[Federal Register Volume 60, Number 110 (Thursday, June 8, 1995)]
[Rules and Regulations]
[Pages 30398-30402]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-13286]



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DEPARTMENT OF LABOR

Mine Safety and Health Administration

30 CFR Parts 11, 49, 56, 57, 58, 70, 72, 75

RIN 1219-AA85


Respiratory Protective Devices

AGENCY: Mine Safety and Health Administration, Labor.

ACTION: Final rule.

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SUMMARY: This final rule, in conjunction with the National Institute 
for Occupational Safety and Health (NIOSH) final rule published 
concurrently in this Federal Register, transfers to NIOSH existing Mine 
Safety and Health Administration (MSHA) regulations pertaining to the 
testing, performance, and joint MSHA-NIOSH approval of respirators 
under the Mine Act. MSHA retains existing provisions related to the 
selection, use, and maintenance of respirators for coal and metal and 
nonmetal mines. Under the NIOSH rule, MSHA retains joint approval 
responsibility for certain mining-related respiratory protective 
devices. MSHA's transfer of the respirator approval program to NIOSH 
will more accurately reflect the respective roles of the two agencies 
in the approval of respirators. A memorandum of understanding (MOU) 
between MSHA and NIOSH delineates the roles of both agencies in the 
respirator approval program. This MOU is published elsewhere in this 
separate part of the Federal Register. MSHA's final rule will not 
affect the compliance responsibilities of mine operators.

EFFECTIVE DATE: This final rule is effective on July 10, 1995. The 
incorporation by reference of certain [[Page 30399]] publications 
listed in the regulations is approved by the Director of the Federal 
Register as of July 10, 1995.

FOR FURTHER INFORMATION CONTACT: Patricia W. Silvey, Director, Office 
of Standards, Regulations, and Variances, MSHA, 703-235-1910.

SUPPLEMENTARY INFORMATION:

I. Background

    Until 1972, the U.S. Bureau of Mines (BOM) was solely responsible 
for testing and approving respirators. In 1972, BOM and NIOSH jointly 
published 30 CFR part 11 which replaced BOM's rules and procedures and 
delineated the responsibilities of the two agencies. Under these 
regulations, BOM evaluated respirator performance and NIOSH 
administered the quality control provisions. BOM also tested the 
intrinsic safety of electrical components of respirators intended for 
use in potentially explosive atmospheres in underground mines under the 
requirements of 30 CFR part 18.
    A memorandum of understanding (MOU) between the two agencies, dated 
May 30, 1972, refined their respective roles. In 1973, 30 CFR part 11 
was amended and NIOSH acquired primary responsibility for performance 
testing of respirators, although all approvals continued to be issued 
jointly. BOM retained its responsibility for testing the intrinsic 
safety of electrical components of respirators intended for use in 
underground gassy mines.
    In 1974, the Mining Enforcement and Safety Administration (MESA), 
MSHA's predecessor agency, was created and BOM's responsibilities under 
30 CFR were transferred to that agency. MESA continued to test the 
electrical components of certain respirators for intrinsic safety under 
30 CFR part 18 and issue supplemental approvals permitting these 
components to be used in underground gassy mines.
    When it was created in 1978, MSHA took over the responsibilities 
for respirator testing and approval which previously had been conducted 
by MESA. In addition, MSHA currently reviews applications for 
respirator approvals and has conducted some product evaluations, 
laboratory testing, and quality assurance product audits for certain 
respirators. The testing and approval activities specified by 30 CFR 
part 11 continue to be conducted primarily by NIOSH.

