81_FR_83334 81 FR 83110 - Federal Employees Health Benefits Program Coverage for Certain Firefighters and Intermittent Emergency Response Personnel

81 FR 83110 - Federal Employees Health Benefits Program Coverage for Certain Firefighters and Intermittent Emergency Response Personnel

OFFICE OF PERSONNEL MANAGEMENT

Federal Register Volume 81, Issue 224 (November 21, 2016)

Page Range83110-83112
FR Document2016-27901

The Office of Personnel Management (OPM) is issuing a final rule to amend the Federal Employees Health Benefits (FEHB) Program regulations to make certain firefighters hired under a temporary appointment and certain intermittent emergency response personnel eligible to be enrolled in a health benefits plan under the FEHB Program. These amendments were the subject of interim rules published on July 19, 2012 and November 14, 2012.

Federal Register, Volume 81 Issue 224 (Monday, November 21, 2016)
[Federal Register Volume 81, Number 224 (Monday, November 21, 2016)]
[Rules and Regulations]
[Pages 83110-83112]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-27901]



[[Page 83110]]

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OFFICE OF PERSONNEL MANAGEMENT

5 CFR Part 890

RIN 3206-AM66


Federal Employees Health Benefits Program Coverage for Certain 
Firefighters and Intermittent Emergency Response Personnel

AGENCY: Office of Personnel Management.

ACTION: Final rule.

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

SUMMARY: The Office of Personnel Management (OPM) is issuing a final 
rule to amend the Federal Employees Health Benefits (FEHB) Program 
regulations to make certain firefighters hired under a temporary 
appointment and certain intermittent emergency response personnel 
eligible to be enrolled in a health benefits plan under the FEHB 
Program. These amendments were the subject of interim rules published 
on July 19, 2012 and November 14, 2012.

DATES: This rule is effective November 21, 2016.

FOR FURTHER INFORMATION CONTACT: Michael W. Kaszynski, Senior Policy 
Analyst at [email protected] or (202) 606-0004.

SUPPLEMENTARY INFORMATION: This final rule provides eligibility for 
health insurance coverage under the Federal Employees Health Benefits 
(FEHB) Program to certain wildfire protection employees and certain 
intermittent emergency response personnel. The Federal Government has a 
critical need to hire and quickly deploy qualified firefighters, other 
fire protection personnel, and certain intermittent emergency response 
personnel to areas of the country where disasters caused by humans or 
nature require their services. The Federal agencies that routinely 
deploy firefighters to respond to these disasters, including the 
Departments of Agriculture and Interior, have used temporary 
appointment authorities which provide the flexibility they need to 
quickly increase their firefighting workforce during wildfire 
emergencies and then to decrease the workforce when the emergencies are 
resolved.
    Pursuant to 5 U.S.C. 8913(b), OPM has broad authority to prescribe 
the conditions under which employees are eligible to enroll in the FEHB 
Program and is empowered to include or exclude employees on the basis 
of the nature and type of their employment or conditions pertaining to 
their appointments, including the duration of the appointments. This 
regulation allows agencies to make FEHB coverage offers to these 
firefighters and fire protection personnel, as well as their families, 
pursuant to OPM's broad regulatory authority under 5 U.S.C. 8913(b), 
allowing them to obtain health insurance through their employers on day 
one of employment.
    OPM deems the extension of offers of coverage to be appropriate 
because firefighters face unique hazards and risks to their health. The 
day-to-day job of a firefighter involves frequent exposure to 
environmental risk factors that can precipitate the onset of severe and 
life-threatening diseases like cancer. See Guidotti TL, Evaluating 
causality for occupational cancers: the example of firefighters. Occup. 
Med. (Lond). 2007;57;466-71. The nature of this work necessarily 
involves intense physical stress that can result in potentially fatal 
cardiac events, job-related injuries, and an adverse psychological 
impact. See U.S. Dep't of Homeland Security, U.S. Fire Admin., Fire-
Related Firefighter Injuries Reported to NFIRS, Topical Fire Report 
Series, Vol. 11, Issue 7, February 2011, available at http://www.usfa.fema.gov/downloads/pdf/statistics/v11i7.pdf; Kales SN, 
Soteriades ES, Christoudias SG, Christiani DC, Firefighters and on-duty 
deaths from coronary heart disease: a case control study. Environ. 
Health. 2003; 2(1):14; Carey MG, Al-Zaiti SS, Dean GE, Sessanna L, 
Finnell DS, Sleep Problems, Depression, Substance Use, Social Bonding, 
and Quality of Life in Professional Firefighters. J. Occup. Environ. 
Med. 2011; 53(8):928-33.
    Although firefighters are eligible for workers' compensation for 
injuries suffered on the job, they nonetheless have a heightened need 
for health insurance coverage, so that they can obtain preventive care 
and benefit from early detection of the chronic and life-threatening 
conditions from which they face increased risk, in addition to 
receiving treatment for illnesses and injuries from which they are 
currently suffering. Providing firefighters coverage under the FEHB 
Program acknowledges the unique hazards and increased risks that they 
face for their Federal service and enhances the quality of their lives 
by ensuring access to the medical benefits necessary to promote 
prevention and early intervention, as well as treatment for diseases 
that cannot be prevented.
    In addition, in order to protect the public health and safety, the 
Departments of Agriculture and Interior have had a critical need over 
the years for experienced firefighting personnel. The agencies wish not 
only to recruit experienced firefighters this year, but also to 
maintain their interest in returning to serve during subsequent fire 
seasons. Offering health insurance coverage on day one of employment 
will support these Departments' efforts to recruit and retain qualified 
firefighters and fire protection personnel for both this year's and 
future fire seasons. OPM is working closely with the Departments of 
Agriculture and Interior to ensure firefighters are able to promptly 
enroll for FEHB coverage with minimal burden.
    OPM recognizes that there may be other groups of employees not 
currently eligible for the FEHB Program because of the nature of their 
work schedules, but who are similarly situated to firefighting 
personnel in that they perform emergency response services. 
Accordingly, OPM has also added a new subsection (i) to its regulations 
that permits agencies to request that OPM extend FEHB coverage to such 
employees. OPM intends to construe this subsection narrowly, applying 
it only to employees engaged in emergency response services similar to 
the services being performed by those responding to the wildfires, and 
only when requested by their employing agencies.
    On July 19, 2012, OPM issued an interim final regulation to extend 
eligibility for health insurance coverage and a full Government 
contribution under the FEHB Program to temporary firefighters and fire 
protection personnel at 77 FR 42417. In addition, recognizing that 
there may be other groups of employees not currently covered by the 
FEHB Program because of the temporary nature of their appointments, the 
interim rule allowed agencies to request that OPM extend FEHB coverage 
to similarly situated temporary employees. We also solicited comments 
from the public regarding whether OPM should explicitly provide FEHB 
coverage to employees who are appointed pursuant to section 306(b)(1) 
of the Robert T. Stafford Disaster Relief and Emergency Assistance Act 
(42 U.S.C. 5149(b)(1)) (``Stafford Act'') to respond to major disasters 
and emergencies declared by the President.
    In the meantime, a major natural disaster, Hurricane Sandy, struck 
the East Coast of the United States at the end of October 2012. The 
storm resulted in loss of life and major destruction of property across 
a wide swath of the Eastern seaboard. In affected areas, 8.5 million 
people went without power, gasoline was scarce, and massive flooding 
and cold temperatures increased the hardship on those living in the 
storm's path. President Obama declared that major disasters had

