[Federal Register Volume 88, Number 55 (Wednesday, March 22, 2023)]
[Proposed Rules]
[Pages 17302-17334]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-05074]



[[Page 17301]]

Vol. 88

Wednesday,

No. 55

March 22, 2023

Part II





Department of Transportation





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Federal Railroad Administration





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49 CFR Part 227





Emergency Escape Breathing Apparatus Standards; Proposed Rule

  Federal Register / Vol. 88, No. 55 / Wednesday, March 22, 2023 / 
Proposed Rules  

[[Page 17302]]


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DEPARTMENT OF TRANSPORTATION

Federal Railroad Administration

49 CFR Part 227

[Docket No. FRA-2009-0044, Notice No. 2]
RIN 2130-AC14


Emergency Escape Breathing Apparatus Standards

AGENCY: Federal Railroad Administration (FRA), Department of 
Transportation (DOT).

ACTION: Supplemental notice of proposed rulemaking (SNPRM).

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SUMMARY: FRA is proposing to amend its regulations related to 
occupational noise exposure in three ways. First, in response to a 
Congressional mandate, FRA is proposing to expand those regulations to 
require that railroads provide an appropriate atmosphere-supplying 
emergency escape breathing apparatus to every train crew member and 
certain other employees while they are occupying a locomotive cab of a 
freight train transporting a hazardous material that would pose an 
inhalation hazard in the event of release during an accident. Second, 
FRA is proposing to change the name of this part of its regulations 
from ``Occupational Noise Exposure'' to ``Occupational Safety and 
Health in the Locomotive Cab'' to reflect the additional subject matter 
of this SNPRM and to make other conforming amendments. Third, FRA is 
proposing to remove the provision stating the preemptive effect of this 
part of FRA's regulations because it is unnecessary.

DATES: Written comments on the proposed rule must be received by June 
20, 2023. FRA will consider comments received after that date to the 
extent practicable.

ADDRESSES: Comments related to Docket No. FRA-2009-0044, Notice No. 2, 
may be submitted by going to https://www.regulations.gov and following 
the online instructions for submitting comments.
    Instructions: All submissions must include the agency name and 
docket number (FRA-2009-0044) or Regulatory Identification Number (RIN) 
for this rulemaking (2130-AC14). All comments received will be posted 
without change to http://www.regulations.gov; this includes any 
personal information. Please see the Privacy Act heading in the 
SUPPLEMENTARY INFORMATION section of this document for Privacy Act 
information related to any submitted comments or materials.
    Docket: For access to the docket to read background documents or 
comments received, go to https://www.regulations.gov and follow the 
online instructions for accessing the docket.

FOR FURTHER INFORMATION CONTACT: Michael Watson, Occupational Safety 
and Health Manager, Office of Railroad Safety, telephone 202-493-9544, 
email: [email protected] or Richard Baxley, Attorney Adviser, 
Office of the Chief Counsel, telephone: 202-853-5053, email: 
[email protected].

SUPPLEMENTARY INFORMATION: 

Abbreviations and Terms Used in This Document

AAR--Association of American Railroads
AIHA--American Industrial Hygiene Association
ANSI--American National Standards Institute
ASLRRA--American Short Line and Regional Railroad Association
BLET--Brotherhood of Locomotive Engineers and Trainmen
BNSF--BNSF Railway Company
BS--British Standards Institution
CEN--European Committee for Standardization
CFR--Code of Federal Regulations
CO2--carbon dioxide
DOT--U.S. Department of Transportation
EEBA--emergency escape breathing apparatus
EN--European standard
FRA--Federal Railroad Administration
FRSA--the former Federal Railroad Safety Act of 1970, repealed and 
reenacted as positive law primarily at 49 U.S.C. ch. 201
HMIS--Hazardous Materials Information System
IDLH--immediate danger to life or health or immediately dangerous to 
life or health
IFRA--Initial Regulatory Flexibility Analysis
ISEA--International Safety Equipment Association
ISO--International Organization for Standardization
LBIA--the former Locomotive (Boiler) Inspection Act, repealed and 
reenacted as positive law in 49 U.S.C. 20701-20703
LPG--liquefied petroleum gas
NIOSH--National Institute for Occupational Safety and Health
NPRM--notice of proposed rulemaking
NS--Norfolk Southern Railway Company
NTSB--National Transportation Safety Board
O2--Oxygen
OMB--Office of Management and Budget
OSHA--Occupational Safety and Health Administration
PHMSA--Pipeline and Hazardous Materials Safety Administration
PIH material--poison inhalation hazard material
ppm--parts per million
PTC--positive train control
RCO--remote control operator
RFID--radio frequency identification
RIA--Regulatory Impact Analysis
RSIA--Rail Safety Improvement Act of 2008, Public Law 110-432, 
Division A
SBA--Small Business Administration
SCBA--self-contained breathing apparatus
SCSR--self-contained, self-rescuer
T&E employees--train and engine service employees
UP--Union Pacific Railroad Company
UTU--United Transportation Union

Table of Contents for Supplementary Information

I. Executive Summary
    A. Purpose of Regulatory Action
    B. Summary of Major Provisions
    C. Costs and Benefits
II. Statutory Authority
III. Background
    A. Accident History and NTSB Recommendation R-05-17
    B. FRA Sponsored Study
    C. FRA's 2016 Guidance for Developing an EEBA Program
IV. Selection of the Appropriate EEBA by Railroads
V. Provision of EEBAs to Covered Employees
VI. Information and Recommendations Provided by the Railroad 
Industry and Railroad Labor Organizations After the Study
VII. Public Comment on the NPRM, With FRA's Response
    A. Introduction
    B. Comments on the Preamble, With FRA's Response
    C. Comments Recommending Additional Provisions, With FRA's 
Response
    D. Section-Specific Public Comments, With FRA's Response
    1. Comments on Proposed Sec.  227.201(a)(1), With FRA's Response
    2. Comments on Proposed Sec.  227.201(a)(2), With FRA's Response
    3. Comments on Proposed Sec.  227.201(b), With FRA's Response
    4. Comments on Proposed Sec.  227.203(b), With FRA's Response
    5. Comments on Proposed Sec.  227.203(c), With FRA's Response
    6. Comments on Proposed Sec.  227.203(d)(1), With FRA's Response
    7. Comments on Proposed Sec.  227.203(d)(2), With FRA's Response
    8. Comments on Proposed Sec.  227.205, With FRA's Response
    9. Comments on Proposed Sec.  227.207, With FRA's Response
    10. Comments on Proposed Sec.  227.209, With FRA's Response
    11. Comments on Proposed Sec.  227.211, With FRA's Response
    12. Comments on Proposed Sec.  227.217, With FRA's Response
VIII. Section-by-Section Analysis
IX. Regulatory Impact and Notices
    A. Executive Order 12866
    B. Regulatory Flexibility Act and Executive Order 13272
    1. Reasons for Considering Agency Action
    2. A Succinct Statement of the Objectives of, and the Legal 
Basis for, the Proposed Rule
    3. A Description of, and Where Feasible, an Estimate of the 
Number of Small Entities to Which the Proposed Rule Would Apply
    4. A Description of the Projected Reporting, Recordkeeping, and 
Other Compliance Requirements of the Rule, Including an Estimate of 
the Class of Small Entities

[[Page 17303]]

That Would Be Subject to the Requirements and the Type of 
Professional Skill Necessary for Preparation of the Report or Record
    5. Summary of Class III Railroad Costs
    6. Identification, to the Extent Practicable, of All Relevant 
Federal Rules That May Duplicate, Overlap, or Conflict With the 
Proposed Rule
    7. A Description of Significant Alternatives to the Rule
    C. Federalism
    D. International Trade Impact Assessment
    E. Paperwork Reduction Act
    F. Compliance With the Unfunded Mandates Reform Act of 1995
    G. Environmental Assessment
    H. Energy Impact
    I. Privacy Act
    J. Analysis Under 1 CFR Part 51
    K. Executive Order 12898 (Environmental Justice)
    L. Executive Order 13175 (Tribal Consultation)

I. Executive Summary

A. Purpose of Regulatory Action

    After fatalities resulting from the inhalation of chlorine gas 
following rail accidents in 2004 and 2005, the NTSB issued a 
recommendation that FRA require railroads to provide emergency escape 
breathing apparatuses (EEBAs) to their crewmembers.\1\ Subsequently, in 
October 2008, Congress enacted the RSIA.\2\ Section 413 of the RSIA 
mandated that FRA issue regulations requiring railroads to provide 
EEBA, and training in their use, for train crews in the locomotive cabs 
of any freight train transporting a hazardous material in commerce that 
would present an inhalation hazard in the event of a release. The 
purpose of this SNPRM is to respond to that statutory mandate, and it 
would also respond to NTSB Safety Recommendation R-05-17.
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    \1\ NTSB Recommendation R-05-17. https://www.ntsb.gov/investigations/AccidentReports/Reports/RAR0504.pdf.
    \2\ Public Law 110-432, Div. A, 122 Stat. 4848, October 16, 2008 
(49 U.S.C. 20166).
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    FRA first issued an NPRM responsive to the mandate of Section 413 
in October 2010.\3\ Based on the cost-benefit analysis in the NPRM, and 
the comments received in response to the NPRM, FRA issued a guidance 
document \4\ rather than a final rule. FRA intended for railroads to 
use the guidance document to develop EEBA programs to protect railroad 
employees involved in transporting hazardous materials posing an 
inhalation hazard. However, NTSB found that the guidance document did 
not satisfy its recommendation, and the statutory mandate remains in 
place. Accordingly, FRA is issuing this SNPRM, with some revisions to 
the NPRM, to open the matter again to public comment and continue 
towards a final rule as required by statute.
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    \3\ 75 FR 61386 (Oct. 5, 2010).
    \4\ Federal Railroad Administration Guidance for Developing an 
Atmosphere-Supplying Emergency Escape Breathing Apparatus Program 
(Dec. 2016). https://railroads.dot.gov/elibrary/federal-railroad-administration-guidance-developing-atmosphere-supplying-emergency-escape.
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B. Summary of Major Provisions

    This SNPRM proposes to amend subpart C of 49 CFR part 227 to 
require any freight railroad transporting a hazardous material that 
would pose an inhalation hazard if released during an accident to 
provide certain employees an appropriate atmosphere-supplying EEBA when 
occupying a locomotive cab. For reasons explained below, in FRA's 
response to public comments, FRA has decided that the primary concern 
in establishing the requirement for the provision of EEBAs should be 
focused on hazards that can result in poisoning through inhalation. 
This does not include simple asphyxiants but does include hazardous 
materials that PHMSA identifies as ``materials poisonous by 
inhalation,'' which are commonly referred to as ``PIH materials'' and 
are defined by PHMSA's Hazardous Materials Regulations as: (1) a gas 
meeting the defining criteria in 49 CFR 173.115(c) (i.e., Division 
2.3--Gas poisonous by inhalation) and assigned to Hazard Zone A, B, C, 
or D in accordance with 49 CFR 173.116(a); (2) a liquid, other than a 
mist, meeting the defining criteria regarding inhalation toxicity in 49 
CFR 173.132(a)(1)(iii) and assigned to Hazard Zone A or B in accordance 
with 49 CFR 173.133(a); or (3) any material identified as an inhalation 
hazard by a special provision in column 7 of the table in 49 CFR 
172.101.\5\
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    \5\ 49 CFR 171.8.
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    PIH materials that are regularly carried by railroads include 
chlorine gas, anhydrous ammonia, ethylene oxide, and anhydrous 
hydrofluoric acid. Together these four products make up over 90 percent 
of PIH material shipments by rail. Such commodities are readily 
identifiable by train crews, both because a ``rail car transporting any 
quantity of a hazardous material (including either a load or the 
residue \6\ of one of these covered materials) must be placarded on 
each side and each end'' pursuant to the requirements of 49 CFR 172.504 
and because train crews ``must have a copy of a document for the 
hazardous material being transported'' that provides details of the 
hazardous material pursuant to 49 CFR 174.26. A car transporting a 
Class 2, Division 2.3 material, must have ``POISON GAS'' placards \7\ 
and a car carrying any of the subset of Class 6, Division 6.1 materials 
that is a ``material poisonous by inhalation'' must have ``POISON 
INHALATION HAZARD'' placards, except that ``[f]or domestic 
transportation, a POISON INHALATION HAZARD placard is not required on a 
transport vehicle [including a rail car] or freight container that is 
already placarded with the POISON GAS placard.'' \8\ As a result, when 
a train crewmember observes a car placarded POISON GAS or POISON 
INHALATION HAZARD while the car is part of his or her train, the 
crewmember will know that EEBAs must be provided to covered employees 
occupying the locomotive cab prior to the train beginning its 
movements. EEBAs are intended to protect covered employees from the 
risk of exposure to such hazardous materials during the period while 
the employees are in the locomotive cab or escaping from a hazardous 
materials release posing an inhalation hazard.
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    \6\ ``Residue means the hazardous material remaining in a 
packaging, including a tank car, after its contents have been 
unloaded to the maximum extent practicable and before the packaging 
is either refilled or cleaned of hazardous material and purged to 
remove any hazardous vapors.'' 49 CFR 171.8.
    \7\ 49 CFR 172.540.
    \8\ Class 6, Division 6.1 materials other than material 
poisonous by inhalation must be placarded ``POISON.'' See 49 CFR 
172.504, Table 2, and section on placard design at 49 CFR 172.554. 
49 CFR 172.555 and 49 CFR 172.504(f)(8).
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    This SNPRM also proposes railroads that transport a PIH material on 
the general railroad system of transportation establish and carry out 
programs for: selection, procurement, and provision of EEBAs; 
inspection, maintenance, and replacement of EEBAs; and instruction of 
employees in the use of EEBAs. Railroads would be required to identify 
individual employees or positions to be placed in their general EEBA 
programs so that a sufficient number of EEBAs are available and to 
ensure that the identified employees or incumbents of the identified 
positions know how to use the devices. This SNPRM would require 
railroads provide for storage of EEBAs in locomotive cabs to enable 
employees to access the apparatus quickly in the event of a release of 
a hazardous material that poses an inhalation hazard.
    Because the proposals in this SNPRM would add a new subpart to 49 
CFR part 227, FRA is also proposing conforming changes, minor 
corrections, and updates to the existing provisions of part 227. 
Further, FRA is removing the provision at 49 CFR 227.7 on the 
preemptive effect of part 227 as it is unnecessary because it is 
duplicative of statutory law at 49

[[Page 17304]]

U.S.C. 20106 and case law. See Napier v. Atlantic Coast Line R.R., 272 
U.S. 605, 613; 47 S.Ct. 207, 210 (1926).

C. Costs and Benefits

    FRA analyzed the economic impact of this SNPRM. FRA estimated the 
costs estimated to be incurred by railroads and the benefits of fewer 
injuries to crewmembers from PIH material releasing after an accident/
incident.
    FRA is proposing a rule that would enable covered employees in 
locomotive cabs, whose freight train is transporting PIH materials, to 
wear EEBAs in the event of a release of such materials. This proposed 
rule would require that an EEBA be provided for each covered employee 
in a locomotive cab on a freight train transporting any PIH material. 
These EEBAs would provide neck and face coverage with respiratory 
protection for these covered employees. As proposed, railroads must 
also ensure that the equipment is maintained and in proper working 
condition. Finally, railroads would be required to train covered 
employees on the use of the EEBAs. The main objective of this proposed 
rule is to protect to protect covered employees from the risk of 
exposure to PIH materials while the employees are in the locomotive cab 
or escaping from a hazardous materials release posing an inhalation 
hazard.
    Details on the estimated costs of this SNPRM can be found in the 
RIA, which FRA has prepared and placed in the docket (FRA-2009-0044). 
The RIA presents estimates of the costs likely to occur over the first 
10 years of the proposed rule. The analysis includes estimates of costs 
associated with the purchase of EEBAs and installation, employee 
training, and recordkeeping.
    FRA has estimated costs for three options that are permissible 
under the rule. These include:
     Option 1: Employee Assignment--EEBAs are assigned to all 
covered employees and considered part of their equipment.
     Option 2: Locomotive Assignment--EEBAs are assigned to and 
kept in locomotives.
     Option 3: Equipment Pooling--EEBAs are pooled at rail 
yards and kept in storage lockers where employees would check-in and 
check-out the EEBA when PIH is being hauled.
    For all three options, FRA developed estimates using a closed-
circuit EEBA.\9\ For the ``Employee Assignment'' option, FRA estimates 
that the costs associated with issuing each T&E employee ($60,000) with 
an EEBA as their own personal equipment. The ``Locomotive Assignment'' 
option would require installing EEBA devices in all locomotives in a 
railroad's fleet, regardless of whether a locomotive is part of a train 
that is transporting PIH material. There are approximately 24,000 
locomotives owned by Class I railroads, and FRA estimates that at least 
three apparatus would have to be installed in each locomotive, one 
apparatus each for the conductor, the engineer, and an additional 
covered employee. In the ``Equipment Pooling'' option, FRA considered 
only having EEBAs provided in trainsets that were transporting PIH. 
EEBAs would be brought on board after a determination is made on a 
case-by-case basis.
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    \9\ A closed-circuit EEBA is a device designed for use as 
respiratory protection during entry into hazardous atmospheres that 
can be immediately dangerous to life and health and are described as 
an apparatus of the type in which the exhaled breath is rebreathed 
by the wearer after the CO2 has been effectively removed 
and oxygen concentration restored to suitable levels.
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    FRA estimates the 10-year costs of the proposed rule to be between 
$27.1 million to $91.6 million, discounted at 7 percent. The following 
table shows the total costs of this proposed rule, over the 10-year 
analysis period.
Total 10-Year Costs (2021 Dollars) \10\
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    \10\ Numbers in this table and subsequent tables may not sum due 
to rounding.

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                                                                     10-Year cost    Present value 7%   Present value 3%   Annualized 7%   Annualized 3%
                             Category                                     ($)              ($)                ($)               ($)             ($)
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Option 1: Employee Assignment.....................................     $92,006,767        $78,979,882        $85,771,368     $11,244,958     $10,055,021
Option 2: Locomotive Assignment...................................     106,793,579         91,611,301         99,524,731      13,043,388      11,667,335
Option 3: Equipment Pooling.......................................      33,527,842         27,100,467         30,398,108       3,858,497       3,563,586
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    The SNPRM is expected to improve railroad safety by ensuring that 
all covered employees in locomotives on freight trains transporting PIH 
material can safely vacate the exposed area if a PIH material release 
were to occur. The primary benefits include heightened safety for 
covered employees and, as a result, earlier awareness/notification to 
the public of any catastrophic release of a PIH material. 
Implementation of the SNPRM should mitigate the injuries to covered 
employees from PIH material releasing after an accident/incident. 
During a 10-year period, this analysis finds $43,110 (PV, 7 percent) in 
safety benefits could accrue through injury prevention.

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                                                                  10-Year benefits   Present value 7%   Present value 3%   Annualized 7%   Annualized 3%
                            Category                                    ($)                ($)                ($)               ($)             ($)
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Total Benefits from Injury Prevention..........................            $63,720            $43,110            $53,520          $6,138          $6,274
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II. Statutory Authority

    Section 413 of the RSIA mandates that the Secretary of 
Transportation (Secretary) adopt regulations requiring railroads to 
provide EEBAs for the train crews in the locomotive cabs of any freight 
train transporting a hazardous material in commerce that would present 
an inhalation hazard in the event of a release. Specifically, the 
statute instructs the Secretary to prescribe regulations requiring 
railroads to: (1) ensure that EEBAs affording suitable ``head and neck 
coverage with respiratory protection'' are provided ``for all 
crewmembers'' in a locomotive cab on a freight train transporting 
``hazardous materials that would pose an inhalation hazard in the event 
of a release;'' (2) provide a place for convenient storage of EEBAs in 
the locomotive that will allow ``crewmembers to access such apparatus 
quickly;'' (3) maintain EEBAs ``in proper working condition;'' and (4) 
provide crewmembers with appropriate instruction in the use of EEBAs. 
The Secretary has delegated the responsibility to carry out his 
responsibilities under this section of the RSIA to the Administrator of 
FRA. 49 CFR 1.89(b). Additionally, FRA is issuing this SNPRM under the 
authority of 49 U.S.C. 20103 and 49 U.S.C. 20701-

[[Page 17305]]

20703, as delegated to the Administrator of FRA pursuant to 49 CFR 
1.89(a).

III. Background

A. Accident History and NTSB Recommendation R-05-17

    As noted in the 2010 NPRM, historical data suggests limited train 
crew injuries and fatalities related to the catastrophic release of a 
PIH material; in the last decade (2012 to 2021), there were no PIH-
related fatalities of T&E personnel, and only two injuries, both of 
which resulted in symptoms due to one-time inhalation exposure to 
airborne contamination.
    While rail accidents involving the release of PIH materials are S 
as demonstrated by the June 2004 rail accident in Macdona, Texas, and 
the January 2005 accident in Graniteville, South Carolina, such 
accidents can be deadly to both the crew members involved and others in 
the vicinity. Both the Macdona and Graniteville accidents involved the 
release of a PIH material (chlorine) and both accidents resulted in the 
deaths of crewmembers.
    The collision near Macdona occurred on June 28, 2004. According to 
the NTSB's report,\11\ a westbound freight train traveling on the same 
main line track as an eastbound freight train struck the midpoint of 
the 123-car eastbound train as it was leaving the main line to enter a 
parallel siding. The collision derailed the 4 locomotive units and the 
first 19 cars of the westbound train as well as 17 cars of the 
eastbound train. As a result of the derailment and pileup of railcars, 
the 16th car of the westbound train, a pressure car loaded with 
liquefied chlorine, was punctured. Chlorine escaping from this car 
immediately vaporized into a cloud of chlorine gas that engulfed the 
accident area to a radius of more than 700 feet. Three people, 
including the conductor of the westbound train and two local residents, 
died as a result of chlorine gas inhalation.
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    \11\ ``Collision of Union Pacific Railroad Train MHOTU-23 With 
BNSF Railway Company Train MEAP-TUL-126-D With Subsequent Derailment 
and Hazardous Materials Release, Macdona, Texas, June 28, 2004,'' 
Railroad Accident Report NTSB/RAR-06/03, Washington, DC.
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    The Graniteville accident occurred on January 6, 2005, when a 
freight train encountered a switch that had been improperly lined. The 
improperly lined switch diverted the train from the main line onto an 
industry track. Once on the industry track, the train struck an 
unoccupied, parked train. The collision resulted in the derailment of 
two locomotives and 16 freight cars on the diverted train, as well as 
the locomotive and one of the two cars of the parked train. There were 
three tank cars containing chlorine among the derailed cars on the 
diverted train. One of the cars containing chlorine was breached 
causing a release of chlorine gas, which resulted in the train engineer 
and eight other people dying from chlorine gas inhalation.\12\
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    \12\ ``Collision of Norfolk Southern Freight Train 192 With 
Standing Norfolk Southern Local Train P22 With Subsequent Hazardous 
Materials Release at Graniteville, South Carolina, January 6, 
2005,'' Railroad Accident Report NTSB RAR-05/04, Washington, DC.
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    Following the Macdona and Graniteville accidents, the NTSB issued 
Safety Recommendation R-05-17 to FRA recommending that FRA determine 
the most effective methods of providing emergency escape breathing 
apparatus for all crewmembers on freight trains carrying hazardous 
materials that would pose an inhalation hazard in the event of 
unintentional release, and then require railroads to provide those 
breathing apparatus to their crewmembers along with appropriate 
training.

