require a number of accommodating 
measures. Firstly, a Council decision will be necessary to approve the non-legislative 
measures (actions 1 to 4) to improve safety and health at work and especially to provide for 
the establishment of the SAFE programme. Secondly, a Commission decision is necessary to 
set up the Committee of Senior Labour Inspectors on a formal basis. Finally, a Commission 
decision is also necessary to set up the Scientific Committee for Occupational Exposure 
Limits (OELs) for Chemical Agents. Otherwise, the programme will be implemented through 
existing powers and resources. 
PART I: Non legislative measures to improve safety and health at work 
A. Action 1: Guidance notes and core information material on legislation 
Non binding guides to legislation 
During the European Year on Safety and Health at Work, a considerable number of 
explanatory documents (papers, booklets, etc.) relating to Community Directives were 
published with the Commission's support. These texts, while not legally binding, do 
provide a lot of useful assistance to those who need simple explanations of their 
obligations under the legislation, and are a source of considerable technical support and 
background. There has been a heavy demand, both in the EU and in third countries, for 
these documents, proving that there is a real need for such information. 
The Commission intends to pursue such initiatives, updating existing publications and 
developing new non-binding guides. In order to make sure that such guides and similar 
documents are sufficiently practical and to the point, competent bodies, organizations 
or experts, will continue to be involved in their preparation. To begin with the 
Commission will release non-binding guidance documents regarding risk assessment and 
a model safety and health plan and file for construction sites. 
The needs of small and medium sized enterprises 
The Commission is conscious of the need to ensure that health and safety legislation 
does not hold back the creation and development of SMEs. It is important to ensure, 
therefore, that information on EU health and safety legislation takes account of their 
particular needs and allows them to meet their obligations effectively. This in turn can 
aid their competitiveness and contribute to higher safety standards in SMEs. The 
Commission aims to assist this process through more user-friendly guides to the 
legislation concerned. 
Action 2: Information, education and training on non-legislative matters 
(i) Development of health and safety awareness 
The Commission will assist Member States to encourage a greater awareness of 
health and safety, especially in relation to improved risk assessment in the 
workplace. This awareness is clearly dependant on its early development at the 
school level, where lessons from home and leisure accidents have to be learned. 
The Commission will take initiatives to assist Member States in applying these 
principles at national level. These initiatives will include training and guidance 
documents for people involved in health and safety, the development of a network 
of training centres with and a review of first-aid provisions. This process will be 
assisted by the European Agency for Safety and Health at Work. 
(ii) Information on Commission policies 
The Commission will seek ways to improve the gathering and dissemination of 
reliable, authoritative and comparable data relevant to the effectiveness of 
Community action in the field of health and safety. Potential information sources 
include, for example, available statistics, studies on working conditions in Europe, 
surveys based on epidemiological monitoring in various activity sectors, research 
on products to replace carcinogenic and other high-risk substances, the toxicity of 
new products, limit values for health, etc. To this end the Commission will 
10 
examine how best to encourage cooperation between Member States and the social 
partners. 
In particular, the Commission will facilitate the publication of data on risks and 
precautions to be taken connected with physical, biological and chemical agents. 
It will also encourage the harmonisation of statistics on accidents and diseases in 
the workplace. Finally, the effectiveness of information required under the 
Framework Directive and its subordinate texts will be examined. 
In order to improve the information environment in the field of health and safety 
at work and to avoid duplication of effort, the Commission will encourage 
improvements in exchanges of information between Member States on national 
and Community initiatives. This can be achieved through improved use of 
JANUS, the Commission publication on health and safety, the increased use of 
audio-visual products and better information on best practices in the Member 
States on health and safety., 
(iii) Awareness and events 
In keeping with the Commission's information policy relating to Community 
activity and the raising of awareness, particularly amongst the general public, the 
Commission will, in consultation with the Member States, propose that a European 
week of safety and health at work be organized. The Commission will also 
evaluate what is happening in Member States as concerns the concept of 
developing, generalizing and systematizing lifelong learning and continuous 
training on health and safety. Likewise, the Commission will promote the 
development of information products by organizing on a regular basis a festival 
of audio-visual products on safety, hygiene and health at work. 
Action 3: The emergence of new health and safety risks 
Occupational health and safety investigations on the development of the working 
environment and the effects of the health and safety efforts in relation to the prevention 
objectives are an essential part of this Programme. 
The Information Society and Health and Safety at Work 
It is crucial that important questions regarding the impact of the Information Society on 
working and living conditions are actively addressed, in order to minimize the 
potentially negative effects. For teleworkers indeed the new forms of work organization, 
in particular the flexible organizational structures of enterprises, pose questions not only 
of social protection but as well of health and safety at work. 
The Commission has established a Group of Experts on the Social and Societal Aspects 
of the Information Society. It has been asked, inter alia, to investigate the health and 
safety implications of the information society and careful note will be taken of its 
findings and the possible need for follow-up action. The European Foundation for the 
Improvement of Living and Working Conditions will also undertake a wide debate to 
assess the current situation in Member States and evaluate possible legal provisions 
aimed at preventing risk occurrence. 
11 
Investigations on important problems 
It is intended to intensify or initiate investigations in particular in the following matters: 
on the incidence and control of violence in the workplace where workers, 
especially in the security business and in sales outlets, are increasingly subject to 
violent attacks; 
the influence of excessive stress and personal behaviour on the incidence of work 
accidents, occupational diseases and work-related diseases; 
advantages or disadvantages from the use of particular techniques for the 
monitoring of the state of health of the workforce (including genetic screening and 
monitoring) in respect of the ethical, social, psychological and legal consequences 
concerned; 
the implications for health and safety of new technologies, production techniques, 
the introduction of modem telecommunications and the resulting increase in home-
working; 
the potential exposure of workers, especially in health care premises, to potential 
health and safety hazards, such as certain infectious microorganisms, chemical 
agents and dusts, physical agents, mutagenic and teratogenic agents, skin irritants 
etc; 
the need for specific measures for women or young persons; 
incentive systems favouring prevention activities as regards their efficiency and 
their suitability for general application. 
B. Action 4: The SAFE programme (Safety Actions for Europe) 
Small and medium-sized enterprises have particular needs in relation to health and 
safety. This part of the Programme will support projects of a practical nature intended 
to address these needs in a constructive and efficient manner. In particular it will aim 
to demonstrate that good safety practices and efficient management are intrinsically 
linked. Good management is essential to business survival, especially in today's 
competitive market place. It is a key element which plays a large role in determining 
the fate of enterprises, large or small. In this context safety and health measures must 
become an integral part of best business practice. 
The approach used by enterprises to manage their workforce not only affects 
productivity but also helps to reduce the number of work accidents and the level of 
absenteeism. Successful projects designed to improve the work situation, work 
organization and working practices have been carried out at many workplaces. One 
result has often been a distinct reduction in absenteeism. One of the objectives of the 
SAFE programme is therefore to support this type of project. It may be directed towards 
a specific problem impacting on safety and health at the workplace or at demonstrating 
best practices to combat work accidents and/or occupational diseases or at the ways and 
means of effectively complying with Community legislation. 
At many workplaces it is quite clear that the work environment needs to be improved. 
However it is not always quite so obvious how this is to be done. This is why the 
SAFE programme will also support the development of reference workplaces, which 
have developed practical solutions to workplace risks and which will serve as models 
for others who would like to change existing workplaces or design new ones. It will also 
promote innovative approaches to emerging areas of risk or to high risk activities, 
12 
whether this is by promoting the use of safe and/or clean technologies, or by other 
innovative measures. 
The role of the SAFE programme is to provide the conditions needed to carry out 
measures which will stimulate enterprises to improve safety, hygiene and health at work, 
as well as environmental risks and demonstrate that it can provide support to them 
rather than being a burden. In this respect it will be important to develop systems to 
enable a continuous flow of information from employers as to their information needs 
in the implementation of a high level of health and safety at work. It is important to 
stress that the projects supported by the SAFE programme will not replace the dedicated 
work which is already being carried out. Nor will it take over the responsibility which 
Member States social partners and official organizations already have. 
The SAFE programme will also consider projects prepared by European organizations. 
Such projects should provide guidance for decisions concerning measures to be put into 
practice throughout entire sectors of activity especially in more than one Member State. 
