[Federal Register: February 8, 2008 (Volume 73, Number 27)]
[Rules and Regulations]
[Page 7635-7655]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr08fe08-12]
[[Page 7635]]
-----------------------------------------------------------------------
Part II
Department of Labor
-----------------------------------------------------------------------
Mine Safety and Health Administration
-----------------------------------------------------------------------
30 CFR Parts 49 and 75
Mine Rescue Teams; Final Rule
[[Page 7636]]
-----------------------------------------------------------------------
DEPARTMENT OF LABOR
Mine Safety and Health Administration
30 CFR Parts 49 and 75
RIN 1219-AB53
Mine Rescue Teams
AGENCY: Mine Safety and Health Administration (MSHA), Labor.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: The final rule revises MSHA's existing standards for mine
rescue teams for underground coal mines. This final rule implements
Section 4 of the Mine Improvement and New Emergency Response (MINER)
Act of 2006 to improve overall mine rescue capability; to improve mine
emergency response time and mine rescue team effectiveness; and to
increase the quantity and quality of mine rescue team training.
DATES: Effective date: February 8, 2008.
Compliance dates: Each mine operator shall comply with the
following sections by the dates listed below.
1. Sec. 49.12(h) by May 8, 2008.
2. Sec. 49.12(f) and Sec. 75.1501(a)(2) by August 8, 2008.
3. Sec. 49.40 by November 10, 2008.
4. Sec. Sec. 49.18(b), 49.20(a), 49.20(b), 49.30, and 49.50 by
February 9, 2009.
FOR FURTHER INFORMATION CONTACT: Patricia W. Silvey, Director, Office
of Standards, Regulations, and Variances, MSHA, at
silvey.patricia@dol.gov (internet e-mail), 202-693-9440 (voice), or
202-693-9441 (facsimile).
SUPPLEMENTARY INFORMATION:
Outline of the Preamble
I. Introduction
II. Statutory and Rulemaking Background
III. Section-by-Section Analysis
A. Technical Amendments to Existing Standards
B. Subpart B--Mine Rescue Teams for Underground Coal Mines;
Amendments to Existing Requirements
C. Subpart B--Mine Rescue Teams for Underground Coal Mines;
Additional MINER Act Provisions
IV. Regulatory Economic Analysis
A. Executive Order 12866
B. Population at Risk
C. Costs
D. Benefits
V. Feasibility
A. Technological Feasibility
B. Economic Feasibility
VI. Regulatory Flexibility Act and Small Business Regulatory
Enforcement Fairness Act
A. Definition of a Small Mine
B. Factual Basis for Certification
VII. Paperwork Reduction Act of 1995
VIII. Other Regulatory Considerations
A. The Unfunded Mandates Reform Act of 1995
B. The Treasury and General Government Appropriations Act of
1999: Assessment of Federal Regulations and Policies on Families
C. Executive Order 12630: Government Actions and Interference
With Constitutionally Protected Property Rights
D. Executive Order 12988: Civil Justice Reform
E. Executive Order 13045: Protection of Children From
Environmental Health Risks and Safety Risks
F. Executive Order 13132: Federalism
G. Executive Order 13175: Consultation and Coordination With
Indian Tribal Governments
H. Executive Order 13211: Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use
I. Executive Order 13272: Proper Consideration of Small Entities
in Agency Rulemaking
I. Introduction
This final rule implements Section 4 of the Mine Improvement and
New Emergency Response (MINER) Act of 2006. MSHA's objective,
consistent with the MINER Act, is to develop a final rule that fosters
an environment that results in more preparation for mine rescue and
mine emergency response. The final rule, like the proposal, retains all
existing standards as subpart A applicable to underground metal and
nonmetal mines. The MINER Act is not applicable to metal and nonmetal
mines. The final rule creates a new, separate, subpart B containing
existing standards and MINER Act provisions for underground coal mines.
MSHA developed this final rule based on the provisions of the MINER
Act, Agency data and experience, testimony at the public hearings, and
the comments on the proposed rule.
MSHA is providing delayed compliance dates for some sections to
give mine operators the time needed to comply with the stated
requirements.
1. By May 8, 2008, each mine operator must send the District
Manager a statement describing the mine's method of providing mine
rescue coverage in accordance with Sec. 49.12(h).
2. By August 8, 2008--
Each mine must have a mine rescue station located no more
than 1 hour ground travel time from the mine in accordance with Sec.
49.12(f). If equipment is not readily available, the operator must have
purchase orders for the required equipment.
The mine operator must have a responsible person
knowledgeable about mine emergency response, who has completed the
course of instruction in mine emergency response prescribed by MSHA in
accordance with Sec. 75.1501(a)(2).
3. By November 10, 2008, each operator of a large mine must have
either an individual mine-site team or a composite team as one of the
mine's certified mine rescue teams in accordance with Sec. 49.40.
4. By February 9, 2009--
Mine rescue team members must have completed 96 hours of
annual training, including participation in two local mine rescue
contests and training at each covered mine in accordance with Sec.
49.18(b).
Each mine operator shall make available two certified mine
rescue teams whose members are familiar with the operations of the mine
and have participated in two local mine rescue contests in accordance
with Sec. 49.20(a).
Each team providing coverage to a mine must be
knowledgeable about the operations and ventilation of the mine in
accordance with Sec. Sec. 49.20(b) and 49.30.
Each mine operator must certify to the District Manager
that each team designated to provide mine rescue coverage to the mine
meets the requirements for certification in accordance with Sec.
49.50.
II. Statutory and Rulemaking Background
In accordance with section 115(e) of the Federal Mine Safety and
Health Act of 1977 (Mine Act), MSHA issued standards in 30 CFR part 49
for mine rescue teams in underground coal and metal and nonmetal mines
(45 FR 47002, July 11, 1980). Part 49 contains requirements addressing
the three essential elements of effective mine rescue teams: (1) Ready
availability; (2) proper equipment; and (3) basic levels of skills and
training.
After several underground coal mine disasters in 2006, Congress
passed and the President signed the Mine Improvement and New Emergency
Response (MINER) Act of 2006, which became effective on June 15, 2006.
The goal of the MINER Act is ``to improve the safety of mines and
mining.'' Section 4 of the MINER Act requires that the Secretary issue
regulations for mine rescue teams by December 2007. Because the mine
rescue team provisions contained in section 4 of the MINER Act apply
only to underground coal mines, the final rule affects those mines and
the mine rescue teams that cover them.
MSHA published the proposed rule for Mine Rescue Teams in the
Federal Register on September 6, 2007 (72 FR 51320). The Agency held
four public
[[Page 7637]]
hearings on October 23, 2007, in Salt Lake City, Utah; on October 25,
2007, in Lexington, Kentucky; on October 30, 2007, in Charleston, West
Virginia; and on November 1, 2007, in Birmingham, Alabama. In response
to a request from the public, MSHA extended the comment period from
November 9, 2007, to November 16, 2007. This action allowed commenters
sufficient time to review the posted transcripts and submit comments.
III. Section-by-Section Analysis
MSHA developed this final rule based on the provisions of the MINER
Act, Agency experience, testimony at the public hearings, and the
comments on the proposed rule.
A. Technical Amendments to Existing Standards
This final rule makes no substantive change to requirements for
mine rescue teams at underground metal and nonmetal mines; however, it
makes the following non-substantive organizational changes to 30 CFR
part 49.
The final rule adds a heading designating the existing
standards as Subpart A--Mine Rescue Teams for Underground Metal and
Nonmetal Mines; but makes no changes to Sec. Sec. 49.1 through 49.9.
The final rule deletes Sec. 49.10 Effective date, which
is obsolete.
B. Subpart B
Subpart B contains all the standards applicable to mine rescue
teams for underground coal mines. The final rule revises existing
standards to implement the provisions and achieve the goals of the
MINER Act, and to address the unique conditions present in anthracite
coal mines. The final rule also revises existing Sec. 75.1501(a) in 30
CFR part 75 to implement a MINER Act requirement.
Subpart B contains the following five new standards:
Sec. 49.20 Requirements for all coal mines.
Sec. 49.30 Requirements for small coal mines.
Sec. 49.40 Requirements for large coal mines.
Sec. 49.50 Certification of coal mine rescue teams.
Sec. 49.60 Requirements for a local mine rescue contest.
1. New Subpart B and the Reorganization of Part 49
The final rule, like the proposal, retains all existing standards
as subpart A applicable to underground metal and nonmetal mines and
creates a new, separate, subpart B containing existing standards and
the MINER Act provisions for underground coal mines. In the proposal,
MSHA requested comments on the re-organization of 30 CFR part 49.
Commenters supported the re-organization and thought that it was
beneficial in eliminating confusion. A commenter expressed concern
regarding use of separate standards for different industries and urged
MSHA to be cautious of this approach. MSHA's approach in the final rule
is consistent with the Agency's longstanding practice of having
separate standards for different industries.
MSHA also requested comments on whether the proposal would result
in different approaches to providing mine rescue services and, if so,
what those approaches would be. Commenters expressed a variety of
concerns, most related to team composition and training at each covered
mine.
2. Section 49.11 Purpose and Scope
The final rule, like the proposal, adds the phrase, ``as amended by
the Mine Improvement and New Emergency Response Act of 2006,'' to
update Sec. 49.11 Purpose and scope. This change is a technical
amendment. The final rule also designates the existing provision as
paragraph (a) and adds a new paragraph (b). Paragraph (b) contains
Table 49.11, which provides mine operators a summary of new MINER Act
requirements. As noted following the table, state employees, whose
primary job duties include (1) inspecting underground mines for
compliance with state safety laws, (2) training mine rescue teams, or
(3) other similar duties that would enhance their mine rescue
knowledge, can substitute their regular job experience for 50 percent
of the annual training requirements, including mine rescue contests and
mine-site training.
MSHA requested comments on allowing State employees on mine rescue
teams to substitute their job experience for 50 percent of the annual
training requirements. Most commenters agreed that job duties can
substitute for some of the required training. One commenter suggested
that job experience should substitute for all training requirements.
Some commenters stated that all mine rescue team members should be
allowed to substitute job experience for training requirements. Several
commenters stated that individual job duties should not be allowed to
substitute for any mine rescue team training for any mine rescue team
members.
State employees on mine rescue teams involved in full-time
inspection and mine rescue training activities have developed an
expertise that will enhance mine rescue team emergency response
capabilities. They are dedicated professionals who are familiar with
mines they cover and knowledgeable about mine rescue and other areas of
mine safety and health training. On a daily basis, they are exposed to
a variety of mining environments, complex conditions, different
problems, and new issues. This affords them a broad perspective into
the safety and health objectives pertaining to mine rescue and mine
rescue training.
MSHA recognizes the knowledge and experience state employees on
mine rescue teams gain in the performance of their jobs. MSHA agrees
with the commenters supporting the note to Table 49.11. Under the final
rule, full-time state employees on mine rescue teams must complete at
least 48 hours of refresher training annually, including participation
in at least one local mine rescue contest and training at each covered
mine at least once every year.
3. Section 49.12 Availability of Mine Rescue Teams
(a) Sec. 49.12(b) Alternative Composition Requirements for Mine Rescue
Teams for Anthracite Coal Mines
The final rule, like the proposal, includes requirements for mine
rescue teams serving underground anthracite coal mines with no
electrical equipment at the working section. The final rule is derived
from petitions for modification, which MSHA has historically granted
under section 101(c) of the Mine Act, because mining methods and
conditions in underground anthracite coal mines are unique. For these
mines, MSHA requires mine rescue teams to be comprised of three members
each and one alternate team member to serve both teams.
