[Federal Register Volume 63, Number 194 (Wednesday, October 7, 1998)]
[Rules and Regulations]
[Pages 54022-54026]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-26857]
[[Page 54021]]
_______________________________________________________________________
Part IV
Department of the Interior
_______________________________________________________________________
Fish and Wildlife Service
_______________________________________________________________________
50 CFR Part 20
Migratory Bird Hunting; Temporary Approval of Tungsten-Polymer Shot as
Nontoxic for the 1998-99 Season; Final Rule
Federal Register / Vol. 63, No. 194 / Wednesday, October 7, 1998 /
Rules and Regulations
[[Page 54022]]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018-AE66
Migratory Bird Hunting; Temporary Approval of Tungsten-Polymer
Shot as Nontoxic for the 1998-99 Season
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) amends Section
20.21(j) to grant temporary approval of tungsten-polymer shot as
nontoxic for the 1998-99 migratory bird hunting season, except in the
Yukon-Kuskokwim (Y-K) Delta region, Alaska. The toxicological report,
which is an extensive literature search and analysis of tungsten and
Nylon 6 (the polymer), 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
(Anas platyrhynchos) with 8 BB size tungsten-polymer shot.
DATES: This rule takes effect on October 7, 1998.
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. 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: Robert J. Blohm, Acting Chief, Office
of Migratory Bird Management, U.S. Fish and Wildlife Service, (703)
358-1838.
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. The Service established
procedures and requirements for approval of shot and shot coatings as
nontoxic in 1986 and published them in 50 CFR 20.134. The Service
adopted new procedures in December 1997. These are published at 50 CFR
20.134. Currently, only steel shot and bismuth-tin shot are approved by
the Service as nontoxic shot. The Service granted temporary approval of
bismuth-tin as nontoxic on two separate actions for the hunting seasons
of 1994-95 and 1995-96. Tungsten-iron shot was given temporary approval
for the 1997-98 migratory bird hunting season (62 FR 43444 published
August 18, 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.
Federal Cartridge Company's (Anoka, Minnesota) candidate shot is a
matrix of Nylon 6 or 11 polymer surrounding particles of elemental
tungsten. Shot made from this material has a density of approximately
11.2 g/cm3 or approximately the density of lead. The shot
will contain approximately 95.5 percent tungsten and 4.5 percent Nylon
6 or 11 by weight. At this time, only tungsten-polymer shot with Nylon
6 has been tested. TP shot with Nylon 11 is currently undergoing
research and testing. Therefore, this final rule for temporary approval
only deals with Nylon 6.
Federal's application includes a description of the new tungsten-
polymer (TP) shot, a toxicological report (Barr, 1996), and the results
of a 30-day dosing study of the toxicity of this shot in game-farm
mallards (Anas platyrhynchos). The toxicological report incorporates
toxicity information (a synopsis of acute and chronic toxicity data for
mammals and birds, potential for environmental concern, and 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 will meet the
requirements for Tier 2 consideration, as described in 50 CFR
20.134(b)(3).
Toxicity Information
There is considerable difference in the toxicity of soluble and
insoluble compounds of tungsten. Elemental tungsten (the material
submitted by Federal) is virtually insoluble and is, therefore,
expected to be relatively nontoxic. The potential toxicity of nylon
compounds due to degradation is primarily associated with the
stabilizers, antioxidants, plasticizers, and unreacted prepolymers.
Residual caprolactum has been found in some commercial Nylon 6
products, but little concern regarding this compound has been developed
(Patty, 1981). Even though most toxicity tests reviewed were based on
soluble tungsten compounds rather than elemental tungsten (while the
toxicity of Nylon 6 is negligible due to its insolubility), there
appears to be no basis for concern of toxicity to wildlife for the TP
shot (metallic tungsten and Nylon 6) 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 in acids and does not
easily complex. Preferential uptake by plants in acid soil suggests
that uptake of tungsten in the anionic form is associated with tungsten
minerals rather than elemental tungsten (Kabata-Pendias and Pendias,
1984).
