[Federal Register Volume 64, Number 160 (Thursday, August 19, 1999)]
[Rules and Regulations]
[Pages 45165-45170]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-21448]


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DEPARTMENT OF LABOR

Mine Safety and Health Administration

30 CFR Part 75

RIN 1219-AB10


Safety Standard for Preshift Examinations in Underground Coal 
Mines

AGENCY: Mine Safety and Health Administration, (MSHA) Labor.

ACTION: Final rule.

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SUMMARY: We (MSHA) are amending the examination interval for preshift 
examinations of underground coal mines by requiring that mine operators 
conduct preshift examinations at 8-hour intervals. The rule clarifies 
when a preshift examination is required and the length of the shift 
covered by the preshift examination.

EFFECTIVE DATES: This final rule is effective on October 18, 1999. 
Submit all written comments on the information collection burden no 
later than October 18, 1999.

FOR FURTHER INFORMATION CONTACT: Carol J. Jones, Acting Director; 
Office of Standards, Regulations, and Variances; telephone 703/235-
1910; fax 703/235-5551.

SUPPLEMENTARY INFORMATION:

I. Background

    The preshift examination is the mine operator's fundamental tool 
for assessing the overall safety condition of the mine. During the 
preshift examination, which includes all areas where miners are 
scheduled to work or travel during the shift, the examiner focuses on 
discovering both existing and developing hazards, such as methane 
accumulation, bad roof and water accumulation, and determining the 
effectiveness of the mine ventilation system. The examination has 
proven to be particularly effective in the discovery and correction of 
hazardous conditions and practices before they lead to injuries or 
fatalities. Because conditions in the underground mining environment 
can change rapidly, recurring examinations are necessary to assure 
safety of the miners underground. A timely preshift examination assures 
the safety of the environment on a routine basis.
    The Federal Mine Safety and Health Act of 1977 (Mine Act) contains 
interim mandatory safety standards that address preshift examinations. 
The interim standards in the Mine Act that relate to preshift 
examinations, Secs. 303(d)(1) and 303(d)(2), appear as interim 
mandatory safety standards in the Federal Coal Mine Health and Safety 
Act of 1969. In 1970, the Bureau of Mines of the United States 
Department of the Interior, a predecessor of the Mine Safety and Health 
Administration at that time, adopted these interim standards as safety 
standards in Title 30 of the Code of Federal Regulations (CFR). Interim 
standard Sec. 75.303(d)(1) required that preshift examinations be 
conducted ``[w]ithin three hours immediately preceding the beginning of 
any shift.'' We adopted this provision as a mandatory safety standard 
in our regulations for underground coal mines, promulgating it in 1978 
as former 30 CFR 75.303(a).
    Section 303(d)(2) of the Mine Act, the other interim standard 
addressing preshift examinations, provided that no person, other than 
certified persons designated to conduct the examination, is permitted 
to enter any underground area, except during any shift, unless a 
preshift examination of such area has been made within 8 hours prior to 
the person entering the area. Under this provision, miners already 
working on a shift where a preshift examination has been completed may 
remain working underground during the subsequent preshift examination 
being conducted for the oncoming shift. In 1978, MSHA adopted this 
provision as a mandatory safety standard in its regulations for 
underground coal mines as former 30 CFR Sec. 75.303(b).
    At the time the Mine Act was enacted, coal miners worked in shifts 
of 8 hours as a general practice. The effect of the preshift 
examination requirement in this environment was for examiners to 
conduct preshift examinations every 8 hours. Since the Mine Act was 
enacted, overlapping work shifts and work shifts of various lengths 
(novel work shifts) have become common, making it necessary for MSHA to 
address the frequency of preshift examinations. Currently, a number of 
mines work shifts of up to 12 hours in length.
    In 1992, we revised our preshift examination requirements as part 
of our final rule for ventilation standards. We retained the 
requirement that preshift examinations must be conducted ``within 3 
hours preceding the beginning of any shift.'' However, in our preamble 
discussion to the 1992 final ventilation rule, we interpreted this 
language to mean that if the mine used regular shifts longer than 8 
hours, the preshift examination applied to the entire length of the 
shift (57 FR 20893).
    In 1994, we proposed a new preshift examination rule in an attempt 
to clarify and standardize the application of certain provisions of the 
1992 preshift examination rule (59 FR 26356). In the comments submitted 
to us during the 1994 rulemaking, a segment of the mining community 
expressed concern that because of novel work schedules, preshift 
examinations were not being conducted frequently enough to assure safe 
working conditions. A commenter expressed concern that conducting 
preshift examinations at intervals longer than 8 hours would reduce the 
protection afforded miners under the Mine Act. The commenter also 
stated that MSHA introduced confusion into the preshift examination 
requirements in interpreting the acceptable intervals for preshift 
examinations.
    Another segment of the public argued that the language of 
Sec. 303(d)(2) of the Mine Act indicates that Congress tacitly accepted 
shifts longer than 8 hours with only one preshift examination required. 
The same segment of the public argued that we allowed a practice to 
evolve over a period of time which permitted not only longer shifts but 
also ``excursions'' over 8 hours under specific conditions. During 
these so-called excursions, miners would remain underground for short 
periods to handle unplanned situations that developed during the shift. 
As an example, an excursion might be used to perform mechanical repairs 
or install roof support. Finally, commenters representing both labor 
and industry recommended that we adopt a final rule requiring preshift 
examinations for each 8-hour period that miners are underground.
    When we promulgated the 1994 proposed rule as a final rule in 1996, 
(61 FR 9764) we addressed the comments and revised the existing 
standard. We substituted the phrase ``8-hour interval'' for the phrase 
``beginning of any shift.'' The 1996 rule required a preshift 
examination, ``* * * within 3 hours preceding the beginning of any 8-
hour interval during which any person is

