Safety support in small and smallest enterprises

F. J. Heeg
M. Sperga
Safety support in small and smallest enterprises –
status of implementation and approaches to opti­
mise supervision
1
Initial situation for the development of different types of su­
pervision specific to small enterprises
The general framework for occupational safety has been subject to a considerable
change for quite a while now.
With the adoption of the EU Framework Directive 89/391/EEC on Safety and Health
at Work and the transfer into the national German Law on Occupational Safety and
Health (ArbSchG, 1996), the necessity has arisen in Germany to guarantee safety
experts’ support for assessing and managing the safety of work equipment and work
environment as well as to ensure medical care in small enterprises with at least one
employee. This obligation is based on the legislation concerning safety and health at
work and the accident prevention regulations VBG 122&123/ (now BGV A6 and A7).
New concepts were developed for the supervision of small enterprises as the differ­
ent types of supervision that were beneficial to large and middle-sized enterprises
were not necessarily applicable to the situation of small and smallest enterprises1.
2
Established forms of supervision in small enterprises
Against the background of new requirements, supervision concepts were developed
on the initiative of the former Federal Ministry for Labour and Social Affairs, which is
now the Federal Ministry of Economics and Labour, taking into account the general
conditions of small enterprises. Implementation has begun, resulting in modified
types of supervision as well as the so called Employer Model.
2.1
Three examples of modified forms of supervision
A modified form of supervision is demonstrated in a model experiment of the Institut
für Arbeits- und Sozialhygiene-Stiftung, Karlsruhe (IAS) for the supervision of small
and smallest enterprises (Kentner et al 1999, Kiparski et al 2000, BAuA 2001, Tb
114). The pilot project has been running since 1995 in Saxony.
The pilot project plans a pool of supervision, where, beside the use of already exist­
ing structures such as district crafts associations, guilds, chamber of guilds etc. and
the development of new structures (BG2-owned services, distribution institutions (as
1
Smallest enterprises are defined as companies consisting of 1-9 employees, small enterprises con­
sist of 10-49 employees (e.g. Fed. Ministry of Economics and Labour).
2
Berufsgenossenschaften (abbr.:BG; Employer's Liability Insurance Associations, institutions for
statutory accident insurance and prevention)
2
signed by the BG) etc.) predominantly combined services of "critical amounts" re­
garding the volume of supervision are created to "thereby compensate the logistical
and organisational disadvantages of small and smallest enterprise supervision".
(Kentner et al 1999, S. 463).
In summary, the authors ascertain that the supervision of small and smallest enter­
prises is in terms of the comprehensive ASiG service catalogue, §§ 3 and 4, are
hardly cost covering at the current level of prices and in the necessary and expected
quality, regardless whether in mobile clinics, on the customer's premises or with the
use of available examination locations (Kentner et al 1999, S. 465).
The Berufsgenossenschaft für Gesundheitsdienst und Wohlfahrtspflege (BGW, Em­
ployer's Liability Insurance Association for medical service and welfare work) is fol­
lowing a similar guideline concept. It aims at umbrella organisations/professional as­
sociations (chambers, associations, guilds, district crafts associations) who wish to
offer an alternative form of occupational medical and safety support to member en­
terprises.
The aim of the concept is to implement the contents of the accident prevention regu­
lations with effective and company-specific adapted measures and thereby guaran­
tee the required degree of occupational safety and health to the enterprises and their
employees.
It is based on three elements:
� consultation (on site, supported by media),
� training,
� written information.
With this model the enterprises are not supported individually by the professional or­
ganisations (e.g. enterprises with services provided by safety engineers/ skilled
safety professionals) regarding the operating times, they are supported as a group.
The operating time is collected in a caring pool and can then be used for supervision
on demand when required.
The advantages that the BGW sees are an increase in acceptance of the qualified
supervision by the professional organisation chosen, an optimum of branch-specific
service as well as an expected cost reduction (comp. BGW Newsletter 2001).
