COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU strategic framework on health and safety at work 2021-2027 Occupational safety and health in a changing world of work
Date: 2021-06-28
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: EU strategy, incapacity for work, labour law, occupational accident, occupational disease, occupational health, workplace

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 28.6.2021  COM(2021) 323 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS EU strategic framework on health and safety at work 2021-2027  Occupational safety and health in a changing world of work {SWD(2021) 148 final} - {SWD(2021) 149 final}  
 
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

EU strategic framework on health and safety at work 2021-2027  
Occupational safety and health in a changing world of work 

1.  OCCUPATIONAL SAFETY AND HEALTH IN THE EU 

1.1.  The value of health and safety at work 

EU occupational safety and health (OSH) legislation is essential to protect the health and 
safety of the almost 170 million workers in the EU1. Protecting people from health and 
safety  hazards  on  the  job  is  a  key  element  of  achieving  sustained  decent  working 
conditions for all workers. It has allowed to reduce health risks at work and to improve 
OSH  standards  across  the  EU  and  across  sectors.  However,  challenges  remain  and  the 
Covid-19 pandemic has exacerbated risks that need to be addressed. 

The protection of workers’ health and safety, enshrined in the Treaties2 and the Charter 
of  Fundamental  Rights3,  is  one  of  the  key  elements  of  an  EU  economy  that  works  for 
people.    The  right  to  a  healthy  and  safe  workplace  is  reflected  in  principle  10  of  the 
European  Pillar  of  Social  Rights,  and  is  fundamental  for  reaching  the  United  Nations’ 
sustainable development goals4. It is also a building block of the European Health Union 
under construction.  

The new 2021-2027 OSH framework, announced in the European Pillar of Social Rights 
action  plan5,  sets  out  the  key  priorities  and  actions  necessary  for  improving  workers’ 
health  and  safety  over  the  coming  years  in  the  context  of  the  post-pandemic  world, 
marked with green and digital transitions,  economic and demographic challenges and the 
changing notion of a traditional workplace environment.  

Healthy  and  safe  working  conditions  are  a  prerequisite  for  a  healthy  and  productive 
workforce.  Nobody  should  suffer  from  job  related  diseases  or  accidents.  It  is  also  an 
important aspect of both the sustainability and competitiveness of the EU economy.  

1   Eurostat, lfsa_eegan2, employees only (excluding family workers) 
2   https://europa.eu/european-union/law/treaties_en 
3    Charter of Fundamental Rights of the European Union, OJ C 326, 26.10.2012, p. 391 
4   https://sdgs.un.org/goals 
5   https://ec.europa.eu/info/strategy/priorities-2019-2024/economy-works-people/jobs-growth-and-

investment/european-pillar-social-rights/european-pillar-social-rights-action-plan_en 

1 

 
 
 
 
                                                 
in  OSH: 

Figure 1: Fatal accidents at work in the EU –  
1994-2018 (cases per 100,000 employed persons) 

The  last  three  decades  have  brought 
fatal 
significant  progress 
accidents at work in the EU decreased by 
about  70%  between  1994  and  2018 
(Figure  1).  While  factors  such  as  de-
industrialisation  and  better  medical  care 
have  undoubtedly  contributed 
this 
decrease,  the  EU  OSH  system  has  also 
played  a  substantial  role.  Despite  this 
progress, there were still over 3 300 fatal 
accidents  and  3.1  million  non-fatal 
accidents in the EU-27 in 2018, and over 
200 000  workers  die  each  year  from 
work-related  illnesses.  This  brings  immense  human  suffering.  Maintaining  and 
improving  protection  standards  for  workers  is  therefore  an  ongoing  challenge  and 
necessity. 

Source: Eurostat, data for common economic sectors 
in EU-15 (1994 - 2009), and for all economic sectors 
in EU-27 (2010 - 2018). 

to 

accidents 

Figure  2:  Costs  to  society  of  work-related  injury 
and illness, 2019 (billion €) 

Besides health and wellbeing, there is a strong economic case for a high level of worker 
protection.  Work-related 
and 
illnesses cost the EU economy over 3.3% of 
GDP annually6 (ca. EUR 460 billion in 2019) 
(Figure  2).  While  the  cost  to  wellbeing 
behind these numbers is unquantifiable, good 
practice in OSH helps make businesses more 
productive,  competitive  and  sustainable. 
Estimates  show  that  for  every  euro  invested 
in  OSH,  the  return  for  the  employer  is 
around  twice  as  much78.  A  solid  OSH 
supportive  structure  catering  for  the  specific 
needs  of  SMEs,  the  backbone  of  the  EU 
economy, will provide a vital contribution to 
a  sustainable  economy  and  to  the  success  of  OSH  in  the  EU  at  large.  Good  OSH  also 
reduces  healthcare  costs  and  other  societal  burdens,  in  contrast,  the  costs  of  poor  OSH 
are high for individuals, businesses and society. 

Source: “An international comparison of the cost of 
work-related  accidents  and  illnesses”  (EU-OSHA, 
2017),  estimation  based  on  Eurostat  and  World 
Bank data. 

The Covid-19 pandemic has shown how crucial OSH is  for protecting workers’ health, 
for the functioning of our society, and for the continuity of critical economic and social 
activities.  Therefore,  the  road  to  recovery  and  reactivation  of  productivity  must  also 

6   This figure was calculated by using the percentage of disability adjusted life years (DALYs) in the total 
number  of  working  years  of  the  EU  working  population  multiplied  by  the  EU  GDP.  DALYs  are 
calculated by summing up the years of life lost (YLL) and years lived with a disability (YLD), for fatal 
and non-fatal work-related accidents and illness. 

7   European  Commission,  Directorate-General  for  Employment,  Social  Affairs  and  Inclusion,  ‘Socio-

economic costs of accidents at work and work-related ill health – final report’, 2011.  

8   Tompa,  E.    “IWH  economic  analysis  recommends  a  combination  of  methods  to  reduce  silica  dust 

exposure”, At Work, Issue 101, Summer 2020: Institute for Work & Health, Toronto. 

2 

 
                                                 
 
include the renewed commitment to keep occupational safety and health at the forefront 
and to improve the synergies between OSH and public health policies.  

1.2.  The EU system at work 

Two factors help explain the achievements of the EU approach to OSH. Firstly, the EU 
and  Member  States  have  developed  an  advanced  regulatory  system  to  lay  down  the 
preventive and protective measures to  address  occupational  risks. Secondly, it relies on 
the  tripartite  approach  whereby  workers,  employers  and  governments  are  closely 
involved  in  the  development  and  implementation  of  these  OSH  measures  at  EU  and 
national  level.  Moreover,  the  continuous  support  provided  in  particular  to  micro 
enterprises and SMEs helps the correct application of the OSH rules.   

The  EU  OSH  legislative  framework  consists  of  a  framework  directive  and  24  specific 
directives  developed  over  time.  The  1989  European  Framework  Directive  on  Safety 
and  Health  at  Work9  is  the  basis  for  common  principles  and  minimum  standards 
across  the  EU.  It  focuses  on  a  risk-prevention  culture  and  lays  down  employers’ 
obligations  on:  (i)  risk  assessments;  (ii)  preventive  measures;  (iii)  giving  OSH 
information  to  workers;  (iv)  training;  (v)  consultation;  and  (vi)  balanced  participation. 
These obligations apply across all sectors and professions and to both public and private 
employers. Specific directives address particular risks, groups and settings10. 