[[Page 45166]]

scheduled to work or travel underground. * * *'' We also acknowledged 
in the preamble to the final rule that, in accordance with longstanding 
practice, unplanned short excursions past the 8-hour period that occur 
infrequently are accepted without an additional preshift examination 
(61 FR 9791).
    In the preamble to the 1996 final rule, we discussed our rationale 
for adopting an 8-hour preshift examination rule. We stated that:

    Underground working schedules of three 8-hour shifts per day 
were virtually standard when the previous rule was implemented. 
Currently a substantial number of mining operations have work shifts 
of more than 8 hours. Other operations stagger or overlap shifts 
providing for continuous underground mining activities. Some mines 
that operate around the clock schedule persons to begin shifts at 
one-or two-hour intervals. In such cases, controversies and 
misunderstandings have developed regarding application of the 
current standard. . . . MSHA agrees with commenters that evolution 
within the industry in shift scheduling has presented a number of 
questions and controversies regarding the standard which must be 
resolved to assure that proper preshift examinations are conducted 
within suitable time frames. Based on comments, the final rule 
adopts a modification to clarify and standardize the application of 
the preshift examination in recognition of the use of novel shifts 
while maintaining the protection of the existing standard. (61 FR 
9791).

    In adopting an 8-hour preshift examination requirement, we agreed 
with comments suggesting that the original legislation of the Mine Act 
envisioned that preshift examinations would be conducted for each 8-
hour interval that persons worked underground'' (61 FR 9791). We 
reached this conclusion both from the traditional practice at the time 
of the legislation and from the language of Sec. 303(d)(2) of the Mine 
Act.
    On June 17, 1997, the United States Court of Appeals for the 
District of Columbia Circuit, in National Mining Association v. Mine 
Safety and Health Administration and Secretary of Labor (MSHA), 116 
F.3d 520 (D.C. Cir. 1997), acknowledged that the approach used by MSHA 
in adopting the 8-hour interval for the preshift examination was a 
reasonable one. The Court stated, ``At the least, 30 CFR 
Sec. 75.360(a)(1) is a reasonable interpretation of open-ended 
statutory language.* * * We see no reason why we should not think of 30 
CFR Sec. 75.360(a)(1) as just such an ``improved mandatory safety 
standard'' issued in light of changed circumstances in the mining 
industry.'' (116 F.3d 520, 530). However, the Court invalidated the 
provision on the procedural ground that we failed to provide sufficient 
notice to the parties in the rulemaking that we were contemplating 
requiring a preshift examination every 8 hours. The effect of the 
decision was to reinstate the portion of the previous standard that 
requires a preshift examination to be conducted prior to the beginning 
of any shift. We published a Federal Register notice on June 30, 1997 
(62 FR 35085) conforming the language of the existing standard to the 
Court's order.
    On July 14, 1998, in response to the Court's National Mining 
Association decision, we published a proposed rule addressing the 
existing preshift examination requirements (63 FR 38066). Instead of 
requiring a preshift examination at the beginning of each shift, the 
Agency proposed that a preshift examination be conducted at 8-hour 
intervals. Specifically, we proposed:

Sec. 75.360  Preshift examination at fixed intervals.

