[Federal Register Volume 66, Number 163 (Wednesday, August 22, 2001)]
[Notices]
[Pages 44141-44143]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-20798]



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ENVIRONMENTAL PROTECTION AGENCY

[OPP-00730; FRL-6792-4]


Pesticides; Draft Guidance for Pesticide Registrants on New 
Labeling Statements for Spray and Dust Drift Mitigation

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice.

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SUMMARY: The Agency is announcing the availability of, and seeking 
public comment on, a draft Pesticide Registration Notice (PR-Notice) 
titled ``Spray and Dust Drift Label Statements for Pesticide 
Products.'' PR-Notices are issued by the Office of Pesticide Programs 
(OPP) to inform pesticide registrants and other interested persons 
about important policies, procedures and registration related 
decisions, and serve to provide guidance to pesticide registrants and 
OPP personnel. This particular draft PR-Notice provides guidance on 
drift label statements for pesticide products. The purpose of this new 
labeling is to provide pesticide registrants and applicators and other 
individuals responsible for pesticide applications with improved and 
more consistent product label statements for controlling pesticide 
drift from spray and dust applications in order to be protective of 
human health and the environment. The Agency invites comments on any 
aspect of the draft PR-Notice as well as the specific issues addressed 
below in the background section.

DATES: Comments, identified by docket control number OPP-00730, must be 
received on or before November 20, 2001.

ADDRESSES: Comments may be submitted by mail, electronically, or in 
person. Please follow the detailed instructions for each method as 
provided in Unit I.C. of the SUPPLEMENTARY INFORMATION. To ensure 
proper receipt by EPA, it is imperative that you identify docket 
control number OPP-00730 in the subject line on the first page of your 
response.

FOR FURTHER INFORMATION CONTACT: Jay Ellenberger, Field and External 
Affairs Division (7506C), Office of Pesticide Programs, Environmental 
Protection Agency, 1200 Pennsylvania Ave., NW., Washington, DC 20460; 
telephone number: (703) 305-7099; fax number: (703) 305-6244; e-mail 
address: [email protected].

SUPPLEMENTARY INFORMATION:

I. General Information

A. Does this Action Apply to Me?

    This action is directed to the public in general. This action may 
be of particular interest, however, to those persons who hold pesticide 
registrations, apply pesticides, or regulate the use of pesticides for 
states, territories, or tribes. Since other entities may also be 
interested, the Agency has not attempted to describe all the specific 
entities that may be affected by this action. If you have any questions 
regarding the information in this notice, consult the person listed 
under FOR FURTHER INFORMATION CONTACT.

B. How Can I Get Additional Information, Including Copies of this 
Document?

    1. Electronically. You may obtain electronic copies of this 
document and the PR-Notice from the Office of Pesticide Programs Home 
Page at http://www.epa.gov/pesticides/. You can also go directly to the 
listings from the EPA Internet Home Page at http://www.epa.gov/. To 
access this document, on the Home Page select ``Laws and Regulations,'' 
``Regulations and Proposed Rules,'' and then look up the entry for this 
document under the ``Federal Register--Environmental Documents.'' You 
can also go directly to the Federal Register listings at http://www.epa.gov/fedrgstr/.
    2. Fax-on-demand. You may request a faxed copy of the draft PR-
Notice titled ``Spray Drift Statements for Pesticide Product Labels'' 
by using a faxphone to call (202) 401-0527 and selecting item 6142. You 
may also follow the automated menu.
    3. In person. The Agency has established an official record for 
this action under docket control number OPP-00730. The official record 
consists of the documents specifically referenced in this action, any 
public comments received during an applicable comment period, and other 
information related to this action, including any information claimed 
as confidential business information (CBI). This official record 
includes the documents that are physically located in the docket, as 
well as the documents that are referenced in those documents. The 
public version of the official record does not include any information 
claimed as CBI. The public version of the official record, which 
includes printed, paper versions of any electronic comments submitted 
during an applicable comment period, is available for inspection in the 
Public Information and Records Integrity Branch (PIRIB), Rm. 119, 
Crystal Mall #2, 1921 Jefferson Davis Highway, Arlington, VA, from 8:30 
a.m. to 4 p.m., Monday through Friday, excluding legal holidays. The 
PIRIB telephone number is (703) 305-5805.

