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The Principles of Occupational Health
The Principles of Occupational Health
Tee L. Guidotti
Print publication date: 2011 Print ISBN-13: 9780195380002 Published to Oxford Scholarship Online: May-11 DOI: 10.1093/acprof:oso/9780195380002.001.0001
DOI: 10.1093/acprof:oso/9780195380002.003.0001
Occupational health is a multi-dimensional field, encompassing science, social progress, economics, law, employment studies, and issues common to every family. The health and safety of people at work is a critical concern for all societies and all countries. The field of occupational health touches on fundamental aspects of working life: making a living providing for a family staying healthy
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avoiding unnecessary risk of injury protecting oneself and others from harm creating useful products and services for societal benefit anticipating and preventing future problems sharing information the right to knowledge of potential health hazards fairness and justice in the treatment of workers achieving responsibility and accountability in the workplace minimizing the risk of necessary but hazardous work
Because occupational health issues are so fundamental to working life, they have become central social and political issues in countries with progressive policies and a tradition of social responsibility. These countries have developed systems of occupational health protection, social insurance, and medical services that reduce the burden on the worker and reduce the loss to the economy. However, these systems are not perfect, and they are often under stress. Developing countries often lack these systems or have them only in rudimentary forms. Occupational health problems are often overlooked as an obstacle to economic development when wages are low and the cost of health care is low. Occupational injuries and (p.4)
Figure 1.1 Occupational health is influenced by many factors and plays a critical role in shaping many social issues. illness can become a significant drag on the economy, however, by reducing productivity, increasing the burden of disability and illness on people, and causing financial insecurity. Occupational health issues are deeply embedded in society and have a profound but largely unacknowledged effect on economic development. Some of these issues include:
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the health risks that workers take to earn a living the consequences to their families when workers become ill or injured the social contract between workers and employers and the responsibility to keep the workplace safe the financial loss to workers and their families from a prolonged illness or disabling injury the cost of providing medical and rehabilitation care to injured workers the hidden cost to the health-care system of illnesses that are not recognized as occupational, especially those that take a long time to develop the cost of providing benefits and wage replacement to workers who are injured the loss of productivity that results from avoidable injuries and illness the development of new technology, the cost of production, and return on investment the social management of risk spreading, for example, by workers compensation or other insurance plans management of and minimization of the risk of disasters International organizations such as the World Health Organization (WHO) and the International Labour Organization (ILO) have given much attention to worker health and safety, as evidenced by the WHO Global Strategy on Occupational Health for All that was adopted by the 49th World Health Assembly in 1996 (WHO 1995) and by the ILO Convention No. 161 on Occupational Health Services (1985). The European Union includes occupational health as a part of its Employment and Social Policy Programmes. Although much effort has been made toward the worldwide implementation of those authoritative policies, much remains to be done before the WHO objective Occupational Health for All is achieved. In fact, out of the 3 billion workers in the world, only 10% to 15% have access to occupational health services, and these services do not necessarily correspond to the most urgent needs.
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At its first session in 1950, the Joint ILO/WHO Committee on Occupational Health defined the purpose of occupational health. It revised the definition at its 12th session in 1995 to read as follows (Alli 2001): Occupational health should aim at the promotion and maintenance of the highest degree of physical, mental and
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social well-being of workers in all occupations; the prevention amongst workers of departures from health caused by their working conditions; the protection of workers in their employment from risks resulting from factors adverse to health; the placing and maintenance of the worker in an occupational environment adapted to his physiological and psychological capabilities and; to summarize: the adaptation of work to man and of each man to his job.
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the aging of the working populations. To ensure the availability of a sufficient workforce, unnecessary losses of work ability need to be eliminated. There are many reasons for pointing occupational health in a more comprehensive direction, due to the growing importance of work ability, work motivation, and the well-being of people in modern work life. Traditionally, occupational health was considered a service of value only to those exposed to high physical, chemical, mechanical, biological, or ergonomic exposures (i.e., the factory-level, or blue-collar worker). But healthy and safe working conditions now are seen to include worker well-being, good psychosocial functioning, and issues of work organization, which has expanded occupational health services to all groups of working people, starting from the factory-level blue collars up to middle and top managers (Rantanen 1999).
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will have an equalizing impact on all occupations. Most of the differences in health outcomes are related to social and economic factors and are thus manageable with the help of social policies. This is particularly true with policies concerning occupational injuries and diseases.