    (a)(1) Except as provided in paragraph (a)(2) of this section, a 
certified person designated by the operator shall make a preshift 
examination within 3 hours preceding the beginning of any 8-hour 
interval during which any person is scheduled to work or travel 
underground. No person other than certified examiners may enter or 
remain in any underground area unless a preshift examination has 
been completed for the established 8-hour interval. The operator 
shall establish 8-hour intervals of time subject to the required 
preshift examinations. (63 FR 38071).

In the preamble to the proposed rule, we stated, ``MSHA continues to 
believe that it is necessary to address the issues surrounding the 
preshift examination interval. The standard must provide for sufficient 
protection, be clear in its recommendations, and be properly 
implemented to ensure safe working conditions in underground coal 
mines'' (63 FR 38068).

II. Discussion of Sec. 75.360(a)(1)

    The final rule modifies existing Sec. 75.360(a)(1) to require 
preshift examinations at fixed 8-hour intervals. The final rule is 
substantively identical to the proposed rule. The word ``shall'' is 
changed to ``must'' in the final rule in accordance with the style 
advocated by the President's Memorandum on Plain Language. Existing 
Sec. 75.360(a)(1) provides:

    Except as provided in paragraph (a)(2) of this section, a 
certified person designated by the operator shall make a preshift 
examination within 3 hours preceding the beginning of any shift 
during which any person is scheduled to work or travel underground. 
No person other than certified examiners may enter or remain in any 
underground area unless a preshift examination has been completed 
for the shift.

The rule replaces the word ``shift'' with the phrase ``8-hour 
interval''. In addition, the rule adds the sentence, ``The operator 
must establish the 8-hour intervals of time subject to the required 
preshift examinations.'' The final rule advances the overall safety at 
underground coal mines and does not reduce the protection afforded by 
the existing standard.
    Considering the speed at which underground conditions can change, 
preshift examinations are necessary after a reasonable but defined 
period of time. As an example, methane, an explosive gas naturally 
occurring in coal mines, commonly builds up over time, especially in 
newly mined areas. Methane may also accumulate in other areas, such as 
where water accumulation interferes with mine ventilation. A preshift 
examination should result in the detection of this explosive gas, if 
present, and the timely correction of the condition before it reaches a 
hazardous level. Also, the roof and ribs tend to deteriorate over time 
throughout the mine, including outby entries used as travelways and on 
the sections of a mine where miners are assigned to work. Roof 
pressures and subsequent falls can damage ventilation controls, 
resulting in hazardous conditions. Equipment damaged by a roof fall, 
including belt haulage systems or trolley wire systems, can lead to 
mine fires or explosions. A preshift examination provides a mechanism 
to detect these developing hazards.
    We have reviewed the history of fatalities that have occurred at 
underground coal mines since 1990 to determine if any of the fatalities 
occurred more than 8 hours after the start of the shift and, therefore, 
may have been prevented had the proposed rule been in place. We placed 
in the rulemaking record 32 fatal accident reports of MSHA 
investigations conducted since 1990. In each report the accident was 
identified as occurring more than 8 hours into the shift. At least 6 of 
the reports, representing 7 fatalities, address instances where an 
additional preshift examination might have identified the hazards that 
resulted in the fatalities and allowed an opportunity for corrective 
action. The accidents are: Linda Enterprise, Inc., 
31-A mine, March 23, 1990, 1 fatality; Miller 
Branch Enterprises, Inc., No. 1 mine, December 4, 1991, 1 fatality; 
M.A.G. Incorporated, Alloy Deep Mine 2, October 2, 1993, 1 
fatality; Day Branch Coal Co., Inc., No. 9 mine, May 11, 1994, 2 
fatalities; Waco Limited

