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Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on occupational safety and health (OSH), the Committee considers it appropriate to examine Conventions Nos 45 (underground work (women)), 115 (radiation), 120 (hygiene (commerce and offices)), 127 (maximum weight), 139 (occupational cancer), 148 (air pollution, noise and vibration), 155 and its 2002 Protocol (OSH), 162 (asbestos), 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 General Confederation of Portuguese Workers - National Trade Unions (CGTP-IN) and the General Workers’ Union (UGT) on Conventions Nos 115, 120, 127, 139, 148, 155, 162, 176, 184 and 187 and the observations of Confederation of Portuguese Business (CIP) on Conventions Nos 45, 155, 176 and 187.
Application of Conventions Nos 115, 120, 127, 139, 148, 155, 162, 176, 184 and 187 in practice. Measures to prevent occupational accidents and diseases. The Committee notes the comprehensive general and sectoral information provided by the Government in its reports regarding the application in practice of the OSH Conventions, including the number of inspection visits carried out, infringements detected, measures ordered to remedy the infringements and the number of occupational accidents and diseases reported from 2015 to 2021.
It also notes the information provided by the Government and the UGT on the National Strategy to Fight Cancer 2021–30, as well as on the awareness-raising campaigns carried out on protection against specific risks, such as the 2020–22 campaign on safe manual handling of loads to prevent musculoskeletal disorders.
Moreover, it notes the observations of the CGTP-IN and the UGT on the application in practice of Convention No. 120, alleging that musculoskeletal injuries are very frequent in the commerce and office sectors due to non-ergonomic workstations, as well as the observations of the UGT on the application of Convention No. 127, alleging an increase of musculoskeletal injuries due to manual handling of loads. The Committee requests the Government to continue to provide information on the application in practice of the ratified OSH Conventions, including the number, nature and cause of occupational accidents and diseases reported, as well as information on inspection activities conducted, violations detected, and sanctions imposed. It requests the Government to provide further information on the measures taken to: (i) implement Article 11 of Convention No. 120 on the arrangement of workstations; and (ii) ensure that no worker is permitted to engage in the manual transport of a load which is likely to jeopardise the worker’s health and safety, in accordance with Convention No. 127.
  • General provisions

Occupational Safety and Health Convention, 1981 (No. 155), Protocol of 2002 to the Occupational Safety and Health Convention, 1981, and Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187)

Articles 4 and 9 of Convention No. 155 and Articles 3 and 4(2)(c) of Convention No. 187. Enforcement system. 1. Adequate inspection strategy as part of the national OSH policy. Following its previous comments, the Committee notes the observations of the CGTP-IN and the UGT alleging that the deficiencies in the functioning of the Working Conditions Authority (ACT), which is the main body responsible for the implementation of the OSH strategies, do not allow for the achievement of the established objectives. The Committee once again requests the Government to provide information on the measures taken, in consultation with the most representative organizations of employers and workers, to ensure the effective enforcement of the legal provisions concerning OSH and the working environment.
2. Enforcement of laws and regulations concerning OSH and the working environment in the public sector. Further to its previous comment, the Committee notes the information provided by the Government on the amendments introduced to the General Law on Employment in Public Functions No. 35 of 2014 by Law No. 79 of 2019, whereby liability for non-compliance with the OSH rules set forth in the Labour Code (Law No. 7 of 2009) and complementary legislation is extended to public employers (section 16-E (1)) and the corresponding penalties are established (section 16-F). It also notes the information provided on the activities of the labour inspection services regarding OSH in the public sector from 2016 to 2021, including: (i) an increase in the number of inspection visits carried out (from 398 in 2016 to 606 in 2021); (ii) the number of infringements identified; and (iii) the number of orders issued, including orders for the suspension of work activities. The Committee notes this information, which responds to its previous comment.
Article 7 of Convention No. 155. Review of the situation regarding OSH and the working environment of the public security police. The Committee notes with regret that the Government has not provided any information on the measures taken to ensure the review of the situation regarding OSH and the working environment of the public security police. The Committee once again requests the Government to provide information on the measures taken to ensure the review, at appropriate intervals, of the situation regarding OSH and the working environment of the public security police, with a view to identifying major problems, evolving effective methods for dealing with them and priorities of action and evaluating results.
Articles 8, 16 and 20 of Convention No. 155. Laws and regulations giving effect to the national policy on OSH, responsibilities of employers and cooperation at the level of the undertaking. Further to its previous comment, the Committee notes that the OSH Law No. 102 of 2009, as amended, provides for (i) the obligation to consult workers and their representatives on measures taken by the employer to ensure OSH at the national and workplace levels (sections 8(1) and 18(1)); (ii) the employers’ responsibilities for workers’ safety and health in relation to workplaces, machinery, equipment and processes (section 15(2)(c)), chemical, physical and biological substances and agents (section 15(2)(f)), the provision of protective clothing and equipment (section 15(10)), as well as for (iii) cooperation between management and workers and their representatives in the undertaking (section 6(4)).
The Committee notes that the CGTP-IN reiterates its view that the amendments made to the OSH Law No. 102 of 2009, by Law No. 3 of 2014 weakened the protection of workers with respect to employers’ obligations on OSH. The Committee requests the Government to provide its comments in this respect.
Article 2(3) of Convention No. 187. Periodic consideration of measures that could be taken to ratify relevant OSH Conventions. Further to its previous comment, the Committee notes the Government’s indications that (i) the study on the feasibility of ratification of the Occupational Health Services Convention, 1985 (No. 161) has resumed after suspension during the COVID-19 pandemic; and (ii) further consultations with the social partners are being undertaken to update this study. The Committee requests the Government to continue to provide information on the consideration of measures that could be taken to ratify relevant OSH Conventions, including the progress made towards consideration of ratification of Convention No. 161 and the consultations held in this respect.
Article 4(3)(h) of Convention No. 187. Support mechanisms for the progressive improvement of OSH conditions in micro-enterprises, small and medium-sized enterprises and the informal economy. Further to its previous comment, the Committee notes the Government’s indications regarding the publication of tools on the ACT website to encourage small and medium-sized enterprises to assess OSH risks, and the development of OSH campaigns, including the dissemination of various information materials. The Committee requests the Government to continue to provide information on the support mechanisms established for a progressive improvement of OSH conditions in micro, small and medium-sized enterprises, as well as in the informal economy.
Article 5(1)(2) of Convention No. 187. Implementation, monitoring, evaluation and periodic review of the national OSH programme. Requirements. Further to its previous comment, the Committee notes the information provided by the Government on the results achieved under the National Occupational Health Programme 2018–20 (PNSOC 2018–20), including (i) the registration and analysis of notifications of biological risks; (ii) the issuance of licences for the practice of occupational medicine to duly trained professionals; (iii) the establishment of expert groups for the assessment of risks arising from carcinogenic agents; (iv) the provision of technical assistance for the drafting and revision of OSH legislation; (v) the development of seminars on protocols for monitoring workers’ health in relation to specific risks; and (vi) the establishment of recommendations on good OSH practices in the workplace, in close coordination with trade unions and professional associations.
The Government further indicates that the development of a model for the health surveillance of workers through the units of the National Health Service, foreseen in the PNSOC 2018–20, is pending. In this respect, the Committee notes the observations of the UGT alleging that (i) section 76 of the OSH Law No. 102 of 2009 on the obligation to carry out health surveillance of various categories of workers is not complied with in practice, and (ii) the lack of a national preventative safety and health culture is evidenced by the high rates of occupational accidents and diseases in the country. While noting that the Government does not provide information on the national OSH programme currently being implemented, the Committee requests the Government to provide information on the measures taken for the formulation, in consultation with employers’ and workers’ organizations, of subsequent national programmes in accordance with the requirements of Article 5(1) and (2). It also requests the Government to indicate how the evaluation conducted of the PNSOC 2018–20 contributes to the formulation of subsequent programmes, in particular on the progress made towards the development of a model for the surveillance of workers’ health through the units of the National Health Service.
  • Protection against specific risks

Radiation Protection Convention, 1960 (No. 115)

Article 1 of the Convention.Legislation giving effect to various provisions of the Convention. In response to its previous comment, the Committee notes that the Government indicates that Decree Law No. 222 of 2009 was repealed by Decree Law No. 108 of 2018, which establishes the legal framework for radiation protection. In this respect, the Committee notes that Decree-Law No. 108 of 2018 designates the Portuguese Environmental Authority as the competent authority responsible for ensuring a high level of radiation protection (section 12); for individual monitoring (section 74); and for training (sections 55(2)(a)(c) and 64).
With respect to the request for information on paragraph 30 of the Committee’s 2015 General Observation under this Convention, the Committee notes the information provided by the Government on (i) the dose limits set out in Decree-Law No. 108 of 2018 for occupational exposure (section 67), for pregnant and breastfeeding workers (section 69); for persons between 16 and 18 years of age (section 68); and for occupational exposure during an emergency (section 128), which are consistent with the dose limits set out in the 2015 General Observation; (ii) the provision for radiological surveillance of workplaces (sections 78 and 81); and (iii) the provision for individual dose records (sections 75 and 76).
Article 12. Medical examinations. Further to its previous comment, the Committee notes that the Government indicates that, under Decree-Law No. 108 of 2018, the health surveillance of workers exposed to ionizing radiation includes an entry examination to determine the worker’s suitability for the functions to be performed, periodic examinations to determine whether workers are still medically fit to perform their functions (section 85(4)), as well as complementary examinations when the occupational health service deems it necessary for the purpose of health protection (section 89(1)). The Committee notes this information, which responds to its previous comment.

