[Federal Register Volume 62, Number 21 (Friday, January 31, 1997)]
[Rules and Regulations]
[Pages 4874-4876]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-2333]
[[Page 4873]]
_______________________________________________________________________
Part III
Department of the Interior
_______________________________________________________________________
Fish and Wildlife Service
_______________________________________________________________________
50 CFR Part 20
Migratory Bird Hunting; Approval of Bismuth-Tin Shot as Nontoxic for
Waterfowl and Coots Hunting; and Temporary Approval of Tungsten-Iron as
Nontoxic for 1997-98 Season; Final Rule and Proposed Rule
Federal Register / Vol. 62, No. 21 / Friday, January 31, 1997 / Rules
and Regulations
[[Page 4874]]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018-AD94
Migratory Bird Hunting; Approval of Bismuth-Tin Shot as Nontoxic
for Hunting Waterfowl and Coots
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
SUMMARY: The U.S. Fish and Wildlife Service (Service) is approving
bismuth-tin shot as nontoxic for hunting waterfowl and coots. Acute,
chronic, and reproductive toxicity studies, undertaken for the Bismuth
Cartridge Company, indicate that bismuth-tin shot is nontoxic when
ingested by waterfowl (captive-reared mallards).
EFFECTIVE DATE: This final rule takes effect March 3, 1997.
ADDRESSES: Director (FWS/MBMO), U.S. Fish and Wildlife Service,
Department of the Interior, ms 634--ARLSQ, 1849 C Street NW.,
Washington, D.C. 20240.
FOR FURTHER INFORMATION CONTACT: Paul R. Schmidt, Chief, or Cyndi
Perry, Wildlife Biologist, Office of Migratory Bird Management (MBMO),
U.S. Fish and Wildlife Service, (703/358-1714).
SUPPLEMENTARY INFORMATION: Since the mid-1970s, the Service has sought
to identify shot that, when spent, does not pose a significant toxic
hazard to migratory birds and other wildlife. Currently, only steel
shot is approved by the Service as nontoxic. The Service believes
approval for other suitable candidate shot materials as nontoxic is
feasible. The Service is eager to consider these other materials for
approval as nontoxic shot.
The requirement to use nontoxic shot for hunting waterfowl and
coots created resistance among some hunters with only steel shot
available. With the resistance came an unknown level of noncompliance.
Although compliance with the use of nontoxic shot has increased over
the last few years, the Service believes that this level of compliance
will escalate with the availability and approval of other nontoxic shot
types.
On October 21, 1993, the Bismuth Cartridge Company petitioned the
Service to approve bismuth-tin shot for hunting waterfowl and coots. At
that time the company had not undertaken the studies necessary to
demonstrate that bismuth-tin shot is nontoxic to waterfowl and the
Service did not approve their petition. On June 24, 1994, the Bismuth
Cartridge Company petitioned the Service to modify provisions of 50 CFR
20.21(j), to legalize the use of bismuth-tin shot on an interim,
conditional basis for the 1994-95 and 1995-96 hunting seasons while
conducting toxicity tests. The petitioner's supporting rationale was:
1) bismuth is nontoxic; 2) the rule is conditional; and 3) the evidence
presented in the record, i.e., the application from the Bismuth
Cartridge Company. The petition acknowledges responsibility of the
Bismuth Cartridge Company to complete all the nontoxic shot approval
tests outlined in 50 CFR 20.134. Final regulations published in the
Federal Registers (January 3, 1995 [60 FR 61] and August 18, 1995 [60
FR 43314]) provided for conditional approval of bismuth-tin shot
(nominally, 97 parts bismuth and 3 parts tin) as nontoxic for hunting
waterfowl and coots during the 1994-95 and 1995-96 seasons,
respectively. A complete review of the bismuth-tin shot application and
review process is in the January 3, 1995, Federal Register.
Aside from recently completed toxicity studies there are several
other works that support the Service's decision. Sanderson et al.
(1994), Ringelman et al. (1992), and Sanderson et al. (1992) saw no
adverse effects when bismuth alloy shot was ingested by captive-reared
mallards. In Grandy et al. (1968), there were no deaths associated with
mallards dosed with tin shot.