[[Page 45167]]

Partnership No. 1, No. 2 mine, December 18, 1995, 1 fatality; and M&D 
Coal Co., Inc., No. 3 mine, August 15, 1996, 1 fatality. We note that 
the rule being finalized was in effect between June 1996 and July 1997. 
However, the rule was not being followed at the M&D No. 3 mine at the 
time of the August 15, 1996, accident.
    The final rule applies to all underground coal mines, including 
those that operate with only one 8-hour shift per day. If the mine uses 
regular shifts that are longer than 8 hours in length, the preshift 
examination would cover an 8-hour interval; an additional examination 
is required for over 8 hours. The rule requires three preshift 
examinations where persons are underground for more than 16 hours per 
day. As an example, at a mine operating two 10-hour shifts per day, the 
final rule requires three examinations per day. As with the existing 
standard, the final rule does not require examinations for designated 
8-hour periods when no one enters the mine. Also consistent with the 
existing standard, no one, except other designated preshift examiners, 
may accompany preshift examiners during an examination before miners 
reenter the mine.
    Once a preshift examination has been conducted, an additional 
preshift examination is not necessary during the 8-hour interval 
covered by the preshift examination simply because persons start to 
work after the beginning of the normal shift start time. Under the 
final rule persons can enter or leave the mine, regardless of their 
shift schedule, during any established 8-hour period for which a 
preshift examination has been conducted. However, another preshift 
examination must be completed prior to the beginning of the next 8-hour 
interval if any persons, other than examiners, remain in the mine 
during the next 8-hour interval or are scheduled to enter the mine 
during the oncoming interval. As with the existing standard, no person 
other than examiners may enter any underground area that is subject to 
a preshift examination prior to the completion of the preshift 
examination for that area. Also, supplemental examinations continue to 
be required under Sec. 75.361 before anyone enters areas of the mine 
that have not had a preshift examination. In accordance with prior 
practice, miners already working on a shift for which a preshift 
examination has been completed may remain working underground during 
the subsequent preshift examination being conducted for the oncoming 
shift.
    We recognize that the final rule may cause some of the mine 
operators to perform additional examinations that are not currently 
required. As an example, some small mines operate 1 shift per day. Many 
of these mines plan to work 8 hours at the face. Allowing for travel 
time and lunch, the mines may work a single 8\1/2\ or 9 hour shift on a 
regular basis. Under the final rule, 2 preshift examinations are 
required.
    In the preamble to the proposed rule, we encouraged all parties to 
express their views fully on the proposal and submit comments on the 
proposed preshift examination rule. Also, we specifically solicited 
comments in a number of areas, such as whether excursions should be 
permitted, and the safety benefits gained by requiring a mine that 
operates a single 8\1/2\ or 9 hour shift per day to conduct 2 preshift 
examinations.
    We received comments from a total of 4 commenters: 2 mining 
associations, 1 mining company, and 1 labor organization. One commenter 
advocated MSHA's approach of conducting a preshift examination at 8-
hour intervals, stating that Congress intended preshift examinations to 
be conducted at 8-hour intervals, that it is essential that the 
requirements for preshift examinations be clear and unambiguous, and 
that the issue of the frequency of preshift examinations is vitally 
important for safety and health. This commenter opposed any excursions 
beyond the 8-hour interval except for life threatening situations. The 
other 3 commenters stated that we must be more flexible in our approach 
to determining preshift examination intervals. Two commenters stated 
that mine plans should incorporate preshift examination requirements 
specific to each mine. Three commenters pointed out that because of 
State laws, there are instances where additional and unnecessary 
preshift examinations are required. These commenters favored a preshift 
examination that covered an entire shift, regardless of its duration. 
Two of the commenters pointed out that technological advances, such as 
mine-wide monitoring systems used in some mines, have made mines safer 
than they were at the time Congress passed the Mine Act. Two commenters 
stated that many examinations occur during a shift. Consequently, these 
commenters felt that preshift examinations that lasted the duration of 
the shift, whether 8, 10, or 12 hours, should be acceptable in mines 
using technological advances such as mine-wide monitoring systems.
    We have carefully considered each of the comments and have 
determined that, with minor non-substantive changes, it is appropriate 
to adopt and publish the proposed rule as the final rule. The Agency 
has concluded that, considering the speed at which the underground 
conditions can change, there must be a defined, reasonable period after 
which another examination is necessary. The history of fatalities at 
underground mines since 1990 demonstrates that as many as 7 lives could 
have been saved if the 8 hour interval rule had been in place. As one 
commenter stated, repeating language from the preamble to the proposed 
rule:

[t]he preshift examination is a critically important, fundamental 
safety practice in the mining industry. It has historically been a 
primary means of determining the effectiveness of an underground 
coal mining operation, and of detecting hazardous conditions and 
practices. The preshift examination has proven to be particularly 
effective because it provides a thorough safety check before work 
commences underground on the shift for which the examination is 
conducted. A preshift examination can detect developing hazards as 
well as existing hazards.

    The preshift examination at 8-hour intervals is a clear and easily 
understood requirement that has an historical basis in legislative 
history. We are not persuaded by commenters that, due to technological 
improvements in modern mining as well as the training that modern 
miners receive, there is a need to deviate from the frequency of 
preshift examinations envisioned by Congress. The fact that mines may 
be somewhat safer today than they were in the past does not change the 
fact that the hazards still exist. Miners and operators must be 
vigilant in dealing with methane accumulation, roof and rib 
deterioration and water accumulation, as well as other hazards. 
Progress in safety due to modern mining and monitoring systems has not 
lessened the need for preshift examinations at 8-hour intervals, which 
we believe will result in increased miner safety. As we have noted 
previously, we have identified 7 fatalities that might have been 
prevented if preshift examinations had occurred at 8-hour intervals. 
Technological advances that enhance safety, such as atmospheric 
monitoring systems, should supplement the proper use of preshift 
examinations rather than change the frequency of the examination.
    Through a longstanding practice, we have permitted excursions 
beyond the normal scheduled shift for preshift examinations. In this 
final rule, we will permit miners to stay on the section or in the work 
area for up to an additional 15 minutes beyond an 8-hour shift to 
conclude the mining cycle at an appropriate point, perform mechanical 
repairs, install roof support, or as a

[[Page 45168]]