Environmental Concentrations
Calculation of the estimated environmental concentration (EEC) of
tungsten in a terrestrial ecosystem is based on 69,000 shot per hectare
(Pain, 1990), assuming complete erosion of material in 5 cm of soil.
The EECs for tungsten and Nylon 6 in soil are 58.3 mg/kg and 2.7 mg/kg,
respectively. Calculation of the EEC in an aquatic ecosystem assumes
complete erosion of the shot in one cubic foot of water. The EECs in
water for tungsten and Nylon 6 are 18.7 mg/L and 0.9 mg/L,
respectively. The Hazard Quotients assume that complete erosion of the
shot components would occur; however, the TP shot is considered
insoluble and is stable in basic, neutral, and mildly acidic
environments. Therefore, erosion is expected to be minimal, and adverse
effects on biota are not expected to occur.
Effects on Birds
An extensive literature review provided information on the toxicity
of elemental tungsten to waterfowl and other birds. Ringelman et al.
(1993) orally dosed 20 8-week-old game-farm mallards with 12-17 (1.03g)
tungsten-bismuth-tin (TBT) pellets and monitored them for 32 days for
evidence of intoxication. No birds died during the trial, gross lesions
were not observed during the postmortem examination, histopathological
examinations did not reveal any evidence of toxicity or tissue damage,
and tungsten was not detectable in kidney or liver samples. The authors
concluded that TBT shot presented virtually no potential for acute
intoxication in mallards.
Kraabel et al. (1996) assessed the effects of embedded TBT shot on
mallards and concluded that TBT was not acutely toxic when implanted in
muscle tissue. Inflammatory reactions to TBT shot were localized and
had no
[[Page 54023]]
detectable systemic effects on mallard health.
Nell (1981) fed laying hens (Gallus domesticus) 0.4 or 1 g/kg
tungsten in a commercial mash for five months to assess reproductive
performance. Weekly egg production was normal and hatchability of
fertile eggs was not affected. Exposure of chickens to large doses of
tungsten either through injection or by feeding, resulted in an
increased tissue concentration of tungsten and a decreased
concentration of molybdenum (Nell, 1981). The loss of tungsten from the
liver occurred in an exponential manner with a half-life of 27 hours.
The alterations in molybdenum metabolism seemed to be associated with
tungsten intake rather than molybdenum deficiency. Death due to
tungsten occurred when tissue concentrations increased to 25 mg/g
liver. At that concentration, xanthine dehydrogenase activity was zero.
Nylon 6 is the commercially important homopolymer of caprolactum.
Most completely polymerized nylon materials are physiologically inert,
regardless of the toxicity of the monomer from which they are made
(Peterson, 1977). Few data exist on the toxicity of Nylon 6 in animals.
Most toxicity studies relate to thermal degradation products and so are
not relevant to the exposure of wildlife to shot containing nylon.
Montgomery (1982) reported that feeding Nylon 6 to rats at a level of
25 percent of the diet for 2 weeks caused a slower rate of weight gain,
presumably due to a decrease in food consumption and feed efficiency.
However, the rats suffered no anatomic injuries due to the consumption
of nylon.
Federal's 30-day dosing study (Bursian et al., 1996) included four
treatment groups of game-farm mallards (16 birds in each group, 8 males
and 8 females) exposed to different types of shot: 8 No. 4 steel, 8 No.
4 lead, 8 BBs of tungsten-polymer, and none (control). All TP-dosed
birds survived the test with no significant alteration in body weight.
There were no changes in hematocrit, hemoglobin concentration, or
aminolevulinic acid dehydratase (an enzyme important to hemoglobin
synthesis) activity. The only significant difference between no-shot,
steel, and TP males in any of the 25 plasma chemistry parameters at day
15 was an increase in the albumin/globulin ratio in the TP birds when
compared to the other two groups, but the authors felt this was not
remarkable. Three TP-dosed males developed mild biliary stasis. The
authors attributed this to the intubating of mallards with 8 BBs of TP
shot inducing a pathological condition, however, slight, that is not
found in the control birds. No other histopathological lesions were
found. In general, no adverse effects were seen in mallards given 8 BB-
size TP shot and monitored over a 30-day period. Tungsten was detected
in the femur of 2 TP-dosed females and the kidneys of 2 TP-dosed birds;
in both tissues, concentrations were only slightly above detection
limits.
