CELEX: 51977PC0657
Language: en
Date: 1977-12-12
Title: DRAFT RESOLUTION OF THE COUNCIL OF THE EUROPEAN COMMUNITIES ON A COMMUNITY ACTION PROGRAMME ON SAFETY AND HEALTH AT WORK (submitted to the Council by the Commission)

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Vol. 1977/0211
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 ---pagebreak---  COMMISSION OF THE EUROPEAN COMMUNITIES
                                                      COM(77)657 final.
                                                      Brussels , 12 Decoir.be r 1977
                                        DRAFT
                RESOLUTION OF THE COUNCIL OF THE EUROPEAN COMMUNITIES
             ON A COMMUNITY ACTION PROGRAMME ON SAFETY AND HEALTH AT WORK
                    ( submitted to the Council by the Commission )
er,;.; ( 77 ) 657 final .
 ---pagebreak---                                     DRAïT
        RESOLUTION OF THE COUNCIL OF THE EUROPEAN COMMUNITIES
        ON A COMMUNITY ACTION PROGRAMME ON SAFETY AND HEALTH
                                   AT WORK
THE COUNCIL OF THE EUROPEAN COMMUNITIES
Having regard to the Treaties establishing the European Communities ,
Having regard to the draft from the Commission ,
Having regard to the Opinion of the European Parliament ,
Having regard to the Opinion of the Economic and Social Committee ,
1)   VJhereas Resolution of the Council of the European Communities of
     21 January 1974* on a social action programme envisages the setting •
     up of an action programme on safety and health at work ;
2)   Whereas , in particular, ..under Article 2 of the Treaty estab­
     lishing the European Economic Community , the
     Community shall have as a particular task to promote throughout the
     Community a harmonious development of economic activities , a conti­
     nuous and balanced expansion and an accelerated raising of the
     standard of living , which entails suitable health protection for
     the general public and the effective prevention of risks at work ;
3)   Whereas under Articles 117 a^d 118 of the said Treaty the Member
     States agree upon the need to promote improved working conditions and
     an improved standard of living for workers so as to make possible their
     harmonization while the improvement is being maintained and that both
     the prevention of occupational accidents and diseases_and health
     conditions at work are among the essential tasks :
*    O. J  No C 13 , 12.2.1974 , p. - 1 .
 ---pagebreak---                                    - 2 -
4) Whereas the Heads of State or of Government , at the Conference held
    in Paris in October 1972 , affirmed that economic expansion should
   result in an improvement in the quality of life as well as in the
    standard of living ;
5) Whereas the large number of people killed , injured and suffering from
                                                    »
    invalidity or sickness as a result of accidents at work or occupa­
    tional diseases represents a serious problem which requires con­
    stant attention ;
6) Whereas considerable effort is needed at Community level to pre -          ,
   serve the human capital represented by the Community workforce and
   to endeavour to implement suitable means to maintain or create a
   working environment tailored to the needs of man having regard to
   his rightful job aspirations ;
7) Whereas this effort requires not only a strengthening of the colla­
   boration between Member States and the Commission but also the
   increasing participation of management and labour in decisions and
   action in the field of safety , hygiene and health protection at work at
   all levels , particularly at the level of the undertaking;
8) Whereas the improvement of working conditions and the working envi­
   ronment must be envisaged on a global basis and must concern all     •
   sectors of the economy ;
9) Whereas the Advisory Committee on Safety , Hygiene and Health Pro­
   tection at Work , set up "by the Council Decision of 27 June 1974* should "be
   associated with this sphere of action ;
*  O J   No L 185 , - 9 . 7.1974 , p. 15'
 ---pagebreak---                                - 3 -
Approves the action programme annexed, hereto ; . .
Notes that the Commission will present , within the context of the
actions described in the programme and in accordance with the time
schedule and priorities set out therein , suitable proposals for the
successful implementation of the programme .
 ---pagebreak---       ACTION PROGRAMME
 OF THE EUROPEAN COMMUNITIES
ON HEALTH AND SAFETY AT WORK
 ---pagebreak---                          ACTION PROGRAMME
                    OF THE EUROPEAN COMMUNITIES
                   ON HEALTH AND SAFETY AT WORK
                         TABLE OF CONTENTS
Introduction
I.   General objectives of the action programme on health and safety
II . Description of the actions to be taken at Community level .
 ---pagebreak--- INTRODUCTION
      A   high percentage of the population of the nine Member States is
exposed to varying degrees of many and widely divergent occupational
risks which could threaten their health and personal safety .      Occupa­
tional pathology is habitually concerned with accidents and diseases
resulting from work , the prevention or diagnosis of which have been the
subject of action within the Community for several years , and the harm­
ful effects of which are partly or totally compensated through various
schemes .
      Despite the efforts made in the Member States of the Community , the
number of accidents and diseases resulting from work remains high .
Quite apart from their financial importance , the human and social
consequences of occupational accidents and diseases are incalculable ,
since it is not easy to assess the psychological damage done or to take
into account the long-term factors connected with accidents and disease .
Thus there is good reason to believe that the total social and financial
cost of occupational accidents and diseases is far greater than the
quantitative estimates at our disposal suggest .
    • Modern technology uses increasingly advanced processes which present
new dangers .    They produce or use chemical substances which are inade­
quately tested for their harmful effects on man .      All chemical , physi­
cal , mechanical and biological agents and the psychosocial factors
connected with work must be readily recognizable and brought under
control or eliminated by suitable means so as to avoid any damage to
health or a significant reduction in safety .
