When citing a government document on your MLA Works Cited page, if there is no author listed, the government organization should be listed as the author. The number of containers needed to document government publications will depend upon how you accessed the publication. For example, if you accessed the publication directly from the web, just one container is needed. If you accessed the publication via a database, two containers are needed.
National Institute for Occupational Safety and Health (NIOSH). "Specifications for Medical Examinations of Underground Coal Miners: Proposed Rule." Centers for Disease Control and Prevention, U.S. Department of Health and Human Services, 9 Jan. 2012, www.cdc.gov/niosh/docket/archive/docket225.html.