Based on the results of the toxicological report and the toxicity
test (Tier 1 and 2), the Service concludes that TP shot (95.5 percent
tungsten and 4.5 percent Nylon 6, by weight with <1 percent="" residual="" lead),="" does="" not="" pose="" a="" significant="" danger="" to="" migratory="" birds="" or="" other="" wildlife="" and="" their="" habitats.="" however,="" the="" service="" has="" some="" concern="" that="" the="" absorption="" of="" tungsten="" into="" the="" femur,="" kidney,="" and="" liver="" could="" potentially="" affect="" the="" spectacled="" eider="" (somateria="" fischeri),="" a="" species="" already="" subject="" to="" adverse="" weather,="" predation,="" and="" lead="" poisoning="" on="" the="" yukon-kuskokwim="" (y-k)="" delta,="" alaska.="" until="" a="" reproductive/chronic="" toxicity="" test="" has="" been="" completed="" and="" the="" service="" has="" reviewed="" the="" results,="" tp="" shot="" cannot="" be="" conditionally="" approved="" for="" the="" y-k="" delta="" region.="" the="" first="" condition="" of="" approval="" is="" toxicity="" testing.="" candidate="" materials="" not="" approved="" under="" tier="" 1="" and/or="" 2="" testing="" are="" subjected="" to="" standards="" of="" tier="" 3="" testing.="" the="" scope="" of="" tier="" 3="" includes="" chronic="" exposure="" under="" adverse="" environmental="" conditions="" and="" effects="" on="" reproduction="" in="" game-farm="" mallards,="" as="" outlined="" in="" 50="" cfr="" 20.134(b)(4)(a="" and="" b)="" (tier="" 3)="" and="" in="" consultation="" with="" the="" service's="" office="" of="" migratory="" bird="" management="" and="" the="" u.s.="" geological="" survey's="" division="" of="" biological="" resources.="" this="" study="" includes="" assessment="" of="" long-term="" toxicity="" under="" depressed="" temperature="" conditions="" using="" a="" nutritionally-deficient="" diet,="" as="" well="" as="" a="" moderately="" long-term="" study="" that="" includes="" reproductive="" assessment.="" the="" tests="" require="" the="" applicant="" to="" demonstrate="" that="" tp="" shot="" is="" nontoxic="" to="" waterfowl="" and="" their="" offspring.="" the="" second="" condition="" of="" approval="" is="" testing="" for="" residual="" lead="" levels.="" any="" tp="" shot="" with="" lead="" levels="" equal="" to="" or="" exceeding="" 1="" percent="" will="" be="" considered="" toxic="" and,="" therefore,="" illegal.="" in="" the="" august="" 18,="" 1995,="" federal="" register="" (60="" fr="" 43314),="" the="" service="" indicated="" that="" it="" would="" establish="" a="" maximum="" level="" for="" residual="" lead.="" the="" service="" has="" determined="" that="" the="" maximum="" environmentally="" acceptable="" level="" of="" lead="" in="" any="" nontoxic="" shot="" is="" trace="" amounts="" of=""><1 percent,="" and="" has="" incorporated="" this="" requirement="" (50="" cfr="" 20.134(b)(5))="" in="" the="" december="" 1,="" 1997,="" final="" rule="" (62="" fr="" 63608).="" 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.="" this="" requirement="" was="" incorporated="" into="" regulations="" at="" 50="" cfr="" 20.134(b)(6)="" in="" the="" december="" 1,="" 1997,="" final="" rule="" (62="" fr="" 63608).="" several="" noninvasive="" field="" testing="" devices="" are="" under="" development="" to="" separate="" tp="" shot="" from="" lead="" shot.="" law="" enforcement="" officials="" can="" distinguish="" between="" shotshells="" containing="" lead="" pellets="" and="" those="" containing="" tungsten-="" polymer="" in="" two="" ways.="" first,="" the="" headstamp="" of="" the="" shell="" will="" clearly="" distinguish="" it="" as="" a="" shell="" containing="" tungsten-polymer="" shot.="" second,="" electronic="" devices="" designed="" to="" distinguish="" between="" shotshells="" containing="" different="" shot="" materials="" will="" register="" tungsten-polymer="" shells="" as="" non-toxic,="" similar="" to="" bismuth-tin="" shells.