(p.7)
Occupational health activities vary from country to country due to differences in legislation, national tradition, and medical practices. However, international organizations have identified a basic framework that is generally applicable and that works in practice. The summary of key objectives of ILO Convention No. 161 and the related Recommendation No. 171 are collected in Table 1.1. The respective principles from the WHO Global Strategy on Occupational Health for All are summarized in Table 1.2. Table 1.1 Key Objectives of ILO Convention No. 161 and Recommendation No. 171
1. Principles of national policies concerning occupational health services 2. Functions of occupational health services: a) Surveillance of the working environment b) Surveillance of workers health c) Information, education, and training advice to workers and employers d) First aid treatment and health programs e) Other functions including analyzing surveillance results, reporting on occupational health service activities, and participating in research and with other services in environmental protection activities 3. Organization of occupational health services 4. Operational conditions of occupational health services including provisions for composition and competence of occupational health service teams, protection of confidential health information, and professional independence of occupational health service personnel
Table 1.2 The 10 Objectives of the WHO Global Strategy on Occupational Health for All
1. Strengthening international and national policies for health at work and developing the necessary policy tools
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2. Developing healthy work environments 3. Developing healthy work practices and promotion of health at work 4. Strengthening occupational health services 5. Establishing support services for occupational health 6. Developing occupational health standards based on scientific risk assessment 7. Developing human resources for occupational health 8. Establishing registration and data systems, developing information services for experts, effectively transmitting data, and raising public awareness through public information 9. Strengthening research 10. Developing collaborations between occupational health and other activities and services
Five basic principles have been identified as the basis for successful occupational health systems, as determined in a WHO/EURO survey of legislation in European countries concerning occupational health services (Rantanen 1990). The balance among the five principles in different economic sectors, different countries, and different enterprises may vary substantially depending on the national and local conditions, traditions, laws, and practice. The five principles are as follows. 1. Protection and prevention. This principle is the core of occupational health activities and includes the following:
(p.8)
identification of hazardous exposures and factors causing overload or other adverse work conditions assessment of the distribution and levels of exposures, identification of exposed groups or individuals, and sources of hazards assessment of risks to health and safety from exposures or adverse conditions initiating, instituting, and advising on needs and means for preventive and control actions aimed at protecting workers health and safety 2. Adaptation. Not all workers have equal work ability, health status, or competence. Thus, aging workers, adolescents and young workers, pregnant women, handicapped workers, migrant workers, and workers with chronic diseases may need adaptation of work, working methods, or work environment, including machinery and
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tools, to their special needs and abilities. Occupational health experts need to balance job demands with the special health and safety concerns of such workers, initiate and advise about work adaptations, and monitor the impact of such measures. 3. Promotion and development. Optimally organized work can have a positive effect on workers health and work ability: it can develop physical, mental, and professional capacities, and it can contribute to the development of safe working practices and healthy lifestyles. This principle has become especially important for industrialized countries given their attention to maintaining work ability in aging workers, ensuring their continued participation in the workforce. 4. Cure and rehabilitation. In spite of efforts for prevention and protection as described in principle 1, work-related diseases, accidents, states of physical and mental overload, and acute and chronic illnesses do occur among a substantial proportion of the workforce. An aging working population suffers an increased risk of chronic disease conditions. The curative and rehabilitation principle is important to minimize the consequences of such events, to facilitate a return to original health and work ability, and, if that is not possible, to maintain the remaining work ability as much as possible. 5. Primary health care. Some countries and employers include a role for primary care or general practitioner-level health care as part of occupational health services. In many countries workers may not have access to anything but primary health care. In all countries, certain economic sectors, such as agriculture, smallscale enterprises, informal workers, home workers, and workers in (p.9) remote and sparsely populated areas, usually lack specialized occupational health services and depend on primary care providers. Some countries avoid overlap and have even prohibited the combination of general health services with occupational health services. They do this to emphasize a preventive approach and to keep the management of occupational injuries and illnesses without bias. However, there are many good reasons for integrating occupational health services into primary care: to provide primary health-care services, e.g., injury care, quickly and conveniently at the workplace or nearby to fill possible holes in public primary health services to use public services most efficiently
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to obtain a comprehensive picture of the total health of workers in the community (i.e., occupational health and general health) by capturing information at the primary care level
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of occupational (p.10) injuries and illness, and compensation and public policy is called occupational health services. According to international guidance, including ILO Convention 161, and national legislation, all people who take part in the workforce shall have access to occupational health services (WHO 1995). That service should be provided either at the workplace or in a nearby facility, and it should carry out a minimum set of service activities indicated in Table 1.1. The precise content of services may vary according to national law and practice and local conditions and needs, but a certain minimum should be found everywhere. Each worker should be provided with such services. Occupational health services are a special, separate set of health services for workers and workplaces to prevent and control health and safety hazards at work and to promote good practice and guidance in the field of occupational health. Occupational health services should cover all workers in all workplaces, in all sectors of the economy, including industry, private and public services, agriculture, self-employment, and informal work, and cover the work done in all environmentse.g., on land, at sea, in the air (including space), underground, and even underwater. They should be available to all working people, including blue-collar workers, farmers, informal workers, middle managers, top managers, and public-sector civil servants and defense forces. In short, everyone who works should have access to an occupational health service. Occupational health services shall be provided by competent and accredited personnel including occupational health physicians, occupational health nurses, occupational hygienists, occupational psychologists, physiotherapists, ergonomics experts, and others as defined by the national laws and regulations. Occupational health services personnel should have a certified competence in the tasks for which they are responsible. In most countries, occupational health services apply the principle of participationthe workers and employers have a right to participate in the decisions on how the occupational health services are organized and provided. The competent authority (mostly occupational safety and health inspectors) has a right to inspect to make sure the occupational health service regulations are implemented. According to the ILO Convention 161, the employer (where he or she exists) is responsible for financing and organizing occupational health services for his or her employees without any costs to the employee. The
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experts providing occupational health services are guaranteed professional independence in carrying out their activities (i.e., they make their decisions on occupational health, medical, and other services independently according to their professional competence and ethical principles).
