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Global Strategy on
Occupational Safety and Health
Conclusions adopted
by the International Labour Conference
at its 91st Session, 2003
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International Labour Office
Copyright © International Labour Organization 2004
Fit'st pn hitshed 2004
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BRI
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Decent Work must be Safe Work
■?
In June 2003, the International Labour Conference discussed
the International Labour Organization’s standards-related activities
in the area of occupational safety and health. The discussion took
place in the context of the tripartite Committee on Occupational
Safety and Health comprising 104 Government members,
37 Employer members and 58 Worker members
Ever since it was founded in 1919, the subject of occupational
safety and health has been at the heart of the ILO’s work, includ
ing its standards-setting activities. The 2003 discussion attracted a
high level of interest among delegates and reflected the importance
which ILO constituents continue to attach to the issue of occupa
tional safety and health.
We are pleased to reproduce the Conclusions of the Confer
ence in this document. We hope that it will be a useful resource
for all who aim to promote and protect workers’ safety and health.
Occupational accidents and diseases cause great human suf
fering and loss. The economic cost is high. Yet public awareness
of occupational safety and health tends to be low. All too fre
quently it does not get the priority it merits. This must change and
action needs to be stimulated and accelerated nationally and inter
nationally.
The Conference Conclusions outline a global strategy on
occupational safety and health. They confirm the role of ILO instru
ments as a central pillar for the promotion of occupational safety
and health. At the same time they also call for integrated action that
better connects the ILO standards with other means of action such
iii
as advocacy, awareness raising, knowledge development, man
agement, information dissemination and technical cooperation to
maximize impact.
The Conclusions pinpoint the need for tripartite national com
mitment and national action in fostering a preventive approach
and a safety culture which are key to achieving lasting improve
ments in safety and health at work.
The ILO and its constituents must be leaders in promoting
occupational safety and health at work. Together we must build
the partnerships that are needed to bring about the changes
we seek.
Decent Work must be Safe Work. These Conference Conclu
sions provide guidance to the ILO and its constituents to make this
a reality.
Juan Somavia
Director-General
iv
*1
Conclusions concerning ILO standardsrelated activities in the area
of occupational safety and health
- A global strategy
1.
The magnitude of the global impact of occupational acci
dents and diseases, as well as major industrial disasters,
in terms of human suffering and related economic costs,
have been a long-standing source of concern at work
place, national and international levels. Significant efforts
have been made at all levels to come to terms with this
problem, but nevertheless ILO estimates are that over
2 million workers die each year from work-related acci
dents and diseases, and that globally this figure is on the
increase. OSH has been a central issue for the ILO ever
since its creation in 1919 and continues to be a funda
mental requirement for achieving the objectives of the
Decent Work Agenda.
2.
In addition to established measures to prevent and con
trol hazards and risks, new strategies and solutions need
to be developed and applied both for well-known haz
ards and risks such as those arising from dangerous sub
stances, machinery and tools and manual handling as
well as for emerging issues, such as biological hazards,
psychosocial hazards and musculo-skeletal disorders.
Furthermore, as OSH is an intrinsic part of social relations
it is affected by the same forces of change that prevail in
national and global socio-economic contexts. The effects
1
of demographic factors and dynamics, employment shifts
and work organization changes, gender differentiation,
the size, structure and life cycles of enterprises, the fast
pace of technological progress, are examples of the key
issues that can generate new types of patterns of hazards,
exposures and risks. The development of an appropriate
response to these issues should rely on and make use of
the collective body of knowledge, experience and good
practice in this area. Safety and health measures are
undertaken to create and sustain a safe and healthy work
ing environment; furthermore, such measures can also
improve quality, productivity and competitiveness.
3.
Although effective legal and technical tools, methodolo
gies and measures to prevent occupational accidents and
diseases exist, there is a need for an increased general
awareness of the importance of OSH as well as a high
level of political commitment for effective implementa
tion of national OSH systems. Efforts to tackle OSH prob
lems, whether at international or national levels, are often
dispersed and fragmented and as a result do not have the
level of coherence necessary to produce effective impact.
