Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187) - Finland (Ratification: 2008)

Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

In order to provide a comprehensive view of the issues relating to the application of ratified Conventions on occupational safety and health (OSH), the Committee considers it appropriate to examine Conventions Nos 155 (OSH) and 187 (promotional framework for OSH) together.

The Committee notes the observations of the Central Organization of Finnish Trade Unions (SAK), the Confederation of Unions for Professional and Managerial Staff in Finland (Akava), the Finnish Confederation of Professionals (STTK), the Federation of Finnish Enterprises (SY) and the Confederation of Finnish Industries (EK) on Conventions Nos 155 and 187, communicated with the Government’s reports.

Application of Convention 155 and 187 in practice. Measures to prevent occupational accidents and diseases. The Committee notes the adoption of several new legislative measures to strengthen OSH, as well as ongoing preparations to update specific regulations. The Committee notes the Government’s indication in its report that ensuring compliance with OSH legislation has been the main focus, aimed at preventing occupational accidents and diseases through a risk-based approach, guided by the Framework Plan for Occupational Safety and Health Divisions (2024–2027). Supervision and inspection activities have remained central to enforcement, with some 8,100 inspections in 2024, 9,300 in 2023 and 9,845 in 2022. Ensuring availability of up-to-date information and its dissemination have been part of these efforts including the use of various communications channels. The Committee takes note also of the indication that the Government has conducted problem analysis and targeted actions in high-risk sectors such as private health and social services as well as in the employment service sector, particularly for temporary agency workers. The Committee further notes the concerns of SAK, Akava and STTK particularly related to psychological risks, the increased violence related to work during 2022–2024 and an increase in the number of accidents at work. The Committee requests the Government to continue providing information on the impact of the measures adopted in view of reducing occupational accidents and diseases, including inspection findings, follow-up actions, and progress achieved, particularly in the high-risk sectors identified.

Articles 5(c) and 19(d) of Convention No. 155, Article 4(3)(c) of Convention No. 187. OSH training and qualifications. Following its previous comments, the Committee notes the Government’s indication that the pertinent provisions related to training criteria or requirements for persons with OSH responsibilities are included in the Occupational Safety and Health Act (738/2002) and in the Act on Occupational Safety and Health Enforcement and Cooperation on Occupational Safety and Health at Workplaces (44/2006). The Committee also notes that the SAK, Akava and STTK raise concerns regarding the lack of OSH training in numerous workplaces or qualification requirements for individuals responsible for OSH in the workplace. The Committee requests the Government to continue providing information on the measures envisaged to ensure that persons with responsibilities for OSH are provided with adequate and appropriate training and possess the necessary competence to carry out their duties effectively.

General provisions

I. Action at the national level

Article 2(1) of Convention No. 187. Promoting the continuous improvement of OSH by developing a national policy, national system and national programme. Following its previous comments, the Committee notes the measures taken by the Government to reduce threats of workplace violence and address psychosocial risks, including the integration of these objectives into the Implementation Plan for the Policy for the Work Environment and Well-being at Work 2030. The Committee notes with interest the 2023 amendment to the Occupational Safety and Health Act clarifying that both physical and psychosocial workload factors must be included in workplace risk assessments. The Committee further notes the continuation of the Mental Health at Work Programme, which promotes preventive approaches to mental health and supports cooperation between workplaces and occupational health services, and the establishment of a tripartite working group to prepare legislative amendments for improving the working conditions of platform workers. The Committee notes that the SAK, Akava and STTK refer to OSH risks related to climate change and platform work. The Committee requests the Government to continue providing information on the measures taken and results achieved to promote continuous improvement of OSH, including the impact of the Mental Health at Work Programme and provide information on progress in implementing the objectives of the Policy for the Work Environment and Well-being at Work until 2030 under the 2024–2027 Implementation Plan.

Articles 4, 8, 13 and 19(f) of Convention No. 155. Prevention of injury to health occurring in the course of work. Protection of workers removed from situations presenting an imminent and serious danger. Following its previous comments, the Committee takes note that, under section 23 of the Occupational Safety and Health Act (OSH Act), workers have the right to remove themselves from work situations presenting an imminent and serious danger to their life or health, and that the OSH authority does not have detailed data on the exercise of this right. The Committee further notes that the prevention of violence and harassment remains a key objective in the Policy Implementation Plan 2024–27. The Committee also notes the observations of SAK, Akava and STTK indicating insufficient prevention measures and persistent psychosocial risks including a rise in workplace violence. The Committee requests the Government to continue providing information on the practical application of the right of workers to remove themselves from situations which they had reasonable justification to believe presented an imminent and serious danger to their life or health, and on the impact of the measures taken to prevent injury to health, including those arising from violence and harassment at work.