In support of these petitions, anthracite mine operators cited the
following:
Most anthracite mines are not highly mechanized.
Production and maintenance work is done largely by hand, using simple
hand tools and equipment. Anthracite mines may have no underground
electric power or may have power only at the bottom of the hoist slope.
Typically, extraction occurs in a single face or
production area. Many anthracite mines are developed only short
distances underground, rarely more than several thousand feet.
Anthracite seams dip steeply and are often near vertical.
Openings are narrow and constricted. Access between levels is by means
of hardwood ladders
[[Page 7638]]
through small, steeply pitched openings.
The hoist bucket, used to transport personnel, typically
can accommodate no more than four persons.
Rock dusting is not required because of the extremely low
combustibility of anthracite coal, caused by its low volatile content.
The average underground anthracite mine employs four
miners.
In the past 20 years, no more than one mine rescue team
has been needed in the anthracite region for rescue and recovery
activities. Further, no more than three rescue team members have
entered a working place at the same time during such activities.
In accordance with section 101(c) of the Mine Act, MSHA
investigated each petition of Sec. 49.2(b) from these small,
underground anthracite coal mines and made the following finding:
Considering this confirmation and the narrow width and
constricted openings, the limited capacity of hoist conveyances, the
pitched seam, the short travel distance from the slope bottom to the
working face, and the low combustibility of anthracite coal,
petitioner's alternative method of two mine rescue teams with three
members each is as safe as maintaining two teams of five members. As
such, it achieves the result of the standard to ensure the
availability of mine rescue capability for purposes of emergency
rescue and recovery.
On the basis of the petitions and the findings of its
investigations, MSHA granted 22 petitions for modification of Sec.
49.2(b) that allow anthracite coal mines to operate under the approved
alternate method. Currently, 10 underground anthracite coal mines
operate under this approved alternative method.
Most anthracite mines are small (average 5 employees) and could not
have their own mine site teams, are located in the same geographical
area, and belong to an association called ``Anthracite Underground
Rescue'' (AUGR). AUGR and the Pennsylvania Bureau of Mine Safety
(Bureau) have an agreement for mine rescue training. AUGR provides
qualified miners to be trained in mine rescue and the State provides a
mine rescue station, equipment, and a trainer. These teams cover all
the anthracite mines.
Commenters supported this provision. One commenter stated that the
proposed alternative does not benefit two small anthracite mines that
have electrical face equipment and they can not realistically start
their own company teams. This commenter urged MSHA to consider these
teams as composite, but not require team members from each covered
mine. The final rule does not expand the proposed provision to
underground anthracite coal mines with electrical equipment at the face
or working section. This final provision is consistent with MSHA's
action on existing petitions for modification.
(b) Sec. 49.12(c) Alternative Experience Requirement for Members of
Contract Mine Rescue Teams
The final rule, like the proposal and consistent with the MINER
Act, requires that members of contract mine rescue teams have ``a
minimum of 3 years underground coal mine experience that shall have
occurred within the 10-year period preceding their employment on the
contract mine rescue team.'' The final rule retains the existing
provision that requires mine rescue team members to have been employed
in an underground mine for at least 1 year within the past 5 years.
MSHA received no comments on this provision.
One commenter objected to allowing a surface employee who regularly
works underground to claim such time to meet the experience
requirement. The final rule retains this existing provision; the
proposal did not address it.
Another commenter asked that MSHA clarify what it means to work
underground ``regularly.'' For the purpose of this provision, MSHA
considers ``regularly works'' to mean that the member has recurring job
duties at each mine, exposing the member to the mine's underground
operations, conditions, and environment. For example, this may include
surveyors, engineers, safety personnel, electricians, and maintenance
and service personnel.
Several commenters requested that MSHA waive this requirement for
current mine rescue team members who are employed on the surface. Like
the proposal, the final rule waives the underground experience
requirement for those miners on a mine rescue team on February 8, 2008.
4. Sec. 49.12(f) Available Within 1 Hour Ground Travel Time From the
Mine Rescue Station
The final rule, like the proposal, includes the MINER Act
requirement that no mine served by a mine rescue team shall be located
more than 1 hour ground travel time from the mine rescue station with
which the rescue team is associated. This provision will assure that a
team will arrive at the mine more quickly in case of a mine emergency.
MSHA received numerous comments on this proposal. Commenters
questioned whether this provision would improve safety in an actual
emergency. Commenters noted that there have been no instances where a
team's arrival delayed a rescue operation and stated that the provision
is not justified. Several commenters indicated that the proposal is
infeasible for some western coal mines, which are geographically
isolated. Likewise, some commenters indicated that rugged terrain in
Central Appalachia hinders ground travel, making compliance difficult.
A few commenters stated that the proposal will cause the relocation of
stations further from some mine sites, disrupt current team coverage,
and may result in mine closures. Many commenters indicated that a
sufficient number of volunteers may not be available to form additional
teams needed for new mine rescue stations. Commenters stated that the
establishment of new and relocation of existing rescue stations is an
unnecessary, burdensome expense, with no benefit to mine safety.
Commenters suggested that MSHA grandfather existing mine rescue
stations and current coverage arrangements. Commenters also suggested
that MSHA allow the District Manager to grant waivers of the 1 hour
ground travel time for existing teams and stations, but only up to 2
hours. Commenters also asked MSHA to consider alternatives, including
the use of air transportation and emergency escorts.
One commenter did not believe the 1-hour provision would cause
undue hardship. One commenter stated that more rescue stations would
likely be created, resulting in teams getting to the mines sooner.
Consistent with the MINER Act, the final rule includes the 1-hour
requirement.
5. Section 49.13 Alternative Mine Rescue Capability for Small and
Remote Mines
The final rule, like the proposal, retains the existing provision
for alternative capability for small and remote mines. It requires that
the operator's application include the total underground employment of
any mines within 1 hour of the operator's mine, to be consistent with
the 1-hour requirement of the MINER Act. It also requires that the
operator include the location of the mine rescue station serving the
mine. Commenters suggested alternatives that the District Manager
should consider for small and remote mines. Other commenters stated
that this provision should not be used to allow remote operations with
large numbers of miners to circumvent the MINER Act requirement for two
teams. For clarification, MSHA notes that this provision, which was in
the existing standard, requires a mine to be both
[[Page 7639]]
small and remote before it can file an application.
6. Section 49.14 [Reserved]
The final rule, like the proposal, does not include this provision
in subpart B because it is not applicable to underground coal mines.
MSHA received no comments on this proposal.
7. Section 49.15(a) Mine Rescue Station
The final rule, like the proposal, removes the exception related to
alternative compliance. The final rule makes no change from the
proposal. This final rule is consistent with the goals of the MINER
Act. MSHA received no comments on this proposal.
8. Section 49.16(a) Alternative Equipment Requirement for Anthracite
Mines
The final rule, like the proposal, adds a provision to address
underground anthracite coal mines that have no electrical equipment at
the face or working section. Through the petition for modification
(PFM) process, MSHA allows mine rescue teams for underground anthracite
coal mines, which have no electrical equipment at the face or working
section, to have three members for each team and one alternate to serve
both teams. These operators have submitted petitions for modification
to allow the mine rescue station to maintain eight self-contained
oxygen breathing apparatus and eight cap lamps and a charging station,
rather than twelve of each as required by the existing standard.
On the basis of these petitions and the findings of its
investigation, MSHA granted 17 petitions for modification of Sec.
49.6(a)(1) and (5) that allow each mine rescue station for anthracite
coal mines to have eight self-contained oxygen breathing apparatus,
eight cap lamps, and a charging rack, as the approved alternative
method. Currently, 10 underground anthracite coal mines operate under
this approved alternative method.
The final rule requires that mine rescue stations covering
anthracite coal mines that have no electrical equipment at the face or
working section have at least the amount of equipment appropriate for
the number of mine rescue team members, consistent with the action
taken in existing petitions for modification. For three-person teams
and one alternate, this would mean seven self-contained oxygen
breathing apparatus and seven cap lamps. Under the final rule,
equipment required per team, such as gas detectors, may not be reduced.
No commenters objected to this provision, so long as it is consistent
with the provisions in the petitions for modification.
9. Section 49.17 Physical requirements for Mine Rescue Team
Like the proposed rule, the final rule maintains the existing
physical requirements for mine rescue teams. Commenters suggested that
MSHA modify the rule to allow the use of corrective glasses in
determining distant visual acuity. Although MSHA considered this
suggestion, it is beyond the scope of the rulemaking.
10. Section 49.18 Training for Mine Rescue Teams
The final rule, like the proposed rule, retains the existing
requirements. In the final rule, MSHA has removed obsolete language in
Sec. 49.18(a) related to waiver of initial training. All existing
teams meet the initial training requirement, making it unnecessary to
waive.
Like the proposal, the final rule adds paragraph (b)(6), which
requires all mine rescue team members, at least once during each 12-
month period, to participate in training that includes wearing mine
rescue apparatus while in smoke, simulated smoke, or an equivalent
environment. Commenters agreed that training in smoke afforded teams
skills that would be useful in an actual mine emergency and that
several mine rescue teams already perform this training. Although some
mine operators or training facilities use actual smoke, operators can
use a nontoxic theatrical smoke, which is harmless. For the purposes of
this provision, an equivalent environment could include training with
glasses or face shields that reduce vision and simulate smoke. This
requirement assures that mine rescue team members train in realistic
conditions.
The final rule increases the 40-hour annual refresher training
requirement to 96 hours from 64 hours in the proposed rule. This
training must be provided at least 8 hours every 2 months. This
increase is in response to comments and is consistent with the goals
and objectives of the MINER Act and the recommendations of the Mine
Safety Technology and Training Commission (Commission). Some commenters
supported the existing requirement of 40 hours of annual training.
These commenters generally were concerned that small mines do not have
the resources to allow training during work hours and that an increase
in this training could affect the mine rescue teams' ability to attract
volunteers. Other commenters suggested 48 hours of annual training was
appropriate. They suggested 8 hours of training every 2 months, for a
total of 48 hours. They indicated that the increased training time may
conflict with mine-site duties, which might preclude experienced miners
from participating on rescue teams.
Other commenters were not opposed to the proposed 64 hour training
requirement. Several noted that their teams' annual training currently
exceeds 64 hours. These commenters noted that the content and quality
of this training is more important than the total number of training
hours. They requested more flexibility in scheduling training, stating
that some mine rescue training occurs irregularly, depending on weather
conditions and contest schedules.
Other commenters recommended that the annual training requirement
be increased to a minimum of 96 hours, given at 8 hours each month. In
support of this recommendation, they cited the Commission's report on
Improving Mine Safety Technology and Training: Establishing U.S. Global
Leadership (2006). The Commission, composed of members from a cross-
section of the mining community, industry, labor, academia, government,
including mine rescue practitioners, recommended a minimum of 96 hours
of annual training, at 8 hours each month. One commenter also stated
that participating in mine rescue contests should not be considered as
part of this 96 hours of annual training.
