[Federal Register Volume 61, Number 159 (Thursday, August 15, 1996)]
[Rules and Regulations]
[Pages 42492-42494]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-20725]
[[Page 42491]]
_______________________________________________________________________
Part IV
Department of the Interior
_______________________________________________________________________
Fish and Wildlife Service
_______________________________________________________________________
50 CFR Part 20
Migratory Bird Hunting; Approval of Bismuth-Tin Shot as Nontoxic; Final
and Proposed Rules
Federal Register / Vol. 61, No. 159 / Thursday, August 15, 1996 /
Rules and Regulations
[[Page 42492]]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018 - AD41
Migratory Bird Hunting; Extension of Decision on the Conditional
Approval of Bismuth-Tin Shot as Nontoxic for the 1996-97 Season
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) is amending
Section 20.21(j) and approving bismuth-tin shot as nontoxic for the
1996-97 migratory bird hunting season. 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 rule becomes effective on September 1, 1996.
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 has approval by the Service as nontoxic. The Service believes
approval for other suitable candidate shot materials as nontoxic shot
is feasible. The Service is eager to consider these other materials for
approval as nontoxic.
The nontoxic shot requirement 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
increase 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 would be conditional; and 3) the
evidence presented in the record, i.e., the application from the
Bismuth Cartridge Company. The petition acknowledged the responsibility
of the Bismuth Cartridge Company to complete all nontoxic shot approval
tests outlined in 50 CFR 20.134. Final regulations published in the
Federal Register [(January 3, 1995, (60 FR 61) and August 18, 1995, (60
FR 43314)] provide 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 within
the January 3, 1995, Federal Register (60 FR 61).
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 has been provided with evidence of completion of the
conditions for approval that were previously established. First, a
series of toxicity tests demonstrating bismuth-tin shot as nontoxic to
waterfowl was necessary. The Service reviewed and approved the employed
testing protocol, with technical assistance provided by the National
Biological Service (NBS).
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 control animals (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 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 sacrificed. 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 reproductive toxicity test is a chronic dosage study which
includes assessment of reproduction, fertility rates, and egg
hatchability. Researchers record egg weight, shell thickness, and
content analysis. For ducklings, researchers record body weight, sex
ratios, blood and organ analysis. The reproductive test ran
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 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="" will="" consider="" any="" bismuth-tin="" shot="" manufactured="" with="" lead="" levels="" equal="" to="" or="" exceeding="" 1="" percent="" 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="" (60="" fr="" 43314),="" the="" service="" indicated="" it="" would="" establish="" a="" maximum="" level="" for="" residual="" lead.="" the="" service,="" in="" consultation="" with="" the="" nbs,="" determined="" the="" maximum="" environmentally="" acceptable="" level="" of="" lead="" in="" bismuth-tin="" shot="" is="" trace="" amounts="" or=""><1 percent="" and="" is="" incorporating="" this="" requirement="" into="" the="" final="" rule.="" finally,="" enforcement="" is="" an="" important="" component="" in="" the="" approval="" of="" any="" alternative="" shot="" material.="" in="" the="" august="" 18,="" 1995,="" federal="" register="" (60="" fr="" [[page="" 42493]]="" 43314),="" the="" service="" indicated="" 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="" assessed="" these="" devices="" determining="" them="" to="" be="" accurate="" and="" useful.="" this="" rule="" amends="" 50="" cfr="" 20.21(j)="" by="" extending="" the="" conditional="" approval="" on="" bismuth-tin="" shot="" as="" nontoxic="" for="" the="" 1996-97="" migratory="" bird="" hunting="" season.="" it="" is="" based="" on="" the="" original="" request="" made="" to="" the="" service="" by="" the="" bismuth="" cartridge="" company="" on="" october="" 21,="" 1993,="" and="" subsequent="" toxicity="" testing.="" results="" of="" the="" acute,="" chronic,="" and="" reproductive="" toxicity="" tests="" undertaken="" for="" the="" bismuth="" cartridge="" company="" document="" the="" apparent="" absence="" of="" any="" deleterious="" effects="" of="" bismuth-tin="" shot="" when="" ingested="" by="" captive-reared="" mallards.="" public="" comment="" the="" service,="" by="" this="" rule,="" is="" approving="" for="" one="" season="" (1996-1997)="" the="" use="" of="" bismuth-tin="" shot="" for="" waterfowl="" hunting="" without="" the="" standard="" notice="" for="" public="" comment.="" as="" required="" by="" the="" administrative="" procedure="" act="" (5="" u.s.c.