從安全文化概念檢視營造業職場安全健康管理：雇主與管理者訪談研究

Abstract

背景：營造業屬勞力密集產業，由於職業環境嚴苛、危害風險高，職業災害頻傳，長期人才招募不易；尤其在少子化與高齡化趨勢下，正面臨嚴重勞動力不足與人才斷層。為建立安全且健康的職業環境，實有必要對於營造業職業安全與衛生管理現況進行瞭解，並探討現行職業安全衛生管理與健康保護政策或制度難以落實的核心問題。 目的：美國杜邦公司早於1802年即以「所有事故均可預防」之企業文化，創造「零災害」典範傳奇。本研究借鏡安全文化理念及杜邦安全文化發展四階段理論，探討臺灣營造業職場安全與衛生管理現況。 方法：本研究以營造業年資十年以上之雇主或管理者作為訪談對象，採用半結構式深度訪談進行，總共訪談7位管理者及4位雇主，另訪談1位曾任勞動檢查員之勞動主管機關主管。 結果：本研究發現，營造業職業安全衛生管理制度未充分發揮作用，加上勞動力缺乏，間接造成管理制度失靈，亟需藉由建立安全文化推動職安管理的落實；此外，本研究並發現營造業勞工的健康管理大多被忽略，而職場安全與健康管理實務亦與法規基本要求存在落差。 結論與建議：建議由大型綜合造業發揮領航示範的精神，帶頭承諾建立營造業的安全文化，從上而下擴及進駐承攬工程的大小型專業營造業，亦建議政策協助小型營造業提升專業工程職安知識。更重要的是掌握決策權的雇主應給予安全承諾，透過參與安全教育訓練以及訂定營造業勞工健康管理方案，將「承諾安全」化為「安全的信念與行動力」建立「安全的勞動習慣」。

Background：The construction industry is a labor-intensive sector characterized by harsh working environments and high levels of occupational hazards, resulting in frequent occupational accidents and long-standing difficulties in workforce recruitment. Amid the dual trends of declining birth rates and population aging, the industry now faces a severe labor shortage and rapid aging. To establish a safe and healthy work environment, it is essential to understand the current state of occupational safety and health (OSH) management in the construction industry and to explore the core challenges that hinder the effective implementation of OSH policies and health protection systems. Objective：While the construction industry is internationally recognized as a high-risk sector prone to occupational accidents and health hazards, it is not alone in this regard. Notably, DuPont in the United States established a corporate culture based on the belief that "all accidents are preventable" as early as 1802, creating a legendary example of “zero accidents.” This study draws on the concept of safety culture and DuPont’s four-stage model of safety culture development to examine the challenges of occupational safety and health management in the construction industry. Methods：This study selected employers or managers in the construction industry with over ten years of experience as interviewees and adopted a semi-structured in-depth interview approach. A total of seven managers and four employers were interviewed, along with one official from the competent labor authority who had previously served as a labor inspector. Research Findings：The study reveals that current OSH management systems in the construction industry have not been effectively implemented. Coupled with a labor shortage, this has indirectly led to system failure. There is an urgent need to promote the implementation of OSH management through the establishment of a safety culture. In addition, the study found that worker health management is often overlooked, and there is a gap between actual OSH practices and basic legal requirements. Conclusion and Recommendations：It is recommended that large-scale general contractors take the lead in committing to the establishment of a safety culture in the construction industry, setting an example for small and medium-sized subcontractors involved in construction projects. Policy intervention is also suggested to support small construction firms in improving their OSH knowledge for specialized engineering work. More importantly, employers—who hold decision-making power—should demonstrate their commitment to safety by participating in safety training and by developing health management plans for construction workers. In doing so, "safety commitment" can be transformed into "a belief in and drive for safety," ultimately cultivating "safe working habits."