Based upon the comments, the Commission's report, and Agency data
and experience, in the final rule MSHA has increased the amount of
annual training to 96 hours. In making this decision, MSHA determined
that additional annual refresher training is necessary to fully address
all of the training requirements in the MINER Act. MSHA also agrees
with commenters' suggestions and the Commission's report that
additional training is necessary to adequately prepare for mine rescue
team service. In addition, based on the Commission's recommendations
and MSHA's experience, MSHA anticipates that this additional training
will provide an incremental increase in safety for underground coal
miners. Therefore, the final rule increases training from the proposed
64 to 96 hours.
In addition to existing requirements, the MINER Act requires that
team members be familiar with operations of covered mines, have
knowledge of the operation and ventilation of covered mines, and train
at covered mines. Also, teams under paragraph (b)(6) need to train in
smoke, simulated smoke, or an equivalent environment once annually.
[[Page 7640]]
In order to further improve their skills, teams may also participate in
Mine Emergency Response Development (MERD) exercises or other practical
simulation exercises, such as a fire or explosion drills. This type of
training further enhances teams' skills in interacting with a command
center. Recommended training could also include: first responder
training, communications, mine gases, gas detectors, new technology,
heat stress, and hazard training unique to the covered mines. In
addition, skills training may include building temporary stoppings and
seals, using a foam generator underground, and using an air lock to
rescue survivors. This additional training will enhance teams' skills
and abilities.
The MINER Act also requires mine rescue team members to participate
in two local mine rescue contests each year. The final rule will allow
up to 16 hours of credit for participation in the two required mine
rescue contests. Some commenters objected to including mine rescue
contests as a part of the annual training requirement, while others
favored such a requirement. Commenters stated that mine rescue contests
are designed to increase rescue team skill levels and to facilitate
interaction between various rescue teams. MSHA agrees. MSHA believes
that mine rescue contests serve a vital role in achieving the purpose
of the MINER Act to improve the safety of mines and mining.
Historically, they have served to assure that mine rescue teams are
well-trained and capable of responding to mine emergencies. Under
existing Agency policy, MSHA allows up to 8 hours credit for mine
rescue contests toward the annual training requirement. In recognition
of the critical need for the team to travel efficiently from the mine
rescue station to the covered mine, under the final rule, travel time
can be counted toward fulfilling the 96 hour requirement.
While the final rule increases the total amount of annual refresher
training, it retains the requirement that the training occur at least 8
hours every 2 months. Taking into consideration comments that mine
rescue training occurs irregularly, depending on weather conditions and
contest schedules, MSHA decided not to reduce the flexibility of
scheduling training. Based on MSHA data and experience, 8 hours of
training every 2 months is necessary to avoid skills degradation. As
the Commission's report states,
The nation's mine rescue capability rests more heavily on
training than on any other aspect of the mine emergency response
system. Especially since emergency incidents are relatively rare,
the predominant way teams keep their skills sharp, and develop
cohesion, enthusiasm, and trust, is through training.
The final rule, like the proposed rule and the existing standard,
requires that the training courses be conducted by instructors who have
been employed in an underground mine and have had a minimum of 1 year
experience as a mine rescue team member or mine rescue instructor
within the past 5 years. A commenter suggested that MSHA allow
experienced underground miners to become instructors even though they
do not have 1 year experience as a mine rescue team member. MSHA has
not included this suggestion in the final rule to assure that mine
rescue team members are instructed by persons with practical mine
rescue experience. Mine rescue team instructors who have received MSHA
approval prior to the effective date of the final rule would not have
to meet this requirement.
C. Subpart B--Mine Rescue Teams for Underground Coal Mines; Additional
MINER Act Provisions
1. Section 75.1501(a) Person Knowledgeable in Mine Emergency Response
The final rule, like the proposal, requires that the responsible
person be trained annually in a course of instruction in mine emergency
response. This provision implements the MINER Act requirement that the
operator have a person employed on each shift who is knowledgeable in
mine emergency response. The final rule requires that the responsible
person be trained in a course prescribed by MSHA's office of
Educational Policy and Development.
The majority of commenters expressed concern that the proposal
placed too much responsibility on one person. Some of these commenters
thought that the proposal required the responsible person to conduct
the activities listed in the proposal, rather than to be trained in
those activities. Other commenters expressed concern that the proposal
contained excessive training requirements and that the training areas
listed were not sufficiently described. One commenter indicated that
MSHA must establish and require a standard minimum curriculum along
with recommended times for each topic.
In response to comments, MSHA has clarified the final rule to
require that the responsible person be trained in a course which
includes topics listed in the rule. The rule does not establish any new
duties for the responsible person. Further, in response to comments,
the course for the responsible person will be based on a curriculum
prescribed by MSHA and placed on the Agency's Web site. MSHA is
developing this course in mine emergency response to assure consistent
and comprehensive training. Commenters further requested that the final
rule include a recommended duration of time for this training. In light
of the fact that MSHA is developing the curriculum for this course,
MSHA does not believe that it is either necessary or appropriate to
specify a duration for this training.
Consistent with other MSHA training requirements, the final rule,
like the proposal, requires that the operator certify by signature and
date after each responsible person has completed the training and that
the certification be kept at the mine for 1 year. MSHA received no
comments on this aspect of the proposal.
2. Section 49.20 Requirements for All Coal Mines
The final rule addresses MINER Act provisions that are the same for
all underground coal mine rescue teams, regardless of the size of the
operation. It requires the operator to make available two certified
mine rescue teams whose members are familiar with the operations of
each coal mine covered by the mine rescue team, participate annually in
two local mine rescue contests, and train at the covered mines.
a. Section 49.20(a)(1) Familiarity With Operations of Covered Mines
This final rule, like the proposal, requires two certified mine
rescue teams whose members are familiar with the operations of the mine
and participate at least annually in two local mine rescue contests.
One commenter stated that while MSHA's understanding of ``familiarity''
is acceptable for the knowledge a miner would posses in order to safely
perform job duties, it does not adequately describe the level of
knowledge a mine rescue team member should posses in order to carry out
rescue and recovery duties. Commenters indicated that familiarity with
the covered mine was necessary but did not agree with the frequency of
training at the covered mine.
The final rule adopts the MINER Act requirement of ``familiarity''
with the operation of the coal mine. Under the final rule, MSHA
considers ``familiarity'' with the operations of the covered mine as
first-hand experience of the underground mining conditions and
operations at a particular mine. Team members who do not work at the
[[Page 7641]]
covered mine become familiar with its operations by participating in
mine rescue training at the mine. Training at the mine may include:
Identifying the designated escapeways, intakes, returns, the
ventilation system, locations and types of fire fighting equipment, the
communication system, mine-wide monitoring system, and the type of
transportation equipment used at the mine. Also, team members need to
be familiar with the location of stored SCSRs, lifelines, breathable
air, hardened rooms, and other emergency response equipment or
supplies.
MSHA recognizes that the amount of time required to familiarize
teams with a particular mine will vary, depending on mining conditions.
For example, teams may need more time to become familiar with complex
mines and newer team members may require more time to achieve this
familiarity. For this reason, MSHA is not requiring a minimum amount of
time for mine rescue team training underground at each covered mine.
MSHA expects the operator to effectively evaluate each team member to
determine the amount of training necessary for that person to become
familiar with operations at the covered mine. MSHA expects that a
portion of each required training session at the mine be conducted in
the mine.
b. Sec. 49.20(a)(2) Participation in Two Local Mine Rescue Contests
Like the proposal, the final rule includes the MINER Act
requirement that mine rescue team members participate in two local mine
rescue contests annually.
Commenters expressed concern with the criteria for, and quality of,
mine rescue contests. They were concerned about the availability of
acceptable contests. MSHA addresses commenters' concerns with criteria
for mine rescue contests in the discussion of Sec. 49.60, which
addresses requirements for a local mine rescue contest.
Mine rescue contests are designed to sharpen skills and test the
knowledge of team members who would be called on to respond to a mine
emergency. Historically, mine rescue contests have provided individuals
with practical, hands-on experience and are one of the most effective
forms of training. Some team members who are regular participants in
contests have been called on in recent years to perform actual mine
rescue and recovery work. They have done so successfully and training
exercises, such as mine rescue contests, were essential to maintaining
a well-prepared team.
A commenter stated that participation in two back-to-back contests
is counterproductive because the teams need time to analyze and discuss
in depth their performance during the contest. Contest judges evaluate
teams and provide a written evaluation and score after each contest.
Contest judges will evaluate each team and judge if the team
demonstrates acceptable skills to be certified. A copy of the judge's
evaluation will be submitted to the District Manager. MSHA expects that
teams learn from constructive feedback and their experiences during
contests. In response to this comment, MSHA has changed the proposed
criteria for a local mine rescue contest in the final rule to clarify
that a contest consists of one or more problems on one or more days
with a determined winner.
c. Sec. 49.20(b) Requirements for Types of Mine Rescue Teams
The final rule, like the proposal, provides for four types of mine
rescue teams, consistent with the MINER Act. In response to comments,
MSHA has included clarifying changes in the final rule.
Commenters generally expressed concern that the description of
teams in the MINER Act did not adequately encompass the variety of
arrangements for mine rescue service or the composition of mine rescue
teams that are currently available to the mining community. Commenters
indicated that this provision would disrupt existing mine rescue
service, which would be contrary to the goals of the MINER Act. They
cautioned that the proposal could result in: Disbanding experienced
mine rescue teams; replacing experienced team members with
inexperienced ones; inability to attract volunteers to join mine rescue
teams; mines losing current coverage arrangements, and possibly mine
closures.
Commenters objected to the differences in training requirements for
large and small mines. In particular, commenters expressed concern that
the training differences between types of teams were illogical,
requiring mine-site and state-sponsored teams to train more often at
each covered small mine than at each covered large mine. Other
commenters stated that mine size and complexity should determine the
frequency of training at the covered mine, not the type of team.
Commenters objected to the proposed requirement that composite
teams from small mines need to include two miners from each covered
mine. They were concerned about the ability of small mines to generate
two volunteers due to their employment. They indicated that small mines
are less likely to be able to spare a miner to perform mine rescue
training or service. A commenter, however, indicated that small mines
should be required to have two team members on composite teams.
Several commenters suggested allowing a company team, composed of
miners who work for an operator of multiple mines, to be considered a
mine-site team so they would not need to have two team members from
each covered mine. Commenters also expressed concern that requiring two
members from each covered mine may result in teams with too many
members, creating logistical training problems and excessive costs.
With regard to state-sponsored teams, several commenters suggested
that teams composed of non-state employees who use mine rescue
equipment and stations provided by the state be considered a state-
sponsored or composite team instead of a contract team. Some commenters
stated that State-sponsored composite team members should be considered
state employees to get credit for the time in training at the mine in
which they work.
In response to commenters' concerns that the proposal did not
effectively encourage the creation of new mine site teams, the final
rule requires mine-site teams to train annually at each covered small
mine. MSHA expects this change to encourage more mine-site teams. The
final rule also requires state-sponsored teams to train annually
instead of semi-annually at each covered small mine. Additionally, at
small mines only, the final rule allows composite teams to have one
member from each covered small mine. Also in response to comments, for
the purpose of mine rescue team membership, a member employed by an
operator of multiple mines is considered to be an employee of each mine
at which the member regularly works. In this section, MSHA considers
``regularly works'' to mean that the member has recurring job duties at
each mine, exposing the member to the mine's underground operations,
ventilation, conditions, and environment. For example, these employees
may include surveyors, engineers, safety personnel, electricians, and
maintenance and service personnel.