EU OSH legislation is developed in close cooperation with the Advisory Committee on 
Safety  and  Health  at  Work  (ACSH)11,  a  tripartite  body  composed  of  national 
government  representatives,  trade  unions  and  employers’  organisations.  The  European 
Agency  for  Safety  and  Health  at  Work  (EU-OSHA)  provides  guidelines  and  tools, 
which,  together  with  similar,  national,  internet-based  tools:  (i)  provide  sector-specific 
information  primarily  targeted  at  small  and  medium-sized  enterprises  (SMEs)    as  they 
employ the majority of the workers in the EU, and often face higher obstacles to ensure 
occupational  health  and  safety;  and  (ii)  guide  employers  through  all  steps  of  the  risk-
assessment  process12.  The  Senior  Labour  Inspectors  Committee  (SLIC)13  provides 
opinions on the enforcement of EU OSH legislation and promotes knowledge sharing on 
labour-inspection practices. 

9   Council Directive of 12 June 1989 on the introduction of measures to encourage improvements in the 

safety and health of workers at work (89/391/EEC). 

10  The  implementation of the Framework Directive  and related EU OSH directives for the period 2013-

2017 is presented in the accompanying staff working document SWD(2021) 148/2. 

11   Council  Decision  of  22  July  2003  setting  up  an  Advisory  Committee  on  Safety  and  Health  at  Work 

(2003/C 218/01) OJ C 218 of 13.9.2003. 

12   E.g.  to  date,  250  online  interactive  risk-assessment  (OiRA)  tools  have  been  published,  and  over  70 
more  are  under  development.  More  than  173 000  risk  assessments  have  been  carried  out  with  these 
tools. 

13   Representing Member State labour inspection bodies. 

3 

 
                                                 
1.3.  Building on previous strategic frameworks and a broad consultation  

For close to 20 years now, EU OSH strategic frameworks have  played a pivotal role in 
the  way  national  authorities  and  social  partners  decide  on  OSH  objectives.  These 
objectives  include  (i)  increasing  alignment  on  common  priorities;  (ii)  facilitating 
cooperation;  (iii)  triggering  investment  in  OSH;  and  (iv)  promoting  concrete  actions  at 
workplace level. 

The  key  priorities  of  the  2014-2020  strategic  framework14,  such  as  prevention  of 
work-related  diseases,  addressing  demographic  change  and 
implementation  of 
legislation,  were  echoed  throughout  the  national  frameworks15.  Some  of  the  key 
achievements at EU level under the previous strategic framework include: (i) 3 updates 
of  the  Carcinogens  and  Mutagens  Directive16  and  a  proposal  for  a  fourth  update;  (ii) 
modernisation updates of 4 directives including in the areas of exposure limit values and 
biological agents; (iii) a great number of widely used EU-OSHA guidelines and online 
tools  for  employers,  including  on  COVID-19;  and  (iv)  inspection  guides  and  tools 
developed by the SLIC.  

This  strategic  framework  builds  on  a  stocktaking  exercise  of  the  achievements  in  the 
implementation of the EU strategic framework on health and safety at work 2014-2020. 
The  stocktaking  exercise  identified  a  number  of  challenges  linked  to  shorter-term 
implementation of the strategic framework in light of: (i) resource constraints in Member 
States;  (ii)  the  need  to  increase  focus  on  occupational  diseases,  demographic  change, 
psychosocial risks and musculoskeletal disorders; and (iii) the need to help both labour 
inspectorates and companies improve their OSH standards. 

This strategic framework is also based on  input from a broad range of stakeholders, 
mirroring the commitment of all actors in its implementation. The groundwork was laid 
by an EU-OSHA report on the national OSH strategies, a specific evaluation report, and 
advanced survey tools. Additional crucial input to the framework came from: (i) several 
Council  conclusions17;  (ii)  reports18,  recommendations,  hearings  and  other  exchanges 
with  the  European  Parliament;  (iii)  exchanges  with  social  partners,  and  independent 
experts;  (iv)  replies  from  an  open  public  consultation;  and  (v)  the  opinion  from  the 
ACSH.  

14   Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the  European 
Economic and Social Committee and the Committee of the Regions on an EU Strategic Framework on 
Health and Safety at Work 2014-2020, COM (2014) 332 final 

15   National Strategies in the field of Occupational Safety and Health in the EU report. EU-OSHA 2019. 
16   Directive 2004/37/EC of the European Parliament and of the Council of 29 April 2004 on the protection 

of workers from the risks related to exposure to carcinogens or mutagens at work. 

17   Council Conclusions of 13 June 2019 ‘The changing world of work: reflections on new forms of work 
and implications for the safety and health of workers’ (Romanian presidency); Council Conclusions of 
10  December  2019  ‘A  New  EU  Strategic  Framework  on  Health  and  Safety  at  Work:  Enhancing  the 
implementation  of  Occupational  Safety  and  Health  in  the  EU’  (Finnish  presidency);  Council 
Conclusions of 8 June 2020 ‘Enhancing Wellbeing at Work’ (Croatian presidency). 

18   European  Parliament  resolution  of  19  January  2017  on  a  European  Pillar  of  Social  Rights 
(2016/2095(INI)); European Parliament resolution of 17 December 2020 on a strong social Europe for 
Just Transitions (2020/2084(INI)) 

4 

 
                                                 
It  also  builds  on  the  information  provided  by  the  assessment  of  the  practical 
implementation of the Framework Directive 89/391/EEC on safety and health of workers 
at work and 23 related EU Directives for the period 2013-2017.  

The  staff  working  document19  and 
communication summarise these outcomes. 

the  synopsis  report20  accompanying 

this 

2.  AN UPDATED VISION FOR OSH – THREE KEY OBJECTIVES 

The priorities of the previous framework remain relevant today. However, further OSH 
action in the EU is needed to make the workplaces fit for the increasingly rapid changes 
in the economy, demography, work patterns, and society at large21. For a certain part of 
the EU workers, the concept of workplace is becoming more fluid but also more complex 
as new organizational forms, business models and industries are emerging. The COVID-
19 pandemic has accentuated these complexities and made OSH and public health policy 
more inter-related than ever before.  

The strategic framework therefore focuses on three crosscutting key objectives for the 
coming years:  

  anticipating and managing change in the new world of work brought about by the 

green, digital and demographic transitions;  
improving prevention of workplace accidents and illnesses;  
increasing preparedness for any potential future health crises.  

 
 

To deliver on these objectives, action is needed at EU, national, sectoral, and company 
level.  

The implementation of these three objectives will be underpinned by: (i) social dialogue; 
(ii) strengthening of the evidence base; (iii) strengthening of enforcement; (iv) awareness 

19   SWD(2021) 148/2. 
20   SWD(2021) 149/2. 
21   ESENER 2019. 

5 

 
                                                 
raising; and (v) funding. 

2.1. 