In summary the SAFE programme will be used to support measures to ensure proper 
implementation of Community directives on health and safety at work, to continue to 
promote high standards in health and safety at work in the Community and to ensure 
effective involvement of the two sides of industry in developing, formulating and 
implementing Community policy initiated by the Commission on protection of the health 
and safety of employees 
PART II: Existing and new legislative measures 
Action 5: Correct implementation by Member States of the Community legislation 
already adopted 
The Commission under Article 155 of the Treaty is required to ensure that the 
provisions of the Treaty and the measures taken by the institutions pursuant thereto are 
applied. In addition, in order to turn Community legislation into reality for individual 
citizens it is not only essential that it is transposed accurately and on time into national 
legislation but also it must be enforced effectively and impartially in all Member States. 
Therefore, the Commission has to ensure that the Member States transpose accurately 
and on time the Community health and safety directives. 
In so doing the Commission will pursue its control of the communication and 
conformity of the national measures transposing the health and safety Directives. The 
Commission will continue its dialogue with the national authorities to evaluate the 
potential non-conformities detected. The Commission when necessary will initiate 
infringement proceedings in those cases where Member States have failed to 
communicate the relevant national law or when that law does not conform with 
Community provisions. At periodic intervals, the Commission will report on the status 
of implementation of the health and safety Directives. 
The enforcement of Community legislation on health and safety falls mainly within the 
competence of Member States. While clearly respecting the principle of subsidiarity, the 
Commission intends to take measures to ensure the correct and effective application of 
Community directives. It proposes that the "Group of Senior Labour Inspectors" be 
placed on a formal footing in order to encourage, on the basis of close cooperation 
between its members and the Commission, the effective and equivalent enforcement of 
Community health and safety legislation and the rigorous analysis of the practical 
questions of enforcement of legislation in this field. 
The Commission, in accordance with the conclusions of the Council of 21 December 
1992 (on the effective implementation and enforcement of Community legislation in the 
area of social affairs) and the Council Resolution of 16 June 1994 (on the development 
of administrative cooperation on the implementation and enforcement of Community 
legislation in the internal market) will also continue to promote the improvement of 
knowledge and mutual understanding of the different national systems and practices, the 
exchanges of information and enforcement experiences and the development of training 
modules for inspectors. The Commission will stimulate the definition of common 
principles of labour inspection in the field of health and safety at work and will foster 
the development of methods of assessing the national systems of inspection in relation 
to these principles. 
Commission Decision 88/383/EEC 
This decision provides for the exchange of information between the Commission and 
Member States on proposed national legislation on safety, hygiene and health at work. 
Clearly it would be counter productive if Member States were, through lack of 
coordination at Community level, introducing the very distortions to worker protection 
that Article 118a seeks to avoid through its provisions for minimum standards. This does 
not suggest that Member States are not free to introduce more stringent measures for 
the protection of working conditions than required by the Treaty. 
The Commission considers that the criteria applicable at Community level should apply 
equally to the Member States before they decide to legislate individually on health and 
safety matters. The Group of Experts referred to in Commission Decision 88/383/EEC 
and charged with the task of helping the Commission to examine draft national laws and 
14 
regulations, will be invaluable in assisting the Commission to ensure that an in depth 
analysis of national rules can be undertaken before their adoption by Member States so 
that current issues are fully examined and if necessary measures can be taken to ensure 
a level playing field across the Community. The Group of Experts can also contribute 
usefully towards a comparable analysis of Community legislation. 
Action 6: Progress the Commission proposals already made. 
The Commission will continue to press for adoption by Council of the legislative work 
in progress (namely the Directives on "physical agents", "chemical agents", "transport" 
and "work equipment"), in order to consolidate some existing Directives and rationalize 
the overall approach to the safety and health of workers in these fields. The proposal 
on chemical agents was prepared in order to consolidate and rationalise previous 
legislation on chemicals and update existing measures. One of its objectives is to ensure 
that all precautionary measures at work are based on a proper assessment of the risks 
arising from the way workers are exposed to chemical agents. The prohibitions and 
restrictions contained in Directive 88/364/EEC in relation to certain specific agents and 
activities are included in the proposal, which also provides a clear Community 
framework for the establishment in the future of occupational exposure limits. 
The proposal on physical agents introduces measures to protect against the risks 
resulting from three further physical agents (mechanical vibration, optical radiation, 
electric and magnetic fields and waves) and amends certain provisions on noise 
(Directive 86/188/EEC). It covers the complete range of activities which may involve 
exposure of workers to risks. For each category of physical agent the annexes specify 
the nature of the risk, exposure limit values and threshold values, the nature of 
hazardous activities, provisions for measuring and evaluation, ways of reducing the level 
of risk, etc. 
The proposal on transport activities aims at improving the health and safety of workers 
on board of transport means by laying down minimum requirements applicable to their 
workplaces. It applies to workers in the fields of road, rail, air, sea and waterway 
transport. Any matters concerning traffic regulations, however, are outside the scope of 
the Directive. Finally, the aim of the proposal on work equipment is to complement 
Directive 89/655/EEC with additional minimum requirements relating to specific work 
equipment such as mobile and lifting equipment. 
Action 7: Review of Community legislation 
The Commission in implementing its third action programme on safety and health at 
work (OJ No C 28, 3.2.1988) undertook a major review of the legislation adopted prior 
to the Single Act and based on Article 100 of the Treaty. This review resulted in a 
simplification, consolidation and integration of the provisions of those texts into the 
more rational structure and general prevention philosophy of the newly adopted 
legislation based on Article 118a of the Treaty. As most of the post-1989 health and 
safety directives are too recent and not yet fully applied throughout the Community, it 
is premature to envisage any major amendments on a systematic basis for the time 
being. 
However, the Commission intends to evaluate, in cooperation with the Member States 
and social partners: 
the potential implementation difficulties for firms, employers and workers of the 
provisions of the health and safety directives, 
15 
the enforcement problems and the impact of the directives on the organization and 
working methodologies of the national labour inspectorates, 
the socio-economic impact of the health and safety legislation on the different 
Member States, 
the effectiveness of the Community's health and safety policy. 
As a result of this evaluation the Commission will propose adjustments to the current 
legislation as are deemed appropriate. Similarly the Commission will also examine the 
health and safety directives in the light of recent advances in scientific knowledge, 
technological developments, work organization changes, evolution of working processes 
and other relevant factors. This is with a view to ensuring that the legislation is up-to-
date and that the objectives of the original texts continue to be fulfilled. One of the 
main actions will be represented by the on-going activity on the establishment of limit 
values for occupational exposure with the support of the proposed Scientific Committee. 
The recent enlargement of the European Community has significantly increased the 
membership of the Committees. For example, both the Advisory Committee for Safety, 
Hygiene and Health Protection at Work and its mining counterpart will now comprise 
90 members making them among the largest of the Commission's advisory committees. 
As the current situation stands, any additional Member States will automatically have 
the right to six seats in the committees. The Commission considers that the very size 
of the structure and its mode of operation could be reviewed with a view to providing 
a more efficient input into EU health and safety policy. 
The Commission considers that it is now time to review this situation in order to make 
maximum use of the resources available and to prepare the ground for possible new 
Member States in the future. Both committees are based on Council legal instruments. 
The Commission will propose that these should be amended to amalgamate the 
committees, to reduce their membership, and to provide them with a single secretariat. 
This would allow the Committee's budgetary resources to be more effectively utilised. 
Much of the essential work of the committees is carried out in small ad hoc working 
groups. These groups could be profitably expanded and given a more permanent 
structure to ensure that the formal adoption in the plenary is as rapid as possible. 
Action 8: New proposals for high risk activities, or for certain categories of workers 
Risk assessment and limitation of risk 
The assessment and limitation of risk is a vital element in maintaining or improving the 
minimum standards of protection which form the basis of a dynamic and efficient 
economy. If performed inadequately it can become a major cost both to employers as 
well as in financial and human social terms, to workers and their families. 
Thus the reduction of risk must continue to be at the forefront of actions to improve the 
working situation. 
As described elsewhere in the programme the Commission pursues an investigative 
approach. It works closely with the European Foundation for the improvement of Living 
and Working Conditions and intends to work similarly with the European Agency for 
Safety and Health at work. It continuously engages in dialogue with Member States, the 
Social Partners and the scientific communities. Through these sources the Commission 
will be able to identify areas where workers are not adequately protected by the existing 
legislative framework. These may include new high risk activities, specific sectors of 
industry with unique problems or exceptional risks, categories of workers excluded from 
the present legislation. 