      The prevention , limitation and , where possible , elimination of
occupational risks constitute major elements of a policy to protect the
health and safety of the workers .
 ---pagebreak---                                 - 2 -
     Of course , the Member States have a long tradition in the organization of
industrial safety and health but they must also agree to shoulder a joint pro­
gramme of positive and effective actions to improve the conditions under which
man performs his job and do everything possible to ensure his well-being and
guarantee the quality of his working environment .    In order to implement such a
programme / it is necessary not only to harmonize ideas and basic principles , but
also to plan and guide technical progress and the organization of work in such a
way as to take account of the requirements of health and safety .
     In view of the persisting gravity of the problem , the Commission must
initiate , promote and develop a common preventive policy with regard to all
occupational risks , especially by obtaining fresh knowledge , by encouraging
cooperation and coordination and by developing appropriate actions at different
levels of responsibility or competanceC     In addition to promoting exchanges and
the improvement of reciprocal information , such a programme should aim to per­
suade responsible authorities in the Member States and the social partners to
join forces against risks of all kinds which the work environment brings to bear
on the health and safety of workers and on society at large .
     The present programme takes account of the guidelines proposed by the
Commission and of several studies made and consultations' held over the past two
years .    It also takes into consideration the experience gained by the Commis­
sion in the coal and steel industries and the nuclear field where , under the
terms of the ECSC and Euratom Treaties , research programmes and work on harmo­
nization and standardization in accident and disease prevention and protection
with regard to specific risks in these three sectors have been carried out for
many years .
     This programme does not affect other programmes such as those for the
elimination of technical barriers to trade and for the protection of the envi­
ronment .    In proposing specific actions within the framework of this programme ,
the work undertaken by other research programmes , notably in the environmental
field will be taken into account , so that maximum coordination is ensured .
      Some action could be taken in collaboration or conjunction with other
organizations , such as the European Foundation for the Improvement of Living and
Working Conditions and the European Centre for the Development of Vocational
Training .
 ---pagebreak--- I.   GENERAL OBJECTIVES OF THE ACTION PROGRAMME ON SAFETY AND HEALTH
     The main aim of the programme is to increase the level of protec­
tion against occupational risks of all types by increasing the effici­
ency of measures for preventing , monitoring and controlling these
risks .
      One of the primary conditions for the implementation of such a pro­
gramme is the full participation of both sides of industry in preventive
and protective measures .
      Each of the actions proposed in the programme must be seen as an
element contributing to the better organization of preventive and pro­
tective measures for workers and to closer collaboration between the
social partners towards that end .    Furthermore , in order to take ac­
count of the experience obtained by international organizations and to
avoid duplication of effort in the surveys or actions undertaken , liai­
son between Member States must be improved with a view to organizing
joint action in international agencies responsible for occupational
health and safety .
     Such a programme should make it possible to achieve the following
general objectives :
a)   Improvement of the working situation with a view to increased
     safety and with due regard to health requirements in the organiza­
     tion of the work .   Such an improvement should cover not only the
     existing situation but also new technical developments .     Technical
     progress which contributes to the creation of a new working situ­
     ation or to the improvement of an existing situation is not always
     conceived and directed in line with the dictates of safety and
     health ; where machinery , premises and plant are concerned , safety
     aspects should be considered at the design stage and integrated
     into the subsequent stages of their production and commissioning .
     Due attention must also be paid to health considerations at every
     stage in the production and use of chemical substances .
           There is a close link between occupational accident and dis­
     ease prevention on the one hand , and the organization of work and
     safety and health training and information at the place of work on
     the other .   There is an urgent need to review and redefine a .more
     effective accident and disease prevention strategy in order to up­
     date traditional methods .
 ---pagebreak---           Where is it not possible to eliminate it , exposure to occupa­
    tional risks must be kept to permissible levels applicable to all
   workers within the Community and based on common concepts and
    references .
         So as to monitor more effectively the application of preven­
    tive measures , surveillance of health and working conditions must
   be intensified , notably in line with the exigencies of occupational
   medicine , hygiene and safety appropriate to present-day conditions .
b) Improvement of knowledge in order to identify and assess risks and
   perfect prevention and control methods .
         In view of the complexity and diversity of the factors it
   embraces , aetiology is a priority subject for research and^ analy­
   sis .    Valid and comparable statistics must be prepared and exis­
   ting research coordinated .    The promotion of new research is an
   essential corollary to any Community action in occupational medi­
   cine , hygiene and safety . '
c) Improvement of human attitudes in order to promote and develop
   safety and health consciousness .
         Alongside the technical aspects of accident prevention and
   health protection , a real system of safety instruction and health
   education must be created .    This has yet to be introduced and will
   be taught in different ways at the various educational levels and
   at the various levels of responsibility and action within under­
   takings .
 ---pagebreak---                                 - 5 -
II   DESCRIPTION OF THE INITIATIVES TO BE TAKEN AT COMMUNITY LEVEL
     Attainment of the general objectives requires many initiatives
involving various scientific disciplines .  Such initiatives presuppose
the effective participation of individuals in managing their own health
and safety and should encourage the social partners and the various
professional associations and bodies to take a more active part in the
formulation and implementation of a policy for the prevention of dangers
at the workplace .                                  '
     The following six concrete initiatives are planned within various
time limits for the attainment of these general objectives .
1)   incorporation of safety aspects into the various stages of design ,
     production and operation ;
2)   determination of exposure limits for workers with regard to pollu­
     tants and harmful substances present or likely to be present at the
     workplace ;
3)   more extensive monitoring of workers' safety and health ;
4)   accident and disease aetiology and assessment of the risks connec­
     ted with work ;
5)   coordination and promotion of research on occupational safety and
     health ;
6)   development of safety and health consciousness by education and
     training .