Maximum Weight Convention, 1967 (No. 127)

The Committee notes the information provided by the Government on Article 7 of the Convention, which responds to its previous request.
Articles 3 and 5 of the Convention. Maximum weight of loads transported manually by a worker. Steps to ensure adequate training in working techniques with a view to safeguarding health and preventing accidents. In reply to its previous comment, the Committee notes that the Government indicates that adequate training must be provided to workers exposed to the risks associated with the manual handling of loads under section 282(3) of the Labour Code, section 20(1) of the OSH Law No. 102 of 2009 and section 8(2) of Decree Law No. 330 of 1993 on the minimum safety and health requirements for manual handling of loads. It further notes that under Decree Law No. 330 of 1993: (i) the employer shall use appropriate means, including mechanical equipment, to prevent the manual handling of loads by workers and, where manual handling of loads cannot be avoided, the employer shall take appropriate measures to ensure that such handling is as safe as possible (section 4); (ii) the employer shall assess the risks posed by the manual handling of loads to the safety and health of workers and take the necessary corrective measures in this regard (sections 5 and 6). The Committee notes this information, which responds to its previous comment.

Occupational Cancer Convention, 1974 (No. 139)

Article 2(2) of the Convention. Limitation of duration of exposure. Further to its previous comment, the Committee notes the Government’s indications that under Decree Law No. 301 of 2000, which regulates the protection of workers against risks related to exposure to carcinogens or mutagens at work, as amended up to 2020: (i) the employer shall ensure that the exposure of each worker to carcinogens is not continuous and is limited to what is strictly necessary; and (ii) in activities where it is no longer possible to apply additional technical preventive measures to limit exposure, in particular maintenance, the employer must consult workers and their representatives so that the necessary measures are taken to reduce workers’ exposure to a minimum and ensure their protection during the performance of these activities (section 10). The Committee requests the Government to continue to provide information on the measures taken, in consultation with workers and their representatives, to ensure that the duration of workers’ exposure to carcinogenic substances or agents is reduced to the minimum compatible with their safety and health.
Articles 3 and 5. Appropriate system of records and medical examinations necessary to evaluate exposure and supervise the state of health in relation to occupational hazards. In response to its previous comment, the Committee notes with interest the information provided by the Government on the amendment of Decree Law No. 301 of 2000 by Decree Law No. 35 of 2020, which now provides for the obligation of the occupational health service to (i) carry out an occasional medical examination of the worker in situations where exposure to a carcinogen ceases due to termination of professional activity in the undertaking, including retirement, and (ii) transfer the worker’s medical records to the corresponding physician, which allows the occupational health service to continue to monitor the worker’s health, where applicable (section 12(10)). It also notes that Technical Guide No. 2 of 2018 on “Health surveillance of workers exposed to chemical agents that are carcinogenic, mutagenic or toxic to reproduction” sets out the instructions for carrying out medical examinations after cessation of professional activity involving exposure to carcinogens (point 7.2.2). The Committee further notes the Government’s indications that under Decree Law No. 301 of 2000, employers should organise data records and keep up-to-date files on reported and confirmed cases of occupational diseases (section 16(d)) and that these records must be kept for at least 40 years after the workers’ exposure to carcinogens has ceased (section 17(1)). The Committee requests the Government to pursue its efforts to ensure the implementation in practice of section 12(10) of Decree Law No. 301 of 2000. The Committee also requests the Government to provide information on the number of cases of occupational diseases caused by exposure to carcinogenic substances or agents recorded by year and sector of economic activity.

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

Article 4(1) of the Convention. Legislation on the prevention and control of, and protection against, occupational hazards in the working environment due to air pollution. Further to its previous comment, the Committee notes the information provided by the Government on the amendments made to Law No. 37 of 2007 on the protection of citizens from involuntary exposure to tobacco smoke by Law No. 63 of 2017, in order to introduce a ban on smoking in workplaces (section 4(b)), establish the employer’s obligation to monitor the air quality of workplaces (section 20(a)), stipulate the corresponding sanctions (section 25) and the entity responsible for inspection (section 28(1)). The Committee takes note of this information.
Article 8(1) and (3). Criteria and exposure limits and regular revision of criteria. Further to its previous comment, the Committee notes the information provided by the Government on air pollution exposure limits, including various air contaminants. The Committee notes this information, which responds to its previous comment.
Article 14. Measures to promote research in the field of prevention and control of hazards. The Committee notes that the CGTP-IN reiterates that research in the field of prevention is not conducted with regard to air pollution, noise and vibration hazards. The Committee requests the Government to provide information on the measures taken or envisaged, in consideration of national conditions and resources, to promote research in the field of prevention and control of hazards in the working environment due to air pollution, noise and vibration.

Asbestos Convention, 1986 (No. 162)

The Committee notes the information provided by the Government, in response to its previous request on the measures taken to implement Article 14 of the Convention on the responsibility of manufacturers for the labelling of products containing asbestos.
Articles 1, 15 and 17 of the Convention. Scope of application and exposure to asbestos dust. Further to its previous comment, the Committee notes the information provided by the Government on the adoption of Law No. 63 of 2018 on the elimination of products containing asbestos fibres still present in buildings, installations and equipment. It notes that, under this Law: (i) the ACT, in collaboration with representative workers’ organizations and employers’ associations, shall draw up a plan for the identification of enterprises whose buildings, installations and equipment contain asbestos-containing materials (section 3(1)); and (ii) the removal of products containing asbestos fibres in buildings, installations and equipment shall comply with the established safety standards (section 4).
It also notes the information provided by the Government on the implementation of the asbestos removal programme in public and private institutions (section 174 of Law No. 24-D of 2022); the training provided regarding construction and demolition works containing asbestos; the joint inspection actions carried out on asbestos removal works; and the awareness-raising activities developed on asbestos removal processes. Noting an absence of information in response to its previous request, the Committee once again requests the Government to provide information on the application in law and in practice of the Convention in relation to workers who are exposed to asbestos in the workplace, even if they do not work directly with the substance.
Article 6(3). Consultation with the health services in preparing emergency procedures. Further to its previous comment, the Committee notes that the Government indicates that under the OSH Law No. 102 of 2009, the employer shall: (i) consult the workers’ representatives for safety and health on the measures to be taken in emergency situations (section 18(1)(b)); and (ii) prepare internal emergency plans, including specific plans for firefighting, evacuation of premises and first aid, in cooperation with the OSH services (sections 73(1) and 73b(1)(d)). It also notes the prevention and control measures in case of accidents, incidents and emergencies due to exposure to asbestos provided for in Ordinance No. 40 of 2014 (section 11(4) and Annex), as well as the indications on emergency measures and requirements for consultation with workers’ representatives contained in the Technical Guide No. 2 of 2018 on “Health surveillance of workers exposed to chemical agents that are carcinogenic, mutagenic or toxic to reproduction”. The Committee notes this information, which responds to its previous comment.
Articles 20 and 21. Occasional exposure to asbestos. Measurement of the concentration of airborne asbestos dust in workplaces and medical examinations. Further to its previous comment, the Committee notes that the Government indicates that under Decree Law No. 301 of 2000, as amended by Decree Law No. 35 of 2020, employers are required to assess the risk to the safety and health of workers in activities that may present a risk of exposure to carcinogens, including the determination of the concentration of the carcinogen or mutagen in the workplace atmosphere; and that this risk assessment must be repeated every three months when changes in working conditions occur, the occupational exposure limit value is exceeded or the result of health surveillance justifies the need for a new assessment (section 4(1)). Employers are also required to ensure the health surveillance of workers for whom the result of the assessment reveals the existence of risks (section 12(1)). The Committee notes this information, which responds to its previous comment.
Article 21(5). Notification of occupational diseases caused by asbestos. Further to its previous comments, the Committee notes the information provided by the Government on the system of notification of occupational diseases caused by asbestos established under Law No. 98 of 2009 regulating the system of compensation for occupational accidents and diseases, as amended by Law No. 83 of 2021.
It notes that under this Law, doctors shall report all clinical cases in which an occupational disease is presumed to exist to the department responsible for protection against occupational risks within eight days of the date of diagnosis or presumption of the existence of an occupational disease (section 142(1) and (3)), and that the competent service for protection against occupational risks must notify confirmed cases of occupational diseases to the employer and the competent authorities (section 143(1). The Government adds that by virtue of section 4(5) of the General Labour Law in Public Functions of 2014, the system of notification of occupational diseases set out in sections 142 and 143 of Law No. 98 of 2009 is applicable to workers in the public sector. The Committee further notes that the CGTP-IN reiterates its observations with regard to the under-reporting of occupational diseases related to asbestos exposure. The Committee requests the Government to provide its comments in this respect. Moreover, with reference to its comments on the application of Article 11(e) of the Occupational Safety and Health Convention, 1981 (No. 155), Article 3 of its Protocol of 2002 and 4(3)(f) of Convention No.187, the Committee requests the Government to continue to provide information on the measures taken to ensure the functioning of the system of notification of occupational diseases caused by asbestos.
  • Protection in specific branches of activity