Article 5(1) of Convention No. 187. Formulation, implementation, monitoring, evaluation and periodical review of a national OSH programme. Following its previous comments, the Committee notes that the Policy for the Work Environment and Well-being at Work until 2030 aims at ensuring healthy and safe workplaces regardless of the form of employment, place of work, sector or size of the workplace. It notes that the Policy was updated in 2024 to reflect changes in working life, and that both the policy and its Implementation Plan 2024–2027 have been developed in collaboration with social partners, relevant stakeholders and institutions. The Implementation Plan includes concrete actions to achieve the Policy’s objectives and builds on analyses of the previous Implementation Plan. The Committee requests the Government to continue providing information, on the evaluation and review of the Implementation Plan 2024–2027 and how these contribute to the formulation of subsequent plans. The Committee requests the Government to continue to provide information on the consultations held with social partners on these matters.

II. Action at the level of the undertaking

Article 20 of Convention No. 155 and Article 4(2)(d) of Convention No. 187. Cooperation at the level of the undertaking. Following its previous comments, the Committee notes the Government’s indication that, under section 29 of the Act on Occupational Safety and Health Enforcement and Cooperation on Occupational Safety and Health at Workplaces (44/2006), employees in workplaces with fewer than ten employees have the right, though not the obligation, to elect an OSH representative. It further notes that, where no representative is elected, cooperation on occupational safety and health matters takes place in accordance with section 17 of the Occupational Safety and Health Act (738/2002) which includes a general provision on cooperation between employers and employees. The Committee requests the Government to continue providing information on the practical functioning of OSH cooperation in small undertakings, as well as on any other arrangements to promote cooperation between management, workers and their representatives as an essential element of workplace-related prevention measures in those workplaces.

In addition, the Committee recalls the pending comments regarding the technical OSH Conventions ratified (Radiation Protection Convention, 1960 (No. 115), Guarding of Machinery Convention, 1963 (No. 119), Hygiene (Commerce and Offices) Convention, 1964 (No. 120), Benzene Convention, 1971 (No. 136), Occupational Cancer Convention, 1974 (No. 139), Working Environment (Air Pollution, Noise and Vibration) Convention, 1977 (No. 148), 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), Prevention of Major Industrial Accidents Convention, 1993 (No. 174), Safety and Health in Mines Convention, 1995 (No. 176), Safety and Health in Agriculture Convention, 2001 (No. 184)) adopted by the Committee in 2022, for which the Government will be requested to reply in accordance with the reporting cycle.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

Previous comment on Convention No. 115Previous comment on Convention No. 119Previous comment on Convention No. 120Previous comment on Convention No. 136Previous comment on Convention No. 139Previous comment on Convention Nos 148, 170 and 174Previous comment on Convention No. 155 and its Protocol of 2002Previous comment on Convention No. 161Previous comment on Convention No. 162Previous comment on Convention No. 167Previous comment on Convention No. 176Previous comment on Convention No. 184Previous comment on Convention No. 187 

In order to provide a comprehensive view of the issues relating to the application of ratified Conventions on occupational safety and health (OSH), the Committee considers it appropriate to examine Conventions Nos 115 (radiation protection), 119 (guarding of machinery), 120 (hygiene (commerce and offices)), 136 (benzene), 139 (occupational cancer), 148 (air pollution, noise and vibration), 155 and its 2002 Protocol (OSH), 161 (occupational health services), 162 (asbestos), 167 (safety and health in construction), 170 (chemicals), 174 (prevention of major industrial accidents), 176 (safety and health in mines), 184 (safety and health in agriculture) and 187 (promotional framework for OSH) together.

The Committee notes the observations of the Central Organization of Finnish Trade Unions (SAK) on Conventions Nos 115, 120, 136, 139, 148, 161, 167, 184 and 187 and of the Finnish Confederation of Professionals (STTK) on Conventions Nos 139, 161, 162 and 187, communicated with the Government’s reports.

