83 FR 22264 - Occupational Robotics Research Prioritization

DEPARTMENT OF HEALTH AND HUMAN SERVICES
Centers for Disease Control and Prevention

Federal Register Volume 83, Issue 93 (May 14, 2018)

The National Institute for Occupational Safety and Health of the Centers for Disease Control and Prevention has recently established the Center for Occupational Robotics Research. NIOSH is requesting information to guide the prioritization of research to be undertaken by the Center. NIOSH is seeking input on priority gaps in knowledge on the safety and health of humans working with robotics technology, with an emphasis on worker safety and health research which is unlikely to be completed by other federal agencies, academia, and the private sector.

[Federal Register Volume 83, Number 93 (Monday, May 14, 2018)]
[Notices]
[Pages 22264-22266]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-10165]


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DEPARTMENT OF HEALTH AND HUMAN SERVICES

Centers for Disease Control and Prevention

[Docket Number CDC-2018-0046, NIOSH-313]


Occupational Robotics Research Prioritization

AGENCY: National Institute for Occupational Safety and Health (NIOSH) 
of the Centers for Disease Control and Prevention (CDC), Department of 
Health and Human Services (HHS).

ACTION: Request for information and comment.

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SUMMARY: The National Institute for Occupational Safety and Health of 
the Centers for Disease Control and Prevention has recently established 
the Center for Occupational Robotics Research. NIOSH is requesting 
information to guide the prioritization of research to be undertaken by 
the Center. NIOSH is seeking input on priority gaps in knowledge on the 
safety and health of humans working with robotics technology, with an 
emphasis on worker safety and health research which is unlikely to be 
completed by other federal agencies, academia, and the private sector.

Table of Contents

 DATES:
 ADDRESSES:
 FOR FURTHER INFORMATION CONTACT:
 SUPPLEMENTARY INFORMATION:
 BACKGROUND:
 INFORMATION NEEDS:
 REFERENCES:


DATES: Electronic or written comments must be received by July 13, 
2018.

ADDRESSES: You may submit comments, identified by CDC-2018-0046 and 
docket number NIOSH-313, by any of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the instructions for submitting comments.
     Mail: National Institute for Occupational Safety and 
Health, NIOSH Docket Office, 1090 Tusculum Avenue, MS C-34, Cincinnati, 
Ohio 45226-1998.
    Instructions: All information received in response to this notice 
must include the agency name and docket number [CDC-2018-0046; NIOSH-
313]. All relevant comments received will be posted without change to 
www.regulations.gov, including any personal information provided. For 
access to the docket to read background documents or comments received, 
go to www.regulations.gov. All information received in response to this 
notice will also be available for public examination and copying at the 
NIOSH Docket Office, 1150 Tusculum Avenue, Room 155, Cincinnati, OH 
45226-1998.

FOR FURTHER INFORMATION CONTACT: Hongwei Hsiao, Ph.D., NIOSH Division 
of Safety Research, 1095 Willowdale Road, Morgantown, WV 26505, 304-
285-5910 (not a toll-free number), [email protected].

SUPPLEMENTARY INFORMATION: Industrial robots have been a significant 
part of the workplace for decades. Within the last decade, there have 
been dramatic advances in robotics technology which have changed the 
types of work performed by robots and how robots interact with human 
workers. Whereas traditional industrial robots operate in cages or 
cells that are off-limits to human workers, newer types of robots are 
designed to work in collaboration with and in shared spaces with human 
workers. In collaborative operation, robots work in close proximity to 
humans and can potentially come into contact depending on the 
collaborative functionality implemented into the robot system. The use 
of robots has been rapidly increasing in many industrial sectors, 
including the manufacturing, healthcare, mining, and construction 
sectors. The International Federation of Robotics reported that the 
worldwide growth of industrial robots will be at least 15% annually 
from 2018 to 2020, and the stock of operational industrial robots will 
exceed 3 million units by the end of 2020 [IFR 2017]. Within the

[[Page 22265]]