 Anticipating and managing change  

CHANGE 

The nature of many tasks, work patterns, and workplaces is changing. 
Jobs  that  did  not  exist  a  decade  ago  have  emerged,  fuelled  by  the 
green  and  digital  transitions.  The  European  Green  Deal22,  the  EU 
digital  strategy23,  and  the  new  industrial  strategy  for  Europe24  will 
together:  (i)  generate  major  investments;  (ii)  contribute  to  growth, 
innovation  and  job  creation;  and  (iii)  provide  flexibility  and  opportunities  for  workers, 
businesses,  and  the  self-employed.  The  EUR 1.8 trillion  EU  budget  for  2021-2027, 
including  NextGenerationEU,  will  support  these  initiatives  and  contribute  to  a 
sustainable  recovery.  At  the  same  time,  demographic  change  in  the  form  of  an  ageing 
workforce  in  Europe  requires  continuous  reflection  and  response.  Occupational  health 
and safety plays an essential  role in  this, as workers are  getting older it is  necessary to 
adapt the working environment and tasks to their specific needs and minimise risks. The 
Green Paper on Ageing25 has therefore launched a debate including on the conditions for 
labour market participation of older workers. 

Advances in technology can provide new opportunities for workers at all stages of their 
life  and  career.  Digital  technologies  can  provide  workers,  including  workers  with 
disabilities  or  older  workers,  and  their  employers  with  digitally  enabled  solutions  to 
support  their  health  and  wellbeing.  These  technological  advances  can  offer  increased 
opportunities to improve work-life balance for both women and men, and support OSH 
implementation through accessible tools, awareness raising and more efficient inspection. 
Robotisation, the use of artificial intelligence, and the greater prevalence of remote work 
reduce  the  risks  of  dangerous  tasks,  such  as  those  in  highly  contaminated  areas  like 
wastewater  systems, 
landfills,  or  agricultural-fumigation  areas.  However,  new 
technologies also pose a number of challenges due to both: (i) the increased irregularity 
in  when  and  where  work  is  performed;  and  (ii)  the  risks  related  to  new  tools  and 
machinery. Climate change can also affect workers’ safety and health, including through 
increased ambient temperature, air pollution and extreme weather.   

  Modernising  and  simplifying  EU  OSH  rules  in  the  context  of  the  green  and 

digital transitions 

EU  OSH  legislation  already  covers  many  of  the  risks  that  arise  from  changing 
industries, equipment, and workplaces. Four OSH directives have been modernised in 
recent  years,  covering  personal  protective  equipment,  medical  treatment  on  board  of 

22   https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal_en  
23   https://ec.europa.eu/info/strategy/priorities-2019-2024/europe-fit-digital-age_en 
24   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52020DC0102 
25   https://ec.europa.eu/info/sites/default/files/1_en_act_part1_v8_0.pdf 

6 

 
 
                                                 
vessels, biological agents at work, and exposure to chemical agents26. The Commission 
has  also  proposed  to  revise  the  Machinery  Directive27,  which  addresses  risks  deriving 
from digitalisation and the use of machinery that are also relevant to workers’ health and 
safety. It is also proposing the first legal framework on AI, which addresses the risks of 
certain  AI  systems  used  in  employment,  worker  management  and  access  to  self-
employment28.  Nevertheless,  significant  technological  developments,  notably  in  display 
screen  equipment  and  workplaces,  and  the  developing  needs  and  capacities  of  an 
ageing workforce, require further relevant legislative updates.  Industry 5.029 proposes a 
vision how European industry could lead the green and digital transition by reconciling 
workers’ rights and needs, with technological advancement and planetary boundaries. 

Changing forms of work, stemming among others from digitalisation, with an important 
increase  of  the  population  working  remotely,  will  also  require  new  and  updated  OSH 
solutions. The rapid deployment of wireless, mobile and other advanced technologies  – 
and  the  increased  use  of  such  devices  for  work  purposes  –  require  further  analysis  of  
workers’ exposure to optical radiation and electromagnetic fields, and of possible adverse 
health effects in the case of more powerful appliances.  

The  Commission  is  following  the  overall  developments  of  new  forms  of  work  and 
business models, especially those linked to the internet-enabled on-demand economy. It 
has  launched  a  second  phase  consultation  of  social  partners  and,  unless  social  partners 
are willing to negotiate among themselves, will put forward an initiative to improve the 
working conditions of people working through digital platforms at the end of 202130. One 
key aim of this initiative is to ensure adequate working conditions, including in terms of 
health and safety, of all people working through platforms. This will notably clarify the 
situation as regards to the OSH acquis that applies to people recognised as workers while 
it does not for people qualified as self-employed.  

As implementation begins on several initiatives under the European Green Deal and EU 
chemicals  strategy  for  sustainability31,  the  current  limit  values  of  certain  hazardous 
substances used in existing and emerging sectors need to be reviewed32. This is relevant 
both to the question of green transitions and to the prevention of work related diseases, in 
particular cancer (see also Section 2.2). For lead and cobalt, two hazardous substances 
frequently  used  in  renewable  energy  technologies  and  in  battery  production,  new 

26   Personal  protective  equipment  (Council  Directive  89/656/EEC);  medical  treatment  on  board  vessels 
(Council  Directive  92/29/EEC);  biological  agents  at  work  (Directive  2000/54/EC  of  the  European 
Parliament  and  of  the  Council);  5th  list  of  Indicative  Occupational  Exposure  Limit  Values 
(Commission Directive 2019/1831). 

27   https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/2019-Revision-of-the-

Machinery-Directive  

28   https://digital-strategy.ec.europa.eu/en/library/proposal-regulation-laying-down-harmonised-rules-

artificial-intelligence 

29   https://ec.europa.eu/info/news/industry-50-towards-more-sustainable-resilient-and-human-centric-

industry-2021-jan-07_en 

30   https://ec.europa.eu/social/main.jsp?langId=en&catId=522&furtherNews=yes&newsId=10025 
31   https://ec.europa.eu/environment/pdf/chemicals/2020/10/Strategy.pdf 
32   https://echa.europa.eu/oels-activity-list/-/substance-rev/25140 

7 

 
                                                 
scientific  data  indicates  that  limit  values  should  be  reviewed  or,  in  case  of  cobalt, 
established.  

Another such substance is asbestos. Exposure to asbestos will be a health-risk factor in 
the  renovation  wave33,  which  aims  to  make  buildings  fit  for  a  climate-neutral  future  in 
the context of the European Green Deal. While it can no longer be produced or used in 
the EU, there is a legacy problem for workers with the renovation of buildings that often 
requires the removal of asbestos used many years ago. Exposure to asbestos claims about 
88  000  lives  in  Europe  annually,  accounting  for  55-85%  of  lung  cancers  developed  at 
work, and mortality rates from this exposure are estimated to continue to increase until 
the late 2020s and 2030s34. Strict obligations in terms of protection, planning and training 
already  apply  to  employers.  However,  in  light  of  the  latest  scientific  evidence,  the 
exposure  limit  value  for  asbestos  needs  to  be  lowered.  To  that  end,  the  Commission  is 
launching the second consultation with the social partners35 in parallel with this strategic 
framework.  

  Focus on psychosocial risks 

Already before the pandemic, mental health problems affected about 84 million people36 
in  the  EU.    Half  of  EU  workers  consider  stress  to  be  common  in  their  workplace,  and 
stress  contributes  to  around  half  of  all  lost  working  days.  Nearly  80%  of  managers  are 
concerned about work-related stress37.  

As  a  result  of  the  pandemic,  close  to  40%38  of  workers  began  to  work  remotely  full 
time39. This blurs the traditional boundaries between work and private life and together 
with  other  remote-working  trends,  such  as  permanent  connectivity,  a  lack  of  social 
interaction, and increased use of ICT, has given and additional rise to psychosocial and 
ergonomic risks.  

