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MAJOR RECOMMENDATIONS The committee places utmost importance on the following recommen- dations, which concern (1) the need for a systems approach in post- disaster research and development, (2) the importance of planning for effective response to mine emergencies, (3) the development of an oxygen-providing escape breathing apparatus, (4) the design of escape, survival, and rescue equipment and the training of miners in its use, and (5) the development of an improved data base for decisions concerning post-disaster R&D. These recommendations are summarized here with parenthetical references indicating the chapters in which they are discussed. Other recommendations are found in the text of the report and are summarized at the end of each chapter. A Systems Approach for Post-Disaster R&D 1. In managing its post-disaster R&D program, the Bureau of Mines should adopt a systems approach. The entire post-disaster response systemâencompassing research, design, planning, operations, training, regulation, and enforcementâshould be viewed as a whole. In every phase of the R&D program, the Bureau should involve all parties who will ultimately be involved in implementing the R&D results. These include government agencies, mine operators, unions, and mine equip- ment manufacturers. The Bureau must actively solicit this input, not just invite it. The mining companies and unions must actively participate in the process. (Chapter 5) 2. The Bureau should institute management procedures that ensure continual evaluation of the interrelations between different research projects and that ensure assessment of their combined effectiveness in achieving program goals. (Chapter 3) 3. In evaluating both proposed and ongoing research projects, the Bureau should utilize outside review by research scientists and engineers, manufacturers and users, and experts from related areas in other programs and industries. In particu- lar, input should be sought from those with actual experience in the area under study (e.g., mine rescue team captains, miners who have successfully barricaded, etc.), and those who are likely to use the R&D results. (Chapter 3) -3-
4. In developing new systems, the Bureau should provide for adequate R&D, demonstration, and testing of key components of the system before proceeding with development of the inte- grated system. (Chapter 3) 5. The Bureau, MSHA, NIOSH, state regulatory agencies, mining companies, unions, and manufacturers should cooperate in the development and implementation of new devices and procedures. Ideally, rulemaking should evolve only after the new tech- nology has been adequately tested and proven, using devices constructed as they would be in mass commercial manufacture. Companies should be offered incentives to participate in product development and testing of early designs. For this cooperative interaction to work it must begin at the research initiation phase and continue through research, product development, demonstration, testing, approval, and marketing. (Chapter 3) 6. The joint USBM-MSHA procedure for assigning priorities to suggested research projects should be examined to ascertain whether it actually meets industry's safety needs. In par- ticular, the bias in favor of short-term, low cost projects should be critically evaluated. (Chapter 3) Planning for Effective Emergency Response 7. Guidelines and criteria should be established for use by mine operators in developing disaster plans and training programs, and by MSHA in evaluating those plans and programs. While this clearly is an MSHA responsibility, the Bureau of Mines should provide the necessary foundation by conducting research aimed at developing methodologies for testing and evaluating mine emergency plans using simulation or other appropriate techniques. The Bureau should also undertake R&D to develop specific techniques for applying system safety analysis to mine disasters. This should include the development of sys- tematic methods for identifying and investigating potential disaster situations. These methods should be made available to MSHA and to the mining industry. (Chapter 4) 8. Guidelines and standards should be developed for integration of a mine's emergency medical care system and emergency com- munication system into the emergency medical care and emer- gency communication systems serving the local community. (Chapter 4) 9. Emergency medical care training for miners should be developed and evaluated in light of realistic assessments of need and utilization. Ongoing refresher training must be a part of this system. (Chapter 4) 10. A careful and systematic assessment should be undertaken of the risks involved in non-routine underground mining activi- ties. All such activities should be backed up with well- defined disaster response procedures. All personnel involved in the activity should be familiar with, and trained in, evacuation and disaster response procedures. (Chapter 2) 11. The federal government's mine emergency response capability, and specifically MSHA's Mine Emergency Operations (MEO) group, -4-
should be evaluated in the context of the complete emergency response system. The feasibility and effectiveness of mechanisms other than the present MEO structure should be examined. (Chapter 4) An Oxygen-Providing Escape Breathing Apparatus 12. R&D on an oxygen-providing escape breathing apparatus should be continued, with major emphasis on a system that is designed for escape and can be carried on the miner's person. (Chapter 3) 13. Physiological and metabolic research, combined with simulation of mine emergencies requiring escape efforts, should be undertaken to establish realistic oxygen rate and time dura- tion requirements for an escape breathing apparatus. This should include a reexamination of the validity of the one-hour requirement, and if the one-hour duration is found to be unnecessary, it should include determination of the appro- priate time requirement. (Chapter 3) 14. A systems study should be undertaken to identify the design requirements and optimum strategies associated with the various options for meeting the necessary time duration requirement for an escape breathing apparatus, including cached devices and "piggy-back" systems. This will provide a rational basis for tradeoffs leading to a system with which the miner's prospects for survival are maximized. (Chapter 3) Design of Escape, Survival and Rescue Equipment and Training of Miners in its Use 15. Realistic design criteria for escape, survival and rescue equipment should be established early in the R&D process, and should take into account the nature of mine emergencies, the conditions under which the equipment will be used, and the human element in its use. R&D progress should continually be assessed in light of these criteria. (Chapter 5) 16. Among the considerations in the design and evaluation of emergency equipment should be the need to train miners in its use in actual or simulated emergency conditions. This may require simulation techniques analogous in principle to use of the Link Trainer in aviation. (Chapter 5) 17. More attention should be given to developing equipment for communication among rescue team members. (Chapter 3) 18. Continued research on oxygen sources for breathing apparatus should be carried out. (Chapter 3) 19. Continued research on rescue breathing apparatus is needed, with emphasis on an apparatus that provides greater comfort over longer working periods and on a mine rescue team helmet- breathing apparatus configuration that promotes both comfort and utility. (Chapter 3) 20. The applicability of the refuge chamber concept should be examined in detail, with emphasis on the relative utility of refuge chambers and other kinds of survival system elements such as better barricading techniques and improved mine layouts with a multiplicity of escapeways. (Chapter 3) -5-
21. The Bureau should undertake R&D to develop improved capabil- ities for rescue work in deep and hot mines. (Chapter 2) 22. The Bureau should make a more active effort to study tech- nology developed in other industries and other countries that might be applicable or adaptable to mine disaster survival and rescue efforts in the United States. (Chapter 3) An Improved Data Base for Post-Disaster R&D 23. Present reporting and investigating procedures should be examined to see if they adequately serve their purpose, or whether an alternative approachâsuch as investigation of mine disasters by an independent body analogous to the National Transportation Safety Boardâwould be more effective. (Chapter 2) 24. It is essential to collect and analyze data on the medical causes of death or disability in mine disasters in order to determine the adequacy of the medical training, equipment, and procedures in the mine emergency response system, and to identify research needed to enhance the likelihood of survival for those injured in disasters. (Chapter 4) 25. In compiling data on past accidents and disasters, it would be useful to include information on situations that had the potential to develop into major disasters but didn't. Such "near misses" are likely to occur more frequently than actual disasters. A provision for granting immunity from punitive action to those who report such incidents should be considered as an element of the reporting system. (Chapter 2) -6-
