ARCHIVESHISTORIQUES
DELACOMMISSION
COLLECTION RELIEE DES
DOCUMENTS "COM"
COM (80)32
Vol.1980/0014

Disclaimer
Conformément aurèglement (CEE, Euratom) n°354/83 duConseil du1erfévrier 1983
concernant l'ouverture aupublic desarchives historiques delaCommunauté économique
européenne etdelaCommunauté européenne del'énergie atomique (JOL43du15.2.1983,
p.1),telquemodifié par lerèglement (CE, Euratom) n°1700/2003 du22septembre 2003
(JOL243du27.9.2003, p.1),cedossier estouvert aupublic. Lecaséchéant, lesdocuments
classifiés présents dans cedossier ontétédéclassifiés conformément àl'article 5dudit
règlement.
Inaccordance with Council Regulation (EEC, Euratom) No354/83 of1February 1983
concerning theopening tothepublic ofthehistorical archives oftheEuropean Economic
Community andtheEuropean Atomic Energy Community (OJL43,15.2.1983, p.1),as
amended byRegulation (EC, Euratom) No1700/2003 of22September 2003 (OJL243,
27.9.2003, p.1),this fileisopen tothepublic. Where necessary, classified documents inthis
filehave been declassified inconformity with Article 5oftheaforementioned regulation.
InÜbereinstimmung mitderVerordnung (EWG, Euratom) Nr.354/83 desRates vom 1.
Februar 1983 über die Freigabe der historischen Archive der Europäischen
Wirtschaftsgemeinschaft undderEuropäischen Atomgemeinschaft (ABI. L43vom 15.2.1983,
S.1),geändert durch dieVerordnung (EG, Euratom) Nr.1700/2003 vom 22.September 2003
(ABI. L243vom 27.9.2003, S.1),istdiese Datei derÖffentlichkeit zugänglich. Soweit
erforderlich, wurden dieVerschlusssachen indieser Datei inÜbereinstimmung mitArtikel 5
dergenannten Verordnung freigegeben.

COMMISSION OFTHEEUROPEAN COMMUNITIES
COM(80)32 final
Brussels .1stFebruary 1980
v /' ^ * \
L.Ï s%%i i .*?> -1
tk ~;ira
ν-ΛΛ
FIRST REPORT FROM THE COMMISSION TOTHE COUNCIL
ONTHE ACTION PROGRAMME OFTHE EUROPEAN COMMUNITIES
ONSAFETY AND HEALTH ATWORK
COM(oO )32final

-ls-
INTRODUCTION
Background totheprogramme
The Council resolution of29June 1978 onanaction programme ofthe
European Communities onSafety and Health atWork (OJC165 of11.7.1978 )
invites the Commission tosubmit anannual report onthe progress made
inimplementing this resolution . _ * .
This action programme figures among arange ofimportant and somewhat
similar activities which are currently being undertaken bythe Commis­
sion .The various actions are based onatotal programme which direct­
lyconcerns the life and working conditions ofworkers ,whilst atthe
same time dealing with aspects ofthe social infrastructure ofour
society .Thus the physical and social interests ofmore than 100
million workers will becovered bythis action programme .
Theprogramme finds its place among arange ofmeasures that are re­
quired bytoday 'sindustrial society .Such society brings with itboth
benefits aswell asrisks ,and these risks bear both upon people working
infactories and workplaces aswell asthose inareas outside . In
today 'sworld ,thepopulation ingeneral isbecoming more aware ofthese
direct and indirect dangers . Itisthe task ofthose who are respon­
sible torecognize this complex ofproblems and totake action todimi­
nish risks totheminimum byincreasing worker safety and health such
that thedignity ofman atwork ismaintained and improved .
Modern developments intoday 'sindustrial society inthe technical area
and inthe production process require constant supervision ,and some­
times involve the implementation ofstrict measures which themselves
involve workers .
* i -
These elements ,and others like them ,form the basis ofthe action
programme which initself reflects one ofthe important concerns ofthe
Commission -namely tocontribute tothewell-being ofman atwork as
part ofthe socio-economic structure ofthe Economic Community .
This first report isconcerned with giving anoverall view . Itbegins
bypresenting abrief summary ofthe Community 'sAction Programme on .
Safety and Health atWork ,'then goes ontodiscuss the implementation of
that programme .The report seeks togive apicture ofthe work that
has been undertaken ,but itdoes not cover all details ofthe work that
has been carried out inthepast year .There are many studies and
working groups ,whose efforts areonly now coming tofruition and from
which conclusions still have tobedrawn .
The report concentrates primarily onactivities which have already led
orare about tolead toproposals ordrafts bythe Commission tothe
Council ,inthe form ofdirectives ,decisions ,orresolutions .
Itisimportant tostress that themany actions undertaken within the
framework ofthe Coal and Steel and the Euratom treaties and also aimed
atincreasing the safety andhealth atwork ,arenotcovered bythis
report .