16 
The legislative approach 
Once high-risk activities have been identified the Commission must then consider the 
most appropriate ways and means of combatting them. In so doing the Commission will 
rely on a non-legislative alternative to provide an effective solution. However, if the 
legislative solution is deemed the most appropriate in the interests of health and safety 
of the workers concerned, the Commission will act accordingly. When making this 
assessment, the Commission will also: 
be guided by the concepts developed under the 3rd Action programme; 
apply the principles of subsidiarity; 
engage in consultation with Member States and their Social Partners; 
ensure a solid scientific basis to their considerations; 
continue to evaluate the costs and benefits of any proposals. 
17 
PART III: Safety and health in other policies 
Action 9: Improved coherence among Commission activities 
Health and safety requirements are now a constituent part of many of the Community's 
other policies such as environment, research, industrial affairs, agriculture, transport, 
consumer protection and external relations. It its not always easy to reconcile the 
different policy options and therefore there exists a possibility that these policies could 
in some cases produce conflicting obligations. In particular, it should be ensured that 
the implementation of specific legislative instruments does not prejudice the 
implementation of the horizontal Community measures regarding worker protection. 
An example concerns the so-called "SEVESO" Directive on the control of major-
accident hazards involving dangerous substances (82/501/EEC). The loss of control of 
chemical processes or containment of dangerous substances can have a range of adverse 
consequences for employees, members of the public or the environment at large. The 
extent of the damage will depend on a wide range of factors including the inventory of 
substances involved and their properties. In developing policies to address such hazards 
the Commission has to ensure that the relevant Community legislation is complementary 
and does not result in unnecessary duplication. 
A further example is Directive 91/414/EEC concerning the placing of plant protection 
products on the market. It provides for a procedure for inclusion of pesticide active 
substances in a positive list and for an authorization procedure for plant protection 
products containing such active substances. Both these procedures provide for an 
assessment of the safety of the product for the user, on the basis of the properties of the 
product and the conditions under which it will be used. It is evident to the Commission 
that for these assessments a high level of protection must be ensured. Moreover it 
should be ensured that the implementation of the specific legislative instruments does 
not prejudice the implementation of the horizontal Community measures regarding 
worker protection. 
In this context there is a widespread agreement on the role of 
Council Directives 67/548/EEC and 88/379/EEC concerning classification, packaging 
and labelling of dangerous substances and preparations as far as the protection of health 
and safety of workers are concerned. The contribution to tjiese activities will be 
reinforced in order to keep measures consistent with the need to protect both man and 
environment. The objective of health and safety is also particularly obvious in consumer 
policy, especially for instance in legislative product related initiatives;. 
Particular attention should be paid to the 4th Framework Research and Development 
Programme (1994-1998) and some of its specific Programmes such as the Biomedicine 
and Health programme, the Standards, measurements and Testing Programme, the 
Telematics application programme and the Biotechnology programme which include 
basic and applied research. These programmes will improve the scientific knowledge 
needed to increase the safety and health protection of workers and contribute to higher 
standards in the future. They will also serve to strengthen the links between high safety 
standards and improved competitiveness. 
Action 10: Links with those third countries which have Association Agreements 
with the European Community 
The Copenhagen Council of June 1993 stressed the importance of approximating 
legislation, including legislation for the protection of workers, in relation to the countries 
of Central and Eastern Europe with which association agreements have been concluded. 
The Commission will seek to ensure, with a view to future membership, that progress 
is made in the field of worker protection, in particular through the implementation of 
18 
measures aimed at improving safety and health at work on the basis of existing 
Community legislation. To that extent the Commission will offer regular appropriate 
collaboration with relevant bodies and organizations of these countries. Similarly, within ' 
the framework of partnership and cooperation agreements between the Community and 
the countries of central and eastern Europe and of the Commonwealth of Independent 
States, particular attention will be paid to the implementation of those elements of the 
agreements relating to safety and health at work. 
Action 11: Improved system of cooperation inside the European Union and 
internationally 
It is essential that the Commission's policies in the field of health and safety at work do 
not duplicate unnecessarily the activities carried out in other Community bodies 
(Agencies and Foundations), in the Member States, in countries outside the Union as 
well as in the International Organizations. An area which has been indicated by the 
European Council meeting in December 1994 in Essen as being of strategic importance 
for the European Union is the Mediterranean zone where there is a need to support the 
national efforts aimed at transforming this region into a zone of stability, prosperity and 
cooperation. The needs for minimum standards for health and safety should not be 
overlooked. 
The development of free trade areas such as the North American Free Trade Agreement 
(NAFTA), Association of South-East Asian Nations (ASEAN) or the Common Market 
for South-America (MERCOSUR) is having an impact across the world. Whilst the 
primary objectives of such agreements are to improve the flow of goods, services and 
capital, there is nevertheless a recognition that safety and health measures require 
attention. In this respect, the legislative framework adopted by the Community could be 
the basis of exchanges of information with individual countries or such groups of 
countries. The Organization for Economic Co-operation and Development (OECD), 
where the Union's Member States and other developed countries are represented, may 
also assist in this task. 
Following the Resolution of some 114 countries in April 1994 to establish an 
Intergovernmental Forum on Chemical Safety (IFCS) to improve the international 
control of chemicals, the Commission will be more actively involved in joint 
programmes with the International Programme on Chemical Safety (IPCS) to provide 
policy guidance, identify priorities and develop strategies in a coordinated and integrated 
manner. Nowhere is this more apparent than in the protection of the international 
workforce. The Commission will continue its active role with international 
Organizations, notably the United Nations Agencies (WHO, ELO), which have a similar 
role to play in contributing to the attainment of a safer level of working conditions and 
with whom a long and fruitful cooperation already exists. Cooperation with International 
Social Security Association (ISSA) and International Association of Labour Inspection 
(IALI) will facilitate the implementation of these standards by those third countries. 
As concerns occupational health the Commission, ILO, WHO and IMO all have a role 
to play in contributing to the attainment of a high level of human health in the Member 
States, in particular in the prevention of occupational diseases. The Commission 
considers it important to continue to respect the different structures, roles and 
responsibilities of each organization. It considers that the practical and pragmatic 
approach already used to achieve cooperation should be continued but kept under 
review. 
19 
IV. CONSULTATION 
In order to permit the fullest possible coherence of the actions of the Programme, the 
Commission will propose to implement the programme in close collaboration with the 
Member States as follows: 
the Advisory Committee on Safety, Hygiene and Health Protection at Work will 
continue to provide advice to the Commission on all its measures taken at Community 
level or proposed to the Council in the field of safety and health at work; 
for the relevant non-legislative actions the Commission shall be assisted by a committee 
composed of a representative of each Member State, to ensure proper execution of the 
budget and evaluation of the actions; 
using the appropriate mechanisms provided by the various programmes complemented, 
when safety and health problems are substantial, by the Advisory Committee on Safety, 
Hygiene and Health Protection at Work. 
20 
V. EVALUATION AND REPORTS 
In order to increase the value and the impact of the Fourth programme concerning safety, 
hygiene and health at work, a continuous assessment of the activities undertaken will be 
carried out, with particular regard to their effectiveness and the achievement of Community 
objectives and, where appropriate, to make the necessary adjustments. 
The evaluation and reporting structure of the Programme will comprise two key elements: 
a report on the state of the activities carried out under the Programme to be produced 
by the end of 1997 
a final global report by 31st December 2001, including an independent peer review 
evaluation of the major activities. 
The Commission will ensure that these reports are made available to Council, the European 
Parliament, the Economic and Social Committee and interested parties. 
21 
ANNEX 
INDICATIVE LIST OF ACTIVITIES 
IN THE COURSE OF 1996-1997 
Action 1 
Guidance notes and core 
information material 
on legislation 
Adoption of Communications of the Commission on a model of 
the safety and health plan and the safety file aiming at 
facilitating the implementation of Directive 92/57/EEC 
("construction sites"), and on a general approach to risk 
assessment as required by Directive 89/391/EEC. 
Evaluation of the need for further action,on subjects related to 
the investigations carried out under Action 3 and propose any 
measures which may be necessary. 
Development of a methodology and preparation of guidance on 
the assessment of cost effectiveness of Community actions and 
follow up. 
Preparation of guidance documents in relation to directives 
already adopted, including preparation from and adoption of 
guidelines on the assessment of the chemical, physical and 
biological agents and industrial processes considered hazardous 
for the safety or health of pregnant workers, or workers who 
have recently given birth or are breastfeeding. 
Action 2 
Information, education 
and training on non -
legislative matters 
(i) Development of health 
and safety awareness 
Development of an education approach of accident prevention 
for school children and its validation. 
Encouraging the operation of an effective network of centres 
involved in teaching matters required by directives. 
Preparation and evaluation of a training module on first-aid in 
the framework of directive on medical assistance to seafarers 
Preparation of a consultation document on a framework for a 
resource centre of educational material on safety and health at 
work. 