Application of Conventions Nos 115, 119, 120, 136, 139, 148, 155, 161, 162, 167, 170, 174, 176, 184 and 187 in practice. Measures to prevent occupational accidents and diseases. The Committee notes that, according to the Government’s reports, the number of work-related accidents for salary and wage earners fell from 96,396 in 2015 to 86,606 in 2020, but the private health and social services sector saw occupational accidents increase from 4,408 in 2015 to 5,651 in 2020. The Committee also notes the Government’s indication that, while occupational accidents in the construction sector have generally decreased, work categorized under the “employment service” sector, which includes temporary agency work, shows a high frequency of accidents, with workers assisting in industry and construction experiencing the majority of accidents in that category. The Committee notes the Government’s statement that the number of recognized occupational diseases in the working-age population has decreased for several years, with, in particular, fewer cases of noise-induced hearing loss and asbestos-related diseases. According to the SAK’s observations on Convention No. 148, however, noise injury remains the most common occupational disease in Finland and better protection of pregnant workers from noise and vibration is a topical challenge under focus. The Government does not respond to those observations. The Committee thus requests the Government to continue to indicate the measures taken or envisaged to decrease the number of occupational accidents and diseases, particularly in the above-mentioned workplaces with increasing or persistently higher rates of occupational injuries, and for those workers engaged in the "employment service " sector, including temporary agency work.

Article 11 of Convention No. 115, Article 6 of Convention No. 136, Articles 2(2) and 3 of Convention No. 139, Articles 15(3) and 20(1) of Convention No. 162, and Article 28 of Convention No. 167. Monitoring of exposure levels. Notification to the competent authority. The Committee notes the SAK’s observations on Conventions Nos 115, 136, 139 and 167 expressing concerns regarding the adequate monitoring, in practice, of workers’ exposure levels to benzene and radiation, and shortcomings regarding notifications of carcinogens to the register for workers at risk of exposure to carcinogenic substances and processes (the ASA register), particularly in the construction sector. The STTK, in its observations on Conventions Nos 139 and 162 also refers to an increase in the ASA register, in the period 2010–19, of about 3,000 workers exposed to carcinogens, and of workers exposed to asbestos (4,003 workers in 2019). The Committee takes due note of the Government’s indication that the rising number of workers exposed to carcinogens in the ASA register is linked to greater awareness of statutory notification requirements and to legislative reforms, including the adoption of the Act on the List and Register of Workers Exposed to Carcinogenic Substances and Methods (452/2020). The Committee requests the Government to continue to provide information on any measures taken or envisaged to further strengthen the implementation of statutory requirements regarding the monitoring of workers’ exposure levels to carcinogens, including benzene and asbestos, and of notification requirements to the ASA register.

Article 12 of Convention No. 115, Article 9 of Convention No. 136, Article 5 of Convention No. 139, Article 11 of Convention No. 148, Articles 3, 4 and 12 of Convention No. 161, Article 21 of Convention No. 162, and Article 11 of Convention No. 176. Occupational health services. Health surveillance and medical examinations. Following its previous comments on occupational health services, the Committee notes that one of the objectives of the Government Resolution entitled “Työterveys 2025” (“Occupational Health Care 2025”), published in 2017, is for all employers to have organized appropriate occupational health care, regardless of company size. In this regard, the Committee notes the Government’s indication that 74 per cent of workplaces in Finland have no more than ten employees, according to a 2018 review, and that the Government has undertaken research and other measures to promote occupational health care for small businesses and entrepreneurs. According to the observations of the SAK and the STTK on Convention No. 161, however, some small employers fail to arrange occupational health care at all, and the implementation of occupational health services still has shortcomings, particularly for people engaged in various forms of casual employment, agency work and platform work. The SAK considers that, even in jobs with particular risks, medical examinations and guidance and counselling remain incomplete or wholly unimplemented. In addition, the SAK indicates in its observations under Conventions Nos 162 and 167 that occupational health care is still poorly implemented in the entire construction sector, and that people exposed to asbestos have difficulties securing medical examinations after their employment has ended. The Committee notes the Government’s indication that investigations are being envisaged to determine whether an alternative to the current occupational health card could be found, for the organization and implementation of occupational health care and health monitoring in construction work. The Committee requests the Government to provide further information on the measures taken to ensure that workers who are or have been exposed to asbestos shall be provided with such medical examinations as necessary, after their employment has ended. The Committee also requests the Government to continue to provide information on the measures taken to progressively develop occupational health services for all workers. Additionally, the Committee requests the Government to provide information on the implementation of occupational health services in all sectors, including on the impact of initiatives undertaken in the construction sector in this regard.