The Service saw completion of several conditions prior to this
final approval of bismuth-tin shot as nontoxic. First, a series of
three toxicity tests in accordance with the requirements of 50 CFR
20.134 demonstrating that bismuth-tin is nontoxic to waterfowl is
necessary. The Service reviewed and approved the employed testing
protocol with technical assistance provided by the National Biological
Service (now the Biological Resources Division of the U.S. Geological
Survey).
The short-term (30 day) acute toxicity test entails dosing ducks
with shot and feeding them commercially available duck food.
Researchers record survival, body weight, blood hematocrit, and organ
analysis. Survival to 30 days post dosing, hematocrit values, body
weight, mean weight of kidney, liver, gonad, and gizzard were similar
in game-farm mallards dosed with either six No. 4 bismuth-tin shot, six
No. 4 steel shot, or a placebo (control)(Sanderson et al. 1995).
The 14-week chronic toxicity test entails dosing ducks with either
lead shot, steel shot, bismuth-tin shot, or a placebo (control group),
during cold weather using a nutritionally deficient diet. Researchers
record the results of the survival, body weight, retention and
dissolution of shot, blood and tissue analysis, and histopathology.
Sixty-five male and sixty-five female mallards underwent doses of
either No. 4 lead, or steel or bismuth-tin shot, or a placebo (control
group) on Days 0, 30, 60, and 90. All lead-dosed ducks died within 14
days of initial dosing. All steel- and placebo-dosed ducks survived
until sacrificing. All bismuth-tin dosed ducks survived until
sacrificing except one female who died of undetermined causes 131 days
post dosing after laying 16 eggs. In general, the chronic test
documents the absence of any deleterious effects of these bismuth-tin
doses on captive-reared mallards (Sanderson et al. 1996).
The third stage of testing was the completion of a reproductive
toxicity/chronic dosage study which includes assessment of
reproduction, fertility rates, and egg hatchability. For eggs,
researchers record weight, shell thickness, and content analysis. For
ducklings, researchers record body weight, sex ratios, blood and organ
analysis. This test runs concurrently with the chronic study. Results
confirmed no significant differences in the time required for either
control, steel, or bismuth-tin-dosed ducks to lay 21 eggs, and no
differences in the dates when the three dosed groups began to lay.
Similarly, no significant differences among doses in the fertility
rates, hatchability rates, or chemical content of the eggs arose. In
ducklings, no significant differences among doses in the mean body
weight (by day 7), sex ratios, hematocrit, mean weights of kidney and
liver, mean amounts of elements in organs, or in the histopathology
results arose (Sanderson et al. 1996).
As a result of these toxicity tests, the Service concludes that
bismuth-tin shot composed of 97 parts bismuth and 3 parts tin with <1 percent="" residual="" lead="" does="" not="" impose="" significant="" danger="" to="" migratory="" birds="" and="" other="" wildlife="" and="" their="" habitats.="" the="" second="" condition="" of="" approval="" is="" residual="" lead="" levels.="" the="" service="" considers="" any="" bismuth-tin="" shot="" manufactured="" with="" lead="" levels="" equal="" to="" or="" exceeding="" 1="" percent="" to="" be="" toxic="" and="" therefore,="" illegal.="" bismuth="" may="" occur="" as="" a="" by-product="" of="" iron,="" copper,="" and="" tin="" smelting="" and="" often="" contains="" lead.="" in="" the="" august="" 18,="" 1995,="" federal="" register,="" the="" service="" indicated="" that="" it="" would="" establish="" a="" maximum="" level="" for="" residual="" lead.