[[Page 83111]]

occurred in Connecticut, New York, New Jersey, and Rhode Island, making 
disaster assistance available to those in the areas heaviest hit by the 
storm. The President also signed Federal emergency declarations for 
Connecticut, New York, New Jersey, New Hampshire, Massachusetts, 
Virginia, West Virginia, Maryland, Pennsylvania, Delaware, Rhode 
Island, and the District of Columbia.
    Federal agencies, including the Federal Emergency Management Agency 
(FEMA), worked with state and local partners to respond to this 
emergency. Over 3,000 FEMA employees were immediately deployed to the 
hardest hit areas. These FEMA workers may have been exposed to 
dangerous conditions, and put their health and safety at risk in 
assisting others. Many of FEMA emergency employees continue to work 
schedules that prevent them from being eligible for FEHB coverage on 
day one of employment due to OPM's regulations, specifically 5 CFR 
890.102(c)(3), 890.102(j)(1), and 890.102(j)(2). Pursuant to 5 U.S.C. 
8913(b), OPM has broad authority to prescribe the conditions under 
which employees are eligible to enroll in the FEHB Program. OPM may 
include or exclude employees on the basis of the nature and type of 
their employment or conditions pertaining to their appointments, ``such 
as short-term appointment, seasonal or intermittent employment, and 
employment of like nature.'' Id. Intermittent emergency response 
employees often work in conditions that may expose them to various 
environmental hazards, similar to the wildland firefighters covered by 
the regulation described above. In light of the need for agencies to 
attract and bring emergency workers on board quickly and in recognition 
of the hazardous conditions those employees often face, OPM concluded 
in 2012 that its current policy of categorically excluding intermittent 
employees from FEHB coverage was no longer in the public interest and 
should be changed. Therefore, on November 14, 2012, OPM issued an 
interim final regulation at 77 FR 67743 to allow agencies to request 
FEHB coverage for intermittent employees engaged in emergency response 
and recovery work as defined by the Stafford Act. Since the publication 
of that rule, OPM also expanded coverage under the FEHB Program to 
certain temporary, seasonal and intermittent employees who are expected 
to work at least 130 hours per calendar month for at least 90 days.
    In addition, if OPM grants any such requests, it is reserving the 
authority to limit FEHB coverage for intermittent employees only to the 
periods during which they are in a pay status. This would promote 
parity between intermittent employees and temporary employees like the 
wildland firefighters, who receive FEHB coverage only when called up 
for duty. It would also allow OPM the discretion to craft an 
appropriate approach to health insurance coverage based on the 
potentially diverse work schedules of intermittent employees.
    We have received a number of comments on our two interim final 
regulations from Federal agencies, an employee association, a trade 
association of carriers, and a number of individual employees and union 
members. Most commenters expressed support for the interim final 
regulations. The following summarizes and responds to the remaining 
comments:
    Comment: In many cases, there is no way to identify positions whose 
incumbents provide emergency response services for wildland fire 
protection. The language in Benefits Administration Letter (BAL) 12-203 
seems to contradict, and be superior to, that of the rule itself in two 
important ways. First, in the rule the determination of eligibility is 
based on identification of positions, whereas in the Letter it is based 
on duties actually performed. Second, in the rule the determination of 
eligible positions is made by OPM, whereas in the Letter the 
determination of eligible duties is made by agencies. Clearly, the only 
way in which eligibility of militia members may be determined 
consistent with the rule's intent is by the process articulated in the 
Letter: By consideration of duties by agencies.
     Response: The new rule at 5 CFR 890.102(h) states:
    Notwithstanding paragraphs (c)(1) and (2) of this section, an 
employee who is in a position identified by OPM that provides emergency 
response services for wildland fire protection is eligible to be 
enrolled in a health benefits plan under this part.
    BAL 12-203 clarifies the intent of the new rule with the following 
critically relevant statements:
    ``The following positions [. . .] are covered for purposes of 5 CFR 
890.102(h): Any position (including supervisory positions) the duties 
of which include high risk or life-threatening work to control and 
extinguish wildland fires, to rescue persons endangered by fire, or to 
reduce or eliminate potential fire hazards, or involving the provision 
of direct on-site assistance to others engaged in such work.
    ``[I]n determining whether to extend health benefits coverage for 
employees, agencies should focus on the duties performed, regardless of 
the position's title, occupational series, grade level or geographic 
location.''
    Therefore, there is no conflict between the rule and the BAL. The 
rule correctly points out that OPM has the ultimate authority to make 
eligibility determinations while the BAL delegates this authority to 
the agencies as it does for most FEHB Program eligibility 
determinations.
    Comment: Eligibility should be expanded to other groups.
    Response: The commenters believe that expanding the scope of 
coverage to include other temporary seasonal employees in the final 
rule is warranted. Since the publication of the interim final 
regulation, OPM expanded coverage under the FEHB Program to certain 
temporary, seasonal and intermittent employees. The final regulation is 
available at 79 FR 62325 and was published October 17, 2014. This 
regulation allows agencies to provide offers of FEHB coverage to 
firefighters and emergency response personnel identified by OPM that 
are not eligible under the FEHB modification rule due to their work 
schedules.
    Comment: Are these new groups eligible for other Federal Benefit 
Programs?
    Response: The regulation does not create eligibility under any 
other benefit program.
    Comment: One trade association of carriers questioned the 
requirements for eligibility for enrollment under this new authority 
and felt that they needed clarification to know when to terminate 
enrollments.
    Response: In the FEHB Program, employing offices are responsible 
for making enrollment and coverage termination decisions. Carriers must 
process enrollment and termination transactions based on agency 
determinations as they do today.
    OPM has considered these comments and determined that the interim 
final regulations should be finalized and published with no changes.

Regulatory Flexibility Act

    I certify that this regulation will not have a significant economic 
impact on a substantial number of small entities because the regulation 
only adds additional groups to the list of groups eligible for coverage 
under the FEHB Program.

[[Page 83112]]

Executive Orders 13563 and 12866, Regulatory Review

    This rule has been reviewed by the Office of Management and Budget 
in accordance with Executive Orders 13563 and 12866.

Federalism

    We have examined this rule in accordance with Executive Order 
13132, ``Federalism,'' and have determined that this rule will not have 
any negative impact on the rights, roles and responsibilities of State, 
local, or tribal governments.

List of Subjects in 5 CFR Part 890

    Administrative practice and procedure, Government employees, Health 
facilities, Health insurance, Health professions, Hostages, Iraq, 
Kuwait, Lebanon, Military personnel, Reporting and recordkeeping 
requirements, Retirement.

U.S. Office of Personnel Management.
Beth F. Cobert,
Acting Director.

    Accordingly, OPM is amending 5 CFR part 890 as follows:

PART 890--FEDERAL EMPLOYEES HEALTH BENEFITS PROGRAM

0
1. The authority citation for part 890 continues to read as follows:

    Authority:  5 U.S.C. 8913; Sec. 890.301 also issued under sec. 
311 of Pub. L. 111-03, 123 Stat. 64; Sec. 890.111 also issued under 
section 1622(b) of Pub. L. 104-106, 110 Stat. 521; Sec. 890.112 also 
issued under section 1 of Pub. L. 110-279, 122 Stat. 2604; 5 U.S.C. 
8913; Sec. 890.803 also issued under 50 U.S.C. 403p, 22 U.S.C. 4069c 
and 4069c-1; subpart L also issued under sec. 599C of Pub. L. 101-
513, 104 Stat. 2064, as amended; Sec. 890.102 also issued under 
sections 11202(f), 11232(e), 11246 (b) and (c) of Pub. L. 105-33, 
111 Stat. 251; and section 721 of Pub. L. 105-261, 112 Stat. 2061.