="" in="" summary,="" this="" rule="" amends="" 50="" cfr="" 20.21(j)="" by="" granting="" temporary="" approval="" of="" tungsten-polymer="" shot="" as="" nontoxic="" for="" the="" 1998-99="" migratory="" bird="" hunting="" season,="" except="" in="" the="" y-k="" delta="" region,="" alaska.="" it="" is="" based="" on="" the="" original="" request="" made="" to="" the="" service="" by="" federal="" cartridge="" company="" on="" july="" 16,="" 1997,="" the="" toxicological="" report,="" and="" acute="" toxicity="" study="" reviewed="" by="" the="" service,="" and="" comments="" received="" on="" the="" july="" 27,="" 1998="" proposed="" rule="" (63="" fr="" 40074).="" 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-="" polymer="" shot="" when="" ingested="" by="" captive-reared="" mallards="" or="" to="" the="" ecosystem.="" however,="" there="" is="" some="" concern="" that="" the="" absorption="" of="" tungsten="" into="" the="" femur,="" kidney,="" and="" liver="" could="" potentially="" affect="" the="" spectacled="" eider="" (somateria="" fischeri),="" a="" species="" already="" subject="" to="" adverse="" weather,="" predation,="" and="" lead="" poisoning="" on="" the="" y-k="" delta.="" until="" a="" reproductive/chronic="" toxicity="" test="" has="" been="" completed="" and="" the="" service="" has="" reviewed="" the="" results,="" tungsten-polymer="" shot="" will="" not="" be="" conditionally="" approved="" for="" the="" y-k="" delta="" region.="" a="" reproductive/chronic="" toxicity="" test="" will="" be="" completed="" and="" the="" service="" will="" review="" the="" results,="" prior="" to="" any="" final="" unconditional="" approval="" of="" tungsten-polymer="" shot="" for="" migratory="" bird="" hunting.="" public="" comments="" and="" responses="" the="" july="" 27,="" 1998="" proposed="" rule="" published="" in="" the="" federal="" register="" (63="" fr="" 40077)="" invited="" public="" comments="" [[page="" 54024]]="" from="" interested="" parties.="" the="" closing="" date="" for="" receipt="" of="" all="" comments="" was="" august="" 26,="" 1998.="" during="" this="" 30-day="" comment="" period,="" the="" service="" received="" four="" comments.="" federal="" cartridge="" company="" pointed="" out="" a="" minor="" technical="" discrepancy="" in="" our="" description="" of="" tungsten-polymer="" shot.="" federal="" indicated="" that="" tungsten-polymer="" shot="" contains="" no="" iron.="" the="" california="" waterfowl="" association="" strongly="" supported="" the="" proposed="" temporary="" approval="" of="" tungsten-polymer="" shot="" for="" the="" 1998-99="" season.="" they="" believed="" that="" the="" temporary="" approval="" of="" tungsten-polymer="" shot="" was="" an="" important="" step="" to="" address="" concerns="" relating="" to="" efforts="" to="" reduce="" the="" unnecessary="" crippling="" of="" waterfowl="" through="" the="" development="" of="" more="" effective="" nontoxic="" shot="" materials.="" kent="" cartridge="" company="" questioned="" the="" service's="" stipulation="" on="" the="" requested="" reproductive="" testing="" as="" it="" relates="" to="" the="" y-k="" delta.="" kent="" pointed="" out="" language="" in="" the="" july="" 27="" federal="" register="" indicating="" that="" ``until="" a="" reproductive/chronic="" toxicity="" test="" has="" been="" completed="" and="" the="" service="" has="" reviewed="" the="" results,="" the="" service="" proposes="" not="" to="" approve="" the="" use="" of="" tungsten-polymer="" shot="" on="" the="" y-k="" delta.''="" kent="" believed="" that="" these="" references="" clearly="" indicate="" that="" the="" required="" reproductive="" tests="" relates="" only="" to="" tungsten="" shot="" use="" in="" the="" y-k="" delta="" and="" that="" use="" of="" tungsten="" shot="" elsewhere="" in="" the="" u.s.="" was="" not="" so="" conditioned.="" the="" wisconsin="" department="" of="" natural="" resources="" (wisconsin)="" supported="" the="" proposal="" to="" grant="" temporary="" approval="" of="" tungsten-polymer="" as="" nontoxic="" shot.