One commenter questioned the use of ``a'' covered mine in the
proposal, believing that MSHA meant ``each'' covered mine. In response
to this comment, the final rule includes the term ``each'' covered
mine.
d. Knowledge of Operations and Ventilation at the Covered Mine
The final rule, like the proposal, requires members of mine rescue
teams to have knowledge of the operations and
[[Page 7642]]
ventilation at each covered mine. Generally, this would require each
team to review the mine's ventilation maps, roof or ground control
methods, emergency response plan, transportation, and communication
system.
e. Mine Rescue Team Training at Each Covered Mine
The final rule, like the proposal, requires that members of mine
rescue teams must participate in training at each covered mine,
consistent with the MINER Act, MSHA interprets the intent of the MINER
Act to require that at least a portion of the training at each covered
mine must be conducted underground.
Commenters objected to the requirement that teams train at each
covered mine. They stated that this training is impractical, overly
burdensome, unnecessary, and may negatively affect the ability to
attract new team members. In particular, commenters indicated that
travel and training time is excessive for contract teams. Several
commenters suggested that, to alleviate this burden, team members be
allowed to rotate training at each covered mine so that each team
member trains at each covered mine at least annually. Some commenters
suggested that only two members of each team be required to train at
each covered mine and they would brief the team. A commenter suggested
that, if the team does not complete training at each covered mine, the
team should not be used as a first responder.
Under the final rule, the number of training sessions required at
the covered mine depends on the mine size and type of mine rescue team.
The following chart illustrates the required number of training
sessions at each covered mine.
Table 1.--Frequency of Training for Mine Rescue Team Members at Each Covered Underground Coal Mine Each Year
----------------------------------------------------------------------------------------------------------------
Mine size
Type of team -------------------------------------------------------------
Large (more than 36) Small (36 or fewer)
----------------------------------------------------------------------------------------------------------------
Mine Site......................................... 1 (annually)................ 1 (annually).
Composite......................................... 2 (semi-annually)........... 2 (semi-annually).
Contract.......................................... 4 (quarterly)............... 2 (semi-annually).
State-sponsored................................... 1 (annually)................ 1 (annually).
----------------------------------------------------------------------------------------------------------------
In response to comments, the final rule includes Sec. 49.20(d) to
clarify that a portion of the training at each covered mine must be
conducted underground.
f. Integration of Mine Rescue Team Training Requirements
The two new categories of training for mine rescue team members,
participation in mine rescue contests and participation in training at
the covered mines, complement the existing training. The final rule
retains existing requirements for training sessions underground every 6
months; and the wearing of breathing apparatus for a minimum of 2 hours
every 2 months. MSHA expects operators to integrate the new
requirements, including mine rescue training at the covered mines, with
the existing requirements.
g. Section 49.20(c) Employee of Multiple Mines
The final rule adds this paragraph in response to comments.
Commenters requested that the Agency clarify, for mine rescue team
purposes only, the employment status of an employee who works at
multiple mines for a single operator. For the purpose of mine rescue
team membership, this new provision allows a team member employed by an
operator of multiple mines to be considered an employee of each mine at
which the member regularly works. In this section, MSHA considers
``regularly works'' to mean that the member has recurring job duties at
each mine, exposing the member to the mine's underground operations,
conditions, and environment. For example, this may include surveyors,
engineers, safety personnel, electricians, and maintenance and service
personnel.
3. Section 49.30 Requirements for Small Coal Mines
The final rule, like the proposal, requires that members of mine
rescue teams covering a small mine know the operations and ventilation
of the mine. In response to comments, MSHA clarifies that small coal
mines applies to mines with 36 or fewer underground employees.
Commenters asked MSHA to clarify how the Agency would determine
employment for purposes of the rule. MSHA recognizes that a small
mine's employment may fluctuate from time to time. MSHA expects
operators to use data reported to MSHA for the quarterly employment and
coal production report required in Sec. 50.30 to determine the number
of underground employees working at a mine.
4. Section 49.40 Requirements for Large Coal Mines
The final rule, like the proposal, requires that the mine operator
of a large mine designate either an individual mine-site team or a
composite team as one of the two mine rescue teams, consistent with the
MINER Act. The second mine rescue team can be a mine-site, composite,
contract, or State-sponsored team. MSHA clarifies that large coal mines
applies to mines that have more than 36 underground employees. MSHA
recognizes that a large mine's employment may fluctuate from time to
time. MSHA expects operators to use the data reported to MSHA for the
quarterly employment and coal production report required in Sec. 50.30
to determine the number of underground employees working at a mine.
5. Section 49.50 Certification of Mine Rescue Teams
The final rule establishes criteria to certify the qualifications
of mine rescue teams, consistent with the MINER Act.
a. Sec. 49.50(a) Certification Criteria
The final rule, like the proposal, requires that a mine operator
certify that each of the mine's two designated mine rescue teams meet
the requirements of this subpart. The certification criteria include a
certification statement, equipment and training requirements, and the
frequency of certification. As in the proposed rule, to be certified,
the mine rescue team must be available when miners are underground and
within 1 hour ground travel time from the mine rescue station to the
mine; team members must be physically fit, experienced working in an
underground mine, and properly trained; and the mine rescue station
must be adequately equipped. The criteria for these qualifications are
contained in the final rule.
[[Page 7643]]
A commenter asked MSHA to clarify whether a mine rescue team member
may complete an annual certification statement. Like the proposal, the
final rule does not address who completes the annual certification
statement. To comply with this requirement, the mine operator must
certify and submit the annual certification statement to the District
Manager.
One commenter objected to operator certification of mine rescue
teams because it does not provide for an objective review of a team's
abilities. This commenter also expressed concern about MSHA's
``lifetime certification'' of mine rescue instructors and suggested
that MSHA require instructors to demonstrate routinely their skill and
understanding of mine rescue. The final rule provides that a local mine
rescue contest is training that provides an objective evaluation of
demonstrated mine rescue team skills. MSHA considers the evaluations of
team performance at the two required local mine rescue contests to be
an objective test and evaluation of a mine rescue team's abilities.
In response to comments, MSHA has added a requirement in the
certification table that judges must certify the results of the two
local contests. This will serve to provide further evidence of an
objective evaluation of a team's abilities. The final rule requires
that contest judges complete annual training for mine rescue contest
judges. As required by the final rule, a local mine rescue contest must
use the National Mine Rescue Contest rules, or other rules recognized
by MSHA. Contest judges receive comprehensive training on contest
rules. At each contest, each mine rescue team has a problem. In
general, judges use the following criteria to evaluate team
performance: (1) Communication with team members; (2) Time taken to
solve problem; (3) Accuracy of markings, e.g. on maps; (4) Team
effectiveness in solving problem; (5) Team effectiveness in handling
first responder activities, e.g. first-aid; and (6) Team's use of
technology, e.g. testing for methane and other gasses. Teams receive
discounts for mistakes, and an overall score. Periodically, MSHA will
monitor mine rescue team instructor activities. When a judge finds that
a team does not meet minimum skills, MSHA will audit the training and
notify the District Manager. Based on this audit, MSHA may revoke the
instructor's approval.
For further ease of understanding, MSHA divided the proposed Table
on Certification into two tables in the final rule. Table 49.50-A lists
the initial criteria to certify the qualifications of mine rescue
teams. Table 49.50-B lists the annual criteria to maintain mine rescue
team certification. New teams will have to meet these requirements.
In response to comments, this final rule includes an optional
certification form that operators may use to assist them in complying
with this section. This optional form is attached as an appendix to
this rule. The form is posted on MSHA's Web site. MSHA will accept
certification statements in all formats, both electronic and paper.
(b) Sec. 49.50(b) District Manager Notification
The final rule includes a new requirement that an operator must
notify the District Manager within 60 days of any change in team
membership. Commenters stated that the membership of each team is
subject to change and questioned the impact of changes on team
certification. MSHA clarifies that a team does not automatically lose
its certification when a team replaces a member. Under the final rule,
the operator has 60 days in which to notify the District Manager of any
change so that MSHA can assure continued compliance.
6. Section49.60 Requirements for a Local Mine Rescue Contest
The final rule, like the proposal, includes criteria for a local
mine rescue contest. It also requires that, when requested, the mine
operator must provide information to the District Manager concerning
each designated team's schedule of participation in upcoming local mine
rescue contests.
Paragraph (a) of this section in the final rule requires that a
local mine rescue contest is: conducted in the United States; uses MSHA
recognized rules; has a minimum of 3 teams; and has one or more
problems conducted on one or more days with a determined winner.
With respect to the requirement that contests use MSHA-recognized
rules, commenters stated that all contests should use MSHA National
Contest rules; others indicated that contests should concentrate on the
practical aspects of mine rescue and not focus on compliance with
rules. Some said the contest rules may be too restrictive. Like the
proposal, the final rule does not require contest organizers to use the
National Mine Rescue Contest Rules; it allows other rules recognized by
MSHA.
Commenters wanted MSHA to clarify the term ``participate,'' as used
in the proposal. As is existing practice, MSHA recognizes a team as
participating when the team is present and competes. Also, in response
to comments, MSHA will consider State-sponsored teams, whose members
are full-time state employees, as participating in a local mine rescue
contest when performing duties as contest judges or officials.
One commenter supported the proposed requirement stating that this
would allow companies to put on their own mine rescue contests and have
intra-company training. Another commenter questioned whether permitting
competitions with as few as three participating teams is adequate. As
stated in the proposal, MSHA intends that requiring a minimum of three
teams for a local mine rescue contest will encourage more contests
among teams in close geographic proximity. Therefore, the final rule
requires a minimum of three competing teams in a local mine rescue
contest.
Commenters indicated that participation in a mine rescue contest is
an opportunity to demonstrate the results of training. Teams spend a
lot of time preparing for contests. As stated in the proposal, teams
must prepare to compete as if the contest were an actual mine
emergency. MSHA agrees that preparation for a contest is a vital
component of team training, along with the interaction with other teams
and the evaluation provided by judges. Competing while being timed,
observed, and judged creates a stressful environment that provides an
effective forum for evaluating and testing the team's level of
knowledge and skill under simulated mine emergency conditions. The
ability to make effective decisions quickly, while under stress and
wearing breathing apparatus, is a vital skill for each mine rescue team
member to develop.
Most commenters agreed that, in order for judges to administer the
mine rescue contest fairly and provide appropriate and meaningful
evaluations, judges should have a strong background in mine rescue. In
addition, most commenters agreed that there should be prescribed areas
of annual training for contest judges, but did not want a minimum
required amount of time. Some stated that judges' training on the rules
should address changes in the rules only. MSHA disagrees because
training should always be comprehensive. This strengthens existing
skills and knowledge and accommodates new judges. Some commenters
indicated that persons with knowledge of mine rescue principles and
practices and experienced in mine rescue should be allowed to serve as
judges for local contests. Some said that only MSHA or State personnel
should judge contests. A few commenters stated that judges should have
actual mine
[[Page 7644]]
rescue experience, preferably experience in an actual emergency. MSHA
believes that the annual rules training is sufficient to adequately
train judges.