="" the="" service,="" in="" consultation="" with="" the="" nbs,="" determined="" the="" maximum="" environmentally="" acceptable="" level="" of="" lead="" [[page="" 4875]]="" in="" bismuth-tin="" shot="" is="" trace="" amounts="" or=""><1 percent="" and="" is="" incorporating="" that="" requirement="" into="" the="" final="" rule.="" the="" third="" condition="" of="" approval="" involves="" enforcement.="" in="" the="" august="" 18,="" 1995,="" federal="" register,="" the="" service="" indicates="" that="" final="" unconditional="" approval="" ...="" ``would="" be="" contingent="" upon="" the="" development="" and="" availability="" of="" a="" noninvasive="" field="" testing="" device.''="" several="" noninvasive="" field="" testing="" devices="" are="" available.="" service="" law="" enforcement="" personnel,="" using="" these="" devices,="" determined="" them="" to="" be="" accurate="" and="" useful="" in="" determining="" bismuth-tin="" from="" lead.="" this="" rule="" amends="" 50="" cfr="" 20.21(j)="" by="" approving="" bismuth-tin="" shot="" for="" use="" in="" hunting="" waterfowl="" and="" coots.="" it="" is="" based="" on="" the="" original="" request="" made="" to="" the="" service="" by="" the="" bismuth="" cartridge="" company="" on="" october="" 21,="" 1993,="" and="" the="" results="" of="" the="" acute,="" chronic,="" and="" reproductive="" toxicity="" tests="" undertaken="" for="" the="" bismuth="" cartridge="" company="" which="" document="" the="" apparent="" absence="" of="" any="" deleterious="" effects="" of="" bismuth-tin="" shot="" when="" ingested="" by="" captive-reared="" mallards.="" public="" comment="" and="" responses="" the="" august="" 15,="" 1996,="" proposed="" rule="" published="" in="" the="" federal="" register="" (61="" fr="" 42495)="" invited="" comments="" from="" interested="" parties.="" the="" closing="" date="" for="" receipt="" of="" all="" comments="" was="" october="" 15,="" 1996.="" during="" this="" 60-day="" comment="" period,="" the="" service="" received="" twenty-three="" comment="" letters.="" of="" these="" comment="" letters,="" thirteen="" were="" from="" individuals="" and="" ten="" from="" non-governmental="" organizations.="" all="" comment="" letters="" expressed="" support="" for="" the="" final="" rule="" approving="" bismuth-tin="" as="" nontoxic="" for="" hunting="" waterfowl="" and="" coots.="" the="" individuals="" wrote="" of="" ``unqualified="" support="" for="" unconditional="" approval'',="" to="" ``encourage="" permanent="" approval''="" and="" that="" ``bismuth="" is="" a="" viable="" alternative.''="" the="" organizations="" wrote,="" ``as="" conservationists,="" we="" are="" moving="" in="" the="" right="" direction="" as="" proven="" by="" lead="" shot="" being="" eliminated''="" and="" ``...appreciate="" the="" opportunity="" to="" have="" more="" choices="" for="" nontoxic="" shot.'';="" that="" bismuth="" ``...having="" the="" performance="" of="" lead="" but="" without="" the="" toxicity="" will="" help="" all="" concerned'';="" and="" ``the="" availability="" of="" an="" additional="" non-toxic="" shot="" is="" of="" great="" importance="" not="" only="" to="" our="" waterfowl="" hunters,="" but="" also="" to="" the="" future="" of="" the="" waterfowl="" resource.''="" references="" grandy,="" j.w.,="" l.n.="" locke="" and="" g.e.="" bagley.="" 1968.="" relative="" toxicity="" of="" lead="" and="" five="" proposed="" substitute="" shot="" types="" to="" pen-reared="" mallards.="" j.wildl.="" manage.="" 32(3):483-488.="" ringelman,="" j.k.,="" m.w.="" miller="" and="" w.f.="" andelt.="" 1992.="" effects="" of="" ingested="" tungsten-bismuth-tin="" shot="" on="" mallards.="" co="" div.="" wildl.,="" fort="" collins,="" 24="" pp.="" sanderson,="" g.c.,="" w.l.="" anderson,="" g.l.="" foley,="" l.m.="" skowron="" and="" j.w.="" seets.="" 1994.="" toxicity="" and="" reproductive="" effects="" of="" ingested="" bismuth="" alloy="" shot="" and="" effects="" of="" embedded="" bismuth="" alloy,="" lead,="" and="" iron="" shot="" on="" game-farm="" mallards.