Proximity Detection Systems for Mobile Machines in Underground Mines, 53070-53086 [2015-21573]

Agencies

• DEPARTMENT OF LABOR
• Mine Safety and Health Administration

[Federal Register Volume 80, Number 170 (Wednesday, September 2, 2015)]
[Proposed Rules]
[Pages 53070-53086]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-21573]


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DEPARTMENT OF LABOR

Mine Safety and Health Administration

30 CFR Part 75

[Docket No. MSHA-2014-0019]
RIN 1219-AB78


Proximity Detection Systems for Mobile Machines in Underground 
Mines

AGENCY: Mine Safety and Health Administration, Labor.

ACTION: Proposed rule.

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SUMMARY: The Mine Safety and Health Administration (MSHA) is proposing 
to require underground coal mine operators to equip coal hauling 
machines and scoops with proximity detection systems. Miners working 
near these machines face pinning, crushing, and striking hazards that 
result in accidents involving life threatening injuries and death. The 
proposal would strengthen protections for miners by reducing the 
potential for pinning, crushing, or striking accidents in underground 
coal mines. MSHA is also interested in the application of these 
proposed requirements to underground metal and nonmetal mines.

DATES: Comments must be received or postmarked by midnight Eastern 
Daylight Saving Time on December 1, 2015.

ADDRESSES: Submit comments and informational materials, identified by 
RIN 1219-AB78 or Docket No. MSHA-2014-0019, by one of the following 
methods:
     Federal e-Rulemaking Portal: https://www.regulations.gov. 
Follow the instructions for submitting comments.
     Email: zzMSHA-comments@dol.gov.
     Fax: 202-693-9441.
     Mail: MSHA, Office of Standards, Regulations, and 
Variances, 201 12th Street South, Suite 4E401, Arlington, Virginia 
22209-3939.
     Hand Delivery/Courier: MSHA, 201 12th Street South, Suite 
4E401, Arlington, Virginia, between 9:00 a.m. and 5:00 p.m. Monday 
through Friday, except Federal holidays. Sign in at the receptionist's 
desk on the 4th floor.
    Instructions: All submissions must include MSHA and RIN 1219-AB78 
or Docket No. MSHA-2014-0019. Do not include personal information that 
you do not want publicly disclosed; MSHA will post all comments without 
change to https://www.regulations.gov and https://www.msha.gov/currentcomments.asp, including any personal information provided.

[[Page 53071]]

    Docket: For access to the docket to read comments received, go to 
https://www.regulations.gov or https://www.msha.gov/currentcomments.asp. 
To read background documents, go to https://www.regulations.gov. Review 
the docket in person at MSHA, Office of Standards, Regulations, and 
Variances, 201 12th Street South, Suite 4E401, Arlington, Virginia, 
between 9:00 a.m. and 5:00 p.m. Monday through Friday, except Federal 
Holidays. Sign in at the receptionist's desk on the 4th floor.
    Information Collection Supporting Statement: MSHA posts Information 
Collection Supporting Statements on https://www.regulations.gov and on 
MSHA's Web site at https://www.msha.gov/regs/fedreg/informationcollection/informationcollection.asp. A copy of the 
information collection package is also available from the Department of 
Labor by request to Michel Smyth at smyth.michel@dol.gov (email) or 
202-693-4129 (voice).
    Preliminary Regulatory Economic Analysis (PREA): MSHA will post the 
PREA on https://www.regulations.gov and on MSHA's Web site at https://www.msha.gov/rea.htm.
    E-Mail Notification: To subscribe to receive an email notification 
when MSHA publishes rules, program information, instructions, or 
policy, in the Federal Register, go to https://www.msha.gov/subscriptions/subscribe.aspx.

FOR FURTHER INFORMATION CONTACT: Sheila McConnell, Acting Director, 
Office of Standards, Regulations, and Variances, MSHA, at 
mcconnell.sheila.a@dol.gov (email), 202-693-9440 (voice), or 202-693-
9441 (facsimile).

SUPPLEMENTARY INFORMATION: 

Table of Contents

I. Introduction
    A. Regulatory Authority
    B. Background
II. Section-by-Section Analysis
    A. Sec.  75.1733(a) Machines Covered
    B. Sec.  75.1733(b) Requirements for Proximity Detection Systems
    C. Sec.  75.1733(c) Proximity Detection System Checks
    D. Sec.  75.1733(d) Certification and Records
III. Preliminary Regulatory Economic Analysis
    A. Executive Orders (E.O.) 12866 and 13563
    B. Population at Risk
    C. Net Benefits
    D. Benefits
    E. Compliance Costs
IV. Feasibility
    A. Technological Feasibility
    B. Economic Feasibility
V. Regulatory Flexibility Act and Small Business Regulatory 
Enforcement Fairness Act
    A. Definition of a Small Mine
    B. Factual Basis for Certification
VI. Paperwork Reduction Act of 1995
    A. Summary
    B. Procedural Details
VII. Other Regulatory Considerations
    A. The Unfunded Mandates Reform Act of 1995
    B. Executive Order 13132: Federalism
    C. The Treasury and General Government Appropriations Act of 
1999: Assessment of Federal Regulations and Policies on Families
    D. Executive Order 12630: Government Actions and Interference 
With Constitutionally Protected Property Rights
    E. Executive Order 12988: Civil Justice Reform
    F. Executive Order 13045: Protection of Children From 
Environmental Health Risks and Safety Risks
    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
VIII. References

I. Introduction

    The proposed rule would require underground coal mine operators to 
equip coal hauling machines and scoops on working sections, except 
longwall working sections, with proximity detection systems according 
to a phase-in schedule for newly manufactured and existing equipment. 
The proposed requirements would strengthen protections for miners by 
reducing the potential for pinning, crushing, or striking injuries to 
miners who work near these machines. MSHA is also interested in the 
application of these proposed requirements to underground metal and 
nonmetal mines.
    Proximity detection systems consist of machine-mounted components 
and, if applicable, miner-wearable components. For proximity detection 
systems with miner-wearable components, the mine operator would be 
required to provide a miner-wearable component to be worn by each miner 
on the working section. The proposed rule would establish performance 
and maintenance requirements for proximity detection systems and would 
require training for persons performing the installation and 
maintenance.

A. Regulatory Authority

    This proposed rule is issued under section 101 of the Federal Mine 
Safety and Health Act of 1977 (Mine Act), as amended.

B. Background

    Proximity detection is a technology that uses electronic sensors to 
detect motion or the location of one object relative to another. 
Proximity detection systems provide a warning and stop mobile machines 
before a pinning, crushing, or striking accident occurs that could 
result in injury or death to miners.
    Traditionally, coal hauling machines (shuttle cars, ram cars, and 
continuous haulage systems) are self-propelled equipment used to 
transport coal from the working face to a point where the coal is 
loaded into mine cars or onto a conveyor for transfer to the surface. 
Scoops are self-propelled general utility vehicles for cleanup of loose 
coal or debris and moving equipment or supplies. MSHA has evaluated all 
accident reports involving coal hauling machines and scoops between 
1984 and 2014. MSHA has determined that a proximity detection system 
could have prevented 42 fatalities and 179 injuries resulting from 
these accidents that occurred on the working section.
    In 1998, MSHA evaluated accidents involving remote controlled 
mining machines and determined that proximity detection systems have 
the potential to prevent accidents that occur when the machine operator 
or another miner gets too close to the machine (Dransite, 1998). MSHA 
noted that if changes in work practices or machine design do not 
prevent miners from being placed in unsafe locations, the Agency should 
consider a requirement for proximity detection with automatic machine 
shutdown. No MSHA-approved proximity detection systems were 
commercially available for use in underground mines at that time.
    In 2002, following a series of fatal pinning, crushing, and 
striking accidents, MSHA decided to work with the coal mining industry 
to develop a proximity detection system for use on underground 
continuous mining machines. Since that time, manufacturers adapted 
proximity detection for use on other mobile machines. MSHA evaluated 
several systems and conducted field testing.
    In 2010, MSHA introduced an initiative titled ``Safety Practices 
around Shuttle Cars and Scoops in Underground Coal Mines.'' MSHA 
initiated this safety campaign to raise the mining industry's awareness 
of pinning, crushing, or striking hazards associated with mobile mining 
machines. This initiative included training programs and best practices 
to

[[Page 53072]]

encourage mine operators to train underground coal miners to exercise 
caution when working around mobile machines. Information regarding this 
initiative is available at: https://www.msha.gov/focuson/watchout/watchout.asp. Even so, 41 pinning, crushing, or striking accidents 
involving coal hauling machines and scoops have occurred since 2010: 23 
that involved coal hauling machines and 18 that involved scoops. Three 
fatalities occurred in 2013, one involving a scoop and two involving 
coal hauling machines; and one fatality occurred in 2014 involving a 
scoop. MSHA determined that proximity detection systems could have 
prevented these accidents (since these miners were located in a 
proximity detection system warning/stopping zone).
    The Agency published a Request for Information (RFI) on proximity 
detection systems in the Federal Register on February 1, 2010 (75 FR 
5009). The comment period closed on April 2, 2010. MSHA received 
comments from mining associations; mining companies; manufacturers; and 
state, federal, and international governments.
    Comments received in response to the RFI addressed specific 
questions regarding function, application, training, costs, and 
benefits of proximity detection systems to reduce the risk of 
accidents. Some commenters stated that proximity detection systems are 
beneficial and can prevent pinning, crushing, and striking accidents. 
Commenters stated that conditions in the mining environment, including 
blocked visibility and limited space, or simply the lack of sight due 
to limited light, can cause an accident and that the only way to 
address these hazards is to equip mining vehicles with a proximity 
detection system. A commenter stated that, when it comes to safety, 
engineering barriers are sometimes required when the behavior of 
everyone, whether due to the lack of training or taking shortcuts, 
cannot be relied on. Several commenters stated that the technology 
needs further development and testing.
    RFI comments related to specific provisions of the proposed rule 
are addressed in the section-by-section analysis later in this 
preamble.
    In April 2010, MSHA observed the use of proximity detection systems 
in three underground mines in the Republic of South Africa (South 
Africa), demonstrating successful use of this technology. One of the 
mines visited began testing a proximity detection system in 2008 and, 
at the time of the MSHA visit, had equipped the mobile machines with 
the system on three sections in an underground coal mine. This mine 
used the proximity detection system on remote controlled continuous 
mining machines, shuttle cars, roof bolting machines, feeder breakers, 
and scoops.
    One system observed in South Africa, not used in the United States, 
used multiple technologies: Very low frequency (VLF) electromagnetic 
technology in combination with ultra-high frequency (UHF) radio 
frequency identification (RFID) and a 2.4 gigahertz (GHz) radar system. 
The VLF electromagnetic system provided great accuracy at close 
distances for slower moving machines. The UHF RFID system provided 
greater range for faster moving machines. The radar system provided an 
object detection system, which communicated with the other two systems 
to validate potential danger.
    There are four proximity detection systems approved under existing 
regulations for permissibility in 30 CFR part 18. These approvals are 
intended to ensure that the systems will not introduce an ignition 
hazard when operated in potentially explosive atmospheres. MSHA's 
approval regulations under 30 CFR part 18 do not address how systems 
will perform in reducing pinning, crushing, or striking hazards. Two of 
these systems have been installed on coal hauling machines and scoops.
    The four MSHA-approved proximity detection systems operate using 
electromagnetic technology and require a miner to wear a component. A 
microprocessor sends a signal to activate a warning signal or stop 
machine movement when a miner wearing the component is within a 
distance pre-set for the machine and mine conditions.
    In September 2011, MSHA observed two coal hauling machines equipped 
with an MSHA-approved proximity detection system being used in an 
underground coal mine in the United States. MSHA observed the systems 
provide appropriate activation of warning signals and stop the coal 
hauling machines. MSHA also observed the coal hauling machines and 
continuous mining machines equipped with proximity detection systems 
function properly to protect miners equipped with miner-wearable 
components.
    In June 2013, MSHA observed an MSHA-approved proximity detection 
system on a coal hauling machine and on a scoop at an underground coal 
mine in the United States. MSHA observed the system activate a warning 
signal and stop the machines as designed.
    MSHA monitors the installation and development of proximity 
detection systems to maintain up-to-date information on the number and 
capabilities of systems in use. MSHA estimates that, as of January 
2015, there were 583 machines in underground coal mines in the United 
States equipped with proximity detection systems. Equipped machines 
include continuous mining machines, scoops, coal hauling machines, a 
loading machine, a feeder breaker, and a roof bolting machine. MSHA 
accident data supports a proposed rule that applies to coal hauling 
machines (shuttle cars, ram cars, and continuous haulage systems) and 
scoops. At this time, MSHA does not have accident data that justifies 
applying the proposed requirements to other mobile machines on the 
working section, such as roof bolting machines.
    MSHA published a final rule on Proximity Detection Systems for 
Continuous Mining Machines in Underground Coal Mines on January 15, 
2015 (80 FR 2188). The final rule addressed equipping continuous mining 
machines with proximity detection systems, phased in over 8 to 36 
months, and is separate from this rulemaking.
    MSHA developed this proposed rule on proximity detection systems 
for mobile machines in underground mines to be comparable to the 
requirements for proximity detection systems on continuous mining 
machines. MSHA intends that this proposed rule would take advantage of 
existing proven technology, to minimize the burden on mine operators, 
and allow for advances in proximity detection technology. Additional 
information on proximity detection systems and technology is available 
on the NIOSH's Web page at https://www.cdc.gov/niosh/mining/topics/ProximityDetection.html.
    MSHA solicits information and data on the advantages and 
disadvantages of applying proximity detection systems on mobile 
machines in underground metal and nonmetal mines.