 ---pagebreak---                                    - 6 -
 Iniative 1
      Incorporation of safety aspects into the various stages of design ,
      production anfl operation ■■
Aim
      In order to promote this incorporation the Commission will consider
actions aimed essentially at harmonizing , from the safety point of view ,
the principles and designs of workplaces , machinery , equipment and plant
and at the formulation or coordination of rules for their use and gui­
dance on the use of dangerous substances .
                                                    %
      The principle of integrated safety is today generally regarded as
essential for all preventive measures and it is receiving increasing
attention at national and international level .       In all decisions with
regard to undertakings ( planning and construction of the undertaking ,
purchase and operation of plant , organization of production , working me­
thods , etc .) more attention must be paid to safety .     Similarly opera­
tional safety should be studied in advance for the design and manufac­
ture of machinery and tools so as to guarantee protection of the wor­
ker 's health as far as possible .      As concerns the production and
distribution of dangerous substances , the same principles have to be
taken into account .
      The principles of ergonomics are not yet sufficiently well applied
in the search for better safety .       In particular design ergonomics which
is already widespread in the Community has not been sufficiently adop­
ted , as compared with the work carried out in the Scandinavian countries
and in the United States .  . ■ .
      The results of research carried out over several years in the coal
and steel industries indicate the measures which should be planned at
Community level in other sectors of industry .
      In this field the Commission is planning to propose a certain
number of measures which will encourage the application of these prin­
ciples and which could progressively form a basis of legal , regulatory
and administrative provisions or of up-to-date technical guides drawn up
at Community level in order to improve the current situation in many
industrial or agricultural spheres .       These measures concern in parti­
cular :
 ---pagebreak---                                 - 7 -
a)   Setting up of undertakings and planning of layout and equipment .
     The Commission has selected the following points from amongst the
     numerous factors which must be taken into consideration :    ventilation
     and lighting , temperature , protection against falling from heights
     and against falling heavy objects , protection against fire , noise
     and vibrations , gases , vapours and dusts , design of general and
     emergency thoroughfares and location of doors and windows .
b)   Organization of work within undertakings or between several under­
     takings .   The following points are to receive special attention :
     equipment and layout of workplaces , outdoor workplaces , warning signs ,
     dangerous jobs , no-access and limited access areas , transport within
     the undertaking , inspections , maintenance work , plant testing , coordi­
     nation of work within the undertaking , coordination of the work of
     various departments belonging to the same undertaking or to different
     undertakings , etc .
c)   Manufacture and use of machinery , equipment and tools .    This is the
     chief area for the application of technical accident and disease
     prevention which is of paramount social and economic importance .      In
     this sector harmonization measures require lengthy preparation .
           With regard to the manufacture of machinery and equipment the
     concept of their safety was already considered in the general pro­
     gramme of 28 May 1969 on the elimination of technical barriers to
     trade *.   However , there exist inherrent dangers in the use of machi­
     nery and equipment and a procedure should be introduced for the ex­
     change of experience and information so that such dangers are recog­
     nized and identified .    Furthermore , since 1969 the Council had al­
     ready pointed out that it yould be possible , if necessary , to lay down
     rules on use supplementing Community Directives on harmonization with
                                                                             »
     jregard to the manufacture of machinery and equipment .    Guidelines and
     rules must be drawn up with a view to determining appropriate legis­
     lation at Community level ,
d) ' Handling of dangerous substances and preparations .     In this field
     Community harmonization action must be taken with regard to the hand­
     ling of dangerous substances and preparations , with a view to impro-
     ying the practical organization of safety , that is , handling at the
     workplace , storage , marking of containers
     O.J. No 76 of 17 June 1969 .
 ---pagebreak---                                 - 8 -
      and pipes .  Technical and health protection measures , working restric­
      tions and prohibitions , the number of hours worked and medical protection
      measures should also be harmonized at Community level .     The distribution
      of dangerous substances ( classification , identification and packaging ) is
      taken into account in the programmes for the " elimination of the techni­
      cal barriers to trade " and " environment".
 Contents
      Some of the objectives set out above can be achieved only in the medium
 and long term .  The problems will be selected for study on the basis of the
 wishes expressed or guidance given by relevant bodies who should above all
bear in mind practical considerations and on the basis of urgent needs which
may arise from unforeseen dangerous situations such as accidents or disasters ,
 or which may be recognized as a result of the acquisition of fresh knowledge
 on the effects of chemical substances and the need to control their use with a
view to protecting health .
      The Commission plans to begin work in this field by studying the fol­
 lowing matters :
 a)   Setting up of undertakings and planning of layout and equipment .
 1)   Organization and layout of agricultural holdings ."    There is reason to
      consider that modern agricultural holdings should meet requirements
      similar to those imposed upon industrial enterprises .     So far these
      requirements have generally not been taken into account in national
      regulations and it would be appropriate to take the necessary steps at
      Community level .
'2 )  Noise and vibration control .    This requires special medium and long term
      attention .  The main task consists in setting an optimum machine noise
      level on the basis of health data and an assessment of results obtained
      to date by research and the examination of practical experiments ( for
      example the use of machinery with a low noise level , which has already
      been perfected) .  Noise emission levels , designed to take account espe­
      cially of the practical problems involved in occupational protection ,
      will be established after national experts have been consulted and will
      be published in the form of directives .
b)    Organization of work within undertakings
 1)   Transport within undertakings .    Internal transport , particularly the
      safe organization of general thoroughfares , needs to be examined and
      suitable practical instructions should be drawn up .     This sector has a
      particularly high accident rate .