="" wisconsin="" was="" concerned,="" however,="" with="" the="" timing="" of="" the="" proposed="" and="" final="" rules.="" because="" of="" the="" lateness="" of="" the="" service's="" proposed="" rule,="" relative="" to="" the="" establishing="" and="" beginning="" of="" the="" migratory="" bird="" hunting="" seasons,="" wisconsin="" was="" not="" able="" to="" include="" information="" on="" the="" status="" of="" tungsten-polymer="" shot="" in="" their="" annual="" hunting="" regulations="" pamphlet="" that="" went="" to="" press="" in="" late="" august.="" wisconsin="" uses="" the="" pamphlet="" to="" inform="" their="" hunters="" as="" to="" the="" availability="" of="" different="" nontoxic="" shot="" materials="" and="" stated="" that="" because="" of="" the="" timing="" of="" the="" final="" rule="" they="" would="" not="" be="" able="" to="" adequately="" inform="" their="" hunters.="" wisconsin="" encouraged="" that="" any="" subsequent="" rules="" on="" nontoxic="" shot="" be="" initiated="" earlier="" in="" the="" year="" so="" that="" any="" final="" rules="" would="" be="" published="" before="" august="" 1.="" service="" response:="" the="" service="" has="" corrected="" the="" description="" of="" tungsten-polymer="" shot="" to="" indicate="" that="" the="" shot="" contains="" no="" iron.="" regarding="" kent="" cartridge="" company's="" assertions="" that="" the="" required="" reproductive="" testing="" relates="" only="" to="" the="" use="" of="" tungsten="" shots="" in="" the="" y-k="" delta,="" the="" service="" would="" like="" to="" make="" clear="" that="" the="" required="" testing="" relates="" to="" the="" entire="" u.s.,="" not="" just="" the="" y-k="" delta.="" until="" a="" reproductive/chronic="" toxicity="" test="" has="" been="" completed="" and="" the="" service="" has="" reviewed="" the="" results,="" tungsten="" shots="" will="" not="" be="" conditionally="" approved="" for="" the="" y-k="" delta="" region="" nor="" unconditionally="" approved="" elsewhere.="" a="" reproductive/chronic="" toxicity="" test="" will="" be="" completed="" and="" the="" service="" will="" review="" the="" results,="" prior="" to="" any="" final="" unconditional="" approval="" of="" tungsten-polymer="" shot="" for="" migratory="" bird="" hunting.="" regarding="" the="" timing="" of="" the="" proposed="" and="" final="" rule,="" the="" service="" realizes="" the="" information="" dissemination="" problems="" caused="" by="" conditionally="" approving="" tungsten-polymer="" shot="" at="" this="" time.="" however,="" we="" believe="" that="" the="" public="" benefits="" of="" conditionally="" approving="" the="" shot="" outweigh="" any="" potential="" timing="" issues="" and/or="" problems.="" we="" believe="" that="" it="" is="" in="" the="" best="" interest="" of="" the="" hunting="" public="" to="" provide="" them="" an="" additional="" legal="" option="" for="" hunting="" waterfowl="" and="" coots="" for="" the="" 1998-99="" season="" and="" it="" is="" in="" the="" best="" interest="" of="" small="" retailers="" who="" have="" stocked="" tungsten-="" polymer="" shot="" for="" the="" coming="" season.="" additionally,="" we="" believe="" that="" another="" nontoxic="" shot="" option="" likely="" will="" improve="" hunter="" compliance,="" thereby="" reducing="" the="" amount="" of="" lead="" shot="" in="" the="" environment.="" effective="" date="" under="" the="" apa="" (5="" u.s.c.="" 553(d))="" the="" service="" waives="" the="" 30-day="" period="" before="" the="" rule="" becomes="" effective="" and="" finds="" that="" ``good="" cause''="" exists,="" within="" the="" terms="" of="" 5="" u.s.c.="" 553(d)(3)="" of="" the="" apa,="" and="" this="" rule="" will,="" therefore,="" take="" effect="" immediately="" upon="" publication.="" this="" rule="" relieves="" a="" restriction="" and,="" in="" addition,="" it="" is="" not="" in="" the="" public="" interest="" to="" delay="" the="" effective="" date="" of="" this="" rule.