산업안전보건과 사전주의 원칙 - 유럽연합과 영국의 시사점 -

송이수(宋?修) 서울대학교 노동법연구회 2021 노동법연구 Vol.- No.51

인간의 건강에 대하여 규율하는 법규범은 대개 일반공중의 건강에 관한 것과 근로자의 건강에 관한 것으로 나뉜다. 산업활동에 관련된 위험으로부터 과학지식에 기반하여 인간을 보호하기 어려운 경우, 사전주의 원칙에 입각하여 대처하여야 한다. 이때 근로자에 대한 법제에 이를 반영하여 운용할 필요성은 일반공중에 관한 법제에 관한 것 못지않으며, 어쩌면 더욱 시급할 수도 있다. 사전주의 원칙을 정의하는 방식에는 여러 가지가 있지만, 그 공통적이고 대표적인 개념 징표는 “과학적 불확실성”이다. 유럽연합기능조약 제191조 제2항은 유럽연합의 환경정책과 관련하여 사전주의 원칙을 명시하고 있다. 그리고 유럽연합 집행위원회는 2000년 ‘사전주의 원칙에 대한 전언’을 통해 사전주의 원칙의 적용을 위한 지침을 제시하였다. 현재 유럽연합은 조약에서 명시한 환경 분야에 국한하지 아니하고 과학적 불확실성으로 인해 인간의 건강에 위험을 초래할 수 있는 영역에 대해 사전주의 원칙을 적용하고 있다. 직업건강안전과 관련하여 유럽연합은 일찍부터 과학지식의 한계와 불확실성, 선제적 예방의 중요성에 대하여 인식하고, 환경요인이 인간의 건강에 미치는 영향에 대하여도 직업건강안전의 측면에서 주목하였다. 1986년 단일유럽의정서에 의해 개정된 로마조약 제118조의a에 근거하여 1989년 마련된 기본지침은 광범위하고 포괄적인 위험과 예방의 개념에 기초하여 직업안전건강의 일반원칙을 제시하였고, 유럽연합의 입법기관은 새로 대두하는 위험에 대해 개별지침과 기존 규범에 대한 구체적이고 적극적인 해석을 통해 대응하고 있다. 영국은 1974년 직업건강안전법에서 사업주의 일반의무를 정하고 있다. Robens 위원회는 당대 영국의 직업안전건강 문제가 신종위험의 대두로 인하여 새로운 국면을 맞이하고 있다는 현실 진단을 바탕으로 광범위한 위험에 대처할 수 있는 제도를 구상하였다. 사업주는 자신의 사업 수행으로 인하여 다른 사람이 건강안전위험에 노출되지 않도록 할 의무를 부담한다. 이러한 사업주의 의무는 그 대상이 눈에 보이는 것, 확실한 것에 한정되지 않으며, 산업 현실의 변화에 따라 사전주의 원칙에 입각한 위험 대처를 포괄하고 있다. 산업 현장의 위험 요인에는 그 결과를 분명하게 예측하기 어려운 것이 많고, 현시점의 가용과학정보에 기반하여 즉각 답을 도출할 수 없는 요소에 대한 고려도 필요하다. 우리나라의 경우 환경법제 등에 사전주의 원칙이 도입되어 있으나 그 규범적 기반이 견고하다고 보기는 어려울 뿐만 아니라, 유럽연합의 기본지침이나 영국의 직업건강안전법과는 달리 산업안전보건법령상 사업주의 의무가 직업건강안전 위험을 포괄하는 방식이 아니기 때문에, 해석에 의하여 사전주의 원칙을 적용하는 데에는 한계가 존재한다. 따라서 『산업안전보건법』에 사전주의 원칙을 명시할 필요가 있다. Legal norms aiming to protect human health are usually distinguished between those in regard to general public health and those with respect to occupational health. When it is not possible to protect humans based on known scientific knowledge from risks arising out of industrial activities, the precautionary principle should be applied. There are several ways to define the precautionary principle, but a common and key conceptual characteristic is “scientific uncertainty”. Article 191(2) of the Treaty on the Functioning of the European Union stipulates the precautionary principle with regard to European Union policy on the environment. European Union has applied the precautionary principle to the areas where risks might to be posed to human health in the light of scientific uncertainty, not limiting to the environmental field specified in the Treaty. European Union has already recognized the limits of scientific knowledge, scientific uncertainty and the importance of proactive prevention, paying attention to the effects of environmental factors on human health, in terms of occupational health and safety. Framework Directive presents general principles of occupational safety and health based on comprehensive concepts of risk and prevention. European Union legislative bodies have responded to emerging risks through individual Directives and active interpretations of existing norms. In the United Kingdom, general duties of employers were established under the Health and Safety at Work etc. Act 1974. The Robens Committee suggested a system to deal with a wide range of risks based on the analysis that the United Kingdom had entered a new phrase associated with emerging occupational safety and health risks. Employer is obliged to ensure that others are not exposed to risks to health and safety in connection with his/her undertakings. The duties of employers are not limited to what are visible or certain, and include coping with risks based on the precautionary principle in accordance with changes in industrial circumstances. There exists various risk factors in the workplace and it is difficult for us to predict with certainty the consequences to which the risks might lead. Therefore, it is necessary to consider factors that cannot be identified or established precisely under the contemporary scientific knowledge available. In South Korea, the normative foundation of the precautionary principle is far from solid. Furthermore, duties of employers under Occupational Safety and Health Act do not cover all occupational risks. Therefore, there are limitations in applying the precautionary principle by interpretation. Consequently, it should be provided in Occupational Safety and Health Act.