II. Discussion of Final Rule

A. General Discussion

    MSHA is transferring the requirements for approval of respirators 
from 30 CFR part 11 to NIOSH, which is publishing the requirements 
elsewhere in this separate part of the Federal Register as a new 42 CFR 
part 84. To effectuate the transfer, MSHA is publishing this final rule 
removing 30 CFR part 11. NIOSH also is upgrading the testing 
requirements for particulate filters, which improve the current 
approach to evaluating the effectiveness of an air-purifying 
respirator's filter to remove toxic particulates from the ambient air. 
The new testing requirements for particulate filters update existing 
provisions to be consistent with two decades of advances in respiratory 
protection technology.
    Under 42 CFR part 84, MSHA and NIOSH will continue to review and 
jointly approve respirators for mine rescue and other mine emergencies 
and their associated service-life plans and users manuals. These 
respirators include devices such as filter self-rescuers (FSR), self-
contained self-rescuers (SCSR), mine rescue apparatus (long duration, 
closed and open circuit devices), and other self-contained breathing 
apparatus (SCBA). Retention of joint approval under the NIOSH final 
rule preserves MSHA's role in the approval of certain respirators whose 
use in mines is an important part of safeguarding the health and safety 
of miners. In addition, MSHA will continue to test the intrinsic safety 
of electrical components of respirators to be used in underground coal 
mines and underground gassy metal and nonmetal mines and issue a 
separate MSHA approval under 30 CFR part 18 for such respirator 
components.
    To facilitate implementing this rule, NIOSH and MSHA have developed 
a new MOU which delineates the roles of both agencies in the respirator 
approval program. For example, the MOU establishes procedures to be 
followed by both agencies for joint approval of respirators used for 
mine rescue and other mine emergencies; it establishes guidelines for 
consultation and exchange of information between MSHA and NIOSH with 
respect to issues dealing with respirator approval and related matters; 
and it provides that NIOSH and MSHA notify each other immediately of 
field complaints and identified deficiencies concerning approved 
respirators.
    MSHA and NIOSH have coordinated their rulemaking activities to 
ensure that the level of protection provided miners and other affected 
workers by the existing standards will not be lessened. In particular, 
all technical data and commenter information have been shared by the 
respective agencies.

B. Comments to MSHA's Proposed Rule

    MSHA received few comments from the mining community and the 
public. Most comments were addressed to NIOSH. Generally, comments to 
MSHA supported the transfer of the respirator approval program to 
NIOSH. One commenter explained that the transfer and redesignation 
would enhance accountability for regulatory actions, improve and 
expedite the approval process, and consolidate responsibility in one 
agency. This same commenter requested an opportunity to participate in 
the development of the MOU to ensure that MSHA retains a strong role 
with regard to mine-specific respiratory devices because of MSHA's 
expertise in the field. A commenter to NIOSH also expressed concern 
that MSHA's role would be diminished under the transfer and asked to 
participate in the development of the MOU.
    MSHA and NIOSH have concluded that the MOU is most appropriately 
developed by the two agencies because it is an administrative tool to 
delineate their respective roles. The MOU does not impose any 
additional obligations on the mining industry. Recognizing the concerns 
of commenters, however, the MOU carefully details how MSHA will 
continue to have a strong role with respect to respiratory protective 
devices used in the mining industry.
    A commenter requested that MSHA incorporate by reference the most 
recent American National Standards Institute (ANSI) standard for 
respiratory protective devices, ``ANSI Z88.2-1992,'' in the 
recodification of Secs. 11.2-1 and 11.4 which incorporate by reference 
ANSI Z88.2-1969 ``Practices for Respiratory Protection.'' ANSI Z88.2 
addresses respiratory protection programs which include the selection, 
fit, use, and maintenance of respirators. The 1992 ANSI standard 
differs substantively from the 1969 ANSI standard. Incorporating by 
reference the 1992 ANSI standard is beyond the scope of this rulemaking 
which addresses the administrative transfer of the respirator approval 
program to NIOSH and, as discussed below, the nonsubstantive 
recodification of Secs. 11.2-1 and 11.4. Although ANSI Z88.2-1969 is 
retained in this final rule, MSHA currently is addressing respiratory 
protection programs in its air quality rulemaking.

C. Other Sections Affected

    The final rule removes 30 CFR part 11; however, it retains those 
provisions which relate to the selection, use, and maintenance of 
respirators. Section 11.2(a) requires the use of approved respirators 
and the maintenance of such [[Page 30400]] respirators in an approved 
condition. As discussed previously, Secs. 11.2-1 and 11.4 require the 
selection, fitting, use, and maintenance of respirators in accordance 
with ANSI Z88.2. Because these provisions are use-related, as opposed 
to approval-related, MSHA addresses them in separate standards for the 
use of respirators. MSHA had proposed that these provisions be 
recodified in 30 CFR parts 70 and 71. Instead, MSHA is recodifying 
these provisions in 30 CFR part 72, ``Health Standards for Coal Mines'' 
to ease understanding and eliminate duplication. This final rule does 
not change the requirements for metal and nonmetal mines in 30 CFR 56/
57.5005 which already reference ANSI Z88.2-1969.
    This final rule makes conforming, nonsubstantive editorial and 
nomenclature revisions to standards in title 30 that reference the use 
of respirators approved under 30 CFR part 11 to reflect the transfer of 
those standards to 42 CFR part 84. These revisions do not change the 
compliance responsibility of mine operators who continue to be required 
to provide miners with ``approved'' respirators.