B. FRA Sponsored Study

    In response to NTSB Safety Recommendation R-05-17, FRA commissioned 
a study of EEBAs in cooperation with the railroad industry and railroad 
labor. As part of the study, FRA compiled factual information, 
performed technical, risk, and economic analyses, and made 
recommendations on ``the use of [EEBAs] by train crews who may have 
exposure to hazardous materials [that] would pose an inhalation hazard 
in the event of unintentional release.'' The study, published in 2009, 
provided information and recommendations on the use of EEBAs by train 
crews who may be exposed to hazardous materials that pose inhalation 
hazards. The study concluded that railroads should consider using EEBAs 
on trains transporting hazardous materials that pose in inhalation 
hazard.\13\ Part of the preamble to this proposed rule draws from the 
study; however, after further consideration of the issues involved and 
consultation with representatives of the railroad industry and railroad 
labor (as discussed under ``Section VII. Information and 
Recommendations Provided by the Railroad Industry and Railroad Labor 
Organizations after the Study''), FRA has come to different conclusions 
on a number of matters. These matters include the minimum breathing 
time that EEBAs should provide, the analysis of different methods of 
distribution of the devices, and the costs and benefits of various EEBA 
alternatives.
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    \13\ See ``Emergency Escape Breathing Apparatus,'' FRA Office of 
Research and Development, Final Report, May 2009, which is posted at 
https://railroads.dot.gov/sites/fra.dot.gov/files/fra_net/1419/ord0911.pdf.
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C. FRA's 2016 Guidance for Developing an EEBA Program

    In December 2016, FRA published, in the absence of a final rule, 
Guidance for Developing an EEBA Program.\14\ This provided guidance to 
railroads for developing and implementing an individualized EEBA 
program to protect their crewmembers. The guidance highlights factors 
to consider when selecting an appropriate EEBA and explains various 
components to evaluate when developing an EEBA program. However, FRA is 
unaware of any railroad that has developed an EEBA program or made 
EEBAs generally available to their crewmembers.
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    \14\ Federal Railroad Administration Guidance for Developing an 
Atmosphere-Supplying Emergency Escape Breathing Apparatus Program 
(Dec. 2016). https://railroads.dot.gov/elibrary/federal-railroad-administration-guidance-developing-atmosphere-supplying-emergency-escape.
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IV. Selection of the Appropriate EEBA by Railroads

    As explained in the 2010 NPRM, EEBAs are ``respirators'' and 
generally there are two different types of respirators: air purifying 
and atmosphere-supplying. Air-purifying respirators remove specific air 
contaminants by passing ambient air through an air-purifying element, 
such as an air-purifying filter, cartridge, or canister. Atmosphere-
supplying respirators supply breathing air from a source independent 
from the ambient atmosphere. Types of atmosphere-supplying respirators 
include airline supplied-air respirators and SCBA units. Based on the 
factors presented below, FRA is proposing to require an atmosphere-
supplying respirator that provides adequate head and neck protection as 
well as giving sufficient time for its user to escape an IDLH 
atmosphere.\15\ In the 2010 NPRM, FRA noted that it was aware of three 
main organizations that had promulgated standards governing the use and 
maintenance of respirators--NIOSH, OSHA, and the ISO.\16\ Since 
issuance of the 2010 NPRM, however, FRA has become aware of a third 
organization, CEN, that has also developed two relevant standards.
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    \15\ NIOSH defines an IDLH as ``an atmosphere that poses an 
immediate threat to life, would cause irreversible adverse health 
effects, or would impair an individual's ability to escape from a 
dangerous atmosphere.'' See 29 CFR 1910.134(b).
    \16\ 75 FR 61386, 61390 (Oct. 5, 2010).

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[[Page 17306]]

    As explained in the 2010 NPRM, NIOSH, located within the Centers 
for Disease Control and Prevention of the U.S. Department of Health and 
Human Services, worked with government and industry partners to develop 
certification standards for respirators. The NIOSH regulations, 
codified at 42 CFR part 84, establish the requirements for NIOSH-
certification of respirator equipment. NIOSH has also developed 
information on safe levels of exposure to toxic materials and harmful 
physical agents and issued recommendations for respirator use.
    ISO has also established standards for respirator maintenance and 
use. The ISO is a network of national standards institutes in 162 
countries, including the United States, through the American National 
Standards Institute. ISO develops international standards to assist in 
ensuring the safe performance of a wide range of EEBAs. While ISO is 
not a government organization, it works to establish performance 
standards that have scientific and technological bases while ensuring 
that products, falling within its purview, are safe and reliable for 
consumers. The organization has promulgated ISO 23269-1:2008(E), 
``Ships and marine technology--Breathing apparatus for ships--Part 1: 
Emergency escape breathing devices (EEBD) for shipboard use, First 
Edition (2008-02-01).'' While ISO 23269-1:2008 is directed towards 
EEBAs on ships and marine technology, the standard can be reasonably 
transferred to the railroad environment. ISO 23269-1:2008 establishes 
performance specifications for EEBAs that are intended to provide air 
or oxygen to a user to facilitate escape from accommodation and 
machinery spaces, similar to a locomotive cab, with a hazardous 
atmosphere.\17\
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    \17\ However, as explained below, FRA believes that the minimum 
breathing capacity allowed by ISO 23269-1:2008, which is 10 minutes, 
is insufficient for the anticipated use in a railroad environment. 
As a result, the proposed rule requires a minimum breathing capacity 
of 15 minutes, which would be equally applicable to EEBAs certified 
under the requirements of NIOSH. See 42 CFR part 84, or ISO 23269-
1:2008.
---------------------------------------------------------------------------

    CEN serves a similar purpose as ISO in that it develops consensus 
standards for European countries. In creating these standards, CEN 
relies on the input of technical experts, business and consumer groups, 
and other societal interest organizations. Additionally, there is a 
measure of interconnectedness between the ISO and CEN, as CEN has 
entered into a cooperative agreement with ISO to avoid duplicative 
standards. In the area of escape respirators, CEN has developed two 
standards that railroads could use to identify an appropriate EEBA to 
provide to an employee. The first standard establishes requirements for 
approving closed-circuit escape respirators, see BS EN 13794:2002 E, 
``Respiratory Protective Devices--Self-Contained, Closed-Circuit 
Breathing Apparatus for Escape--Requirements, Testing, Marking 
(November 2002),'' while the second standard establishes requirements 
for approving open-circuit escape respirators, see BS EN 1146:2005: E, 
``Respiratory Protective Devices--Self-Contained, Open-Circuit 
Compressed Air Breathing Apparatus Incorporating a Hood for Escape--
Requirements, Testing, Marking (September 2005).'' While BS EN 
13794:2002 and BS EN 1146:2005 are standards created for the European 
market, FRA finds that compliance with either standard would be 
adequate to establish the reliability of a device, subject to the 
provisions of this regulation, specifically, proposed 49 CFR 227.203, 
which is discussed in detail below. See VIII. Public Comment on the 
NPRM, with FRA's Response and IX. Section-by-Section Analysis.
    Additionally, OSHA, located within the U.S. Department of Labor, is 
responsible for developing and enforcing general workplace safety and 
health regulations related to respiratory protection. In furtherance of 
this responsibility, OSHA has promulgated extensive regulations 
governing the maintenance, care, and use of respirators of all types, 
including emergency escape devices. See 29 CFR 1910.134.
    In drafting this proposed rule, FRA considered the requirements of 
both Federal agencies (NIOSH and OSHA) as well as the ISO and EN 
standards to assist in determining the possible types of EEBAs that may 
be used by railroad employees covered under this rule. To determine 
which type or types of EEBAs are appropriate, FRA has looked to the 
comprehensive selection process for respirators developed by NIOSH.\18\ 
For purposes of EEBAs deployed in the railroad environment, the two 
major NIOSH factors to consider in selecting a respirator are to 
determine whether the respirator is intended for: (1) use in an oxygen-
deficient atmosphere (i.e., less than 19.5 percent O2); and 
(2) use in, entry into, or escape from, unknown or IDLH atmospheres 
(e.g., an emergency situation).
---------------------------------------------------------------------------

    \18\ https://www.cdc.gov/niosh/docs/2005-100/default.html.
---------------------------------------------------------------------------

    FRA's investigation into the Graniteville accident found that the 
concentration of the toxic chlorine cloud over the accident site area 
was estimated to be approximately 2,000 parts per million (ppm).\19\ 
OSHA classifies chlorine as having an IDLH level of 10 ppm. FRA roughly 
estimated the distance between the final resting spot of the breached 
chlorine tank car in relation to the train crew, as well as the wind 
speed and size of breach, to determine that the chlorine plume reached 
the crew within two minutes. The coroner's report on the eight 
fatalities to persons who were not railroad employees in the 
Graniteville accident indicated that the primary cause of death was 
asphyxia, or lack of oxygen. The coroner listed the engineer's primary 
cause of death as lactic acidosis. Exposure to chlorine gas was 
attributed as the secondary cause of all deaths in the accident. Under 
the circumstances presented, it appears that both NIOSH selection 
criteria were met. There may have been an oxygen-deficient atmosphere, 
and there certainly was toxic-gas concentration exceeding IDLH levels.
---------------------------------------------------------------------------

    \19\ See R.L. Buckley, Detailed Numerical Simulation of the 
Graniteville Train Collision, Savannah River National Laboratory, 
Report WSRC-MS-2005-00635 October 2005.
---------------------------------------------------------------------------

    The Graniteville accident demonstrated that railroad hazardous 
material incidents (meaning collisions, derailments, or other train 
accidents) involving the catastrophic loss of certain PIH materials 
have the potential to release IDLH concentrations and/or displace 
oxygen very quickly without the crew's knowledge. In such 
circumstances, the crew may need to respond to an incident by donning 
their EEBAs even before assessing the damage caused by an accident. 
Considering the variables associated with the transportation of 
hazardous materials via rail and the potential hazards that exist, FRA 
is, based on the NIOSH selection criteria, proposing to require that 
railroads provide an escape-type respirator to covered employees.
    The single function of escape-type EEBAs is to allow sufficient 
time for an individual working in a normally safe environment to escape 
from suddenly occurring respiratory hazards. Given this function, the 
selection of the device does not rely on assigned protection factors 
designated by OSHA.\20\ Instead, these escape-type respirators are 
selected based on a consideration of the

[[Page 17307]]

time needed to escape in the event of IDLH or oxygen-deficient 
conditions.
---------------------------------------------------------------------------

    \20\ ``Assigned protection factor'' means the level of safety 
that a respirator or a class of respirators is expected to provide 
to employees. Assigned protection factors were developed by OSHA to 
designate to employers the proper type of device that is required in 
selecting a respirator. According to OSHA, assigned protection 
factors are not applicable to respirators used solely for escape.
---------------------------------------------------------------------------

    Pursuant to statutory requirements, and as proposed in the 2010 
NPRM, this SNPRM would require providing a device with head and neck 
coverage. Escape-type SCBA devices are commonly used with full-face 
pieces or hoods. Such devices are usually rated from 3- to 60-minute 
units depending on the supply of air. The following two types of 
atmosphere-supplying SCBA would satisfy the protection requirements of 
this proposed regulation:
     Open-Circuit SCBA. These are typically classified as 
positive pressure, open-circuit systems whereby the user receives 
(inhales) clean air with 21 percent O2 from a compressed air 
cylinder worn with a harness on the back. The user's exhaled breath 
contains significant amounts (15 percent) of unused oxygen that is 
vented to atmosphere. Because much of the user's exhaled breath vents 
to atmosphere, the size of open-circuit systems is larger than closed-
circuit systems. Open-circuit SCBA systems may employ full face masks 
or hoods and typically require an airtight seal against the head, face, 
or aural/nasal area.
     Rebreathers. These can be positive-pressure or negative-
pressure systems. Classified as closed-circuit O2 systems, 
rebreathers perform as their name implies. The user rebreathes his or 
her breath. A chemical scrubber removes the CO2 from the 
user's breath and makes up metabolized O2 from a small 
bottle of compressed 100-percent O2. Because the user is 
rebreathing his or her exhaled air containing 15 percent oxygen, a 
rebreather is four times more efficient than an open-circuit system. As 
a result, such systems are capable of either lasting much longer than 
open-circuit systems (if size were comparable) or providing the same 
breathing duration as an open-circuit system but in a smaller package. 
Rebreathers may be employed with full-face masks or hoods. Negative 
pressure rebreathers do not require a tight seal.
    First responders (such as firefighters) commonly use open-circuit 
positive pressure SCBA systems for entering the scene of an emergency 
event. However, such devices may not be best situated to the railroad 
environment. In addition to being heavy and cumbersome from 
incorporating a large, compressed air cylinder mounted to a harness, 
they also commonly incorporate use of a full-face piece. Depending on 
the program developed by each railroad, the incorporation of a full-
face piece may be a logistically and economically difficult 
undertaking. To be effective, a full-face piece requires an airtight 
seal around the user's face, which means that each user must be 
personally fitted for the device. It also means the user must be 
cleanly shaven or otherwise free of excessive facial hair. The 
enforcement of such a requirement would be difficult at best.
    FRA believes that hoods provide a useful alternative to full-face 
masks while protecting the face and neck. Hoods are universal fitting 
devices and can be used with open and closed-circuit SCBAs. Because 
they are universal fitting, hoods do not require personally fitting the 
user, and hoods operate efficiently regardless of most eyewear, facial 
features, or hair. Significantly, hoods also allow the wearer to 
communicate while using the SCBA.
    Experience has shown that a plume of hazardous material can travel 
quickly. As a result, it is vitally important that the train crew has 
adequate breathing time available to allow each member to move a 
significant distance from the site while protected from the ambient 
atmosphere. Because such incidents will often result from a collision, 
as was the case in Macdona and Graniteville, consideration should be 
given to those situations where additional time may be used to assist 
or extricate fellow crewmembers that may be hurt or trapped. For 
example, if it takes 10 minutes to assist a fellow crewmember and each 
is wearing a 15-minute open-circuit respirator, each crewmember is left 
with five minutes to escape from any plume that may be present. 
Moreover, often individuals will have a tendency to over-breathe in 
stressful situations, which will shorten the breathing time available 
in a respirator. In selecting an EEBA with sufficient breathing time, 
each railroad should take into consideration these factors and others 
that contribute to the ``Murphy's Law'' effects of accidents such as an 
incident occurring at night or in tight terrain. As a result, FRA is 
proposing to require that EEBAs being provided to covered employees 
have a 15-minute minimum breathing capacity. Further, FRA encourages 
railroads to consider EEBAs with a longer breathing capacity, to 
provide an extra margin for escape under stressful circumstances.

V. Provision of EEBAs to Covered Employees

    In proposing this regulation, FRA has decided not to propose a 
specific method by which railroads must provide EEBAs to covered 
employees. See discussion of covered employees at IX. Section-by-
Section Analysis of Sec. Sec.  227.201 and 227.211, below. FRA 
recognizes that there are differing methods for effectively 
distributing suitable EEBAs among a railroad's covered employees, its 
locomotive fleet, or both. Each of these options has advantages and 
disadvantages. Given these factors, FRA believes that the proposed 
regulation most efficiently serves the RSIA mandate by allowing each 
railroad to choose the method of distribution that works for it as long 
as: (1) covered employees are provided with a suitable device while 
they are in the locomotive cab of a freight train transporting a PIH 
material; and (2) transportation of a covered hazardous material is not 
unduly delayed, thereby posing additional risk, particularly where the 
covered train (or a locomotive intended to be used to haul a covered 
train) is interchanged from one railroad to another. See VII. 
Information and Recommendations Provided by the Railroad Industry and 
Railroad Labor Organizations after the Study, for relevant remarks. In 
the following paragraphs, FRA discusses the potential costs and 
benefits of five options available to railroads for providing EEBAs to 
covered employees.
    Under this proposed rule, EEBAs may be treated as part of an 
employee's permanently issued items, similar to eye protection, radios, 
and lanterns. This method of distribution would allow railroads to 
permanently issue an EEBA to each potentially covered employee (e.g., 
for a freight railroad that regularly hauls one or more PIH materials, 
possibly all of its train employees). The device would be in the user's 
control at all times, and each individual would be responsible for 
having the device in his or her possession. The carrier would still be 
responsible for ensuring the state of the equipment through an 
inspection program; however, the company would be relieved of most of 
the responsibilities for EEBA management. Theoretically, this option 
would tend to result in better cared for equipment and lower 
replacement costs. Moreover, personal assignment allows for 
customization of the EEBA. However, permanently issuing EEBA to 
employees results in substantial costs. Over a 10-year period, total 
costs would be approximately $90.8 million. Other negative aspects of 
treating EEBAs as a permanently issued item include difficulty in 
monitoring the condition of the EEBA and ensuring that the EEBA is with 
the user at all times that it is required to be available. 
Additionally, permanently issuing the EEBA would add to an already 
lengthy list of items expected to be carried by train employees.

[[Page 17308]]

    Alternatively, EEBAs may also be permanently assigned to an 
individual as a dedicated personal item that would be issued at the 
start of each shift and recovered at the end of each shift as part of 
the clock-in/clock-out process. This method allows for customization 
and allows the EEBA to be with the user at all times the user is on 
duty, while supporting centralized inspection and maintenance. However, 
the railroad may experience greater costs due to the increased size of 
its EEBA inventory since all train employees that have the potential to 
work in the locomotive cab of a freight train transporting a PIH 
material would require stocked EEBAs. This alternative may also create 
difficulties in the provision of EEBAs if the train employees who must 
have access to the EEBAs have more than one on-duty location.
    A third option is to treat EEBAs as ``pool'' items. The EEBAs would 
not be assigned to a specific individual. They would be issued at the 
start of each shift and recovered at the end of each shift as part of 
the clock-in/clock-out process. This option supports centralized 
inspection and maintenance while minimizing number of EEBAs required, 
which could reduce costs substantially. FRA estimates that trains 
transporting PIH materials amount to approximately 0.2 percent of all 
train traffic, as cars carrying PIH materials are concentrated in 
relatively few trains. If railroads chose this option, they could stock 
enough EEBAs to cover 10 percent of the entire locomotive fleet for 
approximately $33.5 million over a 10-year period. Equipping enough 
EEBAs to cover 10 percent of the entire locomotive fleet should allow 
for every locomotive that will be part of train transporting a PIH 
material to be equipped with the necessary devices for each covered 
employee provided that the railroads exercise adequate resource 
management with respect to EEBAs. This would ensure that the EEBA would 
be with the user throughout his or her entire shift. However, railroads 
likely would have to allocate or build space at one or more locations 
(depending on the size of the railroad) to warehouse EEBAs that are not 
being used by covered employees. Moreover, an employee must be assigned 
to monitor the handing out and returning of devices, and the fewer the 
devices, the tighter the management will have to be. These factors 
increase the management burden for tracking and recovery of EEBAs. 
Additionally, this system also may have hidden costs, such as losing 
the benefits of ``ownership'' if EEBAs are treated as common property.
    A fourth option is to have EEBAs permanently mounted in each 
locomotive cab in the railroad's fleet. This method would ensure that 
trains transported by the railroad that include a PIH material are 
always adequately equipped, while supporting centralized inspection and 
maintenance. The negative aspects of permanently mounting the EEBA 
selected by the railroad in the cabs of the railroad's locomotive fleet 
include the increased size of the railroad's EEBA inventory if non-
covered consists would transport the EEBAs and if EEBAs must be 
provided for worst-case crewing (including possible supernumerary 
personnel such as deadheading employees), increased management burden 
for tracking/recovery, increased management burden for item inspection 
and maintenance, and unavailability of customized EEBAs. Additionally, 
FRA has estimated that the total 10-year cost of outfitting all 
locomotives to be approximately $105.3 million. These estimates could 
be reduced if railroads opted to dedicate a portion of their locomotive 
fleet to service for trains transporting PIH materials, but dedicating 
locomotives in this manner would likely result in decreased economic 
efficiency.
    As discussed in VII. Information and Recommendations Provided by 
the Railroad Industry and Railroad Labor Organizations after the Study, 
AAR has proposed that Class I railroads interchanging locomotives with 
each other will provide the same type of EEBA while also using the same 
method of equipping the locomotive, which would expedite interchange 
between two Class I railroads. However, the option of permanently 
mounting a specific type of EEBA within each locomotive owned by a 
Class I railroad could create delays at interchange if the locomotives 
from nonparticipating railroads also are offered in interchange to 
Class I railroads to haul covered trains. The delay could occur if the 
nonparticipating railroad delivers a locomotive in interchange that 
either lacks an EEBA of any kind or that has an EEBA that does not 
conform to the type specified under the Class I railroad's general EEBA 
program under proposed Sec.  227.211.
    EEBAs also may be temporarily mounted in the locomotive cab as the 
train containing a shipment of PIH material is made up. Using this 
option would help to minimize the number of EEBAs required, while 
ensuring that each consist containing a PIH material is appropriately 
equipped. It would also allow the railroad to cater efficiently to 
differing crew sizes. Drawbacks with this method include increased 
management burden for the initial issue of EEBAs to the consist, 
increased management burden for tracking/recovery, increased management 
burden for item inspection and maintenance, and unavailability of 
customized EEBAs.
    FRA recognizes that these are but a few of the numerous options for 
the provision of EEBAs, each having its own costs and benefits. Any of 
these options (or combination of these options), including options that 
have not been discussed above, is acceptable under this proposed rule, 
as long as a suitable EEBA is provided by the railroad to each covered 
employee while they are in a locomotive cab of a covered train and the 
transportation of covered hazardous materials via rail is not unduly 
delayed.

VI. Information and Recommendations Provided by the Railroad Industry 
and Railroad Labor Organizations After the Study

    As previously mentioned, representatives of both the railroad 
industry and railroad labor cooperated with the FRA-sponsored study on 
the feasibility of providing EEBAs to train crews, the report of which 
was published in May 2009. AAR, UTU,\21\ and BLET also exchanged 
information and ideas with FRA on issues related to this rulemaking.
---------------------------------------------------------------------------

    \21\ UTU is now part of the International Association of Sheet 
Metal, Air, Rail and Transportation Workers (SMART).
---------------------------------------------------------------------------

    In July 2009, prior to the publication of the NPRM, representatives 
of AAR briefed FRA with information on AAR's exploration of alternative 
ways by which the rulemaking mandate under section 413 of the RSIA 
might be carried out. AAR has also offered recommendations to FRA on 
issues related to this rulemaking, including the type of EEBA and the 
mode of providing it that AAR thought would satisfy the statutory 
mandate. Subsequently, in a letter to FRA dated January 13, 2010, AAR 
encouraged FRA to incorporate by reference a draft specification 
establishing guidelines for: (1) vendors of EEBAs that would be used by 
Class I railroads; (2) mounting EEBAs on locomotives; and (3) requiring 
training support.
    FRA considered incorporating by reference a finalized version of 
AAR's specification; however, FRA has ultimately decided not to do so. 
Many comments raised questions about the details of the specification, 
and FRA believes this proposed rule provides a better standard for 
efficiently complying

[[Page 17309]]

with the RSIA mandate. Of course, AAR is free to rely on a final 
specification to normalize EEBAs among Class I railroads, as long as 
the specification complies with the requirements in subpart C.
    Additionally, in the course of drafting the NPRM, FRA 
representatives met with UTU and BLET representatives on March 31, 
2010, who briefed FRA on issues related to the provision of EEBAs. AAR 
was also in attendance at this meeting. UTU felt that EEBAs should be 
``placed on all occupied locomotives which operate over a corridor 
where freight trains carry hazardous materials that pose an inhalation 
hazard in the event of a release.'' Under UTU's recommendation, each 
occupied locomotive would be required to have working EEBAs--even if 
the occupied locomotive is not part of a train carrying asphyxiants or 
PIH materials--as long the locomotive is operating over a rail line 
that carries such materials.
    During the March 31, 2010, meeting, UTU indicated that it opposed 
issuing EEBAs as personal items. UTU felt that adding an additional 
item to each train employee's required personal equipment would 
unnecessarily burden crewmembers. UTU was concerned with not only the 
added weight, but also the extra responsibility for care and 
maintenance that would fall to train employees in the event that EEBAs 
are provided as personal equipment. It contended that railroads are in 
a better position than the employees to maintain the devices and stated 
that treating EEBAs as personal equipment would not satisfy the intent 
of Congress in passing the legislation.
    Finally, UTU stressed that there must be sufficient training of 
train employees in the use of EEBAs. Such training would ensure that 
train employees would know how to use EEBAs if presented with a 
situation in the field where their use was required. UTU expressed a 
strong desire for regular, hands-on training with devices selected by 
the railroads to achieve these ends.

VII. Public Comment on the NPRM, With FRA's Response

A. Introduction

    FRA received 11 sets of comments on the 2010 NPRM from 12 different 
entities (BLET and UTU jointly submitted comments), covering a broad 
spectrum of interests which resulted in a number of revisions to this 
proposed rule. These commenters included the railroad industry, labor 
organizations, professional associations, respirator manufacturers, 
Federal agencies, and concerned individuals. In updating the proposed 
rule, FRA has considered each issue raised by the commenters, and it 
addresses those issues in this section.