Paragraph (b) of this section in the final rule clarifies that a
local mine rescue contest provides an objective evaluation of
demonstrated mine rescue team skills. A number of commenters indicated
that there are other simulated mine rescue team exercises that also
enhance mine rescue skills and provide an evaluation of the team's
performance. A few commenters expressed concern that MSHA proposed
other simulated mine rescue team exercises as a substitute for a local
mine rescue contest. A local mine rescue contest provides an objective
evaluation of demonstrated mine rescue team skills. In response to
these comments, the final rule clarifies that a MERD exercise or
practical simulation exercise, such as a fire or explosion response
exercise, can be a local mine rescue contest for purposes of this
provision. MSHA recognizes that the benefit of preparing for a contest
is as valuable as competing.
Some commenters said that scheduling issues may preclude some mines
from participating in two local mine rescue contests and that
additional opportunities to participate in other types of simulated
mine rescue exercises allows teams to satisfy this requirement.
Two commenters stated that MSHA cannot allow substitution of other
training for participation in local mine rescue contests because the
MINER Act mandates that teams must participate at least annually in two
local mine rescue contests. As stated previously, MSHA considers that
participation in simulated mine rescue team exercises, where the
members wear breathing apparatus, demonstrate mine rescue team skills,
and receive an evaluation of team performance fosters an environment
conducive to increased preparation for mine rescue and mine emergency
response.
As stated in the preamble to the proposed rule, MSHA considers
actual underground participation in a rescue or recovery operation as a
substitute for participation in a local mine rescue contest.
The final rule requires mine operators to notify the appropriate
District Manager, on request, when and where their designated teams
plan to participate in mine rescue contests. This notice allows MSHA
time to prepare for attending the contest and to provide assistance as
necessary. This notice also allows MSHA to verify that the contest
meets the requirements of this final rule.
IV. Regulatory Economic Analysis
A. Executive Order 12866
Executive Order (E.O.) 12866 as amended by E.O. 13258 (Amending
Executive Order 12866 on Regulatory Planning and Review) requires that
regulatory agencies assess both the costs and benefits of regulations.
To comply with E.O. 12866, MSHA has prepared a Regulatory Economic
Analysis (REA) for the final rule. The REA contains supporting data and
explanation for the summary materials presented in this preamble,
including the covered mining industry, costs and benefits, feasibility,
small business impacts, and paperwork. The REA is located on MSHA's Web
site at http://www.msha.gov/REGSINFO.HTM. A copy of the REA can be
obtained from MSHA's Office of Standards, Regulations, and Variances at
the address in the ADDRESSES section of this preamble.
Executive Order 12866 requires that regulatory agencies assess both
the costs and benefits of significant regulatory actions. Under the
Executive Order, a ``significant regulatory action'' is one meeting any
of a number of specified conditions, including the following: Having an
annual effect on the economy of $100 million or more, creating a
serious inconsistency or interfering with an action of another,
materially altering the budgetary impact of entitlements or the rights
of entitlement recipients, or raising novel legal or policy issues.
Based on the REA, MSHA has determined that the final rule does not have
an annual effect of $100 million or more on the economy and that,
therefore, it is not an economically ``significant regulatory action''
pursuant to section 3(f) of E.O. 12866. MSHA, however, has concluded
that the final rule is otherwise significant under Executive Order
12866 because it raises novel legal or policy issues.
B. Population at Risk
The rule applies to 653 underground coal mines covering 42,597
miners and 8,250 (non-office) contractors. Table 2 shows summary data
for underground coal mines.
Table 2.--Summary Data for Underground Coal Mines
--------------------------------------------------------------------------------------------------------------------------------------------------------
Number of
Number of Total number employees Annual revenue Annual cost
Mine size \a\ mines of miners \b\ underground (billions) (millions) Cost per mine
\b\
--------------------------------------------------------------------------------------------------------------------------------------------------------
1-19.................................................... 220 2,255 1,952 $0.3 $1.1 $5,200
20-500.................................................. 420 32,852 29,742 10.3 3.4 8,200
>500.................................................... 13 7,490 6,503 3.1 0.2 13,400
All Mines............................................... 653 42,597 38,197 13.7 4.8 7,400
--------------------------------------------------------------------------------------------------------------------------------------------------------
\a\ Size based on total mine employment.
\b\ Does not include 1,188 office workers or 8,250 (non-office) contractor employees, 4,096 of which work underground.
C. Costs
Table 3 shows a summary of the total yearly cost of this rule for
mine operators. MSHA estimates that the rule will result in total
yearly costs for the underground coal mining industry of approximately
$4.8 million. Disaggregated by mine size, yearly costs will be $1.1
million (or approximately $5,200 per mine) for mine operators with
fewer than 20 employees; $3.4 million (or about $8,200 per mine) for
mine operators with 20-500 employees; and $0.2 million (or about
$13,400 per mine) for mine operators with more than 500 employees. All
cost estimates are presented in 2006 dollars.
[[Page 7645]]
Table 3.--Summary of Total Yearly Cost of the Rule for Underground Coal Mine Operators
----------------------------------------------------------------------------------------------------------------
Mine size
Section ------------------------------------------------ Total yearly
1-19 20-500 501+ cost
----------------------------------------------------------------------------------------------------------------
One Hour from Mine Rescue Station to Mine \a\... $559,407 $292,982 $7,000 $859,390
Mine Rescue Team Training \b\................... 379,967 2,225,222 119,768 2,724,956
Mine Rescue Contests \c\........................ 91,915 552,810 30,037 674,762
Certification of Mine Rescue Teams \d\.......... 8,161 15,580 482 24,223
Responsible Person Training & Certification \e\. 95,047 362,906 16,849 474,803
---------------------------------------------------------------
Total....................................... 1,134,497 3,449,500 174,137 4,758,134
----------------------------------------------------------------------------------------------------------------
For purposes of the mine rescue team final rule, MSHA has broken
down total compliance costs for mines with 1-36 employees and mines
with 37 or more employees. Of the $4.8 million total yearly cost of the
final rule, underground coal mines with 1-36 employees will incur costs
of approximately $2.0 million per year and underground coal mines with
37 or more employees will incur costs of approximately $2.8 million per
year.
In addition, the final rule will impose costs on State-sponsored
mine rescue teams. As shown in Table 4, the total yearly cost of the
final rule for State-sponsored mine rescue teams will be about $66,000.
Of this, $57,000 will be for training and $8,000 will be for
participation in one local mine rescue contests.
Table 4.--Summary of Total Yearly Cost of the Final Rule for State Mine Rescue Teams
----------------------------------------------------------------------------------------------------------------
Mine size
Section ------------------------------------------------ Total yearly
1-19 20-500 501+ cost
----------------------------------------------------------------------------------------------------------------
Mine Rescue Team Training \a\................... $24,905 $31,869 $708 $57,482
Mine Rescue Contests \b\........................ 6,466 8,486 159 15,111
---------------------------------------------------------------
Total....................................... 31,371 40,355 867 72,593
----------------------------------------------------------------------------------------------------------------
These cost estimates reflect the new requirements in the final rule
that no mine served by a mine rescue team be more that one hour ground
travel time from the mine rescue station with which the rescue team is
associated. The costs are also related to final rule requirements that
each mine rescue team, except for qualified State teams, participate in
at least two local mine rescue contests annually and that teams train
at the mines serviced by the team. To fully address all of the training
requirements in the MINER Act, mine rescue team members must have at
least 96 hours of refresher training annually, which can include travel
time from the mine rescue station to the covered mine and up to 16
hours of participation in mine rescue contests. MSHA estimates that the
additional cost attributable to training, relative to the proposed
rule, is approximately $600,000. Also, the final rule requires that all
underground coal mine operators certify that each of the mine's
designated rescue teams meet the requirements of Sec. 49.50, that the
operator have a person employed on each shift who is knowledgeable in
mine emergency response, and that the responsible person be trained in
a course prescribed by MSHA's Office of Educational Policy and
Development.
These cost estimates are based on a number of assumptions, informed
by public comments on the proposed rule, that MSHA made with respect to
anticipated industry and State responses to the final rule: (1) 28 mine
rescue stations will be added to the 92 stations currently serving
underground coal mines and 5 mine rescue stations will be relocated;
(2) an additional 68 mine rescue teams will be formed; and (3) none of
the existing 145 mine rescue teams will disband. In addition, although
MSHA is aware that the requirements in the final rule may cause States
to increase the number of State-sponsored mine rescue teams and
stations, the Agency assumed no change in the existing level of these
services in response to the final rule. MSHA also made various changes
to its cost estimates in response to public comments on the proposed
rule. These changes are discussed in detail in the REA.
D. Benefits
The purpose of this rule is to enhance the availability and
effectiveness of mine rescue teams in the event of an emergency
situation at an underground coal mine. Mine operators often rely on
mine rescue teams to save miners during an underground emergency such
as an explosion, fire, roof fall, or water inundation. In such a
situation, the timely arrival of a properly-trained mine rescue team
can sometimes mean the difference between life and death. In most
instances, other types of rescue units, e.g., a rescue squad from the
local fire department, are unlikely to have the specialized training
and equipment to respond effectively to an emergency due to the
hazardous nature of the underground coal mine environment.
A good mine rescue team will have knowledge and familiarity with
the mine layout, including the designated escapeways, intakes, returns,
locations and types of fire fighting equipment, the communication
system, mine-wide monitoring system, the type of transportation
equipment used at the mine, the location of stored SCSRs, lifelines,
breathable air, hardened rooms, and other emergency response equipment
or supplies; know the mine's roof conditions and ventilation system;
and have an established working relationship with mine management and
among the team members. These factors provide for more efficient
decision-making during an emergency and increased confidence in the
personnel who implement these decisions.
MSHA has qualitatively determined that the final rule will make
coal mine rescue teams better able to respond to emergencies when a
quick response by rescue teams is vital to miners. The final
[[Page 7646]]
rule will improve overall mine rescue service in three areas:
It will improve mine emergency response time by requiring
that mine rescue team members be available at the mine within 1 hour
ground travel time from the mine rescue station.
It will increase the quality and effectiveness of training
by requiring team members to be familiar with the covered mines'
operations, participate in training at the covered mines, and
participate in two local mine rescue contests. A portion of the
training must be conducted underground. This training will enhance the
team's knowledge of the underground environment and provide firsthand
experience of the underground mining conditions.
It will strengthen the requirements for knowledge and
experience of mine rescue team members by requiring them to have
knowledge of the operations and ventilation of the covered mines and by
requiring contract team members to have at least 3 years underground
coal mine experience within the 10-year period preceding their
employment on the contract team.
The final rule will also increase awareness of the mine operator by
requiring the operator to provide two certified mine rescue teams and
to have a responsible person knowledgeable in mine emergency response
on each shift. The final rule includes criteria for certifying mine
rescue teams and clarifies training requirements for the knowledgeable
person.
Team members employed at a mine must be knowledgeable in mine
gases, ventilation, first aid, and other health and safety subjects as
they apply generally and at the covered mine. Their level of mine
rescue training, combined with their everyday presence during the
normal work cycle, provides an added measure of safety for each worker
at the mine.