="" final="" report.="" ill.="" nat.="" hist="" survey.="" champaign,="" il.="" 64pp.="" sanderson,="" g.c.,="" s.g.="" wood,="" g.l.="" foley="" and="" j.d.="" brawn.="" 1992.="" toxicity="" of="" bismuth="" shot="" compared="" with="" lead="" and="" steel="" shot="" in="" game-farm="" mallards.="" trans.="" 57th="" n.a.="" wildl.="" nat.="" res.="" conf.,="" 57:526-540.="" sanderson,="" g.c.,="" w.l.="" anderson,="" g.l.="" foley,="" l.m.="" skowron,="" j.d.="" brawn="" and="" j.w.="" seets.="" 1995.="" toxicity="" of="" ingested="" bismuth="" alloy="" shot="" on="" game-="" farm="" mallards="" (revised="" final="" report).="" report="" to="" peterson="" publishing="" company="" by="" the="" univ.="" of="" illinois,="" ill.="" nat.="" hist.="" survey.="" champaign,="" il.="" 69pp.="" sanderson,="" g.c.,="" w.l.="" anderson,="" g.l.="" foley,="" k.l.="" duncan,="" l.m.="" skowron,="" j.d.="" brawn="" and="" j.w.="" seets.="" 1996.="" toxicity="" and="" reproductive="" test="" including="" chronic="" health="" effects="" of="" ingested="" bismuth="" alloy="" shot="" on="" game-farm="" mallards="" (revised="" final="" report).="" report="" to="" peterson="" publishing="" company="" by="" the="" univ.="" illinois,="" ill.="" nat.="" hist.="" survey.="" champaign,="" il.="" 113pp.="" nepa="" consideration="" in="" compliance="" with="" the="" requirements="" of="" section="" 102(2)(c)="" of="" the="" national="" environmental="" policy="" act="" of="" 1969="" (nepa)="" (42="" u.s.c.="" 4332(c),="" and="" the="" council="" on="" environmental="" quality's="" regulation="" for="" implementing="" nepa="" (40="" cfr="" 1500-1508),="" the="" service="" prepared="" an="" environmental="" assessment="" (ea)="" in="" july="" 1996.="" copies="" of="" this="" ea="" are="" available="" to="" the="" public="" by="" writing="" to="" the="" office="" of="" migratory="" bird="" management="" at="" the="" address="" indicated="" under="" the="" caption="" addresses.="" after="" review="" and="" evaluation="" of="" the="" information="" in="" the="" environmental="" assessment,="" the="" service="" determined="" that="" the="" final="" action="" to="" amend="" 50="" cfr="" 20.21(j)="" to="" allow="" use="" of="" bismuth-tin="" shot="" as="" nontoxic="" for="" hunting="" waterfowl="" and="" coots="" would="" not="" be="" a="" major="" federal="" action="" that="" would="" significantly="" affect="" the="" quality="" of="" the="" human="" environment.="" endangered="" species="" act="" considerations="" section="" 7="" of="" the="" endangered="" species="" act="" (esa)="" of="" 1972,="" as="" amended="" (16="" u.s.c.="" 1531="" et="" seq.),="" provides="" in="" part="" that,="" each="" federal="" agency="" shall="" ``insure="" that="" any="" action="" authorized,="" funded="" or="" carried="" out="" ...="" is="" not="" likely="" to="" jeopardize="" the="" continued="" existence="" of="" any="" endangered="" species="" or="" threatened="" species="" or="" result="" in="" the="" destruction="" or="" adverse="" modification="" of="" (critical)="" habitat="" ...''="" the="" service="" completed="" a="" section="" 7="" consultation="" under="" the="" esa="" for="" this="" final="" rule="" which="" stated:="" ``.="" .="" .="" final="" approval="" of="" bismuth-tin="" shot="" for="" hunting="" waterfowl="" and="" coots="" is="" not="" likely="" to="" adversely="" effect="" threatened,="" endangered,="" proposed="" and="" candidate="" species.''="" the="" result="" of="" the="" service's="" consultation="" under="" section="" 7="" of="" the="" esa="" are="" public="" documents="" and="" are="" available="" for="" public="" inspection="" in="" the="" division="" of="" endangered="" species="" and="" the="" office="" of="" migratory="" bird="" management,="" u.s.="" fish="" and="" wildlife="" service,="" arlington="" square,="" 4401="" n.