D. Grandfathering of Respirators Approved Under 30 CFR Part 11

    Approvals issued under 30 CFR part 11 for all respirators, except 
particulate filter respirators, will be unaffected by 42 CFR part 84. 
For 3 years from July 10, 1995, NIOSH will continue to authorize 
manufacturers to sell, as MSHA-NIOSH ``approved'' devices, particulate 
filter respirators which had been approved under 30 CFR part 11. This 
will allow adequate time for manufacturers to convert to production of 
respirators meeting the new particulate filter requirements of 42 CFR 
part 84. Until supplies of particulate filter respirators which had 
been approved under 30 CFR part 11 are depleted, MSHA will allow their 
use as ``approved'' devices.
    As discussed in the preamble to 42 CFR part 84, applications for 
approval or extensions of approval received prior to the effective date 
of 42 CFR part 84 will be processed under the requirements of 30 CFR 
part 11. Applications for approval or extensions of approval received 
on or after the effective date of 42 CFR part 84 will be processed 
under the provisions of 42 CFR part 84. For additional information on 
the transition from 30 CFR part 11 to 42 CFR part 84, see the NIOSH 
final rule published elsewhere in this separate part of the Federal 
Register.
    The new 42 CFR part 84 does not include the provisions of 30 CFR 
11.2(b) which allowed gas masks approved under the former BOM Schedule 
14F (dated April 23, 1955) to continue to be accepted as ``approved'' 
devices for use in hazardous atmospheres. MSHA's experience indicates 
that few of these 14F gas masks currently are sold or used. As 
indicated in the preamble to 42 CFR part 84, published elsewhere in 
this separate part of the Federal Register, the approval records on 
these BOM-approved respirators no longer exist and, therefore, NIOSH 
has no way of monitoring their production to ensure that they continue 
to meet the approved design. Thus, the removal of the provisions in 30 
CFR 11.2(b) removes the authority to continue marketing these 
respirators as ``approved'' devices.

III. Executive Order 12866 and Regulatory Flexibility Act

    This is not a significant rule under Executive Order 12866. In 
addition, this rule does not have a significant economic impact on a 
substantial number of small entities as it only removes the regulations 
in 30 CFR part 11; retains certain responsibilities for the use of 
respirators in mining; and makes nonsubstantive revisions. The Agency, 
therefore, has not prepared a regulatory flexibility analysis.

IV. Paperwork Reduction Act

    The recordkeeping and reporting requirements in 30 CFR part 11 have 
been transferred to 42 CFR part 84.

List of Subjects

30 CFR Part 11

    Administrative practice and procedure, Mine safety and health, 
Pesticides and pests, Reporting and recordkeeping requirements.

30 CFR Parts 49, 56, 57, 58, 70, and 75

    Mine safety and health, Personal protective equipment, Reporting 
and recordkeeping requirements, Respirators.

30 CFR Part 72

    Coal, Incorporation by reference, Mine safety and health, Personal 
protective equipment, Respirators.

    For the reasons set out in the preamble and under the authority of 
30 U.S.C. 957, 30 CFR chapter I is amended as follows.


Secs. 11.2-1 and 11.4  [Redesignated as Sec. 72.710]

    1. Sections 11.2-1 and 11.4 are redesignated as Sec. 72.710, 
paragraphs (a) and (b) respectively, in subpart E of part 72.

PART 11--[REMOVED]

    2. Part 11 is removed.

PART 49--[AMENDED]

    3. The authority citation for part 49 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 825(e), 957.

    4. Section 49.6 is amended by revising paragraph (a)(1) to read as 
follows:


Sec. 49.6  Equipment and maintenance requirements.

    (a) * * *
    (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;
* * * * *

PART 56--[AMENDED]

    5. The authority citation for part 56 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 957, 961.

    6. Section 56.5005 is amended by revising paragraph (a) to read as 
follows:


Sec. 56.5005  Control of exposure to airborne contaminants.

* * * * *
    (a) Respirators approved by NIOSH under 42 CFR part 84 which are 
applicable and suitable for the purpose intended shall be furnished and 
miners shall use the protective equipment in accordance with training 
and instruction.
* * * * *

PART 57--[AMENDED]

    7. The authority citation for part 57 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 957, 961.

    8. Section 57.5005 is amended by revising paragraph (a) to read as 
follows:


Sec. 57.5005  Control of exposure to airborne contaminants.