22 
Elaboration and adoption of a Recommendation/Code of practice 
on education and training requirements in relation to safety and 
health at work. 
Evaluation of the needs of SMEs as regards their training and 
information in relation to safety and health at work, and follow 
up.. 
Ensure the effective start up and operation of the European 
Agency for Safety and Health at work. 
(ii) Information on Commission 
policies 
In collaboration with Eurostat continue implementation of: 
phases I and II of the European statistics on accidents 
and injuries at work (ESAW), 
Phase I, pilot study and phase II, of the European 
Statistics on Occupational Diseases (ESOD). 
(iii) Awareness and events 
Preparation of a final symposium: Review on the ECSC social 
research programmes. 
European week for safety and health at work (Octobre 1996). 
World IS SA Congress on prevention of accident and 
occupational diseases (April 1996). 
25th International Congress on Occupational Health (Stockholm, 
Septembre 1996). 
European Film Festival on Safety and Health at Work. 
Action 3 
The emergence of new 
health and safety risks 
Investigation into safety and health at work problems related to 
new technologies and production techniques. 
Analysis of the action necessary at Community level on 
prevention of violence at work, and follow up. 
Analysis of the action necessary at Community level on the 
prevention of risks linked to the disposal of waste, and follow 
up. 
Analysis of the action necessary at Community level on 
prevention of stress at work, and follow up. 
23 
Investigate the use of particular techniques for the monitoring of 
the state of health of the workforce, and possible action at 
Community level. 
Investigate the role of the multidisciplinary protective and 
preventive services for workers, and possible action at 
Community level. 
Assess the impact of the Information Society on the working 
conditions and evaluate possible legal provisions at Community 
level. 
Action 4 
The SAFE programme 
(Safety Actions for Europe) 
Support a first series of projects under the SAFE programme. 
Set up a consultative mechanism for assessing SAFE proposals. 
Action 5 
Correct implementation by 
Member States of the Community 
legislation already adopted 
(a) Communication control 
(b) Conformity control Monthly updating of communication control 
Referral to the Court of Justice of cases concerning the non­
communication of national measures implementing 
Framework Directive 89/391/EEC and individual directives. 
Dialogue with the national authorities responsible for 
transposition to evaluate the potential non-conformities detected. 
Overall report on conformity to Framework 
Directive 89/391/EEC and instruction of infringement 
proceedings on Framework Directive, if appropriate. 
Conformity control of national measures communicated for 
individual Directives. 
Action 6 
Progress the Commission 
proposals already made 
Participate actively in the inter-institutional negotiations on 
pending proposals ("transport", "chemical agents", "physical 
agents" and "work equipment"). 
24 
Action 7 
Review of Community 
legislation 
Adaptation to technical progress of Directive 90/270/EEC 
("VDU"). 
Evaluation of enforcement problems and impact of the directives 
regarding national labour inspectorate in collaboration with 
SLIC. 
Evaluation by means of a pilot project of the implementation 
and practical assessment of one directive (i.e. work equipment), 
in selected Member States. 
Develop a prototype report as required in the directives fitting 
to the needs of sound evaluation. 
Adoption of a Commission Directive adapting to technical 
progress the Directive 90/679/EEC ("biological agents"). 
Adoption of a Council Directive amending the 
Directive 90/394/EEC ("carcinogens"). 
Communication from the Commission to the Council European 
Parliament of the results of a review of the provisions for the 
Council Directive of the protection of workers from the risks 
related to exposure to asbestos at work. 
Commission Communication on the implementation of the 
Commission recommendation to the Member States concerning 
the adoption of a European Schedule of Occupational diseases 
(90/326/EEC). 
Adoption of further Commission Directives on the establishment 
of indicative limit values for the exposure to chemical agents at 
work. 
Report to the European Parliament, the Council and the 
Economic and Social Committee on the experience gained in the 
application of the Council Directive on the protection of workers 
by the banning of certain specified agents (88/364/EEC). 
Evaluation of the need for further action on subjects related to 
the investigations carried out under Action 3 and propose any 
measures which may be necessary. 
25 
Action 8 
New proposals for high-risk 
activities, or for certain 
categories of workers 
Examine the need for a proposal for a Council recommendation 
on safety and health at work of self-employed. 
Evaluate the need of further legislation (e.g. use of explosives). 
Evaluation of the need for further action on subjects related to 
the investigations carried out under Action 3 and propose any 
measures which may be necessary. 
Putting into operation of a detailed mandate of the Group of 
Expert referred to in Commission Decision 88/383/EEC 
("improvement of information"). 
Action 9 
Improved coherence among 
Commission activities 
Definition and application of strategy to adopt in respect of 
integration of safety and health at work issues into the 
Community policies (agriculture, chemicals, biotechnology, etc) 
and individual European research programmes, in cooperation 
with specialized institutions, if appropriate. 
Research will be conducted in particular in the following areas: 
BIOMED 
Identification and control of risk'factors at the workplace 
with an emphasis on biological and chemical hazards in 
short- and long-term effects. 
Health education and preventive measures to reduce 
accidents at work and exposure to risk factors. 
The interaction between risk factors at the workplace and 
in the environment, fundamental research on allergic 
diseases and the aetiology of occupation and environment 
related diseases. Connections between occupational and 
environmental risk factors (e.g. toxic agents) and the 
aetiology of diseases in general (e.g. cancer). 
26 
Action 10 The Standards. Measurements and Testing programme 
The objectives are to improve the ability to measure the fitness 
for purpose of measurements methods, particularly in the 
following areas: 
the improvement of measurement methods and the 
development of reference materials for monitoring the 
exposure of workers to physical, chemical or biological 
agents at the workplace and/or for testing of the 
efficiency of implemented protective measures; 
the development of methods and reference materials for 
the identification of allergies arising from exposure to 
either naturally occurring or man-made factors; 
the development of personal monitors with warning 
capability, particularly for use in the workplace; 
the development of methods to detect genetically 
modified organisms. 
Telematics applications Programme 
Obtaining rapidly accurate and reliable up-to-date information is 
a key-stone in improving working conditions, and in this context 
of particular relevance to health and safety at the workplace are 
the various projects which will be undertaken by the Telematics 
applications Programme concerning cooperation between 
Administrations, Education and Training, Health care and 
Information Engineering. 
Links with those third 
countries which have 
Association Agreements with 
the European Community 
Continue fostering progress in the field of workers' protection in 
the PECOs with a view to future membership, in close 
collaboration with SLIC. 
27 
Action 11 
Improved system of 
cooperation inside the 
European Union and 
internationally 
Promote the exchange of officials between the national labour 
inspectorates. 
Continue taking an active part in the drafting of the ILO 
Convention and recommendation on safety and health in the 
extractive industries with the support of SHCMOEI. 
Continue taking an active part in the Intergovernmental Forum 
on Chemical safety (Canberra, 1996). 
Continue contributing to attainment of a high level of 
occupational health in cooperation with ILO and WHO. 
Continue cooperation with IPCS (International Programme on 
Chemical Safety), in particular on monographs, Environmental 
Health Criteria Documents and International Chemical Safety 
Cards. 
Support national efforts outside EU namely in the Mediterranean 
area to improve health and safety at work. 
Continue exchange of information and cooperation with trading 
partners (USA, Canada, Japan, etc.). partners (USA, Canada, Japan, etc.). 
28 
Proposal for 
COUNCIL DECISION 
adopting a programme of non-legislative measures to improve 
health and safety at work 
29 
EXPLANATORY MEMORANDUM 
1. The number of accidents, the incidence of occupational disease and the resulting costs 
to the economy represent an enormous and unnecessary human cost as well as being 
an economic burden to society and as such indicate there is further work to be done 
which builds on and extends existing achievements. Generally speaking, improving 
health and safety at the workplace can enhance competitiveness since there is a clear 
correlation between successful companies and good health and safety practices 
2. The introduction in the 1987 Single European Act of a specific legal basis for setting 
minimum standards on occupational health and safety, Article 118a, gave a new impetus 
to the Community's work. On this basis, the Commission adopted in 1988 a third action 
programme in this field (OJ No C 28, 3.2.1988, p. 3), which the Council recognised as 
a useful framework for commencing implementation of Article 118a at Community 
level. This programme, which concentrated on the social aspects of the Internal Market, 
gave rise to an important body of Community legislation aimed at improving safety, 
hygiene and health at work across the board, and in particular in high risk activities. In 
developing the programme, the Commission always took great care to respect, in 
particular, the diverse nature of national systems and practices and the assessment of 
likely burden of directives on SMEs. The European Year of Safety, Hygiene and Health 
protection at work was particularly successful in providing information to all concerned. 