The guideline concept is currently being tested in a pilot project. The local "Lan­
desärztekammer Schleswig-Holstein" (medical association) and the "Apothekerver­
band Westfalen-Lippe" (apothecaries’ association) have been participating since April
2003. Hairdressing businesses all over the country have been taking part since the
end of 2002. First experiences show that the acceptance of a model has a lot to do
with motivation and the persuasiveness of the respective dissemination. The extent
of how the guideline concept will contribute to a concrete improvement of occupa­
tional safety and health in small enterprises can not yet be determined. An evaluation
and a finishing assessment of the concept will be presented by the year 2005.
The Verwaltungsberufsgenossenschaft (VBG; Employer's liability insurance associa­
tion for administration departments) has developed three supervision models for
3
support in occupational safety and health: "regular supervision", "basic supervision"
and the "employer model" which consider the characteristics of all companies and
can be chosen according to company's general conditions. (ref. VBG 2001, p.21) The
basis for calculating the operating times and the classification of enterprises of the
appropriate supervision model differentiates between seven "types of enterprises"
(comp. p.22), depending on the hazard potential for safety and health at work.
"Regular supervision" is only applicable to enterprises with low hazard potential with
more than ten employees and for enterprises with a high hazard potential with at
least one employee. A minimum operating time of two hours per year is obligatory,
irrespective of the type of enterprise.
"Basic supervision" is a model that can only be chosen by enterprises with up to ten
employees and low hazard potential, which is in this context independent of the
number of employees with respect to the operating times (comp. Hartmann 1999).
This supervision model is based on two phases of supervision: "Initial basic supervi­
sion" and "reapplied basic supervision". The first basic supervision is provided by a
skilled safety professional (expert for occupational safety, safety engineer) and a
company physician and covers 2, 4 or 5 hours per year (according to the type of en­
terprise). The hours of 2 or 3 years can be combined. After 4 or 6 years basic super­
vision is reapplied and repeated on a regular basis. In the context of these obliga­
tions an expert for occupational safety is only needed if significant changes of the
situation within the enterprise occur (comp. p.30). Significant changes are for exam­
ple the renovation or construction of stairways, the use of glass in doors or walls or
different use of rooms, e.g., the transformation of storerooms to offices (comp. p.37).
2.2
Employer models of the Berufsgenossenschaften (Employer's Liability
Insurance Association)
Employer models are/were developed as an alternative to regular supervision from
28 of the 35 industrial and all 13 agricultural statutory accident insurance associa­
tions. The initial thought for the development of the employer models was that, due to
the characteristics of small enterprises, the employer in a small enterprise has a
central position, which is why his view of occupational safety and health is very im­
portant for an effective, sustainable implementation of safety and health objectives.
The objective of all the different types of models is to:
� inform the employer of occupational safety and health,
� convince him of the necessity of occupational safety and health,
� motivate him to implement occupational safety and health goals in his company.
The employer has to be qualified to recognise occupational safety and health prob­
lems and the need for counselling from external experts. He should be able to react
appropriately. The employer model does not intend to train the employer to be a cer­
tified safety expert like the skilled safety professionals (Strothotte 1999).
Referring to the formal structure of the employer models, they differentiate in the way
the employer is informed and motivated. On the one hand, concepts were developed
in which the employer attends seminars which are more or less extensive (2-8 days)
with subsequent short brush-up seminars (usually every 3 years). On the other hand,
4
models were developed where the employer takes part in a correspondence course
which usually starts with a one-day kick-off event where all participants have to be
present. The course has to be completed within 2 years. After the correspondence
course has finished, the employer has to take part in further training measures regu­
larly (every 3 years minimum).
The following branch-exceeding topics are generally discussed in the employer
courses, beside the different branch-specific subjects:
� (Employer-)responsibility for occupational safety (occupational safety and health
as managerial task),
� legal duties and consequences,
� overview of the organisations and institutions in the field of occupational safety
and health,
� basics of occupational safety and health management,
� economic aspects of occupational safety and health management,
� consideration of knowledge of occupational safety and health in the planning
phase of new buildings, supplementary buildings or modification of existing build­
ings,
� basics of the psychology of occupational safety and health as well as
� safety on the way to work or during external duty.
