I discussed this with some guys on the 70E commitee last weeek at the NETA conference and they pointed out that you have to factor in risk. What is the risk when standing in front of a switchgear lineup when you are not doing anything? The answer is little or no risk, but standing in the same place when you are racking out a circuit breaker is a higher risk.
You see this addressed in the tables, same equipment has different PPE requirements for different tasks and they are based on risk or odds of an arc flash occuring, the hazard is the same, but the risk is different.
I asked specifically about a situation where a MCC is in an accessable area of a manufacturing plant, the arc flash boundary is lets say 15 feet, do the people walking by that MCC need arc flash protection? The answer I got was "No, as long as they are not operating any equipment and the covers are all on (And screws tight).