 ---pagebreak---                                 - 9 -
2) Safety signs at workplaces .       Council Directive 77 / 576/EEC of 25 July
   1977 on safety signs at workplaces provides that these signs must be able
   to keap Up With techriicSel £areQro »« and        r «eorrwnond « tion8 Sor hazTsofii-
   zation at international level .                         \
         In this connection provision is made for a committee to meet at
   regular intervals .     This action was initiated in 1977 and will be conti­
   nued in 1978 and 1979 by means of proposals for directives .
3) Coordination of the work of principal and secondary undertakings .               The
   internal and external collaboration of principal and secondary under­
   takings ( subcontracts ) requires special technical examination from the
   point of view of safety .       In practice - especially for the coordination
   of collaboration between several independent undertakings - there are
   many problems still to be solved .        A Community examination of these
   questions leading to such coordination by means of suitable legal instru­
   ments is required .
c) Manufacture and use of machinery , equipment and tools .
   In addition to the work completed within the context of the elimination
   of technical barriers to trade which is concerned with the design and
   manufacture of machines , equipment and tools it seems essential to exa­
   mine in the short and medium term the need for joint rules on the use of
   the following :    agricultural machinery , lifting gear , machinery used in
   construction , metal scaffolding and woodworking machines .            Depending on
   the circumstances and on the results of the collaboration to be organized
   such rules would take the form of guidelines or directives .
d) Handling of dangerous substances and preparations
   An urgent study must be made of the handling of dangerous or toxic sub­
   stances and agreement reached on common standards which will then be
   proposed to the Member States .       An essentially practical approach is
   required and attention will initially be directed towards the problems of
   health protection connected with the use of pesticides and herbicides in
   agriculture .     Similar problems arise with other products , e.g. arsenic ,
   lead , .mercury , cadmium , chrome , nickel , vegetable dusts , biological
   pollution , etc .
         As information is obtained on the toxicological effect of these
   substances , as outlined in point 5 of Initiative 2 , practical guidelines
   will be drawn up for all products which involve handling problems or
   health risks .
 ---pagebreak---                                    - 10 -
  Initiative 2
        Determination of exposure limits for workers with regard to pol­
        lutants , and harmful substances present or likely to be present
        sent at the workplace .
  Aim
      • With a view to thfe organization of disease prevention and to the moni­
  toring of many occupational risks it is essential to have data on exposure
  limits for workers with regard to pollutants and harmful substances .     It is
                                                          ?
  therefore important for the Commission to achieve , at Community level , har­
  monization of the concepts , methodologies and references on the basis of which
  the Member States determine their permissible exposure limits .
        There are already standards for protection against radiation at Community,
  level which have been in force since 1959 (Directive ) and which were recently
  revised by a Directive issued in June 1976 .     They are an example of a joint
  health policy concerned with an industrial risk facing workers and the general
  public and based on uniform standards for the whole Community .     This example
  should be extended to other pollutants present at the workplace .
        Moreover the studies carried out by the Commission over the past four
  years in particular in relation to the environment programme and the experi­
  ence acquired with regard to certain environmental pollutants now make it
__possible to present concrete proposals for action with regard to certain
  specific pollutants affecting workplaces in particular .
        In addition to these short-term actions , however , the Commission plans to
  make an objective analysis at Community level of the harmful or undesirable
  effects of exposure to pollutants in given circumstances - taking account of
  the results already obtained at international level , in particular by the WHO
  and the ILO .     From this analysis it is proposed to deduce criteria of no­
  xiousness on which to base acceptable exposure limits for workers .     Such a
  project would cover a large number of substances and would be extended as
  industrial toxicity studies currently in progress are completed .
        The protection of human health against chemical substances requires a
  complex toxicological evaluation which at present is incomplete .     The Com­
  mission must take priority action with regard to carcinogens , since it is
  generally accepted that a high proportion of human cancer is caused by ex­
  ternal factors including chemicals present at the workplace .
 ---pagebreak---                                  - 11 -
Contents
     The Commission is planning the following initiatives :
1)   Non-Ionizing radiation ana otftOr phyaiaal agents
     With regard to non-ionizing radiation , proposals for directives will be
     submitted to the Council on microwaves , laser radiation , ultra-violet
     radiation and ultrosound , on the basis of the procedure followed for
     standards in protection against radiation . .
2)   Harmonization of exposure limits
     The Commission plans , at the earliest possible opportunity , to make a
     comparative study of existing regulations and recommendations in Member
     States with regard to permissible exposure levels of workers to toxic
     substances or physically harmful substances .
                                                                                     *
           The values adopted in different countries vary , the terminology used
     is not the same and the concepts used to determine the limits are not
     based on the same principles .     Harmonization is therefore essential and
     a general directive coordinating and harmonizing exposure levels , pos­
     sibly updated later on in accordance with the latest scientific data and
     international information available to the Commission , could be prepared
     between now and 1979 .
           This short-term initiative would have the advantage of achieving
     harmonization at Community level and avoiding the delay of waiting for
     the completion of ongoing research projects in the field of occupational
     toxicology , whether within the Commission or in the Member States .
3)   Directives on specific pollutants
     The general harmonization discussed in 2 ) must be supplemented by the
     preparation of specific directives such as those proposed by the Commis­
     sion for vinyl chloride monomer and those shortly to be put forward on
     asbestos , lead , mercury , solvents , carbon monoxide , noise and vibrations .