The supervision of an external safety expert in line with the employer models is real­
ised with 11 of the 24 Berufsgenossenschaften, depending on the requirements es­
timated by the employer. In most of the cases their activity is defined due to a previ­
ous vulnerability analysis. There are no standards specified for the minimum scope.
In some of the 11 Berufsgenossenschaften (BG) the circumstances which require
consultation are more or less known. Other Berufsgenossenschaften allocate a stan­
dard of 10 to 50 percent of the regular operating times or a cycle, i.e., once every
three years or once a year, depending on size and threat to the enterprise. At the
"BG Chemie" (Institution for statutory insurance and prevention of in the Chemical
Industry) the technical inspector initially decides on the scope of required consulta­
tion. The employer is only allowed to decide after completion of all necessary
courses within 3 years.
The experiences with and the appraisal of the employer model differ.
It is highly welcomed to cooperate with the respective Berufsgenossenschaft and im­
plement occupational safety and health regulations in enterprises (Strothotte 1999;
Ehnes 1996 und 1997, Jenisch 1996) as an instrument for sensitisation, motivation
and information of the employers of the requirements for safety and health at work
(Kentner et al 1999; Jung 1997, Janning und Vleurinck 1999). The reduction of op­
eration time in connection with the employer model is assessed in different ways.
Jenisch (1996) welcomes it unrestricted because it is ensured that the consultation is
not part of a routine but efficient and according to the requirements. Strothotte
(1999), on the other hand, is concerned that the use of external consultation is not in
all cases a matter of fact, which may cause some problems. Kentner et al (1999)
even fear that the reduction of operation time could lead to an undermining of super
5
vision under the perspective of cost saving.
Most of the authors look favourably upon the reduction of costs for employers in
comparison to regular supervision. Strothotte (1999) and Jenisch (1996) or the BG
Druck und Papierverarbeitung (BG in the Print and Paper-working Industry) (1996)
for example, see the medium term cost saving effect as a means of increase of ac­
ceptance.
The experience reports of the Berufsgenossenschaften are in principle all positive
(e.g, Jung 1997, Janning und Vleurinck 1999, Ehnes 1996 und 1997, BG Druck und
Papierverarbeitung 1996; Jenisch 1996; Baetz et al 2000). The BG Chemie
(Kutscher 2002) reported that the employer model basic seminar is seen as helpful,
the motivation regarding occupational safety and health has grown, and that because
of this concrete measures (which can not be noted in detail) are planned. The em­
ployer's views of the BG Chemie have also changed and improved. The Berufsge­
nossenschaft für Einzelhandel (BG for retail trade) reported that 77 percent of the
participants claim that they developed more interest for occupational safety and
health after their correspondence course. In 96 percent of the enterprises more em­
phasis is in future placed on this field than before.
3
Status of supervision implementation in small enterprises
For the assessment of the different types of supervision that have been developed in
the meantime, especially the widespread enterprise models, accessible information
which shows concrete positive changes within the participating enterprises with re­
gard to occupational safety and health is not available (time before participation in
the different models).
The rate of implementation of the employer's training in concrete daily routine is of
great importance and should be effected in the enterprises with corresponding inter­
views (e.g., by supervisory staff of the Berufsgenossenschaften and the Labour In­
spectorate). Such an interview was performed by the "Amt für Arbeitsschutz und Si­
cherheitstechnik (AAS) Neuruppin" (Bureau for Occupational Safety and Health and
Safety Engineering Neuruppin) from February to August 2002 within the context of
the present examination in 143 enterprises in north-west Brandenburg.
