The Quebec Mandatory OHS
“Prevention Program” (1979):
How Was It Implemented,
What Were Its Outcomes and
What Factors May Have Influenced It?
Geneviève Baril-Gingras, professor
Industrial Relations Department,
Laval University, Québec, Canada
Research questions:
„ How
was the Quebec mandatory
prevention program implemented?
„ Is it possible to measure to its
intermediate and final outcomes? If
so, what were these outcomes?
„ What are the factors that may have
influenced these outcomes?
Methods
„
Interviews
… union
OHS advisor
… employer coordinator for OHS
… one of the co-writers of the legislation
… former coordinator of a public occup. health team
„
Literature review:
… CSST
documentation centre database (ISST)
… research reports (IRSST)
… Theses Canada Portal
… Proceedings of professional and scientific OHS
congresses
… “Travail Et Santé” prof. and scientific OHS magazine,
… Academic Search Premier (EBSCO) and ABI Proquest
Background: Quebec labour market
and industrial relations
„
Labour market structure
nb of worker
in the
enterprises
% of all
salaried jobs
(1996)
„
„
„
1-4
5-19
20-49
50-99
100-499
500 and +
11,1
13,3
10,3
8,1
16,3
41,0
Union presence rate: 41,2% (2003)
Women participation to active population: 45%
(2003)
Atypical work proportion / total employment :
36,4% (2001)
Background: OHS legislation
„
„
Labour: provincial jurisdiction, except for sectors like
telecommunications, banking, etc.
Quebec Act Respecting OHS (1979)
Object: “elimination, at the source, of dangers to the health, safety
and physical well-being of workers »
… Employer general duty clause
… Three regimes of mandated partial self-regulation:
…
„
„
„
…
External ressources
„
„
…
Provisions for Prev. prog. and Health prog. + JOHSC and workers’
prevention rep. (10/30 sectors)
Provisions for Prev. prog. and Health prog. (15/30 sectors)
Nothing else than the Act… and specific regulations
Public OH team (H prog, 15/30 sectors)
Joint OHS sector-based associations (12/25)
Occupational Health and Safety Commission (CSST):
„
„
both compensation (public) and inspection (about 300 inspectors)
Board of directors: employers, unions, and gov. nominated president
Prevention programme content
1) programmes for the adaptation to the
standards prescribed by the regulations
2) measures of supervision of the quality of the
work environment and of preventive
maintenance
3) specific standard of sanitation and safety for
the establishment
4) terms and conditions of any other OHS rule
5) identification of individual protective devices
and equip.
6) workers OHS training and information
Is it possible to measure to
the intermediate and final
outcomes of the PP? If so,
what were these outcomes?
Evolution of compensation data
Lésions indemnisées pour 1000 travailleurs, selon le groupe, de 1986 à 2000
250,0
Généralisation de
l'assignation temporaire
Nombre de lésions
200,0
Groupe
Groupe
Groupe
Groupe
Groupe
Groupe
150,0
Groupes couverts
par le PP
100,0
50,0
0,0
1986
1987
1988
1989
1990
1991
1992
1993
Année
1994
1995
1996
1997
1998
1999
2000
I
II
III
IV
V
VI
Intermediate outcome: compliance to the
obligation to send a PP to CSST
Pource ntage de s é tablis s e m e nts de 21 travaille urs e t plus
ayant dé pos é un Program m e de pré ve ntion à la CSST, s e lon le groupe
100
90
80
70
60
50
Total Groupe II
Total Groupe III
40
30
20
10
Anné e
20
03
20
01
19
99
19
97
19
95
19
93
19
91
19
89
19
87
19
85
0
19
83
%
Total Groupe I
Intermediate outcome: preventive
measures implementation
Nive au de r é alis ation de s obje ctifs du PP (Price Wate r hous e 1990)
Ré pons e "BEAUCOUP"
s e lon le s r é pondants e m ploye ur s (210) e t s yndicaux (43)
100
90
80
70
%
60
rep. employeurs
50
rep. syndicaux
40
30
20
10
0
adaptation
aux normes
gouv.
normes
surveilllance
spécif iques à qualité milieu
l'ét.
de trav.
entretien
préventif
Élé m e nt du PP
équipements
de protection
ind.
f ormation ou
inf ormation
IN COMPARISON TO SECTORS NOT
COVERED:
Intermediate outcome: prevention structures
„
Thomason & Pozzebon 2002
…
In-house safety personnel
„
…
20% more likely in group 1 firms (4 regs) than in
firms where none of the 4 regulations apply
Joint Occ. Health and Safety Committee
12% more likely (group 1 firms) and 21% (group II
firms) to have a JHSC than firms where none of
the 4 regs apply
„ more meetings (3 more/year) in group II firms than
in firms where none of the 4 regs apply
„
IN COMPARISON WITH SECTORS NOT
COVERED:
Intermediate outcome: prevention activities
„
Champoux & Brun 1999
…
Risk identification and risk control activities
much more in an industrial sector where the 3
regulations apply (metal products manufacturing)
„ than where it doesn't (garment)
„
…
Prevention programme
1/5 where regulation applies
„ 1/20 where it does not
„
How was the PP
implemented?