     The studies in progress within the Commission and the state of knowledge
     ha,ve now reached the stage where they can be used to determine the per­
     missible exposure levels for the above-mentioned pollutants from the
                                                               Ν
     point of view of health protection .
4)   Carcinogens
     Specific Commission action with regard to carcinogens present at work­
     places will consist in :
     -     collecting data on the distribution of carcinogens and their con­
           centration at the workplace ;
 ---pagebreak---                            - 12 -
-    collecting and analysing medical data ;
-    perfecting readily applicable detection tests ;
-    fix the lowest possible levels or , if necessary , prohibit a
     certain number of carcinogens present at the workplace .
Toxicological evaluation
Toxicological evaluation is central to the assessment of the health
risks due to the presence of many chemical and biological agents in
the working environment .    This can be carried out only if suffi­
cient knowledge is available on the effects of the agents under
consideration on man .    The methodology adopted by the Commission
for assessing the dangers from environmental pollutants in general
is based on research into criteria for noxiousness from which
permissible human exposure levels may be deduced .      The data al­
ready collected by the Commission on the effects on health of urban
atmospheric pollutants and certain water pollutants provide a basis
for the action planned in industry , but it needs to be considerably
extended and developed .    Priority will be given to the following
substances :  arsenic , cadmium , chromium , iron oxides , nickel ,
vegetable dusts , ozone , nitrogen oxides and biological pollutants .
     The Commission , while taking account of studies already car­
ried out and projects being planned at international level , is to
give priority to the extension and development of information
relating to the objective evaluation of risks associated with toxic
substances present at the workplace .     This action will lead to
directives on exposure levels for workers and also to the compila-
                                    *
txon of handbooks on the safe handling of such substances at the
workplace .   The Commission intends to carry out this action by
means of a series of studies and scientific and technical consulta­
tions .   It will be assisted in this action by a Scientific Commit­
tee on Toxicology planned for the end of 1977 .
 ---pagebreak---                                - 13 -
Initiative 3
     More extensive monitoring of workers' safety and health
Aim
     Whereas exposure limits for workers and safety and health protec­
tion measures are essential factors in the organization of accident and
disease prevention , various permanent and well-adapted methods are also
                                                    »
required with which to monitor the measures adopted and the exposure
levels prescribed for the workplace .
     These monitoring methods must be harmonized and coordinated at
Community level .
     The monitoring of workers' health and safety depends upon several
types of monitoring which complement each other :
a)   monitoring of the effectiveness of individual or group safety and
     protection measures with regard to machinery , equipment and plant ;
b)   monitoring of hygiene and working conditions from which the types
     of exposure to different physical , chemical and biological agents
     present in the working environment are derived ;
c)   monitoring of the state of health and behaviour of the worker as
     part of occupational medicine ;
d)   special monitoring as a result of work entailing special risks ;
e)   industrial toxico-vigilance ;
f)   inspections .
             ,                                                            ι
     The Commission feels that it is essential to harmonize at Community
level principles and methods applicable to monitoring .   Moreover ,
efforts should be made to interest workers in monitoring within the
undertaking , either by direct means or by means of existing bodies or
institutions .
     Any proposed solutions must allow workers' and employers' represen­
tatives to play a fuller part in the practical organization of such
monitoring at various levels of action and responsibility .
 ---pagebreak---                                - 14 -
Contents
a)   Monitoring of the effectiveness of safety and protection measures
     Planning and execution of this form of monitoring varies at present
     from country to country and according to the regulations and acti­
     vities concerned .   Once the provisions currently governing such
     monitoring have been analysed , suitable proposals will be submitted
     to the Council for adoption in order to harmonize and strengthen
     the organization of this type of monitoring in which the workers'
     and employers' representatives should play a greater r61e .
b)   Monitoring of hygiene and working conditions
     Monitoring of pollutant concentrations at workplaces and the inten-
                                                                         ι
     sity of environmental factors is essential for the organization of
     disease prevention and monitoring .
          Measuring programmes do exist in Member States but they are
     based on different methods and sometimes different principles .
     These measures must be harmonized at Community level with regard to
     sampling , techniques and measuring intervals .
          When the Commission has analysed these different methods , it
     will draw up intercomparison programmes and prepare reference
     methods for the determination of the major pollutants present at
     workplaces .
          Special attention will be paid to promoting the development of
     new monitoring and measuring methods for individual exposure .
          The Commission will make a similar effort to apply the human
     biological indicators already in . existence and will carry out
     research for new indicators which will make it possible to detect
     any changes in the state of health at an early stage .    The Euro­
     pean list of occupational diseases will be used as a reference
     document for drawing up the priorities for this action scheduled to
     take place as from 1978 .   Account will have to be taken not only
     of individual sensitivity , which may be very high for some pollu­
     tants , and of workplaces so that groups with a high occupational
     exposure risk may be identified , but also of some special groups of
     workers such as adolescents and women .
 ---pagebreak---                                 - 15 -
c;  Mona.J&ogj.ng of workers  health
    In accordance with the terms of Article 118 of the Treaty estab­
    lishing the EEC , occupational medicine must be considered as an
    area in which the Commission has the task of promoting close co­
    operation between Member States in the social field , particularly
    in matters relating to working conditions and to the prevention of
    occupational accidents and diseases .     The term " occupational
    medicine " , as stated in the 1962 recommendation on occupational
    medicine in the undertaking , refers to a service established in or
    near a place of employment for the purposes of :
    a)     protecting the workers against any health hazard which may
           arise out of their work or conditions in which it is carried
           on ;
    b)     contributing towards the workers' physical and mental adjust­
           ment , in particular by the adaptation of the work to the
           workers and their assignment to jobs for which they are sui­
           ted ;  and
    c)     contributing to the establishment and maintenance of the
           highest possible degree of physical and mental well-being of
           the workers .