There is thus a need to give higher priority to OSH at
international, national and enterprise levels and to
engage all social partners to initiate and sustain mecha
nisms for a continued improvement of national OSH sys
tems. Given its tripartite participation and recognized
global mandate in the area of OSH, the ILO is particularly
well equipped to make a real impact in the world of
work through such a strategy.
4.
The fundamental pillars of a global OSH strategy include
the building and maintenance of a national preventative
safety and health culture and the introduction of a sys
tems approach to OSH management. A national preven
tative safety and health culture is one in which the right
to a safe and healthy working environment is respected
at all levels, where governments, employers and workers
actively participate in securing a safe and healthy work. ing environment through a system of defined rights,
responsibilities and duties, and where the principle of
prevention is accorded the highest priority. Building and
2
h
maintaining a preventative safety and health culture
require making use of all available means to increase
general awareness, knowledge and understanding of the
concepts of hazards and risks and how they may be pre
vented or controlled. A systems approach to OSH man
agement at the enterprise level has recently been devel
oped in the ILO Guidelines on Occupational Safety and
Health Management Systems (ILO-OSH 2001). Building
on this concept and related methodology, the global OSH
strategy advocates the application of a systems approach
to the management of national OSH systems.
An ILO action plan for the promotion
of safety and health at work
I.
Promotion, awareness raising and advocacy
5.
The fostering and promotion of a preventative safety and
health culture is a fundamental basis for improving OSH
performance in the long term. Multiple approaches could
be taken for this purpose. Since the promotion of such a
preventative culture is very much a leadership issue, the
ILO has to play an advocacy role with regard to different
initiatives. Therefore the ILO should:
« endorse the establishment of an annual international
event or campaign (world day or a safety and health
week) aimed at raising widespread awareness of the
importance of OSH and promoting the rights of work
ers to a safe and healthy working environment. Such
an initiative should respect the workers’ commemora
tion event organized since 1984 on 28 April;
seek ways to raise visibility of the ILO and its OSH
instruments;
a launch a global knowledge and awareness campaign
focused on promoting the concept of “sound man
agement of safety and health at work” as the most
effective means for achieving strong and sustained
preventative safety and health culture at both the
national and enterprise levels;
3
strategically use international meetings to promote a
preventative safety and health culture including the tri
ennial World Congress on Occupational Safety and
Health organized jointly by the ILO and the Inter
national Social Security Association;
a internally implement its own guidelines on OSH man
agement systems;
s encourage the launching of national OSH programmes
by the highest government authorities.
1
II.
ILO instruments
6.
A new instrument establishing a promotional framework
in the area of OSH should be developed on a priority
basis. The main purpose of this instrument should be to
ensure that a priority is given to OSH in national agendas
and to foster political commitments to develop, in a tri
partite context, national strategies for the improvement of
OSH based on a preventative safety and health culture
and the management systems approach. In its function as
an overarching instrument with a promotional rather than
prescriptive content, it would also contribute to increas
ing the impact of existing up-to-date ILO instruments and
to a continuous improvement of national OSH systems
including legislation, supporting measures and enforce
ment. Such a practical and constructive instalment should
promote, inter alia, the right of workers to a safe and
healthy working environment; the respective responsi
bilities of governments, employers and workers; the
establishment of tripartite consultation mechanisms on
OSH; the formulation and implementation of national
OSH programmes based on the principles of assessment
and management of hazards and risks at the workplace
level; initiatives fostering a preventative safety and health
culture; and worker participation and representation at all
relevant levels. It should strive to avoid duplication of
provisions which are in existing instruments. In order to
enable an exchange of experience and good practice on
OSH in this respect, the instrument should include a
mechanism for reporting on achievements and progress.
4
III.
7.
As regards revisions, priority should be given to the revi
sion of the Guarding of Machinery Convention, 1963 (No.