result of a mantrip delay. We will continue to interpret the final rule 
to allow such excursions. One commenter addressed this issue. The 
commenter to the proposed rule objected to any excursion except for 
life-threatening situations. The commenter added that, to prevent 
abuse, if other excursions are permitted, the rule should be specific 
in defining the circumstances under which excursions are permitted. We 
agree with the commenter that an excursion for a life-threatening 
situation does not require an additional preshift examination. We also 
believe that there are good reasons for excursions for other 
circumstances: a machinery breakdown which requires miners to walk from 
the mine, or a roof control problem requiring immediate attention 
before the miners leave the mine. Some flexibility is appropriate to 
account for unanticipated circumstances. We continue to believe that 
short excursions of up to 15 minutes should be permitted. Also, an 
infrequent excursion of up to 30 minutes is acceptable under an 
unanticipated circumstance such as a mechanical breakdown. While, by 
their nature, these infrequent excursions are unpredictable, we expect 
that excursions would be necessary on the average of no more than once 
a week.
    Two commenters recommended that the rule should provide enough 
flexibility to improve safety and provide a better utilization of 
resources. The commenters gave an example of an operator who has 
established 3-hour intervals spaced 8 hours apart to preshift examine 
the face areas of the mine. According to these commenters, the same 
operator at the same mine should be able to examine belts, travelways, 
and other areas during another, different series of 3-hour intervals 
spaced 8 hours apart. We agree that this is an acceptable flexible 
approach that does not diminish safety. The final rule permits this 
approach. However, we note that after an idle period, a full preshift 
examination must be completed before miners reenter the area.
    We received 2 comments which suggested that the mine ventilation 
plan could be used to provide for flexibility in scheduling preshift 
examinations, particularly in cases where an inconsistency might exist 
with State requirements for examinations. These commenters favored a 
preshift examination that covered an entire shift regardless of its 
duration. We believe that a uniform requirement for an examination 
every 8 hours best serves the purposes of miner safety and health. Use 
of the plan approval process to essentially adopt a longer preshift 
examination interval would not be appropriate.
    A commenter pointed out that the Pennsylvania Bituminous Coal Mine 
Act requires a preshift examination in a gassy mine within the 3 hours 
immediately preceding the beginning of a coal-producing shift. The 
commenter stated that there are currently 2 mines in Pennsylvania that 
work 2 shifts of 12 hours, and these only on weekends. Considering the 
interaction of the MSHA and the Pennsylvania rules, these mines and 
possibly several others in Pennsylvania, may be required to conduct 4 
preshift examinations instead of the 3 examinations otherwise conducted 
during a 24 hour period. We believe that the requirement for preshift 
examinations at 8 hour intervals is appropriate and do not believe that 
the hazardous environment in underground coal mines allows for an 
exemption in this case. In addition, the history of fatalities that 
have occurred since 1990 in shifts longer than 8 hours does not support 
a preshift examination at 12 hour intervals.
    Another commenter stated that the proposed preshift requirement 
would adversely impact safety by requiring the section foreman, 
supervising a production crew, to examine outby areas during production 
shifts in excess of 8 hours. The safety of the production crew at the 
face would be unmonitored during this time. This situation might arise 
in a 1-shift mine with a single certified person onsite. We agree that 
in this circumstance, having the foreman on the section and available 
to supervise the production crew provides a safety benefit. However, we 
also believe that an examination of outby areas is necessary to assure 
that any hazardous conditions are identified and corrected in a timely 
manner. When an additional preshift examination is necessary, the on-
section portion of the examination can be conducted concurrently with 
the on-shift examination. Any certified person designated by the 
operator may conduct the examination of the outby areas and a vehicle 
can be used to expedite the examination and to minimize any absence 
from the section. Also, in such a circumstance, we will accept an 
examination of outby areas by the certified person during egress from 
the mine where the examiner travels ahead of the crew, examining while 
traveling. If a hazard is encountered, the examiner must be able to 
stop the crew before they reach the hazard. This approach preserves the 
certified person's presence on the section during the work period and 
provides for the outby portion of the examination before miners travel 
through the area. We note that this is only applicable before an idle 
period. If a crew is scheduled to enter the area, a preshift 
examination must be completed before the next 8-hour interval begins.
    For accuracy, we are changing the title of Sec. 75.360 from 
``Preshift examination'' to ``Preshift examination at fixed 
intervals.'' The text of the final rule and the preamble discussion of 
the standard continue to refer to the examination as the ``preshift 
examination.'' Because of the history of the term and the widespread 
understanding in the industry of the safety checks required by a 
preshift examination, we are continuing to use the term ``preshift 
examination'' in the body of the standard and to refer to the 
examination as the preshift examination.

III. Paperwork Reduction Act

    This final rule contains an information collection requirement 
which is subject to review by the Office of Management and Budget (OMB) 
under the Paperwork Reduction Act of 1995 (PRA 95). It is identical to 
the information collection requirement in our proposed rule. We did not 
receive any comments on the proposed information collection 
requirement. OMB has approved the information collection requirement 
and assigned to it OMB control number 1219-0125. The approval 
expiration date is October 31, 2001.

IV. Executive Order 12866 Regulatory Planning and Review

    Executive Order (EO) 12866 requires that agencies assess both the 
costs and benefits of intended regulations. We have determined that 
this rule would not have an annual effect of $100 million or more on 
the economy and, therefore, that this rulemaking is not a significant 
regulatory action for purposes of this EO. Although the final rule 
applies to all underground coal mines, it will cause 127 underground 
coal mines to incur compliance costs (or approximately 13 percent of 
all underground coal mines). Of the 127 mines, 75 are small mines 
(mines with fewer than 20 employees), and 52 are large mines (mines 
with 20 or more employees). The total estimated annual compliance cost 
of the final rule is $2,218,731. Small and large underground coal mines 
will have annual compliance costs of $377,192 and $1,841,539, 
respectively.
    The total 1997 revenues for the underground coal mine industry are 
estimated to be about $7.6 billion. The final rule's estimated annual 
cost is less than 0.03 percent of annual estimated

[[Page 45169]]

revenues for all mines (all underground coal mines) which are covered 
by the rule. We do not expect this rule to have a significant economic 
impact on the underground coal mining industry.

