Delotvornost radnog zakonodavstva i uloga inspekcije rada u svetlu standarda Međunarodne organizacije rada

Abstract

Uređivanje radnih odnosa praćeno je preduzimanjem mera od značaja za obezbeđivanje delotvorne primene radnog zakonodavstva. Među tim merama poseban značaj ima nadzor koji vrši inspekcija rada. U prošlom veku, u većini država razvijen je solidan pravni i institucionalni okvir inspekcijskog nadzora u svetu rada, pri čemu su mnoge države kao inspiraciju ili model za njegovu izgradnju koristile standarde sadržane u konvencijama Međunarodne organizacije rada br. 81 i 129. Uprkos tome, inspektori rada suočavaju se s brojnim izazovima i preprekama, između ostalog i stoga što proliferacija radnopravnih propisa i pojava novih profesionalnih rizika i novih formi rada nisu praćene odgovarajućim mehanizmima za obezbeđivanje delotvorne zaštite radnih prava. Ovo vredi i za izbijanje ekonomskih i finansijskih kriza, koje su redovno skopčane s nastojanjima poslodavaca da snize troškove rada zaobilaženjem primene radnopravnih, socijalnopravnih i poreskopravnih propisa. Ne treba gubiti iz vida ni to da u savremenom svetu rada ozbiljnu prepreku za delotvoran inspekcijski nadzor predstavlja i činjenica da nemali broj radnika ostaje izvan personalnog područja primene radnog zakonodavstva. Takođe, nemali broj radnika radi "na crno", dok je tzv. eksternalizacija rada zamaglila pravni položaj radnika, dovodeći u pitanje tradicionalno razlikovanje radnog odnosa i nezavisnog rada za drugog, ali i tradicionalnu (unitarnu) koncepciju poslodavca, budući da njegova ovlašćenja sada vrše dva ili više subjekata. Ozbiljnost navedenih izazova postaje veća ako se ima u vidu problem nedovoljnog broja i neodgovarajuće obučenosti inspektora rada, što redovno ima za posledicu sprovođenje nadzora samo nad neprihvatljivo skromnim delom (registrovanih i neregistrovanih) subjekata podložnih inspekcijskom nadzoru. Mala verovatnoća da će kod njih stvarno biti realizovana inspekcijska poseta dodatno ohrabruje poslodavce da nastave sa zaobilaženjem primene merodavnih propisa. Na to se nadovezuju i blage kazne koje inspektori rada imaju na raspolaganju, kao i činjenica da njihov rad neretko biva obesmišljen neažurnošću prekršajnih sudova. Konačno, poseban problem predstavlja i izostanak specijalizacije inspektora rada za pojedina radnopravna pitanja, odnosno za zaštitu određenih posebno osetljivih kategorija radnika. Autorka nastoji da ciljeve, funkcije i ovlašćenja inspekcije rada razmotri u svetlu standarda Međunarodne organizacije rada, kao i da ih preispita u svetlu aktuelnih tendencija u razvoju radnog prava, počevši od ekonomskog i političkog zaokreta ka neoliberalizmu, preko ekonomskih i finansijskih kriza, do intenzivnih međunarodnih migracija stanovništva.

Regulation of labour relations is accompanied by adoption of measures pivotal to ensuring effective implementation of labour legislation. One of the most important measures is labour inspection. During the last century, a solid legal and institutional framework for labour inspection had been developed in most of the world, with many countries using the standards contained in the International Labour Organization conventions no. 81 and 129 as inspiration or model. Nevertheless, labour inspectors face many challenges and obstacles, because the proliferation of labour regulations and the emergence of new occupational risks and new forms of work are not accompanied by appropriate mechanisms to ensure effective protection of labour rights. This also applies to the emergence of economic and financial crises, which are regularly linked to employers' efforts to reduce the cost of work by bypassing the labour, social and tax regulations. We should not lose sight of the fact that a large number of workers are outside of the personal scope of application of labour legislation, which, in the contemporary world of work, is a serious obstacle to successful labour inspection. In addition, a large number of workers performs undeclared work, and the so-called externalization of work has blurred the legal position of workers, calling into question the traditional distinction between employment and independent work for others, but also the traditional (unitary) concept of an employer, as its prerogatives are now exercised by two or more entities. The seriousness of these challenges becomes even greater if we take into account the insufficient number of labour inspectors and their inadequate training, which often results in the unacceptably modest number of (registered and unregistered) entities being inspected. The low probability of inspection actually taking place will further encourage employers to continue to circumvent the applicable regulations. This is bolstered by the lenient penalties that the labour inspectors have at their disposal, as well as the fact that their work is often rendered meaningless by the negligence of the misdemeanor courts. Another problem is the lack of specialization of labour inspectors for certain labour issues, such as the protection of particularly sensitive categories of workers. The authoress seeks to examine the goals, functions and prerogatives of labour inspectors in view of the International Labour Organization standards, as well as to review them taking into consideration the current trends in labour law, like economic and political turn towards neoliberalism, economic and financial crises as well as the intense international migrations.