-2-
One ofthe most important proposals that has been sent tothe Council
concerns a"Proposal for aCouncil Directive onthe protection of
workers from harmful exposure tochemical ,physical andbiological
agents atwork"' (QJC89 of5.4.1979 ). This proposal was submitted to
the Council on6March 1979 and was considered bythe first working
group ofexperts oftheCouncil on19June 1979 .
Itisclear that although much has been achieved inthepast year tthere
isstill alot that needs tobeperformed inthe future . Ithas not
been possible toachieve all that was hoped for inthe first year ,
principally because ofashortage ofmanpower .Despite this shortage ,
with the support ofthe Council ,the Parliament ,and the Economic and
Social Committee ,theprogramme has resulted inseveral important ini­
tiatives being taken inthe field ofsafety and health atwork .How­
ever the fulfilment ofthis programme inanadequate fashion between now
and 1982 can only beassured bythe correction ofthis manpower shortage .
Actions tobeundertaken
Initsresolution theCouncil agreed that the following actions could be
undertaken uptothe end of1982 :
Accident and disease aetiology connected with work –Research .
1.Establish ,incollaboration with theStatistical Office ofthe
European Communities ,acommon statistical methodology inorder to
assess with sufficient accuracy the frequency ,gravity and causes
ofaccidents atwork ,and also themortality ,sickness and absen­
teeism rates inthe case ofdiseases connected with work *
2.Promote theexchange ofknowledge ,establish theconditions for
close cooperation between research institutes and identify the
subjects for research tobeworked onjointly .
Protection against dangerous substances .
3.Standardize the terminology and concepts relating toexposure
limits for toxic substances .Harmonize the exposure limits for a
certain number ofsubstances ,taking into account the exposure
limits already inexistence .
4.Develop apreventive andprotective action for substances recog­
nized asbeing carcinogenic ,byfixing exposure limits ,sampling
requirements andmeasuring methods ,and satisfactory conditions of
hygiene atthework place ,andbyspecifying prohibitions where
necessary .
5.Establish *forcertain specific toxic substances such asasbestos ,
arsenic Fcadmium ,lead and chlorinated solvents ,exposure limits ,
limit values forhuman biological indicators ,sampling requirements
andmeasuring methods ,and satisfactory conditions ofhygiene at
•theworkplace .