* * * * *
    (a) Respirators approved by NIOSH under 42 CFR part 84 which are 
applicable and suitable for the purpose intended shall be furnished and 
miners shall use the protective equipment in accordance with training 
and instruction.
* * * * *
    9. Section 57.5044 is revised to read as follows:


Sec. 57.5044  Respirators.

    In environments exceeding 1.0 WL, miners shall wear respirators 
approved [[Page 30401]] by NIOSH for radon daughters prior to July 10, 
1995 or under the equivalent section of 42 CFR part 84 and such 
respirator use shall be in compliance with Sec. 57.5005.
    10. Section 57.15030 is revised to read as follows:


Sec. 57.15030  Provision and maintenance of self-rescue devices.

    A 1-hour self-rescue device approved by MSHA and NIOSH under 42 CFR 
part 84 shall be made available by the operator to all personnel 
underground. Each operator shall maintain self-rescue devices in good 
condition.
    11. Section 57.22315 is amended by revising the second sentence to 
read as follows:


Sec. 57.22315  Self-contained breathing apparatus (V-A mines).

    * * * Such apparatus shall be approved by MSHA and NIOSH under 42 
CFR part 84 and shall be maintained in accordance with manufacturers' 
specifications. * * *

PART 58--[AMENDED]

    12. The authority citation for part 58 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 957, 961.

    13. Section 58.610 is amended by revising paragraph (a) to read as 
follows:


Sec. 58.610  Abrasive blasting.

    (a) Surface and underground mines. When an abrasive blasting 
operation is performed, all exposed miners shall use in accordance with 
30 CFR 56.5005 or 57.5005 respirators approved for abrasive blasting by 
NIOSH under 42 CFR part 84, or the operation shall be performed in a 
totally enclosed device with the miner outside the device.
* * * * *

PART 70--[AMENDED]

    14. The authority citation for part 70 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 813(h), 957, 961.

    15. Section 70.300 is revised to read as follows:
Sec. 70.300   Respiratory equipment; respirable dust.

    Respiratory equipment approved by NIOSH under 42 CFR part 84 shall 
be made available to all persons whenever exposed to concentrations of 
respirable dust in excess of the levels required to be maintained under 
this part. Use of respirators shall not be substituted for 
environmental control measures in the active workings. Each operator 
shall maintain a supply of respiratory equipment adequate to deal with 
occurrences of concentrations of respirable dust in the mine atmosphere 
in excess of the levels required to be maintained under this part.


Sec. 70.300-1   [Removed]

    16. Section 70.300-1 is removed.
    17. Section 70.305 is revised to read as follows:


Sec. 70.305   Respiratory equipment; gas, dusts, fumes, or mists.

    Respiratory equipment approved by NIOSH under 42 CFR part 84 shall 
be provided to persons exposed for short periods to inhalation hazards 
from gas, dusts, fumes, or mist. When the exposure is for prolonged 
periods, other measures to protect such persons or to reduce the hazard 
shall be taken.


Sec. 70.305-1   [Removed]

    18. Section 70.305-1 is removed.

PART 72--[AMENDED]

    19. The authority citation for part 72 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 813(h), 957, 961.

    20. Section 72.610 is amended by revising paragraph (a) to read as 
follows:


Sec. 72.610   Abrasive blasting.

    (a) Surface and underground mines. When an abrasive blasting 
operation is performed, all exposed miners shall properly use 
respirators approved for abrasive blasting by NIOSH under 42 CFR part 
84, or the operation shall be performed in a totally enclosed device 
with the miner outside the device.
* * * * *
    21. Newly redesignated Sec. 72.710 is revised to read as follows:


Sec. 72.710   Selection, fit, use, and maintenance of approved 
respirators.

    In order to ensure the maximum amount of respiratory protection, 
approved respirators shall be selected, fitted, used, and maintained in 
accordance with the provisions of the American National Standards 
Institute's ``Practices for Respiratory Protection ANSI Z88.2-1969,'' 
which is hereby incorporated by reference. This publication may be 
obtained from the American National Standards Institute, Inc., 1430 
Broadway, New York, NY 10018, and may be inspected at any Coal Mine 
Health and Safety district and subdistrict office, or at MSHA's Office 
of Standards, 4015 Wilson Boulevard, Arlington, VA, and at the Office 
of the Federal Register, 800 North Capitol Street, NW., suite 700, 
Washington, DC. This incorporation by reference was approved by the 
Director of the Federal Register in accordance with 5 U.S.C. 552(a) and 
1 CFR part 51.

