[Federal Register Volume 62, Number 21 (Friday, January 31, 1997)]
[Proposed Rules]
[Pages 4877-4879]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-2400]
Federal Register / Vol. 62, No. 21 / Friday, January 31, 1997 /
Proposed Rules
[[Page 4877]]
DEPARTMENT OF INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018-AE09
Migratory Bird Hunting; Temporary Approval of Tungsten-Iron Shot
as Nontoxic for the 1997-98 Season
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule and notice of availability.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) proposes to
temporarily approve tungsten-iron shot as nontoxic for the 1997-98
migratory bird hunting season. The toxicological report which is an
extensive literature search and analysis of tungsten and tungsten-iron,
suggests that these compounds are nontoxic under assumed use and in the
environment. Analysis of the toxicity study reveal no adverse effects
over a 30-day period when dosing mallards with 8 BB size tungsten-iron
shot.
DATES: Comments on the proposed rule or draft Environmental Assessment
(EA) (see caption NEPA Consideration) must be received no later than
April 1, 1997.
ADDRESSES: Copies of the EA are available by writing to the Chief,
Office of Migratory Bird Management (MBMO), U.S. Fish and Wildlife
Service, 1849 C Street, NW., room 634--ARLSQ, Washington, DC 20240.
Comments may also be forwarded to this same address. The public may
inspect comments during normal business hours in room 634, Arlington
Square Building, 4401 N. Fairfax Drive, Arlington, Virginia.
FOR FURTHER INFORMATION CONTACT: Paul R. Schmidt, Chief, or Cyndi
Perry, Wildlife Biologist, Office of Migratory Bird Management (MBMO),
(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. Bismuth-tin which was
given temporary approval for hunting seasons 1993-94, 1994-95, and
1995-96, may be approved in early 1997. The Service believes approval
for other suitable candidate shot materials as nontoxic is feasible.
Compliance with the use of nontoxic shot is increasing over the last
few years. The Service believes that this level of compliance will
continue to increase with the availability and approval of other
nontoxic shot types. The Service is eager to consider these other
materials for approval as nontoxic shot.
Federal Cartridge Company's (Anoka, MN) candidate shot is made from
sintering tungsten and iron, which together forms a two phase alloy.
Shot made from this material has a density of approximately 10.3 gm/cc
or 94 percent of the density of lead. The shot will contain nominally
55 percent tungsten and 45 percent iron, by weight. The pellet will
have sufficient iron to attract a magnet.
Federal's application includes a description of the new tungsten-
iron shot, a toxicological report, and results of a 30-day dosing study
to assess the toxicity of this shot in game-farm mallards. The
toxicological report incorporates toxicity information (a synopsis of
acute and chronic toxicity data for birds, acute effects on mammals,
potential for environmental concern, toxicity to aquatic and
terrestrial invertebrates, amphibians and reptiles), and information on
environmental fate and transport (shot alteration, environmental half-
life, and environmental concentration). The toxicity study is a 30-day
dosing test to determine if the candidate shot poses any deleterious
effects to game farm mallards. This meets the requirements of Test 1,
50 CFR Sec. 20.134(c)(2).
Toxicity Information: There is considerable difference in the
toxicity of soluble and insoluble compounds of tungsten and iron.
Elemental tungsten and iron are virtually insoluble and, therefore, are
expected to be nontoxic. After completion of the literature review,
there appears to be no known basis for concern of toxicity to wildlife
for the candidate shot material (metallic tungsten and iron)via
ingestion by fish, birds, or mammals (Bursian et al. 1996; Gigiena
1983; Patty 1981; Industrial Medicine 1946; Karantassis 1924).
Environmental Fate and Transport: Tungsten is insoluble in water
and, therefore, not mobile in hypergenic environments. Tungsten is very
stable with acids and does not easily complex. Preferential uptake by
plants in acid soil suggest uptake of tungsten in the anionic form
associated with tungsten minerals rather than elemental tungsten
(Kabata-Peddias 1984).
Environmental Concentration: Calculation of the environmental
concentration (EEC) for a terrestrial ecosystem is on 69,000 shot per
hectare (Pain 1990), assuming complete erosion of material in 5 cm of
soil. The EEC for tungsten in soil is 32.9 mg/kg for a shot composition
of 62.9% tungsten-iron alloy, 11.87% tungsten, and 25.31% iron. Adverse
effects on biota are not expected to occur for shot components, given
the Hazard Quotients (HQs).