="" fairfax="" drive,="" arlington,="" virginia.="" regulatory="" flexibility="" act,="" executive="" order="" 12866,="" and="" the="" paperwork="" reduction="" act="" the="" regulatory="" flexibility="" act="" of="" 1980="" (5="" u.s.c.="" 601="" et="" seq.)="" requires="" the="" preparation="" of="" flexibility="" analyses="" for="" rules="" that="" will="" have="" a="" significant="" effect="" on="" a="" substantial="" number="" of="" small="" entities,="" which="" includes="" small="" businesses,="" organizations="" or="" governmental="" jurisdictions.="" the="" service="" determined,="" however,="" that="" this="" final="" rule="" will="" have="" no="" effect="" on="" small="" entities="" since="" the="" approved="" shot="" merely="" will="" supplement="" nontoxic="" shot="" already="" in="" commerce="" and="" available="" throughout="" the="" retail="" and="" wholesale="" distribution="" systems.="" the="" service="" anticipates="" no="" dislocation="" or="" other="" local="" effects,="" with="" regard="" to="" hunters="" and="" others.="" this="" rule="" was="" not="" subject="" to="" office="" of="" management="" and="" budget="" (omb)="" review="" under="" executive="" order="" 12866.="" the="" service="" has="" examined="" this="" regulation="" under="" the="" paperwork="" reduction="" act="" of="" 1995="" and="" found="" it="" to="" contain="" no="" information="" collection="" requirements.="" unfunded="" mandates="" the="" service="" has="" determined="" and="" certifies="" in="" compliance="" with="" the="" requirements="" of="" the="" unfunded="" mandates="" act,="" 2="" u.s.c.="" 1502="" et="" seq.,="" that="" this="" rulemaking="" will="" not="" impose="" a="" cost="" of="" $100="" million="" or="" more="" in="" any="" given="" year="" on="" local="" or="" state="" government="" or="" private="" entities.="" civil="" justice="" reform--executive="" order="" 12988="" the="" service,="" in="" promulgating="" this="" final="" rule,="" has="" determined="" that="" these="" regulations="" meet="" the="" applicable="" standards="" provided="" in="" sections="" 3(a)="" and="" 3(b)(2)="" of="" executive="" order="" 12988.="" [[page="" 4876]]="" authorship:="" the="" primary="" author="" of="" this="" proposed="" rule="" is="" cynthia="" m.="" perry,="" office="" of="" migratory="" bird="" management.="" list="" of="" subjects="" in="" 50="" cfr="" part="" 20="" exports,="" hunting,="" imports,="" reporting="" and="" recordkeeping="" requirements,="" transportation,="" wildlife.="" accordingly,="" part="" 20,="" subchapter="" b,="" chapter="" 1="" of="" title="" 50="" of="" the="" code="" of="" federal="" regulations="" is="" amended="" as="" follows:="" part="" 20--[amended]="" 1.="" the="" authority="" citation="" for="" part="" 20="" continues="" to="" read="" as="" follows:="" authority:="" 16="" u.s.c.="" 703-711;="" 16="" u.s.c.="" 712="" and="" 16="" u.s.c.="" 742="" a-="" j.="" 2.="" section="" 20.21="" is="" amended="" by="" revising="" paragraph="" (j)="" introductory="" text="" and="" removing="" and="" reserving="" paragraph="" (j)(2)="" to="" read="" as="" follows:="" sec.="" 20.21="" hunting="" methods.="" *="" *="" *="" *="" *="" (j)="" while="" possessing="" shot="" (either="" in="" shotshells="" or="" as="" loose="" shot="" for="" muzzleloading)="" other="" than="" steel="" shot,="" bismuth-tin="" (97="" parts="" bismuth:="" 3="" parts="" tin="" with=""><1 percent="" residual="" lead)="" shot="" or="" such="" shot="" approved="" as="" nontoxic="" by="" the="" director="" pursuant="" to="" procedures="" set="" forth="" in="" 20.134,="" provided="" that:="" *="" *="" *="" *="" *="" dated:="" january="" 24,="" 1997.="" george="" t.="" frampton,="" assistant="" secretary="" for="" fish="" and="" wildlife="" and="" parks="" [fr="" doc.="" 97-2333="" filed="" 1-30-97;="" 8:45="" am]="" billing="" code="" 4310-55-f="">