B. Comments on the Preamble, With FRA's Response

    NIOSH comments regarding footnote 4 in the preamble to the NPRM, 
which states that ``[t]he proposed NIOSH regulations would be 
applicable to mine workers, but NIOSH provides that once the final rule 
is published it would be used to certify respirators in other work 
environments where escape respirators are supplied.'' NIOSH suggests 
that the above-noted wording implies that the existing regulations only 
apply to certification of escape respirators for the mining work 
environment. However, the respirators certified for use under the 
existing regulations have been and continue to be used to certify 
respirators for use in other work environments where escape respirators 
are supplied. As the NIOSH rulemaking in question has been finalized, 
FRA has removed the footnote to avoid confusion.
    Additionally, NIOSH recommends clarifying the preamble discussion 
on the type and performance level of protection to be provided by the 
required head and neck coverage (e.g., impact or penetration 
resistance, lens abrasion resistance, eye irritation). In the NPRM, 
there are several places where these issues were addressed. See 76 FR 
61392, 61395, and 61403 (Oct. 5, 2010). FRA understands Congress's 
primary intent in requiring protection of the head and neck of covered 
employees is to ensure that the eyes, noses, and throats of the 
employees are protected from exposure to the irritant properties of any 
contaminants. Because the EEBA standard is, to the degree possible, a 
performance standard that sets the performance criteria for EEBAs for 
use in emergency escape situations, FRA does not seek to prescribe 
specific respirator performance measures--with the exception of 
breathing capacity--and/or specific respirator type. FRA has therefore 
modified its discussion in the Section-by-Section Analysis to state 
clearly FRA's intent of providing performance criteria that must be met 
by the head and neck protection language--the prevention of eye, nose, 
and throat irritation--when considering a specific type of respirator.
    NIOSH also recommends that the NIOSH-certified closed-circuit 
escape respirators, which use a chemical source for oxygen (e.g., 
Draeger OXY K plus S and CSE SR-100 units), be mentioned in the 
preamble to the final rule as an atmosphere-supplying SCBA that 
satisfies the protection requirements of the regulation. FRA takes the 
position that any respirator that meets the criteria established under 
proposed Sec.  227.203 would be acceptable. The descriptions in the 
preamble were not intended to be an exhaustive explanation of the types 
of respirator technology available, only to describe some of them for 
illustrative purposes.
    An individual commenter states that FRA's own data suggest the rule 
appears to be unnecessary, costly, and likely inimical to the safety of 
train crews. He contends that, considering the low fatality rate 
documented for hazardous material releases, FRA should put its 
resources in continuing to minimize the number and consequence of rail 
accidents involving hazardous materials. In response to this comment, 
FRA notes that the RSIA mandates that the Secretary adopt regulations 
requiring railroads to provide EEBAs for train crews in occupying 
locomotive cabs of any freight train transporting a hazardous material 
in commerce that would present an inhalation hazard in the event of a 
release. Given this statutory mandate, FRA is proposing a rule that not 
only considers the costs, but also provides a mechanism to enhance 
safety for railroad employees transporting hazardous materials 
presenting an inhalation hazard if a release occurs. Moreover, it is 
important to recognize that FRA has recently undertaken a number of 
rulemaking initiatives in a variety of disciplines, including re-
engineering of tank cars (in cooperation with PHMSA), PTC, and 
amendments to operating rules, all designed to improve the safety of 
railroad operations, and thus reduce the rate of incidents, including 
those involving hazardous materials. As with all complex systems, 
however, there are occasions when failures do occur. This proposed rule 
would provide an additional element of protection for covered employees 
should an accident with a PIH release occur in the future.
    The individual commenter also states that, in his experience with 
protective breathing gear, it is a liability unless employees are 
highly trained in using the devices. The commenter raises the concern 
that crews may waste precious time in donning EEBAs when the best 
course of action is to exit the predicament. Additionally, the 
commenter is concerned that such gear may result in increased panic by 
reducing situational awareness when presented with the stress of an 
accident. FRA has considered these issues while drafting this proposed 
regulation and expects that the time taken to don this gear will be 
minimal. In FRA's view, the use of an EEBA can enhance a covered 
employee's opportunity to escape a

[[Page 17310]]

potentially toxic environment that, absent these devices, they would be 
unable to do without an adverse outcome. The Macdona chlorine release 
reveals that the conductor, who died, had initially escaped the 
locomotive cab, but while trying to walk away from the accident scene, 
was exposed to chlorine to the degree that it overcame him. In that 
case, had an EEBA been present and used by the conductor, he may have 
had sufficient time and breathable air to get far enough away from the 
chlorine release to survive.
    BLET and UTU (jointly referred to as Labor) comment that FRA's NPRM 
understates the benefits of the proposed regulation. Labor contends 
that the value of preventing injuries necessarily requires a subjective 
assignment of casualties to several categories of an ``Abbreviated 
Injury Scale,'' the most severe of which is a critical injury. A 
critical injury is valued at 76.25 percent of the cost of a statistical 
human life. Labor then posits that if only 2 percent (14) of the 660 
predictable inhalation casualties identified by FRA are deemed 
critical, then the benefit of the proposed rule would roughly equal the 
$73,900,000 cost that FRA associated with the 2010 NPRM if railroads 
permanently equip locomotives with open-circuit type EEBAs.
    While Labor's comment correctly asserts that there were 660 
inhalation casualties over the 10-year period presented in the 2010 
NPRM, FRA reanalyzed that data to determine the relevance of these 
casualties to the issue of transporting hazardous materials that would 
pose an inhalation hazard in the event of a catastrophic release. FRA's 
analysis matched HMIS \22\ incident data, maintained by PHMSA, with 
FRA's part 225 injury and illness records over the 2010 NPRM's 10-year 
period. The data were further filtered by removing RCOs and actions 
where the employee was walking, adjusting things, throwing switches, 
coupling air hoses, etc.--i.e., not in the cab. FRA then removed events 
that were not related to the inhalation of a chemical (e.g., burned, 
chair/seat, assaulted by another, splashed, or dripped). Of the 
remaining incidents, only five casualties occurred on a mainline track 
or a siding that would have fallen within the category of events that 
this proposed rule seeks to protect against. Of those incidents, two 
casualties arose out the Macdona collision, and two casualties arose 
out of the Graniteville collision, both of which are discussed in the 
preamble.
---------------------------------------------------------------------------

    \22\ PHMSA, the Federal agency within DOT charged with the safe 
and secure movement of almost 1 million daily shipments of hazardous 
materials by all modes of transportation, developed the HMIS. The 
system maintains and provides access to comprehensive information on 
hazardous materials incidents, exemptions and approvals, enforcement 
actions, and other elements that support the regulatory program.
---------------------------------------------------------------------------

    Additionally, Labor takes issue with the cost-benefit discussion in 
the 2010 NPRM preamble because it contends that FRA implies it was 
pushed into implementing this rule by a Congressional mandate and 
``appears to be apologizing for implementing this rule because it 
might, in their analysis, cost the railroads money.'' As a result, 
Labor asks that the preamble be edited to remove the following text 
``[a]lthough the costs associated with implementation of the proposed 
rule would likely exceed the benefits, FRA is constrained by the 
requirements of RSIA.'' See 75 FR 61398. FRA is leaving the statement 
in this proposed rule as it appears in the 2010 NPRM. The analysis that 
FRA undertook was not intended to diminish the real and significant 
tragedies that occurred. FRA must ensure that the economic analysis is 
done in as objective a manner as possible, and it has a duty to inform 
the public when a rule has a negative cost-benefit ratio.

C. Comments Recommending Additional Provisions, With FRA's Responses

    Draeger Safety (Draeger) comments that the closed-circuit SCSR is 
the appropriate respirator that should be used for railroads. Draeger 
notes that SCSRs have been used extensively in the United States and 
internationally by the mining industry and on oil drilling platforms. 
Additionally, Draeger states that SCSRs are used by the U.S. Navy and 
by railway operations in Switzerland and Austria. SCSRs are currently 
approved by NIOSH under 42 CFR part 84. While the device mentioned in 
Draeger's comments may be the one selected by a railroad it is not the 
only type that will meet the requirements in the RSIA mandate or in the 
criteria laid out by FRA.
    Chemical Facility Security News suggests that FRA should include a 
requirement to place chemical detectors and alarms on all asphyxiant 
gas and PIH railcars that would notify train crews when there is a leak 
that might require them to don their EEBAs. The commenter asserts that 
such detectors or alarms also would benefit those first responders at 
the scene. Additionally, Chemical Facility Security News argues that 
any usage requirements for EEBAs should also require a personal 
detector for the chemicals involved. Chemical Facility Security News 
states that this is the only way that train crewmembers will know if 
they have moved to a safe location that is suitable for removing an 
EEBA.
    Under this proposed rule, railroads would be required to provide 
instruction for covered employees on the proper evacuation procedures 
and use of the EEBAs. Employees must also be instructed to evacuate the 
locomotive cab immediately during a release of a hazardous material 
that would present an inhalation hazard.
    FRA has not included a provision in this proposed rule mandating 
that railroads provide chemical detectors or alarms for several 
reasons. First, as more than 20 listed PIH chemicals are transported by 
rail, it would not be possible to provide a single chemical detection 
device that would have the capability of detecting the full range of 
PIH materials (or asphyxiants) that may be encountered. According to 
the Chemical Facility Security News blog, ``many of the covered 
chemicals cannot be detected by the human senses.'' In fact, even the 
most innovative chemical detection devices are limited to the detection 
of only a handful of toxic industrial chemicals. In addition, chemical 
detection devices would only be reliable when the wearer is positioned 
downwind of the toxic vapor cloud and external to the locomotive cab. 
Also, it should be noted that if the concentration of the PIH material 
is high enough to create an IDLH environment, then the detection device 
may not provide sufficient time to take protective measures.
    The acquisition and use of the devices would also be very 
expensive, especially considering the purchasing, maintenance 
(including factory maintenance and calibration), and training costs, 
and FRA does not believe it would provide additional protection for 
locomotive cab employees. FRA believes that in an emergency situation, 
such as an accidental release, covered employees should be focused on 
donning the EEBA and safely evacuating the locomotive instead of 
looking for a detection device to decide whether donning the EEBA and 
evacuating the locomotive is necessary.
    Chemical Facility Security News also comments that there should be 
a serious look into whether a similar requirement should be provided 
for other transportation workers because trucks may haul similar 
chemicals and are involved in more accidents per mile than their 
railroad counterparts. FRA's regulatory authority is limited to 
establishing safety regulations for the railroad industry and, thus, 
this comment is beyond FRA's regulatory authority to implement.

[[Page 17311]]

    ASLRRA comments address concerns about the financial impact of the 
RSIA mandate on the small railroad industry, which it contends is 
already stressed by the cumulative effect of other regulations and a 
lack of pricing power. ASLRRA states that this proposed regulation will 
not enhance safety for small railroads, since there have not been any 
fatalities, to its knowledge, arising out of the shipment of PIH 
materials by Class III railroads. Indeed, ASLRRA is concerned that the 
new requirements will reduce safety by forcing small railroads to take 
money from their capital budgets that would have been used for track 
maintenance and other infrastructure improvements. Separately, it notes 
that the effect of the proposed rule could be to shift transportation 
of PIH materials from rail lines to the nation's roads and highways, 
where the potential for catastrophic interaction with the broader 
public is much greater. As a result, ALSRRA requests that FRA seek an 
exemption from Congress for Class III railroads that handle PIH traffic 
on their own lines where train speeds do not exceed 30 miles per hour.
    FRA understands ALSRRA's concerns, but the agency is constrained by 
section 413 of the RSIA. Unlike with PTC, Congress did not carve out an 
exemption for Class II and Class III railroads from the statutory 
requirement. See section 104 of the RSIA. Instead, Congress used broad 
language that covers any railroad carrier transporting hazardous 
materials that would pose an inhalation hazard in the event of release. 
In light of this language, FRA is constrained from instituting an 
exception for Class III railroads without Congressional action. 
Notwithstanding these constraints, FRA has proposed measures to limit 
the costs for railroads. In particular, FRA has proposed allowing 
railroads to pursue the most cost-effective way to provide EEBA in 
accordance with the statutory and regulatory requirements. 
Additionally, small railroads could consider pooling resources wherever 
possible for requirements such as periodic training. Moreover, Class 
III railroads will have a full 18 months from the effective date of the 
rule before they will be expected to be in compliance, which allows for 
the ``start-up'' costs related to compliance (e.g., acquiring 
respirators and establishing training programs) to be spread out over a 
period of time.
    Labor raises concerns about placards and manifest accuracy. Labor 
contends that it would defeat Congressional intent in requiring the 
provision of the EEBAs if train crews are not aware that the freight 
train on which they are working is transporting or will encounter 
trains that are transporting materials that could pose an inhalation 
hazard if released. It asserts that train manifests must be 100-percent 
accurate to ensure that the train crew understands the need to have 
EEBAs on the train. As a result, Labor argues that the absence of 
clerical employees to verify the accuracy of train manifests could 
endanger the safety of operating employees as well as surrounding 
communities where PIH materials are transported. Further, Labor 
suggests that operating crews and shop employees who prepare locomotive 
consists for service should receive regular job briefings on the 
requirements for EEBAs in locomotive cabs.
    With respect to Labor's concerns, FRA notes that, while placard and 
manifest accuracy are not included in the RSIA mandate, PHMSA already 
has regulations governing the accuracy of shipping papers, including 
manifests, markings, labels, and placards, see 49 CFR part 172, 
subparts C, D, E, and F, and the accuracy of train consists, see 49 CFR 
174.26. On the issue of required job safety briefings, FRA has proposed 
training standards in Sec.  227.209, Railroad's program of instruction 
on EEBAs, which contains requirements for teaching the safe provision 
and use of EEBAs. Proposed Sec.  227.209 requires that covered 
employees be instructed on the types of products that are PIH 
materials. This instruction would be in addition to the initial and 
recurrent hazardous materials training required of railroad crewmembers 
and other hazardous materials employees in 49 CFR part 172 subpart H. 
Given these training requirements along with other regulations that 
could cover the risk associated with the transportation of PIH material 
such as railroad safety risk reduction programs in 49 CFR parts 270 and 
271, this proposed rule does not require regular safety briefings.

D. Section-Specific Public Comments, With FRA's Response

    FRA did not receive any comments on the proposed changes to the 
sections in part 227, subparts A and B; did not receive comments on 
proposed Sec. Sec.  227.213 and 227.215 in subpart C; and did not 
receive any comments regarding the amendment to part 227, appendix G.
1. Comments on Proposed Sec.  227.201(a)(1), With FRA's Response
    FRA received a number of comments on proposed Sec.  227.201(a)(1). 
While FRA continues to propose most of this provision without change, 
as discussed in detail below, FRA has modified the paragraph in this 
SNPRM by removing simple ``asphyxiants'' from the text of the 
regulation that identifies the items being transported that would 
trigger the requirement for providing EEBAs to covered employees. As 
modified, Sec.  227.201(a)(1) would require the provision of EEBAs to 
each train employee, direct supervisor of a train employee, deadheading 
employee, and any other employee designated by the railroad when any of 
the employees is required to work in or occupy the locomotive cab of a 
covered train that is transporting a PIH material, which would include 
PIH material asphyxiants.
    NIOSH suggests that FRA could require railroads to place EEBAs 
strategically at various locations in rail yards (e.g., maintenance 
shop, office, staging areas). This would expand protection to employees 
who are conducting local area/yard work with trains carrying hazardous 
materials. NIOSH states that placing EEBAs in the rail yard would allow 
workers to avoid approaching a locomotive that may be involved in an 
incident to obtain an EEBA.
    The RSIA established a limited statutory mandate to promulgate 
regulations that require railroads to provide EEBAs ``for all 
crewmembers in locomotive cabs on freight trains carrying hazardous 
materials that would pose an inhalation hazard in the event of 
release.'' If Congress had wanted the Secretary to promulgate expansive 
regulations covering areas outside the locomotive cab, then it would 
have chosen different language that could be read to cover areas other 
than locomotive cabs, including rail yards. Since Congress did not do 
so, FRA does not propose to include requiring the provision of EEBAs at 
strategically placed locations in rail yards. However, the rule in no 
way prohibits railroads from voluntarily locating EEBAs in the rail 
yards to allow employees to protect themselves in the event of a 
release within a rail yard.
    Draeger suggests that Sec. Sec.  227.1 and 227.201(a)(1) should be 
changed to cover any employee located in an occupied space of an in-
service freight train. Draeger also raises the alternative of requiring 
that covered employees be provided with belts with EEBAs attached to 
them so that an EEBA will be available at all times. As noted in the 
preceding paragraph regarding NIOSH's suggestion of placing EEBAs 
strategically throughout rail yards, FRA believes the current proposed 
language in this section appropriately complies with the mandate 
established by the

[[Page 17312]]

RSIA. Additionally, given that locomotive cabs are the only ``occupied 
space(s)'' on freight trains, FRA views this suggested change as 
redundant.
    Labor suggests amending proposed Sec.  227.201(a)(1) to require 
every train employee who is required to operate a freight train, 
including local freight and transfer service, that may pass, follow, or 
operate on tracks adjacent to other trains that are carrying hazardous 
materials or residue in their manifest, must be provided with quick 
access to an emergency escape breathing apparatus. FRA declines to 
adopt this proposal for two reasons. First, as noted above, the RSIA is 
clear where EEBAs are required (i.e., ``in locomotive cabs on freight 
trains carrying hazardous materials that would pose an inhalation 
hazard in the event of release.''). The RSIA does not establish a broad 
mandate for the provision of EEBAs to every train employee who is 
required to operate a freight train that may pass, follow, or operate 
on tracks adjacent to other trains that are carrying hazardous 
materials or residue in their manifest. Second, the language proposed 
by Labor could be read in a manner that would actually reduce the 
protection afforded to other employees who also may be present in the 
locomotive cab during an emergency situation. Under Labor's proposal, 
only employees who are ``operating'' the train would be covered instead 
of all occupants of the cab. This proposal appears to exclude certain 
railroad employees located in the locomotive cab as well as employees 
deadheading in a following unit since neither would be ``operating'' 
the train.
    Labor also recommends amending proposed Sec.  227.201(a)(1) to make 
clear that an RCO crewmember, who is riding in the locomotive cab of a 
freight train moving asphyxiants (presumably, this comment would apply 
to PIH materials as well), must be provided an EEBA. FRA addressed this 
issue in the preamble to the 2010 NPRM and does not see a need to amend 
the proposal in this SNPRM. FRA considered exempting RCOs who are not 
in the cab of a locomotive during the movement of an in-service freight 
train transporting a PIH material. FRA ultimately decided that a 
separate exclusion was unnecessary for RCOs conducting movements from 
the ground because an RCO is primarily on the ground when performing 
switching operations, which are not considered freight train movements 
under this part. As a result, railroads would not be required to 
provide EEBAs in the locomotive cab in such a circumstance. However, at 
the point that switching operations have ceased, and the crew is ready 
to leave the yard with an in-service freight train that is transporting 
a PIH material, FRA would expect the RCO to occupy the cab and ride in 
the locomotive from point A to point B. In the event that the RCO 
enters the locomotive cab for this type of movement, the rationale for 
excluding RCOs no longer exists, and is the railroad must provide the 
RCO with an EEBA.
    AAR asserts in its comments that the proposed regulations requiring 
the provision of EEBAs in locomotive cabs should not apply to those 
asphyxiants that are not PIH materials. According to AAR, FRA's 2010 
NPRM interpreted the RSIA in an overly broad manner when it proposed to 
apply the EEBA requirement to asphyxiants, rather than just PIH 
materials. AAR notes that there are a number of substances that would 
cause asphyxiation if a person were inhaling that substance and no 
oxygen, but Congress did not indicate its intent to require EEBAs for 
all such substances. AAR argues that FRA must consider this regulation 
in light of the Macdona and Graniteville accidents, which spurred 
Congressional action. Macdona and Graniteville both involved chlorine, 
a PIH material. Moreover, AAR notes that ``there is no record of any 
rail-related fatality attributable to the inhalation of non-PIH 
substances.'' Given these factors, AAR asserts that Congress did not 
intend to cover asphyxiants.
    Additionally, relying on FRA's finding that the costs of the 
rulemaking exceed the benefits, AAR argues that FRA unjustifiably 
increases the burden imposed on industry by including asphyxiants in 
the proposed regulation that are not classified as PIH materials. AAR 
asserts that there are approximately 100,000 shipments of PIH materials 
per year, while there are approximately 200,000 shipments of 
asphyxiants that are not classified as PIH materials. Thus, according 
to AAR non-PIH material asphyxiants should be excluded from the 
regulation because they substantially add to the costs of this 
regulation without providing a benefit that exceeds such costs. As a 
result, AAR contends that FRA does not have an economic justification 
for exercising its discretion in manner that would include asphyxiants 
in the regulation.
    Congress, in establishing the regulatory mandate in the RSIA, 
stated that EEBAs must be provided ``for all crewmembers in locomotive 
cabs on freight trains carrying hazardous materials that would pose an 
inhalation hazard in the event of release.'' (Emphasis added). However, 
Congress did not define the term ``hazardous materials that would pose 
an inhalation hazard'' or provide examples that would elucidate its 
intended meaning. Accordingly, FRA must define the meaning of that term 
based on FRA's experience in regulating hazardous materials transported 
by rail and any other relevant information available to the agency.
    There is no dispute that ``hazardous materials that would pose an 
inhalation hazard'' includes those products that fit within the PHMSA's 
definition of ``materials poisonous by inhalation,'' otherwise known as 
PIH materials. AAR appears to recognize that such materials were 
intended to be covered when Congress passed the RSIA. There has been 
substantial discussion about whether the term used by Congress includes 
simple asphyxiants. Because Congress did not use a commonly used and 
easily understood term with a specific definition, such as PIH 
materials, there seemed to be support for including asphyxiants as a 
category of products for which an EEBA must be provided to a crewmember 
occupying a locomotive on an in-service freight train. Thus, in the 
2010 NPRM, FRA included asphyxiants as a category of products 
encapsulated within the term ``hazardous materials that would pose an 
inhalation hazard.'' The inclusion of asphyxiants was based on the 
concern that simple asphyxiants, such as CO2 and LPG, could 
displace oxygen in a manner that would result in IDLH environments.
    After reviewing this issue again and analyzing the comments 
received, however, FRA finds that the term ``hazardous materials that 
would pose an inhalation hazard'' is best understood as not including 
simple asphyxiants and has removed the term ``asphyxiants'' from the 
requirements of this proposed rule.
    As noted by AAR, neither the Graniteville nor Macdona accidents, 
which appeared to spur Congress to action, involved a simple 
asphyxiant. Further, while there are some simple asphyxiants, such as 
LPG and CO2, that are shipped in significant quantities, FRA 
finds that simple asphyxiants do not pose a substantial risk requiring 
the provision of an EEBA for a covered employee occupying the 
locomotive cab to escape. A review of LPG releases shows that 
asphyxiation has not been a substantial risk. Moreover, in the known 
cases of derailments involving LPG, the resultant fire generally 
consumes the gas thus minimizing the risk of asphyxiation from the gas 
itself. Therefore, while there have been railroad employee fatalities 
associated with catastrophic LPG releases, those