6.Establish acommon methodology for the assessment ofthe health
risks connected with thephysical ,chemical andbiological agents
present attheworkplace ,inparticular byresearch into criteria
ofharmfulness and bydetermining the reference values from which
toobtain exposure limits . _• '
7.Establish information notices onthe risks relating toandhand - '
books onthe handling ofacertain number ofdangerous substances
such aspesticides ,herbicides ,carcinogenic substances ,asbestos ,
arsenic ,lead ,mercury ,cadmium and chlorinated solvents .
Prevention ofthe dangers and harmful effects ofmachines
8. Establish the limit levels for noise and vibrations atthe work­
place and determine practical ways and means ofprotecting workers
and reducing sound levels atplaces ofwork .Establish the per­
missible sound levels ofbuilding-site equipment and other machines
«
9.Undertake ajoint study ofthe application ofthe principles of
accident prevention and ofergonomics inthedesign ,construction
andutilization oftheplant andmachinery ,and promote this appli­
cation incertain pilot sectors ,including agriculture .
10.Analyse theprovisions andmeasures governing themonitoring ofthe
effectiveness ofsafety andprotection arrangements and organize an
exchange ofexperience inthis field .
Monitoring and inspection -improvement ofhuman attitudes
11.Develop acommon methodology formonitoring both pollutant concen­
trations and themeasurement ofenvironmental conditions atplaces
ofwork »carry out inter comparison programmes and establish refe­
rence methods for the determination ofthe most important pollu­
tants .Promote new monitoring andmeasuring methods for the
?assessment ofindividual exposure ,linparticular through theappli­
cation ofsensitive biological indicators .Special attention will
begiven tothemonitoring ofexposure inthe case ofwomen ,es­
■'pecially ofexpectant mothers ,and adolescents .Undertake ajoint
study oftheprinciples andmethods ofapplication ofindustrial
medicine with aview topromoting better protection ofworkers'
health . .
12.Establish theprinciples and criteria applicable tothe special
monitoring relating toassistance orrescue teams inthe event of
accident ordisaster ,maintenance andrepair teams and the isolated
worker .
13.Exchange experience concerning theprinciples andmethods oforga­
nization ofinspection bypublic authorities in*the fields of
safety ,hygiene atwork andoccupational medicine . y
14.Draw upoutline schemes ataCommunity level forintroducing and
providing information onsafety andhygiene matters atthework­
place toparticular categories ofworkers such asmigrant workers ,
newly recruited workers andworkers who have changed jobs .

«4«
Implementation ofthe action programme
1.Advisory Committee onSafety ,Hygiene and Health Protection atWork
«
Since itisessential toencourage the increasing participation ofmana­
gement and labour inthe decisions and initiatives inthe field of
safety ,hygiene and health protection atwork atall levels ,particu­
larly atthe level ofthe undertaking ,the Advisory Committee onSafety ,
Hygiene and Health Protection atWork ,set upbyCouncil Decision
74/325/EEC of27June 1974 (OJNo.L185 of9.7.1974 )hasbeen closely
associated with this work .The Council has appointed the members and
alternate members ofthis Committee inits Decision 78/1014 /EECof23
November 1978 (OJNo.L349 of13.12.1978 )fortheperiod from 23Novem­
ber 1978 to22November 1981 .
Inorder toadapt its structure totheCommunity action programme ,the
Committee extended the terms ofreference ofits three working parties ,
giving them the following titles :
Working Party I "Technical Preventive Measures and Regulations
Relating toHealth and Safety atWork "
Working Party II "Statistics andResearch "
Working Party III "Role ofBoth Sides ofIndustry ,Problems of
Training and Information .
For thepurpose ofliaison and cooperation with the European Foundation
for the Improvement ofLiving and Working Conditions ,the Committee
invited anobserver from this organization toattend itsmeetings .
The Commission has ,during thepast year ,received much welcome advice
from the Committee ,and this cooperation will continue inthe applica­
tion ofthis Programme ofAction .
2. Work onIndividual Actions .
Action 1.-Statistics .The only Community statistics onaccidents at
work whidh currently exist are those concerned with coal and steel .The
Commission has been unable todevelop adequately these statistics for
other areas due toalack ofmanpower .Nevertheless studies are *
currently underway relating totheconstruction industry and anindepth
sectorial survey isalso being conducted inthe steel industry ..A
detailed analysis ofthese results will becarried out in1980 sothat
the major factors involved inaccidents can beidentified with aview to
developing appropriate preventive measures .
Asregards other statistics relating tomortality sickness and absen­
teeism ,theCommission issimilarly limited bythemanpower shortages .
Action 2. "Research .The research programmes inthe coal and steel
industry arecontinuing ,and theCommission isusing theapproaches
adopted inthis area asamodel fordefining anapproach toresearch
policy -inthe field ofsafety andhealth atwork fortheother sectors
oftheeconomy ,aswell asidentifying suitable subjects forresearch ._
This work isbeing pursued further together with theEuropean Foundation
forthe Improvement ofLiving andWorking Conditions .Itisantici ^
pated that aframework research programme will beelaborated in1981 .