United States, sales of robots for industrial applications were at an 
all-time high in 2016, and have continued to increase since 2010 [IFR 
2017].
    The IFR also reports that robots equipped with collaborative 
functionality and utilizing machine learning and artificial 
intelligence will lead the robotics field in the coming years, and that 
robots will be increasingly used by small and medium sized businesses.
    Robots are changing the industrial landscape which will have 
significant implications for worker safety and health. Worker safety 
and health may be improved through increased use of robots for work 
that can be dangerous to humans, including repetitive tasks which are 
hazardous for musculoskeletal health, and work performed in hazardous 
environments, such as confined spaces and work at heights. However, 
there also are concerns for human worker safety and health arising from 
the rapid advances of robotics technologies, lack of experience working 
closely with new and emerging types of robots in varied work settings, 
and the potential for unforeseen hazards and unanticipated consequences 
[Murashov et al. 2016]. Predicted rapid growth in availability and 
sales of robots designed to work in close cooperation with human 
workers, and continued expansion into broader industry sectors and 
small and medium sized businesses, may present new risks or exacerbate 
existing risks for many workplaces.
    While the volume of robotics research being conducted by the 
private sector, academia, and other federal agencies is large [Robotics 
Virtual Organization 2016], research focusing on the implications for 
worker safety and health has been limited, but critical. Whereas other 
federal agencies and academic programs strongly support technological 
advances in robotics and promote use in certain industries, NIOSH aims 
to focus on worker safety and well-being with its vast experience in 
studying worker safety in the lab and in the field. Additionally, NIOSH 
has knowledge and expertise on diverse characteristics of worker 
populations, occupations and tasks, industries, and workplace 
environments.
    In September 2017, NIOSH established the Center for Occupational 
Robotics Research (CORR), https://www.cdc.gov/niosh/topics/robotics/default.html. The Center's mission is to provide scientific leadership 
to guide the development and use of robots in the workplace that 
enhance worker safety, health, and well-being. The Center covers 
traditional fixed and caged robots, current and emerging robot systems 
(e.g., robots equipped with collaborative functionality, co-existing 
and mobile robots, powered exoskeletons/exosuits, drones, and off-road 
autonomous vehicles), and future robots utilizing artificial 
intelligence. The Center will conduct and encourage research on 
robotics as engineering controls to improve workplace safety, as well 
as robots as potential hazards to worker safety and well-being, 
including psychosocial impacts from humans working closely with robots. 
The Center will not address non-powered exoskeletons, algorithms that 
do not involve machine movement (e.g., software bots that write news 
stories), and robot functions and efficiency. The Center will work in 
partnership with academic researchers, trade associations, robot 
manufacturers and integrators, employers using robotics technology, 
labor organizations, and other federal agencies. The Center aims to 
fill gaps in worker safety and health knowledge that are unlikely to be 
addressed independently by other federal agencies, academia, and the 
private sector.
    The Center for Occupational Robotics Research has nominally 
identified research needs to be addressed by the Center. These research 
needs are consistent with robot-related research goals included in the 
recently finalized NIOSH Strategic Plan: FYs 2019-2023, but are more 
detailed. The research needs are organized by the four research types 
conducted by NIOSH: Basic/etiologic, intervention, translation, and 
surveillance. NIOSH is seeking feedback on potential refinements to 
these research needs that address important worker safety and health 
knowledge gaps that have not been addressed, and how the identified 
research should be prioritized. The identified research needs follow.
    Basic/etiologic: This type of research builds a foundation of 
scientific knowledge to base future interventions. Most laboratory 
research falls into this category, as well as exposure assessment. 
Robot-related injuries occur as a result of complex interactions of 
multiple risk factors which can be characterized as: Human-related, 
robot-related, and task-related and environmental. Research needs in 
this area include:
     Identification of human worker risk factors and refinement 
and development of science-based requirements and pain and injury 
thresholds for human worker contact with robots in the workplace. The 
factors include workers' cognitive capability, physiological 
characteristics, biometrics, and anthropometry, and may have different 
implications associated with different types and characteristics of 
robotics technologies. This line of research also includes friction and 
shear injury thresholds from exoskeleton contact with body regions and 
joint hyperextension risks associated with wearable robots.
     Study of human workers' acceptance to working with and 
alongside robots and its impacts on human-robot interaction and worker 
safety and well-being. This includes workers' attitudes, trust, and 
perceived safety.
     Measurement of worker's situational awareness, which 
refers to an ability to identify, process, and comprehend environmental 
information, and its impacts on human-robot interactions under normal 
and abnormal operating conditions. This research includes evaluation of 
existing situational awareness research methods and tools for 
application to varied robotics technologies and work environments.
     Study of safe, intuitive, and useful robot technologies 
and engineering features of collaborative and co-existing robot systems 
(e.g., enhanced robot sensors, mobility and navigation systems, 
adaptation and self-learning systems, design and programming of 
autonomous robots, automation operation assistance systems, and cyber-
social-physical security) for hazard exposure assessments, field 
inspections, and incident investigations.
     Study of interface and safety communication features of 
robots with collaborative functions, powered exoskeletons (i.e. 
wearable robots), service robots, and other interactive robots that may 
cause human injuries from sources such as unintended contact, 
collision, vibration, and overexertion.
     Identification of task-related and environmental risk 
factors that are specific to certain industrial sectors that have a 
high prevalence of robots (e.g., manufacturing), or in which robotics 
technology is beginning to be introduced (e.g., mining, healthcare, 
services, construction, agriculture, public safety, and wholesale 
sectors).
     Study of hazardous situations outside normal operating 
conditions, such as robot breakdowns and malfunctions and unexpected 
changes in the environment.
    Intervention: This type of research engages in the development and 
evaluation of a solution to an occupational safety and health problem 
or the improvement of an existing intervention. Intervention is a broad 
term that includes engineering controls,