119), and the Guarding of Machinery Recommendation,
1963 (No. 118), and the revision of the Lead Poisoning
(Women and Children) Recommendation, 1919 (No. 4),
the White Phosphorus Recommendation, 1919 (No. 6),
the White Lead (Painting) Convention, 1921 (No. 13), the
Benzene Convention, 1971 (No. 136), and the Benzene
Recommendation, 1971 (No. 144), in a consolidated
manner by a Protocol to the Chemicals Convention, 1990
(No. 170).
8.
With a view to increasing the relevance of ILO instru
ments, the development of new instruments in the areas
of ergonomics and biological hazards should be given the
highest priority. Priority should also be given to the
development of a new instrument on the guarding of
machinery in the form of a code of practice. Considera
tion should also be given to work-related psychosocial
hazards for further ILO activities.
9.
Occupational safety and health is an area which is in con
stant technical evolution. High-level instruments to be
developed should therefore focus on key principles.
Requirements that are more subject to obsolescence
should be addressed through detailed guidance in the
form of codes of practice and technical guidelines. The
ILO should develop a methodology for a systematic
updating of such codes and guidelines.
Technical assistance and cooperation
10. It is important to provide technical advisory and financial
support to developing countries and countries in transi
tion for the timely strengthening of their national OSH
capacities and programmes. This is of particular impor
tance in the context of rapid changes in global economy
and technology. In developing technical cooperation
programmes, priority should be given to the countries
where the assistance is most needed and where the com
mitment for sustained action is obvious, for example in
5
the form of initiated national OSH programmes. The for
mulation and implementation of technical cooperation
projects, beginning with a needs assessment at the
national, regional and international levels, are the effec
tive ways in this regard. Where possible, these projects
should have a multiplier effect at the regional level and
be self-sustaining in the long term. Together with its con
stituents, the ILO should make special efforts to seek the
support of donor countries and institutions as well as
innovative funding sources for such purposes along with
increasing OSH experts in the regions. Experiences
gained through technical cooperation projects should be
widely shared, particularly at the regional level.
11. The formulation of national OSH programmes, which has
been promoted by the ILO in recent years, is an effective
way to consolidate national tripartite efforts in improving
national OSH systems. The endorsement and launching
of a national OSH programme by the highest government
authority, for example by the Head of State, government
or parliament, would have a significant impact on
strengthening national OSH capacities and mobilization
of national and international resources. It is essential to
ensure the active participation of employers, workers and
all relevant government institutions in the formulation
and implementation of the programme. The programme
should be developed on the basis of the achievements
and needs of each country aiming at the improvement of
national OSH systems and their capacity and OSH per
formance.
12. National OSH programmes should cover key aspects
such as national policy, high-level commitment and
vision that are publicly expressed and documented,
national strategy that would include the development of
a national OSH profile, targets, indicators, responsibili
ties, resources, and government leadership. Such pro
grammes would strengthen national government depart
ments and their OSH inspection and enforcement
systems, OSH service structures, employers’ and workers’
organizations focused on OSH, information centres and
networks, cross-cutting education and training systems,
6
research and analytic structures, occupational injury and
disease compensation and rehabilitation systems that
include experience rating and incentives, voluntary and
tripartite programmes and structures, as well as advocacy
and promotion.
13. In developing methodologies to assist in the establish
ment and implementation of national OSH programmes,
consideration should be given to the elaboration of
appropriate and practical input, process and output
indicators designed to provide a tool for the evaluation
of progress by constituents, as well as a basis for periodic
review and identification of future priorities for action in
the prevention of occupational accidents and diseases;
14. The capacities and.expertise of ILO field structures in the
area of OSH should be strengthened to better address the
needs of constituents in this area. The means of commu
nication between ILO headquarters and its field offices
should be streamlined and improved to ensure that avail
able country data can be analysed and used effectively
for planning and developing projects.
IV.