Occupational Health Policies on Risk Assessment in Japan

Horie, Seichi Occupational Safety and Health Research Institute 2010 Safety and health at work Vol.1 No.1

Industrial Safety and Health Law (ISH Law) of Japan requires abnormalities identified in evaluations of worker health and working environments are reported to occupational physicians, and employers are advised of measures to ensure appropriate accommodations in working environments and work procedures. Since the 1980s, notions of a risk assessment and occupational safety and health management system were expected to further prevent industrial accidents. In 2005, ISH Law stipulated workplace risk assessment using the wording "employers shall endeavor." Following the amendment, multiple documents and guidelines for risk assessment for different work procedures were developed. They require ISH Laws to be implemented fully and workplaces to plan and execute measures to reduce risks, ranking them from those addressing potential hazards to those requiring workers to wear protective articles. A governmental survey in 2005 found the performance of risk assessment was 20.4% and common reasons for not implementing risk assessments were lack of adequate personnel or knowledge. ISH Law specifies criminal penalties for both individuals and organizations. Moreover, under the Labor Contract Law promulgated in 2007, employers are obliged to make reasonable efforts to ensure employee health for foreseeable and avoidable risks. Therefore, enterprises neglecting even the non-binding provisions of guidelines are likely to suffer significant business impact if judged to be responsible for industrial accidents or occupational disease. To promote risk assessment, we must strengthen technical, financial, and physical support from public-service organizations, encourage the dissemination of good practices to reduce risks, and consider additional employer incentives, including relaxed mandatory regulations.

Comparison of risk-assessment tools for cardio-cerebrovascular diseases (CVD) in male shipyard workers: a cross-sectional study

Jea Chul Ha,Jun Seok Son,Young Ouk Kim,Chang Ho Chae,Chan Woo Kim,Hyoung Ouk Park,Jun Ho Lee,Young Hoo Shin,Hyun Woo Park 대한직업환경의학회 2019 대한직업환경의학회지 Vol.31 No.-