0
2. Section 890.102 is amended by revising paragraphs (h) and (i) to 
read as follows:


Sec.  890.102  Coverage.

* * * * *
    (h) Notwithstanding paragraphs (c)(1) and (2) of this section, an 
employee who is in a position identified by OPM that provides emergency 
response services for wildland fire protection is eligible to be 
enrolled in a health benefits plan under this part.
    (i) Notwithstanding paragraphs (c)(1) through (3) of this section, 
upon request by the employing agency, OPM may grant eligibility to 
employees performing similar types of emergency response services to 
enroll in a health benefits plan under this part. In granting 
eligibility requests, OPM may limit the coverage of intermittent 
employees under a health benefits plan to the periods of time during 
which they are in a pay status.
* * * * *
[FR Doc. 2016-27901 Filed 11-18-16; 8:45 am]
 BILLING CODE 6325-63-P



                                                  83110            Federal Register / Vol. 81, No. 224 / Monday, November 21, 2016 / Rules and Regulations

                                                  OFFICE OF PERSONNEL                                     allows agencies to make FEHB coverage                 also to maintain their interest in
                                                  MANAGEMENT                                              offers to these firefighters and fire                 returning to serve during subsequent
                                                                                                          protection personnel, as well as their                fire seasons. Offering health insurance
                                                  5 CFR Part 890                                          families, pursuant to OPM’s broad                     coverage on day one of employment will
                                                  RIN 3206–AM66                                           regulatory authority under 5 U.S.C.                   support these Departments’ efforts to
                                                                                                          8913(b), allowing them to obtain health               recruit and retain qualified firefighters
                                                  Federal Employees Health Benefits                       insurance through their employers on                  and fire protection personnel for both
                                                  Program Coverage for Certain                            day one of employment.                                this year’s and future fire seasons. OPM
                                                  Firefighters and Intermittent                              OPM deems the extension of offers of               is working closely with the Departments
                                                  Emergency Response Personnel                            coverage to be appropriate because                    of Agriculture and Interior to ensure
                                                                                                          firefighters face unique hazards and                  firefighters are able to promptly enroll
                                                  AGENCY:  Office of Personnel                            risks to their health. The day-to-day job             for FEHB coverage with minimal
                                                  Management.                                             of a firefighter involves frequent                    burden.
                                                  ACTION: Final rule.                                     exposure to environmental risk factors                   OPM recognizes that there may be
                                                                                                          that can precipitate the onset of severe              other groups of employees not currently
                                                  SUMMARY:    The Office of Personnel                     and life-threatening diseases like cancer.            eligible for the FEHB Program because
                                                  Management (OPM) is issuing a final                     See Guidotti TL, Evaluating causality                 of the nature of their work schedules,
                                                  rule to amend the Federal Employees                     for occupational cancers: the example                 but who are similarly situated to
                                                  Health Benefits (FEHB) Program                          of firefighters. Occup. Med. (Lond).                  firefighting personnel in that they
                                                  regulations to make certain firefighters                2007;57;466–71. The nature of this work               perform emergency response services.
                                                  hired under a temporary appointment                     necessarily involves intense physical                 Accordingly, OPM has also added a new
                                                  and certain intermittent emergency                      stress that can result in potentially fatal           subsection (i) to its regulations that
                                                  response personnel eligible to be                       cardiac events, job-related injuries, and             permits agencies to request that OPM
                                                  enrolled in a health benefits plan under                an adverse psychological impact. See                  extend FEHB coverage to such
                                                  the FEHB Program. These amendments                      U.S. Dep’t of Homeland Security, U.S.                 employees. OPM intends to construe
                                                  were the subject of interim rules                       Fire Admin., Fire-Related Firefighter                 this subsection narrowly, applying it
                                                  published on July 19, 2012 and                          Injuries Reported to NFIRS, Topical Fire              only to employees engaged in
                                                  November 14, 2012.                                      Report Series, Vol. 11, Issue 7, February             emergency response services similar to