Underground Work (Women) Convention, 1935 (No. 45)

The Committee recalls that the ILO Governing Body (at its 334th Session, October–November 2018) decided, on the recommendation of the Standards Review Mechanism Tripartite Working Group, to confirm the classification of the Convention as outdated, and placed an item on the agenda of the 112th Session of the International Labour Conference (2024) concerning its abrogation.

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

The Committee notes the information provided by the Government which responds to its previous requests concerning Articles 7(i) and 8 on evacuation of workers and emergency response plans, Article 10(c) on system whereby the names and location of persons underground can be known, Article13(1)(e) on the right of workers to remove themselves from any dangerous location, Article 13(1)(f) on the right of workers to collectively select safety and health representatives and Article 13(2)(b), (c), (e) and (f) on rights of safety and health representatives in mines.
Articles 5(1) and 16(b). Competent authority responsible for monitoring and regulating the various aspects of safety and health in mines. Further to its previous comment, the Committee notes that the Government indicates that (i) by virtue of Decree Law No. 30 of 2021, the ACT now intervenes in the approval of health and safety plans for mining concessions (section 29(1)(n)); (ii) under the General Regulations on Safety and Hygiene at Work in Mines and Quarries, Decree Law No. 162 of 1990, both the DGEG and the ACT may demand the stoppage of work activities, if necessary; and the resumption of work requires the authorization of both authorities (section 181); and (iii) the DGEG and the ACT continue to develop actions under the cooperation agreement between these entities signed in 2010. The Committee requests the Government to continue to provide information on the coordination and cooperation activities carried out between the DGEG and the ACT with regard to the regulation and control of the various aspects of safety and health in mines, including the actions undertaken in the framework of the cooperation agreement signed between the two authorities.
Article 7(c). Measures to maintain ground stability. Further to its previous comment, the Committee notes that the Government indicates that (i) measures for ground stability and safe access for workers are included in the safety and health plan for mining and quarrying concessions; (ii) whenever situations considered dangerous occur, the DGEG requires the implementation of measures to restore safe conditions, including the partial or total suspension of work, and/or the presentation of studies proving the stability and safety of the ground; (iii) the DGEG has intensified inspection actions to ensure ground stability; and (iv) under the Resolution of the Council of Ministers No. 50 of 2019, approving the intervention plan for quarries in critical situations, the quarries that presented risk situations have been classified into three categories of high, moderate and reduced, and measures have been established to restore safety conditions. The Government adds that by the end of 2021, 94 per cent of the quarries had complied with the measures prescribed and that measures to ensure safety conditions in the remaining 6 per cent of quarries had been implemented directly under the coordination and monitoring of the DGEG. While noting the information provided by the Government on the measures taken to ensure ground stability, the Committee once again requests the Government to indicate the measures adopted or envisaged to ensure that employers have a legal obligation to take steps to maintain ground stability in areas to which persons have access in the context of their work.
Article 10(a). Training and instruction of miners. Further to its previous comment, the Committee notes the Government’s indications that (i) in accordance with sections 15(4) and (5), 20 and 79(b) of OSH Law No. 102 of 2009, adequate OSH training is provided to workers taking into account high-risk activities such as mining, including the handling of explosive substances and cables in extraction and washing shafts; (ii) business associations in the mining sector provide regular OSH training sessions and organize awareness sessions on the importance of safeguarding safety, hygiene and health in mines; and (iii) this training is provided to workers of mining companies as part of their annual training programs, at no cost. The Committee requests the Government to continue to provide information on the measures taken to ensure that employers in the mining sector provide, at no cost to workers, training and instructions on safety and health in mines and on the work assigned to workers.

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

The Committee notes the information provided by the Government in response to its previous requests on the measures to give effect to Article 13(2) on preventive and protective measures for the use of chemicals and the management of chemical waste, Article 16, on young workers and Article 19 on welfare and accommodation facilities.
Article 4(1) and (2)(c) of the Convention. Coherent national policy on safety and health in agriculture. Inter-sectoral coordination among relevant authorities and bodies for the agricultural sector. With reference to its previous comment, the Committee notes that the Government indicates that the national OSH policy, based mainly on the Labour Code and the OSH Law No. 102 of 2009, has as its main objective the prevention of occupational accidents, through the identification, assessment and control of occupational risks associated with all work-related aspects (section 15(2) of the OSH Law No. 102 of 2009), including the risks posed by physical, chemical and biological agents present in the material components of work in the agricultural sector.
In this respect, the Government indicates that within the framework of the National OSH Strategy 2015-2020, the following results were achieved: (i) the establishment of forums in the agricultural sector to analyse accidents, identify specific needs and adopt specific measures targeting this sector; (ii) the provision of tools to support OSH risk assessments in agriculture; (iii) the development of OSH training on protection against specific risks in agriculture; and (iv) the development and dissemination of information on employers’ OSH obligations in the agricultural and forestry sector and occupational risks in the use of tractors and chainsaws, including the practical guide on Occupational Health and Safety in the Agroforestry Sector.
Concerning intersectoral coordination between the competent authorities and bodies for the agricultural sector, the Government indicates that the Ministries of Labour and Health define and coordinate OSH policies in agriculture and ensure the application of legislation and promotional measures through the services of the State Administration, including the ACT, thus guaranteeing an integrated and coherent vision. The Government adds that the ACT applies a sectoral methodology that has allowed the identification and development of strategies to integrate occupational risk prevention in the agricultural sector and the promotion of campaigns to improve working conditions with the participation of the social partners.
The Committee further notes the observations of UGT, indicating that during the period from 2020 to 2022, 54 workers have lost their lives in the agricultural sector. The Committee requests the Government to strengthen its efforts towards the prevention of accidents and injury to health arising out of, linked with, or occurring in the course of work, through the elimination, minimization or control of risks in the agricultural working environment. It requests the Government to continue to provide information on the implementation and periodic review, in consultation with the representative organizations of employers and workers concerned, of a coherent national policy on safety and health in agriculture.
Article 5. Labour inspection services in agriculture. With reference to its previous comment, the Committee notes that the Government indicates that (i) between 2014 and 2021, labour inspectors received annual training on OSH rules in agriculture, temporary work and undeclared work; (ii) the number of labour inspectors has increased from 343 in 2013 to 457 in 2022; and (iii) the ACT information system and vehicle fleet have been renewed. The Committee refers to its comment under the Labour Inspection (Agriculture) Convention, 1969 (No. 129) on Articles 6(1)(a) and (b) and 21 concerning inspection activities in the agricultural sector.
Article 7(b). Adequate and appropriate training and comprehensible instructions on safety and health. The Committee notes the observations of the CGTP-IN alleging that migrant workers in the agricultural sector do not receive training taking into account their linguistic differences. The Committee requests the Government to indicate how it ensures that migrant workers in agriculture receive adequate and appropriate training and comprehensible instructions on safety and health and any necessary guidance or supervision, including information on the hazards and risks associated with their work and the action to be taken for their protection, taking into account their level of education and differences in language.
Article 12(c). Suitable system for the safe collection, recycling and disposal of chemical waste. Further to its previous comment, the Committee notes the information provided by the Government on the adoption of Decree Law No. 102-D of 2020 establishing the general waste management regime. In this respect, it notes the measures stipulated for the prevention and management of hazardous waste contained in sections 26(1), 57 and 58 of this Decree Law. The Committee notes this information, which responds to its previous comment.
Article 15. Construction, maintenance and repairing of agricultural installations. The Committee once again requests the Government to indicate the national laws, regulations and safety and health requirements that regulate the construction, maintenance and repairing of agricultural installations.