The final rule increases the 40-hour annual refresher training
requirement to 96 hours from 64 hours in the proposed rule. This
additional annual refresher training is necessary to fully address all
of the training requirements in the MINER Act and the recommendations
of the Mine Safety Training and Technology Commission. It will allow
teams to adequately prepare for mine rescue team service. The
additional training enhances teams' skills in interacting with a
command center. The additional training could include: first responder
training, communications, mine gases, gas detectors, new technology,
heat stress, and hazard training unique to the covered mines.
Additional skills training may include building temporary stoppings and
seals, using a foam generator underground, and using an air lock to
rescue survivors. Based on the Commission's recommendations and MSHA's
experience, this additional training will enhance teams' skills and
abilities. In addition, MSHA anticipates that the additional hours of
training will provide an incremental increase in safety for underground
coal miners.
The final rule also requires mine rescue team members to
participate in two local mine rescue contests each year. Mine rescue
contests serve a vital role in achieving the purpose of the MINER Act
to improve the safety of mines and mining. Historically, they have
served to assure that mine rescue teams are well-trained and capable of
responding to mine emergencies. They provide a practical forum to
objectively evaluate a team's skills and abilities. The final rule will
allow up to 16 hours of credit for participation in the two required
mine rescue contests.
V. Feasibility
MSHA has concluded that the requirements of the final rule are
technologically and economically feasible.
A. Technological Feasibility
This final rule is not a technology-forcing standard and does not
involve new scientific knowledge. The requirements of the rule involve
training and purchase of equipment and a requirement that the mine
rescue station be located closer, within 1 hour (rather than 2 hours)
ground travel time to the covered mines. MSHA estimates that this
requirement will necessitate additional mine rescue stations and mine
rescue teams. MSHA has concluded that the final rule is technologically
feasible.
B. Economic Feasibility
The total cost of the final rule is approximately $4.8 million
annually for all underground coal mine operators. These compliance
costs are under one percent of the yearly revenues of $13.7 billion for
these underground coal mine operators. MSHA concludes that the final
rule is economically feasible.
VI. Regulatory Flexibility Act and Small Business Regulatory
Enforcement Fairness Act
Pursuant to the Regulatory Flexibility Act (RFA) of 1980, as
amended by the Small Business Regulatory Enforcement Fairness Act
(SBREFA), MSHA analyzed the impact of the final rule on small entities.
Based on that analysis, MSHA notified the Chief Council for Advocacy,
Small Business Administration (SBA), and made the certification under
the Regulatory Flexibility Act at 5 U.S.C. 605(b) that the final rule
does not have a significant economic impact on a substantial number of
small entities. The factual basis for this certification is presented
in full in Chapter V of the REA and in summary form below.
A. Definition of a Small Mine
Under the RFA, in analyzing the impact of a rule on small entities,
MSHA must use the Small Business Administration's (SBA's) definition
for a small entity, or after consultation with the SBA Office of
Advocacy, establish an alternative definition for the mining industry
by publishing that definition in the Federal Register for notice and
comment. MSHA has not established an alternate definition and is
required to use the SBA definition. The SBA defines a small entity in
the mining industry as an establishment with 500 or fewer employees.
MSHA has also examined the impact of this rule on underground coal
mines with fewer than 20 employees, which MSHA has traditionally
referred to as ``small mines.'' These small mines differ from larger
mines not only in the number of employees, but also in economies of
scale in material produced, in the type and amount of production
equipment, and in supply inventory. Therefore, the cost of complying
with MSHA's final rule and the impact of the final rule on small mines
will also be different.
In addition, MSHA has examined the cost of compliance for
underground coal mines with 36 or fewer employees, consistent with the
requirements of the MINER Act. The detailed factual basis below also
shows the economic impact on underground coal mines with 36 or fewer
employees.
B. Factual Basis for Certification
MSHA initially evaluates the economic impact of a rule on ``small
entities'' by comparing the estimated costs of the rule for small
entities to their estimated revenues. When estimated costs are less
than one percent of estimated revenues for the size categories
considered, MSHA believes it is generally appropriate to conclude that
there is not a significant economic impact on a substantial number of
small entities. If the estimated costs are equal to or exceed one
percent of revenues, MSHA will investigate whether a further analysis
is required. For this final rule, MSHA has determined that the
estimated costs are less than one percent of the estimated revenues.
Therefore, MSHA certifies that this final
[[Page 7647]]
rule does not have a significant economic impact on a substantial
number of small entities.
Coal mining revenues are derived from data on the price of coal and
total coal production. Total underground coal production in 2006 was
359 million tons. The price of underground coal in 2006 was $38.28 per
ton.\1\ Thus, based on the total amount of coal production and the cost
of coal per ton, the total estimated revenue in 2006 for underground
coal production was $13.7 billion. Using the same approach, the
estimated 2006 underground coal revenue by employment size category is
approximately $0.3 billion for 220 mines with 1-19 employees, $1.4
billion for 399 mines with 1-36 employees, and $10.6 billion for 640
mines with 1-500 employees.
---------------------------------------------------------------------------
\1\ U.S. Dept. of Energy, Energy Information Administration,
``Annual Coal Report 2006,'' Table 28, October 2007.
---------------------------------------------------------------------------
The final rule results in an average yearly cost per underground
coal mine of $5,157 for mines with 1-19 employees; $4,908 for mines
with 1-36 employees; and $7,162 for mines with 1-500 employees. The
average yearly cost per mine for all underground coal mines is $7,287.
When dividing the yearly compliance costs by the annual revenues in
each mine size category, the cost of the rule for underground coal
mines is 0.38% of revenues for mines with 1-19 employees, 0.14% of
revenues for mines with 1-36 employees, and 0.04% of revenues for mines
with 1-500 employees. The cost as a percentage of revenues for all
underground coal mines will be approximately 0.03%.
When applying MSHA's and SBA's definition of small entities, the
annual cost of the final rule for small mines is substantially less
than one percent of their estimated annual revenues. MSHA has certified
that the final rule does not have a significant economic impact on a
substantial number of small entities that are covered by the final
rule.
VII. Paperwork Reduction Act of 1995
A. Summary
The mine rescue team final rule retains the existing paperwork
burden requirements and imposes several new paperwork burden
requirements. Final Sec. 49.16 requires certification of inspection
and testing of breathing apparatus, as well as a record of any
corrective action taken for breathing apparatus. Final Sec. 49.18
requires preparation of training materials for new mine rescue team
members and a record of each new mine rescue team member's training.
The Office of Management and Budget (OMB) has approved these
requirements, which are in existing Sec. Sec. 49.6 and 49.8, under OMB
control number 1219-0078. Final Sec. 49.50 contains a new annual
paperwork requirement for mine operators to certify that each
designated mine rescue team meets the requirements of this part. Final
Sec. 75.1501 also requires mine operators to certify that each
responsible person has completed the required mine emergency response
training.
Overall, the underground coal industry will incur approximately
1,387 paperwork burden hours annually with associated paperwork burden
costs of approximately $61,587.
MSHA estimates that the final rule will require additional mine
rescue teams and equipment. Existing standards require information
collection for mine rescue teams and equipment. MSHA will add the
information collection burden for additional teams and equipment to
that approved under existing Office of Management and Budget (OMB)
control number 1219-0078.
For a detailed explanation of how the burden hours and related
costs were calculated, see the Paperwork Section of the Regulatory
Economic Analysis (REA) accompanying this final rule. The REA is posted
on MSHA's Web site at http://www.msha.gov/REGSINFO.HTM. A copy of the
REA can be obtained from MSHA's Office of Standards, Regulations, and
Variances at the address provided in the ADDRESSES section of this
preamble.
B. Procedural Details
The information collection package was submitted to OMB with the
proposed rule for review under 44 U.S.C. 3504, paragraph (h) of the
Paperwork Reduction Act of 1995, as amended. A copy of the information
collection package can be obtained from the Department of Labor by
electronic mail request to king.darrin@dol.gov or by phone request to
202-693-4129.
Since the proposed rule was published, MSHA has not received any
substantive comments on the paperwork collection.
VIII. Other Regulatory Considerations
A. The Unfunded Mandates Reform Act of 1995
MSHA has reviewed the final rule under the Unfunded Mandates Reform
Act of 1995 (2 U.S.C. 1501 et seq.). The final rule will not increase
private sector expenditures by more than $100 million annually; nor
will it significantly or uniquely affect small governments. The final
rule may result in increased expenditures by State, local, or tribal
governments, however, because it places new requirements on underground
coal mine operators in providing and training mine rescue teams. These
changes will not directly affect States or their relationships with the
national government; however, some States sponsor mine rescue teams.
B. The Treasury and General Government Appropriations Act of 1999:
Assessment of Federal Regulations and Policies on Families
Section 654 of the Treasury and General Government Appropriations
Act of 1999 (5 U.S.C. 601 note) requires agencies to assess the impact
of agency actions on family well-being. MSHA has determined that this
final rule will have no effect on family stability or safety, marital
commitment, parental rights and authority, or income or poverty of
families and children. Accordingly, MSHA certifies that this final rule
will not impact family well-being.
C. Executive Order 12630: Government Actions and Interference With
Constitutionally Protected Property Rights
This final rule will not implement a policy with takings
implications. Accordingly, E.O. 12630 requires no further Agency action
or analysis.
D. Executive Order 12988: Civil Justice Reform
This final rule was written to provide a clear legal standard for
affected conduct and was carefully reviewed to eliminate drafting
errors and ambiguities, so as to minimize litigation and undue burden
on the Federal court system. Accordingly, this final rule meets the
applicable standards provided in Section 3 of E.O. 12988.
E. Executive Order 13045: Protection of Children From Environmental
Health Risks and Safety Risks
This final rule will have no adverse impact on children.
Accordingly, E.O. 13045 requires no further Agency action or analysis.
F. Executive Order 13132: Federalism
Executive Order (E.O.) 13132 requires MSHA to develop an
accountability process to ensure a meaningful and timely input by State
and local officials in the development of regulatory policies that have
``federalism implications.'' Policies that have federalism implications
are defined as having ``substantial direct effects on the States, on
the relationship between the national government and the States, or on
the distribution of power and
[[Page 7648]]
responsibilities among the various levels of government.'' The final
rule places new requirements on underground coal mine operators in
providing and training mine rescue teams. These changes will not
directly affect States or their relationships with the Federal
government. Although the final rule does not directly affect States,
some States sponsor mine rescue teams.
G. Executive Order 13175: Consultation and Coordination With Indian
Tribal Governments
This final rule does not have ``tribal implications,'' because it
will not ``have substantial direct effects on one or more Indian
tribes, on the relationship between the Federal government and Indian
tribes, or on the distribution of power and responsibilities between
the Federal government and Indian tribes.'' Accordingly, E.O. 13175
requires no further Agency action or analysis.
H. Executive Order 13211: Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use
Executive Order 13211 requires agencies to publish a statement of
energy effect when a rule has a significant energy action that
adversely affects energy supply, distribution, or use. MSHA has
reviewed the final rule for its impact on the supply, distribution, and
use of energy because it applies to the underground coal mining
industry. Because this final rule results in yearly costs of
approximately $4.8 million to the underground coal mining industry,
relative to annual revenues of $13.1 billion in 2006, it is not a
significant energy action because it will not be likely to have a
significant adverse effect on the supply, distribution, or use of
energy. Accordingly, E.O. 13211 requires no further Agency action.