Evidence  suggests  that  tackling  hazards  to  psychosocial  wellbeing  requires  a  process 
with  different  stages  implying  changes  in  the  work  environment.  The  European 
Commission  is  funding  projects  that  address  these  challenges.  The  projects  aim  to 
develop and implement interventions to promote good mental health and prevent mental 

33   Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the  European 
Economic and Social Committee and the Committee of the Regions: A Renovation Wave for Europe - 
greening our buildings, creating jobs, improving lives, COM/2020/662 final 

34   Working 

with 

energy 
https://www.eesc.europa.eu/en/news-media/news/workers-health-should-not-be-jeopardised-order-
make-buildings-energy-efficient. 

(own-initiative 

renovation 

asbestos 

in 

opinion). 

35   The 

consultation 

here: 
https://ec.europa.eu/social/main.jsp?advSearchKey=consultationsocialpartners&mode=advancedSubmit
&catId=22&doc_submit=&policyArea=0&policyAreaSub=0&country=0&year=0#navItem-1 

documents 

published 

will 

be 

36   https://ec.europa.eu/health/sites/default/files/state/docs/2018_healthatglance_rep_en.pdf 
37   Eurofound  and  EU-OSHA  (2014),  Psychosocial  risks  in  Europe:  Prevalence  and  strategies  for 

prevention, Publications Office of the European Union, Luxembourg. 

38   As  compared  to  the  beginning  of  2020  when  1  in  10  employed  people  in  the  EU  were  working 
remotely, full time, or occasionally, and generally in high-skilled occupations in the information-and-
communications-technology (ICT) and knowledge-intensive sectors. 

39   https://ec.europa.eu/jrc/sites/jrcsh/files/jrc120945_policy_brief_-_covid_and_telework_final.pdf 

8 

 
                                                 
illness  at  work.  In  particular,  the  Horizon  2020  projects  “Magnet4Europe”40  and 
“EMPOWER”41 are expected to  deliver innovative results.  For  essential workers in  the 
health  or  care  sectors,  the  “RESPOND”  project  aims  to  address  adverse  mental  health 
effects due to the COVID-19 pandemic42.  

The Commission will: 

  Modernise  the  OSH  legislative  framework  related  to  digitalisation  by  reviewing 
the  Workplaces  Directive43  and  the  Display  Screen  Equipment44  Directive  by 
2023;  

  Propose protective limit values on:  

o  asbestos in the Asbestos at Work Directive45 in 2022;  
o 
o  cobalt in the Carcinogens and Mutagens Directive in Q1 2024. 

lead and diisocyanates in the Chemical Agents Directive46 in 2022; 

  Launch  an  “EU-OSHA  healthy  workplaces  campaign”  2023-2025  on  creating  a 
safe  and  healthy  digital  future  covering  psychosocial  and  ergonomic  risks  in 
particular. 
In  cooperation with  Member States and social  partners, prepare a  non-legislative 
EU-level  initiative  related  to  mental  health  at  work  that  assesses  emerging 
issues  related  to  workers’  mental  health  and  puts  forward  guidance  for  action 
before the end of 2022.  

 

  Develop the analytical basis47, e-tools and guidance for risk assessments related to 
green  and  digital  jobs  and  processes,  including  in  particular  psychosocial  and 
ergonomic risks.  

  Ask  the  expert  panel  on  effective  ways  of  investing  in  health48,  to  deliver  an 
opinion  on  supporting  the  mental  health  of  healthcare  workers  and  other 
essential workers by the end of 2021. 

  Ensure appropriate follow-up to the European Parliament Resolution on the  right 

to disconnect49. 

The Commission calls on the Member States to:  

40   https://cordis.europa.eu/project/id/848031 
41   https://cordis.europa.eu/project/id/848180 
42   https://www.respond-project.eu 
43   Council  Directive  89/654/EEC  of  30  November  1989  concerning  the  minimum  safety  and  health 

requirements for the workplace. 

44   Council  Directive  90/270/EEC  of  29  May  1990  on  the  minimum  safety  and  health  requirements  for 

work with display screen equipment. 

45   Directive  2009/148/EC  of  the  European  Parliament  and  of  the  Council  of  30  November  2009  on  the 

protection of workers from the risks related to exposure to asbestos at work.  

46   Council Directive 98/24/EC of 7 April 1998 on the protection of the health and safety of workers from 

the risks related to chemical agents at work.  

47   2021-2024 OSH overviews on digitalisation and psychosocial risks, in cooperation with EU-OSHA 
48   https://ec.europa.eu/health/sites/health/files/expert_panel/docs/mandate_workforce_mental-

health_en.pdf 

49   https://www.europarl.europa.eu/doceo/document/TA-9-2021-0021_EN.html 

9 

 
                                                 
  Update  their  national  legal  frameworks,  in  consultation  with  social  partners,  to 
address  OSH  risks  and  opportunities  related  to  the  green  and  digital  transitions. 
Member States should focus on the use of digital tools to make labour inspection 
more efficient by both preventing and detecting breaches of legislation.  

  Host ‘peer reviews’ addressing occupational psychosocial and ergonomic issues. 
  Strengthen  monitoring  and  data  collection  on  the  situation  of  mental  and 

psychosocial risks across sectors. 

The Commission invites the social partners to: 

  Take action and update existing agreements at cross-industry and sectoral level to 
address  new  OSH  issues  related  to  the  digital  labour  market,  particularly 
psychosocial and ergonomic risks, by 2023. 

  Find  commonly  agreed  solutions  to  address  the  challenges  raised  by  telework, 
digitalisation, and the right to disconnect, building on the European Social Partners 
Framework Agreement on digitalisation50. 

2.2.  Improving prevention of work-related diseases and accidents  

All  efforts  must  be  deployed  to  reduce  work-related  deaths  as  much  as 
possible, in line with a Vision Zero approach to work-related deaths 
in  the  EU51.  To  that  end,  this  strategic  framework  strengthens 
prevention  culture,  both  in  organisations  and  among  individual 
workers.  Preventing  work-related  deaths  will  only  be  possible  by:  (i) 
thorough  investigation  of  accidents  and  deaths  at  the  workplace;  (ii)  identifying  and 
addressing the causes of these accidents and deaths; (iii) increasing awareness of the 
risks  related  to  work-related  accidents,  injuries  and  occupational  diseases;  and  (iv) 
strengthening enforcement of existing rules and guidelines. Lessons learnt from ‘near 
misses’ and critical incidents – and exchange of information on these events will lead to 
improved  analysis  and  prevention  across  the  EU.  For  instance,  in  the  agriculture  and 
forestry  sector  in  the  EU,  the  number  of  accidents  and  fatalities  remains  unacceptably 
high.  Reliable  data  on  the  number  of  accidents  and  deaths  on  farms  in  this  regard  is 
essential, as well as comprehensive awareness raising, including on the potential risks for  
other family members and children living on the farm.  

Causes of work-related deaths 

50   https://www.etuc.org/system/files/document/file2020-

06/Final%2022%2006%2020_Agreement%20on%20Digitalisation%202020.pdf 

51   The  European  Parliament  resolution  of  17  December  2020  on  a  strong  social  Europe  for  Just 
Transitions (2020/2084(INI)) calls on the Member States to commit to eliminating work-related deaths 
and reducing work-related illnesses by 2030, and on the Commission to achieve this aim through a new 
OSH strategy. 