The Commission has also launched afeasibility study concerned with a
documentation system for .allresearch projects andresearch inprogress
inthe field ofoccupational health .
Action 3.Concepts ,terminology and exposure limits .Astudy has
already been completed entitled "Comparative analysis oftheprinciples
andapplication ofcontrol limits intheMember States oftheEuropean
Community ".This study shows thewide differences interminology and
concepts currently existing between Member States regarding exposure
limits ,-and that these concepts sure inastate ofcontinual development .
Meetings ofnational experts have already been held todiscuss this
study and itisplanned tohold further meetings tofinalize it,and to
provide elements for theharmonization which ,isurgently needed at
Community level . f
This work isbeing conducted inclose cooperation with ILO andWHO ,but ,
itisobvious that for the Member States there isanurgent need to
achieve common agreement onthewords used ,and todefine asclosely as
possible the different terms innational regulations which often dohot
cover the same things .
\
Action 41.Carcinogens .The Commission isdrawing upapolicy of
specific action onthe carcinogens .Tothis effect itconsiders that a
general .Directive dealing with theprinciples ofprevention and protec­
tion will beappropriate jthis will beproposed inthe near future .
This policy will take into account the International Labour Conference
Convention No.139 and Recommendation No.147 concerning prevention and
control ofoccupational hazards caused bycarcinogenic substances and
agents . Inaddition the Commission will continue its active collabo­
ration with the International Agency forResearch onCancer .
ADirective dealing with acarcinogen has airedybeen accepted .This
isthe Council Directive onthe approximation ofMember States' laws ,
regulations and administrative provisions onthe health ofworkers ex­
posed tovinyl chloride monomer (OJL197of22.7.1978 ).
Action 5. Specific toxic substances .The Commission has sent tothe
Council aproposal for aCouncil Directive ontheprotection ofworkers
from harmful exposure tochemical ,physical andbiological agents at
work (OJC89of5.4.1979 )onwhich discussions byaworking group of
theCouncil began inJune . .
The objective ofthis Directive istheprotection ofworkers who are or
who are likely tobeexposed atwork torisks totheir health ^ndsafety
arising from chemical ,physical andbiological agents ,including the
prevention ofsuch risks through elimination orlimitation oftheexpo­
sure oftheworkers concerned tothese agents . -A
This Directive ,which will affect themajority oftheworkers inthe
Community ,requires that Member states enact framework legislation which
will ensure that exposure ofworkers toagents shall bekept aslow as
canbereasonably achieved .Such legislation shall include thepossi­
bility of:

introducing prevention atthe technical level ;
- establishing exposure limit values not tobeexceeded aswell as
sampling procedures and measuring methods ;
- introducing collective andpersonal protection measures ;
setting -hygiene requirements ; '*
- providing information forworkers onthepotential risks towhich
they acre exposed ,and the technical preventive measures taken ;
setting requirements for the precautions tobetaken bytheem­
ployer and "theworker ? -
- introducing the use ofwarning and safety signs ; .
- requiring medical surveillance ;
- keeping updated records ofexposure levels ,lists ofworkers ex­
posed toagents and medical records ; -^
- introducing emergency procedures for abnormal exposures .
The Commission further proposed that :
- workers and/ortheir representatives shall beinvolved with the
elaboration an$ application ofthe above provisions ;
- aworker shall not suffer undue prejudice from these provisions ,in
particular ifthere isthe need toremove him from exposure toany
ofthe agents ; "- * •
- the application ofthese provisions should not lead toundue ef­
fects outside theworkplace ,such asincrease inpollution levels .
The Commission recognized that for acertain number ofagents further
specific proposals for Directives would berequired .The following
additional measures are toapply tothese agents :
- health surveillance should begin prior toexposure ,continue peri­
odically during exposure and also take place following the endof
exposure ; '
- workers shall beprovided with the results ofexposure measurements
*andwhere appropriate with the results ofgroup biological tests of
exposure ;similarly individual workers shall have access ,where
appropriate ,tothe results oftheir own biological tests ofexpo­
sure .Inorder toassist them with the interpretation ofthe
results and tofurther inform them ofthe potential hazards ofthe
agents specifically prepared information and documentation at
7national and/orCommunity levels shall bemade available .
Finally ,inthis proposal for adirective the Commission recognized that
anumber oftheprovisions areofatechnical orscientific nature which
will inthefuture require further elaboration and adaptation totech­
nical and scientific progress .The Commission therefore proposed the
setting up -ofaTechnical Committee called "The Industrial Medicine and
Hygiene Committee "which would function according towell established
rules andwould have competence for all these technical matters .
With regard tothespecific proposals forDirectives ,theCommision has
just submitted totheCouncil aproposal onlead ;aproposal onasbes­
tos will follow .

Action 6. Assessment ofrisks . Anumber ofcriteria studies (dose /
effect relationships )have already been performed and published .These
include lead ,asbestos ,cadmium and organophosphorus pesticides .These
studies have complemented the work ofWHO ,ILO and other international
bodies who have also performed similar work thus obviating the need for
Member States toperform similar exercises and resulting inaneconomy
ofeffort .The results ofthese studies have already been used bythe
Commission inevaluating the risks tohuman health due toexposure and
thus provide the necessary elements for legal instruments which are to
besubsequently submitted tothe Council .
Action 7. Information notices . The Commission considers that the
Council Directive of25July 1977 onthe approximation ofthe laws ,
regulations and administrative provisions ofthe Member States relating
totheprovision ofsafety signs atplaces ofwork (OJNo.L229 of
7.9.1977 )isanimportant step inhaving acommon basis for the infor­
mation ofworkers concerning the dangers and the necessary safety pre­
cautions attheworkplace .The Commission has already held meetings of
theCommittee concerned with amendments totechnical progress and to
future developments ininternational methods regarding signs .An
adaptation tothis Directive has already been made ,taking into account
the viewpoint ofthe Advisory Committee inthe Commission Directive of
21June 1979 amending the Annexes (OJNo.L183 of19.7.1979 ).
Work has already begun onthepreparation ofinformation notices and a
firpt draft has been prepared onlead . Itwill shortly besubmitted
for opinion tothe Advisory Committee . The Commission intends touse
thecriteria (dose /effect relationships )documents already published on
asbestos (EUR 5653e )and cadmium (EUR 5697 )asbackground documents for
thepreparation ofinformation notices onthese agents .
Action 8.Noise and vibrations .Onthe subject ofnoise the Commis­
sion has already published areport on "Damage and annoyance caused by
noise "EUR 5398 . The Commission intends touse this document asone of
thebackground elements indrawing upaproposal onlimitation ofnoise
atwork .
Action 9.Accident prevention ,ergonomics .The majority ofthework
inthis area has been carried out inthe coal and steal sector . Inthe
coal and steel industries ,the Commission has established the principles
for accident prevention which takes into account the concept ofinte­
grated safety .Ergonomic research isbeing carried out notonly atthe
workplace but also innational institutes ,which will thus lead toa
significant improvement inthe safety andquality oflife atthe work­
place .The Commission iscurrently studying how similar principles can
beapplied tothe construction industry and tothe agricultural sector .
Action 10.Monitoring ofsafety and protection .The Commission has
already instituted studies concerned with toxicovigilance systems . It
isanticipated that systems ofthis nature will give anearly warning of
new andpreviously unknown hazards toman'shealth and safety atwork .
With regard tothedissemination ofinformation concerning such newly
identified hazards ,aworkshop was held bytheCommission inconjunction
with ILOonahazard alert system .The aim ofthis system istopass
information about newly discovered hazards intheworkplace ,andhow to
protect against them rapidly through aninternational network ofcolla­
borating centres .