Knowledge development, management and dissemination
15. In the field of OSH, adequate capacities to develop,
process and disseminate knowledge that meets the needs
of governments, employers and workers - be it inter
national standards, national legislation, technical guid
ance, methodologies, accident and disease statistics, best
practice, educational and training tools, research or
hazard and risk assessment data, in whatever medium,
language and format needed - are a prerequisite for iden
tifying key priorities, developing coherent and relevant
strategies, and implementing national OSH programmes.
The ILO should continue to improve its means to assist
constituents in developing their capacities in this area,
and responding to their specific needs, particularly in the
establishment or strengthening of the national and col
laborating centres of the ILO’s International Occupational
Safety and Health Information Centre (CIS) and linking
7
these centres through the Internet to form regional net
works and a global OSH information exchange system
that could also serve as the backbone for a global hazard
alert system.
16. The ILO should foster research on particular priority sub
jects in the area of OSH, preferably in collaboration with
other interested organizations, as a basis for decision
making and action.
17. Free access to ILO OSH information to all who need it
should be granted through all available dissemination
means and networks such as CD-ROM and the Internet.
Assistance to constituents in the translation of key OSH
documents and materials in local languages is vital. The
ILO should collaborate with other interested organiz
ations and bodies in integrating the ILO’s information
centres and networks into wider global OSH information
networks designed to provide constituents with easy
access to key quality and multilingual OSH information
and databases, particularly in the areas of OSH legisla
tion, technical and scientific guidance, training and edu
cation materials, and best practice. The sharing of suc
cessful experience and approaches among all those
involved in safety and health is the most efficient way of
facilitating the development of practical preventative
measures for new and traditional problems. Access to
such a body of knowledge would also facilitate the ILO’s
task of identifying key trends and updating its instru
ments accordingly.
18. The ILO should contribute to international and national
efforts aimed at developing harmonized methods for the
collection and analysis of data on occupational accidents
and diseases. Methodologies should also be designed to
assist constituents in the techniques of information col
lection, analysis, processing and dissemination, and on
the use of reliable information in planning, prioritizing
and decision-making processes.
19. It is essential to provide education to raise awareness of
OSH issues to all starting from schools and other educa
tional and training institutions. In addition, certain groups
8
need more advanced OSH education and training, includ
ing management, supervisors, workers and their repre
sentatives, and government officials responsible for safety
and health.
20. The ILO should develop practical and easy-to-use train
ing materials and methods focused on the “train-thetrainer” approach on key aspects of safety and health at
work and improve the capacities of the ILO field struc
tures in the area of OSH information dissemination and
provision of training, and in particular those of the ILO’s
training centres. The ILO should support developing
countries in the establishment of relevant OSH training
mechanisms to reach all workers and their representa
tives and employers. Training should focus on support
ing preventative action and on finding practical solutions.
Vulnerable workers and workers in the informal econ
omy should be given special consideration. The ILO
training package on Work Improvements in Small Enter
prises (WISE) has been used in many countries resulting
in concrete improvements at enterprises. WISE and other
training materials should be further improved and made
widely available at low cost. OSH education curricula
should be developed at the appropriate level.
V.
International collaboration
21. Collaboration with international organizations and bodies
involved in various activities related to OSH, in particu
lar with WHO, has proven to be a very effective way of
ensuring that ILO values and views are taken into
account and used as a basis for the development of tech
nical standards and methodologies pertaining to OSH.
This collaboration puts the ILO at the centre of global
networks and alliances that are vital mechanisms for
maintaining the currency of its technical knowledge base
as well as influencing other bodies. It is also very effec
tive in ensuring complementarities of mandates and
avoidance of duplication of efforts, and opens opportu
nities for employer and worker experts to bring their
9
I
views to bear on outcomes outside the mandate of the
ILO.