    In addition , Recommendation 112 of the ILO stated that the role of
    occupational health services should be essentially preventive and
    defined their functions so as to include the prevention of acci­
    dents and occupational diseases , the rehabilitation of workers , job
    analysis in the light of physiological and psychological considera­
    tions , surveillance of hygiene , advice on the placement of workers ,
   .medical supervision , emergency treatment and research in occupa­
    tional health .
          Consideration must be given to closer harmonization of the
   methods used by occupational health services in undertakings in
    order that the work of the industrial medical officer may be more
    fully integrated into the system for monitoring workers' safety and
    health , as recommended in this programme .
          This revision will be carried out with effect from 1978 by
    consultation with the relevant bodies and should culminate in a
    directive on the organization of occupational medicine in the
   Member States of the Community , to be proposed in 1979 .
 ---pagebreak---                               - 16 -
d) Spécial monitoring
   In many undertakings there are some jobs which present higher than
   average risks ; certain types of casual work may also involve expo­
   sure to risk wliich is higher than that present in normal working
   conditions or than the exposure levels laid down .    Such jobs are
   done , for example , by members of rescue teams or of maintenance and
   repair teams and by workers in virology laboratories and in insti­
   tutes producing sera or viruses , etc .
         Exchanges of information and experience for cases involving
   these aspects should be organized at Community level and should
   lead to a definition of the principles and criteria for this parti­
   cular type of monitoring .
e) Industrial toxico-vigilance
   The Commission plans to set up an industrial toxico-vigilance
   system along the lines proposed by the ILO and which is aimed at
   establishing a central information system for all observations made
   in industrial activity concerning the harmful effects of toxic sub­
   stances .   This system should be based on a network of highly spe­
   cialized centres which could analyse information received from
   occupational health services and transmit it when required to
   interested persons or institutions .
         The Commission will make an appropriate proposal to the Coun­
   cil , after holding the necessary consultations .
f) Inspections
   Inspections carried out for the purposes of occupational safety ,
   medicine and hygiene should be organized so that they assume full
   responsibility and control by placing the emphasis on preventive
   measures .   With this end in view the necessary provisions must be
   made in close collaboration with the competent authorities in
   Member States for the strengthening and development of the work of
   inspection at national level .    The Commission intends to review
   the role of the inspectorate responsible for implementing in each
   Member State the regulations of occupational health , hygiene and
   safety .   This review will cover diplomas , certificates and other
   qualifications , and the powers and scope of their responsibilities
   in this field .
 ---pagebreak---                                - 17 -
Initiative 4
     Accident and disease aetiology and assessment of risks connected
     with work
Aim
     The risk of accident or disease may be estimated objectively only
if reliable methods are available which make it possible to determine
the scope , seriousness and development in time and , in a general way , to
acquire greater knowledge of the various factors involved in the cause
of accidents at work and of diseases due to work .
     Statistics are essential tools for the analysis and interpretation
of facts and for assessment of the results obtained from an accident and
disease prevention policy .
     The improvement of statistics and their comparability , the harmoni­
zation of methodologies and the more precise interpretation of the data
they provide are important steps in the development of an improved
organization of work with regard to accident and disease prevention .
Since so many different approaches are used a distinction must be drawn
between action in respect of accidents at work and action in respect of
disease due to work .
     Such actions must provide a clearer picture of the different causa­
tive factors of accidents at work and of diseases due to work and must
use them as a basis for practical preventive and protective measures
against hazards connected with work .   It will then be possible to
provide preventive–type protfection for men at work , on an objective and
realistic basis .
     In addition , special attention will be paid to calculating the
economic and social cost of accidents at work and diseases due to work
so as to establish the order of priority for preventive measures .
     Account will be taken of the harmonization work already carried out
by other international organizations and of work completed or in pro­
gress , particularly by the ILO .
 ---pagebreak---                                - 18 -
Contente
     These initiatives deal separately with accidents at work and disr
eases resulting from work .
     As regards accidents at work the two sectors for which Community     •
statistics are already available are the iron and steel industry and
mining .  Drawing on the experience gained in these sectors the Commis­
sion plans to draw up Community statistics concerning other sectors , to
launch sectoral in-depth studies and to harmonize accident definitions
and methods of reporting accidents in order to establish more precisely
the aetiology of accidents .   Preparatory surveys are in progress and
the first results will be available in 1979 .
     With regard to diseases due to work , statistics collected at na­
tional level usually concern only occupational diseases and are drawn up
on different bases so that it is not possible to compare them .   There
are no Community statistics in this field and it would be appropriate to
devise a joint methodology as soon as possible so that existing national
statistics may be processed .   The Commission therefore plans to gather
and analyse national statistical information and to draw up proposals
for methodologies with a view to a common approach , so that calculations
may be made of mortality , sickness and absenteeism rates and their
evolution over a period of time .
                                                                        I
     Close collaboration must be instituted with the national statis­
tical offices and the national social security offices with regard to
these new problems .
     This is a medium-term initiative and the first results Will become
available only after two or three years .
 ---pagebreak---                                 - 19 -
Initiative 5
      Coordination and promotion of research on occupational safety
      and health
Aim
      The action planned in the programme must find its scientific sup­
port in a research programme .which is coordinated and/or carried out
jointly and which deals on the one hand with the measurement and effects
on health of pollutants and harmful substances and , on the other hand.,
with the development within undertakings of safer , " cleaner " technolo­
gies which do not threaten the general environment . .