I. Executive Order 13272: Proper Consideration of Small Entities in
Agency Rulemaking
MSHA has thoroughly reviewed the final rule to assess and take
appropriate account of its potential impact on small businesses, small
governmental jurisdictions, and small organizations. MSHA has
determined and certified that the final rule does not have a
significant economic impact on a substantial number of small entities.
List of Subjects in 30 CFR Parts 49 and 75
Education and training, Mine safety and health, Reporting and
recordkeeping requirements.
Dated: February 1, 2008.
Richard E. Stickler,
Acting Assistant Secretary for Mine Safety and Health.
0
For the reasons set out in the preamble, and under the authority of the
Federal Mine Safety and Health Act of 1977 as amended by the Mine
Improvement and New Emergency Response Act of 2006, MSHA amends chapter
I of title 30 of the Code of Federal Regulations as follows.
PART 49--MINE RESCUE TEAMS
0
1. The authority citation for part 49 is revised to read as follows:
Authority: 30 U.S.C. 811, 825(e).
Subpart A--Mine Rescue Teams for Underground Metal and Nonmetal
Mines
0
2. Add a new subpart A with the heading as shown above consisting of
existing Sec. Sec. 49.1 through 49.9.
Sec. 49.10 [Removed]
0
3. Remove Sec. 49.10.
0
4. Add new subpart B to read as follows:
Subpart B--Mine Rescue Teams for Underground Coal Mines
Sec.
49.11 Purpose and scope.
49.12 Availability of mine rescue teams.
49.13 Alternative mine rescue capability for small and remote mines.
49.14 Reserved.
49.15 Mine rescue station.
49.16 Equipment and maintenance requirements.
49.17 Physical requirements for mine rescue team.
49.18 Training for mine rescue teams.
49.19 Mine emergency notification plan.
49.20 Requirements for all coal mines.
49.30 Requirements for small coal mines.
49.40 Requirements for large coal mines.
49.50 Certification of coal mine rescue teams.
49.60 Requirements for a local mine rescue contest.
Appendix to Subpart B--Optional Form for Certifying Mine Rescue Teams
Subpart B--Mine Rescue Teams for Underground Coal Mines
Sec. 49.11 Purpose and scope.
(a) This subpart implements the provisions of section 115(e) of the
Federal Mine Safety and Health Act of 1977, as amended by the Mine
Improvement and New Emergency Response (MINER) Act of 2006. Every
operator of an underground coal mine shall assure the availability of
mine rescue capability for purposes of emergency rescue and recovery.
(b) The following Table 49.11 summarizes the new requirements for
mine rescue teams contained in section 4 of the MINER Act.
Table 49.11.--Summary of New MINER Act Requirements for Underground Coal Mine Operators and Mine Rescue Teams
----------------------------------------------------------------------------------------------------------------
Type of mine rescue team
Requirement -------------------------------------------------------------------------------
Mine-site Composite Contract State-sponsored *
----------------------------------------------------------------------------------------------------------------
Team members must participate at YES............... YES............... YES............... YES.
least annually in two local
mine rescue contests.
Team members must participate in Annually.......... Semi-annually..... Quarterly at Large Annually.
mine rescue training at each Mines; Semi-
mine covered by the mine rescue annually at Small
team. A portion of the training Mines.
must be conducted underground.
Team must be available at the YES............... YES............... YES............... YES.
mine within 1 hour ground
travel time from the mine
rescue station.
Team members must be YES............... YES............... YES............... YES.
knowledgeable about the
operations and ventilation of
each covered mine.
Team must include at least two .................. YES............... .................. ..................
active employees from each
covered large mine and at least
one active employee from each
covered small mine.
[[Page 7649]]
Team must be comprised of .................. .................. YES............... ..................
persons with a minimum of 3
years underground coal mine
experience that shall have
occurred within the 10-year
period preceding their
employment on the contract mine
rescue team.
All mine operators must provide
for two certified mine rescue
teams. Large mine operators
shall provide one team that is
either an individual mine-site
mine rescue team or a composite
team.
----------------------------------------------------------------------------------------------------------------
* Note: Team members of State-sponsored teams who are full-time State employees whose primary job duties include
(1) inspecting underground mines for compliance with State safety laws or (2) training mine rescue teams or
(3) other similar duties that would enhance their mine rescue knowledge may substitute their regular job
experience for 50 percent of the training requirements (annual training which includes mine rescue contests
and mine-site training) for non-State employee mine rescue team members.
Sec. 49.12 Availability of mine rescue teams.
(a) Except where alternative compliance is permitted for small and
remote mines (Sec. 49.13), every operator of an underground mine
shall:
(1) Establish at least two mine rescue teams which are available at
all times when miners are underground; or
(2) Enter into an arrangement for mine rescue services which
assures that at least two mine rescue teams are available at all times
when miners are underground.
(b) Each mine rescue team shall consist of five members and one
alternate who are fully qualified, trained, and equipped for providing
emergency mine rescue service. Mine rescue teams for anthracite coal
mines, which have no electrical equipment at the face or working
section, shall consist of at least three members per team and one
alternate that may be shared between both teams.
(c) To be considered for membership on a mine rescue team, each
person must have been employed in an underground mine for a minimum of
1 year within the past 5 years, except that members of contract mine
rescue teams shall have a minimum of 3 years underground coal mine
experience that shall have occurred within the 10-year period preceding
their employment on the contract mine rescue team. For the purpose of
mine rescue work only, miners who are employed on the surface but work
regularly underground shall meet the experience requirement. The
underground experience requirement is waived for those miners on a mine
rescue team on February 8, 2008.
(d) Each operator shall arrange, in advance, ground transportation
for rescue teams and equipment to the mine or mines served.
(e) The required rescue capability shall be present at all existing
underground mines, upon initial excavation of a new underground mine
entrance, or the re-opening of an existing underground mine.
(f) No mine served by a mine rescue team shall be located more than
1 hour ground travel time from the mine rescue station with which the
rescue team is associated.
(g) As used in this subpart, mine rescue teams shall be considered
available where teams are capable of presenting themselves at the mine
site(s) within a reasonable time after notification of an occurrence
which might require their services. Rescue team members will be
considered available even though performing regular work duties or in
an off-duty capacity. The requirement that mine rescue teams be
available shall not apply when teams are participating in mine rescue
contests or providing services to another mine.
(h) Each operator of an underground mine who provides rescue teams
under this section shall send the District Manager a statement
describing the mine's method of compliance with this subpart. The
statement shall disclose whether the operator has independently
provided mine rescue teams or entered into an agreement for the
services of mine rescue teams. The name of the provider and the
location of the services shall be included in the statement. A copy of
the statement shall be posted at the mine for the miners' information.
Where a miners' representative has been designated, the operator shall
also provide the representative with a copy of the statement.
Sec. 49.13 Alternative mine rescue capability for small and remote
mines.
(a) If an underground mine is small and remote, an operator may
provide for an alternative mine rescue capability consistent with
statutory requirements. For the purposes of this subpart only,
consideration for small and remote shall be given where the total
underground employment of the operator's mine and any surrounding
mine(s) within 1 hour ground travel time of the operator's mine is less
than 36.
(b) An application for alternative mine rescue capability shall be
submitted to the District Manager for the district in which the mine is
located for review and approval.
(c) Each application for an alternative mine rescue capability
shall contain:
(1) The number of miners employed underground at the mine on each
shift;
(2) The location of the designated mine rescue station serving the
mine;
(3) The total underground employment of mines within 1 hour ground
travel time of the operator's mine;
(4) The operator's mine fire, ground, and roof control history;
(5) The operator's established escape and evacuation plan;
(6) A statement by the operator evaluating the usefulness of
additional refuge chambers to supplement those which may exist;
(7) A statement by the operator as to the number of miners willing
to serve on a mine rescue team;
(8) The operator's alternative plan for assuring that a suitable
mine rescue capability is provided at all times when miners are
underground; and
(9) Other relevant information about the operator's mine which may
be requested by the District Manager.
(d) A copy of the operator's application shall be posted at the
mine. Where a miners' representative has been designated, the operator
shall also provide the representative with a copy of the application.
(e) In determining whether to approve an application for
alternative compliance, the District Manager shall consider:
[[Page 7650]]
(1) The individual circumstances of the small and remote mine;
(2) Comments submitted by, or on behalf of, any affected miner; and
(3) Whether the alternative mine rescue plan provides a suitable
rescue capability at the operator's mine.
(f) Where alternative compliance is approved by MSHA, the operator
shall adopt the alternative plan and post a copy of the approved plan
(with appropriate MSHA mine emergency telephone numbers) at the mine
for the miners' information. Where a miners' representative has been
designated, the operator shall also provide the representative with a
copy of the approved plan.
(g) The operator shall notify the District Manager of any changed
condition or factor materially affecting information submitted in the
application for alternative mine rescue capability.
(h)(1) An approved plan for alternative mine rescue capability
shall be subject to revocation or modification for cause by MSHA, where
it is determined that a condition or factor has changed which would
materially alter the operator's mine rescue capability. If such action
is contemplated, the operator will be notified, and given an
opportunity to be heard before the appropriate District Manager.
(2) If an application for alternative compliance is denied or
revoked, the District Manager shall provide the reason for such denial
or revocation in writing to the operator. The operator may appeal this
decision in writing to the Administrator for Coal Mine Safety and
Health.
Sec. 49.14 [Reserved]
Sec. 49.15 Mine rescue station.
(a) Every operator of an underground mine shall designate, in
advance, the location of the mine rescue station serving the mine.
(b) Mine rescue stations are to provide a centralized storage
location for rescue equipment. This centralized storage location may be
either at the mine site, affiliated mines, or a separate mine rescue
structure.
(c) Mine rescue stations shall provide a proper storage environment
to assure equipment readiness for immediate use.
(d) Authorized representatives of the Secretary shall have the
right of entry to inspect any designated mine rescue station.
Sec. 49.16 Equipment and maintenance requirements.
(a) Each mine rescue station shall be provided with at least the
following equipment. Mine rescue stations serving underground
anthracite coal mines, which have no electrical equipment at the face
or working section, shall have at least the amount of equipment
appropriate for the number of mine rescue team members.
(1) Twelve self-contained oxygen breathing apparatus, each with a
minimum of 2 hours capacity (approved by MSHA and NIOSH under 42 CFR
part 84, subpart H), and any necessary equipment for testing such
breathing apparatus;
(2) A portable supply of liquid air, liquid oxygen, pressurized
oxygen, oxygen generating or carbon dioxide absorbent chemicals, as
applicable to the supplied breathing apparatus and sufficient to
sustain each team for 6 hours while using the breathing apparatus
during rescue operations;
(3) One extra oxygen bottle (fully charged) for every six self-
contained compressed oxygen breathing apparatus;
(4) One oxygen pump or a cascading system, compatible with the
supplied breathing apparatus;
(5) Twelve permissible cap lamps and a charging rack;
(6) Two gas detectors appropriate for each type of gas which may be
encountered at the mines served;
(7) Two oxygen indicators or two flame safety lamps;
(8) One portable mine rescue communication system (approved under
part 23 of this chapter) or a sound-powered communication system. The
wires or cable to the communication system shall be of sufficient
tensile strength to be used as a manual communication system. These
communication systems shall be at least 1,000 feet in length; and
(9) Necessary spare parts and tools for repairing the breathing
apparatus and communication system.
