[Federal Register Volume 66, Number 56 (Thursday, March 22, 2001)]
[Notices]
[Pages 16028-16031]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-7108]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

[Docket No. 01-013-1]


Protection of Sunflowers From Red-Winged Blackbirds in North 
Dakota, South Dakota, and Minnesota; Request for Public Involvement

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Notice.

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SUMMARY: The Animal and Plant Health Inspection Service's Wildlife 
Services program is soliciting public involvement in the development of 
issues necessary to complete an analysis of the environmental impacts 
of reducing red-winged blackbird damage to ripening sunflowers in North 
Dakota, South Dakota, and Minnesota. The information received in 
response to this notice will be considered during the development of an 
environmental assessment that will be prepared in accordance with the 
National Environmental Policy Act.

DATES: We invite you to comment on this notice. We will consider all 
comments that we receive by April 23, 2001.

ADDRESSES: Please send four copies of your comment (an original and 
three copies) to: Docket No. 01-013-1, Regulatory Analysis and 
Development, PPD, APHIS, Suite 3C03, 4700 River Road Unit 118, 
Riverdale, MD 20737-1238.
    Please state that your comment refers to Docket No. 01-013-1.
    You may read any comments that we receive on this docket in our 
reading room. The reading room is located in room 1141 of the USDA 
South Building, 14th Street and Independence Avenue SW., Washington, 
DC. Normal reading room hours are 8 a.m. to 4:30 p.m., Monday through 
Friday, except holidays. To be sure someone is there to help you, 
please call (202) 690-2817 before coming.

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    APHIS documents published in the Federal Register, and related 
information, including the names of organizations and individuals who 
have commented on APHIS dockets, are available on the Internet at 
http://www.aphis.usda.gov/ppd/rad/webrepor.html.

FOR FURTHER INFORMATION CONTACT: Mr. Phil Mastrangelo, State Director, 
Wildlife Services, APHIS, USDA, 2110 Mariam Circle, Suite A, Bismarck, 
ND 58501-2502; phone: (701) 250-4405.

SUPPLEMENTARY INFORMATION: Wildlife Services (WS) of the Animal and 
Plant Health Inspection Service (APHIS) provides technical and 
operational assistance to growers who request assistance in managing 
blackbird damage to sunflower crops. WS loans damage abatement 
equipment (e.g., propane cannons, pyrotechnics) to growers, conducts 
training workshops, provides informational leaflets on bird damage 
management and sources of damage abatement tools, and conducts roost 
management programs to control blackbird populations near sunflower 
producing areas.
    WS previously proposed a blackbird damage management research 
project for the protection of sunflowers. The environmental assessment 
was reviewed and several private organizations and State and Federal 
agencies opposed various aspects of the project, including referring to 
the project as a research project instead of an operational project. 
Comments in opposition to the project generally focused on the lack of 
scientific basis, its potential effect on endangered species, and the 
likelihood that program would be ineffective in reducing damage caused 
by blackbirds.
    Approximately 80 percent of sunflower production in the United 
States occurs in North Dakota, South Dakota, and Minnesota. Sunflower 
production in these States has increased from 1 million kg in the early 
1960's to about 1.5 billion kg, valued at $315 million, in 1999. 
However, increased production of sunflowers has been hampered by 
blackbird damage. Wildlife biologists have been unable to adequately 
reduce blackbird damage to economically acceptable levels for certain 
growers.
    Sunflower seeds are an ideal food for birds because the seeds 
contain proteins and fats necessary for growth, molt, fat storage, and 
weight maintenance. Sunflowers ripen in the fall after the birds' 
breeding season and provide a source of high-energy food needed for 
molt and fat storage before the birds' fall migration. Esophageal 
contents of red-winged blackbirds collected in late summer and fall 
reveal that 93 percent of the males and 86 percent of the females had 
eaten sunflower seeds, which comprised 69 percent and 57 percent of the 
male and female diets, respectively.
    Blackbirds damage unharvested sunflowers from early maturation to 
harvest, but damage is greatest within 18 days of anthesis (i.e., the 
flowers' blooming period). Damage surveys of sunflower producing areas 
in North Dakota, South Dakota, and Minnesota indicate that overall loss 
is generally 1 to 2 percent of the crop. If all producers received less 
than 2 percent damage, there would be little concern for damage caused 
by blackbirds. However, damage is not equally distributed, can be 
severe for some producers, and is fairly consistent from year-to-year 
within a locality. Research has been conducted throughout the northern 
Great Plains to estimate the amount of damage birds have caused to 
ripening sunflower crops. Sunflower damage assessments for North 
Dakota, South Dakota, and Minnesota showed an estimated loss of $5.1 
million in 1979 and $7.9 million in 1980. More recent quantitative bird 
damage surveys were conducted from 1996 to 1998 in Stutsman and Pierce 
Counties in North Dakota and Brown and Clark Counties in South Dakota. 
Assuming damage in these four counties is representative of the damage 
in all the primary sunflower growing areas in North Dakota, South 
Dakota, and Minnesota, sunflower producers in these States lost about 
$8.26 million annually to blackbirds.
    Sunflower growers and Government agencies have used both lethal and 
nonlethal techniques to reduce red-winged blackbird damage to ripening 
sunflowers. The goal of nonlethal methods is to decrease the 
availability or attractiveness of the crop to blackbirds or to disperse 
the birds so that damage is not concentrated in any given area. 
Examples of nonlethal methods include altering farming practices, using 
audio and visual frightening devices, growing bird-resistant 
sunflowers, increasing weed control in fields, and growing decoy crops. 
Additionally, research has shown that managing dense cattail stands, 
which are traditional roost sites for blackbirds, aids in dispersing 
blackbirds from nearby sunflower crops. To date, nonlethal blackbird 
damage management initiatives have been somewhat effective in reducing 
blackbird damage to unharvested sunflowers, but have not alleviated the 
problem in certain areas.