="" during="" the="" public="" comment="" period="" for="" conditional="" approval="" the="" service="" received="" four="" comments.="" of="" these="" comment="" letters,="" one="" was="" from="" a="" conservation="" organization,="" two="" from="" industry="" companies/representatives,="" and="" one="" from="" a="" state="" natural="" resource="" agency.="" all="" objections/comments="" have="" been="" remedied="" satisfactorily="" and="" are="" discussed="" under="" the="" public="" comment="" and="" responses="" section="" of="" this="" document.="" it="" is="" in="" the="" best="" interest="" of="" migratory="" birds="" and="" their="" habitats="" to="" grant="" conditional="" approval="" on="" tungsten-polymer="" shot="" as="" nontoxic="" for="" the="" 1998-99="" migratory="" bird="" hunting="" season.="" it="" is="" in="" the="" best="" interest="" of="" the="" hunting="" public="" to="" provide="" them="" an="" additional="" legal="" option="" for="" hunting="" waterfowl="" and="" coots="" for="" the="" 1998-99="" season,="" which="" began="" on="" september="" 1,="" 1998.="" it="" is="" in="" the="" best="" interest="" of="" small="" retailers="" who="" have="" stocked="" tungsten-polymer="" shot="" for="" the="" coming="" season.="" the="" services="" believes="" another="" nontoxic="" shot="" option="" likely="" will="" improve="" hunter="" compliance,="" thereby="" reducing="" the="" amount="" of="" lead="" shot="" in="" the="" environment.="" references="" barr="" engineering="" company.="" 1996.="" toxicology="" report="" on="" new="" shot.="" contract="" report="" 2302118/40970091/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-polymer="" shot="" in="" game-farm="" mallards.="" 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.="" journal="" of="" wildlife="" management="" 32(3):483-488.="" industrial="" medicine.="" 1946.="" volume="" 15,="" p.="" 482.="" interagency="" ecosystem="" management="" task="" force.="" 1995.="" the="" ecosystem="" approach:="" healthy="" ecosystems="" and="" sustainable="" economics.="" volume="" ii-="" implementation="" issues.="" kabata-pendias,="" 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.="" 28:1541091543.="" 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.="" journal="" of="" wildlife="" diseases="" 38(1):1098.="" montgomery,="" r.="" r.="" 1982.="" polymers.="" in="" patty's="" industrial="" hygiene="" and="" toxicology,="" vol.="" iiia="" (g.="" d.="" clayton="" and="" f.="" e.="" clayton,="" eds.)="" pp.="" 4209-="" 4526.="" john="" wiley="" and="" sons,="" ny.="" nell,="" j.="" a,="" w.="" l.="" bryden,="" g.="" s.="" heard,="" and="" d.="" balnave.="" 1981.="" reproductive="" performance="" of="" laying="" hens="" fed="" tungsten.="" poultry="" science="" 60(1):257-258.="" 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="" [[page="" 54025]]="" interscience.="" wiley="" &="" sons,="" inc.="" ny,="" ny.="" third="" edition.="" peterson,="" j.="" e.="" 1977.="" industrial="" health.="" prentice-hall,="" englewood="" cliffs,="" nj.="" ringelman,="" j.="" k.,="" m.="" w.="" miller="" and="" w.="" f.="" andelt.="" 1993.="" effects="" of="" ingested="" tungsten-bismuth-tin="" shot="" on="" mallards.="" colorado="" division="" of="" wildlife,="" 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="" may,="" 1998="" and="" a="" final="" ea="" in="" september="" 1998.="" 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="" has="" determined="" that="" amending="" 50="" cfr="" 20.21(j)="" to="" grant="" temporary="" approval="" of="" tungsten-polymer="" shot="" as="" nontoxic="" for="" the="" 1998-99="" migratory="" bird="" hunting="" season="" 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="" 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="" completed="" a="" section="" 7="" consultation="" under="" the="" esa="" for="" this="" rule="" and="" determined="" that="" granting="" temporary="" approval="" of="" tungsten-polymer="" shot="" for="" the="" 1998-99="" hunting="" season,="" except="" on="" the="" yukon-kuskokwin="" (y-k)="" delta,="" is="" not="" likely="" to="" affect="" any="" threatened,="" endangered,="" proposed="" or="" candidate="" species.