The Commission believes that the time is ripe for a new programme to address new 
issues and to improve on old successes. 
3. The Commission intends that this programme should provide a sufficiently flexible, 
dynamic and realistic framework to enable the Union to successfully meet the challenges 
posed by the profound economic, technological and social changes it is undergoing. 
Future Community action in the field of health and safety at work must take into 
account the principle of subsidiarity and the requirement of proportionality. The 
Commission will pursue this objective both by developing non-legislative accompanying 
measures intended to supplement and support legislative objectives defined by directives 
already adopted and by ensuring that its legislation remains apt for the modern society 
and its problems. Particular attention will be paid to improving education, training and 
information which are essential elements in achieving better health and safety, and in 
assisting SMEs. In addition, the effectiveness of Community action in the field of health 
and safety at work will be reinforced by strengthening the linkages with other policy 
areas of the Community 
4. In considering what further measures are now required the Commission has taken into 
account comments made by Member States and social partners, and other Community 
institutions, during the extensive consultation on the "General Framework for Action by 
the Commission of the European Communities in the field of safety hygiene and health 
protection at work (1994-2000)" (COM(93) 560 final). In this field as in the others, to 
meet the expectations of Member States and enterprises, a mass effect must be sought 
so as to enhance the effectiveness, coherence and visibility of the measures in support 
of SMEs. In this context, a number of specific measures will be launched by the 
Commission under an integrated programme. As part of the programme the Commission 
has included SAFE (Safety Action For Europe) following-up the proposal made by the 
European Parliament in its Resolution on the General Framework for action by the 
Commission of the European Communities in the field of safety, hygiene and health at 
work [1994 - 2000], adopted on 6 May 1994 (OJNo C 205, 25.7.1994, p. 478), inviting 
the Commission to present its fourth programme in the field under the form of a 
Council decision with special attention to non-legislative measures and to small and 
medium-sized enterprises. 
30 
5. The programme in three parts provides, for non-legislative measures including the SAFE 
(Safety Action for Europe), for indispensable legislative measures programme and for 
health and safety in other policies. The present decision deals with the development of 
non-legislative measures such as guidance notes and information, education and training 
material, and the SAFE programme aimed at improving safety, hygiene and health at 
work in particular in small and medium-sized enterprises. 
6. In implementing the programme it will be necessary to ensure the fullest coherence of 
the action, therefore a procedure similar to that which was used in the framework of the 
European Year for Safety, Hygiene and Health at Work will be followed. The 
Commission proposes to implement the programme in close collaboration with the 
Member States as follows: 
the Advisory Committee on Safety, Hygiene and Health Protection at work will 
continue to act as it does, providing advice to the Commission for all its measures 
taken at Community level or proposed to the Council in the field of health and 
safety at work; 
for the relevant non-legislative measures the Commission should be assisted by 
a committee composed of a representative of each Member State, to ensure proper 
execution of the budget and evaluation of the measures; 
the Commission will make use of the appropriate mechanisms provided for by the 
other programmes complemented, when health and safety problems are substantial, 
by the Advisory Committee on Safety, Hygiene and Health Protection at Work. 
7. The programme requires the underpinning of a Council Decision for those action not 
covered by other policy frameworks or included in legislation. This Decision provides 
that support. 
31 
95/0155 (CNS) 
Proposal for 
COUNCIL DECISION 
adopting a programme of non-legislative measures to improve 
health and safety at work 
THE COUNCIL OF THE EUROPEAN UNION, 
Having regard to the Treaty establishing the European Community, and in particular 
Article 235 thereof, 
Having regard to the proposal from the Commission(1), 
Having regard to the opinion of the European Parliament^, 
Having regard to the opinion of the Economic and Social Committee(3), 
Whereas prevention of accidents at work, occupational diseases and occupational hygiene fall 
within the fields and objectives referred to in Articles 118 and 118a of the Treaty; whereas 
in this context collaboration should be strengthened between the Member States and the 
Commission and between the Member States themselves; 
Whereas the incidence in the Community of accidents and death at work as well as 
occupational disease is still unacceptably high; , 
Whereas as this represents an enormous and unnecessary human cost as well as being an 
economic burden on society; whereas improving health and safety at the workplace can 
enhance competitiveness since there is a clear correlation between successful companies and 
good health and safety practices; 
Whereas, despite considerable efforts, a large number of companies and especially small and 
medium-sized enterprises have difficulties in incorporating new production methods or 
adapting existing ones while safeguarding the health and safety of workers and ensuring good 
working environment standards in conformity with new legislation; 
Whereas legislation on health and safety at work must be supplemented by non-legislative 
measures including raising awareness aimed at improving safety, hygiene and health at work, 
in particular in small and medium-sized enterprises; 
(1) OJ No 
(2) OJ No C 
(3) OJ No 
32 
Whereas the Community needs to make further strides to improve health and safety in 
individual sectors, in respect of the materials used or for particularly sensitive risk groups as 
yet inadequately protected; whereas it also needs to raise awareness, training levels and 
information exchange and to develop cooperation with third countries and international 
organizations. 
Whereas the programme has to contribute to the enhancement of awareness of health and 
safety determinants and risk factors, early detection of adverse effects, counselling and advice, 
and social support; 
Whereas, in accordance with the principle of subsidiarity, action on health and safety at work, 
can by reason of their scale or effects, be undertaken with greater efficiency by the 
Community; 
Whereas a multiannual programme has to be launched with clear objectives for Community 
action, and priority action selected to promote the health and safety at work of all the workers 
of the Community as well as appropriate mechanisms for the evaluation of such action; 
whereas this programme has to be five-year duration in order to allow sufficient time for 
action to be implemented to achieve the objectives set; 
Whereas there exist other Community programmes and intiatives fully or partly relevant as 
regards health and safety at work and therefore there is a need to ensure consistency between 
various Community action. 
Whereas for the relevant non-legislative measures the Commission should be assisted by a 
comittee composed of a representative of each Member State, to ensure proper execution of 
the budget and evaluation of the measures; 
Whereas, pursuant to Council Decision 74/325/EEC(4), as last amended by the Act of 
Accession of Austria, Finland and Sweden, the Advisory Committee on Safety, Hygiene and 
Health Protection at Work can be consulted by the Commission on the drawing-up of 
proposals in this field; 
Whereas the Treaty provides no powers other than those in Article 235 the adoption of this 
Decision, 
(4) OJNoL 185, 9.7.1974, p. 15. 
33 
HAS DECIDED AS FOLLOWS. 
Article 1 
A Community programme of non-legislative measures to improve health and safety at work 
is adopted for a five-year period, from 1 January 1996 to 31 December 2000. 
The programme shall consist of: 
guidance notes and core information material to help apply correctly the Community 
legislation; improving information, education and training; investigating key prohlem 
areas as referred to in Annex I, 
he SAFE (Safety Action for Europe) programme referred to in Annex II aimed at 
improving safety, hygiene and health at work, in particular in small and medium-sized 
enterprises. 
Article 2 
The Commission shall ensure implementation of the action set out in Annexes I and II in 
accordance with Articles 5 and 6 in close cooperation with the Member States and the 
institutions and organizations active in safety, hygiene and health at work. 
Article 3 
The Commission shall ensure that there is consistency and complementarity between the 
Community action to be implemented under this programme and the other relevant 
Community programmes and initiatives. 
Article 4 
1. The action referred to in Annex I shall be carried out by the Community, the 
Member States, management and labour and public or private organizations. 
Applications for the financing of the action shall be submitted to the Commission; 
2. The action referred to in the Annex II shall be carried out by the Member States, 
management and labour and public or private organizations. Applications for the 
financing of the action shall be submitted to the Commission. 
Article 5 
The selection of the projects to be financed and the determination of the financial assistance 
to be granted in conformity with the objectives and criteria set out in Annexes I, II and III, 
shall follow the procedure provided for in Article 6(2). 
Article 6 
The Commission shall be assisted by a committee of an advisory nature composed of the 
representatives of the Member States and chaired by a representative of the Commission. 
The representative of the Commission shall submit to the committee a draft of the measures 
to be taken. The committee shall deliver its opinion on the draft, within a time limit which 
the chairman may lay down according to the urgency of the matter, if necessary by taking 
a vote. 
The opinion shall be recorded in the minutes; in addition each Member State shall have the 
right to ask to have its position recorded in the minutes. 
