Combustible Dust NEP-Not All There?

Had to read it twice...maybe I initially misread it between the lines. No, No... it all there but not all there. Over half the states in the union are not required to participate in OSHA's Combustible Dust National Emphasis Program (NEP)

VI. Federal Program Change. EFFECTIVE DATE: October 18, 2007
...State plan participation in this national emphasis effort is strongly encouraged but is not required. State response/notice of intent regarding this directive is required....

Learn something new everyday. So how is the nation fully covered by the current effort that OSHA is projecting in protecting the health and safety of workers in regards to the hazards of combustible dusts? Especially when only half the nation's workplace is covered. Last time I checked, there were fifty stars in the blue union of the American Flag.