Observation (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous comment on Convention No. 155 and its Protocol of 2002

Previous comment on Convention No. 176

Previous comment on Convention No. 187

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on occupational safety and health (OSH), the Committee considers it appropriate to examine Convention No. 155 and its 2002 Protocol (OSH), 176 (safety and health in mines), and 187 (promotional framework for OSH) together.
The Committee notes the observations of the General Confederation of Portuguese Workers - National Trade Unions (CGTP-IN), the General Workers’ Union (UGT) and the observations of Confederation of Portuguese Business (CIP) on Conventions Nos 155, 176 and 187, transmitted with the Government’s report.
The Committee notes the decision of the tripartite Committee set up to examine the representation submitted under article 24 of the ILO Constitution by the Trade Union of Labour Inspectors (SIT) alleging non-observance by Portugal of the Labour Inspection Convention, 1947 (No. 81), the Labour Inspection (Agriculture) Convention, 1969 (No. 129), and the Occupational Safety and Health Convention, 1981 (No. 155).

A. General provisions

Occupational Safety and Health Convention, 1981 (No. 155), Protocol of 2002 to the Occupational Safety and Health Convention, 1981, and Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187)

Article 4(1) of Convention No. 155 and Article 3 of Convention No. 187. National policy on OSH and the working environment. Further to its previous comment, the Committee notes the information provided by the Government on the results achieved under the National Strategy for Safety and Health at Work 2015-2020 (ENSST 2015–2020), including: (i) the creation of forums in the construction, manufacturing and agriculture sectors to analyse accidents, identify specific needs and adopt concrete measures in these sectors; (ii) the provision of tools to support OSH risk assessments; (iii) the development of OSH training on protection against specific risks and in certain branches of economic activity; (iv) the approval of the OSH action plan for the public administration by Council of Ministers Resolution No. 28 of 2019; and (v) the development of OSH campaigns, including the dissemination of information on OSH legislation and best practices.
It also notes the observations submitted by the CIP, the UGT and the CGTP-IN on the evaluation of the ENSST 2015–2020, alleging that the objective of reducing the total number of occupational accidents and diseases was not achieved during the period under review. The UGT adds that there has been a significant increase in the number of reported occupational diseases, particularly diseases caused by physical agents, from 3,565 in 2015 to 12,571 in 2020. The UGT further indicates that the preparation of a new national strategy for safety and health from 2022–27 was suspended due to a lack of political will. The Committee requests the Government to strengthen its effort to prevent occupational diseases and to provide information on the reasons for the increase of diseases due to physical agents. It also requests the Government to provide information on the measures taken to ensure the formulation, implementation and periodic review, in consultation with the most representative organizations of employers and workers, of subsequent OSH strategies, including the measures taken to prevent occupational accidents and diseases, by minimizing, so far as is reasonably practicable, the causes of hazards inherent in the working environment, the interim evaluations of the strategies and the results achieved in this respect.
Article 11(e) of Convention No. 155, Article 3 of the Protocol and Article 4(3)(f) of Convention No. 187. Measures to improve the reporting of occupational accidents and diseases and mechanisms for the collection and analysis of data on occupational injuries and diseases. Further to its previous comment, the Committee notes the information provided by the Government on: (i) the collection of information on occupational diseases through the compulsory occupational disease reports; and (ii) the adoption of Decree Law No. 106 of 2017, which regulates the collection, publication and dissemination of official statistical information on occupational accidents. Pursuant to Decree Law No. 106 of 2017, employers are required to report occupational accidents to insurers, which in turn shall send this information to the government department responsible for labour statistics, which shall ensure the production and dissemination of official statistics on accidents at work (sections 3 and 6).
The Committee further notes the observations of the UGT indicating that there continue to be unsustainable levels of underreporting of occupational diseases and that the statistical sources of occupational accidents are outdated. The Committee notes that in their observations, the CGTP-IN and the UGT allege that the level of underreporting of occupational diseases in the country is very high and, as a result, many cases of occupational diseases are not diagnosed as such, but as natural diseases. The CIP also indicates that there is a need to improve the national systems for reporting occupational diseases and for collecting statistical data. The Committee requests the Government to pursue its efforts to improve the systems for the reporting, collection and analysis of occupational accidents and diseases. It also once again requests the Government to indicate how effect is given to Article 3(a)(ii) of the Protocol of 2002 concerning the responsibility of employers to provide appropriate information to workers and their representatives on the systems for recording occupational accidents and diseases. With respect to the reporting of occupational diseases, the Committee refers to its comments addressed directly to the Government regarding Articles 3 and 5 of the Occupational Cancer Convention, 1974 (No. 139), and Article 21(5) of the Asbestos Convention, 1986 (No. 162).

B. Protection in specific branches of activity

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

Article 3 of the Convention. Policy on safety and health in mines. With reference to its previous comment, the Committee notes that the Government indicates that: (i) the Directorate General of Energy and Geology (DGEG), in cooperation with other competent authorities, including the ACT, initiated the revision of Decree Law No. 162 of 1990, establishing the General Regulations on Safety and Health at Work in Mines and Quarries; and (ii) the DGEG periodically sends circulars to mine managers to reassess possible risk situations in mines.
The Committee also notes the observations of the CGTP-IN and UGT alleging that the extractive industries sector has one of the highest incidence rates of occupational accidents in the country (with an incidence rate of 18.2 accidents per 100,000 workers) and that despite inadequate health and safety conditions in the mines, companies do not invest in the protection of workers. The UGT further indicates that in the period 2020–22, nine workers have lost their lives and 85 cases of occupational diseases have been recorded in the mining sector. The Committee requests the Government to take measures to strengthen the implementation of the Convention with a view to ensuring safety and health in mining. It once again requests the Government to provide information on the formulation, implementation and periodic review, in consultation with the most representative organizations of employers and workers concerned, of a coherent policy on safety and health in mines, including the measures taken to address the incidence rate of occupational accidents and cases of occupational diseases in the sector.
The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2017, published 107th ILC session (2018)

In order to provide a comprehensive view of the issues relating to the application of ratified occupational safety and health (OSH) Conventions, the Committee considers it appropriate to examine Conventions Nos 155 (occupational safety and health and the working environment), its 2002 Protocol, and 162 (asbestos) together.
The Committee notes the observations made by the Confederation of Portuguese Industry (CIP), the General Confederation of Portuguese Workers – National Trade Unions (CGTP–IN), and the General Workers’ Union (UGT), received with the Government’s reports. The Committee also notes the observations made by the Trade Union Association of Civil Servants of the Authority for Food and Economic Security (ASF–ASAE), received on 5 January 2016 and 19 April 2017, concerning the working conditions and conditions of service of market surveillance and food inspectors.

A. General provisions

Convention No. 155 and its Protocol of 2002

Follow-up to the recommendations of the tripartite committee (representation made under article 24 of the Constitution of the ILO)

The Committee notes the report of the tripartite committee set up to examine the representation alleging non-observance by Portugal of the Labour Inspection Convention, 1947 (No. 81), the Labour Inspection (Agriculture) Convention, 1969 (No. 129), and the Occupational Safety and Health Convention, 1981 (No. 155), made under article 24 of the ILO Constitution by the Union of Labour Inspectors (SIT), adopted by the Governing Body at its 324th Session (June 2015). The Governing Body entrusted the Committee with following up on the effect given to the conclusions in that report.
Articles 4 and 9 of the Convention. Adequate inspection strategy as a part of the national occupational safety and health (OSH) policy. The Committee notes that the tripartite committee encouraged the Government to, in the context of the national OSH policy, follow up on the specific issues raised by the SIT, and identified in the Working Condition Authority (ACT) strategy, in collaboration with the social partners. The Committee requests the Government, in line with the tripartite committee, to provide information on the measures taken to identify, in consultation with the social partners, the needs for the effective enforcement of the legal provisions concerning OSH, and to determine priorities for action.