Articles 5(c) and 19(d) of Convention No. 155, Article 4(3)(c) of Convention No. 187, Article 22(3) of Convention No. 162 and Article 7(b) of Convention No. 184. OSH training and qualifications. The Committee notes that, in its observations on Conventions Nos 162 and 184, the SAK expresses concerns regarding the adequacy of OSH training for certain workers engaged in asbestos demolition work, such as “posted” workers or entrepreneurs, and for foreign workers engaged in agricultural work. In its observations on Convention No. 187, the SAK also indicates that Finland lacks training criteria or qualification requirements for individuals responsible for OSH at the workplace, including OSH managers responsible for OSH cooperation and OSH representatives. The Committee requests the Government to indicate the measures taken to ensure that adequate and appropriate training and comprehensible OSH instructions and any necessary guidance or supervision are provided to workers in agriculture, taking into account differences in language (Article 7(b) of Convention No. 184). It also requests the Government to provide further information on how employers ensure that all workers exposed or likely to be exposed to asbestos are informed about the health hazards related to their work, instructed in preventive measures and correct work practices and receive continuing training in these fields (Article 22(3) of Convention No. 162). The Committee further requests the Government to indicate whether it envisages adopting training criteria or qualification requirements for persons with OSH responsibilities at the workplace.

A.General provisions

The Committee takes note of the information provided by the Government in reply to its previous requests concerning Article 9 (labour inspection) of Convention No. 155, Article 3(c) of the Protocol and Article 3(3) (national preventive safety and health culture) of Convention No. 187, which responds to its previous requests.

I.Action at the national level

Article 2(1) of Convention No. 187. Promoting the continuous improvement of OSH by developing a national policy, national system and national programme. The Committee takes due note of the adoption in 2019 of the policy for the work environment and well-being at work until 2030, developed in consultation with social partners, which specifies the strategy of the Ministry of Social Affairs and Health and guides its operations to ensure OSH at all workplaces, regardless of the form of employment. The SAK and the STTK, in their observations on Convention No. 187, take the view that certain OSH risks have yet to be adequately addressed, including psychosocial risks and OSH risks involved in platform work. In this respect, the Committee notes that the Ministry of Social Affairs and Health has adopted a Mental Health at Work Programme, implemented in cooperation with the Finnish Institute of Occupational Health and other partners. The Committee requests the Government to continue to provide information on the measures taken topromote continuous improvement of OSH and the results thereof, including the impact of the Mental Health at Work Programme.It requests the Government to provide information on measures taken towards the improvement of the OSH of platform workers and to address psychosocial risks of those workers.

Articles 4, 8, 13 and 19(f) of Convention No. 155. Prevention of injury to health occurring in the course of work. Protection of workers removed from situations presenting an imminent and serious danger. Following its previous comments, the Committee notes the measures taken by the Government to reduce threats of workplace violence, including by setting the prevention of violence, harassment and inappropriate treatment in the workplace as an objective of the Implementation Plan for 2022–23 of the policy for the work environment and well-being at work until 2030. The Committee notes that, according to the SAK’s observations on Convention No. 187, threats of physical violence have arisen at approximately one in six workplaces (14 per cent) and direct physical violence had occurred at one in ten workplaces (10 per cent) during the 2017–20 period. The Committee thus requests the Government to provide further information on occurrences where workers have exercised their right to remove themselves from work situations which they had reasonable justification to believe presented an imminent and serious danger to their life or health. The Committee requests the Government to continue to provide information on the impact of measures taken toprevent injury to health, including due to violence and harassment at work.

Article 5(1) of Convention No. 187. Formulation, implementation, monitoring, evaluation and periodical review of a national OSH programme. The Committee takes due note of the adoption of the Implementation Plan 2022–23 for the policy for the work environment and well-being at work until 2030. The Committee notes that the actions in the Implementation Plan are monitored annually with reporting and their effectiveness assessed with agreed indicators. The Committee requests the Government to continue to provide information on the evaluation and review of the Implementation Plan 2022–23, in consultation with social partners, as well as on how this evaluation contributes to the formulation of subsequent implementation plans.

II.Action at the level of the undertaking

Article 20 of Convention No. 155 and Article 4(2)(d) of Convention No. 187. Cooperation at the level of the undertaking. In reply to its previous request concerning the right of higher-ranking workers to elect OSH representatives, the Committee notes the Government’s indication that senior staff are also deemed to be employees for elections as representatives. The Committee also notes the observations of the SAK on Convention No. 187, underlining that the Act on occupational safety and health enforcement and cooperation on occupational safety and health at workplaces (44/2006) only requires the election of an OSH representative at workplaces with at least ten employees, and that about 20,000 workplaces have fewer than ten employees. The Committee requests the Government to provide information on the election of OSH representatives, in practice, in undertakings with less than ten employees, as well as on any other arrangements to promote cooperation between management, workers and their representatives as an essential element of workplace-related prevention measures in those workplaces.