[[Page 17313]]

fatalities resulted from the LPG igniting rather than causing 
asphyxiation. FRA is unaware of any fatalities of railroad employees 
caused by asphyxiation in the event of an LPG release. CO2 
similarly presents limited risk related to asphyxiation in the context 
of a rail accident. As with LPG releases, FRA is not aware of a single 
asphyxiation-related railroad employee fatality that was caused by a 
catastrophic release of CO2.
    Additionally, FRA is mindful of the potential added costs that may 
fall to railroads that transport asphyxiants. Including asphyxiants 
within the requirements of this regulation would approximately triple 
the number of shipments where crewmembers must be provided with EEBAs 
without a resulting safety benefit. Regardless of how railroads intend 
to comply with the regulation's requirements, the inclusion of 
asphyxiants would require railroads to manage EEBAs on over triple the 
number of shipments when compared to requiring the provision of EEBAs 
for shipments of PIH materials alone.
    Given all of these factors, FRA concluded it was unlikely that 
Congress intended ``hazardous materials that would pose an inhalation 
hazard'' to include non-PIH material asphyxiants, as such asphyxiants 
have not been shown to present sufficient risk of inhalation injuries 
or death to require the provision of EEBAs in the railroad environment. 
Accordingly, this proposed rule has been modified to reflect this 
determination; however, FRA is seeking additional comments on whether, 
and for what reasons, asphyxiants should be included. FRA will review 
any comments, will continue to monitor incidents involving these 
materials, and reserves the right to revisit this decision and to 
include them in a final rule.
2. Comments on Proposed Sec.  227.201(a)(2), With FRA's Response
    Based on comments from Labor on proposed Sec.  227.201(a)(2), FRA 
has slightly modified this proposed provision to clarify that any 
employee covered by the proposed rule must be provided an EEBA in the 
locomotive cab that they are occupying. Additionally, as discussed 
above, FRA has removed any reference to asphyxiants. Further, the 
provision, as modified in this proposed rule, prohibits railroads from 
using locomotives in freight trains transporting a PIH material unless 
all the train employees, supervisors of train employees in the 
locomotive cab, deadheading employees, and any other employees, 
identified by the railroad in writing, have access to EEBAs.
    While Labor agrees with FRA's decision to include deadheading 
employees in this provision, they note that deadheading employees are 
likely to be riding in the trailing units of a train's consist in order 
to minimize the risk that their presence will be a distraction to the 
operating crew. As a result, Labor urges FRA to amend proposed Sec.  
227.201(a)(2) to clarify that an employee in ``any'' locomotive cab of 
the train must have access to an EEBA. Additionally, Labor suggests 
deleting ``in an in-service freight train'' from Sec.  227.201(a)(2) 
and replacing it with ``on a freight train.''
    In response to this comment, FRA has modified proposed Sec.  
227.201(a)(2) to remove ``while in the cab of the locomotive of the 
train'' and replace it with, ``while occupying a locomotive cab of the 
train.'' FRA finds that this language better reflects FRA's intent, 
i.e., that each train employee, supervisor of a train employee, 
deadheading employee, and any other persons designated by the railroad, 
on an in-service freight train transporting a PIH material must be 
provided an EEBA in the locomotive cab that they are occupying. FRA is 
not, however, amending proposed Sec.  227.201(a)(2) to remove ``in an 
in-service freight train.'' While Labor does not explain the rationale 
for this suggested change, FRA believes that such a change could 
potentially be interpreted to require EEBAs on freight trains at all 
times, even if not in service. This would expand the regulation beyond 
the statutory mandate, which only requires EEBAs be provided when a 
freight train is transporting a hazardous material that would pose an 
inhalation hazard in the event of a release, without significantly 
adding to safety.
3. Comments on Proposed Sec.  227.201(b), With FRA's Response
    FRA received comments on proposed Sec.  227.201(b) from Labor and 
AAR. As discussed above, FRA has removed any reference to asphyxiants.
    Labor contends that there is no reasonable basis for the exception. 
In its view, section 413 of the RSIA indicates that Congress did not 
intend for such an exception. It argues that the law requires the 
Secretary to establish regulations requiring railroads to provide EEBAs 
to train crewmembers in the locomotive whenever sufficient quantities 
of the hazardous materials are being transported, and states that 
``regardless of what type of rail car is being used, if a release poses 
an inhalation hazard, then EEBAs are required by the clear language of 
the statute.''
    The RSIA establishes a requirement ``to provide emergency escape 
breathing apparatus suitable to provide head and neck coverage with 
respiratory protection for all crew members in locomotive cabs on 
freight trains carrying hazardous materials that would pose an 
inhalation hazard in the event of release . . .'' (Emphasis added). The 
italicized words were omitted from Labor's comment, but they are 
significant in the context of the subject being discussed. FRA 
considered whether to require the provision of EEBAs to railroad 
employees on trains that transport intermodal shipments of PIH 
materials prior to publishing the NPRM. However, FRA excluded 
intermodal shipments from the requirements in this section for two 
primary reasons. First, railroads generally do not accept PIH materials 
in intermodal shipments. Second, the inhalation risk related to small 
quantities of covered substances in the event of a release from an 
intermodal shipment is relatively low based on the quantities and 
packaging of materials carried by such trains. Given these factors, 
there is not a substantial risk that the release of all or most of an 
intermodal shipment of a PIH material would present a risk 
necessitating an EEBA. Therefore, FRA has decided not to change the 
proposed language concerning intermodal shipments in Sec.  
227.201(b)(1).
    One issue that was not raised in Sec.  227.201(b) of the 2010 NPRM 
was whether there would be a limited exception for foreign operations. 
AAR notes that a provision of FRA's alcohol and drug regulation, 49 CFR 
219.3(c), exempts limited foreign operations from some of the 
requirements of that regulation. The exemption in Sec.  219.3(c) 
applies to foreign railroad operations extending up to 10 miles in the 
United States. AAR suggests that FRA should include the same type of 
exemption in proposed part 227, subpart C. FRA does not find such an 
exemption reasonable but welcomes additional comments on whether it 
should be included.
4. Comments on Proposed Sec.  227.203(b), With FRA's Response
    FRA received numerous comments on proposed Sec.  227.203(b), which 
would have required a railroad to select a respirator type that is 
certified for escape-only purposes by NIOSH pursuant to 49 CFR part 84 
or ISO pursuant to ISO 23269-1:2008. Most of the comments pertained to 
FRA's inclusion of devices that could be built using a standard other 
than the one established by NIOSH, specifically, whether it is 
appropriate to allow

[[Page 17314]]

reliance on the ISO standard. As a result of these comments, FRA has 
edited the paragraph in the proposed rule to correct the misstatement 
that ISO respirators are certified. However, FRA continues to propose 
that railroads be allowed to select EEBAs that comply with ISO 
standards as long as the devices have a minimum breathing capacity of 
15 minutes. In addition, FRA has added two additional international 
standards, BS EN 13794:2002 E, ``Respiratory Protective Devices--Self-
Contained, Closed-Circuit Breathing Apparatus for Escape--Requirements, 
Testing, Marking (November 2002),'' and BS EN 1146:2005: E, 
``Respiratory Protective Devices--Self-Contained, Open-Circuit 
Compressed Air Breathing Apparatus Incorporating a Hood for Escape--
Requirements, Testing, Marking (September 2005).'' Further explanation 
of FRA's decision is provided in the following discussion.
    NIOSH suggests that FRA should modify proposed Sec.  227.203(b) to 
prohibit ISO-compliant respirators in lieu of NIOSH certification 
because it ``may lead to confusion in the regulated community.'' FRA 
understands that NIOSH is the only entity in the United States that 
certifies respirators. However, FRA finds that permitting respirators 
compliant with other standards, such as ISO and BS EN, will permit 
railroads to select from a broader range of devices using different 
technologies that afford an equivalent level of protection as the 
NIOSH-certified respirators. Accordingly, FRA proposes to allow for 
reliance on the ISO or BS EN standards.
    Scott Health and Safety Comments (Scott) and the ISEA raise 
concerns about FRA's use of the term ``certified'' in proposed Sec.  
227.203(b) as it relates to ISO standards. As proposed in the 2010 
NPRM, the paragraph stated that the railroad must ensure that the type 
of respirator selected has been certified by NIOSH pursuant to 42 CFR 
part 84 or by the ISO pursuant to ISO 23269-1:2008. Scott requests 
clarification on the following discrepancies between the proposed 
alternate certification paths (NIOSH vs. ISO) and the alternate 
standards (42 CFR part 84 vs. ISO 23269-1:2008). It notes that ``while 
NIOSH provides a clear and effective certification program, it is not 
clear how respirators would be certified according to ISO standards and 
who would provide oversight to ensure these standards were 
maintained.'' Similarly, the ISEA states that ISO develops standards, 
but does not issue certifications. As a result, any claim that a 
respirator complies with an ISO standard must rely on testing, and any 
attestation of conformity to the ISO standard must be issued by the 
manufacturer of the device or a third-party certification organization. 
Therefore, ISEA asserts that, if FRA plans on accepting the provision 
of respirators manufactured to the voluntary ISO standard, then it must 
clearly state whether independent certification is required or whether 
it will accept the manufacturer's declaration of conformity to the 
standard.
    Scott and ISEA raise valid points on the use of the term 
``certification.'' FRA understands that ISO does not certify devices as 
NIOSH does. Instead, it establishes standards that the manufacturer of 
the device must meet to declare its device compliant with the ISO 
standard. Therefore, clarification is needed to avoid confusion in the 
marketplace and to ensure that the devices provided by the railroads 
pursuant to this regulation comply with its terms. FRA has modified the 
proposed language in Sec.  227.203(b) to state that the type of 
respirator selected by a railroad must be certified for an escape-only 
purpose by NIOSH, pursuant to 49 CFR part 84, or must be declared by 
the manufacturer, based on verifiable testing by the manufacturer or an 
independent third party, to meet the equivalent standard ISO 23269-
1:2008 and have a minimum breathing capacity of at least 15 minutes, as 
specified in proposed Sec.  227.203(d)(1).
    Additionally, Scott and ISEA raise the question that if both NIOSH 
and ISO certification options are acceptable, then how will FRA's 
regulation and AAR's specification reconcile specific differences 
between the standards? As an example, Scott cites to 42 CFR part 84, 
which specifies a maximum CO2 inhalation of 0.5 percent, or 
1.5 percent for escape mouth bit devices, and compares it to ISO 23269-
1:2008, which allows for CO2 levels of 3 percent. ISEA 
believes that FRA must clarify the difference in the NIOSH and ISO 
requirements and any required variance from either standard.
    FRA does not find it necessary to clarify the differences between 
the NIOSH and ISO requirements. The NIOSH and ISO requirements are 
explicitly laid out in their respective standards. See 42 CFR part 84 
and ISO 23269-1:2008. FRA's concern in establishing this requirement is 
not to compare and contrast the respective standards, but to ensure 
that the respirators chosen by a railroad comply with this regulation 
by meeting an established minimum standard that will facilitate the 
escape of train employees and other occupants of a locomotive cab from 
a hazardous material posing an inhalation hazard should the need arise. 
FRA would not view piecemeal compliance with portions of the NIOSH 
standard, portions of the ISO standard, or portions of the EN standards 
as meeting the proposed regulatory requirements laid out in part 227, 
subpart C. However, if the type of device selected by the railroad 
meets the entire regimen of criteria for either the NIOSH, the ISO, or 
the applicable EN standard, and complies with the minimum breathing 
time requirements specified in proposed Sec.  227.203(d)(1), then FRA 
would consider the device acceptable under the regulation.
    Lastly, Scott requests clarification on whether railroads are 
exempt from the OSHA requirement found in 29 CFR 1910.134(d)(1)(ii), 
which requires employers to select a NIOSH-certified respirator. The 
Occupational Safety and Health Act authorizes the Secretary of Labor to 
promulgate standards to provide safe and healthful employment and 
places of employment. 29 U.S.C. 652(8), 653(b)(1), 655. However, once 
FRA exercises its statutory authority to prescribe standards or 
regulations covering a specific hazard or practice affecting the 
occupational health of railroad employees, as it proposes to do here, 
FRA's regulation of the specific area ousts any OSHA requirements 
covering the same area. See 29 U.S.C. 653(b)(1). An example would be 
FRA's regulations in part 227, subpart B, addressing occupational noise 
exposure for railroad operating employees, which covers noise exposure 
and hearing conservation for railroad operating employees whose primary 
exposure to occupational noise is in the cab of a locomotive. All other 
railroad employees who are exposed to occupational noise are covered by 
OSHA. The same holds true with respect to the provision of EEBAs by 
railroads. Those EEBAs that are provided pursuant to this proposed 
regulation would have to comply with the requirements established in 
part 227, subpart C. However, OSHA's regulations on respirators may be 
applicable to other areas where railroads provide respirators to their 
employees.
5. Comments on Proposed Sec.  227.203(c), With FRA's Response
    FRA received comments on proposed Sec.  227.203(c) from AAR and 
Draeger and has deleted that paragraph for the reasons explained below.
    In the 2010 NPRM, proposed Sec.  227.203(c) established a 
requirement that a railroad must document the adequacy of the EEBA. 
However, AAR notes that proposed Sec.  227.203(b) would

[[Page 17315]]

require railroads to use an EEBA certified by NIOSH or the ISO, both of 
which establish standards for measuring resistance to IDLH atmospheres. 
Therefore, AAR argues that if the EEBA meets either the NIOSH or ISO 
standard, no further showing of the adequacy of the EEBA should be 
necessary. As a result, it suggests that proposed Sec.  227.203(c) be 
deleted. FRA agrees and has deleted proposed Sec.  227.203(c) since the 
essential information that FRA seeks to require is captured by 
complying with either the NIOSH, ISO, or EN standard under Sec.  
227.203(b). In light of the deletion, FRA has re-designated Sec.  
227.203(d) as Sec.  227.203(c) in this proposed rule.
    While the Sec.  227.203(c) proposed in the 2010 NPRM is being 
removed, FRA did receive additional comment from Draeger on this 
paragraph which requires discussion. Draeger contends that, except for 
the requirements in Sec.  227.203(d), the proposed regulation does not 
establish any specific requirements concerning the EEBA's performance. 
Therefore, Draeger states that the proposal fails to provide the 
necessary regulatory text that will ensure the EEBA type chosen by a 
railroad will meet the intended application. FRA considers the proposed 
provisions of Sec.  227.203(b) along with the specific items identified 
in proposed Sec.  227.203(d) to describe adequately the necessary 
performance characteristics of the EEBAs.
    Draeger also raises a number of issues about AAR specification M-
1005 in its comments on Sec.  227.203(c). It is concerned that a number 
of the factors laid out in the specification are typically not 
evaluated by NIOSH or ISO for industrial respirators that are air-
supplied escape breathing apparatus. These include the specification 
requiring protection against 10,000 ppm of anhydrous ammonia, chlorine, 
and other toxic inhalation hazards. Draeger suggests identifying other 
toxic inhalation hazards to better allow manufacturers to evaluate 
their respirators. Additionally, Draeger suggests that there should be 
specific information concerning the type of impact and vibration 
resistances that would be expected in a ``typical locomotive cab in 
order to test whether a device has the necessary performance factors 
and structural integrity. Draeger also states in relation to AAR's 
draft specification that, while vibration testing is a performance 
requirement for NIOSH certification of closed-circuit escape breathing 
respirators under 42 CFR part 84, vibration tests are not typically 
performed on open-circuit breathing apparatus. Finally, Draeger notes 
that testing on some of the specifications identified cannot be 
performed by NIOSH or ISO. Therefore, a third-party laboratory would 
need to perform the testing. Draeger questions whether FRA will accept 
such information if it is presented by the stakeholder for inspection. 
Draeger suggests that more information is needed to provide appropriate 
respirators to the railroad market and requests additional information 
be included that details more of the performance requirements than in 
the current specification.
    The draft AAR specification is not part of the performance 
requirements established by FRA. Equipment vendors would need to 
address questions about those issues to the carriers represented by 
AAR. However, FRA does note that the ``other toxic inhalation hazards'' 
that Draeger asks to have identified, can be found in Sec.  227.5, 
where FRA defines ``PIH material.'' With respect to third-party 
testing, and additional information detailing performance requirements, 
FRA believes the standard, as now proposed, provides appropriate 
performance criteria as long as covered railroad employees are provided 
at least 15 minutes breathing capacity. Were FRA to propose additional 
performance criteria, it would be substituting its judgment for that of 
NIOSH, ISO, or EN subject matter expert entities that have developed 
the current standards, which FRA declines to do.
6. Comments on Proposed Sec.  227.203(d)(1), With FRA's Response
    FRA received numerous comments on proposed Sec.  227.203(d)(1). 
While FRA has continued to propose this provision without substantive 
changes, Sec.  227.203(d)(1), as proposed in the 2010 NPRM, has been 
re-designated in this proposed rule as Sec.  227.203(c)(1) because of 
the deletion of Sec.  227.203(c), discussed above.
    Section 227.203(d)(1) in the 2010 NPRM proposed a requirement that 
the EEBA be fully charged and contain a minimum of 15 minutes of 
breathing capacity at the time of the pre-trip inspection that is 
required by Sec.  227.207(a)(1). NIOSH suggests changing the language 
to require that EEBAs ``be maintained and the operational readiness 
verified at the frequency recommended by the manufacturer, using the 
operational verification procedures, to ensure they contain a minimum 
breathing capacity of 15 minutes at the time of the pre-trip inspection 
required under Sec. 227.207(a)(1).'' Because NIOSH does not provide an 
explanation for the proposed change to the paragraph, FRA is not sure 
of NIOSH's rationale for objecting to the language in proposed Sec.  
227.203(d)(1). The proposed paragraph covers the capabilities of the 
device selected, not the pre-trip inspection procedures. Therefore, FRA 
does not view the change suggested by NIOSH as relating to the subject 
matter of the proposed Sec.  227.203(d)(1) and does not see a reason to 
amend this paragraph in the manner suggested by NIOSH.
    Draeger asks, with respect to proposed Sec.  227.203(d)(1), 
``[w]hat is the minimum escape time for a hazardous substance where the 
atmosphere has not been assessed for substance concentration and 
dissipation over distance?'' Given these circumstances, it states that 
an EEBA with a minimum capacity of 15 minutes may not leave time for a 
crewmember to assist others and to escape to a safe distance away 
because the circumstances surrounding a catastrophic release would 
require a higher rate of activity than is normal. Additionally, if an 
employee has suffered an injury or otherwise become disabled, they 
would not be able to move fast or, if needed, to move the freight train 
away from a densely populated location, if that were even possible. 
Therefore, ``Draeger believes that a device which is capable of 
providing 30 minutes or more would be the better choice for this 
application.'' Draeger acknowledges that providing greater breathing 
capacity in a device will present logistical issues for storage of 
devices but believes that closed-circuit devices would be a suitable 
option because they are considerably smaller than comparable open-
circuit devices.
    It is unclear what Draeger means when it asks about atmospheres 
that ``have not been assessed for substance concentration and 
dissipation over distance.'' Each emergency situation is different and 
will present its own set of difficulties. Therefore, FRA is not sure 
how Draeger can reach the conclusion that a 15-minute minimum breathing 
capacity device is inadequate without conducting an analysis of the 
circumstances surrounding the few incidents of catastrophic breaches to 
railroad tank cars that resulted in the release of a hazardous material 
posing an inhalation hazard. Circumstances, such as local geography and 
weather at the time of the release event, can lead to widely differing 
circumstances of concentration and distance following an accident. 
After analyzing the information available to it, which included the 
input of AAR and Labor, FRA proposed requiring a device that has a 
minimum breathing capacity of 15

[[Page 17316]]

minutes. FRA's proposal is based, in part, on the belief that a 10-
minute capacity device would be too limiting, while larger capacity 
devices would challenge the ability of the railroads to meet the 
storage requirements of the mandate, given the limited space in the 
locomotive cab. FRA expects that a 15-minute device will allow railroad 
employees to address the circumstances alluded to in Draeger's comment. 
However, it is important to keep in mind that while the 15-minute 
breathing capacity is a minimum requirement, there is no regulatory 
restriction that would prohibit railroads from providing a device that 
has a greater breathing capacity than what is mandated in originally 
proposed Sec.  227.203(d)(1).
    Labor supports FRA's proposal to require EEBAs to have a minimum of 
15 minutes of useful life in the worst-case scenario. However, Labor is 
concerned that ``any reduction in the length of time the EEBA is 
effective increases the likelihood of casualty or fatality resulting 
from the release and inhalation of an asphyxiant or PIH material.'' 
Labor notes that that train employees involved in a release of PIH 
materials may do two things that could negatively impact the usable 
length of time for EEBA. Specifically, Labor identifies ``over-
breathing'' and the time it takes an employee to don the apparatus as 
problems that would be expected to reduce the length of effective 
breathing time of the apparatus, particularly when dealing with a 
stressful situation such as a catastrophic release of a PIH material. 
As a result, Labor urges FRA to amend the proposed rule to clarify that 
each EEBA provided ``must have at least a 15-minute approval rating, 
meaning that the device must function for at least 15 minutes during 3-
mph treadmill tests and 30 minutes for stationary tests.'' See 75 FR 
61392.
    FRA notes that the language cited in Labor's comments was taken 
from AAR's draft specification, M-1005, upon which FRA specifically 
requested comments. Based on FRA's review of information that was 
collected from the investigation of the Macdona and Graniteville 
collisions, the agency found that a minimum breathing capacity of 15 
minutes should be an adequate amount of time for a wearer of an 
atmosphere-supplying respirator to escape an IDLH atmosphere. 
Experience has shown that a plume of hazardous material can travel 
quickly and that the train crew must have adequate breathing time to 
allow each crew member to move a significant distance from the plume 
while being protected from breathing the potentially hazardous 
atmosphere. According to the AAR, investigations and studies by the 
railroads found that ``the area of destruction following a release is 
such that 15 minutes is a more than adequate time period to escape the 
area. Requiring a device with a greater capacity would result in one 
that is larger and heavier than called for in this specification.'' FRA 
has decided not to modify the language of proposed Sec.  227.203(d)(2). 
The change suggested by Labor would put FRA in the position of needing 
to establish a testing and certification regime to ensure that the 
devices in use meet the specific language in the rule. FRA does not 
intend to do this, as the agency does not have the expertise to 
establish ratings for the devices.
7. Comments on Proposed Sec.  227.203(d)(2), With FRA's Response
    FRA also received a number of comments on proposed Sec.  
227.203(d)(2), which would have required railroads to select an EEBA 
that provides a means of protecting an individual's face and neck to 
facilitate escape. In response to the comments, FRA has amended the 
proposed paragraph to state that the EEBA should protect the head and 
neck from the irritating effects of PIH materials. FRA also has removed 
any reference to asphyxiants for the reasons discussed earlier. 
Finally, originally proposed Sec.  227.203(d)(2) has been re-designated 
as Sec.  227.203(c)(2) for the reasons discussed above.
    NIOSH suggests specifying that the EEBA selected must provide a 
means of protecting the individual's head and neck ``from the 
irritating effects of asphyxiants or PIH materials to facilitate 
escape.'' In this proposed rule, FRA has amended the originally 
proposed Sec.  227.203(d)(2) to incorporate the language suggested by 
NIOSH (excepting that asphyxiants has been deleted). FRA finds this 
language better reflects the purpose of the head and neck protection.
    Draeger and ISEA both raise questions about originally proposed 
Sec.  227.203(d)(2). Specifically, ISEA questions why face and neck 
protection is a requirement in proposed Sec.  227.203(d)(2). It 
suggests that if face and neck protection is an important 
characteristic for providing additional protection to the wearer beyond 
protection to the lungs and respiratory system, then the regulation 
should define as clearly as possible the extent of neck and face 
coverage that is required as well as how FRA intends to assess whether 
sufficient coverage has been provided. Similarly, Draeger asks for 
greater specification regarding what is meant by head and neck 
protection.
    FRA has replaced ``face'' with ``head'' in this proposed rule to 
match the specific language of section 413 of the RSIA. While Congress 
did not provide any guidance on the extent of coverage necessary to 
comply with the statutory mandate, FRA interprets this language to 
require a device that protects the employee's nose and throat from 
inhalation and protects the employee's eyes from irritation during an 
escape from a hazardous atmosphere. This protection can be afforded by 
a respirator with a face piece or a device with a hood as long as the 
protection is effective.
    Labor contends that originally proposed Sec.  227.203(d)(2) should 
also require railroads to provide the type of device that is easiest to 
don. Labor urges FRA to require the use of hooded-type devices rather 
than full-face masks. Labor relies on FRA's acknowledgement in the 
preamble to the 2010 NPRM, that hoods are more versatile because they 
are universally fitting, compensate adequately for eyewear, and allow 
for facial hair and differing facial features. Additionally, Labor 
notes that hoods are easier to wear and faster for employees to don, 
which would allow those employees to assist others who are disoriented 
or injured.
    While FRA recognizes that hoods allow for universality in use and 
understands that some railroads intend to make use of hooded devices, 
FRA does not find that requiring hoods in all circumstances is 
warranted. As a result, it has chosen not to propose mandating hooded 
devices.
8. Comments on Proposed Sec.  227.205, With FRA's Response
    FRA received comments on proposed Sec.  227.205. FRA modified the 
provision in this SNPRM to delete the word ``asphyxiant,'' but has 
otherwise not changed the proposed section.
    Proposed Sec.  227.205 seeks to establish the minimum requirements 
for storing EEBAs. The essential requirements are that the storage 
facility must: (1) where applicable, prevent deformation of the face 
piece and exhalation valve; (2) protect the device from incidental 
damage, contamination, dust, sunlight, extreme temperatures, excessive 
moisture, and damaging chemicals; (3) provide ready access for each 
subject employee in the cab; and (4) provide a means to locate the EEBA 
under adverse conditions, including darkness or disorientation. The 
section, as proposed, does not establish requirements for distributing 
EEBA to covered employees.
    Labor suggests that proposed Sec.  227.205 should include a 
requirement