II. Section-by-Section Analysis

A. Sec.  75.1733(a) Machines Covered

    Proposed Sec.  75.1733(a) would require underground coal mine 
operators to equip coal hauling machines and scoops on working 
sections, except longwall working sections, with the machine-mounted 
components of a proximity detection system in accordance with the 
proposed phase-in schedule. At this time, all MSHA-approved proximity 
detection systems include a miner-wearable component. Together, the

[[Page 53073]]

machine-mounted components and any miner-wearable components make up 
the proximity detection system. This proposed rule would also 
accommodate possible future technologies that may not require a miner-
wearable component.
    For MSHA-approved proximity detection systems with miner-wearable 
components, the proposed rule would require the mine operator to 
provide a miner-wearable component to be worn by each miner on the 
working section, except longwall working sections. The proposal would 
apply to coal hauling machines and scoops on working sections using 
continuous mining machines, including full-face continuous mining 
machines, or using conventional mining methods. The proposal would 
apply to production and maintenance shifts.
    A commenter, in response to the RFI, stated that MSHA's approval 
process does not include an evaluation of the systems' functional 
readiness to perform in the underground mine environment. This 
commenter indicated that only a handful of mines have operational 
experience with approved systems and that a thorough examination of the 
operational readiness of these systems must be undertaken to address 
safety issues before they are required. Several other commenters stated 
that proximity detection systems have not proven reliable and that more 
testing is needed.
    A representative of a South African mining company that uses a 
proximity detection system on continuous mining machines, shuttle cars, 
scoops, roof bolting machines, and feeder breakers, stated in comments 
to the RFI that the system is reliable. This South African mining 
company reported that it did not have a single reliability problem over 
a period of 18 months.
    A proximity detection system manufacturer stated that its proximity 
detection system is installed on many types of underground mobile 
machines in Canada and Australia and that there has not been a serious 
injury or fatality reported on any machine using its proximity 
detection system. Another commenter stated that applying proximity 
detection systems to all mobile machines should be a long-term goal 
that could provide safety benefits.
    Coal hauling machines include shuttle cars, diesel- and battery-
powered ram cars, and continuous haulage systems. Scoops in underground 
coal mines include both diesel-powered and electrical-powered scoops. 
Mobile machines travel through narrow entryways at faster speeds than 
continuous mining machines. Miners work and travel in the same narrow 
entryways and the on-board machine operators have limited visibility of 
the area around the machine. Coal hauling machines also travel through 
ventilation curtains where they can encounter miners without warning. 
Continuous haulage systems include mobile bridge conveyors or carriers 
and flexible conveyor trains. Continuous haulage systems consist of two 
or more mobile units. When a continuous haulage system is used to 
transport coal to the conveyor, MSHA considers the working section to 
be all areas of the mine from the loading point to and including the 
working faces. These machines are long and extend beyond the visual 
range of the machine operator. Miners on working sections using 
continuous haulage systems can be near the systems without the machine 
operators' knowledge and can be pinned, crushed, or struck.
    MSHA has determined that miners are exposed to pinning, crushing, 
and striking hazards when working near these machines in underground 
coal mines, and that working near these machines on the working section 
has resulted in a significant number of injuries and fatalities. A 
proximity detection system could have prevented 42 pinning, crushing, 
or striking fatalities on these machines from 1984 through 2014 (since 
the miners were located in a proximity detection system warning/
stopping zone), which occurred on working sections: 31 associated with 
coal hauling machines and 11 associated with scoops. (See Table 1.) Use 
of proximity detection systems could have prevented these accidents by 
stopping machine movement before miners were pinned, crushed, or struck 
by the machine.

Table 1--Number of Underground Coal Mine Preventable Injuries/Fatalities
           on the Working Section (1984-2014) by Machine Type
------------------------------------------------------------------------
                 Machine type                     Injuries    Fatalities
------------------------------------------------------------------------
Coal Hauling Machines.........................          123           31
Scoops........................................           56           11
                                               -------------------------
  Total.......................................          179           42
------------------------------------------------------------------------
Note: Of these 42 fatalities, nine occurred from 2010 through 2014. Four
  of those fatalities occurred in 2013 and 2014: two involving coal
  hauling machines and two involving scoops.

    MSHA would consider alternative technologies that might provide 
protection from pinning, crushing, or striking hazards at least 
equivalent to that provided by proximity detection systems. MSHA 
requests that commenters include specific information on alternatives, 
rationale for suggested alternatives, safety benefits to miners, costs 
of implementation, technological and economic feasibility 
considerations, and supporting data.
1. Exceptions
    The proposal would exclude longwall working sections. In MSHA's 
experience, coal hauling machines and scoops are not routinely used on 
longwall working sections. The working section includes all areas of 
the coal mine from the loading point of the section to and including 
the working faces.
    MSHA solicits information and data addressing whether scoops or 
coal haulage machines cause a hazard to miners on longwall working 
sections such that they may require the use of proximity detection. 
MSHA requests that commenters include specific information on rationale 
for not excluding longwall working sections, safety benefits to miners, 
costs of implementation, technological and economic feasibility 
considerations, and supporting data.
    MSHA is aware that some machines operate both on and off the 
working section and that some machines are only used off the working 
section. The proposal would require mine operators to equip only coal 
hauling machines and scoops used on the working section with the 
machine-mounted components of a proximity detection system. From 1984 
through 2014, however, two fatal accidents involving scoops occurred 
off working sections. MSHA is not aware of a fatal accident involving a 
coal hauling machine traveling off a working section. In addition, 13 
nonfatal accidents occurred off working sections (two involving coal 
hauling machines and 11 involving scoops) and 16 occurred in an unknown 
location (one involving a coal hauling machine and 15 involving 
scoops).
    MSHA solicits comments on whether the proposed requirements should 
apply to any mobile machines, other than coal hauling machines and 
scoops, in use on or off the working section. MSHA also solicits 
comments on whether the proposed requirements should apply to coal 
hauling machines and scoops in use off the working section. MSHA 
requests that commenters include specific information on their 
rationale, safety benefits to miners, costs of implementation, 
technological and economic feasibility considerations, and supporting 
data.

[[Page 53074]]