="" the="" result="" of="" the="" service's="" consultation="" under="" section="" 7="" of="" the="" esa="" is="" available="" to="" the="" public="" at="" the="" location="" indicated="" under="" the="" addresses="" caption.="" regulatory="" flexibility="" 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="" economic="" impacts="" of="" annual="" hunting="" on="" small="" business="" entities="" were="" analyzed="" in="" detail="" and="" a="" small="" entity="" flexibility="" analysis="" (analysis),="" under="" the="" regulatory="" flexibility="" act="" (5="" u.s.c.="" 601,="" et="" seq.),="" was="" issued="" by="" the="" service="" in="" 1998="" (copies="" available="" upon="" request="" from="" the="" office="" of="" migratory="" bird="" management).="" the="" analysis="" documented="" the="" significant="" beneficial="" economic="" effect="" on="" a="" substantial="" number="" of="" small="" entities.="" the="" primary="" source="" of="" information="" about="" hunter="" expenditures="" for="" migratory="" game="" bird="" hunting="" is="" the="" national="" hunting="" and="" fishing="" survey,="" which="" is="" conducted="" at="" 5-year="" intervals.="" the="" analysis="" utilized="" the="" 1996="" national="" hunting="" and="" fishing="" survey="" which="" it="" was="" estimated="" that="" migratory="" bird="" hunters="" would="" spend="" between="" $429="" and="" $1084="" million="" nationwide="" at="" small="" businesses="" in="" 1998.="" the="" approval="" of="" tungsten-polymer="" as="" an="" alternative="" shot="" to="" steel="" and="" bismuth-tin="" will="" have="" a="" minor="" positive="" impact="" on="" small="" businesses="" by="" allowing="" them="" to="" sell="" a="" third="" nontoxic="" shot="" to="" the="" hunting="" public.="" however,="" the="" overall="" effect="" to="" hunting="" expenditures="" in="" general="" would="" be="" minor.="" therefore,="" 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.="" executive="" order="" 12866,="" and="" the="" paperwork="" reduction="" act="" this="" rule="" was="" not="" subject="" to="" office="" of="" management="" and="" budget="" (omb)="" review="" under="" executive="" order="" 12866.="" e.o.="" 12866="" requires="" each="" agency="" to="" write="" regulations="" that="" are="" easy="" to="" understand.="" the="" service="" invites="" comments="" on="" how="" to="" make="" this="" rule="" easier="" to="" understand,="" including="" answers="" to="" questions="" such="" as="" the="" following:="" (1)="" are="" the="" requirements="" in="" the="" rule="" clearly="" stated?="" (2)="" does="" the="" rule="" contain="" technical="" language="" or="" jargon="" that="" interferes="" with="" its="" clarity?="" (3)="" does="" the="" format="" of="" the="" rule="" (grouping="" and="" order="" of="" sections,="" use="" of="" headings,="" paragraphing,="" etc.)="" aid="" or="" reduce="" its="" clarity?="" (4)="" would="" the="" rule="" be="" easier="" to="" understand="" if="" it="" were="" divided="" into="" more="" (but="" shorter)="" sections?="" (5)="" is="" the="" description="" of="" the="" rule="" in="" the="" supplementary="" information="" section="" of="" the="" preamble="" helpful="" in="" understanding="" the="" rule?="" what="" else="" could="" the="" service="" do="" to="" make="" the="" rule="" easier="" to="" understand?="" send="" a="" copy="" of="" any="" comments="" that="" concern="" how="" this="" rule="" could="" be="" made="" easier="" to="" understand="" to:="" office="" of="" regulatory="" affairs,="" department="" of="" the="" interior,="" room="" 7229,="" 1849="" c="" street,="" n.w.,="" washington,="" d.c.="" 20240.="" comments="" may="" also="" be="" e-mailed="" to:="">xsec@ios.doi.gov.