Occupational Health Services Convention, 1985 (No. 161)

Article 16 of the Convention. Supervision of occupational health services. Following its previous comments, the Committee notes the Government’s information on the results of labour inspections between 2016–21, including its indication that the multidisciplinary nature of occupational health services has clearly improved since 2015, and that only 7 per cent of occupational health care units fell short of satisfying basic conditions. The Committee also notes the observations of the SAK on Convention No. 161, according to which enforcement work in the field of occupational health is usually confined to verifying the existence of an occupational health care agreement. With reference to its preceding comments on the development of occupational health services, the Committee requests the Government to provide further information on measures taken or envisaged to strengthen the supervision of the operation of occupational health services.

B.Protection against specific risks

Radiation Protection Convention, 1960 (No. 115)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 3(1) (effective protection of workers in light of available knowledge) and 6(1) (maximum permissible doses) of Convention No. 115, which responds to its previous request.

Occupational Cancer Convention, 1974 (No. 139)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 1(1) and (3) (list of carcinogenic substances and agents) and 6(a) (national laws and regulations) of Convention No. 139, which responds to its previous request.

Working Environment (Air Pollution, Noise and Vibration) Convention, 1977 (No. 148)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 4 (national laws or regulations), 9 (technical and supplementary organizational measures) and 12 (control of the use of processes, substances, machinery and equipment) of Convention No. 148, which responds to its previous request.

Article 16(b) of the Convention. Appropriate inspection. Following its previous comments, the Committee notes the information provided by the Government on the results of inspections undertaken, as well as the observations of the SAK on Conventions Nos 120 and 148, which consider that clean air requirements gained new significance during the pandemic, and that attention should be paid to enforcement regarding air measurements. The Committee notes the Government’s statement that labour inspectors do not always oblige employers to measure airborne exposure levels, if they consider that the risks are assessed and managed by other means. The Committee requests the Government to provide further information on measures taken to strengthen supervision of the application of Convention No. 148.

Chemicals Convention, 1990 (No. 170)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 5 (advance notification, authorization, classification and labelling of chemical substances),and 12(d) (duration for maintaining records) of Convention No. 170, which responds to its previous request.

Prevention of Major Industrial Accidents Convention, 1993 (No. 174)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 4 (coherent national policy),and 9(f) and (g) and 20(c) (consultation of workers and their representatives on the documented system of major hazard control, safety report, emergency plans and procedures and accident reports) of Convention No. 174, which responds to its previous request.

C.Protection in specific branches of activity

Hygiene (Commerce and Offices) Convention, 1964 (No. 120)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 6 (labour inspection), 10 (comfortable and steady temperature), 14 (sufficient and suitable seats) and 18 (protection against noise) of Convention No. 120, which responds to its previous request.

Safety and Health in Construction Convention, 1988 (No. 167)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 34 (reporting on occupational accidents and diseases)and 35(b) (labour inspection services) of Convention No. 167, which responds to its previous request.

Safety and Health in Mines Convention, 1995 (No. 176)

The Committee notes the information provided by the Government in reply to its previous requests concerning Articles 3 (policy on safety and health in mines), 5(2)(d) (compilation and publication of statistics on accidents, occupational diseases and dangerous occurrences), 5(4)(a) (mine rescue, first aid and appropriate medical facilities), 5(4)(b) (adequate self-rescue respiratory devices), 5(4)(c) (securing abandoned mine workings), 5(4)(d) (safe storage, transportation and disposal of hazardous substances and waste), 7(b) (safe commissioning, maintenance and decommissioning of mines), 7(c) (measures to maintain ground stability), 7(d) (provision of two exits), 7(g) (operation plan and procedures for a safe system of work), 7(i) (stopping operations and evacuation of workers), 10(b) (supervision of mine work), 10(d) (investigation and report on accidents and dangerous occurrences), 13(1)(f) (selecting OSH representatives), 13(4) (protection against discrimination and retaliation) of Convention No. 176, which responds to its previous request.

Article 10(c) of the Convention. Recording system of the names and probable location of all persons who are underground. The Committee notes that section 23 of the Government Decree on the Safety of Blasting and Excavation Work (644/2011), as amended, requires the provision of a communication and warning system between supervisors and employees that can enable verification of the location of an employee. The Committee requests the Government to provide further information on measures taken to give effect to Article 10(c) in situations other than demolition or blasting work.