2. MSHA-Approved Proximity Detection Systems
    The three methods to obtain MSHA approval to add the machine-
mounted components of a proximity detection system to a machine are as 
follows:
    (1) A machine manufacturer can apply for a Revised Approval 
Modification Program (RAMP) approval.
    (2) A mine operator can apply to the Approval and Certification 
Center (A&CC) for a field modification.
    (3) A mine operator can notify the MSHA district manager through a 
district field change application for electric machines.
    MSHA offers an optional Proximity Detection Acceptance (PDA) 
program which allows a proximity detection system manufacturer to 
obtain MSHA acceptance for a proximity detection system. This 
acceptance states that the proximity detection system has been 
evaluated under 30 CFR part 18 and is suitable for incorporation on an 
MSHA-approved machine. It permits the manufacturer or owner of a 
machine to add the proximity detection system to a machine by 
requesting MSHA to add the acceptance number (PDA Number) to the 
machine approval under one of three methods listed above.
    MSHA has approved four proximity detection systems under existing 
regulations for permissibility in 30 CFR part 18 for use on continuous 
mining machines. Two of these approved systems have been installed on 
coal hauling machines or scoops.
    As of January 2015, there were 79 coal hauling machines and 50 
scoops equipped with a proximity detection system in use in underground 
coal mines in the United States. Proximity detection was adapted for 
use on coal hauling machines and scoops by adjusting the field 
generator configuration to create appropriately sized zones and by 
changing the method for stopping machine movement. For example, a 
proximity detection system may be configured, as needed, to de-energize 
the pump motor to stop continuous haulage machine movement while a 
system installed on a shuttle car may be configured to apply brakes.
    MSHA is aware that a manufacturer has installed machine-mounted 
components on a continuous haulage system and that the manufacturer has 
demonstrated its performance to a mine operator. MSHA has not observed 
the operation of a proximity detection system installed on a continuous 
haulage system in an underground mine. MSHA anticipates challenges with 
adapting proximity detection systems to continuous haulage systems due 
to the length of these machines and the unique interaction with 
continuous mining machines.
    MSHA solicits comments on other types of mobile machines that 
should be required to be equipped with proximity detection systems. 
MSHA specifically solicits comments on circumstances where it may be 
appropriate to require loading machines, roof bolting machines, and 
feeder breakers to be equipped with a proximity detection system. 
Comments should provide specific information on rationale for requiring 
other types of mobile machines to be equipped with proximity detection 
systems, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.
    Each proximity detection system currently approved by MSHA for use 
in underground coal mines in the United States uses miner-wearable 
components. These systems cannot protect any miner who is not wearing a 
miner-wearable component.
    Miners on the working section often work near coal hauling machines 
and scoops. Each miner on a working section can be exposed to pinning, 
crushing, or striking hazards from these machines and would need to 
wear a miner-wearable component for protection. The proposal would 
require the mine operator to provide a miner-wearable component to be 
worn by each miner on the working section, except longwall working 
sections. A working section is defined in existing Sec.  75.2 as all 
areas of the coal mine from the loading point of the section up to and 
including the working faces.
    To assess the costs of the proposed rule, MSHA estimated that there 
are seven miners per working section. In addition, other persons may 
visit the working section on occasion, such as dust samplers, 
surveyors, electricians, or mine examiners, and would need a miner-
wearable component.
    MSHA solicits comments on the numbers of persons who may be on the 
working section during a single shift. Comments should be specific and 
include alternatives, rationale for suggested alternatives, safety 
benefits to miners, technological and economic feasibility 
considerations, and supporting data.
3. Proposed Phase-In Schedule for Proximity Detection Systems on Coal 
Hauling Machines and Scoops
    Proposed Sec.  75.1733(a) would phase in the use of proximity 
detection systems according to the following schedule.
    Proposed Sec.  75.1733(a)(1) would require coal hauling machines 
and scoops manufactured after the effective date of a final rule to 
meet the rule's requirements no later than 8 months after the effective 
date of the final rule. These machines would need to meet the 
requirements in this section when placed in service with a proximity 
detection system. The Agency intends that a machine is placed in 
service when the machine equipped with a proximity detection system is 
placed in the underground coal mine.
    Proposed Sec.  75.1733(a)(2) would require coal hauling machines or 
scoops manufactured and equipped with a proximity detection system on 
or before the effective date of a final rule to meet the rule's 
requirements no later than 8 months after the effective date of the 
final rule when modifications to the existing proximity detection 
system can be made underground; or 36 months after the effective date 
of the final rule when the existing proximity detection system cannot 
be modified underground or needs to be replaced with a new proximity 
detection system.
    Proposed Sec.  75.1733(a)(3) would require coal hauling machines 
and scoops manufactured and not equipped with a proximity detection 
system on or before the effective date of a final rule to meet the 
rule's requirements no later than 36 months after the effective date of 
the final rule. These machines would need to meet the requirements in 
this section when placed in service with a proximity detection system.
    Several commenters on the RFI recommended that MSHA consider a 
phase-in approach with separate compliance dates addressing new 
equipment, rebuilt equipment, and equipment in service. One commenter 
encouraged MSHA to proceed cautiously and to provide the time required 
to assure the development of reliable and effective systems. Another 
commenter stated that machines should be retrofitted with proximity 
detection systems in a shop or during rebuild.
    The proposed phase-in schedule would provide an appropriate amount 
of time for manufacturers to produce proximity detection systems; for 
manufacturers and mine operators to install proximity detection systems 
on newly manufactured machines or modify in-service proximity detection 
systems and machines; and for mine operators to install proximity 
detection systems on machines not equipped by the effective date of a 
final rule.
    In determining the schedule, MSHA considered the availability of 
MSHA-approved proximity detection systems, the estimated number of 
machines that would be replaced by newly manufactured machines during 
this

[[Page 53075]]

period, manufacturers' capacity to produce and install systems for 
these machines, and manufacturers' and mine operators' ability to 
produce and install systems on existing equipment. The phase-in 
schedule would allow mine operators time to train their workforce on 
proximity detection systems.
    MSHA considers the date that the machine was manufactured as the 
date identified on the machine or otherwise provided by the 
manufacturer. MSHA considers coal hauling machines and scoops to be 
equipped with a proximity detection system when the machine-mounted 
components are installed on the machine and miners are provided with 
the miner-wearable components.
    The proposed rule would allow 8 months for mine operators to 
install proximity detection systems on coal hauling machines and scoops 
manufactured after the effective date of a final rule. These newly 
manufactured machines can be equipped with proximity detection systems 
as part of the manufacturing process. MSHA believes that this 8-month 
time period would allow manufacturers and mine operators sufficient 
time to obtain MSHA approval under existing 30 CFR parts 18 or 36 and 
install proximity detection systems. The proposed 8-month time period 
would also allow mine operators time to inform and train their 
workforce on proximity detection systems. MSHA believes it is important 
for coal hauling machines and scoops equipped with a proximity 
detection system to meet requirements when placed in service to assure 
that miners are protected from pinning, crushing, and striking hazards.
    The proposed rule would allow 8 months for mine operators to make 
any needed modifications to proximity detection systems that were 
installed on coal hauling machines and scoops before the effective date 
of a final rule. Proximity detection systems approved and in use on 
coal hauling machines or scoops in underground mines have a visual 
warning signal on the machine-mounted component and both a visual and 
audible warning signal on the miner-wearable component. These systems 
might require modification of the proximity detection warning signals 
to make them distinguishable from other signals. MSHA believes that 
these modifications could be done underground during a maintenance 
shift. Allowing 8 months for these machines would also provide 
operators time to obtain MSHA approvals for the modifications and to 
provide training. MSHA estimates that, as of January 2015, at least 79 
coal hauling machines and 50 scoops in use in underground coal mines 
have been equipped with a proximity detection system.
    The proposed rule would allow 36 months for mine operators to 
install proximity detection systems on coal hauling machines and scoops 
manufactured and not equipped with a proximity detection system on or 
before the effective date of a final rule. This time period would allow 
mine operators time to schedule installations during planned rebuilds 
or scheduled maintenance and to train their workforce on proximity 
detection systems. MSHA believes it is important for coal hauling 
machines and scoops equipped with a proximity detection system to meet 
requirements when placed in service to assure that miners are protected 
from pinning, crushing, and striking hazards. MSHA estimates that, as 
of January 2015, there are 1,283 coal hauling machines and 704 scoops 
in service on the working sections in underground coal mines that would 
need to be equipped with a proximity detection system. MSHA would also 
provide 36 months to mine operators with mobile machines already 
equipped with a proximity detection system that would require the 
installation of a new proximity detection system or modifications to 
the system could not be done underground to meet the rule's 
requirements.
    This proposed rule would also apply to diesel-powered coal hauling 
machines and scoops on the working section. MSHA is unaware of any 
permissible diesel-powered machines equipped with proximity detection 
systems in the United States. MSHA anticipates challenges with 
installing proximity detection systems on diesel-powered machines due 
to the additional modifications required to the mechanical systems.
    MSHA acknowledges that it will take time to obtain MSHA approvals 
to equip coal hauling machines and scoops with proximity detection 
systems. MSHA must approve miner-wearable components and electrical 
machines equipped with proximity detection systems as permissible 
equipment under existing regulations in 30 CFR part 18. Diesel-powered 
machines must be approved under existing regulations in 30 CFR part 36.
    MSHA solicits comments on the proposed phase-in schedules. MSHA 
also solicits comments on what, if any, modifications may be needed on 
mobile machines already equipped with proximity detection systems. MSHA 
also solicits comments on whether the modifications could be made 
underground, and whether there are any issues that may impact the 
proposed phase-in schedules. Comments should be specific and include 
alternatives, rationale for suggested alternatives, safety benefits to 
miners, technological and economic feasibility considerations, and 
supporting data.
4. Training Requirements for Miners Working Near Machines Equipped With 
Proximity Detection Systems
    In response to the RFI, some commenters stated that miners will 
need task training when machines are equipped with a proximity 
detection system. As the proximity detection systems are phased in, 
mine operators would be required to provide miners with new task 
training under existing part 48. MSHA intends that mine operators would 
address safety issues that might arise during the proposed phase-in 
schedule, such as some machines being equipped with proximity detection 
systems while others are not, through existing new task training 
requirements, with an emphasis on basic safety rules and practices. 
MSHA believes that as mobile machines are equipped with proximity 
detection there will be an added layer of safety to the basic safety 
rules and practices, assuring that the risk of injury would not 
increase during the phase-in period.
    Miners working near mobile machines equipped with proximity 
detection systems would engage in different and unfamiliar machine 
operating procedures resulting from new work positions, machine 
movements, and new visual or auditory signals. Existing Sec.  48.7(a) 
requires that miners assigned to new work tasks as mobile equipment 
operators not perform new work tasks until training has been completed. 
As required under existing Sec.  48.7(a)(3) for new or modified 
machines and equipment, equipment and machine operators must be 
instructed in safe operating procedures applicable to new or modified 
machines or equipment to be installed or put into operation in the 
mine, which require new or different operating procedures. In addition, 
existing Sec.  48.7(c) requires miners assigned a new task not covered 
in existing Sec.  48.7(a) be instructed in the safety and health 
aspects and safe work procedures of the task prior to performing such 
task.
    Mine operators would be required to provide new task and equipment 
training on the proper functioning of the proximity detection system 
before requiring miners to operate or work near a machine equipped with 
a proximity detection system. New task training (which is separate from 
new miner training under existing Sec.  48.5 and annual refresher 
training under existing

[[Page 53076]]

Sec.  48.8) must occur before miners operate machines equipped with a 
proximity detection system. New task training helps assure that miners 
have the necessary skills to perform new tasks prior to assuming 
responsibility for the tasks. Mine operators should assure that this 
training includes hands-on training during supervised non-production 
activities. The hands-on training allows miners to experience how the 
systems work and to locate the appropriate work positions around 
machines. Based on Agency experience, the hands-on training is most 
effective when provided in miners' work locations.
    MSHA solicits comments on the proposed training for miners who 
operate or work near machines equipped with proximity detection 
systems. Comments should address the type, frequency, and content of 
training in addition to which miners should be trained. Comments should 
be specific and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.
5. Request for Comments on Requiring Proximity Detection Systems on 
Mobile Machines in Underground Metal and Nonmetal Mines
    Metal and nonmetal mine operators would not be required to equip 
machines with proximity detection systems under this proposal. In 
response to the RFI, some commenters suggested that proximity detection 
systems should not be required in underground stone mines. These 
commenters stated that they were not aware of pinning, crushing, or 
striking accidents in underground stone mines that might have been 
prevented by proximity detection systems. One commenter stated that 
applying proximity detection technology to the equipment used in 
underground stone mines would not serve to reduce the risk of injuries 
and fatalities. Two commenters stated that underground stone miners 
work in enclosed cabs and are not exposed to the hazards presented by 
remote controlled equipment. Three commenters stated that an 
electromagnetic field from a proximity detection system could set off 
electric detonators used in underground stone mines. Two commenters 
also stated that proximity detection systems had not been tested on 
equipment in underground metal and nonmetal mines.
    MSHA has analyzed data on pinning, crushing, and striking accidents 
in underground metal and nonmetal mines, and related equipment. MSHA 
estimates that, based on the Agency's most recent analysis, there are 
66 continuous mining machines, 80 shuttle cars, and 1,371 scoops, 
loaders, load-haul-dumps, and mucking machines used in underground 
metal and nonmetal mines. Since 1984, five fatalities have occurred in 
underground metal and nonmetal mines where the use of a proximity 
detection system could have prevented the accident (since these miners 
were found in a proximity detection system warning/stopping zone): one 
involving a continuous mining machine and four involving a scoop, 
loader, load-haul-dump machine, or mucking machine.
    Generally, mining conditions in underground metal and nonmetal 
mines are not the same as conditions in underground coal mines. 
Differences include wider and higher entries, which improve visibility 
and allow more room for miners to work around the equipment. The 
Agency's experience with use of proximity detection systems in the 
United States has focused on underground coal mines. Therefore, in 
response to comments to the RFI and the less frequent occurrence of 
crushing, striking, and pinning accidents in underground metal and 
nonmetal mines, the proposed requirements are limited to underground 
coal mines.
    MSHA solicits comments on whether the Agency should require 
proximity detection systems on machines used in underground metal and 
nonmetal mines, and if so, which types of machines and in what 
timeframes. Comments should be specific and include alternatives, 
rationale for suggested alternatives, safety benefits to miners, 
technological and economic feasibility considerations, and supporting 
data.
6. Request for Comments on Requiring Miners To Wear Reflective Clothing 
in Underground Coal and Metal and Nonmetal Mines
    MSHA is also considering a requirement that miners in underground 
mines wear reflective material in order to reduce the hazards 
associated with poor visibility. Existing Sec.  75.1719-4(d) requires 
that each person who goes underground in a coal mine wear a hard hat or 
hard cap with a minimum of six square inches of reflecting tape or 
equivalent paint or material on each side and back. Metal and nonmetal 
mines do not have a similar requirement. In MSHA's experience, however, 
many miners in underground coal and metal and nonmetal mines also wear 
clothing with reflective material. One of the recommendations in MSHA's 
2010 safety initiative, Safety Practices around Shuttle Cars and Scoops 
in Underground Coal Mines, was that ``Miners should always wear 
reflective clothing so that they can be clearly seen by the shuttle car 
and scoop drivers.''
    MSHA solicits comments on whether the Agency should require that 
miners wear reflective material to make them more visible to equipment 
operators and, if so, how much and where. Comments should be specific 
and include alternatives, rationale for suggested alternatives, safety 
benefits to miners, feasibility considerations, and supporting data.