V. Regulatory Flexibility Act and Small Business Regulatory 
Enforcement Fairness Act (SBREFA)

    Under SBREFA, in analyzing the impact of a final rule on small 
entities, MSHA must use the Small Business Administration (SBA) 
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. We have not taken such an action and, therefore, 
are required to use the SBA definition. MSHA traditionally has 
considered small mines to be those with fewer than 20 employees. The 
SBA defines a small mining entity as an establishment with 500 or fewer 
employees (13 CFR 121.201). Almost all underground coal mines fall into 
this category. For these small underground coal mines, as defined by 
SBA, we conducted a screening analysis by comparing their estimated 
cost of complying with the final rule to their estimated revenues. When 
estimated compliance costs are less than 1 percent of estimated 
revenues, we believe it is generally appropriate to conclude that there 
is no significant economic impact on a substantial number of small 
entities. When estimated compliance costs exceed 1 percent of estimated 
revenues, it tends to indicate that further analysis may be warranted. 
We estimate compliance costs for small underground coal mines covered 
under this rule (using the SBA definition) to be $2,182,721 and their 
revenues to be approximately $6.916 billion (as shown on Table 1). 
Therefore, the costs of complying with the final rule for small 
underground coal mines are approximately 0.03 percent of their 
estimated revenues.
    With respect to this final rule, 126 of the 127 underground coal 
mines that will incur compliance costs fall under SBA's definition. 
When the 126 underground coal mines that are immediately affected by 
this rule are separately considered, the costs of complying with the 
final rule for such mines are 0.3 percent of their revenues (as shown 
on Table 2).
    In either case, the rule's costs as a percentage of estimated 
revenues are well below the 1 percent level. Accordingly, we certify 
that the final rule will not have a significant impact on a substantial 
number of small entities (mines with 500 or fewer employees).

                   Table 1.--Estimated Revenues of Underground Coal Mines Covered by the Rule
----------------------------------------------------------------------------------------------------------------
                                                                                   Average       Total estimated
                   Mine size (employees)                     Number of mines   production per     revenues  (in
                                                                    a          mine  (tons) a      millions) b
----------------------------------------------------------------------------------------------------------------
 500...........................................               959           398,221            $6,916
> 500.....................................................                 9         4,196,324               684
                                                           -----------------------------------------------------
    Total.................................................               968  ................            7,600
----------------------------------------------------------------------------------------------------------------
a Sources: Based on MSHA's database and MSHA's CM441 Coal Report 1997 cycle 1997/184.
b Total revenues = n x t x p, where n is the number of mines in that size class; t is the average tons of coal
  produced annually by a mine in that size class; and p is the price per ton of coal. The 1997 price per ton of
  coal was $18.11 (Source: DOE/EIA Annual Energy Review, p. 203).


                  Table 2.--Estimated Revenues for Underground Coal Mines Affected by the Rule
----------------------------------------------------------------------------------------------------------------
                                                                                   Average       Total estimated
                   Mine size (employees)                     Number of mines   production per     revenues  (in
                                                                    a          mine  (tons) a      millions) b
----------------------------------------------------------------------------------------------------------------
<  20.....................................................                75            33,304               $45
>  20 & <  500............................................                51           689,881               637
                                                           -----------------------------------------------------
    Total.................................................               126  ................              682
----------------------------------------------------------------------------------------------------------------
a Based on MSHA's CM441 Coal Report 1997 cycle 1997/184.
b Total revenues n x t x p, where n is the number of mines in that size class; t is the average tons of coal
  produced annually by a mine in that size class; and p is the price per ton of coal. The 1997 price per ton of
  Coal was $18.11 (Source: DOE/EIA Annual Energy Review, p. 203).