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of compensation, insurance, accommodation, employment security, rehabilitation, and retraining. 6. Information systems should be established at several different levels: normative information, laws, standards, guidelines, and instructions official registries of occupational diseases and occupational accidents information for experts concerning scientific and professional expert information (libraries, scientific journals, databanks, search and retrieval services, etc.) practical information concerning occupational health practices, such as good practice guidelines, fact sheets, and expert journals public information concerning the importance, needs, and state of occupational health 7. Support and advisory services are typically second-level services that are needed to provide specialized support to the frontline occupational health service. Such services cover the following: diagnostic services for occupational diseases (usually in polyclinics or departments of occupational medicine in hospitals) analytical and measurement services for toxicology, biological monitoring, physical factors, biological agents, ergonomics, and psychology. Institutions of occupational health, university teams, or private consultancies provide such services.
(p.12)
advice and consultations in work organization and workplace development 8. Occupational health is a specialized activity that requires competence in several disciplines: occupational medicine and occupational health, occupational hygiene, psychology, and others. Such competence requires special training, and many countries have set special competency-based criteria, for example, for specialists in occupational medicine. Specialist training curricula are needed at the national level to produce a sufficient number of experts needed for occupational health activities. Some
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international harmonization of curricula is underway at the WHO, in European Union countries, and among professional associations. 9. In addition to the contributions of experts in occupational health practices, employers, workers (treated as social partners), and their representatives need to be involved to ensure the successful implementation of occupational health at the workplace. This is carried out at the national level in the form of a tripartite (government, employers, and trade unions) national occupational health committee that is an advisory body for government policy making and implementation. Respectively, the workplace-level collaboration is organized through occupational health and safety committees, work councils, or through safety and health representatives of the enterprises. 10. The occupational health service system should be a part of the national general health service system infrastructure.
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Box 1.1 A Historical Figure in Occupational Health The year 2000, the Millennial Year, was the third centennial of the founding of occupational medicine, the first professional specialty area to concern itself with occupational health. It began with a single book, written by an Italian physician who already had a reputation as a great teacher and scholar. Bernardino Ramazzinis Diseases of Workers (De Morbis Arteficum) was the text that established the future medical specialty of occupational medicine and the occupational health sciences broadly. Ramazzini accumulated in one book the most relevant facts about occupational disease in his era, mostly from personal observation, and came to insights about medicine and prevention that are completely modern. His insights into the cause of occupational diseases are considered early models not only of scientific observation in occupational health but also of public health in general and pointed the way toward accurate diagnosis, compensation, and, most of all, prevention. He also came to astute conclusions about the social context of employment in his time, the nature of ethnic stereotyping, access to health care, and treatment outcomes. Ramazzini taught at the Italian universities of Modena and Padua. He wrote fluently in Latin, in a style considered a model of elegance, and with great good humor, not hesitating to poke fun at his fellow physicians. His works are considered classics of the medical literature. For a person of wealth and status in his society, Ramazzini was unusually understanding and dedicated toward the poor and working people of low social status. That does not mean that he was perfect: in his work one reads echoes of the prejudices of his era, but he was unusually tolerant considering his class and the times in which he lived. It is very common to hear references to Ramazzinis early descriptions of occupational disorders expressed in terms that make it sound as if he had anticipated modern-day problems. Ramazzini described [this or that] centuries ago and his descriptions are right on target. While Ramazzini had outstanding powers of observation and thought deeply about what he saw, he did not foretell the future. The fact that Ramazzinis observations are relevant today is because many of the problems he described have not been solved. Many of the occupational disorders and working conditions that he described should now
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be eliminated, but yet they persist. The reality is that many workers still face having to choose between loss of income and safe working conditions as they did in Ramazzinis time. His work is a benchmark that tells us that we have not progressed so far as we would like to believe. Figure 1.2 is an original drawing of Ramazzini, wearing the wig typical of his era, by Mr. Anthony Stones, who drew it as a composite sketch from portraits he found in Padua on a trip to Italy. Mr. Stones was born in New Zealand and currently divides his time between the United Kingdom and China. He is perhaps best known as a sculptor. His realistic, life-sized or greater sculptures can be seen in public collections and monuments, mostly in the UK.