Period 1 (1979-1984):
„
Establishment of institutions, and
implementation of the PP in Groups I and II
„
Suggested approach for the preparation of a PP:
… Focus
„
on risks identification with “Register of risks”
Action of CSST inspectors:
… Significant
effect on the reduction of compensated
injuries, both in sectors covered and not covered
Factors explaining outcome: control
„
Lanoie & Streliski 1995 (logistic regression
on accident data 1983-1990)
…
…
„
All sectors and Group I, II, III: inspection
rate by economic sector: only variable
associated with a ↓ of accident frequency
+ 1% inspection rate all (I,II,III) = 0,04 (0,11)
to 0,05 (0,12 %) reduction in frequency
Price Waterhouse
…
Association between rigourous follow-up
and better (more complete) implementation
of the PP.
Risk identification for the
“Prevention Program”
„
Registers of risks
52. Every employer shall, in accordance
with the regulations, keep and maintain
„ a register of risks connected with certain
jobs, identifying, in particular, the
contaminants and dangerous substances
connected with certain jobs,
„ and a register of the risks connected with
the kind of work performed by each worker
in his employ. (…) »
…«
Period 2 (1985-1989):
„
„
„
„
End of PP application in sectors not yet covered
and reform of compensation legislation
Difficulties encountered in drafting a prevention
program
Increase in compensated injuries and costs
Even if first evaluation was positive and time
elapsed not sufficient to see the results in all the
sectors
Comments over the Register of risks by employers rep.
Price Waterhouse (1990)
nb
%
Existence d’un registre de postes (tâches et les risques pour chacun)
oui
104/191
54,5%
non
87/191
45,5%
Utilisation d’un registre avant le PP
oui, le même
57/132
43,2%
non
68/132
51,5%
ne sait pas
7/132
5,3%
Raison de non utilisation d’un registre
notion de poste s’applique mal
30/81
37%
pas assez grosse entreprise
21/81
25,9%
trop compliqué, trop de papier
11/81
13,6%
autre
17/81
21,0%
ne sais pas
2/81
2,5%
Factors explaining outcome: human
resources, time devoted, participation?
„
LSST section 51 Every employer must 2) designate members
of his personnel to be responsible for OHS matters (…);
„
Berthelette & Planché (1995)
rubber & plastic products sector, SME, 1991-1992
… average work time devoted to OHS matters: 7,32% by the
person in charge
…
„
Price Waterhouse (1990)
… 62%
of PP prepared by internal actors
… 38% by more than one person (workers, w. rep.)
„
Thériault (1996) study of WHMIS:
… Most
efficient strategy : to train an internal trainer, not the
most used
Factors… workers participation and
representation
„
Lemire (1996) JOHS committee
… Evaluation
of the “Prevention plan” service by JSB
Association for metal and electrical products (form of PP +
structures and activities)
… Degree of development of the JOHSC = best predictor of
the frequency rate↓ induced by the “Prevention plan”
„
Simard (1986) Presence of a Workers Prev Rep :
… more
joint OHS committee meetings annually
… higher nb of joint OHS committee recommendations
… higher nb of joint OHS committee activities among those
required
Factors: external interventions
„
Berthelette 1991, Lévesque & Berthelette 1998
… Significant
contribution of public occupational health
teams, responsible for Health Program elaboration
to:
surveillance of exposure and health
„ elimination at the source measures (machine safety,
ventilation, noise reduction, chemicals substitution, etc.)
„ prevention structures (JOHS committes)
„ prevention activities (ex: first aid organisation)
„
„
Lemire 1996
… Significant
reduction of frequency rate with implementation
of the « Prevention Plan » of Joint sector-based association
for metal and electrical products
Period 3 (1990-1994):
„ Introduction
of experience-based
rating
„ Use of temporary work assignments
(light duty)
Period 4 (1994-1998):
„
Reform of the action of the inspectorate
… Introduction
of the “Integrated Intervention
Programs” : specific risk-based intervention
programs
… Introduction of the “convince, support,
compel” approach
… Management audits
„
Simard et coll. (1992):
… Methods:
„
Statistical analysis of CSST data bank (1983-1989)
to evaluate the impact of inspectors interventions (2
sectors where 4 regulations apply, 91
establishments), Questionnaire (inspectors), Etc.
