There will usually be two variations to this test question. The fist question will be for a conscious person and the answer is to ventilate any conscious person with resp. under 8 or over 28. The other variation of the test question is for an unconscious person still breathing and the answer is to ventilate any unconscious person no matter the resp. rate.
Here is the real world stuff. Mechanical ventilation of a pt with a BVM who is still actually breathing is dependent on a couple of things that you will find in a quality assessment. First, an unconscious (not responding to any stimuli) pt gets some type of airway dependent on gag reflex. I will usually start to bag these pts if the reason the person is unconscious is not corrected quickly because we usually will go for some type of drug assisted intubation. A person who is still somewhat conscious (lethargic but will respond) will get an airway if they can't maintain their own airway (snoring resp, aspiration risk, etc) and will then also get sedated and intubated if the reason can not be immediately corrected. A lethargic pt that is maintaining their own airway will be further assessed for breathing quality. If this looks familar, but you can't quite figure out why you might want to review "ABC's." The breathing of the person is assessed, but this includes more than just rate. Quality, rate, depth, rhythm, color etc. are assessed and even an SpO2 (do not use as sole basis for any decision) is obtained. If the person has no signs of decreased O2, usually a NRB will suffice in the real world. Signs of decreased ventilation or hypoxemia will get a BVM. This of course is only based on my experience and SOP's, this may vary area to area and have many different opinions depending on who you work with. The key point in determing any kind of treatment or intervention is a quality history and assessment that takes into account all findings. But the real world is often different than any tests you will take, so until you are working on the street, go by what the book tells you.
Now, when you use a BVM on a person who is still breathing I find it is best to try and time the ventilations with the start of an inspiration. The key is to try and get good air movement into the lungs, not the stomach. Bagging too hard and too fast will probably result in gastric distension and you getting puked on. Use a nice easy squeeze on the bag and watch for good chest rise. If you aren't getting good ventilation, make sure the airway is open and try again. A little Magnum PI will help too (I know, bad joke). Sellick's maneuver (cricoid pressure) will help pinch off the esophagus and get the trachea in line with the pharynx. These are just suggestions and are the views of me and me alone. If these don't help or screw you up later in life, too bad.