Other issues

Article 1(1). Application of the Convention. Workers in agriculture. The Committee notes the information provided by the Government in reply to its previous request concerning the legislation giving effect to the Convention with regard to agricultural workers. In this respect, the Committee refers the Government to its comments on the application of the Safety and Health in Agriculture Convention, 2001 (No. 184).
Workers in the public sector. The Committee notes the observations made by the CGTP–IN and the UGT under Convention Nos 81 and 129 that there are insufficient controls by the labour inspectorate concerning OSH conditions in the public sector. The Committee requests the Government to provide its comments to these observations.
Articles 4(1) and 11 (d) and (e). National policy on OSH, including with regard to occupational accidents and diseases and their recording and notification. The Committee notes that the Government, in reply to the Committee’s previous request, provides information on the interim evaluations of the national strategy for OSH (2008–12), and indicates that the final evaluation of the national strategy for OSH (2008–12) was being finalized by the ACT with the contribution of the social partners, at the time of the submission of the Government’s report. In that respect, the Committee notes the adoption of a new strategy for OSH (2015–20), with three review stages: in 2016, 2018 and 2022. The Committee requests the Government to provide information on the interim and final evaluation of the strategy for OSH (2015–20).
Article 7 of the Convention. In its previous comment, the Committee noted that the Governing Body at its 319th Session (October 2013) approved the report of the tripartite committee set up to examine the representation made by the Occupational Association of Professional Police Officers (ASPP/PSP) under article 24 of the ILO Constitution, alleging non-observance by Portugal of Convention No. 155 (GB.319/INS/14/8) and entrusted the Committee with following up on the effect given to the conclusions in that report.
In this respect, the Committee requested the Government to provide information on the measures taken, in consultation with the social partners to ensure the effective application of the Convention with regard to the Public Security Police (PSP), in law and in practice, in particular Articles 4, 8, 9, 16, 19(c) and (d), and 20. This should include measures to ensure the review of the situation regarding occupational safety and health and the working environment of the PSP, taking into account their specificities, in accordance with Article 7 of the Convention, with a view to identifying major problems, developing effective methods for dealing with them as well as priorities of action, and subsequent evaluation. The Committee notes that the Government has not yet provided any reply in this respect. The Committee therefore once again requests the Government to provide the information requested.
Articles 8, 16 and 20. Laws and regulations giving effect to the national policy on OSH, responsibilities of employers and cooperation at the level of the undertaking. The Committee notes the observations made by the UGT concerning certain changes through the amendment of Law No. 102/2009 on the legal framework for the promotion of OSH by Law No. 3/2014, including the reduced frequency of compulsory consultations of workers or their representatives. The Committee also notes that the CGTP–IN emphasizes that recent amendments to the national legislation, which eliminate certain obligations of employers in the area of OSH, have weakened the protection of workers. The Committee requests the Government to provide its comments in this respect.
Article 11(d) and (e) of the Convention and Articles 2–5 of the Protocol. Measures to improve the reporting of occupational accidents and diseases. Concerning the national strategy for OSH (2008–12), the Committee notes the observations made by the UGT that several important measures in that strategy were not satisfactorily implemented, including the restructuring of the system for the collection of statistical data on occupational accidents and diseases, or the adoption of effective measures to address the under-reporting of occupational diseases. On the other hand, the Committee notes the Government’s reference to a number of measures taken aimed at improving the reporting of occupational diseases, including: (i) the cooperation between the ACT and public health structures to discuss legislative changes with a view to the efficient diagnosis of occupational diseases, and (ii) the enactment of Ordinance No. 112/2014 on the provision of primary occupational health care, which enabled the creation of functional health-care units, which may provide medical consultations to independent workers and workers in micro-enterprises.
In this respect, the Committee also notes the detailed information provided by the Government on the effect given in the national legislation to the Articles of the Protocol. The Committee notes that the OSH strategy for 2015–20 once again addresses the under-reporting of occupational diseases and the improvement of the collection of statistics in general. The Committee requests the Government to provide information on the specific measures taken to address the under-reporting of occupational diseases, and on any steps taken to improve the collection of occupational accidents. Noting the information provided by the Government on the legislative provisions giving effect to Article 3(b) of the 2002 Protocol, the Committee requests the Government to specify how effect is given to the specific requirement in Article 3(a)(ii) concerning the responsibility of employers to provide appropriate information to workers and their representatives concerning the recording system for occupational accidents and occupational diseases.

B. Protection against specific risks

Convention No. 162

Articles 1, 15 and 17. Scope of application and exposure to asbestos dust. The Committee previously noted the broad application of the Convention in relation to all activities involving the exposure of workers to asbestos in the course of their work and referred to the responsibilities of employers set out in Article 15(3) and (4) of the Convention. In this respect, the Committee notes the reiterated observations made by the CGTP–IN and the UGT that workers and visitors in public buildings are exposed to asbestos fibres, despite the fact that they do not handle asbestos. The UGT indicates that while 2,015 public buildings have been found to contain asbestos, no significant progress has yet been made with its removal. The Committee notes that the UGT welcomes the Government’s plans to conclude the removal of asbestos from all public buildings between 2018 and 2020 and its allocation of a dedicated budget for this purpose, but that the UGT also emphasizes the need to deploy efforts to remove asbestos from private workplaces. Particularly, the UGT indicates that over €300 million has been allocated in the context of the National Reform Programme towards the removal of asbestos from public buildings. The Committee once again requests the Government to provide information regarding the implementation in law and practice of the Convention in relation to workers who are exposed to asbestos in workplaces even though they may not be working directly with the substance. In addition, noting the Government’s plans to undertake major works to remove asbestos from public buildings, the Committee requests the Government to provide information on the measures taken to ensure that this removal work is undertaken in conformity with the protections outlined in Article 17, and to provide information on measures taken or envisaged with respect to other buildings and structures.
Article 6(3). Consultation with the health services in preparing emergency procedures. The Committee notes that the Government has not provided a reply to its previous request under this Article. The Committee therefore once again requests the Government to provide further information on the preparation of emergency procedures for work involving exposure to asbestos, as provided for in section 73 of Act No. 102/2009, as amended by Law No. 3/2014 on the legal framework for the promotion of OSH and to indicate whether such procedures were developed in consultation with the concerned workers’ representatives.
Article 14. Responsibility of manufacturers for the labelling of products containing asbestos. The Committee previously noted that Legislative Decree No. 101/2005 introduces regulations regarding the labelling of asbestos, but does not specify details of the language used on the labels nor determine the responsibility for labelling. The Committee notes that the Government has not provided the requested information on the measures taken in law and practice to ensure the responsibility for labelling of producers and suppliers of asbestos and manufacturers and suppliers of products containing asbestos. The Committee recalls the guidance in Paragraph 20 of the Asbestos Recommendation, 1986 (No. 172), on labelling requirements for producers and suppliers of asbestos and manufacturers and suppliers of products containing asbestos in that respect. The Committee once again requests the Government to provide information on the measures taken in law and practice to ensure that producers and suppliers of asbestos and manufacturers and suppliers of products containing asbestos are made responsible for adequate labelling of the container and, where appropriate, the products.
Articles 20 and 21. Occasional exposure to asbestos. Measurement of the concentration of airborne asbestos dust in workplaces and medical examinations. The Committee previously noted that while Legislative Decree No. 266/2007, on the protection of workers from health risks arising from exposure to asbestos in the course of work, applies to all sectors of activity, the Decree allows for the exemption of workers performing specific tasks, during which they are sporadically exposed to a concentration of airborne asbestos fibres not exceeding a certain maximum limit value. The Committee notes that the Government has not provided the requested information on the definition of the concept of “sporadic exposure to asbestos” under the national legislation. However, it notes the observations made by the CIP concerning the ongoing work relating to the Asbestos Technical Guidebook for the implementation of Decree No. 266/2007, pursuant to section 26 of the Decree. It notes in this respect that section 26 also refers to the drawing up of technical guidelines particularly concerning the definition of the concept of sporadic exposure of low intensity. The Committee once again requests the Government to indicate the measures taken or envisaged to ensure: that employers measure the concentration of airborne asbestos dust in the workplace and monitor the exposure of workers to asbestos; and that workers occasionally exposed to asbestos are provided with medical examinations, in line with Article 21(1) of the Convention. It requests the Government to provide information on any technical guidelines developed concerning the definition of the concept of sporadic exposure of low intensity to asbestos.

