[Federal Register Volume 61, Number 159 (Thursday, August 15, 1996)]
[Proposed Rules]
[Pages 42495-42497]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-20726]
Federal Register / Vol. 61, No. 159 / Thursday, August 15, 1996 /
Proposed Rules
[[Page 42495]]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
RIN 1018-AD41
Migratory Bird Hunting; Proposal for Approval of Bismuth-Tin Shot
as a Nontoxic
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) proposes to amend
Section 20.21(j) by 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).
DATES: Comments on this proposal must be received by August 15, 1996.
ADDRESSES: Written comments should be sent to: Chief, Office of
Migratory Bird Management, 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 acknowledged 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 Register (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. Final regulations published elsewhere in today's Federal
Register extends this temporary approval for the 1996-97 season. 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
proposal to approve bismuth-tin shot as nontoxic. First, a series of
toxicity tests demonstrating that bismuth-tin was nontoxic to waterfowl
is 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 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 reproductive toxicity test is a chronic dosage study which
includes assessment of reproduction, fertility rates, and egg
hatchability. For eggs, researchers record weight, shell thickness, and
content analysis, and for ducklings 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="" was="" 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,="" [[page="" 42496]]="" determined="" the="" maximum="" environmentally="" acceptable="" level="" of="" lead="" in="" bismuth-tin="" shot="" is="" trace="" amounts="" or=""><1 percent="" and="" is="" incorporating="" that="" 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,="" 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="" assessed="" these="" devices="" determining="" them="" to="" be="" accurate="" and="" useful.="" this="" proposed="" rule="" would="" amend="" 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.="" 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.="" 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.="" comment="" procedure="" it="" is="" the="" policy="" of="" the="" department="" of="" the="" interior="" to="" afford="" the="" public="" an="" opportunity="" to="" participate="" in="" the="" rulemaking="" process,="" whenever="" practical.="" accordingly,="" interested="" persons="" may="" participate="" by="" submitting="" written="" comments="" to="" the="" chief,="" mbmo,="" at="" the="" address="" listed="" under="" the="" caption="" addresses.="" the="" public="" may="" inspect="" comments="" during="" normal="" business="" hours="" at="" the="" service's="" office="" address="" listed="" under="" the="" caption="" addresses.="" the="" service="" will="" consider="" all="" relevant="" comments="" received="" and="" will="" try="" to="" acknowledge="" received="" comments,="" but="" may="" not="" provide="" an="" individual="" response="" to="" each="" commenter.="" 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="" proposed="" 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="" 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="" proposed="" rule.="" 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="" proposed="" 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="" proposed="" 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="" proposed="" 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="" proposed="" to="" be="" amended="" as="" follows:="" [[page="" 42497]]="" 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="" sec.="" 20.134.="" provided="" that:="" *="" *="" *="" *="" *="" (2)="" bismuth-tin="" shot="" (97="" parts="" bismuth:="" 3="" parts="" tin="" with=""><1 percent="" residual="" lead)="" is="" legal="" as="" nontoxic="" shot.="" dated:="" august="" 1,="" 1996="" george="" t.="" frampton,="" jr.,="" assistant="" secretary="" for="" fish="" and="" wildlife="" and="" parks.="" [fr="" doc.="" 96-20726="" filed="" 8-14-96;="" 8:45="" am]="" billing="" code="" 4310-55-f="">