Article 13(1)(a) and (b) and 13(3). Rights of workers under national laws and regulations. The Committee notes section 19 of the Occupational Safety and Health Act (738/2002), as amended, which provides a notification obligation for workers to the employer and the OSH representative without delay of any faults and defects discovered in working conditions or working methods, machinery, other work equipment, personal protective equipment or other devices that may cause risk or hazard to the safety or health of employees. The Committee also takes due note of the Government’s statement that, while there are no specific provisions on reporting to authorities, it is normal practice and the starting point for people to communicate with the authorities, even in their capacity as an employee. The Committee nevertheless recalls that, under Article 13(1) and (3), the procedures for the exercise of the right of workers to report accidents, dangerous occurrences and hazards to the competent authority, and their right to request and obtain, where there is cause for concern on safety and health grounds, inspections and investigations to be conducted by the competent authority, shall be specified by national laws and regulations. The Committee accordingly requests the Government to indicate the measures envisaged, including any legislative amendments, to give full effect to Article 13(1)(a) and (b) of the Convention.

Article 13(2)(c). Right of safety and health representatives to have recourse to advisers and independent experts. The Committee requests the Government to indicate the measures taken or envisaged to ensure that, in accordance with national laws and regulations, safety and health representatives have the right to have recourse to advisers and independent experts.

Safety and Health in Agriculture Convention, 2001 (No. 184)

Article 4 of the Convention. Coherent national policy. Following its previous comments, the Committee notes the Government’s indication that no strategies have been prepared yet for specific sectors in Finland. The Committee requests the Government to indicate whether it envisages taking measures to adopt a strategy for the agricultural sector, after consultation with the social partners.

Article 5. Labour inspection in agriculture. The Committee refers the Government to its comments adopted in 2022 under the Labour Inspection (Agriculture) Convention, 1969 (No. 129).

Article 19(b). Minimum accommodation standards. The Committee notes the concerns of the SAK in its observations under the Convention, indicating that, because regulations governing accommodation are enforced by several public authorities, no single agency bears primary responsibility. The SAK indicates that employees housed in facilities provided by the employer have reported miserable conditions. The Committee requests the Government to indicate the measures taken or envisaged to ensure the enforcement of accommodation standards for agricultural workers.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

The Committee notes the joint observations of the Confederation of Unions for Professionals and Managerial Staff in Finland (AKAVA) and the Central Organisation of Finnish Trade Unions (SAK), communicated with the Government’s report, in which they indicate that they refer to their observations communicated in 2010.

The Committee also notes the information provided by the Government, in reply to its previous comments, concerning Articles 4(1) (maintain, progressively develop and periodically review a national system for occupational safety and health (OSH)), 4(3)(c) (provision of OSH training), (g) (collaboration with relevant insurance or social security schemes), (h) (OSH information and advisory services, and the supporting mechanisms for progressive improvements of OSH in micro-enterprises, in small and medium-sized enterprises and in the informal economy) and 5(2) (requirements to be met by the national programme) of the Convention.

Article 2(1) of the Convention. Promoting the continuous improvement of OSH by developing a national policy, national system and national programme. The Committee notes that in its 2010 observations, the SAK stated that the OSH Strategy of the Ministry of Social Affairs and Health (the Ministry) did not meet the needs for working life, did not include a section on occupational health and occupational health care and did not include measures related to mental health and work-related illness. In this regard, the Committee notes the Government’s indication that Government Decree No. 708/2013 on the principles of good occupational health practice, the content of occupational health care and the educational qualifications required of professionals and experts, introduced the concept of occupational health cooperation between employers, workers and their representatives and occupational health care providers in implementing the Occupational Health Care Act. It also notes that Socially Sustainable Finland 2020, the policy adopted in 2011 by the Ministry, and the Policies for the work environment and well-being at work until 2020 address the importance of mental well-being and maintain that occupational diseases and mental health problems must be reduced. The Committee requests the Government to continue to provide information on its efforts to promote the continuous improvement of OSH through the development of a national policy, national system and national programme.

Article 3(3). Promoting basic principles and developing a national preventive safety and health culture that includes information, consultation and training. With reference to the observations submitted by the SAK in 2010, the Committee notes the information provided by the Government on the 2011 OSH policies, which pay particular attention to OSH in relation to the working environment and well-being at work through the planning of activities based upon a sufficient knowledge base, stakeholder cooperation, systematic monitoring and analysis of the operating environment and coordination in project and development activities. The Committee also notes the indication that, in addition to the creation of an OSH network aimed at effectively improving the working environment and well-being at work through cooperation at the national, local and workplace levels, legislative instruments on OSH will be drafted in cooperation with social partners in order to keep them updated and in accordance with the needs of working life. The Committee requests the Government to provide detailed information on the consultations held with the most representative organizations of employers and workers in relation to the formulation of the national policy on OSH, and to continue to provide information on the measures taken to give effect to this Article of the Convention.