                                                  DATES: This rule is effective November                  2011, available at http://www.usfa.                   the services being performed by those
                                                  21, 2016.                                               fema.gov/downloads/pdf/statistics/                    responding to the wildfires, and only
                                                  FOR FURTHER INFORMATION CONTACT:
                                                                                                          v11i7.pdf; Kales SN, Soteriades ES,                   when requested by their employing
                                                  Michael W. Kaszynski, Senior Policy                     Christoudias SG, Christiani DC,                       agencies.
                                                                                                          Firefighters and on-duty deaths from                     On July 19, 2012, OPM issued an
                                                  Analyst at Michael.Kaszynski@opm.gov
                                                                                                          coronary heart disease: a case control                interim final regulation to extend
                                                  or (202) 606–0004.
                                                                                                          study. Environ. Health. 2003; 2(1):14;                eligibility for health insurance coverage
                                                  SUPPLEMENTARY INFORMATION: This final                   Carey MG, Al-Zaiti SS, Dean GE,                       and a full Government contribution
                                                  rule provides eligibility for health                    Sessanna L, Finnell DS, Sleep Problems,               under the FEHB Program to temporary
                                                  insurance coverage under the Federal                    Depression, Substance Use, Social                     firefighters and fire protection personnel
                                                  Employees Health Benefits (FEHB)                        Bonding, and Quality of Life in                       at 77 FR 42417. In addition, recognizing
                                                  Program to certain wildfire protection                  Professional Firefighters. J. Occup.                  that there may be other groups of
                                                  employees and certain intermittent                      Environ. Med. 2011; 53(8):928–33.                     employees not currently covered by the
                                                  emergency response personnel. The                          Although firefighters are eligible for             FEHB Program because of the temporary
                                                  Federal Government has a critical need                  workers’ compensation for injuries                    nature of their appointments, the
                                                  to hire and quickly deploy qualified                    suffered on the job, they nonetheless                 interim rule allowed agencies to request
                                                  firefighters, other fire protection                     have a heightened need for health                     that OPM extend FEHB coverage to
                                                  personnel, and certain intermittent                     insurance coverage, so that they can                  similarly situated temporary employees.
                                                  emergency response personnel to areas                   obtain preventive care and benefit from               We also solicited comments from the
                                                  of the country where disasters caused by                early detection of the chronic and life-              public regarding whether OPM should
                                                  humans or nature require their services.                threatening conditions from which they                explicitly provide FEHB coverage to
                                                  The Federal agencies that routinely                     face increased risk, in addition to                   employees who are appointed pursuant
                                                  deploy firefighters to respond to these                 receiving treatment for illnesses and                 to section 306(b)(1) of the Robert T.
                                                  disasters, including the Departments of                 injuries from which they are currently                Stafford Disaster Relief and Emergency
                                                  Agriculture and Interior, have used                     suffering. Providing firefighters coverage            Assistance Act (42 U.S.C. 5149(b)(1))
                                                  temporary appointment authorities                       under the FEHB Program acknowledges                   (‘‘Stafford Act’’) to respond to major
                                                  which provide the flexibility they need                 the unique hazards and increased risks                disasters and emergencies declared by
                                                  to quickly increase their firefighting                  that they face for their Federal service              the President.
                                                  workforce during wildfire emergencies                   and enhances the quality of their lives                  In the meantime, a major natural
                                                  and then to decrease the workforce                      by ensuring access to the medical                     disaster, Hurricane Sandy, struck the
                                                  when the emergencies are resolved.                      benefits necessary to promote                         East Coast of the United States at the
                                                     Pursuant to 5 U.S.C. 8913(b), OPM                    prevention and early intervention, as                 end of October 2012. The storm resulted
                                                  has broad authority to prescribe the                    well as treatment for diseases that                   in loss of life and major destruction of
asabaliauskas on DSK3SPTVN1PROD with RULES