Background: Periodic revision of assessment tools is essential to ensure risk assessment reliability and validity. Despite the recent revision of the Korea Occupational Safety and Health Agency (KOSHA) 2018, there is no evidence showing that the revision is superior to other cardio-cerebrovascular diseases (CVDs) risk-assessment tools for workplace health management. We conducted a comparative analysis using the Framingham risk score (FRS) as a gold standard to identify the most relevant CVDs risk-assessment tool for workplace health management. Methods: We included 4,460 shipyard workers who had undergone a workers" health examination during January–December 2016. Risk levels for CVDs were calculated based on the FRS, KOSHA 2013, KOSHA 2017, KOSHA 2018 (2 methods), National Health Screening Program health risk appraisal (NHS HRA) 2017, and NHS HRA 2018. Study participants were categorized into low-risk, moderate-risk, or high-risk groups. Sensitivity, specificity, correlation, and agreement of each risk-assessment tool were calculated compared with the FRS as a gold standard. For statistical analyses, Spearman"s rank correlation coefficient and the linearly weighted kappa coefficient were calculated. Results: Sensitivity of the risk assessments was highest in the KOSHA 2018 (health risk appraisal [HRA]). The FRS showed correlation coefficients of 0.354 with the KOSHA 2013, 0.396 with the KOSHA 2017, 0.386 with the KOSHA 2018, 0.505 with the KOSHA 2018 (HRA), 0.288 with the NHS HRA 2017, and 0.622 with the NHS HRA 2018. Kappa values, calculated to examine the agreement in relation to the KOSHA 2013, KOSHA 2017, KOSHA 2018, KOSHA 2018 (HRA), NHS HRA 2017, and NHS HRA 2018 with the FRS, were 0.268, 0.322, 0.352, 0.136, 0.221, and 0.559, respectively. Conclusions: The NHS HRA 2018 risk calculation method is a useful risk-assessment tool for CVDs, but only when appropriate classification criteria are applied. In order to enhance the risk-group identification capability of the KOSHA guideline, we propose to apply the classification criteria set in this study based on the risk group definition of the 2018 Korean Society of Hypertension guidelines for the management of hypertension instead of the current classification criteria of the KOSHA 2018.

산업안전보건법상 안전・보건조치 의무 위반의 판단 기준 ― 대법원 2021. 9. 30. 선고 2020도3996 판결 ―

도재형 한국노동법학회 2022 노동법학 Vol.- No.82

In the case of an industrial accident, the employer's criminal responsibility depends on whether he has implemented the safety and health measures stipulated in the Occupational Safety And Health Act. In related legal disputes, it is important to interpret the ‘Rules on Occupational Safety and Health Standards’, which stipulates the specific details of the employer's obligation to take safety and health measures. Traditionally, courts have interpreted the above rules strictly and have broadly recognized employers’ discretion in the choice of safety and health measures. According to this case law, when an employer formally implements safety and health measures, it is difficult to impose criminal responsibility on the employer, even if the measures do not match the reality of the workplace and have no actual accident prevention effect. This case law was criticized for the possibility that the safety of workers could be neglected, when the choice was connected with the business interests of the company. The Supreme Court Decision 2020Do3996 Decided September 30, 2021 reflected the above criticisms and revised the interpretation standards for safety and health measures to reflect the reality and characteristics of workplaces. The above Decision was clarified that employers should reflect the characteristics of their workplaces in detail and implement the contents of the ‘Rules on Occupational Safety and Health Standards’. In other words, it required employers to consider not only the ‘objective risk’ but also the ‘industrial situational risk’ of the workplace.

How Much Does My Work Affect My Health? The Relationships between Working Conditions and Health in an Italian Survey

Ronchetti, Matteo,Russo, Simone,Di Tecco, Cristina,Iavicoli, Sergio Occupational Safety and Health Research Institute 2021 Safety and health at work Vol.12 No.3

Backround: Working condition surveys are widely recognized as useful tools for monitoring the quality of working life and the improvements introduced by health and safety policy frameworks at the European and national level. The Italian Workers' Compensation Authority carried out a national survey (Insula) to investigate the employer's perceptions related to working conditions and their impact on health. Methods: The present study is based on the data collected from the Italian survey on health and safety at work (INSULA) conducted on a representative sample of the Italian workforce (n = 8,000). This focuses on the relationship between psychosocial risk factors and self-reported health using a set of logistic and linear regression models. Results: Working conditions such as managerial support, job satisfaction, and role act as protective factors on mental and physical health. On the contrary, workers' risk perceptions related to personal exposure to occupational safety and health risks, concern about health conditions, and work-related stress risk exposure determine a poorer state of health. Conclusions: This study highlights the link between working conditions and self-report health, and this aims to provide a contribution in the field of health at work. Findings show that working conditions must be object of specific preventive measures to improve the workers' health and well-being.