34 
The Commission shall take the utmost account of the opinion delivered by the committee. It 
shall inform the committee of the manner in which its opinion has been taken into account. 
Article 7 
1. The Commission shall encourage cooperation with third countries and with 
United Nations bodies and other organizations or agencies involved in the field. 
2. EFTA countries in the framework of the EEA Agreement and countries with whom the 
Community has concluded association agreements may be associated in the activities 
described in Annexes I and II. 
Article 8 
1. The Commission shall regularly publish information on the action undertaken and 
possibilities of Community support in the various fields of action. 
2. The Commission shall submit to the European Parliament, the Council, the 
Economic and Social Committee a mid-term report on the action undertaken, as well as 
an overall report by 31 December 2001. 
Done at Brussels, For the Council 
The President 
35 
ANNEX I 
GUIDANCE NOTES AND CORE INFORMATION MATERIAL TO HELP APPLY 
CORRECTLY THE COMMUNITY LEGISLATION; INFORMATION, EDUCATION 
AND TRAINING; IMPORTANT OR NEW PROBLEMS 
(1996-2000) 
1. Guidance notes and core information material to help apply correctly the 
Community legislation, taking into account where necessary the reports required 
by the various Directives 
1.1 Prepare non binding guides to legislation, which, while not pretending to 
guarantee and provide the detail necessary to cover every legal aspect, provide to 
employers, enterprises, workers and Member States useful assistance, technical 
support and background. 
1.2 For effective targeting of such information it is essential to know what employers, 
in particular in Small and Medium-sized Enterprises, want and need in relation to 
health and safety at work. 
2. Information, education and training 
2.1 Development of health and safety awareness 
2.2 Information on Commission policies: in order to ensure transparency of its 
measures, the Commission will draft and disseminate information on Communities 
activities. 
2.3 In keeping with the Commission's information policy relating to Community 
activity and the raising of awareness, particularly amongst the general public, the 
Commission will, in consultation with the Member States, arrange regularly a 
European week of health and safety at work, colloquia on health and safety 
education and training, competitions on training materials, festivals of audio-visual 
products on safety, hygiene and health at work. 
3. Investigate certain key problem areas, taking into account existing information and 
research results and/or promote, where appropriate, new investigations. 
36 
ANNEX II 
SAFE (Safety Action for Europe) aimed at improving safety, hygiene and health at work, 
in particular in small and medium-sized enterprises. 
(1996-2000) 
1.1 SAFE (Safety Action For Europe) will support projects of a practical nature intended 
to demonstrate: 
the promotion of improvements in the work situation specifically directed at 
safety, hygiene and health at work, especially in small and medium-sized 
enterprises; 
the improvements in the organization of work practice which influence attitudes 
towards health and safety at work, in order to reduce work accidents and 
occupational diseases. 
1.2 One of the objectives of the SAFE programme is therefore to support practices designed 
to improve the work situation, work organization and working practices which may be 
directed towards a specific problem impacting on health and safety at the workplace or 
by demonstrating best practices to combat work accidents and/or occupational diseases 
or at the ways and means of effectively complying with Community legislation in 
individual enterprises or undertakings. 
1.3 This is why the SAFE programme will also support the development of reference 
workplaces, which have developed practical solutions to workplace risks and which will 
serve as models for others who would like to change existing workplaces or design new 
ones. It will also promote innovative approaches to emerging areas of risk or to high 
risk activities, whether this is by promoting the use of safe and/or clean technologies, 
or by other innovative measures. 
1.4 Support will also be provided for specific education and training initiatives designed to 
improve knowledge of Community legislation and improve awareness of the working 
environment. 
1.5 The SAFE programme will also consider projects prepared by European organizations, 
individual enterprises, employers or workers. Such projects should provide guidance 
for decisions concerning measures to be put into practice throughout entire sectors of 
activity especially in more than one Member State. 
37 
ANNEXffl 
SELECTION CRITERIA 
I. General criteria 
In order to be eligible for selection, the projects submitted must meet all the following 
criteria: 
have a good cost-effectiveness ratio; 
generate a European plus value eg through a lasting multiplier effect on 
European scale; 
demonstrate an effective and balanced degree of cooperation between the various 
partners at the levels of: 
project design; 
project implementation; 
financial participation. 
II. Evaluation criteria 
Priority will be given to projects satisfying, as far as possible, the following criteria. 
They should: 
contribute to the prevention of causes of accidents and occupational diseases rather 
than remedying their effects; 
facilitate the lasting integration of health and safety at work in the enterprises 
management or in the quality management of products; 
promote the transfer and exploitation of innovative experiments on an European 
scale; 
promote social dialogue; 
promote permanent efforts rather than quantified results; 
encourage innovation and entrepreneurial activity, in particular in high risk 
activities; 
support the development of practical solutions to workplace risks; 
support cooperation between firms; 
support improved information exchange, education and training; 
38 
contribute also to the implementation of action programmes or Community 
policies concerning: 
lifelong learning. 
equal opportunities 
integration of the disabled 
bringing back to employment the long-term unemployed 
prevention of accidents to the public (domestic, sport, road,....) 
sectoral policies (to be specified) 
other programmes or policies (to be specified). 
m. Exclusion criteria 
The following are not eligible: 
action limited to a single Member State and not transferable to others; 
action limited to achieving compliance with national requirements even if these 
result from Community law. 
39 
FINANCIAL STATEMENT 
TITLE OF OPERATION 
Non-legislative measures to improve safety, hygiene and health at work. 
BUDGET HEADING INVOLVED 
B3-4310 Health protection, hygiene and safety at work, including subsidy to the 
European Trade Union Technical Bureau (ex B3-4310 and B3-4003 in 
1995). 
B3-4313 SAFE (Safety Action for Europe) programme. 
LEGAL BASIS 
Treaty establishing the European Community, and in particular Articles 118, 
118a, 118b, 155 and 235 thereof; 
Council Decision adopting non-legislative measures to improve safety and 
health at work. 
DESCRIPTION OF OPERATION 
4.1 General objective 
The Commission intends that its action programme should provide a 
sufficiently flexible, dynamic and realistic framework to enable the 
European Union to meet successfully the challenges posed by the profound 
economic, technological and social changes under way. The programme 
is underpinned by the following principles: 
the need to ensure that measures taken in the field of health and safety 
at work are geared to supporting the competitiveness of enterprises, 
particularly SMEs; 
promotion of improved working conditions as "égards safety, hygiene 
and health at work, especially in SMEs; 
implementation, consolidation, rationalisation and extension of relevant 
Community legislation whenever necessary; 
taking steps to supplement legislation aimed at promoting a healthy 
working environment, with particular reference to SMEs; 
integration of the programme into other activities of the Union and 
, reinforcement of the dialogue with Member States and the social 
partners; 
coordination and integration of activities in conjunction with 
international organizations working in the same field; 
making it easier for workers to obtain information in the areas 
concerned (TUTB). 
40 
In analysing the projects, account will be taken of the specific objectives 
set out in the action programme of the Agency for Health and Safety at 
Work, so as to ensure consistency between the different fields. 
4.2 Period covered and arrangements for renewal or extension 
- 1996-2000 (1 January 1996 to 31 December 2000). 
Report to the Council, European Parliament and Economic and Social 
Committee at the end of 1998. 
Final report by 31 December 2001. 
CLASSIFICATION OF EXPENDITURE OR REVENUE 
5.1 Non-compulsory expenditure 
5.2 Differentiated appropriations 
5.3 Type of revenue involved: none 
TYPE OF EXPENDITURE OR REVENUE 
6.1 Financing: 
6.1.1 Health protection, hygiene and safety at work, including subsidy 
to the European Trade Union Technical Bureau 
Subsidy for joint financing with other sources in the public and/or private 
sector (not exceeding a certain percentage of the total cost of the proposed 
projects). 
The level of funding granted depends on the scope of the measure to be 
financed and on the extent to which the action programme is reflected in 
the various activities planned. 
Such funding will not exceed 70% of the total budget earmarked for the 
proposed projects except in the case of networks and work ordered and of 
direct use to the Commission, where the subsidy may amount to 100%. 
The appropriation covers the subsidy granted to the European Trade Union 
Technical Bureau, which provides technical advice for the drafting of 
opinions delivered through the Advisory Committee on Safety, Hygiene 
and Health Protection at Work. 
6.1.2 SAFE (Safety Action for Europe) programme 
Subsidy for joint financing with other sources in the public and/or private 
sector (not exceeding a certain percentage of the total cost of the proposed 
projects). 
The level of funding granted depends on the scope of the measure to be 
financed and on the extent to which the action programme is reflected in 
the various activities planned. 