Environmental Concentration: Calculation of the environmental
concentration (EEC) for an aquatic ecosystem assumes complete erosion
of the shot in one cubic foot of water. The EEC in water for tungsten
was 10.5 mg/L for a shot composition of 62.9% tungsten-iron alloy,
11.87% tungsten, and 25.31% iron. Given these HQs, adverse effects on
biota are not expected to occur for shot components.
An extensive literature search and review provides information on
the toxicity of elemental tungsten to waterfowl and other birds. In
Ringelman et al.(1993) effects of ingested tungsten-bismuth-tin shot on
captive mallards saw no acute toxicity. Orally dosing twenty eight-week
old game farm mallards with 12 to 17 pellets (1.03g) TBT and monitoring
for 32 days for evidence of intoxication saw no effect. No birds died
during the trial. Gross lesions were not observed during the postmortem
examination. Histopathological examination did not reveal any evidence
of toxicity or tissue damage. Tungsten was not detectable in kidney or
liver samples. The authors conclusion is that TBT shot presents
virtually no potential for acute intoxication in mallards.
A study by Kraabel et al. (1996) assess the effects of embedded
tungsten-bismuth-tin shot on mallards. The authors conclusion was that
TBT is not acutely toxic when implanted in mallard muscle tissue.
Inflammatory reactions to TBT shot were localized, and had no
detectable systemic effects on mallard health.
Nell (1981) fed laying hens 0.4 or 1g/kg tungsten in a commercial
mash for five months to assess the reproductive performance. Weekly egg
production was normal and hatchability of fertile eggs was not
affected.
Large doses of tungsten given to chickens either through injection
or by feeding saw an increase in tissue concentration of tungsten and a
decreased tissue concentration of molybdenum (Nell 1981). The loss rate
of tungsten from the liver occurred in an exponential manner with a
half-life of 27 hours. The alterations in molybdenum metabolism seem to
identify with tungsten and not of molybdenum deficiency. Death due to
tungsten occurred when tissue concentrations were increased to
25g/g liver. At this concentration, the activity of xanthine
dehydrogenase was zero.
In Federal's 30-day dosing study eight male and 8 female adult
mallards given 8 #4 steel shot, 8 #4 lead shot or 8 BB's
[[Page 4878]]
of tungsten-iron were observed over a 30-day period. An additional 8
males and 8 females were given no shot. All tungsten-iron birds
survived the test with a slight increase in body weight. There were no
changes in hematocrit, hemoglobin concentration, and ALAD activity, as
well as 25 plasma chemistry parameters. Five of the 16 tungsten-iron
birds had a mild hepatocellular biliary stasis, but the authors felt
this was not remarkable. No other histopathological lesions were found.
In general, no adverse effects were seen when mallards were given 8 BB
size tungsten-iron shot and monitored over a 30-day period. Fifty
percent of the lead-dose birds (5 males and 3 females) died during the
30-day test while there were no mortalities in the other groups. Lead-
dose birds were the only ones to display green excreta, lethargy, and
ataxia. Alteration of body weights is not significant in any of the
treatments, although lead-dose birds which died during the trial lost
an average of 30% of their body weight. Hematocrit, hemoglobin
concentrations and ALAD activity were significantly depressed at day 15
in the lead-dose females, while lead-dose males had significantly
depressed hematocrit and hemoglobin concentration in comparison to the
other three groups. There were no significant differences in these
whole-blood parameters at day 30.