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous comments which read as follows:
Repetition
Article 1(1) of the Convention. Scope of application: agricultural sector. In its previous comments, the Committee noted the information provided by the Government that, pursuant to Council of Ministers Resolution No. 105/2004, the review of the occupational safety and health legislation applicable to the agricultural sector was to be completed by the end of October 2004. The Committee notes that the Government has not provided information concerning the legislation. Noting that, according to the Government’s report, the occupational safety and health legislation is applicable to all workers, thereby ensuring the application of the Convention to agricultural workers, the Committee requests the Government to provide information on the legislation which gives effect to the Convention with regard to agricultural workers.
Application of the Convention in practice. The Committee notes the statistics provided by the Government, the judicial decisions concerning occupational accidents and the 2009 Operational Programme of the authority for working conditions. The Committee requests the Government to continue providing information on the application of the Convention in practice and to include summaries of the judicial decisions communicated, indicating, where possible, the Articles of the Convention relating to the decisions communicated.
[The Government is asked to reply in detail to the present comments in 2015.]

Observation (CEACR) - adopted 2014, published 104th ILC session (2015)

Follow-up to the recommendations of the tripartite committee (representation made under article 24 of the Constitution of the ILO)

The Committee notes that the Governing Body at its 319th Session, in October 2013, approved the report of the tripartite committee set up to examine the representation made by the Occupational Association of Professional Police Officers (ASPP/PSP) under article 24 of the ILO Constitution, alleging non-observance by Portugal of the Occupational Safety and Health Convention, 1981 (No. 155) (GB.319/INS/14/8). The Governing Body entrusted the Committee with following up on effect given to the conclusions of the report with respect to the application of Convention No. 155.
The Committee therefore requests the Government to provide information on the measures taken, in consultation with the social partners, to ensure the effective application of Convention No. 155 with regard to the Public Security Police (PSP), in law and in practice, in particular Articles 4, 8, 9, 16, 19(c) and (d), and 20. This should include measures to ensure the review of the situation regarding the occupational safety and health and the working environment of the PSP, taking into account their specificities, in accordance with Article 7 of Convention No. 155, with a view to identifying major problems, evolving effective methods for dealing with them and priorities of action, and evaluating results.

Representation made under article 24 of the Constitution of the ILO by the Union of Labour Inspectors (SIT)

The Committee also notes that a representation made under article 24 of the Constitution of the ILO was presented to the Governing Body by the Union of Labour Inspectors (SIT) alleging non-observance by Portugal of the Labour Inspection Convention, 1947 (No. 81), the Labour Inspection (Agriculture) Convention, 1969 (No. 129), and the Occupational Safety and Health Convention, 1981 (No. 155). At its 319th Session (October 2013), the Governing Body decided that the representation was receivable and appointed a tripartite committee to examine it (GB.319/INS/15/6). The representation is currently under examination.

Other matters relating to the application of the Convention

The Committee further notes the joint observations made by the International Organisation of Employers (IOE) and the Confederation of Portuguese Industry (CIP) on the application of the Convention, received on 1 September 2014, according to which Legislative Decree No. 126-C/2011 disestablished the National Council on Occupational Safety and Health, which was responsible for the evaluation of the National Occupational Safety and Health Strategy, and established the National Council for Solidarity, Social Insurance, Family, Rehabilitation and Volunteering policies. In this regard, the CIP highlights that it asked the Government to provide details on this new Council, namely with regard to its functions and responsibilities. The Committee requests the Government to provide its comments in this respect.
The Committee notes that the Government’s report has not been received. It must therefore repeat its previous comments.
The Committee notes the National Occupational Safety and Health Strategy (SST) for the period 2008–12, which defines two key priorities: the development of coherent and effective public policies and the promotion of occupational safety and health (OSH). The strategy also sets the following ten objectives: (1) develop and strengthen a culture of prevention in accordance with the provisions of the Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187); (2) improve the information systems and create a single model for the monitoring of occupational accidents; (3) include occupational safety and health systems in education; (4) boost the national occupational hazard prevention system; (5) improve the coordination of the competent public services; (6) enforce, improve and simplify the specific occupational safety and health standards; (7) implement the organizational model of the authority responsible for working conditions which brings together the promotion of occupational safety and health and labour inspection; (8) promote the application of the occupational safety and health legislation, in particular small and medium-sized enterprises; (9) improve occupational safety and health services; and (10) strengthen the role of the social partners in improving occupational safety and health conditions. Noting that objective 6 of the strategy includes the intention to ratify the Safety and Health in Construction Convention, 1988 (No. 167), the Safety and Health in Agriculture Convention, 2001 (No. 184), as well as the Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187), the Committee refers to the plan of action to achieve widespread ratification and effective implementation of the occupational safety and health instruments (Convention No. 155, its 2002 Protocol and Convention No. 187), adopted by the Governing Body in March 2010, and draws the Government’s attention to the possibility of requesting technical assistance from the Office in the context of the plan of action in order to achieve these objectives in the best possible conditions. Noting also that the strategy provides for an interim assessment as well as a final assessment of the implementation of the strategy, the Committee requests the Government to provide a copy of these assessments once finalized.
Article 4(1) of the Convention. National policy on occupational safety and health. The Committee notes the comments of the General Workers Union (UGT) attached to the Government’s report, as well as the Government’s reply. According to the UGT, most of the agreements concluded with the social partners, and included in the national action plan on prevention adopted in 2001, have not been implemented. The UGT hopes that the national occupational safety and health strategy will be a critical instrument that will lead to a thorough reworking of the OSH framework, which it regards as lacking. However, the UGT maintains that gaps and shortcomings persist and that the National Health Service is failing to fulfil its responsibilities to protect and monitor the health of workers. Furthermore, according to the UGT, although Portugal has a system of statistics on occupational accidents and diseases, the data are not up to date and are not reliable. For example, in the case of occupational accidents, there are several statistical sources but none are up to date. With regard to occupational diseases, the UGT indicates that the number of cases reported is lower than the reality. According to the Government, the alleged failings in the National Health Service were due to the lack of occupational physicians but this problem has now been solved by Decree No. 176/2009 establishing a degree course in occupational medicine. With regard to the statistics, it indicates that the Portuguese Insurance Institute (ISP) is responsible for compiling, processing and publishing statistics. The Government indicates that the type of data collected and points out that the statistics compiled are available on the ISP’s website (www.isp.pt). With regard to occupational diseases, the Government indicates that cases are published in an annual report on occupational diseases. With regard to the allegations made concerning the inadequacy of the statistics especially in relation to under-reporting, the Government indicates that this is a wider problem which requires the coordination of several bodies, such as the labour inspectorate, the occupational safety and health services within enterprises and the National Health Service. The Government also indicates that some physicians are not aware of the obligation to report cases. It indicates that a project to systematize statistics is being considered and that the country is participating in a European project on statistics of occupational diseases. Noting the matters raised by the UGT and the efforts made to overcome them reported by the Government, the Committee recalls that, under Article 4 of the Convention, the Government, in consultation with the social partners, should formulate, implement and periodically review its national policy on occupational safety and health (see also the General Survey of 2009 on occupational health and safety, paragraph 55). Regular review is a crucial step in ensuring that the effectiveness of implementation is assessed and areas for future improvement are identified. The Committee notes that the National Occupational Safety and Health Strategy for the period 2010–12 provides for an interim assessment as well as a final assessment, which fulfils the requirements of review contained in Article 4. The Committee therefore requests the Government to review, in consultation with the social partners, the matters raised by the UGT (especially the failure of the National Health Service to monitor the health of workers, failure to update statistics and reporting failures) in the context of the interim assessment of the strategy, to take all further steps that are necessary to facilitate the implementation of its national policy and to provide information in this regard.
The Committee is raising other matters in a request addressed directly to the Government.
The Committee hopes that the Government will make every effort to take the necessary action in the near future.
[The Government is asked to reply in detail to the present comments in 2015.]