10 

 
 
 
                                                 
Cancer is  the leading cause of work-related deaths  in  the EU (Figure 3). Carcinogens 
contribute  to  an  estimated  100 000  occupational  cancer  deaths  in  the  workplace  every 
year.  Actions  to  fight  cancer  at  the  workplace  are  key  components  of  the  Europe’s 
beating-cancer  plan52,  which  sets  out  a  new  EU  approach  to  sustainable  cancer 
prevention, treatment and care. The EU commitment to fight work-related cancer is also 
in  line  with  the  strategy  of  the  roadmap  on  carcinogens53  2020-2024,  which  brings 
together  Member  States  and  social  partners  to  implement  the  limit  values  and  other 
provisions adopted at EU level rapidly, limiting exposure to 26 hazardous substances and 
therefore improving working conditions for around 40 million workers.  

Figure 3: Causes of work-related fatalities (%) in the EU54  

Source: “An international comparison of the cost of work-related accidents and illnesses”, EU-OSHA 2017 

Another  essential  aspect  of  improving  worker  protection  is  addressing  occupational 
circulatory diseases, such as  heart disease or stroke.  Although circulatory diseases  are 
the second-largest cause of work-related deaths in the EU (Figure 3), little is known 
about  their  underlying  causes  and  their  links  to  work-related  risks.  This  hampers  the 
deployment  of  appropriate  prevention  measures  at  the  workplace.  Further  research  and 
data collection as well as health promotion at work both at EU and national level should 
be a priority.  These actions should also cover musculoskeletal disorders (MSD), which 
affect millions of workers in the EU55. Work-related MSDs can in the worst-case lead to 
disability  and  they  are  usually  not  linked  to  a  single  cause  but  to  a  combination  of 
physical, psychosocial, organisational and individual factors.  

  Hazardous substances 

Hazardous substances can be found in nearly all workplaces, and millions of workers in 
the EU are exposed to these substances every day.  

Overall, the process for addressing hazardous substances based on scientific assessment, 
consultation with the tripartite ACSH, and the close involvement of all stakeholders has 
proven  to  be  successful,  even  though  it  is  time  and  resource  intensive.  Under  this 
strategic framework, the methodology for addressing hazardous substances will continue 
to  be  updated  to  identify  further  efficiencies  in  establishing  OSH  limit  values  in  the 
decision  making  process.  Moreover,  the  Commission  will  continue  to  streamline  the 

52   https://ec.europa.eu/health/sites/health/files/non_communicable_diseases/docs/eu_cancer-plan_en.pdf 
53   https://roadmaponcarcinogens.eu/ 
54   EU figures date from before 2021, thus including the UK. 
55   https://healthy-workplaces.eu/en/about-topic/what-issue 

11 

 
 
                                                 
interface  between  OSH  and  REACH56  regulation  to  ensure  workers’  protection  in  line 
with  the ‘one substance, one assessment’  approach and the updated  Better Regulation 
approach. 

The  ongoing  legislative  procedure  on  limits  for  acrylonitrile,  nickel  compounds  and 
benzene57  under  the  Carcinogens  and  Mutagens  Directive  (CMD)  will  help  increase 
protection  from  carcinogenic  and  mutagenic  substances  for  over  1 million  workers. 
Furthermore, the ACSH is identifying the substances to be addressed in priority under the 
CMD and the Chemical Agents Directive, to ensure up-to-date limit values for hazardous 
chemicals.  

in 

Priority  will  be  given  to  updating  and  expanding  the  protection  of  workers  exposed  to 
reprotoxic  substances, 
the  European  Parliament. 
line  with  demands  by 
Reprotoxicants  can  have  two  groups  of  different  effects:  (i)  effects  on  sexual  function 
and  fertility;  and  (ii)  effects  on  the  development  of  the  foetus  or  offspring.  These  are 
serious  health  risks,  and  they  can  lead  to  spontaneous  abortion,  stillbirth,  or  impaired 
cognitive  development  of  the  conceived  children.  According  to  a  worst-case-scenario 
estimate,  reprotoxic  substances  may  be  the  cause  of  up  to  1 274  new  cases  of 
reproductive  ill  health  each  year,  leading  to  an  economic  cost  of  EUR  381  million  per 
year.  Lead  is  the  largest  contributor  to  diseases  from  reprotoxic  substances58.  The 
upcoming proposal for stricter binding limit values on lead will therefore be a major step 
forward in addressing reprotoxic substances. However, it will also be essential to map out 
a  specific  list  for  key  reprotoxicants  to  be  urgently  addressed.  In  parallel,  the  ACSH 
Working  Party  on  Chemicals  will  continue  to  discuss  the  need  to  add  reprotoxic 
substances and hazardous medicinal products to the CMD as well as the methodology in 
establishing the limit values.  

The  European  Parliament  and  stakeholders  have  also  stressed  the  need  to  protect 
healthcare  staff  exposed  to  hazardous  medicinal  products  as  well  as  other  risks.  The 
European  Commission  and  EU-OSHA  have  launched  extensive  studies  and  dialogues 
with experts and stakeholders on how to address these risks as part of efficient healthcare 
provision. This has revealed a great need for further training, instruction and guidance as 
well as the challenges of enacting binding legislation to address this issue. 

Promoting health at work 

A  healthy  workforce  is  the  fundamental  basis  of  a  strong  and  resilient  economy  and 
society. Encouraging healthy lifestyle choices in the workplace can significantly reduce 
the  incidence  of  absenteeism,  illness  and  non-communicable  diseases  (such  as  cancer, 
obesity,  cardiovascular  disease  and  diabetes).  For  instance,  through  Europe’s  Beating 
Cancer  Plan,  actions  will  be  launched  to  improve  health  literacy  on  cancer  risks  and 

56   Regulation 

for  Registration,  Evaluation,  Authorisation 

and  Restriction 

of  Chemicals 

(https://ec.europa.eu/environment/chemicals/reach/reach_en.htm). 

57   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52020PC0571 
58   Study on reprotoxic chemicals. https://ec.europa.eu/social/. 

12 

 
                                                 
determinants  to  give  people,  including  workers,  the  information  and  tools  they  need  to 
make healthier choices.  

Workplaces for all 

Recognising  diversity,  including  gender  differences  and  inequalities,  and  fighting 
discrimination in the workforce is vital in ensuring the safety and health of both women 
and  men  workers,  including  when  assessing  risk  at  work.  For  example,  the  pandemic 
highlighted  the  risks  of  ill-adapted  tools  and  equipment  (e.g.  women  in  the  healthcare 
sector having to wear personal protective equipment designed for men) and the need to 
provide accurate, timely and easily understandable information to ensure that all workers, 
including  those  most  disadvantaged,  can  fully  understand  the  workplace  rules  and 
exercise their rights. Actions will be encouraged to avoid gender bias when assessing and 
prioritising  risks  for  action  by  ensuring:  (i)  gender  representation  in  consultations  of 
workers; (ii) training adapted to employees’ personal situation; and (iii) the recognition 
of risks in occupations that have long been overlooked or considered as ‘light work’ (e.g. 
carers or cleaners). 

In  line  with  the  Commission  strategy  for  the  rights  of  persons  with  disabilities  2021-
203059, the Commission will present a package to improve the labour market outcomes 
of persons with disabilities.  This package will include guidance and support for mutual 
learning on: securing health and safety at work; and on vocational rehabilitation schemes 
for  people  suffering  from  chronic  diseases  or  people  who  have  been  the  victims  of 
accidents. 