As a result of the toxicological report and toxicity test the
Service concludes at this time that the available information indicates
that tungsten-iron shot, nominally 40-55 percent tungsten and 60-45
percent iron, by weight with <1 percent="" residual="" lead,="" does="" not="" impose="" significant="" danger="" to="" migratory="" birds="" and="" other="" wildlife="" and="" their="" habitats.="" the="" first="" condition="" of="" approval="" is="" the="" concurrent="" running="" of="" an="" adverse="" condition="" reproductive/chronic="" toxicity="" test="" on="" game="" farm="" mallards="" as="" outlined="" in="" 50="" cfr="" 20.134="" (c)(2)="" (tests="" 2="" and="" 3)="" and="" in="" consultation="" with="" the="" service's="" office="" of="" migratory="" bird="" management="" and="" the="" u.s.="" geological="" survey's="" (usgs)="" division="" of="" biological="" resources="" (brd).="" this="" study="" includes="" assessment="" of="" reproduction,="" fertility="" rates,="" and="" egg="" hatchability="" (egg="" weight,="" shell="" thickness,="" and="" content="" analysis).="" the="" test="" requires="" the="" applicant="" to="" demonstrate="" that="" tungsten-iron="" shot="" is="" nontoxic="" to="" waterfowl="" and="" their="" offspring.="" the="" second="" condition="" of="" approval="" is="" testing="" for="" residual="" lead="" levels.="" the="" service="" will="" consider="" any="" tungsten-iron="" shot="" manufactured="" with="" lead="" levels="" equal="" to="" or="" exceeding="" 1="" percent="" toxic="" and,="" therefore,="" illegal.="" in="" august="" 18,="" 1995,="" federal="" register="" (60="" fr="" 43314),="" the="" service="" indicated="" it="" would="" establish="" a="" maximum="" level="" for="" residual="" lead.="" the="" service,="" in="" consultation="" with="" the="" usgs--brd,="" determined="" the="" maximum="" environmentally="" acceptable="" level="" of="" lead="" in="" any="" nontoxic="" shot="" is="" trace="" amounts="" or=""><1 percent="" and="" will="" incorporate="" this="" requirement="" into="" any="" final="" rule="" that="" may="" be="" promulgated="" (61="" fr="" 42492).="" the="" third="" condition="" of="" approval="" involves="" enforcement.="" in="" the="" august="" 18,="" 1995,="" federal="" register="" (60="" fr="" 43314),="" the="" service="" indicated="" that="" final="" unconditional="" approval="" of="" any="" nontoxic="" shot="" would="" be="" contingent="" upon="" the="" development="" and="" availability="" of="" a="" noninvasive="" field="" testing="" device.="" several="" noninvasive="" field="" testing="" devices="" are="" under="" development="" to="" separate="" tungsten-iron="" shot="" from="" lead="" shot.="" furthermore,="" tungsten-="" iron="" shot="" can="" be="" drawn="" to="" a="" magnet="" as="" a="" simple="" field="" detection="" method.="" this="" proposed="" rule="" would="" amend="" 50="" cfr="" 20.21(j)="" by="" temporarily="" approving="" tungsten-iron="" shot="" as="" nontoxic="" for="" the="" 1997-98="" migratory="" bird="" hunting="" season.="" it="" is="" based="" on="" the="" original="" request="" made="" to="" the="" service="" by="" federal="" cartridge="" company="" on="" august="" 20,="" 1996,="" the="" toxicological="" report,="" and="" acute="" toxicity="" study.="" results="" of="" the="" toxicological="" report="" and="" 30-day="" toxicity="" test="" undertaken="" for="" federal="" cartridge="" company="" document="" the="" apparent="" absence="" of="" any="" deleterious="" effects="" of="" tungsten-="" iron="" shot="" when="" ingested="" by="" captive-reared="" mallards="" or="" to="" the="" ecosystem.="" references="" barr="" engineering="" company.="" 1996.="" toxicology="" report="" on="" new="" shot.="" contract="" report="" 2302118/40970-1/cet.="" 21="" pp.="" bursian,="" s.j.,="" m.e.="" kelly,="" r.j.="" aulerich,="" d.c.="" powell,="" and="" s.="" fitzgerald.="" 1996.="" thirty-day="" dosing="" test="" to="" assess="" the="" toxicity="" of="" tungsten-iron="" shot="" in="" game-farm="" mallards.="" 1996.="" report="" to="" federal="" cartridge="" co.="" 77="" pp.="" gigiema="" i="" sanitariya.="" 1983.="" mezhdunarodnaya="" kniga.="" moscow,="" ussr.="" 48(7):77.="" 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.