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 1(1) of the Convention. Scope of application: agricultural sector. In its previous comments, the Committee noted the information provided by the Government that, pursuant to Council of Ministers Resolution No. 105/2004, the review of the occupational safety and health legislation applicable to the agricultural sector was to be completed by the end of October 2004. The Committee notes that the Government has not provided information concerning the legislation. Noting with interest that, according to the Government’s report, the occupational safety and health legislation is applicable to all workers, thereby ensuring the application of the Convention to agricultural workers, the Committee requests the Government to provide information on the legislation which gives effect to the Convention with regard to agricultural workers. Referring to its observation, the Committee requests the Government to continue providing information on any developments relating to its stated intention to ratify the Safety and Health in Agriculture Convention, 2001 (No. 184).

Part V of the report form. Application in practice. The Committee notes the statistics provided by the Government, the judicial decisions concerning occupational accidents and the 2009 Operational Programme of the authority for working conditions. The Committee requests the Government to continue providing information on the application of the Convention in practice and to include summaries of the judicial decisions communicated, indicating, where possible, the Articles of the Convention relating to the decisions communicated.

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

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The Committee notes with satisfaction the National Occupational Safety and Health Strategy (SST) for the period 2008–12, which defines two key priorities: the development of coherent and effective public policies and the promotion of occupational safety and health (OSH). The strategy also sets the following ten objectives: (1) develop and strengthen a culture of prevention in accordance with the provisions of the Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187); (2) improve the information systems and create a single model for the monitoring of occupational accidents; (3) include occupational safety and health systems in education; (4) boost the national occupational hazard prevention system; (5) improve the coordination of the competent public services; (6) enforce, improve and simplify the specific occupational safety and health standards; (7) implement the organizational model of the authority responsible for working conditions which brings together the promotion of occupational safety and health and labour inspection; (8) promote the application of the occupational safety and health legislation, in particular small and medium-sized enterprises; (9) improve occupational safety and health services; and (10) strengthen the role of the social partners in improving occupational safety and health conditions. Noting with interest that objective 6 of the strategy includes the intention to ratify the Safety and Health in Construction Convention, 1988 (No. 167), the Safety and Health in Agriculture Convention, 2001 (No. 184), as well as the Promotional Framework for Occupational Safety and Health Convention, 2006 (No. 187), the Committee refers to the plan of action to achieve widespread ratification and effective implementation of the occupational safety and health instruments (Convention No. 155, its 2002 Protocol and Convention No. 187), adopted by the Governing Body in March 2010, and draws the Government’s attention to the possibility of requesting technical assistance from the Office in the context of the plan of action in order to achieve these objectives in the best possible conditions. Noting also that the strategy provides for an interim assessment as well as a final assessment of the implementation of the strategy, the Committee requests the Government to provide a copy of these assessments once finalized.

Article 4(1) of the Convention. National policy on occupational safety and health. The Committee notes the comments of the General Workers Union (UGT) attached to the Government’s report, as well as the Government’s reply. According to the UGT, most of the agreements concluded with the social partners, and included in the national action plan on prevention adopted in 2001, have not been implemented. The UGT hopes that the national occupational safety and health strategy will be a critical instrument that will lead to a thorough reworking of the OSH framework, which it regards as lacking. However, the UGT maintains that gaps and shortcomings persist and that the National Health Service is failing to fulfil its responsibilities to protect and monitor the health of workers. Furthermore, according to the UGT, although Portugal has a system of statistics on occupational accidents and diseases, the data are not up to date and are not reliable. For example, in the case of occupational accidents, there are several statistical sources but none are up to date. With regard to occupational diseases, the UGT indicates that the number of cases reported is lower than the reality. According to the Government, the alleged failings in the National Health Service were due to the lack of occupational physicians but this problem has now been solved by Decree No. 176/2009 establishing a degree course in occupational medicine. With regard to the statistics, it indicates that the Portuguese Insurance Institute (ISP) is responsible for compiling, processing and publishing statistics. The Government indicates that the type of data collected and points out that the statistics compiled are available on the ISP’s website (www.isp.pt). With regard to occupational diseases, the Government indicates that cases are published in an annual report on occupational diseases. With regard to the allegations made concerning the inadequacy of the statistics especially in relation to under-reporting, the Government indicates that this is a wider problem which requires the coordination of several bodies, such as the labour inspectorate, the occupational safety and health services within enterprises and the National Health Service. The Government also indicates that some physicians are not aware of the obligation to report cases. It indicates that a project to systematize statistics is being considered and that the country is participating in a European project on statistics of occupational diseases. Noting the matters raised by the UGT and the efforts made to overcome them reported by the Government, the Committee recalls that, under Article 4 of the Convention, the Government, in consultation with the social partners, should formulate, implement and periodically review its national policy on occupational safety and health (see also the General Survey of 2009 on occupational health and safety, paragraph 55). Regular review is a crucial step in ensuring that the effectiveness of implementation is assessed and areas for future improvement are identified. The Committee notes that the National Occupational Safety and Health Strategy for the period 2010–12 provides for an interim assessment as well as a final assessment, which fulfils the requirements of review contained in Article 4. The Committee therefore requests the Government to review, in consultation with the social partners, the matters raised by the UGT (especially the failure of the National Health Service to monitor the health of workers, failure to update statistics and reporting failures) in the context of the interim assessment of the strategy, to take all further steps that are necessary to facilitate the implementation of its national policy and to provide information in this regard.

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

Direct Request (CEACR) - adopted 2005, published 95th ILC session (2006)

1. The Committee takes note of the information supplied by the Government in its last report including the observations of the General Confederation of Portuguese Workers (CGTP).

2. Article 1, paragraph 1, of the Convention.  Scope of application: agricultural sector. The Committee notes the information provided by the Government that, pursuant to Council of Ministers Resolution No. 105/2004, the ongoing review of occupational safety and health legislation in the agricultural sector was to be completed by the end of October 2004. The Committee hopes that this means that the Government, in the near future, will be in a position to report progress made in adopting measures to ensure the application of the Convention to the agricultural sector.

3. Article 4, paragraph 1. National policy on occupational safety and health. The Committee notes the information supplied that the Government has reached an agreement with the social partners in 2001 which provides, specifically, for the drafting of a national plan of action for prevention to be implemented in the medium term and for improvement in occupational safety and health services. The Committee also notes that according to the CGTP, this national plan of action has not yet been adopted which, again according to the CGTP, constitutes a breach of this Article of the Convention. The Committee requests the Government to respond to this observation.

4. Article 11, paragraph (e). Publication of information on measures taken with regard to occupational diseases and other injuries to health. With reference to its previous comments the Committee notes the Government’s indications that according to section 6, paragraph 5, of Decree Law No. 441/91 it is required to disseminate information on policy measures adopted and the assessment of their results in relation to occupational accidents and illnesses. 

5. Part V of the report form. Implementation. The Committee notes the views expressed by the CGTP that as regards occupational safety and health, "the legal framework exists and is fairly adequate" but that "the problem lies in the widespread non-compliance with existing standards by those involved, in particular employers, and by the inability and a lack of political will on the part of the bodies responsible to enforce compliance". It requests the Government to respond to this observation in its next report and attach relevant extracts from inspection reports and, where such statistics exist, information on the number of workers covered by the legislation, disaggregated by sex, if possible, the number and nature of the contraventions reported, and the number, nature and cause of the accidents reported.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

Articles 13 and 19(f) of the Convention. The Committee notes with interest the information provided in reply to its previous comments under this Article of the Convention.

Article 1, paragraph 1. The Committee notes that the Government's report does not contain replies to its previous comments under this Article of the Convention. The Committee recalls that section 23(2)(e) of Decree No. 441/91 concerning supplementary legislation provides that priority should be given to adapting regulations to, among others, the agricultural sector. It reiterates its previous request to the Government to indicate the progress made in adopting measures to ensure the application of the Convention to the agricultural sector.

Article 11, paragraph (e). The Committee notes that the Government's report does not provide a reply to its previous comments. The Committee reiterates its previous request for indications on the measures taken or envisaged to ensure that information on measures taken with regard to occupational diseases and other injuries to health which arise in the course or in connection with work (other than just statistics on such diseases and injuries, or legislative measures in the field) are published annually.

Article 12. Further to its previous comments, the Committee notes the information provided by the Government regarding equipment (machines, apparatus, tools and plant) in respect of the requirements of this Article of the Convention. The Committee requests the Government to give indications regarding the measures taken to ensure that manufacturers and importers of substances for occupational use are also responsible for: satisfying themselves that the substances do not entail dangers for the safety and health of those using them correctly; for making available information concerning their correct use, their dangerous properties, as well as instructions on how known hazards are to be avoided; and undertaking studies and research to keep abreast with scientific and technical knowledge.