[[Page 17317]]

that EEBAs be permanently kept in a storage facility that is mounted in 
each locomotive cab. Labor's rationale for requiring EEBAs to be 
permanently mounted in the locomotive cab rests on multiple factors. 
First, it contends that employees on freight trains traveling in the 
same corridor on adjacent tracks or following those freight trains that 
are transporting asphyxiants or PIH material should also be provided 
EEBAs because they are in danger of an inhalation hazard if the 
material is released. Labor believes that requiring EEBAs to be 
permanently mounted in locomotive cabs will result in maximum 
availability of EEBAs for those employees working on freight trains 
that are not directly transporting asphyxiants or PIH material. Second, 
Labor argues that ``employees already are required to carry many items 
to properly perform their duties and address the circumstances of their 
job.'' Adding an additional item, it contends, would be overly 
burdensome to train employees. Third, any option other than permanently 
mounting EEBAs in the locomotive cabs will result in the railroads 
passing off the responsibility for ensuring the functionality of EEBAs, 
which could result in harassment, intimidation, and disciplinary 
actions against employees who request a delay or postpone the departure 
of trains to replace or repair EEBAs. Lastly, Labor argues that if a 
railroad decides to require an employee to assume custody of an EEBA, 
then FRA will inevitably end up using its resources to investigate 
individual events and circumstances surrounding an employee's request 
to have an EEBA repaired or replaced.
    The current proposed language in Sec.  227.205 follows the 
requirements of the RSIA mandate while allowing railroads subject to 
this proposed rule to provide EEBAs in a way best suited to their 
operations. Given the attendant costs and benefits, FRA proposes to 
allow railroads to find the best way to provide EEBAs in a manner that 
fully meets the RSIA mandate and Congressional intent. Furthermore, as 
FRA cannot anticipate the changes in technology that might affect the 
types or sizes of EEBAs or changes in the technology and design of 
locomotives cabs that could impact the mounting and storage of EEBAs 
the proposed regulation will allow railroads to utilize the latest 
equipment.
9. Comments on Proposed Sec.  227.207, With FRA's Response
    FRA received numerous responses to proposed Sec.  227.207, which 
would have required railroads to establish a program for inspection, 
maintenance, and replacement of EEBAs and to establish certain 
inspection procedures. In response to comments from AAR, FRA has 
limited the document retention period for pre-trip inspections to 92 
days. FRA has also removed reference to asphyxiants in this section of 
the proposed rule for the reasons provided above.
    NIOSH comments that the 2010 NPRM fails to specify regular 
intervals in which EEBA inspections are to occur. It recommends 
incorporating the OSHA inspection requirement from 29 CFR 
1910.134(h)(3)(i)(B), which states, ``[a]ll respirators maintained for 
use in emergency situations shall be inspected at least monthly and in 
accordance with the manufacturer's recommendations and shall be checked 
for proper function before and after each use.''
    FRA proposes a requirement for regular inspections in Sec.  
227.207(a)(1), which includes a pre-trip inspection prior to using a 
locomotive in a train that is transporting a PIH material, and in Sec.  
227.207(a)(2), which includes periodic inspections based on the 
recommendations and instructions of the manufacturer. FRA's inspection 
requirements do not vary significantly from the OSHA requirements. 
Notwithstanding this, due to the operational nature of the railroads, 
FRA feels that its criteria are better suited to this industry than 
specifying an established periodic inspection as used by OSHA. Since 
the railroad would not be permitted to operate a locomotive in a train 
where operable devices are absent, the necessity of having an arbitrary 
inspection schedule is not needed.
    The company, 3M, comments that it supports the rulemaking, but that 
it has concerns about proposed Sec.  227.207(b). 3M believes that this 
proposed paragraph implies the necessity of using of RFID tags to 
identify specific equipment. The commenter encourages FRA ``to separate 
the RFID and inspection database requirements from the EEBA 
specification . . . because there is no RFID frequency specified for 
the tag, and there are multiple frequencies available that are not 
cross compatible.'' The company states that handheld RFID readers 
currently on the market operate on a specific frequency, which could 
present problems when locomotives are interchanged if a foreign 
railroad is required to perform periodic EEBA inspections. Absent 
identical RFID tags among interchanging railroads, the railroads may 
not be able to meet the proposed inspection requirements.
    It appears that 3M may have confused AAR's draft specification with 
FRA's proposed regulatory requirements. The draft specification 
prepared by AAR is not a part of this proposed regulation. Proposed 
Sec.  227.207(b) does not require the use of RFID tags. The proposed 
provision merely establishes a requirement of pre-trip and periodic 
inspections. It leaves the logistics of performing such inspections to 
the railroads. FRA understands, however, that AAR is considering using 
RFID tags to track inspections and its member railroads may want to 
consider 3M's comments in determining the most efficient way to satisfy 
the regulatory requirements of Sec.  227.207(b). Additionally, 3M's 
comments may factor into what procedures a railroad will use to ensure 
interchangeability, which is an essential element to a railroad's 
general EEBA program. See Sec.  227.211(b)(3).
    AIHA suggests that formal inspections of EEBAs under Sec.  227.207 
should be conducted at the same time as the locomotive quarterly 
inspection. It notes that the current plan is to use a RFID tag for 
identifying and tracking each EEBA, which would allow for each unit to 
be assigned a unique identifier that would also identify the owning 
railroad. The RFID tag would allow for easy scanning during the 
quarterly inspection to document what units are currently mounted in 
each locomotive and would verify that each EEBA is still in proper 
working order with the required oxygen or air level, the case intact, 
seals in place, and no tampering has occurred. AIHA states that 
railroads can ensure a seamless process for inspections by integrating 
EEBA inspections with locomotive inspections, which are well-
established within the railroad industry.
    It appears that AIHA, like 3M, has made the assumption that the 
discussion in the NPRM covering the AAR draft specification has been 
made part of the proposed rule in some manner. That is not FRA's 
intent. FRA published input from both the industry (AAR) and labor 
organizations, provided during the development of the NPRM, to invite 
feedback and gain a broader understanding of the issues raised by these 
stakeholders. AAR's input reflects the intentions of larger railroads 
but does not necessarily represent how smaller railroads would respond 
to this proposed rule, given their unique set of economic constraints.
    The language in proposed Sec.  227.207 merely requires that each 
railroad establish and comply with a written program for inspection, 
maintenance, and replacement of EEBAs, which includes pre-trip and 
periodic inspections of the EEBAs. FRA understands that it is AIHA's 
position

[[Page 17318]]

that this proposed schedule is unnecessary and over-burdensome. In 
their comments, they cite the chemical, paper, mining, and maritime 
industries, which require respirator inspection frequencies of 30-90 
days. The AIHA would like to see quarterly inspections of EEBAs.
    FRA is continuing to propose the requirement for pre-trip 
inspections, because the nature of railroading demands that the EEBA 
must be inspected pre-trip. It is a proposed requirement that an EEBA 
for each employee will be present in the locomotive cab prior to 
departure thus facilitating the pre-trip inspection. This is so 
regardless of the manner in which the EEBA is provided, whether it is 
issued to an individual, or mounted within the locomotive cab, or 
provided in some other way. The nature of this pre-trip inspection may 
be as simple as visually inspecting and verifying that the case has not 
been tampered with and that all gauges and other indicators are in an 
acceptable range.
    FRA envisions that the pre-trip inspection will be a quick check to 
ensure that the appropriate accompaniment of EEBAs is provided and that 
those devices are charged to provide a minimum 15-minute breathing 
capacity, as well as any of other necessary checks that the 
manufacturer recommends. While this type of check could potentially 
involve using an RFID tag, FRA is not proposing that each railroad 
``hav[e] each unit in a computer database . . . to track each unit and 
identify when units are due for factory testing.'' Such a requirement 
presumes a level of financial resources that are not necessarily 
available to some short line carriers who are covered by this rule.
    Labor urges FRA to modify proposed Sec.  227.207 to make it clear 
that EEBAs provided pursuant to this regulation must be fully charged 
with an approval rating of 15 minutes during a 3-mph treadmill test. 
Labor also proposes that FRA establish a ``quick check'' inspection 
process for railroad employees that would include observing an external 
gauge that can be easily viewed and understood by all employees. 
Specifically, Labor states that the EEBA should have a gauge with a 
needle to indicate the length of time the device will operate.
    FRA does not believe that a pre-trip or periodic inspection should 
involve re-verifying a specification since it is unclear how this 
specification could be verified outside of an established testing and 
certification regime. FRA is aware that different types of devices have 
different means of verifying readiness for use. Escape devices that 
rely on pressurized tanks of air generally have a pressure gauge such 
as that mentioned in Labor's comment. Other devices, such as 
combination chemical scrubber/oxygen supply devices, may only have a 
``go/no go'' window. While FRA stated above that it envisions a ``quick 
check'' pre-trip inspection process that verifies that appropriate 
number of EEBAs have been provided and that such EEBAs are charged to 
provide a minimum of 15 of minutes breathing capacity, FRA finds that, 
beyond these basic factors, the manufacturer is the best source of 
information on the manner in which a given device is verified as ready 
for service.
    AAR agrees with FRA's decision in proposed Sec.  227.207(a)(2) to 
require periodic inspections ``in a manner and on a schedule in 
accordance with the manufacturer's instructions''; however, it comments 
that the proposed pre-trip inspection of EEBAs required by this 
proposed section could be overly burdensome. As an alternative, AAR 
suggests that the appropriate inspection procedure should depend on how 
a railroad chooses to deploy EEBAs. While AAR agrees that a pre-trip 
inspection would be appropriate if a railroad were to issue EEBAs 
directly to its employees, either permanently or for a single trip, it 
believes a calendar day inspection, as part of the required 49 CFR 
229.21 inspection, is more appropriate if a railroad chooses to mount 
EEBAs permanently in locomotive cabs.
    The RSIA requires that EEBAs be provided to all crewmembers in the 
locomotive cab of a freight train transporting a hazardous material 
that would pose an inhalation hazard in the event of release. FRA 
considers pre-trip inspections the most effective method of ensuring 
compliance with the statutory mandate. FRA must anticipate many 
different operating scenarios and means of providing the EEBAs to 
crews. FRA can envision scenarios where at least two crews could be 
relying on locomotive-mounted EEBAs and, absent a pre-trip inspection, 
the second crew would have no means to verify that the devices present 
are ready for service. As an example, if EEBAs were inspected as part 
of calendar day inspection under part 229, the inspection could occur 
well after the crew (or crews) used a locomotive to transport a PIH 
material. This is because the calendar day inspection could be 
performed legally after the crew or crews have completed their duties, 
as long as the inspection was performed by midnight on the calendar day 
that the locomotive was used. As a result, calendar day inspections 
would not assure that the required EEBAs were in working order for the 
crew or crews using the locomotive at the time that the train is 
transporting a PIH material. Therefore, FRA does not think it is 
appropriate to change the proposed pre-trip inspection requirement.
    Additionally, AAR asks that FRA clarify whether a pre-trip 
inspection consists of a quick visual inspection to ensure that the 
EEBAs appear to be in working order. It notes that because EEBAs are 
sealed in air-tight containers, FRA cannot expect railroad employees to 
break the seal of the device to inspect it. FRA has discussed what it 
envisions as part of the pre-trip inspection in the preceding 
paragraphs; however, AAR's comment presumes that the type of device 
chosen by AAR will be used universally in the railroad industry. FRA 
has written the proposed regulation to require the device selected to 
have certain characteristics while allowing railroads to choose devices 
best suited to their operations. FRA expects that the type of device 
selected by each railroad will determine the nature of the inspection 
required, presumably based on the recommendations of the manufacturer 
of the device.
    AAR opposes the recordkeeping requirements in Sec.  227.207(b)(2). 
Its objection is not targeted at the requirement to keep records of 
inspections performed pursuant to manufacturer instructions, but to the 
requirement that records of pre-trip inspections be kept for one year. 
It asserts that keeping pre-trip inspection records for one year would 
not provide a safety benefit. AAR suggests that if FRA were to require 
daily inspections (as opposed to pre-trip inspections) in instances 
where EEBAs are permanently installed in the locomotive cab, then 
keeping records of those inspections as part of the daily inspection 
report required by 49 CFR 229.21 would not be overly burdensome given 
that daily inspection records are already maintained and kept for a 
period of 92 days. However, AAR contends that railroads should not be 
burdened with new recordkeeping requirements for pre-trip inspections, 
which would not, according to AAR, yield useful information.
    AAR's comment draws an analogy to the daily inspections required 
under 49 CFR 229.21, but FRA believes a more appropriate analogy is the 
pre-trip inspection of a train's braking system as required under 49 
CFR 229.46. While daily inspections may be more convenient, the nature 
of the device being inspected, along with the

[[Page 17319]]

intended use (i.e., emergency escape) is similar in the context of 
(personal) safety criticality to ensuring the braking systems in the 
consist are working. Nevertheless, FRA does agree that there is little 
reason to keep pre-trip inspection records for one year. The proposed 
period of records retention for pre-trip inspections has, therefore, 
been reduced to 92 days in this SNPRM. While FRA does view pre-trip 
inspection records as necessary to ensure compliance with the RSIA 
mandate, it should be noted that the record of pre-trip inspections, 
depending on the device selected, may be as simple as the check-off/
initialed card used on fire extinguishers. FRA also understands that 
some of the Class I carriers are considering using RFID tags to track 
and record the inspection of individual EEBA units. The use of this 
technology could possibly minimize the inspection and recordkeeping 
burden.
    Finally, AAR provided comments about proposed Sec.  227.207(d), 
which requires railroads to maintain accurate records of return, 
maintenance, repair, or replacement of each required EEBA for a period 
of three years. AAR questions whether this provision would allow for 
railroads to arrange for EEBA suppliers to maintain these records. It 
is FRA's view that such an arrangement would be acceptable; however, as 
AAR notes, the railroad would remain responsible for any failure on the 
part of a third party to maintain such records for the required time 
period or to provide FRA reasonable access to the records.
10. Comments on Proposed Sec.  227.209, With FRA's Response
    FRA received numerous comments on proposed Sec.  227.209 and has 
adopted the provision without change, except for deleting reference to 
asphyxiants. Section 227.209 establishes requirements for a railroad's 
program of instruction on EEBAs. The section sets out a number of 
subjects that must be covered in training including the importance of 
proper fit, usage, and maintenance in the effectiveness of the EEBA; 
the device's capabilities and limitations; and how to use an EEBA 
effectively in an emergency situation. Additionally, following initial 
training, it requires periodic training once every three years.
    NIOSH recommends that proposed Sec.  227.209 require annual 
expectation training (i.e., training for use of Closed-Circuit Self 
Contained Escape Respirators that simulates the initiation procedures, 
heat, and breathing resistance the user will experience in the 
respirator's performance) and ``hands-on'' training that goes over the 
appropriate donning procedures. FRA expects that the proposed language 
in Sec.  227.209(b)(4), which requires training on how to inspect, put 
on, remove, and use the EEBA and how to check the seals of the EEBA, 
will ensure that railroad employees are sufficiently familiar with the 
EEBAs provided by their employing railroads.
    NIOSH, ISEA, and Draeger also recommend that proposed Sec.  227.209 
be modified to follow Mine Safety and Health Administration 
requirements for quarterly training of underground coal miners, see 30 
CFR 75.1504, which requires that each miner undergoes ``hands-on'' 
training for donning and transferring of self-rescue devices as part of 
the required evacuation drill at the start of underground work, with 
this training provided at least four times a year. Moreover, ISEA and 
Draeger raise specific concerns about the adequacy of training 
personnel on a triennial basis because of concerns that people will 
forget the training received.
    FRA believes there are significant differences in the operational 
practices and risks faced by the employees in these two populations. 
Miners report to a fixed site each day and face a significant frequency 
of potential exposure to the materials against which these devices are 
intended to protect. Railroad operating employees often report to duty 
at different locations each day, and the frequency of potential 
exposure to inhalation hazards are orders of magnitude less. FRA does 
not view the three-year interval between training sessions as 
presenting an obstacle to effective use of EEBAs in the very rare event 
that the need for a device arises.
    It is also important to keep in mind that the proposed 
instructional program established in Sec.  227.209 is a minimum 
requirement. Railroads are encouraged to provide additional relevant 
information depending on the types of EEBAs selected. FRA is aware 
that, among the larger carriers, on-line refresher training is often 
available to employees on an ad-hoc basis. FRA also believes that the 
pre-trip inspections and contact with the devices will keep their use 
``front of mind'' for the purposes of encouraging employees to take 
advantage of the available on-line resources.
    Labor acknowledges that the RSIA mandates that appropriate training 
for the use of the EEBAs be included in the rule, but it is wary that 
testing will be used as a way to withhold certain employees from 
service. It contends that even though the RSIA does not require 
testing, it agrees that the employees should be proficient in the use 
of the EEBA. However, Labor is ``concerned that some railroad will 
establish unachievable, unnecessary or excessive performance 
requirements that, if not satisfied, will be used to hold employees out 
of service.'' As a result, Labor requests that FRA modify proposed 
Sec.  227.209 to remove language requiring employees demonstrate 
knowledge of each of the elements in Sec.  227.209(b) and that 
employees only be required to show proficiency in how to inspect, put 
on, remove, and use the EEBA and how to check the seals of the EEBA.
    FRA finds the language proposed in Sec.  227.209(b) as appropriate 
for the proper use of these devices. The language requiring a 
demonstration of knowledge was taken directly from OSHA's regulation 
covering the provision of respirators in the workplace. See 29 CFR 
1910.134(k)(1). The requirement is intended to ensure that after having 
been trained, the subject employees have the knowledge and skills to 
use the devices properly. Both the railroad and its employees have a 
vital interest in ensuring the training is both effective and retained. 
FRA does not believe the railroads have any incentive to establish 
``unachievable, unnecessary or excessive performance requirements'' in 
this regard.
    AAR requests the deletion of proposed paragraph Sec.  
227.209(b)(3), which requires instruction on how to use the EEBA 
effectively in emergency situations, including situations in which the 
EEBA malfunctions. It does not understand what FRA envisions will be 
taught other than to leave the scene as quickly as possible. As with 
the other provisions in proposed Sec.  227.209(b), proposed paragraph 
(b)(3) was borrowed directly from OSHA's regulation covering the 
provision of respirators in the workplace. See 29 CFR 
1910.134(k)(1)(iii). FRA finds no reason to delete the provision. While 
these circumstances are likely to be rare, FRA believes that, as a 
basic principle of emergency preparedness, it is useful to anticipate 
the kinds of scenarios that might occur and plan for them. For 
additional guidance, railroads can look to OSHA. See, e.g., 63 FR 1152, 
1259 (Jan. 8, 1998).
11. Comments on Proposed Sec.  227.211, With FRA's Response
    AAR comments that there is no reason to require in proposed Sec.  
227.211(b)(1) that a railroad identify by name the employee managing 
the railroad's general EEBA program. AAR notes that

[[Page 17320]]

there could be frequent changes in the specific individual in charge of 
the general EEBA program. As a result, AAR suggests deleting the 
proposed requirement that the individual be identified by name. While 
FRA is concerned with AAR's assertion that the name of the individual 
managing a railroad's general EEBA program may change frequently, FRA 
is deleting the proposed requirement that the person in charge of 
implementing and managing the railroad's general EEBA program be 
identified by name. It is sufficient to identify the person managing 
the general EEBA program by title, with all additional requirements 
remaining as proposed.
12. Comments on Proposed Sec.  227.217, With FRA's Response
    FRA received comments from Labor on proposed Sec.  227.217. This 
provision proposed to establish a staggered compliance schedule, with 
Class I railroads required to comply with the requirements of part 227, 
subpart C no later than 24 months from the effective date of the final 
rule, Class II railroads required to comply no later than 30 months 
from the effective date, and Class III railroads required to comply no 
later than 36 months from the effective date.
    Labor strongly encourages FRA to shorten the implementation 
schedule to no more than 90 days following the date of publication of 
the final rule. Labor contends that EEBAs ``will be a necessary safety 
overlay for the totally unpredictable work schedules that are 
commonplace in the industry today.'' Moreover, Labor contends that 
there is not a logical reason to delay the implementation in the manner 
suggested by AAR, and proposed by FRA in the NPRM, when devices are 
readily available at this time.
    While FRA understands the desire for more immediate implementation 
of EEBA programs, FRA cannot justify shortening the periods proposed in 
the 2010 NPRM for compliance to 90 days. In the short term, it is not 
necessarily true that the devices are readily available in the 
quantities needed. The shortened time frames proposed by Labor would 
also strain the capabilities of the railroads with respect to 
developing the management infrastructure for deploying and maintaining 
the devices, developing the required written programs and training, and 
scheduling and conducting the training for all of the operating and 
other employees likely to be covered. However, given the length of time 
since the publication of the RSIA mandate as well as FRA's issuance of 
guidance in 2016 the railroads have been on notice about the need to 
provide EEBAs. Therefore, FRA proposes shortening the compliance 
schedule from the original NPRM and now proposes that Class I railroads 
be required to comply with the requirements of part 227, subpart C no 
later than 12 months from the effective date of the final rule, Class 
II railroads be required to comply no later than 12 months from the 
effective date, and Class III railroads be required to comply no later 
than 18 months from the effective date.

VIII. Section-by-Section Analysis

PART 227--OCCUPATIONAL SAFETY AND HEALTH IN THE LOCOMOTIVE CAB

    FRA proposes to change the name of the part from ``OCCUPATIONAL 
NOISE EXPOSURE'' to ``OCCUPATIONAL SAFETY AND HEALTH IN THE LOCOMOTIVE 
CAB'' in order to reflect the broader subject matter of the part. 
Previously, part 227 contained regulations related only to dangers from 
occupational noise exposure. Part 227 is the most natural place to put 
the proposed regulations related to the provision of EEBAs because the 
occupational noise regulations and the EEBA regulations both concern 
dangers to the occupational safety and health of locomotive cab 
occupants. However, the inclusion of the proposed EEBA regulations 
requires broadening the name of the part to accurately capture the new 
subject matter that is now covered in that part.

Subpart A--General

Section 227.1 Purpose and Scope

    FRA proposes to amend this section to reflect the expanded purpose 
and scope of this part. In comparison to the NPRM, FRA has modified 
paragraph (c) of this section in the final rule to remove reference to 
asphyxiants.

Section 227.3 Applicability

    FRA proposes to amend this section so that paragraphs (a) and (b) 
apply to subpart B only and that the title mentioned, ``Associate 
Administrator for Safety,'' is updated to reflect the current title, 
``Associate Administrator for Railroad Safety/Chief Safety Officer.'' 
New paragraphs (c) and (d) define the types of railroad operations to 
be covered by subpart C. In particular, subpart C applies to a railroad 
that transports an in-service freight train that carries a PIH 
material. FRA has removed the references to asphyxiants that were in 
the NPRM, including a residue of such PIH material, on track that is 
part of the general railroad system of transportation. See 49 CFR part 
209, appendix A. If a railroad does not haul such a material on the 
general system, it is not subject to this subpart. It should be noted 
that, with some exceptions, common carriers by railroad have a ``common 
carrier'' obligation to accept for rail transportation a PIH material 
if it is properly prepared for transportation. If a railroad accepts 
and transports a tank car containing a load or residue of a PIH 
material in an in-service freight train, even if the railroad has never 
done so before, the railroad would become subject to this rule. FRA 
realizes that triggering the applicability of this rule upon the 
company's first transporting of a PIH material in a freight train could 
delay the transportation of such material if the company did not 
voluntarily take the steps required by the rule (e.g., preparation of 
general EEBA program, procurement and distribution of EEBAs, and 
instruction of employees in the program) in advance. Further, a delay 
related to compliance with this proposed rule could conflict with the 
railroad's duty to expedite the transportation of hazardous material, 
pursuant to the Hazardous Materials Regulations at 49 CFR 174.14. 
Accordingly, FRA sought comments on this aspect of the proposal, but 
received none.

Section 227.5 Definitions

    The proposed rulemaking would amend this section to add definitions 
for key terms used in subpart C. The terms defined are set forth 
alphabetically. FRA intends these definitions to clarify the meaning of 
the terms for purposes of this part. Many of these definitions have 
been taken from the regulations issued by OSHA and NIOSH and are widely 
used by safety and health professionals, such as the definition of 
``immediately dangerous to life or health (IDLH).'' A definition of 
``PIH material'' is included in this SNPRM to ensure that the universe 
of materials covered by this regulation is adequately described.

Section 227.15 Information Collection

    FRA proposes to amend this section to note the provisions of this 
part, including subpart C, that have been reviewed and approved by OMB 
for compliance with the Paperwork Reduction Act of 1995. See 44 U.S.C. 
3501 et seq.

Subpart B--Occupational Noise Exposure for Railroad Operating Employees

    FRA proposes a set of minor corrections to this subpart. The term 
``Class 1'' is removed wherever it

[[Page 17321]]

appears and replaced with the corrected term ``Class I.'' The incorrect 
term appeared in, for example, Sec.  227.103(a)(1).