                                                  conditions under which employees are                    cannot be prevented.                                  property across a wide swath of the
                                                  eligible to enroll in the FEHB Program                     In addition, in order to protect the               Eastern seaboard. In affected areas, 8.5
                                                  and is empowered to include or exclude                  public health and safety, the                         million people went without power,
                                                  employees on the basis of the nature                    Departments of Agriculture and Interior               gasoline was scarce, and massive
                                                  and type of their employment or                         have had a critical need over the years               flooding and cold temperatures
                                                  conditions pertaining to their                          for experienced firefighting personnel.               increased the hardship on those living
                                                  appointments, including the duration of                 The agencies wish not only to recruit                 in the storm’s path. President Obama
                                                  the appointments. This regulation                       experienced firefighters this year, but               declared that major disasters had


                                             VerDate Sep<11>2014   17:02 Nov 18, 2016   Jkt 241001   PO 00000   Frm 00004   Fmt 4700   Sfmt 4700   E:\FR\FM\21NOR1.SGM   21NOR1


                                                                   Federal Register / Vol. 81, No. 224 / Monday, November 21, 2016 / Rules and Regulations                                          83111

                                                  occurred in Connecticut, New York,                      employees only to the periods during                     ‘‘[I]n determining whether to extend
                                                  New Jersey, and Rhode Island, making                    which they are in a pay status. This                  health benefits coverage for employees,
                                                  disaster assistance available to those in               would promote parity between                          agencies should focus on the duties
                                                  the areas heaviest hit by the storm. The                intermittent employees and temporary                  performed, regardless of the position’s
                                                  President also signed Federal emergency                 employees like the wildland firefighters,             title, occupational series, grade level or
                                                  declarations for Connecticut, New York,                 who receive FEHB coverage only when                   geographic location.’’
                                                  New Jersey, New Hampshire,                              called up for duty. It would also allow                  Therefore, there is no conflict
                                                  Massachusetts, Virginia, West Virginia,                 OPM the discretion to craft an                        between the rule and the BAL. The rule
                                                  Maryland, Pennsylvania, Delaware,                       appropriate approach to health                        correctly points out that OPM has the
                                                  Rhode Island, and the District of                       insurance coverage based on the                       ultimate authority to make eligibility
                                                  Columbia.                                               potentially diverse work schedules of                 determinations while the BAL delegates
                                                     Federal agencies, including the                      intermittent employees.                               this authority to the agencies as it does
                                                  Federal Emergency Management Agency                        We have received a number of                       for most FEHB Program eligibility
                                                  (FEMA), worked with state and local                     comments on our two interim final                     determinations.
                                                  partners to respond to this emergency.                  regulations from Federal agencies, an
                                                  Over 3,000 FEMA employees were                                                                                   Comment: Eligibility should be
                                                                                                          employee association, a trade
                                                  immediately deployed to the hardest hit                                                                       expanded to other groups.
                                                                                                          association of carriers, and a number of
                                                  areas. These FEMA workers may have                      individual employees and union                           Response: The commenters believe
                                                  been exposed to dangerous conditions,                   members. Most commenters expressed                    that expanding the scope of coverage to
                                                  and put their health and safety at risk                 support for the interim final regulations.            include other temporary seasonal
                                                  in assisting others. Many of FEMA                       The following summarizes and responds                 employees in the final rule is warranted.
                                                  emergency employees continue to work                    to the remaining comments:                            Since the publication of the interim
                                                  schedules that prevent them from being                     Comment: In many cases, there is no                final regulation, OPM expanded
                                                  eligible for FEHB coverage on day one                   way to identify positions whose                       coverage under the FEHB Program to
                                                  of employment due to OPM’s                              incumbents provide emergency                          certain temporary, seasonal and
                                                  regulations, specifically 5 CFR                         response services for wildland fire                   intermittent employees. The final
                                                  890.102(c)(3), 890.102(j)(1), and                       protection. The language in Benefits                  regulation is available at 79 FR 62325
                                                  890.102(j)(2). Pursuant to 5 U.S.C.                     Administration Letter (BAL) 12–203                    and was published October 17, 2014.
                                                  8913(b), OPM has broad authority to                     seems to contradict, and be superior to,              This regulation allows agencies to
                                                  prescribe the conditions under which                    that of the rule itself in two important              provide offers of FEHB coverage to
                                                  employees are eligible to enroll in the                 ways. First, in the rule the                          firefighters and emergency response
                                                  FEHB Program. OPM may include or                                                                              personnel identified by OPM that are
                                                                                                          determination of eligibility is based on
                                                  exclude employees on the basis of the                                                                         not eligible under the FEHB