Direct Request (CEACR) - adopted 1994, published 81st ILC session (1994)

Further to its observation, the Government is requested to provide additional information on the following points:

Article 1, paragraph 1, of the Convention. The Committee notes with interest that Legislative Decree No. 441/91 of 14 November 1991 which establishes general principles for the promotion of occupational safety and health applies to medical personnel. It further notes that section 23(2)(e) of the Decree concerning supplementary legislation provides that priority should be given to adapting regulations to, among others, the agricultural sector. The Government is requested to indicate, in its next report, the progress made in adopting measures to ensure the application of the Convention to the agricultural sector.

Article 11, paragraph (e). The Committee notes that, under section 14(2)(g) of Legislative Decree No. 219/93, the Inspector-General of Labour is responsible for publishing an annual report on inspection activities. The Government is requested to indicate the measures taken to ensure that information on the measures taken with regard to occupational diseases and other injuries to health which arise in the course or in connection with work are published annually.

Article 12. The Committee notes with interest that section 19 of Legislative Decree No. 219/93 provides for licensing and authorization of certain equipment to be determined by the competent authority and places duties upon designers, manufacturers, importers, etc., to ensure the safety of their machinery and equipment. The Government is requested to indicate the measures taken to ensure that manufacturers and importers of substances for occupational use are also responsible for satisfying themselves that the substance does not entail dangers for the safety and health of those using it correctly, for making available information concerning correct use, the dangerous properties involved, and instructions on avoiding the hazards, as well as for undertaking studies and research to keep abreast with scientific and technical knowledge.

Article 13 and Article 19(f). The Committee notes with interest that section 8(2)(e) of Legislative Decree No. 219/93 provides that the employer shall adopt measures and give instructions enabling workers, in the event of serious and imminent danger which cannot be avoided, to cease their activities and leave immediately the workplace, without being required to return to the work situation as long as the danger persists. Furthermore, the Committee notes that provision does not apply to exceptional cases where adequate protection is assured. The Government is requested to specify particulars concerning the manner in which the employer undertakes this duty and to indicate whether, in the event that the employer has not taken the above measures, the worker still has the right to remove himself or herself from the danger without suffering any undue consequences. The Government is also requested to specify the types of exceptional cases where workers may work in situations of imminent and serious danger envisaged in this section and the measures taken to ensure adequate protection of their health.

Observation (CEACR) - adopted 1994, published 81st ILC session (1994)

The Committee notes with satisfaction the information provided in the Government's latest report and, in particular, the adoption of Legislative Decree No. 441/91 of 14 November 1991 establishing general principles for the promotion of occupational safety and health and Legislative Decree No. 219/93 of 16 June 1993 which creates the Institute for the Inspection of Working Conditions (IDICT). The Committee notes that this legislation ensures an improved application of the Convention by establishing a coherent national occupational safety and health policy, in particular, with respect to Articles 9, 10, 11(d), 15, 16 and 17 of the Convention.

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

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

1. The Committee notes with interest the information supplied in the Government's report concerning the application of Articles 11(a), (b), (c) and (f), 14, 19(b) and 20 of the Convention. The Committee notes, however, that a coherent national policy on occupational safety and health and the working environment is yet to be established. As noted previously, such a policy should pursue the objectives set out in Articles 4, 5, 6 and 7. The Committee again hopes that the next report will indicate progress made in this respect, and requests, in particular, that the Government indicate the state of progress of the framework legislation on occupational safety and health and the working environment which had been proposed by the International Programme for the Improvement of Working Conditions and Environment (PIACT) in 1984.

2. The Committee requests the Government to supply further information on the following points:

Article 1 of the Convention. The Committee notes with interest the Ministerial Order of 2 December 1988 which applies Legislative Decree No. 243/86 of 20 August 1986, prescribing general regulations on occupational safety and health in commerce and offices, to the public administration. Furthermore, the Committee has noted the Government's indication that draft safety and health regulations concerning agricultural work, as well as regulations concerning medical personnel, have been elaborated by the Director-General for Occupational Safety and Health and the Minister of Health respectively. It hopes that these texts will be adopted in the near future and requests the Government to supply copies of these texts once they are adopted.

Article 9, paragraph 1. The Committee notes with interest the statistics provided by the Government in the Labour Inspectorate's activities report for 1988-89 which indicate an increase in the number of inspection visits made concerning occupational safety and health, as well as an increase in the number of workers covered by these visits. It requests the Government to continue to indicate the measures taken to ensure effective supervision of the application of legislative provisions concerning occupational safety and health.

Article 10. The Committee notes that the Director-General for Occupational Health and Safety and the Labour Inspectorate provide guidance to workers and employers so as to help them comply with their legal obligations. It once again requests the Government to supply details of the action taken to provide this guidance.

Article 11. The Committee notes that, according to the Government's report, the Labour Inspectorate holds inquiries with regard to serious occupational accidents. It further notes that, according to the Labour Inspectorate's statistics, out of a total of 8,598 reported occupational accidents, only 526 inquiries were held. It requests the Government to indicate the criteria used to determine whether inquiries will be held with regard to occupational accidents and whether inquiries are held concerning occupational diseases, in accordance with paragraph (d).

Paragraph (e). The Committee again requests the Government to indicate the measures taken to ensure the annual publication of information on the measures taken with regard to occupational diseases and other injuries to health which arise in the course of or in connection with work.

Article 12. The Committee notes with interest the information supplied in the Government's report concerning: Decree Nos. 101/74 and 102/74 of 14 March regulating pressurised containers; Decrees Nos. 74/77 and 66/77, of 28 February and 3 May respectively, regulating gas machines; Decree No. 117/88 of 12 April concerning electrical equipment; and Decrees Nos. 386/88 and 736/88, of 25 October and 10 November respectively, concerning agricultural tools and machinery. It requests the Government to provide further information on measures taken or envisaged to regulate the design, manufacture, importation or transfer of other machinery, equipment or substances so as to ensure the safety and health of those working with the machinery, equipment or substances.

Article 13 and Article 19(f). The Committee notes the provisions noted by the Government concerning just motives for dismissing a worker. In particular, it notes that sections 9.2(a) and 9.2(g) of Decree No. 64-A/89 of 27 February 1989 concerning the termination of individual labour contracts permit dismissal in cases where a worker has illegitimately disobeyed the orders of his superiors or has been unjustifiably absent from work. It further notes that section 32 of Decree No. 49.408 of 24 November 1969 concerning individual labour contracts protects a worker from disciplinary sanctions in cases where the worker has made a complaint concerning the working conditions or where the worker has acted in a way so as to avail himself of his rights and guarantees. It requests the Government to indicate if there are any provisions or judicial decisions which would indicate that among workers' rights is the right to remove him or herself from a work situation which he/she had reasonable justification to believe presented an imminent danger to his/her life or health. It also requests the Government to indicate if there are any judicial decisions which conclude that the situation protected by this Article falls outside the scope of sections 9.2(a) and 9.2(g) of Decree No. 64-A/89.

The Committee would recall that Article 13 of the Convention is not fully applied in the absence of a provision ensuring that an employer cannot require workers to return to a work situation where there is continuing imminent and serious danger to life or health, as this would negate any worker's right to remove himself or herself from such a situation. It, therefore, requests the Government to indicate the measures taken or envisaged to ensure that an employer cannot require workers to return to a work situation where there is continuing imminent and serious danger to life or health, in accordance with Article 19(f). The Government is also requested to indicate the measures taken to ensure that a worker reports any situation which he or she believes presents an imminent and serious danger to life or health.

Article 15. As an integrated approach to questions of occupational safety and health and the working environment is crucial to the application of this Convention, the Committee requests the Government to indicate the measures taken or envisaged to ensure the necessary co-ordination between the various authorities and bodies called upon to give effect to Part II of the Convention.

Article 16. The Committee notes with interest Decrees Nos. 251/87, 273/89, 274/89 and 284/89 referred to in the Government's report which ensure application of this Article in all branches of economic activity and requests the Government to supply copies of these texts with its next report.

Article 17. The Committee again requests the Government to indicate the measures taken to ensure collaboration in the application of this Convention between undertakings engaged in activities simultaneously at one workplace.

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