Knowledge and Risk Perceptions of Occupational Infections Among Health-care Workers in Malaysia

Ganesh Chidambar Subramanian,Masita Arip,Saraswathy Subramaniam 한국산업안전보건공단 산업안전보건연구원 2017 Safety and health at work Vol.8 No.3

Health-care workers are at risk of exposure to occupational infections with subsequent risk of contracting diseases, disability, and even death. A systematic collection of occupational disease data is useful for monitoring current trends in work situations and disease exposures; however, these data are usually limited due to under-reporting. The objective of this study was to review literature related to knowledge, risk perceptions, and practices regarding occupational exposures to infectious diseases in Malaysian health-care settings, in particular regarding blood-borne infections, universal precautions, use of personal protective equipment, and clinical waste management. The data are useful for determining improvements in knowledge and risk perceptions among health-care workers with developments of health policies and essential interventions for prevention and control of occupational diseases.

Knowledge and Risk Perceptions of Occupational Infections Among Health-care Workers in Malaysia

Subramanian, Ganesh Chidambar,Arip, Masita,Subramaniam, T.S. Saraswathy Occupational Safety and Health Research Institute 2017 Safety and health at work Vol.8 No.3

Health-care workers are at risk of exposure to occupational infections with subsequent risk of contracting diseases, disability, and even death. A systematic collection of occupational disease data is useful for monitoring current trends in work situations and disease exposures; however, these data are usually limited due to under-reporting. The objective of this study was to review literature related to knowledge, risk perceptions, and practices regarding occupational exposures to infectious diseases in Malaysian health-care settings, in particular regarding blood-borne infections, universal precautions, use of personal protective equipment, and clinical waste management. The data are useful for determining improvements in knowledge and risk perceptions among health-care workers with developments of health policies and essential interventions for prevention and control of occupational diseases.

안전보건경영시스템 구축을 위한 위험성평가모델에 대한 연구 - 화학물질 사용조직을 중심으로 -

조경석,이창호 대한안전경영과학회 2014 대한안전경영과학회지 Vol.16 No.4

The occupational health and safety accidents were continuously increased during handling, usage and manufacturing the chemical materials according to increase of small and medium sized enterprises in domestic industries. These accidents mainly resulted from insufficient occupational health and safety management and deteriorative facilities and focused on corresponding operation to minimize the damage of accidents after occurrence. But, it was required that we grasped the occurrence causes of occupational health and safety risk in handling, usage and manufacturing the chemical materials and develop the adequate corresponding operation and system according to the possible occurrence of occupational health and safety risk. This study deals with the development of risk assessment model to derive the risk and important risk of occupational health and safety and then help to construct the self-controlled occupational health and safety system for small and medium sized enterprises handling the chemical materials.

Work-Related Stress Risk Assessment in Italy: A Methodological Proposal Adapted to Regulatory Guidelines

Persechino, Benedetta,Valenti, Antonio,Ronchetti, Matteo,Rondinone, Bruna Maria,Tecco, Cristina Di,Vitali, Sara,Iavicoli, Sergio Occupational Safety and Health Research Institute 2013 Safety and health at work Vol.4 No.2

Background: Work-related stress is one of the major causes of occupational ill health. In line with the regulatory framework on occupational health and safety (OSH), adequate models for assessing and managing risk need to be identified so as to minimize the impact of this stress not only on workers' health, but also on productivity. Methods: After close analysis of the Italian and European reference regulatory framework and workrelated stress assessment and management models used in some European countries, we adopted the UK Health and Safety Executive's (HSE) Management Standards (MS) approach, adapting it to the Italian context in order to provide a suitable methodological proposal for Italy. Results: We have developed a work-related stress risk assessment strategy, meeting regulatory requirements, now available on a specific web platform that includes software, tutorials, and other tools to assist companies in their assessments. Conclusion: This methodological proposal is new on the Italian work-related stress risk assessment scene. Besides providing an evaluation approach using scientifically validated instruments, it ensures the active participation of occupational health professionals in each company. The assessment tools provided enable companies not only to comply with the law, but also to contribute to a database for monitoring and assessment and give access to a reserved area for data analysis and comparisons.