                                                                                                          identification of positions, whereas in
                                                  nature and type of their employment or                                                                        modification rule due to their work
                                                                                                          the Letter it is based on duties actually
                                                  conditions pertaining to their                                                                                schedules.
                                                                                                          performed. Second, in the rule the
                                                  appointments, ‘‘such as short-term                                                                               Comment: Are these new groups
                                                                                                          determination of eligible positions is
                                                  appointment, seasonal or intermittent
                                                                                                          made by OPM, whereas in the Letter the                eligible for other Federal Benefit
                                                  employment, and employment of like
                                                                                                          determination of eligible duties is made              Programs?
                                                  nature.’’ Id. Intermittent emergency
                                                                                                          by agencies. Clearly, the only way in                    Response: The regulation does not
                                                  response employees often work in
                                                                                                          which eligibility of militia members                  create eligibility under any other benefit
                                                  conditions that may expose them to
                                                  various environmental hazards, similar                  may be determined consistent with the                 program.
                                                  to the wildland firefighters covered by                 rule’s intent is by the process articulated
                                                                                                                                                                   Comment: One trade association of
                                                  the regulation described above. In light                in the Letter: By consideration of duties
                                                                                                                                                                carriers questioned the requirements for
                                                  of the need for agencies to attract and                 by agencies.
                                                                                                                                                                eligibility for enrollment under this new
                                                  bring emergency workers on board                           Response: The new rule at 5 CFR                    authority and felt that they needed
                                                  quickly and in recognition of the                       890.102(h) states:                                    clarification to know when to terminate
                                                  hazardous conditions those employees                       Notwithstanding paragraphs (c)(1)                  enrollments.
                                                  often face, OPM concluded in 2012 that                  and (2) of this section, an employee who
                                                                                                          is in a position identified by OPM that                  Response: In the FEHB Program,
                                                  its current policy of categorically                                                                           employing offices are responsible for
                                                  excluding intermittent employees from                   provides emergency response services
                                                                                                          for wildland fire protection is eligible to           making enrollment and coverage
                                                  FEHB coverage was no longer in the                                                                            termination decisions. Carriers must
                                                  public interest and should be changed.                  be enrolled in a health benefits plan
                                                                                                          under this part.                                      process enrollment and termination
                                                  Therefore, on November 14, 2012, OPM                                                                          transactions based on agency
                                                  issued an interim final regulation at 77                   BAL 12–203 clarifies the intent of the
                                                                                                          new rule with the following critically                determinations as they do today.
                                                  FR 67743 to allow agencies to request
                                                  FEHB coverage for intermittent                          relevant statements:                                     OPM has considered these comments
                                                  employees engaged in emergency                             ‘‘The following positions [. . .] are              and determined that the interim final
                                                  response and recovery work as defined                   covered for purposes of 5 CFR                         regulations should be finalized and
                                                  by the Stafford Act. Since the                          890.102(h): Any position (including                   published with no changes.
                                                  publication of that rule, OPM also                      supervisory positions) the duties of                  Regulatory Flexibility Act
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                                                  expanded coverage under the FEHB                        which include high risk or life-
                                                  Program to certain temporary, seasonal                  threatening work to control and                          I certify that this regulation will not
                                                  and intermittent employees who are                      extinguish wildland fires, to rescue                  have a significant economic impact on
                                                  expected to work at least 130 hours per                 persons endangered by fire, or to reduce              a substantial number of small entities
                                                  calendar month for at least 90 days.                    or eliminate potential fire hazards, or               because the regulation only adds
                                                     In addition, if OPM grants any such                  involving the provision of direct on-site             additional groups to the list of groups
                                                  requests, it is reserving the authority to              assistance to others engaged in such                  eligible for coverage under the FEHB
                                                  limit FEHB coverage for intermittent                    work.                                                 Program.