22. In taking action to further improve the visibility, stream
lining and impact of the ILO’s role in OSH, consideration
should be given to a periodic review of activities in this
context and reporting to the Governing Body of the ILO
on key issues and outcomes. This type of collaboration
should be further encouraged and strengthened, particu
larly in areas where common interests and mandates are
shared between several organizations and where out
comes of activities are of benefit to the ILO’s constituents,
such as the work of the ILO/WHO Joint Committee on
Occupational Health, the International Programme on
Chemical Safety, the Inter-Organization Programme for
the Sound Management of Chemicals (IOMC) and the
International Commission on Occupational Health
(ICOH). Within the context of ongoing efforts by the
United Nations Environment Programme, the Inter-gov
ernmental Forum on Chemical Safety and the IOMC in
developing a strategic approach to integrated chemicals
management, the ILO should contribute to this work and
ensure the full participation of employers’ and workers’
organizations in this process so that their views and inter
ests are duly taken into account. The final outcome of
this process should be presented to the ILO decision
making bodies for consideration.
General considerations
23. In developing and implementing the global strategy, the
ILO should make special efforts in relation to countries
with particular needs for assistance and willing to
strengthen their OSH capacities. Other means that could
be considered at a national level as part of strategies to
improve working conditions at the enterprise level,
including SMEs and informal economy undertakings, and
for vulnerable workers, including young, disabled and
migrant workers, and the self-employed, include: extend
ing coverage of legal requirements, strengthening the
10
capacities of enforcement and inspection systems, and
focusing these capacities towards the provision of tech
nical advice and assistance in the area of OSH; the use of
financial incentives; initiatives to strengthen linkages
between primary health-care systems and occupational
health; the introduction of hazard, risk and prevention
concepts in school curricula and educational systems in
general (prevention through education) as an effective
means to build strong and sustained preventative safety
and health cultures on a continuous basis. A further con
sideration is the need to take account of gender specific
factors in the context of OSH standards, other instru
ments, management systems and practice. Within the
Office, the mainstreaming of OSH in other ILO activities
should be improved. Furthermore, the integrated
approach should be progressively applied to all other
areas of ILO activities. Finally, due consideration should
be given to the provision of adequate resources to imple
ment this action plan.
11
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Annex
ILO OSH instruments - Ratifications and status
The following tables include a chronological list of Conven
tions, Recommendations and codes of practice, as well as the
status of each Convention and Recommendation listed as decided
by the Governing Body on the basis of the recommendations of
the Working Party on Policy regarding the Revision of Standards of
the Committee on Legal Issues and International Labour Standards
(LILS/WP/PRS).
Conventions
Ratifications Status
(as at
Instrument
01.03.04)
White Lead (Painting) Convention, 1921 (No. 13)
Marking of Weight (Packages Transported by
Vessels) Convention, 1929 (No.27)
Underground Work (Women) Convention, 1935
(No. 45)
Labour Inspection Convention, 1947 (No. 81)
Protocol of 1995 to the Labour Inspection
Convention, 1947 (P. 81)
Radiation Protection Convention, 1960 (No. 115)
Guarding of Machinery Convention, 1963
62
65
To be revised
To be revised
97
Interim status
130
10
Up-to-date instrument
Up-to-date instrument
47
50
Up-to-date instrument
To be revised
49
Up-to-date instrument
25
41
To be revised
Up-to-date instrument
36
35
41
To be revised
Up-to-date instrument
Up-to-date instrument
20
Up-to-date instrument
41
Up-to-date instrument
22
Up-to-date instrument
27
17
Up-to-date instrument
Up-to-date instrument
11
Up-to-date instrument
(No. 119)
Hygiene (Commerce and Offices) Convention,
1964 (No. 120)
Maximum Weight Convention, 1967 (No. 127)
Labour Inspection (Agriculture) Convention,
1969 (No. 129)
Benzene Convention, 1971 (No. 136)
Occupational Cancer Convention, 1974 (No. 139)
Working Environment (Air Pollution, Noise and
Vibration) Convention, 1977 (No. 148)
Occupational Safety and Health (Dock Work)
Convention, 1979 (No. 152)
Occupational Safety and Health Convention,
1981 (No. 155)
Occupational Health Services Convention,
1985 (No. 161)
Asbestos Convention, 1986 (No. 162)
Safety and Health in Construction Convention,
1988 (No. 167)
Chemicals Convention, 1990 (No. 170)
12
Conventions (cont.)