B. Sec.  75.1733(b) Requirements for Proximity Detection Systems

    Proposed Sec.  75.1733(b)(1) would require that a proximity 
detection system cause a machine to stop before contacting a miner 
except for a miner who is in the on-board operator's compartment. This 
proposed requirement would apply to coal hauling machines and scoops on 
the working section to prevent pinning, crushing, or striking 
accidents. MSHA intends that the proximity detection system would stop 
all movement of the machine, such as tramming, conveyor chain movement, 
and raising or lowering the bucket of a scoop that could cause the 
machine to contact a miner. The machine would remain stopped while any 
miner is within a programmed stop zone.
    In the RFI, MSHA asked for comments on the size and shape of the 
area around machines that a proximity detection system monitors and how 
systems can be programmed and installed to provide different zones of 
protection depending on machine function. Some commenters stated that 
an effective proximity detection system should cause the machine to 
stop before a miner enters the hazardous area around the machine. 
Several commenters suggested that protection zones should be largest 
when tramming and that reduced protection zones are needed for certain 
mining operations.
    Some commenters stated that zone size should be determined using a 
risk assessment considering the speed at which the proximity detection 
system can alert the operator, the reaction time of the operator, and 
the number of people in the working area. Another commenter stated that 
work practices vary among mines so that one specified zone may not work 
for all mines.
    In its comments on the RFI, NIOSH stated that the goal of a 
proximity detection system should be to prevent machine actions or 
situations that injure workers while not placing restrictions on how 
the workers do their jobs.

[[Page 53077]]

NIOSH also stated that the total time required for performing proximity 
detection system functions, plus a safety factor, should be used to 
define the size of detection zones around machines. NIOSH stated that 
the total time required includes: (1) Detection of a potential victim; 
(2) decision processing to determine if a collision-avoidance function 
is needed; (3) initiation of the collision-avoidance function; and (4) 
implementation of the collision-avoidance function. NIOSH stated that 
any rule should be performance-based.
    MSHA's experience with proximity detection systems indicates that 
causing a machine to stop before contacting a miner would provide 
appropriate protection to prevent pinning, crushing, and striking 
accidents. Machines traveling at faster speeds generally need more time 
to stop. MSHA has observed proximity detection systems that are 
designed to slow a machine before causing it to stop. A performance-
based approach would allow mine operators and manufacturers to address 
mine- and machine-specific conditions when determining the appropriate 
settings for a proximity detection system. Performance-based 
requirements focus on attaining objectives, such as stopping a machine 
before contacting a miner, rather than being prescriptive in how the 
result is achieved, such as stopping within a specified distance. Mine- 
and machine-specific conditions could include steep or slippery 
roadways, tramming speed of machinery, location of the miner-wearable 
component, and the accuracy of the proximity detection system. Mine 
operators would be responsible for programming a proximity detection 
system to initiate the stop-movement function so that the machine stops 
before contacting a miner.
    MSHA solicits comments on whether to require a proximity detection 
system to cause the machine to slow before causing it to stop and, if 
so, what requirement would be appropriate. MSHA also solicits comments 
on effective methods or controls, working in conjunction with the 
proximity detection system, to protect the on-board operator from 
sudden stops. MSHA also requests comments on what types of machine 
movement the proximity detection system should stop, beyond movement 
related to tramming coal hauling machines and scoops. Comments 
addressing these issues should be specific, and include alternatives, 
rationale for suggested alternatives, safety benefits to miners, 
technological and economic feasibility considerations, and supporting 
data.
    During MSHA's visit to South Africa, staff observed that one mine 
operator designed its proximity detection systems to stop scoops eight 
feet from a miner and to stop shuttle cars six feet from a miner. Prior 
to the introduction of proximity detection systems at their mines, the 
company's policy was that miners must maintain a minimum distance of 
one meter (approximately three feet) from all operating mobile 
machines. MSHA considered proposing a prescriptive requirement that 
would specify that a machine must stop no closer than three feet from a 
miner. MSHA also considered proposing other specific stopping 
distances, e.g., six feet from a miner, but decided on a performance-
based approach.
    MSHA solicits comments on whether a performance-based approach 
would be appropriate. Comments should be specific, and include 
alternatives, rationale for suggested alternatives, safety benefits to 
miners, technological and economic feasibility considerations, and 
supporting data.
    The interaction of multiple machine types equipped with proximity 
detection systems is likely to cause changes in work practices. These 
changes would affect where miners are positioned near machines and 
routes that machines travel. For example, continuous mining machines 
and coal hauling machines must get close, and often touch, during the 
transfer of material from one machine to the other. When a coal hauling 
machine equipped with a proximity detection system gets near a 
continuous mining machine with a proximity detection system, the 
overlap of the two protection zones may limit where miners may position 
themselves (1) to remain safe, (2) avoid activation of warning signals, 
or (3) avoid unintentionally stopping the machines.
    MSHA solicits comments on how the use of proximity detection 
systems and the overlap of protection zones on multiple types of 
machines operating on the same working section might affect miners' 
work positions, such as a continuous mining machine operator who may 
need to work close to the continuous mining machine when cutting coal 
or rock. Comments should be specific, and include alternatives, 
rationale for suggested alternatives, safety benefits to miners, 
technological and economic feasibility considerations, and supporting 
data.
    Proposed Sec.  75.1733(b)(1) would provide an exception for a miner 
who is in an on-board operator's compartment. Machines with an on-board 
operator would not function if the proximity detection system prevents 
machine movement when a miner is on the machine. The proposed rule 
would require machines to stop before contacting any miner not in the 
operator's compartment.
    MSHA observed that, in South Africa, the continuous mining machine 
operator was provided a smaller protection zone around the shuttle car 
than for other miners. This allowed the continuous mining machine 
operator to be closer to the shuttle car when it got near the 
continuous mining machine for loading. The proximity detection system 
on the shuttle car caused the machine to slow down as it neared the 
continuous mining machine operator, reducing the pinning, crushing, or 
striking hazard. Similarly, an underground coal mine operator in the 
United States, working with a proximity detection system manufacturer, 
developed a system which would stop a coal hauling machine when it got 
within approximately ten feet of a miner. However, the continuous 
mining machine operator can press a button on the miner-wearable 
component and allow the coal hauling machine to slowly approach the 
continuous mining machine.
    Commenters to the RFI generally stated that machines with an on-
board operator's compartment should have a proximity detection system 
that allows machines to function when the operator is in the operator's 
compartment. One commenter stated that a proximity detection system can 
include exclusion zones to allow mobile machines to move while a miner 
is in the exclusion zone but still protect other miners.
    Some coal hauling machines and scoops may be used to transport mine 
personnel if certain safeguards are in place. (MSHA Program Policy 
Manual, Vol. V--Coal Mines, Criteria--Mantrips, October 2003 (Release 
V-34), pp. 126-127.) Under the proposed rule, a coal hauling machine or 
scoop equipped with a proximity detection system that is being used to 
transport mine personnel would not operate if miners wore their miner-
wearable components. Both the coal hauling machine or scoop being used 
to transport miners and the miners being transported, however, would 
have to be equipped with a properly functioning proximity detection 
component before they enter the working section. Under one possible 
scenario, the coal hauling machine or scoop could stop to allow miners 
to get off before it continues onto the working section. Miners could 
then don a miner-wearable component before entering the working 
section.
    MSHA solicits comments on the exclusion zone for the on-board

[[Page 53078]]