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                                                  83112            Federal Register / Vol. 81, No. 224 / Monday, November 21, 2016 / Rules and Regulations

                                                  Executive Orders 13563 and 12866,                       eligibility requests, OPM may limit the               adequate requirements for the
                                                  Regulatory Review                                       coverage of intermittent employees                    application of rechargeable lithium
                                                    This rule has been reviewed by the                    under a health benefits plan to the                   batteries in airborne applications. This
                                                  Office of Management and Budget in                      periods of time during which they are                 type of battery possesses certain failure
                                                  accordance with Executive Orders                        in a pay status.                                      and operational characteristics with
                                                  13563 and 12866.                                        *     *      *    *     *                             maintenance requirements that differ
                                                                                                          [FR Doc. 2016–27901 Filed 11–18–16; 8:45 am]          significantly from that of the nickel-
                                                  Federalism                                              BILLING CODE 6325–63–P                                cadmium (Ni-Cd) and lead-acid
                                                     We have examined this rule in                                                                              rechargeable batteries currently
                                                  accordance with Executive Order 13132,                                                                        approved in other normal, utility,
                                                  ‘‘Federalism,’’ and have determined that                DEPARTMENT OF TRANSPORTATION                          acrobatic, and commuter category
                                                  this rule will not have any negative                                                                          airplanes. Therefore, the FAA is issuing
                                                  impact on the rights, roles and                         Federal Aviation Administration                       this special condition to address (1) all
                                                  responsibilities of State, local, or tribal                                                                   characteristics of the rechargeable
                                                  governments.                                            14 CFR Part 23                                        lithium batteries and their installation
                                                                                                          [Docket No. FAA–2016–9001; Special                    that could affect safe operation of the
                                                  List of Subjects in 5 CFR Part 890                                                                            modified Model PC–12, PC–12/45, and
                                                                                                          Conditions No. 23–278–SC]
                                                    Administrative practice and                                                                                 PC–12/47 airplanes, and (2) appropriate
                                                  procedure, Government employees,                        Special Conditions: Pilatus Aircraft,                 Instructions for Continued
                                                  Health facilities, Health insurance,                    Ltd., Model PC–12, PC–12/45, and PC–                  Airworthiness (ICAW) that include
                                                  Health professions, Hostages, Iraq,                     12/47 Airplanes, Lithium Batteries                    maintenance requirements to ensure the
                                                  Kuwait, Lebanon, Military personnel,                                                                          availability of electrical power from the
                                                  Reporting and recordkeeping                             AGENCY:  Federal Aviation                             batteries when needed.
                                                  requirements, Retirement.                               Administration (FAA), DOT.
                                                                                                          ACTION: Final special conditions.                     Type Certification Basis
                                                  U.S. Office of Personnel Management.
                                                  Beth F. Cobert,                                         SUMMARY:   These special conditions are                  Under the provisions of § 21.101,
                                                  Acting Director.                                        issued for the Pilatus Aircraft, Ltd.,                Finnoff Aviation must show that the
                                                                                                          Model PC–12, PC–12/45, and PC–12/47                   Model PC–12, PC–12/45, and PC–12/47
                                                    Accordingly, OPM is amending 5 CFR                                                                          airplanes, as changed, continue to meet
                                                  part 890 as follows:                                    airplanes. This airplane as modified by
                                                                                                          Finnoff Aviation will have a novel or                 the applicable provisions of the
                                                                                                          unusual design feature associated with                regulations incorporated by reference in
                                                  PART 890—FEDERAL EMPLOYEES
                                                                                                          the installation of a rechargeable lithium            Type Certificate No. A78EU 1 or the
                                                  HEALTH BENEFITS PROGRAM
                                                                                                          battery. The applicable airworthiness                 applicable regulations in effect on the
                                                  ■ 1. The authority citation for part 890                regulations do not contain adequate or                date of application for the change.
                                                  continues to read as follows:                           appropriate safety standards for this                    If the Administrator finds that the