[[Page 22266]]

personal protective equipment, training, and fact sheets and other 
written materials intended to inform and change worker behavior. There 
are two primary thrusts to this area of occupational robotics research: 
(1) Evaluation of robotics technologies as preventive measures for 
existing workplace hazards and (2) development and evaluation of 
interventions to reduce robot-related injury incidents and improve the 
safety and well-being of human workers working with robotics 
technologies. Specific research needs in this area include:
     Collection and analysis of differences in fatalities, 
injuries, and near-miss incidences between workplaces using robotics 
technologies and similar workplaces without robotics technology.
     Evaluation of robotics technologies as interventions for 
preventing existing hazards and resulting injuries in the workplace 
such as musculoskeletal disorders.
     Evaluation of training that helps workers acquire skills, 
knowledge, and abilities needed to work with robots in complex and 
dynamic industrial environments.
     Study of the effectiveness of existing safety standards, 
certifications, and regulations for industrial robot safety (e.g., ISO/
TS 15066, ANSI/RIA R15.06, ISO 10218.01, ISO 10218.02, UL1740) in 
ensuring the safety and well-being of human workers.
     Research on new workplace interventions to improve the 
safety and well-being of human workers working with robotics 
technologies, including engineering controls and administrative 
controls. Research may address costs and benefits, such as an 
assessment of the costs of the intervention and impacts on 
productivity.
    Translation: This type of research discovers strategies to 
translate research findings and theoretical knowledge to practices or 
technologies in the workplace. This type of research seeks to 
understand why available, effective, evidence-based interventions are 
not being adopted, and to facilitate the use of existing or newly 
developed interventions. Occupational robotics research needs in this 
area include:
     Research on aids and barriers to employers using long 
established safety procedures for protecting workers from traditional 
industrial robots.
     Development and evaluation of plain-language guidance on 
preventing robot-related injuries to workers.
     Development and evaluation of dissemination strategies to 
facilitate the use by employers and other stakeholders of existing and 
new guidance.
     Study of awareness and acceptance of organizations to 
using evidence-based resources to implement robot safety management 
programs.
    Surveillance: Surveillance is a public health term for the ongoing 
and systematic collection, analysis, and interpretation of data on 
health outcomes (e.g., injuries and illnesses) and contributors (e.g., 
behaviors or actions), and the dissemination of these data to those in 
position to take action. Surveillance research includes development of 
new methods, tools, and analytic techniques. Current worker injury data 
systems do not include detailed information on how a robot-related 
fatality or injury incident occurred. There is case-based information 
from investigations of worker injury deaths conducted by NIOSH and the 
Occupational Safety and Health Administration (OSHA). However, these 
investigation findings are limited to the traditional industrial 
robots, and do not address emerging robotics technologies. 
Additionally, case-based information may not be representative of all 
robot-related fatalities. Occupational robotics surveillance research 
needs include:
     Development of surveillance methods and/or analytic 
techniques to identify and monitor robot-related injury incidents and 
risk factors, and quantify the burden of occupational injuries using 
existing data systems.
     Case-based investigations of fatalities, injuries and 
near-miss incidents involving new robotics technologies to understand 
multi-faceted contributors to the incident.
    Background: The purpose of the Request for Information is to seek 
input on priority research areas that NIOSH will address through the 
Center for Occupational Robotics Research.
    Information Needs: NIOSH is seeking feedback on potential 
refinements to the four broad research areas identified above, any 
additional knowledge gaps not addressed by these research areas, and 
how the research areas should be prioritized. Commenters are asked to 
focus on research areas that NIOSH has comparative advantage in, 
compared to other federal agencies, academia, and the private sector 
(i.e., worker safety and well-being as opposed to robot technologies 
and production). When possible, NIOSH asks that commenters provide data 
and citations of relevant research to justify their comments. NIOSH is 
also seeking recommendations for key scientific articles addressing 
worker safety and health and robotics that should guide our research 
activities.

References:

Endsley M. and Jones D. [2013]. Designing situational awareness: an 
approach to user-centered design. Boca Raton, FL, CRC Press.
International Federation of Robotics (IFR) [2017]. Executive summary 
world robotics 2017 industrial robots. [https://ifr.org/downloads/press/Executive_Summary_WR_2017_Industrial_Robots.pdf].
Murashov V., Hearl F., Howard J. [2016]. Working safety with robot 
worker: recommendations for the new workplace. J Occup Environ Hyg 
13(3):D61-71.
Robotics Virtual Organization [2016]. A roadmap for U.S. Robotics: 
from internet to robotics (2016 Edition). [https://robotics-vo.us/node/562].

    Dated: May 8, 2018.
John J. Howard,
Director, National Institute for Occupational Safety and Health, 
Centers for Disease Control and Prevention.
[FR Doc. 2018-10165 Filed 5-11-18; 8:45 am]
 BILLING CODE 4163-19-P