Figure 1.2 The Italian physician Bernardino Ramazzini wrote the first comprehensive treatise on occupational health in 1700. (Portrait by Anthony Stones, used with permission of the artist, supplied courtesy of William Ivan Glass, New Zealand.)
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In most instances, exposures in the work environment are similar to exposures in the general environment, only more intense. For example, controlling both occupational and environmental exposures plays an important role in the prevention of chronic lung diseases such as asthma and chronic obstructive pulmonary disease. A substantial part of local environmental pollution can be controlled using the knowledge and actions of occupational health principles within the work environment. Successful examples of such approaches include, for example, successful management of lead exposure, carbon disulphide to the point where over-expsoure is now rare in developed countries, and successful control in many workplaces of solvent emissions, noise abatement, and dust controls. For some occupations, the general environment is also a work environment and, thus, has a direct occupational health impact. Examples include agricultural (p.15) work (water pollution, pesticides, and microbial agents), animal health, forestry work (environmentally active substances such as herbicides), fishery work (water pollution), and outdoor work (air pollution). In such situations, advocates of occupational and environmental health and environmental protection have good opportunities to work toward win-win solutions.
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developments in biomedicine, particularly microbiology and human cellular pathology, scientists and medical practitioners investigated singular causal factors and their relationships with single disease outcomes. Prevention and control became an important priority, particularly in the leading industrialized countries, where occupational safety and health legislation and legislation for workers compensation for occupational injuries and diseases was passed. These activities stimulated specific prevention practices. This second wave lasted approximately 70 to 80 years. The most important focus in the work environment included machine safety, prevention of injuries from falling and slipping, prevention of explosions of pressure vessels and boilers, tool safety, and hazardous materials and explosives safety. Since World War II, occupational or industrial hygiene as a technical field has developed to measure and assess hazardous factors at work, to prioritize targets for preventive and control actions, and to design control technologies and protective equipment. Since the 1950s, occupational health services were directed toward specific preventive activities, preventive health examinations, and measurements for minimizing hazards in the work environment. The third wave of occupational health started in the 1980s when Scandinavian scientists first considered the psychological and psychosocial aspects of work. Occupational stress, psychological hazards, workload, psychosociology at individual and group levels, and work organization became subjects of active discussion and targets for research and preventive control actions. These studies paralleled work (p.16) in occupational psychology on issues of job satisfaction and work motivation. This research led to the improvement of the overall quality of work life and to health promotion, work ability, and the well-being of working people. All three waves of occupational health history have been responses to the needs of work life in its various developmental stages. They also reflect the evolution of human work from physical, muscle-dependent manual work, through the machine power-based technology that was typical in manufacturing industries in the last century, to present-day work life, which is dominated by high information content and computer-based technology. All three approaches are still relevant. However, the current concept of a comprehensive occupational health approach is broader than any one approach. It covers the following: the protection and promotion of health, work ability, and wellbeing of workers
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continuous improvement and development of safe and healthy work environments psychological, psychosocial, and organizational aspects of work, and the adoption of work and management cultures conducive to health and well-being For occupational health services to follow such a comprehensive model requires teams with multidisciplinary expertise to address a wide range of aspects of work, including the health and work ability of workers, a healthy and safe work environment, and the organizational aspects of work. It also requires the full participation of workers and managers at the workplace to implement such practical goals in real life.
International Organizations
The major international occupational health organizations are part of the United Nations system or have a close working relationship to UN agencies. In addition, there are occupational health associations or societies in almost every country, usually representing certain professions and sometimes specific to certain industries.
ILO has worked on occupational health issues for over 80 years. One of the first health-related conventions of the ILO was Convention No. 13 in 1921 on the prohibition of white lead paint that was found to be toxic to both workers and children. In 1985, the International Labour Conference adopted Convention No. 161 and Recommendation No. 171 on occupational health services. The current Safe Work Programme consists of occupational health elements, including the Global Program for Elimination of Silicosis.
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(p.18)
Other important professional organizations relate to occupational health, such as the International Occupational Hygiene Association (IOHA), the International Ergonomics Association (IEA), which produce scientific material and practical guidelines, and the International Social Security Association, in which national social insurance programs share information.
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