PART 75--[AMENDED]

    22. The authority citation for part 75 is revised to read as 
follows:

    Authority: 30 U.S.C. 811, 957, 961.

    23. Section 75.2 is amended by adding the following definitions in 
alphabetical order to read as follows:


Sec. 75.2   Definitions.

* * * * *
    Filter Self-Rescuer (FSR). A type of gas mask approved by MSHA and 
NIOSH under 42 CFR part 84 for escape only from underground mines and 
which provides at least 1 hour of protection against carbon monoxide.
* * * * *
    Self-Contained Self-Rescuer (SCSR). A type of closed-circuit, self-
contained breathing apparatus approved by MSHA and NIOSH under 42 CFR 
part 84 for escape only from underground mines.
* * * * *
    24. Section 75.1714 is amended by revising paragraph (a) to read as 
follows:


Sec. 75.1714   Availability of approved self-rescue devices; 
instruction in use and location.

    (a) Each operator shall make available to each miner who goes 
underground, and to visitors authorized to enter the mine by the 
operator, an approved self-rescue device or devices which is adequate 
to protect such person for 1 hour or longer.
* * * * *
    25. Section 75.1714-1 is revised to read as follows:


Sec. 75.1714-1   Approved self-rescue devices.

    The requirements of Sec. 75.1714 shall be met by making available 
to each person referred to in that section a self-rescue device or 
devices, which have been approved by MSHA and NIOSH under 42 CFR part 
84, as follows:
    (a) A 1-hour SCSR;
    (b) A SCSR of not less than 10 minutes and a 1-hour canister; or
    (c) Any other self-contained breathing apparatus which provides 
protection for a period of 1 hour or longer and which is approved for 
use by MSHA as a self-rescue device when used and maintained as 
prescribed by MSHA.
    26. Section 75.1714-2 is amended by revising the introductory text 
of paragraph (e), the introductory text of paragraph (e)(1), paragraphs 
(e)(1)(v), (e)(2), (e)(3), (f), and the introductory text of paragraph 
(g) to read as follows:


Sec. 75.1714-2   Self-rescue devices; use and location requirements.

* * * * *
    (e) A mine operator may apply to the District Manager under 
Sec. 75.1101-23 for [[Page 30402]] permission to place the SCSR more 
than 25 feet away.
    (1) The District Manager shall consider the following factors in 
deciding whether to permit an operator to place a SCSR more than 25 
feet from a miner:
* * * * *
    (v) Proposed location of SCSRs,
* * * * *
    (2) Such application shall not be approved by the District Manager 
unless it provides that, while underground, all miners whose SCSR is 
more than 25 feet away shall have a FSR approved by MSHA and NIOSH 
under 42 CFR part 84 sufficient to enable each miner to get to a SCSR.
    (3) An operator may not obtain permission under paragraph (e) of 
this section to place SCSRs more than 25 feet away from miners on trips 
into and out of the mine.
    (f) If a SCSR is not carried out of the mine at the end of a 
miner's shift, the place of storage must be approved by the District 
Manager, a sign with the word ``SELF-RESCUER'' or ``SELF-RESCUERS'' 
shall be conspicuously posted at each storage place, and direction 
signs shall be posted leading to each storage place.
    (g) Where devices of not less than 10 minutes and 1 hour are made 
available in accordance with Sec. 75.1714-1(b), such devices shall be 
used and located as follows:
* * * * *
    27. Section 75.1714-3 is amended by revising paragraphs (c) and (d) 
to read as follows:


Sec. 75.1714-3   Self-rescue devices; inspection, testing, maintenance, 
repair, and recordkeeping.

* * * * *
    (c) All FSRs approved by MSHA and NIOSH under 42 CFR part 84, 
except devices using vacuum containers as the only method of sealing, 
shall be tested at intervals not exceeding 90 days by weighing each 
device on a scale or balance accurate to within +1 gram. A device that 
weighs more than 10 grams over its original weight shall be removed 
from service.
    (d) All SCSRs approved by MSHA and NIOSH under 42 CFR part 84 shall 
be tested in accordance with instructions approved by MSHA and NIOSH. 
Any device which does not meet the specified test requirements shall be 
removed from service.
* * * * *
    Dated: May 24, 1995.
J. Davitt McAteer,
Assistant Secretary for Mine Safety and Health.
[FR Doc. 95-13286 Filed 6-7-95; 12:10 pm]
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