Workplace  violence,  harassment  or  discrimination,  whether  based  on  sex,  age, 
disability, religion or belief, racial or ethnic origin and sexual orientation may affect the 
safety  and  health  of  workers,  and  therefore  have  negative  consequences  for  those 
affected, their families, their co-workers, their organisations, and society at large.  It can 
also lead to situations of labour exploitation. The Commission will assess how to strengthen 
the effectiveness of the Employers Sanctions Directive (2009/52/EC), including with regard 
to  the  labour  inspections  targeting  particularly  vulnerable  groups  of  workers.   The 
Commission has proposed a Council decision authorising Member States to ratify, in the 
interest  of  the  EU,  the  Violence  and  Harassment  Convention,  2019  (No.  190)60  of  the 
International  Labour  Organization.  The  Convention  also  includes  specific  rules  on 
gender-based violence and harassment  at  work,  which will be strengthened through the 
forthcoming  legislative  proposal  on  preventing  and  combatting  gender-based  violence 
against  women  and  domestic  violence,  as  announced  in  the  Gender  Equality  Strategy 
2020-202561. 

The Commission will: 

59   https://ec.europa.eu/social/main.jsp?catId=738&langId=en&pubId=8376&furtherPubs=yes 
60   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52020PC0024 
61   https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52020DC0152 

13 

 
                                                 
  Promote a ‘Vision Zero’ approach to work-related deaths by: 

o 

improving data collection on accidents at  work and occupational  diseases, 
and analysing the root causes for each work-related death or injury; 

o  setting  up  a  dedicated  Vision  Zero  ACSH  tripartite  working  group,  and 
developing targeted information actions and tools to increase awareness; 
o  strengthening enforcement by supporting the SLIC in increasing awareness 
on reducing work-related deaths at company level, sharing good practices, 
and supporting increased training for labour inspectorates. 

  Update  the  EU  rules  on  hazardous  substances  to  combat  cancer,  reproductive, 

and respiratory diseases by: 

o 

o 

launching a social partner consultation on reduced limit values for welding 
fumes,  polycyclic  aromatic  hydrocarbons,  isoprene,  and  1,4-dioxane 
under CMD62 in 2023; 
identifying  a  priority  list  of  reprotoxicants  to  be  addressed  through  the 
relevant directives by the end of 2021. 

  Provide  updated  guidelines,  including  on  training,  protocols,  surveillance  and 
monitoring,  for  protecting  workers  against  exposure  to  hazardous  medicinal 
products by 2022. 

  Produce an OSH overview of the health and care sector, in cooperation with the 

EU-OSHA by Q1 2024. 

  Support  awareness  raising  on  musculoskeletal  disorders,  cancer  and  mental 

health as well as workplace harassment and gender bias.  

  Provide sector-specific information to SMEs in cooperation with the EU-OSHA. 
  Propose  a  legislative  initiative  on  preventing  and  combatting  gender-based 

violence against women and domestic violence before the end of 2021. 

The Commission calls on the Member States to:  

  Work  towards  fulfilling  the  ‘vision  zero’  approach  to  work-related  deaths  in  the 

EU. 

  Address occupational risks related to circulatory diseases. 
  Promote the European Code against Cancer among workers to improve their health 

literacy and reduce cancer risks.  

  Assess and address risks with a particular focus on  groups most affected by the 

pandemic, such as persons with disabilities. 

  Actively  support  reintegration,  non-discrimination  and  the  adaptation  of  working 

conditions of workers who are cancer patients or cancer survivors. 

  Promote gender considerations in design, implementation and reporting. 
  Actively  address  hazards  in  the  healthcare  sector  by  putting  in  place  and 
implementing safe working procedures and providing appropriate training.  
  Provide  improved  guidance  and  training  for  the  risk-assessment  and  prevention 

62   Fifth revision of the CMD. 

14 

 
                                                 
measures, in particular to micro enterprises and SMEs. 

Provide  training  to  farmers  via  Farm  Advisory  Services  to  increase  their  skills  and 
awareness  on  the  health  and  safety  rules  on  farms,  including  safe  use  of  chemical 
substances, in particular plant protection products.  The Commission invites the social 
partners to: 

  Develop  a  guidance  for  the  health  care  sector  focusing,  among  other  things,  on 
workers  protection  from  the  exposure  to  hazardous  medicinal  products,  paving 
the  way  for  developing  the  online  interactive  risk  assessment  (OiRA)  tool 
specifically for the health care sector in collaboration with the EU-OSHA. 

2.3.  Increasing preparedness – responding rapidly to threats 

During  times  of  crisis  such  as  Covid-19,  occupational  safety  and  health 
has  a  crucial  role  in  helping  workers,  businesses  and  governments  to 
protect  lives  and  manage  wellbeing  risks,  business  continuity  and 
sustainability. It is therefore essential to draw the lessons of the COVID-
19  pandemic  and  increase  preparedness  for  potential  future  health  crises 
but  also  post-pandemic  resumption  of  work.  Measures  of  increased  hygiene,  non-
pharmaceutical interventions and mental health support should be given greater priority 
by  improving  the  timeliness  and  effectiveness  of  the  response  to  such  crises,  and 
synergies  between  OSH  and  public  health  should  be  further  developed.  The  present 
framework  therefore  contributes  to  health  policies  and  helps  in  increasing  the 
preparedness for the future, in parallel with the Communication on the early lessons learn 
from the Covid-19 pandemic63.  

The  COVID-19  pandemic  revealed  the  importance  of  having  an  overall  framework 
obligation of risk-assessment and preventive measures by the employer for addressing 
health risks to workers in case of health crisis. It has highlighted more than ever the need 
for workers to benefit from a working environment that reduces the risk of transmission 
of infectious diseases. Since the outbreak of the pandemic, the EU-OSHA has developed 
a series of guidance documents and tools64 in consultation with national authorities and 
social partners, which allowed employers, particularly SMEs, to know how to comply65 
with  OSH  requirements  through  the  different  stages  of  the  pandemic.  These  guidelines 
will be adapted to  the  gradual  understanding  of the risks by science and  corresponding 
public health measures. In addition, the Commission will develop EU OSH  emergency 
procedures  and  guidance  to  allow  for  measures  to  be  rapidly  deployed  in  potential 
health crises. This would include, among others, provisions for updated risk assessments, 
mechanisms for Member States to inform the Commission in a timely manner about the 

63   https://ec.europa.eu/info/files/communication-early-lessons-covid-19-pandemic_en 
64   https://osha.europa.eu/en/themes/covid-19-resources-workplace 
65   https://osha.europa.eu/en/publications/covid-19-back-workplace-adapting-workplaces-and-protecting-

workers/view  

15 

 
 
                                                 
occurrence  of  health  threats  in  different  sectors  and  workplaces  as  well  as  the  related 
national OSH plans.  

In  parallel,  the  SARS-CoV-2  virus  was  classified  under  the  Biological  Agents 
Directive66 under an urgency procedure. This decision helps to ensure the protection of 
workers  in  facilities  in  which  the  virus  is  being  handled  directly,  such  as  vaccine 
production  and  distribution  centres.  The  Commission  will  now  monitor 
its 
implementation,  as  well  as  develop  guidance  for  labour  inspectors  to  help  ensure  the 
correct application of measures. 