      Collaboration must be organized and strengthened between the insti­
tutes and laboratories of Member States in order to avoid duplication of
work , to derive greater benefit from the financial resources available
and where necessary to bring together highly specialized laboratories to
work on problems which cannot be solved in a single Member State .
      Moreover , research must be carried out in fields where little or no
work has been done , such as agriculture and the tertiary industries .
Contents
      Two permanent inventories of research m progress or planned ( oc­
cupational safety and medicine ) at national level are already being
prepared at Community level .    From 1978 the inventories will make it
possible to set up a reciprocal information system on responsible bodies
in order to promote the exchange of knowledge and create conditions for
close collaboration between research institutes .    These permanent
inventories will also mention fields in which there are gaps .     Three
pilot studies are in progress on inflammable substances , occupational
risks in the building industry and certain carcinogens .    During 1978
these studies will also indicate which subjects should be covered by
joint research .
      On the basis of these inventories the data bank being compiled
within the Commission should be progressively supplemented and should
include details of new research ;   account is taken of the fact that this
data bank will subsequently be linked to the information system on'
medical research which is being set up at Commission level .
 ---pagebreak---                                - 20 -
     Research work aimed at clotting the gape in knowledge on toxic
agents and their effects on health or at improving methods for measuring
these agents is of major importance for the success of several parts of
the programme - in particular the section on the determination of cri­
teria for harmfulness .  It will also help to determine as accurately as
possible the potential and actual effect on health of pollutants and
nuisances present or likely to be present at the workplace .
     The results of the implementation of the various initiatives making
up the programme will be analysed by the Commission with effect from
1979 and could form a basis for the preparation of a detailed and pre­
cise Community research and development programme which could be the
subject of a future Commission proposal for adoption by the Council .
 ---pagebreak---                                 - 21 -
                              ν
Initiative 6
     Development of safety and health consciousness by means of
     education and training
Aim
     This initiative is aimed at developing safety and health conscious­
ness by means of education and training .     It is of paramount importance
for the success of the promotion of safety and hygiene at workplaces .
It is based on instruction and training and involves various levels of
education and the undertaking itself .     It also concerns in a general
way occupational and social sectors involved in problems of accident
prevention and health protection at work .
     This is a medium- and long-term initiative in view of the different
sectors involved and of the absence to date of any real methodology and
common principles .    Various studies and consultations will be required
before results and concrete proposals are obtained at Community level .
     This action concerns educational bodies , undertakings and society
in general .
     As for education the basic principles of safety and of health edu­
cation must be taught in schools .     Knowledge of and the correct atti­
tudes towards occupational safety and hygiene must be taught at various
levels of education as an integral part of the curriculum and at the
same time attention must be paid to the requirements of prevention in
relation to real life situations .     The question is one of establishing
at Community level a safety training scheme which takes account of the
differences between national characteristics and traditions but which is
based on common principles and a common approach .
     Within undertakings steps for the elimination of risks must be
systematically organized and coordinated at all levels of responsibility
and management .    Principles of safety must be consolidated , developed
and made public .    Action designed to sharpen the awareness of industri­
alists and heads of undertakings must be taken together with the cam­
paign aimed at workers .
 ---pagebreak---                                 - 22 -
     For the training of society in general the action taken in educa­
tion must fee supplemented by action aimed at certain population groups .
The use of audiovisual aids is one of the most modern and most effective
means of informing the public of the importance and significance of
accident and disease prevention .
Contents
1)   Education
     The Commission plans to carry out , together with the bodies res­
     ponsible for national education , preparatory studies for the pur­
     pose of defining harmonized planning at Community level .
          In general education - starting at the earliest age and con­
     tinuing throughout school life - instruction must be on two levels :
     -    theoretical and practical instruction to give children and
          young people an awareness of the risk of accidents ;
     -    instruction to develop a sense of moral and public responsibi­
          lity with regard to safety and health protection .
          In technical education relevant training in safety and health
     protection should accompany all levels of technical instruction and
     vocational training .    Special attention should be paid to the
     training of persons particularly concerned with safety and health
     protection who have a specific task or responsibility in this
     field .
          The Commission plans to propose Community training models for
     persons in certain occupations and concerned with specific tasks ,
     such as industrial medical officer , occupational safety officer ,
     engineer , architect , member of a company safety committee or union
     official .
2)   Undertaking
     Within an undertaking training in safety must be under the control
     of the undertaking itself since general and technical training
     cannot take the place of appropriate action at the workplace .
     This type of training must supplement the instruction received in
     schools and it must also be given to those who have not previously
     received any such instruction .
           Such training , to be carried out within industry , will be more
     specialized and more detailed .    In many cases it will be organized
 ---pagebreak---                                  - 23 -
      by specialist bodies whose work must be coordinated at Community
      level .   It should ba remembered that education covers a broad
      span of learning situations - for example instruction given by
      experienced workers and learning on- the- job.
            Beginning in 1978 , the Commission intends :
      -     to draw up Community models for safety training and refresher
            courses for certain categories of staff :    administrative
            grades , executive grades , instructors for courses on safety
            and health education and safety delegates ;
      -     to draw up Community models for presenting various aspects
            of safety to newly recruited workers , migrant workers and
            workers who have changed jobs ;
      -     to draw up manuals and codes of practice with regard to secto­
            ral activities or dangerous jobs;'
      -     to organize safety campaigns of limited duration with a spe­
            cific aim , in which workers will feel fully and actively
            involved ;
      -     to extend the group training courses already in existence to
            other groups of persons concerned with accident prevention
            and safety measures .