VI. Executive Order 12875 Enhancing the Intergovernmental 
Partnership; and the Unfunded Mandates Reform Act of 1975

    Executive Order (EO) 12875 requires executive agencies and 
departments to reduce unfunded mandates on State, local, and tribal 
governments; to consult with these governments prior to promulgation of 
any unfunded mandate; and to develop a process that permits meaningful 
and timely input by State, local, and tribal governments in the 
development of regulatory proposals containing a significant unfunded 
mandate. EO 12875 also requires executive agencies and departments to 
increase flexibility for State, local, and tribal governments to obtain 
a waiver from Federal statutory or regulatory requirements.
    We offered governments an opportunity to provide meaningful and 
timely input, at the proposed rule stage, through the promulgation of 
the proposal for notice and comment. No state, local government or 
tribal government commented or requested a waiver of regulatory 
requirements.
    Much of the Unfunded Mandates Reform Act of 1995 is designed to 
assist the Congress in determining whether its actions will impose 
costly new mandates on State, local, and tribal governments. It also 
includes requirements to assist Federal agencies to make this same 
determination with respect to regulatory actions.
    We have determined that, for purposes of Sec. 202 of the Unfunded 
Mandates Reform Act of 1995, this final rule does not include any 
Federal mandate that may result in increased expenditures by State, 
local, or tribal governments in the aggregate of more than $100 
million, or increased expenditures by the private sector of more than 
$100 million. Moreover, we have determined that for purposes of 
Sec. 203 of that Act, this final rule does not significantly or 
uniquely affect these entities.

[[Page 45170]]

    We have prepared an estimate of the cost of the rule in our 
submission to OMB for approval of the information collection 
requirements in the rule. We will furnish a copy of this estimate to 
you upon request. A summary of the cost is contained in the preamble to 
this rule.

VII. Executive Order 13045 Protection of Children from 
Environmental Health Risks and Safety Risks

    In accordance with Executive Order 13045, we have evaluated the 
environmental health or safety effect of the rule on children. We have 
determined that the rule will have no effect on children.

VIII. Executive Order 13084 Consultation and Coordination with 
Indian Tribal Governments

    We certify that the final rule does not impose substantial direct 
compliance costs on Indian tribal governments. Further, we provided the 
public, including Indian tribal governments which operated mines, the 
opportunity to comment during the proposed rule's comment period. No 
Indian tribal government applied for a waiver or commented on the 
proposal.

IX. Executive Order 12612 Federalism

    Executive Order 12612 requires that agencies, to the extent 
possible, refrain from limiting state policy options, consult with 
states prior to taking any action which would restrict state policy 
options, and take such actions only when there is a clear 
constitutional authority and the presence of a problem of a national 
scope. Since this rule does not limit state policy options, it complies 
with the principles of federalism and with Executive Order 12612.

X. Executive Order 12630 Government Actions and Interference with 
Constitutionally Protected Property Rights

    This rule is not subject to Executive Order 12630 because it does 
not involve implementation of a policy with taking implications.

XI. Executive Order 12988 Civil Justice Reform

    The Agency has reviewed Executive Order 12988 and determined that 
this rulemaking will not unduly burden the Federal court system. The 
regulation has been written to so as to provide a clear legal standard 
for affected conduct, and has been reviewed carefully to eliminate 
drafting errors and ambiguities.

List of Subjects

30 CFR Part 75

    Mine safety and health, underground coal mining, ventilation.

    Dated: August 11, 1999.
Marvin W. Nichols Jr.,
Deputy Assistant Secretary for Mine Safety and Health.

    Accordingly, 30 CFR, chapter I, is amended as follows:

PART 75--MANDATORY SAFETY STANDARDS--UNDERGROUND COAL MINES

    1. The authority citation for part 75 continues to read as follows:

    Authority: 30 U.S.C. 811.

    2. In subpart D of Part 75, the section heading of Sec. 75.360 and 
paragraph (a)(1) are revised to read as follows:


Sec. 75.360  Preshift examination at fixed intervals.

    (a)(1) Except as provided in paragraph (a)(2) of this section, a 
certified person designated by the operator must make a preshift 
examination within 3 hours preceding the beginning of any 8-hour 
interval during which any person is scheduled to work or travel 
underground. No person other than certified examiners may enter or 
remain in any underground area unless a preshift examination has been 
completed for the established 8-hour interval. The operator must 
establish 8-hour intervals of time subject to the required preshift 
examinations.
* * * * *
[FR Doc. 99-21448 Filed 8-18-99; 8:45 am]
BILLING CODE 4510-43-P