The  pandemic  also  highlighted  that,  in  some  cases,  mobile  and  cross-border  workers, 
including  EU  and  non-EU  seasonal  workers,  can  be  more  exposed  to  unhealthy  or 
unsafe  living  and  working  conditions,  such  as  poor  or  overcrowded  accommodation  or 
lack  of  information  of  their  rights.  The  Commission  developed  guidelines  on  seasonal 
workers and transport workers in the EU in the context of the COVID-19 outbreak. These 
guidelines  call  on  Member  States  and  companies  to  ensure  compliance  with  their 
obligations to protect indispensable and vulnerable workers, including by fulfilling their 
OSH  obligations.  The  European  Labour  Authority  (ELA),  with  the  support  of  the 
European  Commission,  also  launched  in  June  2021  the  awareness-raising  campaign 
‘Rights  for  all  seasons’,  calling  attention  to  the  need  to  promote  fair  and  safe  working 
conditions  for  seasonal  workers  employed  across  EU  countries67.  In  addition,  the  EU-
OSHA is carrying out, in cooperation with the SLIC, a survey on OSH labour inspectors’ 
views  on  high-risk  occupations, 
seasonal work, in all member States. 

including 

While  the  EU  OSH  approach  is  focused  on 
prevention,  it  is  also  important  to  support 
workers infected by Covid-19 and families who 
have  lost  family  members  because  of  work 
exposure  to  SARS-CoV-2.  To  that  end,  most 
they 
Member  States  have 
recognise  COVID-19  as  an  occupational 
disease.  Although  occupational  disease  is  a 
matter  closely  linked  to  social  security,  which 
is  a  national  competence,  the  Commission 
Recommendation on occupational diseases68 promotes the recognition of occupational 
diseases  listed  by  the  Recommendation  by  Member  States,  with  a  view  to  encourage 
convergence.  

The recognition of Covid-19 as an occupational 
disease or accident at work is already a reality 
in 25 Member States. France, for example, has 
introduced  a  government  decree  in  September 
2020, which allows for the automatic recognition 
of  health  care  and  similar  workers  and 
professionals 
to  severe 
respiratory  infection.  In  addition,  France  allows 
for  compensation  of  such  cases.  In  Denmark, 
cases  of  COVID-19  can  be  recognised  and 
compensated  as  both,  occupational  disease 
and  accident  at  work 
in  all  professions, 
following an assessment of relevant authorities. 

reported 

in  cases 

leading 

that 

66   Directive  2000/54/EC  of  the  European  Parliament  and  of  the  Council  of  18  September  2000  on  the 

protection of workers from risks related to exposure to biological agents at work. 

67   https://www.ela.europa.eu/en/news/rights-all-seasons-european-labour-authority-supports-fair-work-

seasonal-workers 

68   Commission  Recommendation  of  19  September  2003  concerning  the  European  schedule  of 

occupational diseases. 

16 

 
                                                 
The Commission will:  

 

Immediately launch an in-depth assessment of the effects of the pandemic and the 
efficiency  of  the  EU  and  national  OSH  frameworks  to  develop  emergency 
procedures  and  guidance  for  the  rapid  deployment,  implementation  and 
monitoring  of  measures  in  potential  future  health  crises,  in  close  cooperation 
with public-health actors.  

  Update  of  the  Commission  Recommendation  on  occupational  diseases  to 

include COVID-19 by 2022. 

  Develop  guidance  for  labour  inspectors  on  assessing  the  quality  of  risk 
assessments and risk-management measures under the Biological Agents Directive 
by 2022. 

The Commission calls on the Member States to: 

  Draw  up  preparedness  plans  for  future  crises  in  the  national  OSH  strategies, 

including implementation of EU guidelines and tools. 

  Draw up coordination mechanisms between public health and OSH authorities by 

 

2023. 
Increase monitoring and effective inspections of OSH obligations towards seasonal 
workers in high-risk professions. 

  Strengthen cooperation and exchange of information between labour inspectorates 
and other relevant national authorities to improve health and safety standards in all 
employment sectors. 

3. 

IMPLEMENTING THE UPDATED STRATEGIC FRAMEWORK 

This strategic framework will be underpinned by: (i) a strengthened  evidence base; (ii) 
strong  social  dialogue;  (iii)  mobilised  funding;  (iv)  improved  enforcement;  and  (v) 
awareness raising.  

Member  States  will  need  to  address  green  and  digital  issues  in  national  OSH 
strategies, and improve prevention and preparedness to ensure that updated measures 
and approaches reach the work floor.  

At the enterprise level,  this will translate into  planning and anticipative measures  by 
employers.  Targeted  and  updated  guidance  as  well  as  awareness  raising  and  digital 
tools  with  a  particular  focus  on  SMEs  are  needed  to  support  them  in  this  transition  to 
ensure a high level of workers’ protection and sustainable solutions, but also to preserve 
competitiveness.   

 

Social dialogue 

Social  partners  are  particularly  well  placed  to  find  solutions  adapted  to  the 
circumstances  of  a  specific  activity  or  sector.  The  EU  sectoral  social  dialogue  makes  a 
strong  contribution  to  the  effective  implementation  of  EU  OSH  legislation.  The 

17 

 
Commission will engage with social partners to identify relevant areas and actions at the 
sectoral level to implement this strategic framework. 

 

Evidence base  

Research and data collection, both at EU and national level, are a pre-condition for the 
prevention  of  work-related  diseases  and  accidents.  Scientific  advice  and  the  latest 
technological  developments  feed  into  OSH  legislation  and  policy.  This  allows  the 
Commission  to  continue  with  evidence-informed  policymaking,  as  set  out  in  the  2021 
Better Regulation Communication69. 

Surveys,  data  collection,  and  focused  peer-reviews  on  specific  subjects  in  the  current 
framework, both at national and EU level, will be stepping-stones towards the objectives 
of  addressing  change,  prevention,  and  preparedness  in  OSH.  Measures  must  be  gender 
aware and tailored to the circumstances of all workers, including: (i) the needs of young 
workers who are entering working life; (ii) the needs of people with disabilities; and (iii) 
the needs of an ageing workforce that need to keep up with the rapid evolution of modern 
technology an in which the prevalence of chronic diseases and disabling conditions has 
been growing70.  

 

Application and monitoring of the strategic framework  

The success of this strategic framework depends largely on its implementation at national 
and  local  level.  To  achieve  it,  Member  States  are  invited  to:  (i)  update  their  current 
OSH strategies; (ii) reflect the updated approach to worker protection at the local level; 
and  (iii)  address  the  downward  trend  in  the  number  of  labour  inspections  in  some 
Member States71 by strengthening field inspections.  

A 2023 stocktaking OSH summit, gathering the EU institutions, Member States, social 
partners,  the  EU-OSHA  and  other  relevant  stakeholders,  will  draw  on  the  first  lessons 
learned and recommend any necessary redirection of this strategy. The summit will focus 
on the progress achieved on the ‘vision zero’ approach to work-related deaths, as well as 
on preparedness for potential future threats to workers’ health and safety. 

In  the  European  Pillar  of  Social  Rights  action  plan,  the  Commission  proposed  a  new 
indicator  on  fatal  accidents  at  work  in  the  revised  social  scoreboard.  This  new 
indicator will be a key element of monitoring the EU’s ‘vision zero’.  

This strategic framework will also help to improve the application and enforcement of 
existing  EU  law,  e.g.  in  the  work  of  labour  inspectors,  supported  by  relevant  actors 
(e.g. the ACSH, the EU-OSHA and the SLIC). Providing labour inspectors with EU-level 
and  national  guidance  and  training  to  promote  cooperation  and  innovative  inspection 

69   https://ec.europa.eu/info/files/better-regulation-joining-forces-make-better-laws_en 
70   The ageing workforce: implications for occupational safety and health. A research review. EU-OSHA, 

2016. 