Article 5(1). Formulation, implementation, monitoring, evaluation and periodical review of a national programme on OSH. The Committee notes that in its 2010 observations, the SAK emphasized that the national OSH policy should be monitored and assessed on a regular basis, which required improved statistics, a more detailed analysis of occupational accidents, as well as the reporting and compilation of statistics on all cases of occupational diseases, work-related illnesses and hazardous and dangerous occurrences. In this regard, the Committee notes the information provided by the Government according to which the effectiveness of occupational health care is assessed through its annual report and through the monitoring of absences due to sickness, occupational accidents and occupational diseases. It also notes the indication that the Advisory Committee on OSH regularly discusses the implementation of the OSH policy and adopts follow-up reports every three years. The Committee requests the Government to continue to provide information on the measures taken to formulate, implement, monitor, evaluate and periodically review its national programme on OSH, and to provide information on the consultations held in this regard with the most representative organizations of employers and workers.

Application in practice. The Committee notes the information provided by the Government, attached to its report on the application of the Labour Inspection Convention, 1947 (No. 81), which indicates that 22,340 workplace inspections were conducted by the OSH Authorities in 2013, during which 8,223 improvement notices were made, 979 occupational accidents and 50 occupational diseases investigated, and 230 OSH offences and breaches reported to the police for investigation. The Committee requests the Government to continue to provide information on the application of the Convention in practice, including on the number of workers covered by the relevant legislation, the number and nature of the contraventions reported, and the number, nature and cause of occupational accidents and cases of occupational disease reported, and disaggregated by sector.

Direct Request (CEACR) - adopted 2010, published 100th ILC session (2011)

Further to its observation, the Committee requests the Government to provide additional information on the following points.

Article 4(1). Maintain, progressively develop and periodically review a national system for OSH. The Committee notes that the Government indicates in its report that the Advisory Committee on Occupational Safety and Health handles issues related to Finland’s system for occupational safety and health (OSH) on a regular basis, that preparations are under way with a view to reforming the Ministry of Social Affairs and Health strategy for the entire sector and that this reform will lead to the revision of the current OSH strategy by means of guidelines. The Government is requested to keep the Committee up to date with any developments in regard to this aspect.

Article 4(3)(c). Provision of occupational safety and health training. The Committee notes the Government’s reference to Chapter 5, section 26(5), of the OSH Enforcement, which places a duty on employers to train their employees pursuant to the acts enforced by the OSH authorities. The Committee requests the Government to provide further information on practical application of this provision and on the measures taken to provide guidance to employers and workers so as to help them to comply with legal obligations.

Article 4(3)(g). Collaboration with relevant insurance or social security schemes. The Committee notes that, in accordance with the Employment Accidents Insurance Act (608/1948), employers are obliged to notify the insurance institution of any occupational accidents and, based on such notification, the Federation of Accident Insurance Institutes compiles and publishes statistics on occupational accidents and diseases. The Committee requests the Government to make such statistics available to it. The Committee also requests the Government to provide further information on the process, frequency and outcome of such collaboration and to continue to provide information on measures taken to apply this provision of the Convention.

Article 4(3)(h). OSH information and advisory services, and the supporting mechanisms for progressive improvements of OSH in micro-enterprises, in small and medium-sized enterprises and in the informal economy. The Committee notes that the Government’s report is silent in these respects. The Committee requests the Government to provide further information on measures taken, as appropriate, to establish, maintain, progressively develop and periodically review its support mechanisms for micro-enterprises, in small and medium-sized enterprises and in the informal economy.

Article 5(3). National programme shall be widely publicized and, to the extent possible, endorsed and launched by the highest national authorities. The Committee notes that the Government indicates that the Ministry of Social Affairs and Health has ratified and published the programmes and strategies as required and that the ministry and the OSH administration participate in programmes and networks on the development of working life coordinated by the Ministry of Employment and the Economy. The Government is requested to provide information on the outcome of the abovementioned OSH programmes.

Article 5(2)(a)–(e). The criteria set out in regard to the national OSH programme. The Committee notes that the Government’s report contains no detailed information on the application of these provisions of the Convention. With reference in particular to Article 5(2)(c) and (e), the Committee requests the Government to provide further information on any analyses of the national situation regarding OSH and on practice in relation to objectives, targets and indicators of progress.

Part V of the report form. Application of the Convention in practice. The Committee also asks the Government to give a general appreciation of the manner in which the Convention is applied in the country, and to forward extracts of reports, studies and inquiries, statistical data, etc. (for example, with respect to policies and programmes relating to particular areas or branches of economic activity and to particular groups of the population).