Proposed Program

    WS is proposing to use Federal funds authorized by Congress to 
implement an integrated red-winged blackbird damage management program 
on private lands when requested by resource owners/managers in North 
Dakota, South Dakota, or Minnesota. The integrated approach would 
employ the use of nonlethal and lethal techniques to reduce red-winged 
blackbird damage to sunflowers.

Nonlethal Techniques

    Under the proposed program, WS would continue to employ the use of 
nonlethal control methods described earlier in this document. WS would 
also continue to conduct roost management programs to control red-
winged blackbird populations near sunflower producing areas. Roost 
management activities involve the treatment of cattail stands larger 
than 10 acres with glyphosate herbicide. Effective management of such 
cattail stands can eliminate a traditional roosting site for blackbirds 
that is often in close proximity to sunflower crops.

Lethal Techniques

    Sources estimate that 39 million red-winged blackbirds migrate 
through North Dakota and South Dakota annually. Studies indicate that 
86 percent of male red-winged blackbirds using spring roosts in the 
central United States migrate in a northwesterly direction and are 
likely to breed in the northern Great Plains sunflower growing areas.
    Given the apparently successful use in the past of the avicide DRC-
1339 for reducing red-winged blackbird damage to rice, a two-pronged 
research strategy was implemented using DRC-1339 to reduce red-winged 
blackbird damage to sunflowers. One strategy was to bait spring-
migrating red-winged blackbirds as they migrate north to nesting areas. 
A second strategy was to bait red-winged blackbirds in and around 
ripening sunflower fields as they migrate south in late summer. 
Research results showed that late-summer baiting with DRC-1339 was 
ineffective in reducing red-winged blackbird damage to unharvested 
sunflowers, likely because of the availability of other food sources, 
especially sunflower seeds, at that time of the year. The spring 
baiting strategy was effective for precisely the opposite reason: Due 
to the lack of other food sources available to blackbirds in the 
spring, the birds took the bait.
    Under the proposed program, WS would employ the use of 2 percent 
DRC-1339-treated brown rice at red-

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winged blackbird staging areas in the spring to reduce breeding 
populations and subsequent damage to ripening sunflowers in the fall. 
DRC-1339 baiting would occur on not more than 50 acres in harvested 
fields near red-winged blackbird staging areas in east-central South 
Dakota and target not more than 2 million red-winged blackbirds 
annually. The baiting areas would be determined based on the most 
current red-winged blackbird roost site distribution and the areas 
where red-winged blackbirds stage. A baiting dilution rate of one 
treated rice grain to 25 untreated grains proved to be the most 
efficient in reducing red-winged blackbird populations in Louisiana. 
The same ratio would be used to protect sunflowers and reduce the risks 
to nontarget granivorous birds. Baiting areas and sites would be 
determined through field observations by trained personnel, and DRC-
1339-treated bait would not be distributed until risks to nontarget 
species were evaluated and red-winged blackbirds readily accept the 
untreated rice.