Ratifications Status
(as at
01.03.04)
Instrument
Prevention of Major Industrial Accidents
Convention, 1993 (No. 174)
Safety and Health in MinesConvention, 1995
(No. 176)
Safety and Health in Agriculture Convention,
2001 (No. 184)
Protocol of 2002 to the Occupational Safety and
Health Convention, 1981 (P. 155)
9
20
Up-to-date instrument
Up-to-date instrument
3
Up-to-date instrument
2
Up-to-date instrument
Recommendations
Instrument
Status
Anthrax Prevention Recommendation, 1919 (No. 3)
Lead Poisoning (Women and Children) Recommendation,
1919 (No. 4)
White Phosphorus Recommendation, 1919 (No. 6)
Prevention of Industrial Accidents Recommendation,
1929 (No. 31)
Labour Inspection Recommendation, 1947 (No. 81)
Labour Inspection (Mining and Transport) Recommendation,
1947 (No. 82) Up-to-date instrument
Protection of Workers’ Health Recommendation,
1953 (No. 97)
Welfare Facilities Recommendation, 1956 (No. 102)
Radiation Protection Recommendation, 1960 (No. 114)
Workers’ Housing Recommendation, 1961 (No. 115)
Guarding of Machinery Recommendation, 1963 (No. 118)
Hygiene (Commerce and Offices) Recommendation,
1964 (No. 120)
Maximum Weight Recommendation, 1967 (No. 128)
Labour Inspection (Agriculture) Recommendation,
1969 (No. 133)
Benzene Recommendation, 1971 (No. 144)
Occupational Cancer Recommendation, 1974 (No. 147)
Working Environment (Air Pollution, Noise and Vibration)
Recommendation, 1977 (No. 156)
Occupational Safety and Health (Dock Work)
Recommendation, 1979
Occupational Safety and Health Recommendation,
1981 (No. 164)
Occupational Health Services Recommendation,
1985 (No. 171)
Asbestos Recommendation, 1986 (No. 172)
To be revised
To be revised
13
To be revised
Interim status
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
To be revised
Up-to-date instrument
To be revised
Up-to-date instrument
To be revised
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Recommendations (cont.)
Instrument
Status
Safety and Health in Construction Recommendation,
1988 (No. 175)
Chemicals Recommendation, 1990 (No. 177)
Prevention of Major Industrial Accidents Recommendation,
1993 (No. 181)
Safety and Health in Mines Recommendation,
1995 (No. 183)
Safety and Health in Agriculture Recommendation,
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
Up-to-date instrument
2001 (No. 192)
List of Occupational Diseases Recommendation,
Up-to-date instrument
2002 (No. 194)
Codes of practice
Occupational exposure to airborne substances harmful to health, 1980.
Safety in the use of asbestos, 1984.
Safety and health in coal mines, 1986.
Radiation protection of workers (ionizing radiation), 1987.
Safety, health and working conditions in the transfer of technology to developing
countries, 1988.
Safety and health in opencast mines, 1991.
Prevention of major industrial accidents, 1991.
Safety and health in construction, 1992.
Technical and ethical guidelines for workers' health surveillance, 1992.
Safety in the use of chemicals at work, 1993.
Recording and notification of occupational accidents and diseases, 1995.
Management of alcohol- and drug-related issues in the workplace, 1996.
Protection of workers’ personal data, 1997.
Safety and health in forestry work, 1998.
Use of synthetic vitreous fibre insulation wools (glass wool, rock wool, slag wool),
2000.
Guidelines on occupational safety and health management systems, 2001.
Ambient factors in the workplace, 2001.
HIV/AIDS and the world of work, 2001.
Safety and health in the non-ferrous metals industries, 2003.
14
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