Observation (CEACR) - adopted 2010, published 100th ILC session (2011)

The Committee notes the Government’s comprehensive first report including the legislative texts attached. The Committee also notes the comments submitted by the Central Organisation of Finnish Trade Unions (SAK), the Finnish Confederation of Professionals (STTK), the Confederation of Unions for Professional and Managerial Staff in Finland (AKAVA), the Commission for Local Authority Employers (KT) and the State Employer’s Office (VTML) attached to the Government’s report. 

Article 2(1). Promote continuous improvement of OSH by the development of a national policy, national system and national programme. The Committee notes from the Government’s report that the legal frame work for the Strategy is provided by the Occupational Safety and Health Act 2002 (OSHA) and supporting legislation and that such legislation promotes and supports the systematic development of working conditions in the workplaces through various programs and projects in cooperation with various actors, such as the Forum for Wellbeing at Work, which was set up in 2008. The Committee also notes the Central Organisation of Finnish Trade Unions’ (SAK) comments, where it states that, the 1998 Occupational Safety and Health Strategy of the Ministry of Social Affairs and Health (OSH Strategy) applies to occupational safety and health sector under the Ministry but that it does not include a section on occupational health and occupational health care, and that it is not handled or prepared, for example, by the Ministry of Social Affairs and Health’s Advisory Committee on Occupational Safety and Health. The SAK further maintain that this OSH Strategy does not meet the needs for working life, that it is not based on an in depth situation analysis and does not include measures related to, for example, mental health care and work-related illness. The Committee notes that the Government for its part states that the Finnish occupational health care system is under reform in accordance with the Council of State’s Decision-in-Principle, issued in 2004 and that the Ministry of Social Affairs and Health’s social and health policy strategy 2015 also includes sections on occupational safety and health and occupation health care. The Committee requests the Government to provide further information on efforts to promote continuous improvements of OSH through the development of a national policy, national system and national program. The Government is also requested to keep the Committee informed on the Finnish occupational health care system reform.

Article 3(3). Promoting basic principles and to develop a national preventative safety and health culture that includes information, consultation and training. The Committee notes that the Government states that the Advisory Committee on Occupational Safety and Health handles training, guidance, statistics and other monitoring data. The Committee also notes that the Government refers to the Finnish Work Environment Fund (Act 407/1979), which receives funds pursuant to section 35 of the Employment Accidents Insurance Act and that such funds are granted for occupation safety research and training, and collecting and disseminating information related to OSH, in addition to financing the activities of the Centre for Occupational Safety. The Committee also notes that the Government states in its report that, the most representative labour market organisations always contributes to the preparation of OSH legislation by means of advisory committees, either as members of specially appointed working groups or failing this by issuing a statement. In regards to national conditions and practice taken into consideration, the Committee notes that the Government indicates that the Occupational Safety and Health Strategy follow up reports include comprehensive analysis of OSH activity, assessment of the development of working conditions based on statistics and research results, and input from various actors and stakeholders. The Committee also notes the comments raised by the SAK, which takes the view that there is a need to prepare a wide ranging cross administrative national plan of action based on an in depth situation analysis as a part of the Government Policy Programme for Employment, Entrepreneurship and Worklife in cooperation with parties from the labour market, to promote OSH and that the said policy should be based on transparent, open and confidential tripartite cooperation. The Committee requests the Government to provide further information on the outcome of the consultations held in this regard and to continue to provide information on measures taken to apply this provision of the Convention.

Article 5(1). Formulate, implement, monitor, evaluate and periodically review a national program on OSH. The Committee notes that the Government indicates that in 1998, the Ministry of Social Affairs and Health ratified the OSH Strategy and its implementation has been monitored and assessed regularly, that the National OSH Profile of Finland was created in accordance with ILO Recommendation No. 197 and published in 2006 and that the statement and measures on the preparation, implementation and monitoring of the OSH strategy of the European Commission form part of Finland’s OSH policy. The Committee also notes that the SAK emphasizes that the national policy should be monitored and assessed on a regular basis, that this requires improved and further developed statistics, including a more detailed analysis of occupational accidents in particular, as well as reporting and compilation of statistics on all cases of occupational diseases, work-related illnesses and hazardous and dangerous occurrences and that the assessment and development of the impact of the national policy should be supported by a process of reporting on the activities of the occupational safety and health authorities annually, in compliance with ILO Convention No 81 and the creation of a national profile in accordance with ILO Recommendation No 197. The Committee requests the Government to provide further information on the functioning of and efforts made to formulate, monitor, evaluate and periodically review its national program on OSH.

The Committee is raising other points in a request addressed directly to the Government.