The results of the survey for the alteration of occupational safety and health in small
enterprises – especially through the implementation of the Employer model – show
that
� the meaning of occupational safety and health is still not respected enough by a
large number of employers, leading staff and company employees. Occupational
safety and health protection is still equated with normal accident prevention – with
the result that there are from a subjective point of view for example, no safety
protection problems in office work places.
� the time invested for issues of occupational safety and health is very limited (95
from 143 employers invest less than five hours per year for occupational safety
and health measures).
� the level of knowledge of occupational safety and health is also very limited – even
issues regarding the use of the employer model. Clarification is also needed there
6
(only 64 of the 100 employer model users feel properly qualified and 29 percent of
these users do not even know or are sure of the term employer model).
� according to estimations of the experts of the AAS-Neuruppin, the organisation for
occupational safety and health has only positively changed in 17 of the 143 enter­
prises, in 87 of the enterprises only partially. 39 of the 143 enterprises showed no
positive changes at all.
� the employers, on the other hand, would like more support from the Berufsge­
nossenschaften.
� legal regulations are too complicated for employers, leading staff and employees.
Other sources also indicate insufficient implementation of supervision in small enter­
prises (Bezirksregierung Münster 1997, LAGetSi 2002, Gröben und Bös 1999, Kent­
ner 2001), except for the situation in Brandenburg, generalization is therefore not
possible.
4
Evaluation criteria for the supervision of small enterprises
From our point of view it is necessary to develop evaluation criteria which take into
account the quality, quantity and sustainability of the excellence of supervision in
small enterprises. In addition to the already existing evaluation systems such as the
quality criteria of the "Gesellschaft für Qualität im Arbeitsschutz mbH (GQA)" (Asso­
ciation for Quality in OSH) and the "Gesellschaft zur Qualitätssicherung in der be­
triebsärztlichen Betreuung mbH (GQB)" (Association for Quality Assurance of the
company physicians’ supervision) or the developed guidelines for models for com­
pany-medical supervision in small enterprises by Kliemt et al (2002), a network dia­
gram was developed in which the relation of cause and effect of influential sizes on
the named three quality criteria on the one hand, as well as the interaction between
the quality criteria themselves on the other hand are shown.
4.1 The cause and effect correlation for the quality of supervision
13 factors were identified as influencing variables for the quality of supervision, which
are mainly (8 factors) connected to the skilled safety professional’s work and can
also result from specific frame conditions in the supervision of small enterprises (5
factors) (see fig. 1). These factors can be summarised to seven different topic areas:
� training and further education,
� extensive consulting competence, which comprises the specialised technical
knowledge but also, e.g., soft skills,
� problem awareness for the situation in a small enterprise,
� regional knowledge,
� willingness to cooperate with other experts,
� ethnic views,
� general conditions with influence on the supervision quality:
– operating time and travel time,
– number of companies per number of skilled safety professionals,
7
– payment for work.
4.2 The cause and effect correlation for the sustainability of supervision
The sustainability of the supervision is influenced by the quality and the quantity and
therefore also by the concrete work of the skilled safety professionals. Above all it
depends on supervised enterprises:
� general conditions in small enterprises, such as a shortage of time and money,
� organisation and leading structures in small enterprises,
� Acceptance of supervision from the company's OSH stakeholders:
– The stakeholders’ professional and legal knowledge of occupational safety and
health. This knowledge in turn is influenced by the stakeholders’ access to
well-structured knowledge, e.g., through their involvement in networks and as­
sociations,
– Personal concernment of the company's stakeholders,
� General motivation and social engagement of the employer.
4.3 Cause and effect correlation for the quantity of supervision
The quantity of supervision depends on the legally specified operation times, espe­
cially in consequence of the possibility to reduce time with the employer model or, in
the scope of regular supervision with less operation time, combine time over a num­
ber of years – a procedure that is motivated not only by content, but by long travel
times. Additionally, the ethnic view of the skilled safety professional has – as men­
tioned before - influence on the quantity of supervision. He decides for example
whether a supervision contract is realised or only exists "on paper".