(b) Mine rescue apparatus and equipment shall be maintained in a
manner that will assure readiness for immediate use. A person trained
in the use and care of breathing apparatus shall inspect and test the
apparatus at intervals not exceeding 30 days and shall certify by
signature and date that the inspections and tests were done. When the
inspection indicates that a corrective action is necessary, the
corrective action shall be made and the person shall record the
corrective action taken. The certification and the record of corrective
action shall be maintained at the mine rescue station for a period of 1
year and made available on request to an authorized representative of
the Secretary.
Sec. 49.17 Physical requirements for mine rescue team.
(a) Each member of a mine rescue team shall be examined annually by
a physician who shall certify that each person is physically fit to
perform mine rescue and recovery work for prolonged periods under
strenuous conditions. The first such physical examination shall be
completed within 60 days prior to scheduled initial training. A team
member requiring corrective eyeglasses will not be disqualified
provided the eyeglasses can be worn securely within an approved
facepiece.
(b) In determining whether a miner is physically capable of
performing mine rescue duties, the physician shall take the following
conditions into consideration:
(1) Seizure disorder;
(2) Perforated eardrum;
(3) Hearing loss without a hearing aid greater than 40 decibels at
400, 1000, and 2000 Hz;
(4) Repeated blood pressure (controlled or uncontrolled by
medication) reading which exceeds 160 systolic, or 100 diastolic, or
which is less than 105 systolic, or 60 diastolic;
(5) Distant visual acuity (without glasses) less than 20/50 Snellen
scale in one eye, and 20/70 in the other;
(6) Heart disease;
(7) Hernia;
(8) Absence of a limb or hand; or
(9) Any other condition which the examining physician determines is
relevant to the question of whether the miner is fit for rescue team
service.
(c) The operator shall have MSHA Form 5000-3 (available at http://www.msha.gov
) certifying medical fitness completed and signed by the
examining physician for each member of a mine rescue team. These forms
shall be kept on file at the mine rescue station for a period of 1
year.
Sec. 49.18 Training for mine rescue teams.
(a) Prior to serving on a mine rescue team each member shall
complete, at a minimum, an initial 20-hour course of instruction as
prescribed by MSHA's Office of Educational Policy and Development, in
the use, care, and maintenance of the type of breathing apparatus which
will be used by the mine rescue team.
(b) Upon completion of the initial training, all team members shall
receive at least 96 hours of refresher training annually, which shall
include participation in local mine rescue contests and training at the
covered mine. Training shall be given at least 8 hours every 2 months
and shall consist of:
(1) Sessions underground at least once each 6 months;
[[Page 7651]]
(2) The wearing and use of the breathing apparatus by team members
for a period of at least 2 hours while under oxygen every 2 months;
(3) Where applicable, the use, care, capabilities, and limitations
of auxiliary mine rescue equipment, or a different breathing apparatus;
(4) Advanced mine rescue training and procedures, as prescribed by
MSHA's Office of Educational Policy and Development;
(5) Mine map training and ventilation procedures; and
(6) The wearing of mine rescue apparatus while in smoke, simulated
smoke, or an equivalent environment at least once during each 12-month
period.
(c) A mine rescue team member will be ineligible to serve on a team
if more than 8 hours of training is missed during 1 year, unless
additional training is received to make up for the time missed.
(d) The training courses required by this section shall be
conducted by instructors who have been employed in an underground mine
and have had a minimum of 1 year experience as a mine rescue team
member or a mine rescue instructor within the past 5 years, and who
have received MSHA approval through:
(1) Completion of an MSHA or State approved instructor's training
course and the program of instruction in the subject matter to be
taught.
(2) Designation by the District Manager as approved instructors to
teach specific courses, based on their qualifications and teaching
experience outlined above. Previously approved instructors need not be
re-designated to teach the approved courses as long as they have taught
those courses within the 24 months prior to the effective date of this
part.
(e) The District Manager may revoke an instructor's approval for
good cause. A written statement revoking the approval together with
reasons for revocation shall be provided the instructor. The affected
instructor may appeal the decision of the District Manager by writing
to the Administrator for Coal Safety and Health. The Administrator
shall issue a decision on the appeal.
(f) Upon request from the District Manager, the operator shall
provide information concerning the schedule of upcoming training.
(g) A record of training of each team member shall be on file at
the mine rescue station for a period of 1 year.
Sec. 49.19 Mine emergency notification plan.
(a) Each underground mine shall have a mine rescue notification
plan outlining the procedures to follow in notifying the mine rescue
teams when there is an emergency that requires their services.
(b) A copy of the mine rescue notification plan shall be posted at
the mine for the miners' information. Where a miners' representative
has been designated, the operator shall also provide the representative
with a copy of the plan.
Sec. 49.20 Requirements for all coal mines.
(a) The operator of each underground coal mine shall make available
two certified mine rescue teams whose members--
(1) Are familiar with the operations of the mine, and
(2) Participate at least annually in two local mine rescue
contests.
(b) Team members shall meet the following:
(1) Mine-site team. Members who work at the mine and participate in
mine rescue training at the mine at least annually.
(2) Composite team. A mine rescue team that covers multiple mines
and whose members--
(i) Include at least two members from each covered large mine and
at least one member from each covered small mine,
(ii) Are knowledgeable about the operations and ventilation of each
covered underground coal mine, and
(iii) Participate in mine rescue training at each covered mine at
least semi-annually.
(3) Contract team. A mine rescue team that is provided by an
arrangement with another coal mine or with a third party and whose
members--
(i) Are knowledgeable about the operations and ventilation of each
covered underground coal mine, and
(ii) Participate in mine rescue training at each covered large mine
at least quarterly and at each covered small mine at least semi-
annually.
(4) State-sponsored team. Members who are State employees and
participate in mine rescue training at each covered mine at least
annually.
(c) For the purpose of mine rescue team membership, a member
employed by an operator of multiple mines is considered to be an
employee of each mine at which the member regularly works.
(d) For the purpose of mine rescue team training at each covered
mine, a portion of the training must be conducted underground.
Sec. 49.30 Requirements for small coal mines.
At mines with 36 or fewer underground employees, mine rescue team
members shall be knowledgeable about the operations and ventilation of
each covered mine.
Sec. 49.40 Requirements for large coal mines.
At mines with more than 36 underground employees, one of the two
certified mine rescue teams shall be an individual mine-site team or a
composite team.
Sec. 49.50 Certification of coal mine rescue teams.
(a) For each mine rescue team designated to provide mine rescue
coverage at an underground coal mine, the mine operator shall send the
District Manager an annual statement certifying that each team meets
the requirements of this subpart as listed in the following Table
49.50-A and Table 49.50-B.
(b) The operator shall notify the District Manager within 60 days
of any change in team membership.
Table 49.50-A.--Initial Criteria To Certify the Qualifications of Mine
Rescue Teams
------------------------------------------------------------------------
Qualification Criteria (30 CFR)
------------------------------------------------------------------------
(1) Team is available at all times when 49.12(a); 49.12(g)
miners are underground.
(2) Except where alternative compliance is 49.12(b)
permitted, team has five members and one
alternate.
(3) Members have experience working in an 49.12(c)
underground coal mine.
(4) Team is available within 1-hour ground 49.12(f)
travel time from the mine rescue station
to the mine.
(5) Appropriate mine rescue equipment is 49.16
provided, inspected, tested, and
maintained.
(6) Members are physically fit............. 49.17
(7) Members have completed initial training 49.18(a)
------------------------------------------------------------------------
[[Page 7652]]
Table 49.50-B.--Annual Criteria To Maintain Mine Rescue Team
Certification
------------------------------------------------------------------------
Qualification Criteria (30 CFR)
------------------------------------------------------------------------
(1) Members are properly trained annually.. 49.18(b)
(2) Members are familiar with the 49.20(a)(1)
operations of each covered mine.
(3) Members participate in at least two 49.20(a)(2)
local mine rescue contests annually.
Judges certify results.
(4) Members participate in mine rescue 49.20(b)(1);
training at each covered mine. 49.20(b)(2)(iii);
49.20(b)(3)(ii);
49.20(b)(4)
(5) Members are knowledgeable about the 49.20(b)(2)(ii);
operations and ventilation of each covered 49.20(b)(3)(i); 49.30
mine.
------------------------------------------------------------------------
Sec. 49.60 Requirements for a local mine rescue contest.
(a) A local mine rescue contest is one that--
(1) Is conducted in the United States;
(2) Uses MSHA-recognized rules;
(3) Has a minimum of three mine rescue teams competing;
(4) Has one or more problems conducted on one or more days with a
determined winner;
(5) Includes team members who--
(i) Have the necessary equipment to participate in a simulated mine
rescue team exercise,
(ii) Participate in a simulated mine rescue team exercise while
being timed and observed by trained judges who evaluate the performance
of each team and provide written feedback, and
(iii) Wear oxygen breathing apparatus while participating in a
simulated mine rescue team exercise; and
(6) Includes contest judges who have completed annual training for
mine rescue contest judges.
(b) A local mine rescue contest is training that provides an
objective evaluation of demonstrated mine rescue team skills and can be
a Mine Emergency Response Development (MERD) exercise or a practical
simulation exercise, such as a fire or explosion drill, where the team
participates in simulated mine rescue team exercises and wears
breathing apparatus.
(c) Upon request from the District Manager, the operator shall
provide information concerning each designated team's schedule of
participation in upcoming local mine rescue contests.
Appendix to Subpart B--Optional Form for Certifying Mine Rescue Teams
BILLING CODE 4510-43-P
[[Page 7653]]
[GRAPHIC] [TIFF OMITTED] TR08FE08.000
[[Page 7654]]
[GRAPHIC] [TIFF OMITTED] TR08FE08.001
[[Page 7655]]
PART 75--[AMENDED]
0
5. The authority citation for part 75 continues to read as follows:
Authority: 30 U.S.C. 811.
0
6. Amend Sec. 75.1501 by revising paragraph (a) to read as follows:
Sec. 75.1501 Emergency evacuations.
(a) For each shift that miners work underground, there shall be in
attendance a responsible person designated by the mine operator to take
charge during mine emergencies involving a fire, explosion, or gas or
water inundation.
(1) The responsible person shall have current knowledge of the
assigned location and expected movements of miners underground, the
operation of the mine ventilation system, the location of the mine
escapeways, the mine communications system, any mine monitoring system
if used, locations of firefighting equipment, the mine's Emergency
Response Plan, the Mine Rescue Notification Plan, and the Mine
Emergency Evacuation and Firefighting Program of Instruction.
(2) The responsible person shall be trained annually in a course of
instruction in mine emergency response, as prescribed by MSHA's Office
of Educational Policy and Development. The course will include topics
such as the following:
(i) Organizing a command center;
(ii) Coordinating firefighting personnel;
(iii) Deploying firefighting equipment;
(iv) Coordinating mine rescue personnel;
(v) Establishing fresh air base;
(vi) Deploying mine rescue teams;
(vii) Providing for mine gas sampling and analysis;
(viii) Establishing security;
(ix) Initiating an emergency mine evacuation;
(x) Contacting emergency personnel; and
(xi) Communicating appropriate information related to the
emergency.
(3) The operator shall certify by signature and date after each
responsible person has completed the training and keep the
certification at the mine for 1 year.
* * * * *
[FR Doc. 08-551 Filed 2-5-08; 2:40 pm]
BILLING CODE 4510-43-C