Subpart C--Emergency Escape Breathing Apparatus Standards

Section 227.201 Criteria for Requiring Availability of EEBAs in the 
Locomotive Cab

    Proposed section 227.201(a)(1) requires that an EEBA be provided by 
a railroad to each of its train employees, direct supervisors of train 
employees, deadheading employees, and other employees designated by the 
railroad in writing and at the discretion of the railroad who are 
required to work in or occupy the cab of any locomotive of one of its 
covered trains (i.e., an in-service freight train that is transporting 
a PIH material). The EEBA provided must have been selected in 
accordance with the criteria in Sec.  227.203. Moreover, the EEBA 
provided shall have been inspected and determined to be in proper 
working condition under Sec.  227.207.
    Proposed section 227.201(a)(2) prohibits utilizing a locomotive to 
transport a PIH material in an in-service freight train unless each of 
the employees identified in paragraph (a)(1) in the cab of the 
locomotive has access to an EEBA that was selected in accordance with 
Sec.  227.203 and that has been inspected and is in proper working 
order pursuant to Sec.  227.207. Paragraph (a)(2) makes clear that it 
is not enough for a railroad to merely issue an EEBA to an employee, 
e.g., as a uniform item; the EEBA must be physically available to the 
employee in the cab of the covered train. For instance, it is not a 
defense to a violation of Sec.  227.201(a)(2) that the railroad 
provided the EEBA to the employee and instructed the employee to have 
it while in the cab, but the employee lost or forgot it.
    Proposed section 227.201 also includes exceptions to its general 
requirements in paragraph (b). FRA excludes trains that contain PIH 
materials exclusively in intermodal containers from the requirements in 
this section. Further, employees who are involved in activities, such 
as moving a locomotive coupled to a car or group of cars containing a 
PIH material within a locomotive maintenance facility, or who make 
incidental movements for the purpose of inspection or maintenance, are 
also exempted from coverage.
    Proposed paragraph (c) establishes that, notwithstanding the 
exceptions identified in Sec.  227.201, any employee who is found to 
have willfully tampered with or vandalized an EEBA will be subject to 
subpart C for enforcement purposes. As a result, an employee to whom 
the railroad is not required to provide an EEBA may become subject to 
this subpart by vandalizing or willfully tampering with an EEBA. By 
proposing this paragraph, FRA intends to foreclose a loophole that 
otherwise would preclude FRA from pursuing enforcement actions against 
mechanical employees and other employees who may have access to EEBAs, 
but for whom the railroads are not required to provide a device by 
these regulations.

Section 227.203 Criteria for Selecting EEBAs

    This proposed section provides the basis for selecting an EEBA. See 
general discussion at V. Selection of the Appropriate EEBA by 
Railroads, above. The proposed requirements for selection of EEBAs are 
based on the nature and extent of the potential hazard to be faced. Due 
to the varying modes of toxicity and physical state of commodities 
carried by railroads, the selection of EEBA types is limited to those 
that supply a breathable atmosphere to the wearer, rather than types 
that simply filter out the toxic material. Filtering EEBAs cannot 
provide protection from gasses that can displace the oxygen in the 
atmosphere. Filtering EEBAs approved for protection against specific 
materials usually are not approved for others of different chemical 
characteristics and generally have an upper concentration limit on 
their protective capabilities.
    Paragraph (a) of Sec.  227.203 proposes to require a railroad to 
select an atmosphere-supplying EEBA that protects against all PIH 
materials (including residues of such commodities) that are being 
transported by an in-service freight train. To ensure that the EEBAs 
have met a standard set of testing criteria, paragraph (b) requires the 
selection of a NIOSH-certified (42 CFR part 84) or ISO-compliant (ISO 
23269-1:2008) EEBA, with 15-minute minimum breathing capacity. In 
addition, FRA has proposed language to paragraph (b) to permit 
selection of devices that comply with BS EN 13794:2002 or BS EN 
1146:2005.
    To ensure that the EEBA provides adequate oxygen to allow train 
employees to extricate themselves from an IDLH atmosphere, in paragraph 
(c)(1), FRA has proposed that the EEBA must contain a minimum breathing 
capacity of 15 minutes under Sec.  227.207(a)(1).
    In paragraph (c)(2), FRA addresses head and neck protection. The 
EEBA type that is selected by a railroad must facilitate escape from a 
hazardous atmosphere by providing a means of protecting a user's nose 
and throat from inhalation hazards while also protecting the user's 
eyes from irritation.

Section 227.205 Storage Facilities for EEBAs

    This proposed section addresses the mandate in the RSIA that the 
rule require railroads to ``provide convenient storage in each freight 
train locomotive to enable crewmembers to access such apparatus 
quickly.'' FRA has adapted the storage requirements promulgated by OSHA 
at 29 CFR 1910.134(h)(2) to this proposed rule.

Section 227.207 Railroad's Program for Inspection, Maintenance, and 
Replacement of EEBAs; Requirements for Procedures

    This proposed section requires each railroad to establish and carry 
out procedures intended to ensure that EEBAs required to be present in 
the locomotive cabs are fully functional. This section is adapted from 
OSHA's inspection documentation requirements. See 29 CFR 
1910.134(h)(3)(iv). Since the EEBAs selected may have differing 
requirements for inspection, maintenance, and replacement, this section 
is, for the most part, written for as a general standard. However, 
minimum repair and adjustment requirements also have been adapted from 
OSHA's regulations. See 29 CFR 1910.134(h)(4).
    In paragraph (b), FRA proposes that railroads create and maintain 
pre-trip and periodic inspection records and retain these records for a 
period of 92 days and one year, respectively. Paragraph (d) proposes to 
require railroads to create and maintain an accurate record of all 
turn-ins, maintenance, repair, and replacement of EEBAs required by 
paragraph (c) of this section, including EEBAs that are used; and 
retain these records for three years.

Section 227.209 Railroad's Program of Instruction on EEBAs

    This proposed section identifies the elements of the instructional 
program that the railroad must establish and carry out for train 
employees and other employees who are part of the railroad's general 
EEBA program under Sec.  227.211 and will be provided with EEBAs. The 
elements outlined in this section are partly adapted from OSHA's 
regulations. See 29 CFR 1910.134(k). The program proposed by this 
section should be considered the minimum, and the railroads are 
encouraged to provide additional relevant information depending on the 
types of EEBAs selected.

[[Page 17322]]

    Proposed paragraph (b) requires that any railroad transporting a 
PIH material must provide sufficient training to its subject employees. 
Such employees must be able to demonstrate knowledge concerning why an 
EEBA is necessary; how improper fit, usage, or maintenance can 
compromise the protective effect of an EEBA; the limitations and 
capabilities of the type of EEBA that has been provided by the 
railroad, including the limited time for use; how to deal with 
emergency situations involving the use of EEBAs or if an EEBA 
malfunctions; how to inspect, put on, remove, and use an EEBA, 
including the inspection of seals; procedures for maintenance and 
storage of EEBAs; the selection criteria for EEBAs under Sec.  227.203, 
employee responsibilities under subpart C; employee rights concerning 
access to records; and identification of hazardous materials that are 
classified as PIH materials. FRA is particularly concerned that the 
employees know the limitations of the EEBAs provided so that the 
employees can avoid circumstances that would lead to reliance on the 
EEBAs for conditions or time frames beyond EEBA capabilities.
    This proposed program may be integrated with the railroad's program 
of instruction on the railroad's operating rules required by 49 CFR 
217.11 or its program of instruction for hazmat employees under 49 CFR 
172.704. Under 49 CFR 172.704(a)(3)(ii), for example, hazmat employees 
(which includes crews of freight trains transporting hazardous 
material), must receive ``safety training'' on means ``to protect the 
employee from the hazards associated with hazardous materials to which 
they may be exposed in the workplace, including special measures the 
hazmat employer has implemented to protect employees from exposure.''
    Proposed paragraph (c) establishes the timing of the initial and 
refresher training. Initial instruction must occur no later than 30 
days prior to the date of compliance with subpart C for the subject 
railroad. New employees must receive initial instruction either by 30 
days before the applicable date of compliance with subpart C or prior 
to being assigned to jobs where EEBAs are required to be provided on a 
locomotive, whichever is later. The initial instruction must be 
supplemented with periodic instruction at least once every three years.
    Proposed section 227.209(d) requires railroads to create and 
maintain an accurate record of employees instructed in compliance with 
Sec.  227.209; and retain these records for at least three years.

Section 227.211 Requirement To Implement a General EEBA Program; 
Criteria for Placing Employees in the General EEBA Program

    In this proposed section, FRA requires railroads subject to subpart 
C to adopt and comply with a general EEBA program to ensure that the 
selection and distribution of the EEBAs is done in a technically 
appropriate, sustainable manner and supported by a comprehensive set of 
policies and procedures. These issues have already been discussed in 
detail at IV. FRA-Sponsored Study and V. Selection of the Appropriate 
EEBA by Railroads, above. Many of the procedures will likely be used as 
a basis for aspects of the required instructional program.
    In paragraph (b)(1), FRA proposes that each railroad's general 
program identify the railroad's EEBA manager by title. The important 
concern is that the EEBA manager is qualified to oversee the program.
    Proposed section 227.211(b)(4) requires the following individuals 
to be placed in the railroad's general EEBA program: (1) employees of 
railroads subject to this subpart who perform service subject to the 
provisions of the hours of service law governing ``train employees,'' 
see 49 U.S.C. 21103, in the locomotive cabs of freight trains that 
transport a PIH material; (2) the direct supervisors of these train 
employees; and (3) any employees who deadhead in the locomotive cabs of 
such trains. The term ``train employee'' refers to employees who are 
engaged in functions traditionally associated with train, engine, and 
yard service; for example, engineers, conductors, brakemen, switchmen, 
and firemen. See 49 U.S.C. 21101(5); 49 CFR part 228, appendix A; and 
74 FR 30665, June 26, 2009.
    A railroad may also identify other employees and designate them in 
writing to be included in its general EEBA program. In making this 
assessment, the railroad should consider an employee's work over the 
period of a year. In doing so, the railroads must think about how they 
use their workforces, i.e., review the work that their employees 
perform, determine which employees will occupy the cab of the 
locomotive of an in-service freight train and therefore experience the 
risk of the release of an inhalation-material from the consist, and 
then place those employees in the general EEBA program.
    Given the nature of the railroad industry, FRA is aware that some 
of these employees may not always work in the cab. Due to longstanding 
labor practices in the railroad industry concerning seniority 
privileges and concerning the ability of railroad employees to bid for 
different work assignments, these railroad employees are likely to 
change jobs frequently and to work for extended periods of time on 
assignments that involve duties outside the cab. For example, an 
employee might start the year in a job that involves mostly outside-
the-cab work, spend three months working primarily inside the cab, and 
then return to outside-the-cab work for the rest of the year. In this 
type of situation, these regulations govern the exposure of this 
employee throughout the year despite the fact that the employee only 
spent three months inside the cab. This employee is covered by this 
proposed part, because he spent time, no matter how little, in a 
locomotive cab where the use of an EEBA may be required. As a result, 
the railroad must ensure that the employee is properly instructed in 
how to inspect and use an EEBA and provide an EEBA for those time 
periods in which the employee is serving as a train employee, as a 
direct supervisor of a train employee, or in a capacity that the 
railroad has determined, in its discretion and designated in writing, 
should be provided an EEBA while any of these individuals is working in 
the cab of the locomotive of an in-service freight train transporting a 
PIH material.
    Note that placement of an employee in the railroad's general EEBA 
program means different things depending on the nature of the program 
that the railroad chooses to adopt. For example, if the railroad's 
program states that the railroad will equip its fleet of locomotives 
with sets of EEBAs sufficient to accommodate the train crew and 
possible deadheading train employees, the railroad would have to 
provide the EEBA to the employee in that way, in the locomotive cab. On 
the other hand, if the railroad's program states that the railroad will 
provide the EEBA to the employee as part of his or her personal 
equipment, the railroad would have to provide the EEBA in that manner. 
If the employee for whatever reason did not have the EEBA with him or 
her while in the locomotive cab, the railroad would be prohibited from 
using the locomotive by Sec.  227.201(a)(2), which bars using a 
locomotive to transport a covered train if a covered employee occupying 
the cab of the locomotive does not access to a working EEBA. One 
constant is that all railroads subject to this proposed part are 
required to instruct employees placed in their general EEBA program in 
how to use EEBAs; the provision on instruction at Sec.  227.209 
requires that all employees

[[Page 17323]]

identified in Sec.  227.211 be provided instruction on EEBAs.
    Finally, proposed Sec.  227.211(c) requires railroads to maintain 
records concerning the persons and positions designated to be placed in 
its EEBA program and retain these records for the duration of the 
designation and for one year after the designation has ended.

Section 227.213 Employee's Responsibilities

    Since employees, who must be provided the EEBAs, are not always 
directly supervised by managers who can ensure the identified tasks are 
done at the appropriate time and frequency, this proposed section 
establishes certain responsibilities on the part of employees. Some of 
these tasks may involve making records of such tasks as pre-trip 
inspections that must be done to ensure the EEBAs are ready for use. 
Additionally, FRA proposes prohibiting employees from willfully 
tampering with or vandalizing an EEBA in an attempt to disable or 
damage the device. See 49 CFR part 209, appendix A for definition and 
discussion of ``willfully.''

Section 227.215 Recordkeeping in General

    Proposed section 227.215 sets out the general recordkeeping 
provisions for subpart C. Proposed section 227.215(a) addresses the 
availability of required records. Section 227.215(a) provides that 
records required under this part, except for records of pre-trip 
inspections, be kept at system and division headquarters. It proposes 
requiring that a railroad make all records available for inspection and 
copying or photocopying by representatives of FRA upon request. The 
railroad must also make an employee's records available for inspection 
and copying or photocopying by that employee or such person's 
representative upon written authorization by such employee.
    Proposed section 227.215(b) permits required records to be kept in 
electronic form. These requirements are almost identical to the 
electronic recordkeeping requirements found in FRA's existing Track 
Safety Standards, 49 CFR 213.241(e). Section 227.215(b) allows each 
railroad to design its own electronic system as long as the system 
meets the specified criteria in Sec.  227.215(b)(1) through (5), which 
are intended to safeguard the integrity and authenticity of each 
record.

Section 227.217 Compliance Dates

    The specific dates by which certain groups of railroads are 
required to comply are set forth in this section. FRA recognizes that 
it will take time to procure EEBAs, instruct employees on their use, 
and outfit locomotives with the appropriate equipment to carry the 
devices. FRA staggers the compliance dates based on the size of the 
railroad, with larger railroads having to comply earlier. The AAR's 
January 13, 2010, letter referenced earlier requests ``that FRA allow 
at least two years from the effective date of the final rule for the 
railroad to be compliant with the regulation.'' Under the final rule, 
FRA requires Class I railroads to be compliant within 12 months of the 
effective date of the final rule, with required compliance following 
for Class II railroads at 12 months and Class III and other railroads 
at 18 months.

Section 227.219 Incorporation by Reference

    Because subpart C proposes to incorporate by reference ISO 23269-
1:2008, BS EN 13794:2002, and BS EN 1146:2005, FRA is adding this 
section to comply with the requirements of 5 U.S.C. 552(a) and 1 CFR 
part 51. ISO 23269-1:2008 provides specifications for emergency escape 
breathing devices intended to supply air or oxygen needed to escape 
from accommodation and machinery spaces with a hazardous atmosphere. BS 
EN 13794:2002 provides specifications including requirements, testing, 
and marking for self-contained closed-circuit breathing apparatus 
intended for an escape from a hazardous atmosphere. BS EN 1146:2005 
provides specifications including requirements, testing, and marking 
for self-contained open-circuit compressed air breathing apparatus 
incorporating a hood and intended for an escape from a hazardous 
atmosphere. They are reasonably available to all interested parties 
online at https://webstore.ansi.org/ and http://shop.bsigroup.com, 
respectively. Further, FRA will maintain copies of the standards 
available for review at the Federal Railroad Administration, 1200 New 
Jersey Avenue SE, Washington, DC 20590.

IX. Regulatory Impact and Notices

A. Executive Order 12866

    This proposed rule is not a significant regulatory action within 
the meaning of Executive Order 12866. Details on the estimated costs of 
this SNPRM can be found in the RIA, which FRA has prepared and placed 
in the docket (FRA-2009-0044).
    FRA is proposing a rule that would enable covered employees to wear 
protective breathing apparatus in the event of a catastrophic release 
of PIH materials. This rule would require that an EEBA be provided for 
each covered employee transporting PIH materials. These EEBAs would 
provide neck and face coverage with respiratory protection for these 
crewmembers. Railroads must also ensure that the equipment is 
maintained and in proper working condition. Finally, the proposed rule 
would require that railroads train crewmembers how to use the EEBAs.
    The RIA presents estimates of the costs likely to occur over the 
first 10 years of the proposed rule. The analysis includes estimates of 
costs associated with the purchase of EEBAs and installation, employee 
training, and recordkeeping.
    FRA has estimated costs for three options that are permissible 
under the rule. These include:
     Option 1: Employee Assignment--EEBAs are assigned to all 
relevant employees and considered part of their equipment.
     Option 2: Locomotive Assignment--EEBAs are assigned to and 
kept in locomotives.
     Option 3: Equipment Pooling--EEBAs are pooled at rail 
yards and kept in storage lockers where employees would check-in and 
check-out the EEBA when PIH is being hauled.
    For all three options, estimates were developed using a closed-
circuit EEBA. For the ``Employee Assignment'' option, FRA estimates 
that the costs associated with issuing each T&E employee ($60,000) with 
an EEBA as their own personal equipment. The ``Locomotive Assignment'' 
option would require installing EEBA devices in all locomotives in the 
covered railroad's fleet, regardless of whether a locomotive is part of 
a train that is transporting PIH material. There are approximately 
24,000 locomotives owned by Class I railroads, and three apparatus 
would have to be installed in each locomotive, one apparatus each for 
the conductor, the engineer, and a supervisor. In the ``Equipment 
Pooling'' option, FRA considered only having EEBAs provided in 
trainsets that were transporting PIH. EEBAs would be brought on board 
after a determination is made on a case-by-case basis.
    The analysis includes estimates of costs associated with the 
purchase of EEBAs and installation, employee training, and 
recordkeeping.
    FRA estimates the 10-year costs of the proposed rule to be between 
$27.1 million and $91.6 million, discounted at 7 percent. The following 
table shows the total costs of this proposed rule, over the 10-year 
analysis period.

[[Page 17324]]

Total 10-Year Costs (2021 Dollars) \23\
---------------------------------------------------------------------------

    \23\ Numbers in this table and subsequent tables may not sum due 
to rounding.

 
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                     10-Year cost    Present value 7%   Present value 3%   Annualized 7%   Annualized 3%
                             Category                                     ($)              ($)                ($)               ($)             ($)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Option 1: Employee Assignment.....................................     $92,006,767        $78,979,882        $85,771,368     $11,244,958     $10,055,021
Option 2: Locomotive Assignment...................................     106,793,579         91,611,301         99,524,731      13,043,388      11,667,335
Option 3: Equipment Pooling.......................................      33,527,842         27,100,467         30,398,108       3,858,497       3,563,586
--------------------------------------------------------------------------------------------------------------------------------------------------------

    The proposed rule is expected to improve railroad safety by 
ensuring that all covered employees can safely vacate the exposed area 
if a PIH material release were to occur. The primary benefits include 
heightened safety for crewmembers and, as a result, earlier awareness/
notification to the public of PIH releases. Implementation of the SNPRM 
should mitigate the injuries of covered employees from PIH material 
releasing after an accident/incident. During a 10-year period, this 
analysis finds $43,110 (PV, 7 percent) in safety benefits that could 
accrue through injury prevention.

--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                             10-Year benefits    Present value 7%    Present value 3%    Annualized 7%    Annualized 3%
                         Category                                   ($)                 ($)                 ($)               ($)              ($)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Total Benefits from Injury Prevention.....................            $63,720             $43,110             $53,520           $6,138           $6,274
--------------------------------------------------------------------------------------------------------------------------------------------------------

    Although the costs associated with implementation of the proposed 
rule would almost certainly exceed the benefits, under RSIA, FRA must 
require railroads to: (1) ensure that EEBAs affording suitable ``head 
and neck coverage with respiratory protection'' are provided ``for all 
crewmembers'' in a locomotive cab on a freight train ``carrying 
hazardous materials that would pose an inhalation hazard in the event 
of release;'' (2) provide a place for convenient storage of EEBAs in 
the locomotive that will allow ``crewmembers to access such apparatus 
quickly;'' (3) maintain EEBAs ``in proper working condition;'' and (4) 
provide crewmembers with appropriate instruction in the use of EEBAs. 
However, FRA would not require a particular method of deployment of 
EEBAs, but rather leave that to the railroads' discretion. In addition, 
railroads would be allowed to select the type of apparatus to use in 
their program (closed-circuit or open-circuit). This allows railroads 
to deploy EEBAs in the manner best suited to their operation.

B. Regulatory Flexibility Act and Executive Order 13272

    The Regulatory Flexibility Act of 1980 (5 U.S.C. 601 et seq.) and 
E.O. 13272 (67 FR 53461, Aug. 16, 2002) require agency review of 
proposed and final rules to assess their impacts on small entities. An 
agency must prepare an IRFA unless it determines and certifies that a 
rule, if promulgated, would not have a significant economic impact on a 
substantial number of small entities. FRA has not determined whether 
this proposed rule would have a significant economic impact on a 
substantial number of small entities. Therefore, FRA prepared this IRFA 
to facilitate public comment on the potential small business impacts of 
the requirements in this SNPRM.
    FRA invites all interested parties to submit data and information 
regarding the potential economic impact on small entities that would 
result from adoption of the proposals in this SNPRM. FRA particularly 
encourages small entities that could potentially be impacted by the 
proposed rule to participate in the public comment process. FRA will 
consider all information and comments received in the public comment 
process when making a determination of the economic impact on small 
entities.
1. Reasons for Considering Agency Action
    Agency action is required under Section 413 of the RSIA.
2. A Succinct Statement of the Objectives of, and the Legal Basis for, 
the Proposed Rule
    This proposed rule would help reduce the risk of injury to 
crewmembers due to inhalation of PIH. Section 413 of the RSIA requires 
the Secretary of Transportation to promulgate regulations that require 
railroads to provide emergency escape breathing apparatus suitable to 
provide head and neck coverage with respiratory protection for all 
covered employees.
3. A Description of, and Where Feasible, an Estimate of the Number of 
Small Entities to Which the Proposed Rule Would Apply
    The Regulatory Flexibility Act of 1980 requires a review of 
proposed and final rules to assess their impact on small entities, 
unless the Secretary certifies that the rule would not have a 
significant economic impact on a substantial number of small entities. 
``Small entity'' is defined in 5 U.S.C. 601 as a small business concern 
that is independently owned and operated and is not dominant in its 
field of operation. The U.S. Small Business Administration (SBA) has 
authority to regulate issues related to small businesses, and 
stipulates in its size standards that a ``small entity'' in the 
railroad industry is a for profit ``line-haul railroad'' that has fewer 
than 1,500 employees, a ``short line railroad'' with fewer than 1,500 
employees, a ``commuter rail system'' with annual receipts of less than 
$16.5 million dollars, or a contractor that performs support activities 
for railroads with annual receipts of less than $16.5 million.\24\
---------------------------------------------------------------------------

    \24\ U.S. Small Business Administration, ``Table of Small 
Business Size Standards Matched to North American Industry 
Classification System Codes, August 19, 2019. https://www.sba.gov/sites/default/files/2019-08/SBA%20Table%20of%20Size%20Standards_Effective%20Aug%2019,%202019.pdf.