="" 553(b)),="" the="" service="" has="" found="" that="" the="" notice="" and="" public="" procedure="" required="" by="" the="" apa="" are="" impracticable,="" unnecessary,="" and="" contrary="" to="" the="" public="" interest="" for="" the="" following="" reasons:="" 1)="" at="" each="" stage="" of="" testing="" bismuth-tin="" shot="" has="" been="" shown="" to="" be="" non-toxic.="" 2)="" this="" approval="" is="" for="" one="" season="" only.="" 3)="" bismuth-tin="" shot="" has="" been="" approved="" the="" last="" two="" years="" for="" one="" season="" each="" as="" a="" result="" of="" the="" public="" process="" that="" included="" public="" notices="" in="" the="" federal="" register="" and="" opportunities="" for="" comment.="" 4)="" providing="" a="" third="" comment="" period="" at="" this="" time="" would="" preclude="" the="" availability="" of="" a="" proven="" alternative="" nontoxic="" shot="" for="" a="" significant="" portion="" of="" the="" upcoming="" hunting="" seasons.="" 5)="" the="" service="" is="" simultaneously="" publishing="" a="" proposed="" rule="" that="" would="" finally="" approve="" bismuth-tin="" shot="" as="" nontoxic="" without="" season="" limitation="" and="" is="" providing="" the="" standard="" notice="" and="" opportunity="" for="" comment="" on="" that="" proposed="" final="" action,="" thereby="" providing="" the="" public="" procedure="" required="" by="" the="" apa="" on="" this="" issue.="" effective="" date="" under="" the="" apa="" (5="" u.s.c.="" 553="" (d))="" the="" service="" waives="" the="" 30="" day="" period="" before="" the="" rule="" becomes="" effective="" and="" establishes="" september="" 1,="" 1996,="" as="" the="" effective="" date.="" 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="" two="" prior="" public="" comment="" periods="" for="" conditional="" approval="" the="" service="" received="" 386="" comments.="" of="" these,="" 360="" were="" in="" favor="" of="" approving="" bismuth-tin="" shot="" for="" hunting="" waterfowl="" and="" coots="" with="" 26="" opposed.="" the="" opposition="" felt="" that="" the="" incomplete="" toxicity="" tests="" and="" no="" noninvasive="" field="" detection="" device="" should="" delay="" the="" rule.="" these="" two="" objections="" are="" now="" remedied="" satisfactorily.="" it="" is="" in="" the="" best="" interest="" of="" migratory="" birds="" and="" their="" habitats="" to="" extend="" the="" conditional="" approval="" on="" bismuth-tin="" shot="" as="" nontoxic="" for="" the="" 1996-97="" 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="" 1996-97="" season,="" which="" begins="" on="" september="" 1,="" 1996.="" it="" is="" in="" the="" best="" interest="" of="" small="" retailers="" who="" have="" stocked="" bismuth-tin="" 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="" 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="" in="" july,="" 1996.="" this="" ea="" is="" available="" to="" the="" public="" at="" the="" office="" of="" migratory="" bird="" management,="" u.s.="" fish="" and="" wildlife="" service,="" ms="" 634-arlsq,="" 1849="" c="" street="" nw.,="" washington="" d.c.="" 20240.="" based="" on="" review="" and="" evaluation="" of="" the="" information="" in="" the="" ea,="" the="" service="" determined="" the="" action="" to="" amend="" 50="" cfr="" 20.21(j)="" to="" extend="" conditional="" approval="" on="" bismuth-tin="" shot="" as="" nontoxic="" for="" 1996-97="" 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,="" ``the="" secretary="" shall="" review="" other="" programs="" administered="" by="" him="" and="" utilize="" such="" programs="" in="" furtherance="" of="" the="" purposes="" of="" this="" act''="" (and)="" 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="" rule.="" the="" result="" of="" the="" service's="" consultation="" under="" section="" 7="" of="" the="" esa="" is="" available="" to="" the="" public="" through,="" the="" office="" of="" migratory="" bird="" management,="" u.s.="" fish="" and="" wildlife="" service,="" ms="" 634--arlsq,="" 1849="" c="" street="" nw.,="" washington="" d.c.="" 20240.="" 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="" 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="" [[page="" 42494]]="" (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,="" has="" determined="" 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="" rule="" is="" cynthia="" m.="" perry,="" office="" of="" migratory="" bird="" management.="" list="" of="" subjects="" in="" 50="" cfr="" part="" 20="" exports,="" hunting,="" imports,="" reporting="" and="" record="" keeping="" requirements,="" transportation,="" wildlife.="" accordingly,="" part="" 20,="" subchapter="" b,="" chapter="" i="" 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="" the="" introductory="" text="" of="" paragraph="" (j)="" and="" 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="" i82sec.="" 20.134.="" provided="" that:="" *="" *="" *="" *="" *="" (2)="" bismuth-tin="" shot="" (97="" parts="" bismuth:="" 3="" parts="" tin="" with=""><1 percent="" residual="" lead)="" is="" legal="" as="" nontoxic="" shot="" for="" the="" 1996-97="" migratory="" bird="" hunting="" season.="" dated:="" august="" 1,="" 1996.="" george="" t.="" frampton,="" jr.,="" assistant="" secretary="" for="" fish="" and="" wildlife="" and="" parks.="" [fr="" doc.="" 96-20725="" filed="" 8-14-96;="" 8:45="" am]="" billing="" code="" 4310-55-f="">