operator. MSHA also requests information on issues related to the use 
of coal hauling machines or scoops, equipped with proximity detection 
systems, to transport miners to the working section. Comments should be 
specific, and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.
    Proposed Sec.  75.1733(b)(2) would require the proximity detection 
system to provide warning signals, distinguishable from other signals, 
that alert miners before the system causes a machine to stop: an 
audible and visual warning signal on any miner-wearable component and a 
visual warning signal on the machine.
    In the RFI, MSHA asked for information on the most effective 
protection that proximity detection systems could provide. In response, 
some commenters stated that a proximity detection system should include 
a warning prior to causing the machine to stop movement. One commenter 
stated that proximity detection systems should include a range of 
escalating alerts depending on the proximity to a hazard.
    MSHA-approved proximity detection systems alert miners before 
causing machine movement to stop. The proposal would require audible 
and visual warning signals on any miner-wearable component and a visual 
warning signal on the machine before the system causes the machine to 
stop. The audible and visual warnings provided by miner-wearable 
components allow the miner wearing the component to move away from the 
machine before the proximity detection system causes the machine to 
stop. The visual warning provided on the machine would be required to 
alert the on-board operator.
    Two proximity detection systems currently approved for use on 
mobile machines in the United States provide an audible and visual 
warning signal from a miner-wearable component and a visual warning 
signal from the machine before causing a machine to stop. In MSHA's 
experience, providing warning signals before causing the machine to 
stop provides a margin of safety to allow a miner near the moving 
machine an opportunity to be proactive and move away from the machine 
to avoid danger.
    MSHA solicits comments on the proposed requirement that the 
proximity detection system provide audible and visual warning signals 
on miner-wearable components and a visual warning signal on the mobile 
machines. Early research suggests that providing warnings at varying 
distances may be appropriate dependent on the machine speed. (Sanders 
and Kelly, 1981.) Machine operators often need to redirect their 
attention from the front to the rear of the machine, and in some cases, 
must switch seats when changing directions. As a result, a visual 
warning signal on the machine may not always be in the operator's 
direct line of sight.
    MSHA solicits comments on whether requiring audible warning signals 
in addition to visual warning signals on the machine would help assure 
that miners, including the machine operator, know that a miner is in 
the warning zone and the machine is about to stop. MSHA also solicits 
comments on whether requiring the use of a specific visual warning on 
the machine, e.g., strobe lights, clustered light-emitting diode (LED) 
lights, or other types of visual signals, would help assure that the 
visual warning alerts miners near the machine, including the machine 
operator. Comments should be specific and include alternatives, 
rationale for suggested alternatives, address how the alternatives 
would practically and effectively be implemented, safety benefits to 
miners, technological and economic feasibility considerations, and 
supporting data.
    Proposed Sec.  75.1733(b)(3) would require that a proximity 
detection system provide a visual signal on the machine that indicates 
the machine-mounted components are functioning properly.
    Commenters, in response to the RFI, generally stated that a 
proximity detection system should include system diagnostics and 
indicate that the system is functioning properly. In its comments on 
the RFI, NIOSH stated that each proximity detection system should 
perform self-diagnostics to identify software or hardware problems.
    In MSHA's experience, proximity detection systems used on coal 
hauling machines and scoops provide a visual signal to indicate the 
system is functioning properly. This provides an added margin of safety 
and is consistent with standard safety practices. The visual signal 
allows miners to readily determine that a proximity detection system is 
functioning properly. MSHA believes that an unobstructed visual signal 
is preferable to an audible signal for providing feedback to miners 
because a visual signal cannot be obscured by surrounding noise. An LED 
may be an acceptable visual signal.
    MSHA considers the proximity detection system to be functioning 
properly when the system is working as designed and will cause the 
machine to stop before contacting a miner; provide audible and visual 
warning signals, distinguishable from other signals, that alert miners, 
including the machine operator, before causing the machine to stop; 
provide the required warning signals on the machine; and prevent 
movement of the machine, except for purposes of repair, if any machine-
mounted component is not working as intended.
    MSHA solicits comments on the proposed requirement. Comments should 
be specific and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.
    Proposed Sec.  75.1733(b)(4) would require that a proximity 
detection system prevent movement of the machine if any machine-mounted 
component of the system is not functioning properly. However, a system 
may allow machine movement if an audible or visual warning signal, 
distinguishable from other signals, is provided during movement. Such 
movement would be permitted only for purposes of relocating the machine 
from a location that is unsafe for the miner conducting repairs.
    Commenters in response to the RFI had different opinions on whether 
MSHA should permit an operator to override the shutdown feature of a 
proximity detection system to allow machine movement in a particular 
circumstance. One commenter stated that a proximity detection system 
must provide a continuous self-check capability so that if the system 
is not functioning properly, the machine cannot be operated. This same 
commenter stated that only an appointed person should have the 
authority to override a proximity detection system. Several commenters 
stated that a proximity detection system should allow for temporary 
deactivation, such as an emergency override, in case a system is not 
functioning properly while a machine is under unsupported roof. Another 
commenter, however, stated that a proximity detection system should not 
have an override feature.
    MSHA intends that proximity detection systems would prevent all 
machine movement if any machine-mounted component is not functioning 
properly. This prevention of movement includes tramming, conveyor chain 
movement, raising or lowering the bucket of a scoop, and any movements 
that could cause the machine to contact a miner. A coal hauling machine 
or scoop equipped with a proximity detection system that is 
malfunctioning

[[Page 53079]]

could expose miners to pinning, crushing, and striking hazards. When 
any machine-mounted component of the system is not functioning 
properly, preventing all machine movement helps to assure that miners 
are protected.
    The proposed rule would allow the machine's proximity detection 
system to be overridden or bypassed to move the machine from an unsafe 
location to protect miners. Overriding or bypassing the proximity 
detection system should only occur for the time necessary to move the 
machine to a safe repair location. The proposed provision to allow the 
machine to be moved would require an audible or visual warning signal 
during the movement. In MSHA's experience, either type of warning 
signal is sufficient to warn miners that the machine-mounted component 
of the proximity detection system is not functioning properly.
    MSHA solicits comments on the proposed requirements. MSHA requests 
comments addressing whether requiring both an audible and visual 
warning signal is needed to assure that all miners on the working 
section know that the machine-mounted component is not functioning 
properly. Comments should be specific and include alternatives, 
rationale for suggested alternatives, safety benefits to miners, 
technological and economic feasibility considerations, and supporting 
data.
    Proposed Sec.  75.1733(b)(5) would require that a proximity 
detection system be installed to prevent interference that adversely 
affects performance of any electrical system.
    Some commenters in response to the RFI stated that interference of 
proximity detection systems with other mine electrical systems is a 
concern. However, manufacturers of the approved proximity detection 
systems stated that their systems do not have interference issues. A 
commenter stated that electromagnetic interference may prevent these 
systems from providing complete protection to miners. Several 
commenters stated that systems must be designed and tested for possible 
and known sources of interference before a requirement for proximity 
detection is issued. A commenter expressed concern that a proximity 
detection system may detonate explosives due to electromagnetic field 
interference.
    Electrical systems used in the mine, including proximity detection 
systems, can adversely affect the function of other electrical systems 
through the generation of electromagnetic interference, which includes 
radio frequency interference. MSHA has not received reports of adverse 
interference, with or from other electrical systems, associated with 
the approximately 583 proximity detection systems in use in underground 
coal mines. However, there have been instances of adverse performance 
of a remote controlled system, an atmospheric monitoring system, and a 
machine-mounted methane monitoring system when a hand-held radio was in 
use near the affected systems. Electromagnetic output of approved 
proximity detection systemsis substantially lower and uses different 
frequencies than other mine electrical systems, such as communication 
and atmospheric monitoring systems. It is less likely for a proximity 
detection system to encounter interference, even in low seam mines. 
Under the proposal, the mine operator would be required to evaluate a 
proximity detection system used on coal hauling machines and scoops for 
interference that adversely affects other electrical systems, including 
blasting circuits and other proximity detection systems, in the mine 
and take adequate steps to prevent adverse interference. Steps could 
include design considerations, such as the addition of shielding, or 
providing adequate separation between electrical systems.
    MSHA solicits comments on the proposed requirement that a proximity 
detection system be installed in a manner that prevents interference 
that adversely affects performance of any electrical system. MSHA also 
solicits comments on any experience or issues related to the use of 
proximity detection systems from different manufacturers on the same 
working section. MSHA requests comments on any experience or issues 
related to the use of a single miner-wearable component with proximity 
detection systems from different manufacturers or with different models 
from the same manufacturer. Comments should be specific and include 
alternatives, rationale for suggested alternatives, safety benefits to 
miners, technological and economic feasibility considerations, and 
supporting data.
    Proposed Sec.  75.1733(b)(6) would require that a proximity 
detection system be installed and maintained in proper operating 
condition by a person trained in the installation and maintenance of 
the system.
    A commenter in response to the RFI stated that maintenance 
personnel and machine operators will need training to assure that they 
understand how the proximity detection system functions and any 
maintenance requirements. This commenter also stated that proper 
installation of a proximity detection system is critical for reliable 
performance. Another commenter said that a few hours of classroom 
instruction and approximately one hour of underground training for 
machine operators has proven adequate and that maintenance training 
requires about four hours.
    Based on MSHA's experience with proximity detection systems, proper 
functioning of a proximity detection system is directly related to the 
quality of the installation and maintenance of the system. This 
proposed training requirement for installing and maintaining a 
proximity detection system is in addition to training required under 
existing 30 CFR part 48. The new training requirement would help assure 
that the person performing installation and maintenance of a proximity 
detection system understands the system and can perform the work 
necessary to assure that the system operates properly. Appropriate 
training could include adjusting detection zones, trouble-shooting 
electrical connections, and replacing and adjusting machine-mounted and 
miner-wearable components.
    MSHA anticipates that mine operators would assign miners to perform 
most maintenance activities, but representatives of the manufacturer 
may perform some maintenance. Based on Agency experience, mine 
operators would generally arrange for proximity detection system 
manufacturers to provide appropriate training to miners for 
installation and maintenance. Miners receiving training from 
manufacturers' representatives would, in most cases, provide training 
for other miners who may undertake installation and maintenance duties 
at the mine. In MSHA's experience, many mines use the train-the-trainer 
concept for installation and maintenance activities related to certain 
mining equipment.
    A system must operate properly to protect miners near the machine. 
This includes the machine-mounted components and the miner-wearable 
components. MSHA would expect the mine operator to demonstrate that a 
proximity detection system in use at their mine, on a coal hauling 
machine or scoop, is installed and maintained in proper operating 
condition. Mine operators could determine if the system is maintained 
in proper operating condition using the procedures described in the 
system manufacturer's instructions.
    When determining whether the proximity detection system is 
installed and maintained in proper operating condition, the position of 
the miner-wearable component on the miner and the distance from the 
closest surface of

[[Page 53080]]

the machine to the miner-wearable component should be considered. Mine- 
and machine-specific conditions, including steep or slippery roadways, 
tramming speed of machinery, location of the miner-wearable component, 
and the accuracy of the proximity detection system, should also be 
considered.
    MSHA solicits comments on mine operators' experiences with 
maintaining proximity detection systems in proper operating condition. 
Comments should be specific and include alternatives, rationale for 
suggested alternatives, safety benefits to miners, technological and 
economic feasibility considerations, and supporting data.