41 
6.2 Such funding will not exceed 70% of the total budget earmarked for the 
proposed projects except in the case of networks and work ordered and of 
direct use to the Commission, where the subsidy may amount to 100%. 
Reimbursement: a partial or total reimbursement may be requested if the 
activities for which funding was granted are not carried out or are carried 
out only in part. The proposed operation will not cause any change in the 
level of revenue. 
FINANCIAL IMPACT 
7.1 Method of calculating total cost of operation: see point 7.2 
7.2 Itemised breakdown of cost (in ECU million) 
Indicative breakdown in ECU million: this purely indicative breakdown is 
without prejudice to the amounts which will actually be assigned by the 
budgetary authority for each of the years under consideration. The 
breakdown by field of activity is, moreover, given purely for guidance. 
The indicative amounts for subsequent years of implementation of the 
programme will be decided on in the framework of subsequent preliminary 
draft budgets. 
FIELDS OF 
ACTIVITY 
Health protection, hygiene 
and safety at work + TUTB 
Safety Action for Europe 
(SAFE) 
TOTAL YEAR 
1996 PDB 1997 1998 1999 2000 TOTAL 
1996-2000 
Indicative programming 
4.5 
1.5* 
6.0 5 
10 
15 5 
10 
15 5 
10 
15 5 
10 
15 24.5 
41.5 
66 
Work to get the SAFE programme up and running. 
42 
7.3 Indicative schedule of appropriations 
7.3.1 B3.4310: Health protection, hygiene and safety at work + TUTB 
Commitment 
appropriations 
Payment 
appropriations 
1996 
1997 
1998 
1999 
2000 
subsequent 
years 
TOTAL 1996 
4.5 
3.0 
1.5 
4.5* 1997 
5.0 
3.5 
1.0 
0.5 
5.0* 1998 
5 
3.5 
1.0 
0.5 
5.0* 1999 
5 
3.5 
1.0 
0.5 
5.0* 2000 
5 
3.5 
1.5 
5.0* TOTAL 
24.5 
3.0 
5.0 
4.5 
5.0 
5.0 
2.0 
24.5 
* Including ECU 1 million per year as the subsidy to the European Trade Union 
Technical Bureau (TUTB). 
7.3.2 B3.4313: Safety Action for Europe (SAFE) 
Commitment 
appropriations 
Payment 
appropriations 
1996 
1997 
1998 
1999 
2000 
subsequent 
years 
TOTAL 1996 
1.5 
1.0 
0.5 
1.5* 1997 
10 
5 
4 
1 
10 1998 
10 
5 
4 
1 
10 1999 
10 
5 
4 
1 
10 2000 
10 
5 
5 
10 TOTAL 
41.5 
1.0 
5.5 
9.0 
10.0 
10.0 
6.0 
41.5 
Work to get the SAFE programme up and running. 
43 
FRAUD PREVENTION MEASURES; RESULTS OF MEASURES TAKEN 
All contracts, agreements and legal undertakings by the Commission make 
provision for the possibility of spot checks by the Commission and by the Court 
of Auditors. Moreover, beneficiaries in all instances are obliged to provide reports 
and financial statements, which are analysed with regard to the content and the 
eligibility of expenditure, in accordance with the aim of Community financing. 
ELEMENTS OF COST-EFFECTIVENESS ANALYSIS 
9.1 Health protection, hygiene and safety at work, including subsidy to the 
European Trade Union Technical Bureau 
In selecting the measures to be financed, priority will be given to those 
which will provide added value in terms of developing and following up 
Community policies in the field. 
9.1.1 Specific objectives; target population: 
The aim of the Commission's policy in respect of safety, hygiene and 
health at work is, and will continue to be, to reduce to a minimum the 
number of accidents at work and occupational diseases, having regard to 
the principle of subsidiarity. 
The main aims of the operation are to ensure the proper application of 
Community directives dealing with safety and health protection at work, 
to press on with the establishment of rigorous standards in the field of 
safety and health protection at work in the Community, and to enable the 
social partners to participate effectively in devising, formulating and 
implementing Community policy initiated by the Commission in the field 
of safety and health protection for workers. 
Funding is also provided under this item for the implementation of pilot 
projects having to do with the working environment, entailing research 
activities, dissemination of information, training and organization of 
seminars concerned with the workplace. Expenditure will be targeted more 
specifically at the problems which small and medium-sized enterprises are 
likely to face in implementing Community legislation in the field of health 
protection, safety and the environment, and at making the persons 
concerned more aware of the working environment and the attendant risks. 
The appropriation also covers pilot projects providing environmental 
training for workers in small and medium-sized enterprises. 
The appropriation is intended also to cover the subsidy paid to the 
international information centre of the European Trade Union Technical 
Bureau. It also covers the cost of information and awareness-raising 
campaigns for the general public and the training of health workers. 
External cooperation activities are expanding as a result of the agreement 
concluded between the Community and the European Free Trade 
Association States, new developments in Central and Eastern Europe, the 
general growing interest in health and safety, and the need to step up 
cooperation with international bodies such as the International Labour 
Organization, the Organization for Economic Cooperation and 
Development, the World Health Organization and the International 
Maritime Organization. 
44 
Within the framework of the Commission's action programme concerning 
safety, hygiene and health at work (1996-2000), the following specific 
objectives have been laid down: 
introduction of non-legislative measures to supplement and support 
the legislative objectives; 
information, training, research and education in connection with 
health and safety at work, including: 
incorporation of health and safety at work into other 
policies, 
specific awareness-raising campaigns and publications, 
promotion of the Commission's policies, 
harmonisation of statistics on accidents at work and 
occupational diseases, 
analysis of important or new problems; 
verification, monitoring and follow-up of the transposai of 
Community directives into the national laws of the Member States 
in collaboration with the competent authorities; 
implementation, consolidation, rationalisation and completion of 
Community legislation, 
analysis of high-risk sectors and certain categories of workers, with 
an eye to new proposals; 
establishment of contacts and regular exchanges between experts, 
institutions and authorities from the Member States, standardisation 
bodies and the Commission with a view to identifying, amending, 
supplementing and clarifying the application of existing 
Community directives; 
international cooperation and promotion of European legislation in 
third countries, with particular reference to countries having 
association agreements with the European Union, 
promotion of the Community's work in the field of safety and 
health in countries outside the Community and international 
cooperation; 
According to the specific objectives, the following groups are to be 
targeted: 
employers and workers; 
health and safety personnel such as occupational physicians, safety 
engineers and others concerned with health and safety at work 
under the different systems in the Member States, experts from 
institutions and/or specialised bodies; 
labour inspectors; 
workers' and employers' representatives; 
45 
other persons having a direct or indirect impact on health and 
safety at work (e.g. teachers and pupils, journalists, etc.). 
Depending on the individual measures and projects concerned, all of the 
above-mentioned target groups will ultimately derive benefit from the 
Community expenditure through the competent authorities and bodies in 
the Member States. 
9.1.2 Grounds for the operation 
Each year, 10 million of the Community's 160 million workers are victims 
of accidents at work or occupational diseases, while 8 000 lose their lives. 
Studies have shown that accidents at work and occupational diseases are 
often associated with poor management practices. Good management 
presupposes the best possible use of available resources, necessitating a 
safe workplace which will protect the safety and health of workers, 
improve morale and motivation, enhance the quality of production and 
thereby contribute to the economic performance of the enterprise. Quite 
apart from the human aspects, in particular the suffering caused to workers 
and their families, the economic consequences are considerable. The 
money paid out each year as a direct result of accidents at work and 
occupational diseases throughout the Community was estimated in 1992 
at ECU 27 000 million. 
Community activities in the field of safety and health at work generally 
fall within the scope of the Treaties establishing the European Community. 
The main legal basis for Community action in the field will continue to be 
Article 118a, which lays down the respective roles of the Member States 
and the Community with due regard ta the principle of subsidiarity. 
In this connection, the Commission will continue to promote and develop 
dialogue between the social partners at Community level. 
The Community must therefore continue to pursue its objective of bringing 
about further improvement in safety and health at the workplace so as to 
reduce the costs involved. There can be no let-up in efforts to reduce the 
number of accidents at work and occupational diseases in order to protect 
workers, reduce the associated costs and improve the competitiveness of 
enterprises. 
Community action geared to the promotion of workers' health and safety 
is broad-based, with the Commission having also introduced a series of 
supplementary measures aimed at Member States, enterprises, employers 
and workers, with particular emphasis on initiatives designed to inform 
more fully the parties concerned. 