+
_
+
+
+
+
+
_
+
Fig. 4.1: Correlation of cause and effect for the evaluation of supervision types
+
+
COMPANY
+
Legal background
knowledge of
the employer
regarding
work security
+
+
+
+
_
+
Access to well­
structured and
well-prepared
knowledge
+
Sustainability of
supervision
+
+
+
+
+/-
+/-
+
Dimensions and
quality of
the further
education
+
+
+
Fundamental
training
Quality of
supervision
_
+
Acceptance of
SIFA
_
Operating time
Travel time
Motivation and social
engagement of the
employer
Problem
awareness of the
employer
+
Acceptance/
fundamental meaning
of supervision (ASiG)
+
_
Positive
economical
effects through
work security
measures
Engagement in
networks
and associations
+
Field- related
background
knowledge
of the employer
Employees'
awareness of
problems
+
Personal
concern of the
employer
Organisational
structure of the
company
Shortage of
money
Shortage of time
Safety Expert SIFA
+
Image of the
SIFA activity
Knowledge of the
industry
Knowedge of the
region
Problemawareness
of the situation
in small enterprises
Over specialized
consuting
competence
Payment for
SIFA
activity
Proportional
number of SIFA
to the number of
enterprises
+
Quantity of
supervision
+
+
+
Ethnic view
basic position
Willingness
to cooperate
with other
experts
+
+
+
8
9
A direct interaction between quantity, quality and sustainability in the sense of an ob­
vious cause and effect correlation does not exist from our point of view. It is possible
that, e.g., extensive supervision is of bad quality or that top quality supervision can­
not develop enough sustainability in an enterprise because of the conditions there.
Operationalised criteria for the evaluation of supervision of small enterprises can be
derived from these factors, which can then be applied to concrete institutions, super­
vised persons or to the concrete supervision itself.
5
Conclusions for further implementation activities
Against the background of the presented findings, the following conclusions for fur­
ther implementation to improve occupational safety and health in small enterprises
can be made:
1. The previous activities for supervision in small enterprises are principally heading
in the right direction, but need to be changed in some decisive points to go be­
yond the success up to now, to reach higher acceptance altogether and be more
beneficial to enterprises and employees and thus reach a much more widespread
application.
2. The legal regulations are to be substituted by regulations that are defined in a
scope for sensible company procedures, which can in individual cases be filled in
by the employer of the enterprise. This can be controlled with appropriate docu­
mentation.
3. The support from Berufsgenossenschaften, Labour Inspectorates, chambers,
guilds etc. is thereby mandatory. The emerging trend towards consultation
through service providers, away from normal supervision must then be boosted.
The chambers especially play a big part, which makes the frequent question
"what are they doing for me, why do I need them?" unnecessary. The support
consists of concrete consultation during the implementation of legal requirements
and consultation in concrete cases when changing procedures, facilities, tools
etc..
4. The qualification within the scope of the employer model must be effected differ­
ently than up to now:
– First there are a number of evening events (or Friday afternoon, Saturday
morning or..) where a company management which stands for simplicity, clarity
and commitment is mutually decided upon. The management is to be capable
of designing and optimising tasks and processes systematically and create a
good atmosphere in the enterprise (employer/employees)
– Issues regarding occupational safety and health are mentioned taking up the
oncoming trend to change the awareness of health. These procedures can be
organised in cooperation with suitable and accepted institutions for further edu­
cation (e.g., adult education centres and other institutions). Ten evenings with
three hour lessons during a period of ten to 30 weeks maximum show a num­
ber of changes in behaviour.
– Such events are the basis for a company model in the area of safety and
health protection.
10
– The basics of occupational safety and health, supplementing issues on psy­
chological strain and stress at work and how this can be avoided can then be
taught in a few double period lessons. Advised is a number of double period
lessons in connection with breaks for reflection and practice.