---------------------------------------------------------------------------

    Federal agencies may adopt their own size standards for small 
entities in consultation with SBA and in conjunction with public 
comment. Under that authority, FRA published a statement of agency 
policy that formally establishes ``small entities'' or ``small 
businesses'' as railroads, contractors, and hazardous materials 
shippers that meet the revenue requirements of a Class III railroad as 
set forth in 49 CFR

[[Page 17325]]

1201.1-1, which is $20 million or less in inflation-adjusted annual 
revenues,\25\ and commuter railroads or small Governmental 
jurisdictions that serve populations of 50,000 or less. See 68 FR 24891 
(May 9, 2003) (codified at Appendix C to 49 CFR part 209). FRA is using 
this definition for the proposed rule.
---------------------------------------------------------------------------

    \25\ The Class III railroad revenue threshold is $40.4 million 
or less, for 2021. (The Class II railroad threshold is between $40.4 
million and $900 million.) See Surface Transportation Board (STB), 
available at https://www.stb.gov/news-communications/latest-news/pr-21-16/.
---------------------------------------------------------------------------

    When shaping the proposed rule, FRA considered the impact that the 
proposed rule would have on small entities. The proposed rule would be 
applicable to all railroads with locomotives that transport PIH 
materials. FRA estimates there are 733 Class III railroads that operate 
on the general system. These railroads are of varying size, with some 
belonging to larger holding companies. FRA is aware of 110 Class III 
railroads that transport PIH materials. The remaining Class III 
railroads do not transport PIH, and thus would not be impacted by this 
proposed rule.
4. A Description of the Projected Reporting, Recordkeeping, and Other 
Compliance Requirements of the Rule, Including an Estimate of the Class 
of Small Entities That Would Be Subject to the Requirements and the 
Type of Professional Skill Necessary for Preparation of the Report or 
Record
    Railroads must keep records pertaining to pre-trip and periodic 
inspections of EEBAs. The information about each pre-trip and periodic 
inspection must be accurately recorded on a tag or label that is 
attached to the storage facility for the EEBA or kept with the EEBA or 
in inspection reports stored as paper or electronic files. Railroads 
would also be required to keep training records. Training records must 
be kept at system and division headquarters. A railroad must also make 
all records available for inspection and copying by representatives of 
FRA upon request. The section permits that the required records can be 
kept in electronic form.
    The type of professional skills needed by an employee responsible 
for submitting a special approval request includes the ability to plan 
and organize work. Such an employee would also need good verbal and 
written communication skills and attention to detail.
5. Summary of Class III Railroad Costs
    Class III Railroads would have all the same cost components as 
larger railroads, reduced for the estimated number of locomotives and 
employees on Class III railroads.
    The following table shows the annualized cost for Class III 
railroads over the 10-year analysis period. The total estimated 10-year 
costs for Class III railroads would be $1.0 million (PV, 7 percent) and 
the annualized cost for all Class III railroads would be $149,326 (PV, 
7 percent).
Total 10-Year and Annualized Costs, Class III Railroads

------------------------------------------------------------------------
                                           Present value    Annualized
                Category                       (7%)            (7%)
------------------------------------------------------------------------
EEBA and Installation...................         716,580         102,025
Training................................         232,950          33,167
Records.................................          99,272          14,134
                                         -------------------------------
    Total...............................       1,048,802         149,326
------------------------------------------------------------------------

    The industry trade organization representing small railroads, 
ASLRRA, reports the average freight revenue per Class III railroad is 
$4.75 million.\26\ The following table summarizes the average annual 
costs and revenue for Class III railroads.
---------------------------------------------------------------------------

    \26\ American Short Line and Regional Railroad Association, 
Short Line and Regional Railroad Facts and Figures, p. 10 (2017 
pamphlet).
---------------------------------------------------------------------------

Average Class III Railroads' Costs and Revenue

----------------------------------------------------------------------------------------------------------------
                                                               Average  annual                   Average  annual
     Total cost for class III railroads,      Number of class   cost per class   Average class      cost  as a
                annualized 7%                  III  railroads    III railroad      III annual      percent  of
                                                  with PIH           ($)          revenue  ($)       revenue
a                                                          b        c = a / b                d        e = c / d
----------------------------------------------------------------------------------------------------------------
$149,326....................................             110           $1,358       $4,750,000            0.03%
----------------------------------------------------------------------------------------------------------------

    The average annual cost for a Class III railroad impacted by this 
rule would be $1,358. This represents a small percentage (0.03%) of the 
average annual revenue for a Class III railroad.
    The estimates above show that the burden on Class III railroads 
would not be a significant economic burden. FRA requests comments on 
this estimate and will consider all comments when making a 
determination for the final rule.
6. Identification, to the Extent Practicable, of All Relevant Federal 
Rules That May Duplicate, Overlap, or Conflict With the Proposed Rule
    FRA is not aware of any relevant Federal rule that duplicates, 
overlaps with, or conflicts with this SNPRM.
7. A Description of Significant Alternatives to the Rule
    One alternative to this rule is the baseline approach. The baseline 
alternative (no action) would not fulfill requirements under RSIA. This 
proposed rule would allow railroads a significant amount of discretion 
when determining their plan for the implementation of EEBAs. For 
example, to reduce costs, FRA has allowed railroads to choose either 
open or closed-circuit units. Railroads may also choose any of the 
options described within this analysis or create any option that would 
still allow the railroad to be in compliance with the rule.

[[Page 17326]]

C. Federalism

    Executive Order 13132, ``Federalism'' (64 FR 43255, Aug. 10, 1999), 
requires FRA to develop an accountable process to ensure ``meaningful 
and timely input by State and local officials in the development of 
regulatory policies that have federalism implications.'' ``Policies 
that have federalism implications'' are defined in the Executive Order 
to include regulations that 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.'' Under Executive Order 13132, the agency 
may not issue a regulation with federalism implications that imposes 
substantial direct compliance costs and that is not required by 
statute, unless the Federal government provides the funds necessary to 
pay the direct compliance costs incurred by State and local 
governments, or the agency consults with State and local government 
officials early in the process of developing the regulation. Where a 
regulation has federalism implications and preempts State law, the 
agency seeks to consult with State and local officials in the process 
of developing the regulation.
    This proposed rule has been analyzed in accordance with the 
principles and criteria contained in Executive Order 13132. FRA has 
determined that the proposed rule will not have substantial direct 
effects on the States, on the relationship between the national 
government and the States, nor on the distribution of power and 
responsibilities among the various levels of government. In addition, 
FRA has determined that this proposed rule will not impose substantial 
direct compliance costs on State and local governments. Therefore, the 
consultation and funding requirements of Executive Order 13132 do not 
apply. However, this proposed rule could have preemptive effect by 
operation of law under certain provisions of the Federal railroad 
safety statutes, specifically a provision of the former FRSA, repealed 
and recodified at 49 U.S.C. 20106, and the former LBIA, repealed and 
recodified at 49 U.S.C. 20701-20703. See Public Law 103-272 (July 5, 
1994). A provision of the former FRSA provides that States may not 
adopt or continue in effect any law, regulation, or order related to 
railroad safety or security that covers the subject matter of a 
regulation prescribed or order issued by the Secretary of 
Transportation (with respect to railroad safety matters) or the 
Secretary of Homeland Security (with respect to railroad security 
matters), except when the State law, regulation, or order qualifies 
under the ``local safety or security hazard'' exception to section 
20106. Moreover, the former LBIA has been interpreted by the Supreme 
Court as preempting the entire field of locomotive safety. See Napier 
v. Atlantic Coast R.R., 272 U.S. 605, 611; 47 S.Ct. 207, 209 (1926).
    In sum, FRA has analyzed this proposed rule in accordance with the 
principles and criteria contained in Executive Order 13132. As 
explained above, FRA has determined that this proposed rule has no 
federalism implications, other than the possible preemption of State 
laws under a provision of the former FRSA and under the former LBIA. 
Accordingly, FRA has determined that preparation of a federalism 
summary impact statement for this proposed rule is not required.

D. International Trade Impact Assessment

    The Trade Agreement Act of 1979 prohibits Federal agencies from 
engaging in any standards or related activities that create unnecessary 
obstacles to the foreign commerce of the United States. Legitimate 
domestic objectives, such as safety, are not considered unnecessary 
obstacles. The statute also requires consideration of international 
standards and where appropriate, that they be the basis for U.S. 
standards. This proposed rulemaking is purely domestic in nature and is 
not expected to affect trade opportunities for U.S. firms doing 
business overseas or for foreign firms doing business in the United 
States.

E. Paperwork Reduction Act

    The information collection requirements in this proposed rule are 
being submitted for approval to OMB \27\ under the Paperwork Reduction 
Act of 1995.\28\ The information collection requirements and the 
estimated time to fulfill each requirement are as follows:
---------------------------------------------------------------------------

    \27\ FRA will be using the OMB control number (OMB No. 2130-
0620) that was issued when the previous NPRM was issued in 2010 for 
this information collection request.
    \28\ 44 U.S.C. 3501 et seq.

--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                              Average time  per        Total annual        Total cost
             CFR section                  Respondent universe     Total annual responses           response          burden  (hours)       equivalent
                                       ........................  (A).....................  (B)....................        (C) = A * B     (D) = C * wage
                                                                                                                                                    \29\
--------------------------------------------------------------------------------------------------------------------------------------------------------
227.201(a)--Criteria for requiring     128 railroads...........  600 designations........  3 minutes..............              30.00          $2,337.30
 availability of EEBAs in the
 locomotive cab--Employees designated
 by the railroad in writing.
227.203(c)--Criteria for selecting     128 railroads...........  43 written                2 hours................              86.00          $6,700.26
 EEBAs--Railroads to document the                                 justifications.
 adequacy of the EEBA and provide
 such documentation for inspection to
 FRA upon request.

[[Page 17327]]

 
227.205(c)--Storage facilities for     128 railroads...........  43 instruction copies...  1 minute...............                .72             $56.10
 EEBAs--Railroads to keep a copy of
 the instructions at their system
 headquarters for FRA inspection.
                                      ------------------------------------------------------------------------------------------------------------------
227.207(a)--Railroad's program for     The paperwork burden for this requirement is covered under Sec.   227.211.
 inspection, maintenance, and
 replacement of EEBAs; requirements
 for procedures--Written program for
 inspection, maintenance, and
 replacement of EEBAs.
                                      ------------------------------------------------------------------------------------------------------------------
    --(b) Inspection procedures and    128 railroads...........  10,000 inspection         30 seconds.............              83.33          $6,492.24
     records--Tag or label that is                                records.
     attached to the storage facility
     for the EEBA or kept with the
     EEBA or in inspection reports
     stored as paper or electronic
     files.
    --(d) Records of returns,          128 railroads...........  180 records.............  30 seconds.............               1.50            $116.87
     maintenance, repair, and
     replacement--Recordkeeping and
     retention.
                                      ------------------------------------------------------------------------------------------------------------------
227.209(a)--Railroad's program of      The paperwork burden for this requirement is covered under Sec.   227.211.
 instruction on EEBAs--Written
 program of instruction on EEBAs.
                                      ------------------------------------------------------------------------------------------------------------------
    --(d) Records of instruction--     128 railroads...........  20,000 initial training   3 minutes..............           1,000.00         $62,670.00
     Railroad to maintain a record of                             records.
     employees provided instruction
     in compliance with this section
     and retain these records for
     three years \30\.
    --(d) Records of intervals for     128 railroads...........  2,000 refresher or new    3 minutes..............             100.00          $6,267.00
     periodic instruction.                                        hire training records.
227.211(a), (b) and (d)--Requirement   128 railroads...........  45.67 written programs    80 hours...............             351.33         $30,167.83
 to implement a general EEBA program;                             (2.33 Class I            + 2 hours..............
 criteria for placing employees in                                railroads' programs +    + 80 hours.............
 the general EEBA program--                                       42.33 Class II and III
 Comprehensive written program.                                   railroads' programs + 1
                                                                  generic program
                                                                  developed by ASLRRA).
                                      ------------------------------------------------------------------------------------------------------------------

[[Page 17328]]

 
    --(c) Records of positions or      The paperwork burden for this requirement is covered under Sec.  Sec.   227.201 and 227.209.
     individuals or both in the
     railroad's general EEBA--
     Designated employees by the
     railroad to be placed in its
     general EEBA program pursuant to
     Sec.   227.211(b)(4).
                                      ------------------------------------------------------------------------------------------------------------------
227.213--Employee's responsibilities-- 128 railroads...........  1 notification..........  1 minute...............                .02              $1.25
 Notification to railroad of EEBA
 failures and of use incidents in a
 timely manner.
227.215(b)--Recordkeeping in general-- 18 railroads............  6 modified systems......  1 hour.................               6.00            $467.46
 Electronic records to meet FRA
 requirements.
    --(b)(5) Paper copies of           128 railroads...........  43 copies...............  15 minutes.............              10.75            $837.53
     electronic records and
     amendments to those records are
     made available for inspection
     and copying or photocopying by
     representatives of FRA.
                                      ------------------------------------------------------------------------------------------------------------------
        Total \31\...................  128 railroads...........  32,962 responses........  N/A....................              1,670           $116,114
--------------------------------------------------------------------------------------------------------------------------------------------------------

    All estimates include the time for reviewing instructions; 
searching existing data sources; gathering or maintaining the needed 
data; and reviewing the information. Pursuant to 44 U.S.C. 
3506(c)(2)(B), FRA solicits comments concerning: whether these 
information collection requirements are necessary for the proper 
performance of the functions of FRA, including whether the information 
has practical utility; the accuracy of FRA's estimates of the burden of 
the information collection requirements; the quality, utility, and 
clarity of the information to be collected; and whether the burden of 
collection of information on those who are to respond, including 
through the use of automated collection techniques or other forms of 
information technology, may be minimized. Organizations and individuals 
desiring to submit comments on the collection of information 
requirements or to request a copy of the paperwork package submitted to 
OMB should contact Ms. Arlette Mussington, Information Collection 
Clearance Officer, at email: [email protected] or telephone: 
(571) 609-1285 or Ms. Joanne Swafford, Information Collection Clearance 
Officer, at email: [email protected] or telephone: (757) 897-
9908.
---------------------------------------------------------------------------

    \29\ The dollar equivalent cost is derived from the Surface 
Transportation Board's Full Year Wage A&B data series using the 
appropriate employee group hourly wage rate that includes a 75-
percent overhead charge.
    \30\ The associated burden related to employees' training are 
calculated under the economic cost of the regulation.
    \31\ Totals may not add up due to rounding.
---------------------------------------------------------------------------

    OMB is required to make a decision concerning the collection of 
information requirements contained in this proposed rule between 30 and 
60 days after publication of this document in the Federal Register. 
Therefore, a comment to OMB is best assured of having its full effect 
if OMB receives it within 30 days of publication. The final rule will 
respond to any OMB or public comments on the information collection 
requirements contained in this proposal. FRA is not authorized to 
impose a penalty on persons for violating information collection 
requirements that do not display a current OMB control number, if 
required.

F. Compliance With the Unfunded Mandates Reform Act of 1995

    Pursuant to Section 201 of the Unfunded Mandates Reform Act of 1995 
(Pub. L. 104-4, 2 U.S.C. 1531), each Federal agency ``shall, unless 
otherwise prohibited by law, assess the effects of Federal regulatory 
actions on State, local, and tribal governments, and the private sector 
(other than to the extent that such regulations incorporate 
requirements specifically set forth in law).'' Section 202 of the Act 
(2 U.S.C. 1532) further requires that ``before promulgating any general 
notice of proposed rulemaking that is likely to result in the 
promulgation of any rule that includes any Federal mandate that may 
result in expenditure by State, local, and tribal governments, in the 
aggregate, or by the private sector, of

[[Page 17329]]

$100,000,000 or more (adjusted annually for inflation) in any one year, 
and before promulgating any final rule for which a general notice of 
proposed rulemaking was published, the agency shall prepare a written 
statement'' detailing the effect on State, local, and tribal 
governments and the private sector. This proposed rule will not result 
in such an expenditure, and thus preparation of such a statement is not 
required.

G. Environmental Assessment

    FRA has evaluated this proposed rule in accordance with the 
National Environmental Policy Act \32\ (NEPA), the Council of 
Environmental Quality's NEPA implementing regulations,\33\ and FRA's 
NEPA implementing regulations.\34\ FRA has determined that this 
proposed rule is categorically excluded from environmental review and 
therefore does not require the preparation of an environmental 
assessment (EA) or environmental impact statement (EIS). Categorical 
exclusions (CEs) are actions identified in an agency's NEPA 
implementing procedures that do not normally have a significant impact 
on the environment and therefore do not require either an EA or 
EIS.\35\ Specifically, FRA has determined that this proposed rule is 
categorically excluded from detailed environmental review.\36\
---------------------------------------------------------------------------

    \32\ 42 U.S.C. 4321 et seq.
    \33\ 40 CFR parts 1500-1508.
    \34\ 23 CFR part 771.
    \35\ 40 CFR 1508.4.
    \36\ See 23 CFR 771.116(c)(15) (categorically excluding 
``[p]romulgation of rules, the issuance of policy statements, the 
waiver or modification of existing regulatory requirements, or 
discretionary approvals that do not result in significantly 
increased emissions of air or water pollutants or noise'').
---------------------------------------------------------------------------

    This rulemaking would not directly or indirectly impact any 
environmental resources and would not result in significantly increased 
emissions of air or water pollutants or noise. In analyzing the 
applicability of a CE, FRA must also consider whether unusual 
circumstances are present that would warrant a more detailed 
environmental review.\37\ FRA has concluded that no such unusual 
circumstances exist with respect to this proposed rule and it meets the 
requirements for categorical exclusion.\38\
---------------------------------------------------------------------------

    \37\ 23 CFR 771.116(b).
    \38\ 23 CFR 771.116(c)(15).
---------------------------------------------------------------------------

    Pursuant to Section 106 of the National Historic Preservation Act 
and its implementing regulations, FRA has determined this undertaking 
has no potential to affect historic properties.\39\ FRA has also 
determined that this rulemaking does not approve a project resulting in 
a use of a resource protected by Section 4(f).\40\ Further, FRA 
reviewed this proposed rulemaking and found it consistent with 
Executive Order 14008, Tackling the Climate Crisis at Home and 
Abroad.\41\
---------------------------------------------------------------------------

    \39\ See 54 U.S.C. 306108.
    \40\ See Department of Transportation Act of 1966, as amended 
(Pub. L. 89-670, 80 Stat. 931); 49 U.S.C. 303.
    \41\ 86 FR 7619 (Feb. 1, 2021).
---------------------------------------------------------------------------

H. Energy Impact

    Executive Order 13211 requires Federal agencies to prepare a 
Statement of Energy Effects for any ``significant energy action.'' (66 
FR 28355, May 22, 2001). FRA evaluated this proposed rule in accordance 
with Executive Order 13211 and determined that this proposed rule is 
not a ``significant energy action'' within the meaning of Executive 
Order 13211.

I. Privacy Act

    In accordance with 5 U.S.C. 553(c), DOT solicits comments from the 
public to better inform its rulemaking process. DOT posts these 
comments, without edit, including any personal information the 
commenter provides, to http://www.regulations.gov, as described in the 
system of records notice, which can be reviewed at http://www.dot.gov/privacy. To facilitate comment tracking and response, FRA encourages 
commenters to provide their name, or the name of their organization; 
however, submission of names is completely optional. Whether or not 
commenters identify themselves, all timely comments will be fully 
considered. If you wish to provide comments containing proprietary or 
confidential information, please contact the agency for alternate 
submission instructions.

J. Analysis Under 1 CFR Part 51

    As required by 1 CFR 51.5, FRA has summarized the standards it is 
incorporating by reference in the section-by-section analysis in this 
preamble. These standards summarized herein, are reasonably available 
to all interested parties for inspection. Copies can be obtained from 
the International Organization for Standardization, Chemin de 
Blandonnet 8, CP 401, 1214 Vernier, Geneva, Switzerland, telephone +41-
22-749-08-88 or https://www.iso.org/standard/50245.htmland from the 
British Standards Institution, 12110 Sunset Hills Road, Suite 200, 
Reston, VA 20190-5902, telephone: 800-862-4977 or http://shop.bsigroup.com. They are also available for inspection at the 
Federal Railroad Administration, 1200 New Jersey Avenue SE, Washington, 
DC 20590; phone: (202) 493-6052; email: [email protected].

K. Executive Order 12898 (Environmental Justice)

    Executive Order 12898, ``Federal Actions to Address Environmental 
Justice in Minority Populations and Low-Income Populations'' \42\ and 
DOT Order 5610.2C \43\ require DOT agencies to achieve environmental 
justice as part of their mission by identifying and addressing, as 
appropriate, disproportionately high and adverse human health or 
environmental effects, including interrelated social and economic 
effects, of their programs, policies, and activities on minority 
populations and low-income populations. The DOT Order instructs DOT 
agencies to address compliance with Executive Order 12898 and 
requirements within the DOT Order in rulemaking activities, as 
appropriate, and also requires consideration of the benefits of 
transportation programs, policies, and other activities where minority 
populations and low-income populations benefit, at a minimum, to the 
same level as the general population as a whole when determining 
impacts on minority and low-income populations. FRA has evaluated this 
proposed rule under Executive Order 12898 and the DOT Order and has 
determined it would not cause disproportionately high and adverse human 
health and environmental effects on minority populations or low-income 
populations.
---------------------------------------------------------------------------

    \42\ 59 FR 7629 (Feb. 16, 1994).
    \43\ Available at: https://www.transportation.gov/sites/dot.gov/files/Final-for-OST-C-210312-003-signed.pdf.
---------------------------------------------------------------------------

L. Executive Order 13175 (Tribal Consultation)

    FRA has evaluated this proposed rule in accordance with the 
principles and criteria contained in Executive Order 13175, 
Consultation and Coordination with Indian Tribal Governments, dated 
November 6, 2000. The proposed rule would not have a substantial direct 
effect on one or more Indian tribes, would not impose substantial 
direct compliance costs on Indian tribal governments, and would not 
preempt tribal laws. Therefore, the funding and consultation 
requirements of Executive Order 13175 do not apply, and a tribal 
summary impact statement is not required.

List of Subjects in 49 CFR Part 227

    Hazardous materials transportation, Incorporation by reference, 
Locomotive noise control, Occupational safety and health, Penalties, 
Railroad employees,

[[Page 17330]]

Railroad safety, Reporting and recordkeeping requirements.

The Proposed Rule

    For the reasons discussed in the preamble, FRA proposes to amend 
part 227 of chapter II, subtitle B of title 49 of the Code of Federal 
Regulations as follows:

PART 227--OCCUPATIONAL SAFETY AND HEALTH IN THE LOCOMOTIVE CAB

0
1. The authority citation for part 227 is revised to read as follows:

    Authority:  49 U.S.C. 20103, 20103 note, 20166, 20701-20703, 
21301, 21302, 21304; 28 U.S.C. 2461 note; and 49 CFR 1.89.

0
2. Revise the heading for part 227 to read as set forth above.
0
3. Revise Sec.  227.1 to read as follows:


Sec.  227.1  Purpose and scope.

    (a) General. The purpose of this part is to protect the 
occupational safety and health of certain employees who are exposed to 
occupational dangers while in the cab of the locomotive. This part 
prescribes minimum Federal safety and health standards for certain 
locomotive cab occupants. This part does not restrict a railroad or 
railroad contractor from adopting and enforcing additional or more 
stringent requirements.
    (b) Subpart B. The purpose of subpart B is to protect the 
occupational safety and health of employees whose predominant noise 
exposure occurs in the locomotive cab. This subpart prescribes minimum 
Federal safety and health noise standards for locomotive cab occupants.
    (c) Subpart C. The purpose of subpart C is to protect the 
occupational safety and health of train employees and certain other 
employees in the cab of the locomotive of a freight train that is 
transporting a PIH material that, if released due to a railroad 
accident/incident, would pose an inhalation hazard to the occupants. In 
particular, subpart C is intended to protect these employees from the 
risk of exposure to the material while they are located in, or during 
escape from, the locomotive cab.
0
4. Revise paragraph (a), the introductory text of paragraph (b), and 
paragraph (b)(5), and add paragraphs (c) and (d) to read as follows:


Sec.  227.3  Application.

    (a) Except as provided in paragraph (b) of this section, Subpart B 
of this part applies to all railroads and contractors to railroads.
    (b) Subpart B of this part does not apply to--
* * * * *
    (5) Foreign railroad operations that meet the following conditions: 
Employees of the foreign railroad have a primary reporting point 
outside of the U.S. but are operating trains or conducting switching 
operations in the U.S.; and the government of that foreign railroad has 
implemented requirements for hearing conservation for railroad 
employees; the foreign railroad undertakes to comply with those 
requirements while operating within the U.S.; and FRA's Associate 
Administrator for Railroad Safety/Chief Safety Officer determines that 
the foreign requirements are consistent with the purpose and scope of 
subpart B of this part. A ``foreign railroad'' refers to a railroad 
that is incorporated in a place outside the U.S. and is operated out of 
a foreign country but operates for some distance in the U.S.
    (c) Except as provided in paragraph (d) of this section, subpart C 
of this part applies to any railroad that operates a freight train that 
transports a PIH material, including a residue of such a PIH material, 
on standard gage track that is part of the general railroad system of 
transportation.
    (d) Subpart C of this part does not apply to a railroad that 
operates only on track inside an installation that is not part of the 
general railroad system of transportation.
0
5. In Sec.  227.5, add, in alphabetical order, definitions for 
``accident/incident'', ``Associate Administrator for Railroad Safety/
Chief Safety Officer'', ``atmosphere immediately dangerous to life or 
health (IDLH)'', ``atmosphere-supplying device'', ``deadheading'', 
``division headquarters'', ``emergency escape breathing apparatus or 
EEBA'', ``foreign railroad'', ``freight car'', ``freight train'', 
``hazardous material'', ``hazardous employee'', ``In service or in-
service'', ``intermodal container'', ``ISO'', ``NIOSH'', ``PIH 
material'', ``residue'', ``state'', ``switching service'', ``system 
headquarters'', ``train employee'', and ``United States'' to read as 
follows:


Sec.  227.5  Definitions.