Most of .the specific projects and measures at both Community and 
national level are carried out on the basis of joint financing (30% to 70%) 
with public- or private-sector bodies in the Member States. Some Member 
States grant additional funds as a matter of course for certain activities or 
studies in fields which are of relevance to specific regions. It has been 
noted recently that the private sector is showing particular interest in the 
European dimension in the field of training and information. Although the 
financial contribution in this respect is at present somewhat limited and 
unsystematic, it could prove to be a key to future progress. As regards 
health and safety at work, the social dialogue launched at European level 
should also help to make all the economic sectors in the Member States 
more aware of the need to improve the health and safety of workers and 
46 
consequently to reduce the compensation paid for accidents and 
occupational diseases. 
It must, however, be stressed that more systematic mobilisation of 
supplementary financial resources at Member State level will probably be 
necessary to achieve better results from the various specific activities or 
projects. 
Furthermore, the effectiveness of Community action in the field of safety 
and health at work can be improved by reinforcing links with other areas 
of Community policy. 
9.1.3 Monitoring and evaluation of the operation 
The performance indicators vary according to the general and specific 
objectives outlined above. 
Moreover, a distinction has to be made between: 
qualitative indicators of performance, which cannot always be 
measured in quantitative terms; 
quantitative performance indicators which may be used to measure 
quantitative or qualitative results; 
value indicators which may be used to establish that a certain level 
of achievement has been attained at reduced cost. 
Under the previous action programme, the Commission introduced a series 
of measures and/or activities directed at the Member States, enterprises, 
employers and workers, with particular emphasis on initiatives aimed at 
providing better information, training and guidance for the parties 
concerned. The Commission set up a Community system for the exchange 
of information between Member States. The work of the Committee of 
Senior Labour Inspectors was further expanded with the introduction of 
day-long seminars for in-depth discussion of labour inspection methods 
and practices. The Committee continues to support exchanges of 
experience and information between labour inspectorates both in the 
European Union and in the countries of Central and Eastern Europe. The 
Committee has laid down common principles for labour inspection and is 
engaged in systematic evaluation of the different inspection systems. 
Finally, it should be noted that the approach adopted also entails wide 
consultation with representatives of Member State governments and with 
the social partners. 
Under the terms of the Community directives dealing with the health and 
safety of workers, the Commission provides the European Parliament, the 
Council and the Economic and Social Committee with regular reports on 
the implementation of the directives, on the basis of reports submitted by 
the Member States. 
Coherence with financial programming 
Health protection, hygiene and safety at work is provided for in DG V's 
financial programming for the years 1996-2000. 
47 
In line with DG V's financial programming, the operation complies with 
the objective of promoting improvement, especially in the working 
environment, in order to protect the safety and health of workers, with the 
further aim of gradually harmonising the conditions prevailing in this area. 
9c2 SAFE (Safety Action for Europe) programme 
The measures to be financed will help SMEs with the implementation of 
Community policy in the field. During the preparatory phase (1996) the 
appropriate methodology for carrying out the programme will be 
developed and tested so as to ensure, from 1997 onwards, that the 
activities associated with the field specified in section 6.1.1 are 
differentiated. 
9.2.1 Specific quantifiable objectives; target population 
This programme will support projects of a practical nature intended to 
demonstrate: 
the promotion of improvements in work situations, concerned 
specifically with safety, hygiene and health at work, especially in 
small and medium-sized enterprises; 
improvement in the organization of work practices and attitudes 
towards safety and health at work with a view to reducing 
accidents at work and occupational diseases. 
The appropriation is intended, for the most part, to give backing to SMEs 
for measures aimed at ensuring the proper in-house application of 
Community directives dealing with safety and health protection at work, 
to press on with the establishment of rigorous standards in the field of 
safety and health protection at work in the Community, and to enable the 
social partners to participate effectively in devising, formulating and 
implementing Community policy initiated by the Commission in the field 
of safety and health protection for workers. 
Expenditure will be targeted more particularly at assistance for small and 
medium-sized enterprises, in connection with Community legislation in the 
field of health protection, safety and the working environment with a view 
to making those concerned more aware of the working environment and 
the attendant risks. 
Within the framework of the Commission's action programme concerning 
safety, hygiene and health at work, and the measures outlined in the White 
Paper on European social policy, the following specific objectives have 
been laid down: 
promotion of information, training and education activities 
concerned with safety and health at work, aimed particularly at 
SMEs; 
development of preventive measures in relation to risk assessment; 
study of problems encountered in SMEs in connection with well-
being at work; 
cooperation between the social partners to improve awareness of 
problems connected with safety and health at the workplace; 
48 
development of non-legislative accompanying measures to 
supplement the legislative objectives. 
According to the specific objectives, the following groups are to be 
targeted: 
employers and workers; 
health and safety personnel with SMEs according to the different 
systems in the Member States; 
experts from specialist institutes and bodies; 
labour inspectors; 
workers' and employers' representatives. 
Depending oh the individual measures and projects concerned, all of the 
above-mentioned target groups will ultimately derive benefit from the 
Commission's expenditure through the competent authorities and bodies in 
the Member States. 
9.2.2 Grounds for the operation 
Studies have shown that accidents at work and occupational diseases are 
often associated with poor management practices. Good management 
presupposes the best possible use of available resources, necessitating a 
safe workplace which will protect the safety and health of workers, 
improve morale and motivation, enhance the quality of production and 
thereby contribute to the economic performance of the enterprise. Quite 
apart from the human aspects, in particular the suffering caused to workers 
and their families, the economic consequences are considerable. 
The Community must therefore continue to pursue its objective of bringing 
about further improvement in safety and health at the workplace so as to 
reduce the costs involved. There can be no let-up in efforts to reduce the 
number of accidents at work and occupational diseases in order to protect 
workers, reduce the associated costs and improve the competitiveness of 
enterprises. 
In this connection, it makes sense to supplement the Community 
legislation in the field of health and safety at work with an instrument 
enabling the Community to encourage, particularly through financial 
support, activities and operational programmes intended to: 
provide the necessary funding, under the SAFE (Safety Action for Europe) 
programme, for improving safely, hygiene and health at work, particularly 
in small and medium-sized enterprises (SMEs). 
9.2.3 Monitoring and evaluation of the operation 
Performance indicators: 
* output indicators (measurement of activities undertaken), 
* impact indicators according to the objectives pursued. 
Details and frequency of planned evaluation. 
Appraisal of results obtained. 
49 
10 ADMINISTRATIVE EXPENDITURE (PART A OF THE BUDGET) 
Actual mobilisation of the necessary administrative resources will be conditioned 
by the Commission's annual decision on the allocation of resources, having regard 
in particular to additional staff and funds provided by the budgetary authority. 
10.1 Effect on number of posts 
Types of post 
Officials A 
or temporary B 
staff C 
Other resources 
Total Staff to be engaged in 
administering the 
operation 
permanent 
posts 
13 
4 
8 
25 temporary 
posts 
1 
1 entailing 
utilisation of existing 
resources within the 
DG or department 
concerned 
13 
5 
8 
26 deployment of 
additional 
resources Duration 
Indicate the schedule governing any additional resources required. 
10.2 Overall financial effect of additional human resources 
Amounts Method of calculation 
50 
10.3 Increase in other administrative expenditure arising from the 
operation 
Budget heading 
A2511 
Senior Labour Inspectors 
Committee 
Committee of experts: limit 
values 
Committee of experts: 
evaluation techniques 
A2500 
Private experts: programme 
follow-up 
A1300 
Missions 
Total Amounts 
261 800 
528 000 
415 000 
231 000 
220 000 
400 000 
2 305 800 Method of calculation 
Experts Days Frequency/year Number yean Total Value 
34 x 2 x 5 x 770 (2 days/government experts) 
8 x 15 x 5 x 880 (1 day/private experts) 
21 x 4 x 5 x 988 (2 days/private experts) 
15 x 4 x 5 x 770 (2 days/government experts) 
5 x 10 x 5 x 880 (1 day/private experts) 
Bxl: 10 x 10 x 200 = 20 000 (annual) 
Other: 50 x 1200 = 60 000 (annual) 
The amounts correspond to the total expenditure for the operation if it is of specified 
duration or to the expenditure for 12 months if the duration is unspecified. 
51 



ISSN 0254-1475 
COM(95) 282 final 
DOCUMENTS 
EN 04 05 
Catalogue number : CB-CO-95-316-EN-C 
ISBN 92-77-90892-0 
Office for Official Publications of the European Communities 
L-2985 Luxembourg 
52