Action 11.Intercompanson programmes ,biological monitoring ,
industrial medicine . Within the framework ,ofthe Council Directive on
biological screening ofthepopulation for lead (OJNo.L105 of28.4.1977 )
the Commission has already carried out i-rork involved with the quality
assurance oflead measurements ,which itisintended todevelop for the
work situation .
The Commission isinthe process ofpublishing ,aseries ofmonographs on
biological monitoring ;These monographs areintended asuptodate
reviews oftheavailable data onanumber ofpbllutants with aview to
indicating' thepossibilities ofcarrying outbiological monitoring .
(
Astudy hasbeen completed bythe'Commission onoccupational medical
services ,and afirst meeting ofexperts held . Itisanticipated that
further meetings will benecessary toformulate clear proposals .
Action 12. Special Monitoring . Inthe last decade asignificant
number ofchemical accidents ,which may beconsidered asmajor acci­
dents ,have occurred both within the Community and inother countries .
The Flixborough ,Seveso and Manfredonia accidents inthepast five years
have finally prompted not only the Member States but also the Community
toact .
t
The proposal for aCouncil Directive ontherisk ofmajor accidents in
certain industrial activities (OJC212of24.8.1979 ),iskiraed atpre­
venting such accidents and atreducing their consequences when they
occur .
Amajor accident isdefined as:
Amajor emission ,fire orexplosion involving one ormore dangerous
substances ,resulting from the uncontrolled development ofan
industrial activity ,which could constitute aserious risk ,imme­
diate ordelayed ,forworkers ,theneighbouring population and tha
environment .
The proposal requires ,ingeneral ,for industrial activities ,orstorage
which involve dangerous substances ,andwhich cure likely tolead to
sejrious consequences inthe case ofanaccident ,that :
asafety report bedrawn up, *
■workers beinformed ,equipped and trained ,
safety drills beorganized ,
- *theneighbouring population beinformed and anemergency plan
established .
Inaddition when certain particularly toxic ,persistant exploding or
flammable substances arepresent inquantities exceeding certain limits
then notification with amore substantial dossier iscompulsory .Such
adofesier isalso necessary ifthesubstances fall within certain cri­
teria oftoxicity .
Member States are toinform immediately the Commission ofanymajor
accidents occurring ontheir territory !theCommission istosetupa
data bank which will contain information :

-g-
- onthe major accidents which have occurred ;
- onthe risks ofmajor accidents considered bytype ofindustrial
activity >
- onthehazards which might arise inthe case ofmajor accidents ;
onthe appropriate measures for reducing the risks . '
Action ,13. Inspection bypublic authorities .The Commission is
planning ajoint study together with the International Labour Office and
the European Foundation for /the Improvement ofLiving and Working Condi­
tions .
Action 14.Schemes for information toparticular categories of
workers .This action hasnot been developed inview ofthemanpower
shortage .
CONCLUSION '
Inspite ofthe very modest staff means available tothe Commission for
the implementation ofthis action programme ,several important -initia­
tives have been undertaken ,and anumber ofdetailed proposals have been
submitted tothe Council .The approval ofthese proposals bythe
Council will help toachieve abetter andmore harmonized protection of
the safety and health ofworkers atCommunity level .