C. Sec.  75.1733(c) Proximity Detection System Checks

    Proposed Sec.  75.1733(c) would address requirements for proximity 
detection system checks.
    Proposed Sec.  75.1733(c)(1) would require that mine operators 
designate a person to perform a check of machine-mounted components of 
the proximity detection system to verify that components are intact and 
the system is functioning properly, and to take action to correct 
defects: (1) Before the machine is operated at the beginning of each 
shift when the machine is to be used; (2) immediately prior to the time 
the machine is to be operated if not in use at the beginning of a 
shift; or (3) within one hour of a shift change if the shift change 
occurs without an interruption in production. For (1) and (2), MSHA 
anticipates that the check would occur before the machine is permitted 
to enter the working section.
    In response to the RFI, several commenters stated that a proximity 
detection system should be checked at the beginning of each shift to 
verify that it is functioning properly. NIOSH commented that the 
machine operator should have a set of procedures to evaluate the system 
at the start of each shift.
    The person designated to perform the check would verify that 
machine-mounted components are intact and the system is functioning 
properly. Machine-mounted components mounted on the outer surfaces of a 
machine could be damaged when the machine contacts a rib or heavy 
material falls against the machine. The check would also include 
observation of appropriate audible and visual warning signals. If any 
defect is found, the proposal would require it to be corrected before 
using the machine. Correcting defects before the machine is used helps 
assure that the system functions properly and helps prevent miners' 
exposure to pinning, crushing, and striking hazards.
    The check of the machine-mounted components would supplement the 
design requirement in proposed paragraph (b)(4) that the systems 
prevent movement of the machine if any machine-mounted component is not 
functioning properly. For example, the system may not be able to detect 
a displaced field generator, which could affect proper function. The 
check would help assure that machine-mounted components are positioned 
correctly and mounted properly on the machine and that the system will 
warn miners and stop machine movement appropriately.
    Under existing Sec.  48.7, miners who perform the required check 
must receive training in the health and safety aspects and safe 
operating procedures for work tasks, equipment, and machinery. In most 
cases, MSHA anticipates that the mine operator will designate the 
person operating a coal hauling machine or scoop to make the check of 
the proximity detection system.
    The check in proposed Sec.  75.1733(c)(1) would help assure that 
proximity detection systems function properly between the weekly 
examinations required under existing Sec. Sec.  75.512 and 75.1914. The 
examination of electric machines under existing Sec.  75.512 must 
include the machine-mounted components of a proximity detection system. 
Existing Sec.  75.512 requires electric equipment, including the 
machine-mounted components of proximity detection systems, to be 
examined, tested, and properly maintained by a qualified person at 
least weekly to assure safe operating conditions. When the qualified 
person finds a potentially dangerous condition on electric equipment, 
such equipment must be removed from service until such condition is 
corrected. Under existing Sec.  75.1725, mobile and stationary 
machinery and equipment, which includes coal hauling machines and 
scoops, must be maintained in safe operating condition or removed from 
service. In addition, existing Sec.  75.1914(a) requires that diesel-
powered equipment be maintained in approved and safe condition or 
removed from service. Under existing Sec.  75.1914(f), machine-mounted 
components of proximity detection systems on diesel-powered machines 
must be examined weekly.
    MSHA solicits comments on the proposed requirement. Comments should 
be specific and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.
    Proposed Sec.  75.1733(c)(2) would require that miner-wearable 
components be checked for proper operation at the beginning of each 
shift that the component is to be used and that defects be corrected 
before the components are used.
    Several commenters on the RFI stated that the miner-wearable 
component should be checked at the beginning of each shift and that 
minimal training is necessary for miners to learn this task.
    The proposed requirement that miner-wearable components be checked 
for proper operation at the beginning of each shift that the component 
is to be used would help assure that the miner is protected before 
getting near a machine. MSHA anticipates that each miner equipped with 
a miner-wearable component would check the component to see that it is 
not damaged and has sufficient power. The proximity detection systems 
that use these components can only function properly if the miner-
wearable components have sufficient power.
    MSHA intends that this check would be similar to the check that a 
miner performs on a cap lamp prior to the beginning of a shift. A mine 
operator, however, could also designate a person to check miner-
wearable components before they are used. Mine operators must provide 
new task training, under 30 CFR part 48, for miners who will be 
checking the miner-wearable components. If any defect is found, the 
proposal would require it to be corrected before using the component. 
This helps assure that the miner-wearable component functions properly 
and helps prevent miners' exposure to pinning, crushing, and striking 
hazards. If a miner-wearable component malfunctions during the shift, 
the miner wearing the component would have to leave the section until 
provided with a properly functioning miner-wearable component.
    MSHA solicits comments on the proposed requirements. Comments 
should be specific and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, technological and economic 
feasibility considerations, and supporting data.

D. Sec.  75.1733(d) Certification and Records

    Proposed Sec.  75.1733(d) would address certification and records 
requirements for proximity detection systems.
    Proposed Sec.  75.1733(d)(1) would require, at the completion of 
the check under proposed paragraph (c)(1), that a certified person 
under existing Sec.  75.100

[[Page 53081]]

certify by initials, date, and time that the check was conducted. 
Defects found as a result of the check, including corrective actions 
and date of corrective action, would be required to be recorded.
    The certification that would be required under proposed paragraph 
(d)(1) would help assure compliance and provide miners on the section a 
means to confirm that the required check under proposed (c)(1) was 
made. MSHA anticipates that, in most cases, the person making the 
certification of the on-shift examination under existing Sec.  
75.362(g)(2) would also make the certification of this check at the 
same time. The person making the check could communicate to a certified 
person that the check was performed.
    The record of defects and corrective actions as a result of the 
check required under proposed paragraph (c)(1) of this section would be 
made by the completion of the shift, which is consistent with the 
requirements for records of hazardous conditions in existing Sec.  
75.363(b). If no defect is found, no record is needed. The requirement 
in proposed paragraph (d)(1) of this section would require a record of 
defects and corrective actions. Records of defects and corrective 
actions can be used to show a history of machine-mounted component 
defects at the mine and alert miners, representatives of miners, mine 
management, manufacturers, and MSHA of recurring problems and ways to 
address problems.
    Proposed Sec.  75.1733(d)(2) would require the operator to record 
defects found as a result of the check of miner-wearable components in 
proposed paragraph (c)(2) of this section, including corrective actions 
and date of corrective action. This record can be used to show a 
history of miner-wearable component defects that can be used to alert 
miners, representatives of miners, mine management, manufacturers, and 
MSHA of recurring problems and ways to address problems. For miner-
wearable components, no record would be needed unless a defect is 
found. A certification of the check for proper operation of miner-
wearable components that would be required under proposed paragraph 
(c)(2) is not necessary because miners can readily check to confirm 
that the component is working.
    Proposed Sec.  75.1733(d)(3) would require that the operator make 
and retain records of the persons trained in the installation and 
maintenance of proximity detection systems. MSHA anticipates that many 
mine operators would train qualified persons, as defined by existing 
Sec.  75.153, to install and perform maintenance on proximity 
detections systems; but the mine operator may train another miner who 
is not included on the list of certified and qualified persons required 
by existing Sec.  75.159. A mine operator may make this record of the 
persons trained using existing MSHA Form 5000-23. Consistent with 
existing practice, mine operators would not need to make and retain 
records of training for proximity detection system manufacturers' 
employees who install or perform maintenance on the systems.
    Proposed Sec.  75.1733(d)(4) would require that the mine operator 
maintain records under proposed Sec.  75.1733(d)(1), (d)(2), and (d)(3) 
in a secure book or electronically in a secure computer system not 
susceptible to alteration. Based on MSHA's experience with other safety 
and health records, the Agency believes that records should be 
maintained so that they cannot be altered. In addition, electronic 
storage of information and access through computers is an increasingly 
common business practice in the mining industry. This proposed 
provision would permit the use of electronically stored records 
provided they are secure, are not susceptible to alteration, are able 
to capture the information and signatures required, and are accessible 
to the representative of miners and MSHA.
    Care must be taken in the use of electronic records to assure that 
the secure computer system will not allow information to be overwritten 
or deleted after being entered. MSHA believes that electronic records 
meeting these criteria are practical and as reliable as paper records. 
MSHA also believes that once records are properly completed and 
reviewed, mine management can use them to evaluate whether the same 
conditions or problems, if any, are recurring, and whether corrective 
measures are effective. The proposal provides mine operators 
flexibility to maintain the records in a secure book or electronically 
in a secure computer system that they already use to satisfy existing 
recordkeeping requirements.
    Proposed Sec.  75.1733(d)(5) would require that the mine operator 
retain records under proposed Sec.  75.1733(d)(1), (d)(2), and (d)(3) 
for at least one year and make them available for inspection by 
authorized representatives of the Secretary and representatives of 
miners. The operator may provide access electronically or by providing 
paper copies of records. MSHA believes that keeping records for one 
year provides a history of the conditions documented at the mine to 
alert miners, representatives of miners, mine management, 
manufacturers, and MSHA of recurring problems and ways to correct 
problems.
    MSHA solicits comments on the recordkeeping requirements in 
proposed Sec.  75.1733(d). Comments should be specific and include 
alternatives, rationale for suggested alternatives, safety benefits to 
miners, technological and economic feasibility considerations, and 
supporting data.

III. Preliminary Regulatory Economic Analysis

A. Executive Orders (E.O.) 12866 and 13563

    Executive Orders 12866 and 13563 direct agencies to assess all 
costs and benefits of available regulatory alternatives and, if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits (including potential economic, environmental, public 
health and safety effects, distributive impacts, and equity). Executive 
Order 13563 emphasizes the importance of quantifying both costs and 
benefits, of reducing costs, of harmonizing rules, and of promoting 
flexibility. To comply with these Executive Orders, MSHA has prepared a 
Preliminary Regulatory Economic Analysis (PREA) for the proposed rule. 
The PREA contains supporting data and explanation, which is summarized 
in this preamble, including the covered mining industry, costs and 
benefits, feasibility, small business impacts, and information 
collection requirements. The PREA can be accessed electronically at 
https://www.msha.gov/REGSINF5.HTM. A copy of the PREA can be obtained 
from MSHA's Office of Standards, Regulations and Variances at the 
address in the ADDRESSES section of this preamble. MSHA is seeking 
robust comments on the validity of the Agency's costs and benefits 
estimates presented in this preamble and in the PREA, and on the 
supporting data and assumptions the Agency used to develop these 
estimates.
    Under E.O. 12866, 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 agency, materially altering the budgetary impact of 
entitlements or the rights of entitlement recipients, or raising novel 
legal or policy issues. The Office of Management and Budget (OMB) has 
determined that the proposed rule is a significant

[[Page 53082]]

regulatory action because it raises novel legal and policy issues.

B. Population at Risk

    The proposed rule would apply to all underground coal mines in the 
United States. In 2014, there were approximately 300 active underground 
coal mines using mobile machines on the working section. These mines 
employ approximately 39,870 miners (excluding office workers).

C. Net Benefits

    Under the Mine Act, MSHA is not required to use estimated net 
benefits as the basis for its decision. At a 0 percent discount rate 
over 10 years, the estimated annualized values for net benefits of the 
proposed rule would be $2.1 million. At a 3 percent discount rate over 
10 years, the estimated annualized values for net benefits of the 
proposed rule would be $0.3 million. At a 7 percent discount rate over 
10 years, the estimated annualized values for net benefits of the 
proposed rule would be -$2.0 million.
    MSHA anticipates the proposed rule would provide several benefits 
that were not quantified due to a lack of definitive information. For 
example, the proposed rule would result in additional savings to mine 
operators who would be able to avoid production delays typically 
associated with mine accidents. Pinning, crushing, and striking 
accidents can disrupt production at a mine during the time it takes to 
remove the injured miners, investigate the cause of the accident, and 
clean up the accident site. Such delays can last for a shift or more. 
Factors such as lost production, damaged equipment, and other 
miscellaneous expenses could result in significant costs to mine 
operators; however, MSHA has not quantified these savings due to the 
imprecision of the data.
    The dollar estimate of benefits and costs are explained further in 
the Benefits (D) and Compliance Costs (E) sections.

D. Benefits

    The proposed rule would significantly improve safety protections 
for underground coal miners by reducing their risk of being crushed, 
pinned, or struck by mobile machines. MSHA projects that the benefits 
of the proposed rule would gradually increase over time as the number 
of proximity detection systems in operation increases during the first 
36 months after the effective date of a final rule.
    MSHA reviewed the Agency's investigation reports for all powered 
haulage and machinery accidents that occurred from 1984 through 2014 
(31 years) and determined that the use of proximity detection systems 
could have prevented 42 fatalities and 179 nonfatal injuries involving 
pinning, crushing, or striking accidents with coal hauling machines and 
scoops (since these miners were located in a proximity detection system 
warning/stopping zone). This count excludes fatalities and injuries 
that would not have been prevented by proximity detection systems on 
mobile machines, such as when a roof or rib fall pins a miner against a 
mobile machine or a mobile machine strikes and pushes another machine 
into a miner.
    To estimate the number of injuries and fatalities that the proposed 
rule would prevent, MSHA projected the number of injuries and 
fatalities that proximity detection systems installed on mobile 
machines would prevent over the next 10 years. This projection was 
based on MSHA's review of the historical data involving injuries and 
fatalities occurring from 1984 through 2014. Based on the review of the 
historical data, MSHA projects that the proposed rule's requirements 
would prevent approximately 70 injuries and 15 fatalities over the next 
10 years.
    To estimate the monetary values of the reductions in deaths and 
nonfatal injuries, MSHA uses an analysis of the imputed values based on 
a Willingness-to-Pay approach. This approach relies on the theory of 
compensating wage differentials (i.e., the wage premiums paid to 
workers to accept the risk associated with various jobs) in the labor 
market. A number of studies have shown a correlation between higher job 
risk and higher wages, suggesting that employees demand monetary 
compensation in return for incurring greater risk. The benefit of 
preventing a fatality is measured by what is conventionally called the 
Value of a Statistical Life (VSL), defined as the additional cost that 
individuals would be willing to bear for improvements in safety (that 
is, reductions in risks) that, in the aggregate, reduce the expected 
number of fatalities by one. MSHA emphasizes that the VSL is a 
statistical concept for comparing risk reduction and not the value of 
an individual's life. For the primary estimate, MSHA used a VSL of $9.4 
million (2014 dollars), 40 percent of the VSL for permanent 
disabilities, and approximately 1 percent of the VSL for non-disabling 
injuries. Detailed information about how MSHA estimated the benefits 
are available in the PREA supporting this proposed rule. MSHA estimates 
the total undiscounted benefit of the proposed rule over 10 years would 
be $182.6 million at a 0 percent discount rate, $151.5 million at a 3 
percent discount rate, and $120.0 million at a 7 percent discount rate. 
The total annualized benefits over 10 years would be approximately 
$18.3 million at a 0 percent discount rate, $17.2 million at a 3 
percent discount rate, and $16.0 million at a 7 percent discount rate.