    As used in this part--
    Accident/incident has the meaning that is assigned to that term by 
Sec.  225.5 of this chapter.
* * * * *
    Associate Administrator for Railroad Safety/Chief Safety Officer 
means the Associate Administrator for Railroad Safety/Chief Safety 
Officer, Federal Railroad Administration, 1200 New Jersey Avenue SE, 
Washington, DC 20590.
    Atmosphere immediately dangerous to life or health (IDLH) means an 
atmosphere that poses an immediate threat to life, would cause 
irreversible adverse health effects, or would impair an individual's 
ability to escape from a dangerous atmosphere. Atmosphere-supplying 
device means a respirator that supplies the respirator user with 
breathing air from a source that is independent of the ambient 
atmosphere. Such devices include supplied-air respirators and self-
contained breathing apparatus units.
* * * * *
    Deadheading means the physical relocation of a train employee from 
one point to another as a result of a railroad-issued oral or written 
directive.
    Division headquarters means the location designated by the railroad 
where a high-level operating manager (e.g., a superintendent, division 
manager, or equivalent), who has jurisdiction over a portion of the 
railroad, has an office.
    Emergency escape breathing apparatus or EEBA means an atmosphere-
supplying respirator device that is designed for use only during escape 
from a hazardous atmosphere.
* * * * *
    Freight car means a vehicle designed to transport freight, or 
railroad personnel, by rail and includes, but is not limited to, a--
    (1) Box car;
    (2) Refrigerator car;
    (3) Ventilator car;
    (4) Stock car;
    (5) Gondola car;
    (6) Hopper car;
    (7) Flat car;
    (8) Special car;
    (9) Caboose;
    (10) Tank car; and
    (11) Yard car.
    Freight train means one or more locomotives coupled with one or 
more freight cars, except during switching service.
    Hazardous material has the meaning assigned to that term by Sec.  
171.8 of this title.
    Hazmat employee has the meaning assigned to that term by Sec.  
171.8 of this title.
* * * * *
    In service or in-service when used in connection with a freight 
train, means each freight train subject to this part unless the train--
    (1) Is in a repair shop or on a repair track;
    (2) Is on a storage track and its cars are empty; or

[[Page 17331]]

    (3) Has been delivered in interchange but has not been accepted by 
the receiving carrier.
    Intermodal container means a freight container designed and 
constructed to permit it to be used interchangeably in two or more 
modes of transportation.
    ISO means the International Organization for Standardization, a 
network of national standards institutes in 162 countries, including 
the United States through the American National Standards Institute, 
that develops international standards to assist in ensuring the safe 
performance of a wide range of devices, including EEBAs.
* * * * *
    NIOSH means the National Institute for Occupational Safety and 
Health, a Federal agency responsible for conducting research and making 
recommendations for the prevention of work-related injury and illness, 
which is part of the Centers for Disease Control and Prevention in the 
U.S. Department of Health and Human Services and which certifies 
industrial-type respirators in accordance with the NIOSH respiratory 
regulations (42 CFR part 84 (June 8, 1995)).
* * * * *
    PIH material means any of the hazardous materials that are a gas, 
liquid, or other material defined as a ``material poisonous by 
inhalation'' by Sec.  171.8 of this title.
* * * * *
    Residue has the meaning assigned to the term by Sec.  171.8 of this 
title.
* * * * *
    State means a State of the United States of America or the District 
of Columbia.
* * * * *
    Switching service means the classification of freight cars 
according to commodity or destination; assembling of cars for train 
movements; changing the position of cars for purposes of loading, 
unloading, or weighing; placing of locomotives and cars for repair or 
storage; or moving of rail equipment in connection with work service 
that does not constitute a freight train movement.
    System headquarters means the location designated by the railroad 
as the general office for the railroad system.
* * * * *
    Train employee means an individual who is engaged in or connected 
with the movement of a train, including a hostler, as defined in 49 
U.S.C. 21101.
* * * * *
    United States means all of the States and the District of Columbia.
0
6. Remove and reserve Sec.  227.7.


Sec.  227.7  [Removed and Reserved]

0
7. Amend Sec.  227.15 by revising paragraph (b) to read as follows:


Sec.  227.15  Information collection.

* * * * *
    (b) The information collection requirements are found in the 
following sections: Sec. Sec.  227.13, 227.103, 227.107, 227.109, 
227.111, 227.117, 227.119, 227.121, 227.201, 227.203, 227.205, 227.207, 
227.209, 227.211, 227.213, and 227.215.
0
8. Amend Sec.  227.103 by revising paragraphs (a)(1) and (a)(2) to read 
as follows:


Sec.  227.103  Noise monitoring program.

    (a) * * *
    (1) Class I, passenger, and commuter railroads no later than 
February 26, 2008.
    (2) Railroads with 400,000 or more annual employee hours that are 
not Class I, passenger, or commuter railroads no later than August 26, 
2008.
* * * * *
0
9. Amend Sec.  227.109 by revising paragraph (e)(2)(i) to read as 
follows:


Sec.  227.109  Audiometric testing program.

* * * * *
    (e) * * *
    (2) * * *
    (i) For all employees without a baseline audiogram as of February 
26, 2007, Class I, passenger, and commuter railroads, and railroads 
with 400,000 or more annual employee hours shall establish a valid 
baseline audiogram by February 26, 2009; and railroads with less than 
400,000 annual employee hours shall establish a valid baseline 
audiogram by February 26, 2010.
* * * * *
0
10. Amend Sec.  227.119 by revising paragraph (b)(2) to read as 
follows:


Sec.  227.119  Training program.

* * * * *
    (b) * * *
    (2) For employees hired on or before February 26, 2007, by Class I, 
passenger, and commuter railroads, and railroads with 400,000 or more 
annual employee hours, by no later than February 26, 2009;
* * * * *
0
11. Add subpart C to part 227 to read as follows:
Subpart C--Emergency Escape Breathing Apparatus Standards
Sec.
227.201 Criteria for requiring availability of EEBAs in the 
locomotive cab.
227.203 Criteria for selecting EEBAs.
227.205 Storage facilities for EEBAs.
227.207 Railroad's program for inspection, maintenance, and 
replacement of EEBAs; requirements for procedures.
227.209 Railroad's program of instruction on EEBAs.
227.211 Requirement to implement a general EEBA program; criteria 
for placing employees in the general EEBA program.
227.213 Employee's responsibilities.
227.215 Recordkeeping in general.
227.217 Compliance dates.
227.219 Incorporation by reference.

Subpart C--Emergency Escape Breathing Apparatus Standards


Sec.  227.201  Criteria for requiring availability of EEBAs in the 
locomotive cab.

    (a) In general. (1)(i) Except as specified in paragraph (b) of this 
section, a railroad is required to provide an EEBA to each of the 
following of its employees while the employee is located in the cab of 
a locomotive of an in-service freight train transporting a PIH 
material, including a residue of a PIH material:
    (1) Any train employee;
    (2) Any direct supervisor of the train employee;
    (3) Any employee who is deadheading; and
    (4) Any other employee designated by the railroad in writing and at 
the discretion of the railroad.
    (ii) Each EEBA provided to an employee identified in paragraph 
(a)(1)(i) of this section must meet the EEBA-selection criteria of 
Sec.  227.203 and must have been inspected and be in working order 
pursuant to the requirements of Sec.  227.207 at the time that the EEBA 
is provided to the employee.
    (2) Except as specified in paragraph (b) of this section, a 
railroad shall not use a locomotive to transport a PIH material, 
including a residue of a PIH material, in an in-service freight train 
unless each of the employees identified in paragraph (a)(1)(i) of this 
section while occupying a locomotive cab of the train has access to an 
EEBA that satisfies the EEBA selection criteria in Sec.  227.203 and 
that has been inspected and is in working order pursuant to the 
requirements in Sec.  227.207.
    (b) Exceptions. (1) A railroad is not required to provide an EEBA, 
or make accessible an EEBA, to an employee while in the locomotive cab 
of an in-service freight train transporting a PIH material if all of 
the PIH materials in the train, including a residue of a PIH material, 
are being transported in one or more intermodal containers.
    (2) This subpart does not apply to any of the following:
    (i) Employees who are moving a locomotive or group of locomotives 
coupled to a car or group of cars transporting a PIH material, 
including a

[[Page 17332]]

residue of a PIH material, only within the confines of a locomotive 
repair or servicing area.
    (ii) Employees who are moving a locomotive or group of locomotives 
coupled to a car or group of cars transporting a PIH material, 
including a residue of a PIH material for distances of less than 100 
feet for inspection or maintenance purposes.
    (c) Notwithstanding any exceptions identified in this subpart, any 
employee who willfully tampers with or vandalizes an EEBA shall be 
subject to this subpart for purposes of enforcement relating to Sec.  
227.213 (Employee's responsibilities).


Sec.  227.203  Criteria for selecting EEBAs.

    In selecting the appropriate EEBA to provide to an employee, the 
railroad shall do the following:
    (a) Select an atmosphere-supplying EEBA that protects against all 
PIH materials (including their residue) that are being transported by 
the freight train while in service.
    (b) Ensure that the type of respirator selected meets the 
requirements of paragraph (c)(1) of this section regarding minimum 
breathing capacity and is--
    (1) Certified for an escape only purpose by NIOSH pursuant to 42 
CFR part 84, or
    (2) Declared by the manufacturer, based on verifiable testing by 
the manufacturer or an independent third party, to meet the criteria 
established by one of the following:
    (i) ISO 23269-1:2008(E) (incorporated by reference, see Sec.  
227.219);
    (ii) BS EN 13794:2002 E (incorporated by reference, see Sec.  
227.219); or
    (iii) BS EN 1146:2005: E (incorporated by reference, see Sec.  
227.219).
    (c) Document, and provide such documentation for inspection by FRA 
upon request, the rationale for the final selection of an EEBA by 
addressing each of the following concerns:
    (1) Breathing time. Each EEBA must be fully charged and contain a 
minimum breathing capacity of 15 minutes at the time of the pre-trip 
inspection required under Sec.  227.207(a)(1).
    (2) Head and neck protection. The EEBA selected must provide a 
means of protecting the individual's head and neck from the irritating 
effects of PIH materials to facilitate escape.
    (3) Accommodation for eyeglasses and a range of facial features. 
The EEBA selected must provide a means of protecting each employee who 
is required to be provided with the EEBA, including those who wear 
glasses, and allow for the reasonable accommodation of each such 
employee's facial features, including facial hair.


Sec.  227.205   Storage facilities for EEBAs.

    (a) A railroad may not use a locomotive if it is part of an in-
service freight train transporting a PIH material, including a residue 
of a PIH material, and the locomotive cab is occupied by an employee 
identified in Sec.  227.201(a)(1)(i)(A)-(D) (subject employee), unless 
the locomotive cab has appropriate storage facilities to hold the 
number of EEBAs required to be provided.
    (b) The storage facility for each required EEBA must--
    (1) Prevent deformation of the face piece and exhalation valve, 
where applicable;
    (2) Protect the EEBA from incidental damage, contamination, dust, 
sunlight, extreme temperatures, excessive moisture, and damaging 
chemicals;
    (3) Provide each subject employee located in the locomotive cab 
with ready access to the EEBA during an emergency; and
    (4) Provide a means for each subject employee to locate the EEBA 
under adverse conditions such as darkness or disorientation.
    (c) A railroad must comply with the applicable manufacturer's 
instructions for storage of each required EEBA and must keep a copy of 
the instructions at its system headquarters for FRA inspection.


Sec.  227.207   Railroad's program for inspection, maintenance, and 
replacement of EEBAs; requirements for procedures.

    (a) General. Each railroad shall establish and comply with a 
written program for inspection, maintenance, and replacement of EEBAs 
that are required under this subpart. The program for inspection, 
maintenance, and replacement of EEBAs shall be maintained at the 
railroad's system headquarters and shall be amended, as necessary, to 
reflect any significant changes. This program shall include the 
following procedures:
    (1) Procedures for performing and recording a pre-trip inspection 
of each EEBA that is required to be provided on a locomotive being used 
to transport a PIH material and procedures for cleaning, replacing, or 
repairing each required EEBA, if necessary, prior to its being provided 
under Sec.  227.201(a);
    (2) Procedures for performing and recording periodic inspections 
and maintenance of each required EEBA in a manner and on a schedule in 
accordance with the manufacturer's recommendations; and
    (3) Procedures for turning in and obtaining a replacement for a 
defective, failed, or used EEBA and for recording those transactions.
    (b) Inspection procedures and records. (1) A railroad's procedures 
for pre-trip and periodic inspections of EEBAs shall require that the 
following information about each pre-trip and periodic inspection be 
accurately recorded on a tag or label that is attached to the storage 
facility for the EEBA or kept with the EEBA or in inspection reports 
stored as paper or electronic files:
    (i) The name of the railroad performing the inspection;
    (ii) The date that the inspection was performed;
    (iii) The name and signature of the individual who made the 
inspection;
    (iv) The findings of the inspection;
    (v) The required remedial action; and
    (vi) A serial number or other means of identifying the inspected 
EEBA.
    (2) A railroad shall maintain an accurate record of each pre-trip 
and periodic inspection required by this section. Pre-trip inspection 
records shall be retained for a period of 92 days. Periodic inspection 
records shall be retained for a period of one year.
    (c) Procedures applicable if EEBA fails an inspection or is used. 
An EEBA that fails an inspection required by this section, is otherwise 
found to be defective, or is used, shall be removed from service and be 
discarded, repaired, adjusted, or cleaned in accordance with the 
following procedures:
    (1) Repair, adjustment, and cleaning of EEBAs shall be done only by 
persons who are appropriately trained to perform such work and who 
shall use only the EEBA manufacturer's approved parts designed to 
maintain the EEBA in compliance with one of the following standards:
    (i) NIOSH at 42 CFR part 84;
    (ii) ISO 23269-1:2008(E) (incorporated by reference, see Sec.  
227.219);
    (iii) BS EN 1146:2005: E (incorporated by reference, see Sec.  
227.219); or
    (iv) BS EN 13794:2002 E (incorporated by reference, see Sec.  
227.219).
    (2) Repairs shall be made according to the manufacturer's 
recommendations and specifications for the type and extent of repairs 
to be performed.
    (3) Where applicable, reducing and admission valves, regulators, 
and alarms shall be adjusted or repaired only by the manufacturer or a 
technician trained by the manufacturer.
    (d) Records of returns, maintenance, repair, and replacement. A 
railroad shall--
    (1) Maintain an accurate record of return, maintenance, repair, or 
replacement for each EEBA required by this subpart; and

[[Page 17333]]

    (2) Retain each of these records for three years.


Sec.  227.209  Railroad's program of instruction on EEBAs.

    (a) General. (1) A railroad shall adopt and comply with its written 
program of instruction on EEBAs for all of its employees in its general 
EEBA program under Sec.  227.211 (subject employees). The program of 
instruction shall be maintained at the railroad's system headquarters 
and shall be amended, as necessary, to reflect any significant changes.
    (2) This program may be integrated with the railroad's program of 
instruction on operating rules under Sec.  217.11 of this chapter or 
its program of instruction for hazmat employees under Sec.  172.704 of 
this title. If the program is not integrated with either of these 
programs, it must be written in a separate document that is available 
for inspection by FRA.
    (b) Subject matter. The railroad's program of instruction shall 
require that the subject employees demonstrate knowledge of at least 
the following:
    (1) Why the EEBA is necessary and how improper fit, usage, or 
maintenance can compromise the protective effect of the EEBA.
    (2) The capabilities and limitations of the EEBA, particularly the 
limited time for use.
    (3) How to use the EEBA effectively in emergency situations, 
including situations in which the EEBA malfunctions.
    (4) How to inspect, put on, remove, and use the EEBA, and how to 
check the seals of the EEBA.
    (5) Procedures for maintenance and storage of the EEBA that must be 
followed.
    (6) The EEBA-selection criteria in Sec.  227.203.
    (7) The requirements of this subpart related to the 
responsibilities of employees and the rights of employees to have 
access to records.
    (8) The hazardous materials classified as PIH materials.
    (c) Dates of initial instruction and intervals for periodic 
instruction. (1) The instruction for current subject employees shall be 
provided on an initial basis no later than 30 days prior to the date of 
compliance identified in Sec.  227.217. Initial instruction of new 
subject employees shall occur either 30 days prior to the date of 
compliance identified in Sec.  227.217 or before assignment to jobs 
where the deployment of EEBAs on a locomotive is required, whichever is 
later.
    (2) Initial instruction shall be supplemented with periodic 
instruction at least once every three years.
    (d) Records of instruction. A railroad shall maintain a record of 
employees provided instruction in compliance with this section and 
retain these records for three years.


 Sec.  227.211   Requirement to implement a general EEBA program; 
criteria for placing employees in the general EEBA program.

    (a) In general. A railroad shall adopt and comply with a 
comprehensive, written, general program to implement this subpart that 
shall be maintained at the railroad's system headquarters. Each 
railroad shall amend its general EEBA program, as necessary, to reflect 
any significant changes.
    (b) Elements of the general EEBA program and criteria for placing 
employees in program. A railroad's general EEBA program shall--
    (1) Identify the individual that implements and manages the 
railroad's general EEBA program by title. The individual must have 
suitable training and sufficient knowledge, experience, skill, and 
authority to enable him or her to manage properly a program for 
provision of EEBAs. If the individual is not directly employed by the 
railroad, the written program must identify the business relationship 
of the railroad to the individual fulfilling this role.
    (2) Describe the administrative and technical process for selection 
of EEBAs appropriate to the hazards that may be reasonably expected.
    (3) Describe the process used to procure and provide EEBAs in a 
manner to ensure the continuous and ready availability of an EEBA to 
each of the railroad's employees identified in Sec.  
227.201(a)(1)(i)(A)-(D) (while actually occupying the locomotive cab of 
a freight train in service transporting a PIH material). This 
description shall include--
    (i) A description of the method used for provision of EEBAs, 
including whether the EEBAs are individually assigned to employees, 
installed on locomotives as required equipment, or provided by other 
means. If EEBAs are installed on locomotives as required equipment, the 
means of securement shall be designated.
    (ii) The decision criteria used by the railroad to identify trains 
in which provision of EEBAs is not required.
    (iii) A description of what procedures will govern the railroad at 
interchange to ensure that the locomotive cab in each in-service 
freight train transporting a PIH material has an EEBA accessible to 
each of the employees identified in Sec.  227.201(a)(1)(i)(A)-(D) while 
in the cab of the locomotive, including what procedures are in place to 
ensure that the EEBAs provided satisfy the EEBA-selection criteria in 
Sec.  227.203, satisfy the EEBA-storage criteria in Sec.  227.205, and 
have been inspected and are in working order pursuant to the 
requirements in Sec.  227.207.
    (4) Ensure that each of the following employees, except those 
excluded by Sec.  227.201(b), whose duties require regular work in the 
locomotive cabs of in-service freight trains transporting a PIH 
material, including a residue of a PIH material, has the required EEBA 
available when they occupy the cab of such a train and know how to use 
the EEBA:
    (i) Employees who perform service subject to 49 U.S.C. 21103 (train 
employees) on such trains;
    (ii) Direct supervisors of train employees on such trains;
    (iii) Deadheading employees on such trains; and
    (iv) Any other employees designated by the railroad in writing and 
at the discretion of the railroad.
    (c) Records of positions or individuals or both in the railroad's 
general EEBA program. A railroad shall maintain a record of all 
positions or individuals, or both, who are designated by the railroad 
to be placed in its general EEBA program pursuant to Sec.  
227.211(b)(4). The railroad shall retain these records for the duration 
of the designation and for one year thereafter.
    (d) Consolidated programs. A group of two or more commonly 
controlled railroads subject to this subpart may request in writing 
that the Associate Administrator for Railroad Safety/Chief Safety 
Officer (Associate Administrator) treat them as a single railroad for 
purposes of adopting and complying with the general EEBA program 
required by this section. The request must list the parent corporation 
that controls the group of railroads and demonstrate that the railroads 
operate in the United States as a single, integrated rail system. The 
Associate Administrator will notify the railroads of his or her 
decision in writing.


Sec.  227.213   Employee's responsibilities.

    (a) An employee to whom the railroad provides an EEBA shall--
    (1) Participate in training under Sec.  227.209;
    (2) Follow railroad procedures to ensure that the railroad's 
EEBAs--
    (i) Are maintained in a secure and accessible manner;
    (ii) Are inspected as required by this subpart and the railroad's 
program of inspection; and
    (iii) If found to be unserviceable upon inspection, are turned in 
to the appropriate railroad facility for repair, periodic maintenance, 
or replacement; and

[[Page 17334]]

    (3) Notify the railroad of EEBA failures and of use incidents in a 
timely manner.
    (b) No employee shall willfully tamper with or vandalize an EEBA 
that is provided pursuant to Sec.  227.201(a) in an attempt to disable 
or damage the EEBA.


Sec.  227.215   Recordkeeping in general.

    (a) Availability of records. (1) A railroad shall make all records 
required by this subpart available for inspection and copying or 
photocopying to representatives of FRA, upon request.
    (2) Except for records of pre-trip inspections of EEBAs under Sec.  
227.207, records required to be retained under this subpart must be 
kept at the system headquarters and at each division headquarters where 
the tests and inspections are conducted.
    (b) Electronic records. All records required by this subpart may be 
kept in electronic form by the railroad. A railroad may maintain and 
transfer records through electronic transmission, storage, and 
retrieval provided that all of the following conditions are met:
    (1) The electronic system is designed so that the integrity of each 
record is maintained through appropriate levels of security such as 
recognition of an electronic signature, or other means, which uniquely 
identify the initiating person as the author of that record. No two 
persons have the same electronic identity.
    (2) The electronic system ensures that each record cannot be 
modified in any way, or replaced, once the record is transmitted and 
stored.
    (3) Any amendment to a record is electronically stored apart from 
the record that it amends. Each amendment to a record is uniquely 
identified as to the individual making the amendment.
    (4) The electronic system provides for the maintenance of records 
as originally submitted without corruption or loss of data.
    (5) Paper copies of electronic records and amendments to those 
records that may be necessary to document compliance with this subpart 
are made available for inspection and copying or photocopying by 
representatives of FRA.


Sec.  227.217   Compliance dates.

    (a) Class I railroads subject to this subpart are required to 
comply with this subpart beginning no later than 12 months from the 
effective date of the final rule.
    (b) Class II railroads subject to this subpart are required to 
comply with this subpart beginning no later than 12 months from the 
effective date of the final rule.
    (c) Class III railroads subject to this subpart and any other 
railroads subject to this subpart are required to comply with this 
subpart beginning no later than 18 months from the effective date of 
the final rule.


Sec.  227.219   Incorporation by reference.

    (a) Certain material is incorporated by reference into this subpart 
with the approval of the Director of the Federal Register under 5 
U.S.C. 552(a) and 1 CFR part 51. This incorporation by reference (IBR) 
material is available for inspection at the FRA and the National 
Archives and Records Administration (NARA). Contact FRA at: Federal 
Railroad Administration, 1200 New Jersey Avenue SE, Washington, DC 
20590; phone: (202) 493-6052; email: [email protected]. For information 
on the availability of this material at NARA, visit www.archives.gov/federal-register/cfr/ibr-locations.html or email 
[email protected].Error! Hyperlink reference not valid. The 
material may be obtained from the following sources:
    (b) International Organization for Standardization, Chemin de 
Blandonnet 8, CP 401, 1214 Vernier, Geneva, Switzerland, telephone +41-
22-749-08-88 or https://www.iso.org/standard/50245.html.
    (1) ISO 23269-1:2008(E), Ships and marine technology--Breathing 
apparatus for ships--Part 1: Emergency escape breathing devices (EEBD) 
for shipboard use, First Edition, February 1, 2008;, into Sec. Sec.  
227.203(b) and 227.207(c).
    (2) [Reserved]
    (c) The British Standards Institution, 12110 Sunset Hills Road, 
Suite 200, Reston, VA 20190-5902, telephone: 800-862-4977 or http://shop.bsigroup.com.
    (1) BS EN 13794:2002 E, Respiratory Protective Devices--Self-
Contained, Closed-Circuit Breathing Apparatus for Escape--Requirements, 
Testing, Marking, November 2002 Sec. Sec.  227.203(b) and 227.207(c).
    (2) BS EN 1146:2005: E, Respiratory Protective Devices--Self-
Contained, Open-Circuit Compressed Air Breathing Apparatus 
Incorporating a Hood for Escape--Requirements, Testing, Marking; 
September 2005; into Sec. Sec.  227.203(b) and 227.207(c).

    Issued in Washington, DC.
Amitabha Bose,
Administrator.
[FR Doc. 2023-05074 Filed 3-21-23; 8:45 am]
BILLING CODE 4910-06-P


