近年来,中国大陆尘肺工人集体维权事件频发,从确认劳动关系、职业病诊断到工伤索赔环环脱节。而在中国香港地区,数千采石工、建筑工也曾面临尘肺维权索赔困境。
2011年8月29日,在由香港大学、香港工业伤亡权益会组织(下称工权会)的“尘肺病防治与救济研讨会”上,来自香港的民间机构和学者介绍了香港尘肺工人赔偿经验。
根据香港经验,香港民间组织中国劳工通讯针对大陆尘肺工人当前的维权索赔困境,提出立法建议。他们建议针对当前索赔无门的尘肺工人,建立尘肺病患者国家救助制度,由中央财政拨款与社会捐款为基金来源,比照工伤保险的标准,为无法确认工伤保险责任和用人的单位责任的尘肺病患者支付医疗费用,并为其家庭提供基本的生活保障。
香港劳工亦曾面临维权困境
尘肺病(香港亦称之为肺尘病),是由于长期吸入大量粉尘而导致的肺组织不可逆转的慢性纤维化病变,集中于矿山开采、建材制造,冶金铸造、爆破等行业。根据卫生部数据,在中国大陆,2010 年新发的27249例职业病中,有23812例为尘肺病,累积报告病例已达到67万多,将近15万的死亡人数是矿难和工伤的三倍之多。
香港关于尘肺病的最早记录,则是在1948年。随后,更多的病例陆续出现在不同的石矿场中。根据“肺尘埃沉着病补偿基金会”的数字,香港于1981年至2007年间共有超过4000名尘肺病人,其中的新发病例中,超过90%的工人曾从事建造业或石矿业。
按照彼时的法律规定,患病的工人可以根据普通法申请民事索赔,但程序繁琐,加之建筑业与石矿业工人的高流动性,进一步加重举证难度,同时工人需自行付费聘用律师,维权索赔多陷入困境。
补偿立法建赔偿基金
从1962年起,香港政府便开始着手,为尘肺病进行补偿立法。这一立法过程长达二十年,直到1980年《肺尘病(赔偿)条例》(下称《条例》)出台。此时的赔偿制度,将病人分作两批,一批是1981年1月1日前确诊的尘肺病人,他们的赔偿由政府拨款的特惠金支付;而1981年1月1日以后确诊病人的赔偿,则由依据《条例》成立的“肺尘病赔偿基金会”(下称基金会)来支付。
工权会总干事陈锦康介绍,肺尘病赔偿基金制度,类似于大陆的工伤保险制度。基金会向建造业和石矿业的企业,按照工程款项的0.25%征款。征款制度由法律保障,到目前为止尚未出现企业逃征、漏征的情况。
陈锦康介绍,香港尘肺工人要获得赔偿,一般需要三个步骤。第一步,在普通医院,医生即可根据工人的自述和症状,做出尘肺病的诊断;不过,要使这一诊断结论产生法律效力,工人还需到劳工处及职业健康证所,提供包括职业史、劳动关系等证明材料,由劳工处工作人员查证,并由“判伤委员会”的医生对工人的伤残程度做出判断;最后,工人根据判伤结论,向基金会申请赔偿。
劳工组织推动偿付和预防制度进一步完善
在1993年之前,工人所获得的赔偿,无论来自政府还是基金会,均为一次性赔偿。而尘肺病人因病失去劳动能力,依靠一次性赔偿有限的资金难以长期为续。工人对此颇有不满,经过工人组织、民间机构的努力,香港政府在1993年将一次性赔偿改为每月赔偿或每季赔偿,直至工人逝世。赔偿的项目,包括“疼痛、痛苦与丧失生活乐趣的每月补偿”“丧失工作能力每月补偿”“护理及照顾方面的补偿”“亲属丧亡之痛的补偿”等九项。
事后赔偿之外,尘肺病的前置预防则更为重要。从1984年开始,工权会便要求政府立法禁止建筑工程使用“手挖沉箱”。所谓的“手挖沉箱”,类似于大陆建筑工序中的开挖土方。1996年,全香港约有500名手挖沉箱工,每年都有一半因工受伤,平均每年有一名工人因工身亡,15%从事手挖沉箱的工人患上尘肺病。政府从1999年到2003年的矽肺病统计中,50%的工人曾从事手挖沉箱工作。
建筑公司、承包商、工会及工伤工人的支持团体多方博弈,1996年,香港政府终于禁止使用手挖沉箱,一律采取机器作业,除非客观条件限制确实无法机器作业。陈锦康介绍,自1996年后,香港再也没有手挖沉箱,尘肺病个案从1995年的159例下降到2011年的67例,而尘肺工人肺功能受损程度则从过去的50%下降到10%。
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