… Results:
Only the degree of follow-up of the prev. progr.
implementation has an impact on joint OHS
committee creation and workers rep. nomination.
„ Only the « integrated approach » (control visit(s) +
assistance visit(s)) has a positive impact (reduction
of occupational accidents).
„ The « integrated approach » was used in 27.2% of
the cases.
„
Mesures prises par les inspecteurs, par type (1981-2004),
et total des dossiers ouverts (1992-2004)
90000
80000
Dérogations signalées*
70000
1995
Nouvelle approche:
"Convaincre,
Soutenir,
Contraindre"
50000
Arrêts des machines,
fermeture des lieux,
scellés apposés*
40000
Poursuites intentées*
30000
20000
Total des dossiers
ouverts avec
intervention prévue
10000
0
19
81
19
82
19
83
19
84
19
85
19
86
19
87
19
88
19
89
19
90
19
91
19
92
19
93
19
94
19
95
19
96
19
97
19
98
19
99
20
00
20
01
20
02
20
03
20
04
Nombre
60000
Année
Period 5: (1998-200?)
„
Market-based incentives and voluntary approach
“Prevention mutual groups”
… Suggested method to draft the PP
…
„
„
„
„
„
Prevention activities, integration of prevention within management
practices
rather than systematic identification of risks via “Register of risks”
CSST campaigns based on new Regulation regarding
OHS (2001), Continuation of CSST Intervention
programs
Changes to Criminal Code (2004)
OHS management systems as a way to demonstrate
due diligence?
„ For some enterprises only…
„ And for the others?
Specific regulations: The Regulation
regarding OHS (2001)
„
Form:
… Specifications
… Performance-outcome
and performance-target
provisions
… Some process-like requirements (e.g. for confined
spaces)
„
Process of preparation and adoption
… Planned
as a component of the reform of 1979…
adopted in 2001; influence by the “lightening of
regulation” discourse
… Comments by OHS professionals and unions: some
major improvements, many holes and insufficient
requirements
… Comments by employers organisations: to be costly,
to heavy for public sector and services
Approach 1:
Systematic risk identification (register)
and preventive action
Guides of 1983, 1985, 1986, 1994 for
« specialists »
Approach 2:
Action plan for integration of OHS
to management
Guide of 2000 (for small and medium enterprises)
RISK IDENTIFICATION
Register of risks connected with certain
jobs, identifying, in particular, the
contaminants and dangerous substances
connected with certain jobs
Register of the risks connected with the kind
of work performed by each worker
Systematic preventive action on each risk
REFERENCE TO WORK
Focus on elements of the PP defined by
the Act repecting OHS
Documents of 1985 et 1994
Annex (2 p.) : Examples of elements related
to OHS integrated to management
•
•
•
•
•
•
supplies
quality
operations
processes
layout
maintenance
Broad outline of main sources of risks in a workplace (1 p.)
Section « Identification » (of risks) (1/2 p.)
Objective : identification of priorities (most dangerous, most
urgent)
ORGANIZATION AND MANAGEMENT
Focus on prevention activities to be integrated to the
firm operation and management 2000 document (20 p.)
•
OHS organization (structures)
•
Supervision in OHS
•
Buying policy and engineering
•
Surveillance of the quality of the work environment
•
Preventive maintenance
•
Inspection
•
Health surveillance
•
Safe work methods
•
Protective equipment and devices
•
OHS regulations
•
OHS information
•
OHS training
•
Accident investigation
•
Emergency measures
•
First-aid and health care
Amendments to the Criminal Code
regarding OHS (2004)
„
Those who are responsible for directing
the work of others are under a legal duty
to take reasonable steps to prevent bodily
harm to any person arising from such work
„
No prosecution yet completed
„
Much interest for due diligence
demonstration
Conclusion
„
„
„
„
PP not anymore marginal in Canadian and even in
North American Legislations,
Final outcome hard to measure: confusing factors
Intermediate outcome evidence tend to support the
relevance of identification + elimination + control
External factors influence the implementation and
outcome
… External
control (assistance + control) : +
… External mandated intervention: +
… External advisory intervention: +