Congressional Review
In accordance with Section 251 of the Small Business Regulatory
Enforcement Fairness Act of 1996 (5 U.S.C. 8), this rule has been
submitted to Congress. Because this rule deals with the Service's
migratory bird hunting program, this rule qualifies for an exemption
under 5 U.S.C. 808(1); therefore, the Department determines that this
rule shall take effect immediately.
Paperwork Reduction Act
The Service has examined this regulation under the Paperwork
Reduction Act of 1995 and found it to contain no information collection
requirements. However, the Service does have OMB approval (1018-0067;
expires 06/30/2000) for information collection relating to what
manufacturers of shot are required to provide the Service for the
nontoxic shot approval process. For further information see 50 CFR
20.134.
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.
Takings Implication Assessment
In accordance with Executive Order 12630, these rules, authorized
by the Migratory Bird Treaty Act, do not have significant takings
implications and do not affect any constitutionally protected property
rights. These rules will not result in the physical occupancy of
property, the physical invasion of property, or the regulatory taking
of any property. In fact, these rules allow hunters to exercise
privileges that would be otherwise unavailable; and, therefore, reduce
restrictions on the use of private and public property.
Federalism Effects
Due to the migratory nature of certain species of birds, the
Federal government has been given responsibility over these species by
the Migratory Bird Treaty Act. These rules do not have a substantial
direct effect on fiscal capacity, change the roles or responsibilities
of Federal or State
[[Page 54026]]
governments, or intrude on State policy or administration. Therefore,
in accordance with Executive Order 12612, these regulations do not have
significant federalism effects and do not have sufficient federalism
implications to warrant the preparation of a Federalism Assessment.
Government-to-Government Relationship With Tribes
In accordance with the President's memorandum of April 29, 1994,
``Government-to-Government Relations with Native American tribal
Governments'' (59 FR 22951) and 512 DM 2, we have evaluated possible
effects on Federally recognized Indian tribes and have determined that
there are no effects.
List of Subjects in 50 CFR Part 20
Exports, Hunting, Imports, Reporting and recordkeeping
requirements, Transportation, Wildlife.
Accordingly, for reasons set out in the preamble, title 50, Chapter
1, subchapter B, part 20 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. 703-712; and 16 U.S.C. 742 a-j.
2. Amend Section 20.21 by revising paragraph (j) introductory text
and adding paragraph (j)(3) 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="" tungsten-polymer="" (95.5="" part="" tungsten:="" 4.5="" parts="" nylon="" 6="" with=""><1 percent="" residual="" lead)="" shot,="" or="" such="" shot="" approved="" as="" nontoxic="" by="" the="" director="" pursuant="" to="" procedures="" set="" forth="" in="" sec.="" 20.134,="" provided="" that:="" *="" *="" *="" *="" *="" (3)="" tungsten-polymer="" shot="" (95.5="" parts="" tungsten:="" 4.5="" parts="" nylon="" 6="" with=""><1 percent="" residual="" lead)="" is="" legal="" as="" nontoxic="" shot="" for="" the="" 1998-="" 99="" migratory="" bird="" hunting="" season,="" except="" for="" the="" yukon-kuskokwim="" delta="" region="" in="" alaska.="" dated:="" october="" 1,="" 1998.="" donald="" barry,="" assistant="" secretary="" for="" fish="" and="" wildlife="" and="" parks.="" [fr="" doc.="" 98-26857="" filed="" 10-6-98;="" 8:45="" am]="" billing="" code="" 4310-55-p="">