E. Compliance Costs

    This section presents MSHA's estimates of the total costs to 
underground coal mine operators to comply with the proposed rule over a 
10-year period. MSHA based the cost estimates on the likely actions 
that the Agency believes would be necessary to comply with the proposed 
rule. MSHA estimates that the total costs of the proposed rule over a 
10-year period would be approximately $161 million at a 0 percent 
discount rate, $149 million at a 3 percent discount rate, and $135 
million at a 7 percent discount rate. The total cost annualized over 10 
years would be approximately $16.1 million per year at a 0 percent 
discount rate, $16.9 million per year at a 3 percent discount rate, and 
$17.9 million per year at a 7 percent discount rate.
    As noted earlier, more detailed information about how MSHA 
estimated benefits and costs are available in the Preliminary 
Regulatory Economic Analysis (PREA) supporting this proposed rule. The 
PREA is available on MSHA's Web site, at https://www.msha.gov/REGSINF5.HTM.

IV. Feasibility

    MSHA has concluded that the requirements of the proposed rule would 
be both technologically and economically feasible, and that the 36-
month phase-in period would facilitate implementation of the proposed 
rule.

A. Technological Feasibility

    MSHA has concluded that the proposal is technologically feasible. 
Mine operators are capable of equipping coal hauling machines and 
scoops with proximity detection systems in accordance with the proposed 
compliance dates. Proximity detection systems required under the 
proposal already exist and are commercially available for use in 
underground coal mines.
    MSHA has experience with manufacturers of proximity detection 
systems and mine operators who have installed proximity detection 
systems on coal hauling machines and scoops. MSHA has approved two 
proximity detection systems for permissibility under existing 
regulations in 30 CFR

[[Page 53083]]

part 18, which can be installed on coal hauling machines and scoops. As 
of January 2015, at least 79 coal hauling machines and 50 scoops 
equipped with a proximity detection system are operating in underground 
coal mines in the United States. MSHA observed these systems provide 
warnings and stop coal hauling machines and scoops appropriately. MSHA 
also observed these coal hauling machines function properly while 
interacting with a continuous mining machine equipped with a proximity 
detection system. There were approximately eight people equipped with 
miner-wearable components during this demonstration.
    MSHA also observed mobile machines, including coal hauling 
machines, scoops, and continuous mining machines, equipped with 
proximity detection systems operate in South Africa. MSHA observed 
proximity detection systems from several manufacturers provide warnings 
and slow and stop machines at appropriate distances.
    Based on MSHA's experience with approving four proximity detection 
systems under 30 CFR part 18 as permissible for use on continuous 
mining machines and its observations in South Africa, the Agency 
anticipates that other manufacturers may develop proximity detection 
systems for use with coal hauling machines and scoops in the United 
States.
    Continuous haulage systems consist of multiple interconnected 
mobile and bridge units. Although MSHA has no experience with 
continuous haulage systems equipped with a proximity detection system, 
MSHA anticipates that existing proximity detection systems can be 
adapted to continuous haulage systems to provide complete proximity 
detection coverage on each of the interconnected units. By connecting 
the proximity detection system with the electrical circuitry of the 
continuous haulage system, the proximity detection system can de-
energize the entire continuous haulage system or stop all tram motors. 
As stated previously MSHA anticipates challenges with adapting 
proximity detection systems to continuous haulage systems due to the 
length of these machines and the unique interaction with continuous 
mining machines.
    MSHA solicits comments on the technological feasibility of 
equipping coal hauling machines and scoops with proximity detection 
systems. MSHA specifically solicits comments on equipping continuous 
haulage systems with proximity detection systems. Comments should be 
specific and include alternatives, rationale for suggested 
alternatives, safety benefits to miners, and supporting data.

B. Economic Feasibility

    MSHA has traditionally used a revenue screening test--whether the 
yearly compliance costs of a regulation are less than one percent of 
revenues, or are negative (e.g., provide net cost savings)--to 
establish presumptively that compliance with the regulation is 
economically feasible for the mining industry. Based on this test, MSHA 
has concluded that the requirements of the proposed rule are 
economically feasible.
    The annualized cost of the proposed rule to underground coal mine 
operators, discounted at 7 percent over 10 years, is $17.9 million. 
This represents approximately 0.08 percent of total annual revenue of 
$21.2 billion ($17.9 million cost/$21.2 billion revenue) for all 
underground coal mines. Since the estimated compliance cost is below 
one percent of estimated annual revenue, MSHA concludes no further 
analysis is required. Compliance with the provisions of the proposed 
rule would be economically feasible for the coal industry.

V. 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 has analyzed the compliance cost impact of the proposed 
rule on small entities. Based on that analysis, MSHA certifies that the 
proposed rule would not have a significant economic impact on a 
substantial number of small entities in terms of compliance costs. 
Therefore, the Agency is not required to develop an initial regulatory 
flexibility analysis.
    The factual basis for this certification is presented in full in 
Chapter VII of the PREA 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 alternative definition, and is 
required to use SBA's 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 the proposed rule on mines 
with fewer than 20 employees, which MSHA and the mining community have 
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, their costs of complying 
with MSHA's rules and the impact of the Agency's rules on them will 
also tend to be different.
    This analysis complies with the requirements of the RFA for an 
analysis of the impact on small entities while continuing MSHA's 
traditional definition of small mines.

B. Factual Basis for Certification

    MSHA's analysis of the economic impact on small entities begins 
with a screening analysis. The screening compares the estimated costs 
of the proposed 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 no further analysis is required to 
conclude that there is no significant economic impact on a substantial 
number of small entities. If estimated costs are equal to or exceed one 
percent of revenues, further analysis may be warranted.
    Revenue for underground coal mines is derived from data on coal 
prices and tonnage. The average open market U.S. sales price of 
underground coal for 2013 was $60.98 per ton. This average price of 
underground coal for 2013 is from the Department of Energy (DOE), 
Energy Information Administration (EIA), Annual Coal Report 2013, 
January 2015, p. 47. The actual 2014 price is not yet available. Based 
on EIA reports in 2014 and 2015 showing little change in the price for 
underground coal since 2013, MSHA used the 2013 price of $60.98 per 
ton.
    Total underground coal production in 2014 was approximately 3.1 
million tons for mines with 1-19 employees. Multiplying tons by the 
2013 price per ton, 2014 underground coal revenue was $189 million for 
mines with 1-19 employees. Total underground coal production in 2014 
was approximately 240.1 million short tons for mines with 1-500 
employees. Multiplying tons by the 2013 price per ton, 2014 underground 
coal revenue was $14.6 billion for mines with 1-500 employees. Total 
underground coal production in 2014 was approximately 348.4 million 
tons. Multiplying tons by the 2013 price per ton, total estimated 
revenue in 2014

[[Page 53084]]

for underground coal production was $21.2 billion.
    The estimated yearly cost of the proposed rule for underground coal 
mines with 1-19 employees is approximately $1.7 million which 
represents approximately 0.90 percent of annual revenues. MSHA 
estimates that some mines might experience costs somewhat higher than 
the average per mine in their size category while others might 
experience lower costs.
    When applying SBA's definition of a small mine, the estimated 
yearly cost of the proposed rule for underground coal mines with 1-500 
employees is approximately $13.1 million which represents approximately 
0.10 percent of annual revenue.
    Based on this analysis, MSHA has determined that no further 
analysis is required to conclude that the proposed rule would not have 
a significant economic impact in terms of compliance costs on a 
substantial number of small underground coal mines, as defined by SBA. 
MSHA has provided, in the PREA accompanying this proposed rule, a 
complete analysis of the cost impact on this category of mines.

VI. Paperwork Reduction Act of 1995

A. Summary

    The Paperwork Reduction Act (PRA) provides for the Federal 
government's collection, use, and dissemination of information. The 
goals of the PRA include minimizing paperwork and reporting burdens and 
ensuring the maximum possible utility from the information that is 
collected (44 U.S.C. 3501). The proposed information collections 
contained in this proposed rule are submitted for review under the PRA 
to the Office of Management and Budget (OMB), OMB Control Number 1219-
0148. The proposal contains minor adjustments to burden hours for an 
existing paperwork package with OMB Control Number 1219-0066. MSHA does 
not include estimated burden hours and the cost of revising training 
plans on an annual basis because this burden would be accounted for 
under the OMB Control Number 1219-0009. Underground coal mine operators 
routinely revise their training plan at least yearly in accordance with 
30 CFR part 48.
    In the first three years the proposed rule is in effect, the mining 
community would incur 3,094 annual burden hours with related annual 
burden costs of approximately $313,354, and other annual administrative 
costs (office supplies and postage) related to the information 
collection package of approximately $114,565.