            This action will be furthered by making available to both
      management and labour knowledge or concepts acquired either by ex­
      change of experience within specialist groups in the relevant
      sectors or by research projects jointly agreed and financed .      Such
      knowledge could be included in instructions , regulations or codes
      of practice , to be distributed with commentaries in the appropriate
      quarters and to be kept constantly up to date .
            The Commission will support this type of cooperation and pro­
      motion of safety by providing information gathered from specific
      aspects of the action programme , such as information on accidents
      and on technical progress in the design , manufacture and use of
      machinery and plant , and by making available the industrial toxico-
      yigilance results .
3 ) ' Population groups                                                    '
      In addition to the action taken in education , general information
      for certain population groups ( such as parents' associations , pro­
      fessional bodies , women 's associations ) must be organized with
      regiard to the importance of accident and disease prevention .    Some
      steps have already been taken in this field at national level .
      Audiovisual aids are already used to provide this
 ---pagebreak---                             - 24 -
infoarma-feion . The Cennaiseidh plans to coersinate these initia­
tives and develop them jointly , to produce films and set up a
permanent file .on audiovisual aids availaJbe on an exchange basis .
 ---pagebreak---                                                     FICHE FINANCIERE
1 . Lime budgétaire concerr.ee                            /
      Poats 35^0                             ,                '                       '   .              ■
2 . Intitulé de l' action                                                               .   ;•      ■
      Pr-o^ramme d' action des Communautés européennes en matière de santé et securi "
      sur le lieu de travail .
3 » Base .juridique
      3.0 Articles 117 et 118 du Traité C„E„E .                                     .
      3.1 Résolution du Conseil du 21 janvier 1974 concernant un prcgra^r.e • d' a.;-. i ; r.
             sociale et notaient la priorité Ko 6 »
4 . Objectif de l' action                                                .
      L' élévation du, niveau da protection à l' égard des risques professiczr.eis as
      'toute nature , en rendant plus efficace la prévention , le contrôle et
           - V« ~ c? ^  <^1 a r% iT-T. "*■*** C  T  ^ ,
 5 0 _Inclder.ce financière de l' action
    ■                   sur le ? derer.ses s action permanent e
       5,0,0.1          a la charre du budget communautaire
       5 „ 0.1           échéancier pluriannuel des crédits
                                               1°7S -              1979              1980
                              825.0C0 u.c.e .                   1.100.000 UoC.e , l«300«0w0 u«c*:r.«
                                               a   prix     constants
                        Si le programme d' action des Communautés européennes en matière de
                        santé et sécurité sur le lieu de travail est adopté comme prévu dans
                        le courant du premier semestre 1978 , des actions nouvelles seron * â
                        entreprendre et justifient une augmentation des ressources , aussi
                      . bien en ce qui concerne les réunions de concertation et de consulta­
                        tion que des études et des programmes d 1 intercomparaison .
                                                                                              m * «   • *  • «
 ---pagebreak---                                            - 2 -
                                              •                          .
   5.1 .     Incidence financière sur les ressources : néant
   5.1.1 .   Mode de calcul
             D' ôprâo l' expérience cuitâfieuW on pduï eutlmif gfua las dépenses 8 *
                                                                                     1976
             répartissent comme suit :                                              u.c . e .
             – Réunions d' experts.                                                125.000
             – contrats d-' études et de prestation de services
                pour la mise au point de directives , recomman–
               dations et guides de tonne pratique etc.                            400.000
            – organisation de colloques , symposia , sémin­
                aires techniques et scientifiques et publication
               des actes ainsi que de rapports scientifiques                       100.000
            – stages et séminaires destinés aux responsables
               des Etats membres et des partenaires sociaux                         90*000
            – visites d' information et* coordination auprès
               des organes et installations qui participent
               à l' action communautaire de prévention                        *     30.000
                  " Γ» Ι ^     Λ*     Λ   Λ·*   Λ Λ· < *    1 1»»· ρ'ίΓ»  -» ·■* £
               permanent de documentation et d' information
               technique                                                            70.000
            – développement de moyens audio-visuels sur la
               sécurité du travail , l' éducation et la forma–'
               tion santé-sécurité                                                  30.000
                                                                                   825 . 000
             Pour ce qui est de réunions , missions , études et. colloques , les
             coûts ont été calculés d' après les barèmes utilisés par la Cor.iisîirr.
             peur les dépenses de ce ger. re .
           Pour les années 1979 et i960 , les dépenses se répartiront vraisembl&ble~ent
           de la même manière .
6 . Financement
    6.0    Financement possible par crédits inscrits au chapitre concerné dans le
           budget .
7 « Information sur le personnel nécessaire pour la réalisation de l' action
    En supposant que le programme soit accepté par: le Conseil au cours de l' année 197
     les effectifs nécessaires à la réalisation du programme qui doivent être cis
    à la disposition des services de Luxembourg ( D.G. V. et Office Statistique )
     doivent être évalués à 9 A , 5 B et 5               , se répartissant comme suit ":
           - Office Statistique : 1 A - 1 B ( effectif supplémentaire )
           - D.G. V.-              : 8 . A - 4 B - 5 C. ■
 ---pagebreak---                               - 3 -
©ans le personnel actuel en servies à la B.S. V. à Luxembourg ( Direction
Santé et Sécurité ) il y a 4 A et 1 C qui sont déjà directement concernés
par le programme . L' effectif supplémentaire à mettre à la disposition dès
1979 se composerait donc de :
                    -4 A  -  4 B  -  4 C.