Nontarget Effects of DRC-1339

    Scientists from North Dakota State University, South Dakota State 
University, and the National Wildlife Research Center's Great Plains 
Field Station carried out a baiting strategies research program 
designed to evaluate nontarget effects associated with the use of DRC-
1339 treated rice baits.
    DRC-1339 was selected for reducing red-winged blackbird damage 
because of its high toxicity to blackbirds and low toxicity to most 
mammals, sparrows, finches, and other nontarget species. Red-winged 
blackbirds likely die as a result of uremic poisoning. The 
LD50 values for European starlings, other blackbirds, and 
black-billed magpies range from 1 to 5 mg/kg. DRC-1339 is toxic to 
doves, pigeons, quails, chickens, ducks, and geese at 5.6 
mg/kg. In cage trials, 2 percent DRC-1339-treated rice baits did not 
kill savannah sparrows. Gallinaceous birds and waterfowl may be more 
resistant to DRC-1339 than blackbirds, and their large size may reduce 
the chances of ingesting a lethal dose of toxicant.
    Whooping cranes (Grus americana) are the only endangered 
granivorous birds in the northern Great Plains that could potentially 
be affected by the consumption of DRC-1339 rice baits; however, they 
feed in large open areas. If whooping cranes are detected in treatment 
areas, the baiting program would be stopped with minimal risk to the 
birds. The U.S. Fish and Wildlife Service (FWS), located in Pierre, SD, 
has reviewed environmental assessments related to the use of DRC-1339 
rice baits to reduce red-winged blackbird damage in South Dakota. 
Although two FWS biological opinions on research projects stated the 
DRC-1339-treated rice baits were not likely to jeopardize endangered 
species in South Dakota, a new opinion will be sought.
    The potential effects of DRC-1339-treated rice baits on ring-necked 
pheasants is of special concern for wildlife managers. Thus, in 1994 
through 1997, the behavior of pheasants in relation to bait sites was 
studied in South Dakota. The data suggested that pheasants did not 
favor plots treated with rice over reference (untreated) plots. 
However, pheasants were observed feeding through the rice-baited plots 
on a number of occasions. In addition to field studies, scientists of 
South Dakota State University conducted independent laboratory studies 
that showed DRC-1339 did not significantly affect normal pheasant egg-
laying, egg hatching, chick survival, or adult survivorship until the 
bird was near death. In early 1995, small cage and large enclosure 
studies were conducted to determine female pheasant's preference for 
brown rice. These studies indicated that some female pheasants prefer 
cracked corn and sorghum over rice.
    DRC-1339 is rapidly metabolized and excreted by birds that ingest 
treated baits, and it does not bioaccumulate, which probably accounts 
for its low secondary hazard profile. For example, cats, owls, and 
magpies would be at risk only after exclusively eating DRC-1339-
poisoned starlings for 30 continuous days. Studies using the American 
kestrel as a surrogate species show that secondary hazards to raptors 
are minimal, and these birds are not put at risk by DRC-1339 baiting. 
DRC-1339 also degrades rapidly by ultraviolet light and heat and has a 
half-life of less than 2 days.

Prior EPA-Authorized Use of DRC-1339

    The avian toxicant DRC-1339 (3-Chloro-p-toluidine hydrochloride) 
has been used to reduce blackbird populations causing agricultural 
damage in Louisiana, North Dakota, South Dakota, and Texas under 
section 24C of the Federal Insecticide, Fungicide, and Rodenticide Act. 
In February 1995, the Environmental Protection Agency (EPA) granted a 
section 3 label for ``Compound DRC-1339 Concentrate-Staging Areas'' for 
bird control in noncrop staging areas associated with red-winged 
blackbird roosts. The section 24C label for ``Compound DRC-1339 
Concentrate--ND and SD'' is still in effect for North Dakota because 
this label allows a broader use pattern, including baiting within 
ripening sunflower fields during late summer.

Public Involvement

    We are encouraging members of the public and interested agencies 
and organizations to assist in the planning of this program and the 
development of an environmental assessment by answering the following 
questions:
     What issues or concerns about the proposed sunflower 
protection program should we analyze?
     What alternatives to the proposed action should we 
analyze?
     Do you have additional information (i.e., scientific data 
or studies) that we should consider in the analysis?
    Information received will be considered in an environmental 
assessment (EA) prepared in accordance with the National Environmental 
Policy Act to determine if an environmental impact statement is 
necessary. Several issues have already been identified as areas of 
concern for consideration in the EA:
     Cumulative effects of the proposed damage management 
program on red-winged blackbird populations.
     Safety concerns regarding the potential effects of the 
proposed damage management program on the public, domestic pets, and 
nontarget species, including threatened and endangered species.
     Efficacy of DRC-1339 spring baiting in reducing damage to 
unharvested sunflowers.
     Public concern about WS' use of chemicals.
     DRC-1339 spring baiting effects on biodiversity.
    Other issues may also be included in the analysis and will be 
identified based on comments submitted by the public and other 
agencies.
    Several alternatives that have been identified for consideration 
are:
     No involvement by WS in sunflower protection.
     Continue the current WS blackbird damage management 
program.
     Continue the current WS blackbird damage management 
program, plus implement a DRC-1339 baiting program of spring-migrating 
red-winged blackbirds in eastern South Dakota (proposed action).
    Other alternatives may also be included in the analysis and will be 
identified based on comments submitted by the public and other 
agencies.


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    Done in Washington, DC, this 16th day of March 2001.
Bobby R. Acord,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 01-7108 Filed 3-21-01; 8:45 am]
BILLING CODE 3410-34-P