                                                    Authority: 5 U.S.C. 8913; Sec. 890.301                design feature. These special conditions              applicable airworthiness regulations
                                                  also issued under sec. 311 of Pub. L. 111–03,           contain the additional safety standards               (i.e., 14 CFR part 23) do not contain
                                                  123 Stat. 64; Sec. 890.111 also issued under            that the Administrator considers                      adequate or appropriate safety standards
                                                  section 1622(b) of Pub. L. 104–106, 110 Stat.           necessary to establish a level of safety              for the Model PC–12, PC–12/45, and
                                                  521; Sec. 890.112 also issued under section             equivalent to that established by the                 PC–12/47 airplanes because of a novel
                                                  1 of Pub. L. 110–279, 122 Stat. 2604; 5 U.S.C.          existing airworthiness standards.                     or unusual design feature, special
                                                  8913; Sec. 890.803 also issued under 50                 DATES: These special conditions are                   conditions are prescribed under the
                                                  U.S.C. 403p, 22 U.S.C. 4069c and 4069c–1;                                                                     provisions of § 21.16.
                                                                                                          effective November 21, 2016 and are
                                                  subpart L also issued under sec. 599C of Pub.
                                                  L. 101–513, 104 Stat. 2064, as amended; Sec.            applicable on November 10, 2016.                         In addition to the applicable
                                                  890.102 also issued under sections 11202(f),            FOR FURTHER INFORMATION CONTACT:                      airworthiness regulations and special
                                                  11232(e), 11246 (b) and (c) of Pub. L. 105–             Ruth Hirt, Federal Aviation                           conditions, the Model PC–12, PC–12/45,
                                                  33, 111 Stat. 251; and section 721 of Pub. L.           Administration, Programs and                          and PC–12/47 airplanes must comply
                                                  105–261, 112 Stat. 2061.                                Procedures, ACE–114, Small Airplane                   with the fuel vent and exhaust emission
                                                  ■ 2. Section 890.102 is amended by                      Directorate, Aircraft Certification                   requirements of 14 CFR part 34 and the
                                                  revising paragraphs (h) and (i) to read as              Service, 901 Locust; Kansas City,                     noise certification requirements of 14
                                                  follows:                                                Missouri 64106; telephone (816) 329–                  CFR part 36.
                                                                                                          4108; facsimile (816) 329–4090.                          The FAA issues special conditions, as
                                                  § 890.102   Coverage.                                   SUPPLEMENTARY INFORMATION:                            defined in 14 CFR 11.19, in accordance
                                                  *      *    *      *    *                                                                                     with § 11.38, and they become part of
                                                     (h) Notwithstanding paragraphs (c)(1)                Background                                            the type-certification basis under
                                                  and (2) of this section, an employee who                  On September 28, 2015, Finnoff                      § 21.101.
                                                  is in a position identified by OPM that                 Aviation applied for a supplemental                      Special conditions are initially
                                                  provides emergency response services                    type certificate for installation of a                applicable to the model for which they
                                                  for wildland fire protection is eligible to             rechargeable lithium battery in the                   are issued. Should the applicant apply
                                                  be enrolled in a health benefits plan                   Model PC–12, PC–12/45, and PC–12/47                   for a supplemental type certificate to
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                                                  under this part.                                        airplanes. The Model PC–12, PC–12/45,                 modify any other model included on the
                                                     (i) Notwithstanding paragraphs (c)(1)                and PC–12/47 airplanes are single-                    same type certificate to incorporate the
                                                  through (3) of this section, upon request               engine turboprop-powered business                     same or similar novel or unusual design
                                                  by the employing agency, OPM may                        aircraft that can accommodate up to                   feature, the special conditions would
                                                  grant eligibility to employees                          nine passengers with a take-off weight
                                                  performing similar types of emergency                   up to 10,450 pounds.                                    1 http://rgl.faa.gov/Regulatory_and_Guidance_
                                                  response services to enroll in a health                   The current regulatory requirements                 Library/rgMakeModel.nsf/0/6BCB00B1F3CA4EF8
                                                  benefits plan under this part. In granting              for part 23 airplanes do not contain                  86257FED0069EF2D?OpenDocument.



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Document Created: 2018-02-14 08:34:07
Document Modified: 2018-02-14 08:34:07
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionFinal rule.
DatesThis rule is effective November 21, 2016.
ContactMichael W. Kaszynski, Senior Policy Analyst at [email protected] or (202) 606-0004.
FR Citation81 FR 83110 
RIN Number3206-AM66
CFR AssociatedAdministrative Practice and Procedure; Government Employees; Health Facilities; Health Insurance; Health Professions; Hostages; Iraq; Kuwait; Lebanon; Military Personnel; Reporting and Recordkeeping Requirements and Retirement

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