This suggestion means prolonging the qualification of the employer, but in an
area which belongs to the original tasks of the employer: the execution of tasks in
a structured, comprehensible (reusable) manner, under consideration of the
guidelines of clarity, simplicity and obligation, the structuring of the main tasks
and processes, and the cooperation in the respective company according to these
guidelines. This means an increase of efficiency and effectiveness and a reduc­
tion of stress on one side (and better results with decisions and the solving of
problems of any kind) and prepares for the introduction of easy, clear and obliga­
torily designed rules for occupational safety and health on the other.
5. The supervision is then effected
– as counselling in single cases when required,
– as a means of coaching of the employer or, e.g., as assistance for the use of
institutions or networks of institutions and for the overcoming of the already
mentioned reservation,
– in company-overlapping projects, where more companies and participants of
safety and health-relevant supervision and maybe other experts are involved.
Great demands are made on small enterprise supervisors as the employers ex­
pect support which exceeds issues regarding occupational safety and health. The
issues can be of organisational, employee oriented or economic nature. The su­
pervisor must be informed personally to be adequately accepted and appreciated
as helpful and useful, or he must be able to organise additional support – an ad­
vantage for supervisors working for chambers, guilds and similar institutions.
Supervisors working in small enterprises must also have all required compe­
tences, especially in over-professional areas, contrary to previous supervisors.
The over-professional competences shown in fig. 1 require a qualification which
differs to the qualification for skilled safety professionals so far.
The changes have been put down in the newest design for further education of
skilled safety professionals (SIFA) (e.g., the topics communication and modera­
tion) but require extension.
6. Going beyond the supervision mentioned under 5, the basis for a wider introduc­
tion of occupational safety and health management systems or integrated man­
agement systems (most presumably quality and occupational safety and health
management systems) is shown in the following in a similar easy, clear and
obligatory form.
Preparatory work is also available hereunto, e.g., the manual "Gesünder Arbeiten
mit System" (Working Healthier with methodical work), by the Ministry of Eco­
nomics and Labour NRW, North-Rhine Westphalia 2001, which is based on four
elements:
1. the definition of the occupational safety and health objectives,
11
2. the establishment of enterprise organisation,
3. the introduction of occupational safety and health in the operating procedure,
4. continuous monitoring and improvement.
During the recommended further education the employer has learned how to for­
mulate objectives and how to set up an enterprise organisation. He has defined,
structured and optimised procedures with his staff, so it is easier for him to inte­
grate OSH (especially with the support of qualified consultants). What remains is
continuous monitoring and optimisation – and this is familiar from the first part of
the qualification measure. According to the size of the enterprise, it is therefore
possible to set up an entire organisational system during a period of many months
to a few years, which leads to higher competitiveness, greater satisfaction of staff
and to a better occupational safety and health management3.
It is of great importance to design the AMS (occupational safety and health man­
agement system) strictly task and process oriented, as this greatly increases un­
derstanding, comprehensibility and acceptance of such a management system. "I
now understand why such a system makes sense and how it helps us to work
better and more structured than before. Why did we trouble ourselves with such
an incomprehensible QM-system for five years?" – a statement from an owner of
a small enterprise in Bremen during the change-over to the new process-oriented
norm. This statement can be easily transferred to AMS.
7. Positive examples during implementation are gathered from the involved institu­
tions and made available via the internet (in an understandable, clear and com­
prehensible manner) to enable use in other enterprises.
Of special importance is the intense integration of converting enterprises in the fields
of
� qualification and
� supervision
(to begin with in the sense of model enterprises for example), so that the require­
ments from practice in the enterprises are adequately accounted for and self­
absorbed activities of the institutions are not encouraged.
The authors are of the opinion that the aspects in fig. 1 will be improved in many ar­
eas with such a structure (correlation of cause and effect for the evaluation of super­
vision types). This goes especially for the core areas
� quality of the supervision,
� quantity of the supervision and
� sustainability of the supervision.
3
2-3 years, the company and the employers should not be overstrained. Furthermore: Time is re­
quired to gain experience, coaching is sensible in this connection.
12
6
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