71   European  Commission  (2021):  ‘Study  to  support  the  evaluation  of  the  EU  Strategic  Framework  on 

health and safety at work 2014-2020 – Final Report’. 

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methods helps improve consistent enforcement across the Member States. Moreover, the 
Commission will work with the EU-OSHA to develop supporting tools and guidance for 
employers, in particular micro and small enterprises, to comply with OSH legislation.  

 

Awareness raising and capacity building  

There  are  two  preconditions  for  fulfilling  the  ‘vision  zero’  approach  to  work-related 
deaths: (i) increasing awareness of risks related to work-related accidents, injuries and 
occupational diseases; (ii) capacity building of employers, to ensure occupational safety 
thanks  to  training  and  education;  and  (iii)  all  actors  accepting  their  responsibility  to 
comply  with  rules  and  guidelines.  Awareness  raising  will  be  a  continuous  focus  of  the 
EU-OSHA, notably through its OSH overview on digitalisation and Healthy Workplaces 
Campaign 2023-2025: OSH and Digitalisation. It will contribute to the deepening of the 
knowledge and increased awareness of the risks of these developments. 

 

Funding 

EU funds, notably the Recovery and Resilience Facility and the Cohesion policy funds, 
can be used to mobilise investments for OSH action. Over 50% of the new EU long-term 
budget and NextGenerationEU will support the modernisation of the EU, notably through 
investing in research and innovation, green and digital transitions, preparedness, recovery 
and resilience. The European Social Fund Plus (ESF+) is available to support measures 
aiming  to  promote  sustainable,  quality  employment  and  social  inclusion,  with  25% 
earmarked for the latter. ESF+ can be used by Member States to invest in: (i) innovative 
and  more  productive  work  arrangements;  (ii)  training;  (iii)  information  and  awareness 
campaigns  for  healthy  lifestyles;  (iv)  wellbeing  at  work;  and  (v)  support  for  labour 
inspectors.  The  European  Regional  Development  Fund  (ERDF)  can  contribute  with 
better-adapted  work  environments,  digital  solutions  and  equipment.  The  ERDF  and  the 
Cohesion  Fund  can  support  the  connectivity  of  rural  and  remote  areas.  The  new  EU 
health programme – EU4Health 2021-2027 – will also provide significant support to the 
fight  against  cancer.  In  addition,  EU4Health  2021-2027  will  contribute  to:  (i)  disease 
prevention and health promotion in an ageing population; and (ii) increased surveillance 
of health threats. The EU will also support Member States with health research through 
the  Horizon  Europe  mission72  on  cancer,  which  integrates  innovative  approaches  to 
research and public health with an emphasis on cancer prevention, and with infrastructure 
needed  for  digital  health  tools  through  the  Connecting  Europe  Facility.  Several  OSH 
related topics have been proposed in the first work programmes of Horizon Europe under 
the  Health  cluster.  Furthermore,  results  from  ongoing  research  funded  under  Horizon 
2020  on  occupational  safety  and  health,  will  provide  valuable  input,  for  example  on 

72   The Mission has the overall goal of “saving more than 3 million lives by 2030, and for those affected by 

cancer, to live longer and better”. 

19 

 
                                                 
mental health at work73. The new Technical Support Instrument is also available to help 
Member States design and implement OSH reforms. 

4.  PROMOTING EFFECTIVE OSH STANDARDS WORLDWIDE  

In a globalised world, health and safety threats do not stop at borders. Countries around 
the  world  benefit  from  exchanging  best  practices  and  learning  from  each  other’s 
experiences. It is crucial to  strengthen engagement with the EU’s partner countries, 
regional and international organisations and other international fora to raise OSH 
standards globally.  

The  Commission  will  engage  with  the  International  Labour  Organization  (ILO)  to 
implement and follow-up the 2019 Centenary Declaration for the Future of Work. This 
engagement  will  involve  supporting  the  integration  of  the  right  to  safe  and  healthy 
working conditions into the ILO framework of fundamental principles and rights at work. 
Cooperation with the ILO and WHO on data and knowledge will be especially relevant. 
This cooperation will include support, together with Member States, for the creation of a 
new indicator on mortality from diseases attributed to occupational risk factors as part of 
the United Nations’ sustainable development goals.  

The  Commission  will  foster  OSH  in  global  supply  chains  and  companies  operating  in 
low- and middle-income countries. In particular, this will include continuing to engage in 
framework  initiatives  such  as  the  G7  Vision  Zero  Fund,  the  G20  Safer  Workplaces 
Agreement, and the OSH Experts Network.  

It is essential to: (i) ensure that OSH standards are properly taken into account as part of 
binding commitments on labour and social standards; and (ii) promote the broader issue 
of  decent  work  in  future  EU  trade  agreements.  Effective  implementation  of  EU  trade 
agreements should support these commitments, following the recent example of the EU-
Japan Economic Partnership Agreement. 

The Commission will continue to develop bilateral cooperation with partner countries to 
promote  better  working  conditions,  thus  tackling  inequalities  and  advancing  human 
development  worldwide.  In  addition,  the  bilateral  cooperation  with  the  US  will  be 
resumed under a revisited and updated joint  OSH agenda, and new cooperation will be 
launched, in particular with Canada. 

Candidate  countries  and  potential  candidates  will  be  supported  in  their  efforts  to  align 
their  legal  frameworks  and  policies  on  OSH  with  the  EU  acquis.  For  the  Western 
Balkans,  this  includes  support  through:  (i)  the  Economic  and  Reform  Programme 
process;  (ii)  subcommittee  meetings;  (iii)  Chapter  19  negotiations  where  relevant;  and 
(iv)  financial  assistance  provided  to  EU-OSHA  activities  and  in  support  of  the  OSH 
agencies.  

73   https://op.europa.eu/en/publication-detail/-/publication/03a2c022-9c01-11eb-b85c-

01aa75ed71a1/language-en/format-PDF/source-199503195#document-info 

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Bilateral cooperation on OSH will also be developed with the EU’s Eastern and Southern 
Neighbourhood  as  well  as  by  promoting  regional  cooperation,  including  through  the 
Eastern Partnership and the Union for the Mediterranean. 

5.  CONCLUSION 

This  strategic  framework  aims  at  mobilising  EU  institutions,  Member  States,  social 
partners  and  other  relevant  stakeholders  around  common  priorities  on  workers’  health 
and safety protection.  It  applies to  all relevant  parties dealing with  health and safety  at 
work  (national  administrations  including  labour  inspectorates,  employers,  workers,  and 
other  relevant  OSH  actors)  and  creates  a  framework  for  action,  cooperation  and 
exchange.  

The  Commission  will  work  with  Member  States  and  social  partners  to:  (i)  address 
change  in  the  new  world  of  work;  (ii)  improve  the  prevention  of  workplace  accidents 
and  illnesses  in  line  with  the  ‘vision  zero’  approach;  and  (iii)  increase  preparedness 
for potential future health crises. 

The  Commission  calls  on  Member  States  to  update  and  draw  up  their  national  OSH 
strategies in line with this strategic framework – in cooperation with social partners – to 
ensure  that  the  new  measures  are  applied  on  the  ground.  The  2023  OSH  summit  will 
allow taking stock of progress on this ambitious framework as well as an assessment of 
adaptation in light of the rapidly changing context.  

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