="" interagency="" ecosystem="" management="" task="" force.="" 1995.="" the="" ecosystem="" approach:="" healthy="" ecosystems="" and="" sustainable="" economics.="" volume="" ii--="" implementation="" issues.="" kabata-peddias,="" a.="" and="" h.="" pendias.="" 1984.="" trace="" elements="" in="" soil="" and="" plants.="" crc="" press,="" inc.="" boca="" raton,="" fl.="" karantassis,="" t.="" 1924.="" on="" the="" toxicity="" of="" compounds="" of="" tungsten="" and="" molybdenum.="" ann.="" med.="" 28:1541-1543.="" kraabel,="" f.w.,="" m.w.="" miller,="" d.m.="" getzy,="" and="" j.k.="" ringleman.="" 1996.="" effects="" of="" embedded="" tungsten-bismuth-tin="" shot="" and="" steel="" shot="" on="" mallards.="" j.="" wildl.="" dis.="" 38(1):1-8.="" pain,="" d.j.="" 1990.="" lead="" shot="" ingestion="" by="" waterbirds="" in="" the="" carmarque,="" france:="" an="" investigation="" of="" levels="" and="" interspecific="" difference.="" environ.="" pollut.="" 66:273-285.="" patty's="" industrial="" hygiene="" and="" toxicology.="" 1981.="" wiley="" interscience.="" wiley="" &="" sons,="" inc.="" ny,="" ny.="" third="" ed.="" 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.="" nepa="" consideration="" in="" compliance="" with="" the="" requirements="" of="" section="" 102(2)(c)="" of="" the="" national="" environmental="" policy="" act="" of="" 1969="" (42="" u.s.c.="" 4332(c)),="" and="" the="" council="" on="" environmental="" quality's="" regulation="" for="" implementing="" nepa="" (40="" cfr="" 1500-1508),="" the="" service="" prepared="" a="" draft="" environmental="" assessment="" (ea)="" in="" december,="" 1996.="" this="" ea="" is="" available="" to="" the="" public="" at="" the="" location="" indicated="" under="" the="" addresses="" caption.="" based="" on="" review="" and="" evaluation="" of="" the="" information="" in="" the="" ea,="" the="" service="" will="" determine="" whether="" amending="" 50="" cfr="" 20.21(j)="" to="" provide="" temporary="" approval="" of="" tungsten-iron="" shot="" as="" nontoxic="" for="" the="" 1997-98="" migratory="" bird="" hunting="" season="" would="" 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="" that="" federal="" agencies="" 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="" has="" initiated="" a="" section="" 7="" consultation="" under="" the="" esa="" for="" this="" proposed="" rule.="" the="" result="" of="" the="" service's="" consultation="" under="" section="" 7="" of="" the="" esa="" will="" be="" available="" to="" the="" public="" at="" the="" location="" indicated="" under="" the="" addresses="" caption.="" 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="" [[page="" 4879]]="" entities,="" which="" includes="" small="" businesses,="" organizations="" or="" governmental="" jurisdictions.="" the="" service="" determined="" this="" 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="" reform="" the="" service="" has="" determined="" and="" certifies="" pursuant="" to="" 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="" rule,="" determines="" that="" these="" regulations="" meet="" the="" applicable="" standards="" provided="" in="" sections="" 3(a)="" and="" 3(b)(2)="" of="" executive="" order="" 12988.="" 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="" proposed="" to="" be="" 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="" adding="" 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,="" or="" bismuth-tin="" (97="" parts="" bismuth:="" 3="" parts="" tin="" with=""><1 percent="" residual="" lead)="" shot,="" or="" tungsten-="" iron="" ([nominally]="" 40="" parts="" tungsten:="" 60="" parts="" iron="" 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:="" (1)="" *="" *="" *="" (2)="" tungsten-iron="" shot="" (nominally="" 40="" parts="" tungsten:="" 60="" parts="" iron="" with=""><1 percent="" residual="" lead)="" is="" legal="" as="" nontoxic="" shot="" for="" the="" 1997-="" 98="" migratory="" bird="" hunting="" season.="" dated:="" january="" 24,="" 1997.="" george="" t.="" frampton,="" assistant="" secretary="" for="" fish="" and="" wildlife="" and="" parks.="" [fr="" doc.="" 97-2400="" filed="" 1-30-97;="" 8:45="" am]="" billing="" code="" 4310-55-f="">