If a person is not listed as the author of a government document, the government organization should be listed as the corporate 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.
Government Publications | 8th Edition
United States Department of Health and Human Services. Centers for Disease Control and Prevention. "Specifications for Medical Examinations of Underground Coal Miners." The National Institute for Occupational Safety and Health, 9 Jan. 2012, www.cdc.gov/niosh/docket/archive/docket225.html.