산업안전보건법상 규제완화의 문제점과 대응방안 -법체계상의 문제점과 개선방향을 중심으로-

정규 ( Kyu Jeong ) 한국법정책학회 2015 법과 정책연구 Vol.15 No.4

산업안전보건법은 사업장 내 안전과 보건에 관한 기준을 확립하고 그 책임의소재를 명확하게 하여 산업재해를 예방하고 쾌적한 작업환경을 조성함으로써 근로자의 안전과 보건을 유지·증진함을 목적으로 한다. 산업안전보건법의 목적은 이중적이다. 즉 그 주된 목적은 근로자가 사고로 인한 사상이나 질병에 이완되지 아니하고 건강하게 지속적인 근로를 제공할 수 있도록 하는 것이고, 이를 위해 최소한의 안전보건의 기준설정과 이행감독 이외에도 안전보건활동의 활성화를 통하여 쾌적한 노동환경을 조성하는 데에 있다. 다만 현행 산업안전보건법제의 체계는 복잡하고 불편한 구조를 가진다. 그 이 유는 시대변화와 그에 따른 기술발전, 사회구성원 및 인구구조의 변화, 작업환경 의 다변화 등으로 인하여 나타나는 기계·설비의 다양성, 유해물 사용량의 급증, 작업공정 및 기계장치의 복잡성, 유해·위험요소의 복잡·다양·대형화되는 추세에 단발적으로 대응해왔기 때문이다. 이에 따라 기본법과 하위법령 간의 정합성의 문제와 입법의 불비 등의 문제를 안고 있고, 그 적용의 실효성에 대한 의문이 끊임없이 제기되고 있는 실정이다. 최근 정부는 제4차 산재예방 5개년 계획을 발표하였다. 특히 여기에서는 ‘법체계 선진화 방안’으로 두 가지를 제시하고 있다. 하나는 수범자의 법률 이해도의 제고를 위해 모든 기업이 준수해야 할 사항과 업종·유해인자별 특성 등을 반영한 사항을 구분하는 개별 입법 방식으로의 전환을 모색한다는 것이다. 다른 하나는 산업현장의 특성이 반영된 산업안전보건법령 체계 구축을 위해 분야별 안전보건기술지침을 제정한다는 것이다. 다만 이와 같은 정부의 계획에도 불구하고 법체계 선진화와 관련하여 주의를 기울여야 하는 점은 산업안전보건분야에서의 규제완화가 법체계의 선진화로 직접 연결되지 않는다는 점이다. 여기에서는 주요한 산업안전보건법제의 체계상의 문제점과 내용상의 개선점을 산업재해 발생현황을 고려하면서 살펴보고, 이에 대한 개선방향을 제시하였다. This paper is designed to review the problems and countermaesure of deregulation in The Occupational Safety and Health Act(OSH Act). Especially this paper work is progressed to focus on the problems of legislative system and provisions and improvement direction. The Occupational Safety and Health Act(OSH Act) aims to establish standards of security, prevent accidents, create pleasant industrial working environment, and most importantly to preserve and promote the occupational safety and health of the workers. That is, the Act provides fundamental obligations on OSH by employers and entrepreneurs, and also provides an optimal working environments. Government makes a long term plan in dealing with the continuous national issues such as safety and health policy. Government has made ‘5 Year Plan for Safety and Health’ since 2000. This paper deals with ‘The 4th Government 5 Year Plan for Safety and Health’. This plan contains 4 policy objects; (1) simplifying the Korean Occupational Safety and Health Act, (2) extending the application of the law to the workers as well as employees, (3) rationalization of penalties on employers due to the breach of duties, (4) change of premises safety and health system by transferring to the risk assessment. However, the current Act establishes only the basic fundamental standard on the OSH and provides only implementation compulsion by the government. Additionally, the Act does not fully reflect the content concerning the responsibility and duty to create a pleasant working environment and to increase worker’s safety and health in the workplace.