B. Procedural Details

    The information collection package for this proposed rule has been 
submitted to OMB for review under 44 U.S.C. 3504, paragraph (h) of the 
Paperwork Reduction Act of 1995 (PRA), as amended. The methodology for 
estimating burden hours and related costs are in the Preliminary 
Regulatory Economic Analysis (PREA) for the proposed rule. The PREA can 
be accessed electronically at https://www.msha.gov/REGSINF5.HTM. For a 
detailed summary of the burden hours and related costs by provision, 
see the information collection package accompanying this proposed rule. 
A copy of the information collection package can be obtained from 
https://www.msha.gov/regspwork.htm or https://www.regulations.gov on the 
day following publication of this document in the Federal Register or 
from the Department of Labor by electronic mail request to Michel Smyth 
at smyth.michel@dol.gov (email) or (202) 693-4129 (voice) or Sheila 
McConnell at mcconnell.sheila.a@dol.gov or (202) 693-9440 (voice).
    MSHA requests comments to:
     Evaluate whether the proposed collection of information is 
necessary for the proper performance of the functions of the Agency, 
including whether the information will have practical utility;
     Evaluate the accuracy of the Agency's estimate of the 
burden of the proposed collection of information, including the 
validity of the methodology and assumptions used;
     Enhance the quality, utility, and clarity of the 
information to be collected; and
     Minimize the burden of the collection of information on 
those who are to respond, including through the use of appropriate 
automated, electronic, mechanical, or other technological collection 
techniques or other forms of information technology, e.g., permitting 
electronic submission of responses.
    Comments on the information collection requirements should be sent 
to both OMB and MSHA. Addresses for both offices can be found in the 
ADDRESSES section of this preamble. The Department of Labor notes that, 
under the PRA, affected parties do not have to comply with the 
information collection requirements in this proposed rule until they 
have been approved by the Office of Management and Budget (OMB). The 
Department of Labor will inform the public of OMB's approval when it is 
obtained at the final rule stage. MSHA displays the OMB control numbers 
for the information collection requirements in its regulations in 30 
CFR part 3.
    The proposed total information collection burden is summarized as 
follows:
    Title of Collection: Permissible Equipment Testing.
     OMB Control Numbers: 1219-0066.
     Affected Public: Private Sector-Businesses or other for-
profits.
     Estimated Number of Respondents: 300 respondents.
     Estimated Number of Responses: 222 responses.
     Estimated Annual Burden Hours: 792 hours.
     Estimated Annual Cost Related to Burden Hours: $80,356.
     Estimated Other Annual Costs Related to the Information 
Collection Package: $114,565.

    Title of Collection: Proximity Detection Systems for Mining 
Machines in Underground Coal Mines.
     OMB Control Numbers: 1219-0148.
     Affected Public: Private Sector-Businesses or other for-
profits.
     Estimated Number of Respondents: 300 respondents.
     Estimated Number of Responses: 811,497 responses.
     Estimated Annual Burden Hours: 2,302 hours.
     Estimated Annual Cost Related to Burden Hours: $232,998.
     Estimated Other Annual Costs Related to the Information 
Collection Package: $0.

VII. Other Regulatory Considerations

A. The Unfunded Mandates Reform Act of 1995

    MSHA has reviewed the proposed rule under the Unfunded Mandates 
Reform Act of 1995 (2 U.S.C. 1501 et seq.). MSHA has determined that 
this proposed rule does not include any federal mandate that may result 
in increased expenditures by State, local, or tribal governments; nor 
would it increase private sector expenditures by more than $100 million 
(adjusted for inflation) in any one year or significantly or uniquely 
affect small governments. Accordingly, the Unfunded Mandates Reform Act 
of 1995 requires no further Agency action or analysis. Since the 
proposed rule does not cost over $100 million in any one year, the 
proposed rule is not a major rule under the Unfunded Mandates Reform 
Act of 1995.

B. Executive Order 13132: Federalism

    The proposed rule does not have ``federalism implications'' because 
it

[[Page 53085]]

would not ``have substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government.'' Accordingly, under E.O. 13132, no further Agency action 
or analysis is required.

C. 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 action on family well-being. MSHA has determined that the 
proposed rule would 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 
proposed rule would not impact family well-being.

D. Executive Order 12630: Government Actions and Interference With 
Constitutionally Protected Property Rights

    The proposed rule does not implement a policy with takings 
implications. Accordingly, under E.O. 12630, no further Agency action 
or analysis is required.

E. Executive Order 12988: Civil Justice Reform

    The proposed 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, the proposed rule would meet 
the applicable standards provided in section 3 of E.O. 12988, Civil 
Justice Reform.

F. Executive Order 13045: Protection of Children From Environmental 
Health Risks and Safety Risks

    The proposed rule would have no adverse impact on children. 
Accordingly, under E.O. 13045, no further Agency action or analysis is 
required.

G. Executive Order 13175: Consultation and Coordination With Indian 
Tribal Governments

    This proposed rule does not have ``tribal implications'' because it 
would 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, under E.O. 
13175, no further Agency action or analysis is required.

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 effects when a rule has a significant energy action that 
adversely affects energy supply, distribution or use. MSHA has reviewed 
this proposed rule for its energy effects because the proposed rule 
applies to the underground mining sector. Because this proposed rule 
would result in annualized costs of approximately $17.9 million to the 
underground coal mining industry, relative to annual revenues of $21.2 
billion in 2014, MSHA has concluded that it is not a significant energy 
action because it is not likely to have a significant adverse effect on 
the supply, distribution, or use of energy. Accordingly, under this 
analysis, no further Agency action or analysis is required.

I. Executive Order 13272: Proper Consideration of Small Entities in 
Agency Rulemaking

    MSHA has thoroughly reviewed the proposed 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 proposed rule does not have a 
significant economic impact on a substantial number of small entities.

VIII. References

Dransite, Jerry, G. Clark, B. Warnock, D. Wease. ``Remotely 
Controlled Mining Machinery Study,'' MSHA Approval and Certification 
Center, August 3, 1998.
Hintermann, Beat, Anna Alberini, and Anil Markandya. ``Estimating 
the Value of Safety with Labour Market Data: Are the Results 
Trustworthy?,'' Applied Economics, 42(9):1085-1100, 2010. First 
published on July 18, 2008. URL: https://dx.doi.org/10.1080/00036840802260940.
Magat, W., W. Viscusi, and J. Huber. ``A Reference Lottery Metric 
for Valuing Health'', Management Science, 42(8):1118-1130m, 1996.
Sanders, M.S., and G.R. Kelly. ``Visual Attention Locations for 
Operating Continuous Miners, Shuttle Cars, and Scoops--Volume 1 
(contract J0387213, Canyon Research Group, Inc.)'', USBM OFR 29(1)-
82, 1981. NTIS PB 82-187964.
U.S. Department of Labor, Mine Safety and Health Administration, 
``Program Policy Manual, Vol. V--Coal Mines, Criteria--Mantrips,'' 
October 2003 (Release V-34), pp. 126 and 127.
U.S. Department of Labor, Mine Safety and Health Administration, 
``Proximity Protection System Specification.'' October 4, 2004.
U.S. Department of Labor, Mine Safety and Health Administration, 
Request for Information. ``Proximity Detection Systems for 
Underground Mines,'' Federal Register, Vol. 75, pg. 2009, February 
1, 2010.
U.S. Department of Labor, Mine Safety and Health Administration. 
``Preliminary Regulatory Economic Analysis for Proximity Detection 
Systems for Mobile Machines in Underground Mines,'' Proposed Rule 
(RIN 1219-AB78), https://www.msha.gov/prea.HTM, August 2011.
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Critical Review of Market Estimates Throughout the World,'' Journal 
of Risk and Uncertainty, 27:5-76, 2003.

List of Subjects in 30 CFR Part 75

    Mine safety and health, Reporting and recordkeeping requirements, 
Underground coal mines.

Joseph A. Main,
Assistant Secretary of Labor for Mine Safety and Health.

    For the reasons set out in the preamble and under the authority of 
the Federal Mine Safety and Health Act of 1977, as amended, MSHA is 
proposing to amend chapter I of title 30 of the Code of Federal 
Regulations as follows:

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

0
1. The authority citation for part 75 continues to read as follows:

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

0
2. Add Sec.  75.1733 to read as follows:


Sec.  75.1733  Proximity detection systems; other mobile machines.

    (a) Machines covered. Operators must equip coal hauling machines 
and scoops on working sections, except longwall working sections, with 
machine-mounted components of a proximity detection system in 
accordance with the following dates. For proximity detection systems 
with miner-wearable components, the mine operator must provide a miner-
wearable component to be worn by each miner on the working sections, 
except longwall working sections, by the following dates.
    (1) Coal hauling machines and scoops manufactured after [INSERT 
EFFECTIVE DATE OF THE FINAL RULE] must meet the requirements in this 
section no later than [INSERT

[[Page 53086]]

DATE 8 MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE]. These 
machines must meet the requirements in this section when placed in 
service with a proximity detection system.
    (2) Coal hauling machines or scoops manufactured and equipped with 
a proximity detection system on or before [INSERT EFFECTIVE DATE OF THE 
FINAL RULE] must:
    (i) Meet the requirements in this section no later than [INSERT 
DATE 8 MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE] if 
modifications to the existing proximity detection system can be made 
underground; or
    (ii) Meet the requirement in this section no later than [INSERT 
DATE 36 MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL RULE] if the 
existing proximity detection system cannot be modified underground or 
needs to be replaced with a new proximity detection system.
    (3) Coal hauling machines and scoops manufactured and not equipped 
with a proximity detection system on or before [INSERT EFFECTIVE DATE 
OF THE FINAL RULE] must meet the requirements in this section no later 
than [INSERT DATE 36 MONTHS AFTER THE EFFECTIVE DATE OF THE FINAL 
RULE]. These machines must meet the requirements in this section when 
placed in service with a proximity detection system.
    (b) Requirements for proximity detection systems. If a proximity 
detection system includes miner-wearable components, both the machine-
mounted components and miner-wearable components constitute the 
proximity detection system. The system must:
    (1) Cause a machine to stop before contacting a miner except for a 
miner who is in the on-board operator's compartment;
    (2) Provide warning signals, distinguishable from other signals, 
that alert miners before the system causes a machine to stop: An 
audible and visual warning signal on any miner-wearable component and a 
visual warning signal on the machine;
    (3) Provide a visual signal on the machine that indicates the 
machine-mounted components are functioning properly;
    (4) Prevent movement of the machine if any machine-mounted 
component of the system is not functioning properly. However, a system 
with any machine-mounted component that is not functioning properly may 
allow machine movement if an audible or visual warning signal, 
distinguishable from other signals, is provided during movement. Such 
movement is permitted only for purposes of relocating the machine from 
an unsafe location for repair;
    (5) Be installed to prevent interference that adversely affects 
performance of any electrical system; and
    (6) Be installed and maintained in proper operating condition by a 
person trained in the installation and maintenance of the system.
    (c) Proximity detection system checks. Operators must:
    (1) Designate a person who must perform a check of machine-mounted 
components of the proximity detection system to verify that components 
are intact and the system is functioning properly, and to take action 
to correct defects:
    (i) At the beginning of each shift when the machine is to be used; 
or
    (ii) Immediately prior to the time the machine is to be operated if 
not in use at the beginning of a shift; or
    (iii) Within 1 hour of a shift change if the shift change occurs 
without an interruption in production.
    (2) Check for proper operation of each miner-wearable component at 
the beginning of each shift that the component is to be used. Defects 
must be corrected before the component is used.
    (d) Certifications and records. The operator must make and retain 
certifications and records as follows:
    (1) At the completion of the check of machine-mounted components 
required under paragraph (c)(1) of this section, a certified person 
under Sec.  75.100 must certify by initials, date, and time that the 
check was conducted. Defects found as a result of the check in 
paragraph (c)(1), including corrective actions and dates of corrective 
actions, must be recorded before the end of the shift;
    (2) Make a record of the defects found as a result of the check of 
miner-wearable components under paragraph (c)(2) of this section, 
including corrective actions and dates of corrective actions;
    (3) Make a record of the persons trained in the installation and 
maintenance of proximity detection systems required under paragraph 
(b)(6) of this section;
    (4) Maintain records in a secure book or electronically in a secure 
computer system not susceptible to alteration; and
    (5) Retain records for at least one year and make them available 
for inspection by authorized representatives of the Secretary and 
representatives of miners.

[FR Doc. 2015-21573 Filed 9-1-15; 8:45 am]
BILLING CODE 4510-43-P