C. How and to Whom Do I Submit Comments?

    You may submit comments through the mail, in person, or 
electronically. To ensure proper receipt by EPA, it is imperative that 
you identify docket control number OPP-00730 in the subject line on the 
first page of your response.
    1. By mail. Submit your comments to: Public Information and Records 
Integrity Branch (PIRIB), Information Resources and Services Division 
(7502C), Office of Pesticide Programs (OPP), Environmental Protection 
Agency, 1200 Pennsylvania Ave., NW., Washington, DC 20460.
    2. In person or by courier. Deliver your comments to: Public 
Information and Records Integrity Branch (PIRIB), Information Resources 
and Services Division (7502C), Office of Pesticide Programs (OPP), 
Environmental Protection Agency, Rm. 119, Crystal Mall #2, 1921 
Jefferson Davis Highway, Arlington, VA. The PIRIB is open from 8:30 
a.m. to 4 p.m., Monday through Friday, excluding legal holidays. The 
PIRIB telephone number is (703) 305-5805.
    3. Electronically. You may submit your comments electronically by 
e-mail to: ``[email protected],'' or you can submit a computer disk as 
described above. Do not submit any information electronically that you 
consider to be CBI. Avoid the use of special characters and any form of 
encryption. Electronic submissions will be accepted in Wordperfect 6.1/
8.0 or ASCII file format. All comments in electronic form must be 
identified by docket control number OPP-00730. Electronic comments may 
also be filed online at many Federal Depository Libraries.

D. How Should I Handle CBI That I Want to Submit to the Agency?

    Do not submit any information electronically that you consider to 
be CBI. You may claim information that you submit to EPA in response to 
this document as CBI by marking any part or all of that information as 
CBI. Information so marked will not be disclosed except in accordance 
with procedures set forth in 40 CFR part 2. In addition to one complete 
version of the comment that includes any information claimed as CBI, a 
copy of the comment that does not contain the information claimed as 
CBI must be submitted for inclusion in the public version of the 
official record.

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 Information not marked confidential will be included in the public 
version of the official record without prior notice. If you have any 
questions about CBI or the procedures for claiming CBI, please consult 
the person identified under FOR FURTHER INFORMATION CONTACT.

E. What Should I Consider as I Prepare My Comments for EPA?

    You may find the following suggestions helpful for preparing your 
comments:
    1. Explain your views as clearly as possible.
    2. Describe any assumptions that you used.
    3. Provide copies of any technical information and/or data you used 
that support your views.
    4. If you estimate potential burden or costs, explain how you 
arrived at the estimate that you provide.
    5. Provide specific examples to illustrate your concerns.
    6. Offer alternative ways to improve the notice.
    7. Make sure to submit your comments by the deadline in this 
notice.
    8. To ensure proper receipt by EPA, be sure to identify the docket 
control number assigned to this action in the subject line on the first 
page of your response. You may also provide the name, date, and Federal 
Register citation.

II. Background

A. What Guidance Does the PR-Notice on Labeling Provide?

    In the PR-Notice, EPA provides registrants with guidance for new 
labeling statements for controlling pesticide spray and dust drift. 
These statements are intended for agricultural, industrial, home, lawn, 
garden, and certain other outdoor use pesticide products applied by 
aerial, ground rig, orchard airblast, chemigation, and handheld 
equipment. These proposed statements are based on EPA's policy on 
drift, which is articulated in the PR-Notice, studies submitted by 
registrants, other studies in the open scientific literature, and 
communications with applicators, registrants, academicians, and other 
Federal, state, and tribal government agencies. The Agency generally 
considers the label statements to be generic statements and 
representative of drift mitigation measures that are practical and 
effective to reduce drift under most application situations.
    The Agency acknowledges, however, that this labeling guidance may 
not be appropriate for all products and that for certain products there 
may be appropriate alternatives to the wording of these statements. EPA 
will consider other wording proposed by registrants for their products. 
This notice is not binding on either EPA or pesticide registrants, and 
EPA may depart from the guidance where circumstances warrant and 
without prior notice. Likewise, pesticide registrants may always assert 
that the guidance is not appropriate generally or not applicable to a 
specific pesticide or situation. The intention of these new statements 
is to provide registrants and applicators with improved and more 
consistent directions for controlling drift from application sites and 
assuring protection to human health and the environment. This notice 
also provides the Agency's position on drift, definitions of the terms 
``spray (or dust) drift'' and ``no-spray zone,'' rationale for the 
label statements, and a plan for what registrants should do.

B. What Issues/Questions Should you Consider?

    Those who wish to comment are free to raise any issue, but the 
following questions are of particular interest to the Agency, and 
comments on them are invited.
    1. The Agency requests comments on the proposed labeling 
statements, specifically in four areas described in this and the 
following three paragraphs. In the proposed guidance for labeling 
statements, the first sentence of the proposed labeling is a 
prohibition against allowing drift from the application site to contact 
people and the specified sensitive areas. The Agency is interested in 
comments about whether this labeling statement provides a definitive 
and enforceable requirement or expectation to applicators for 
protecting human health and the environment from drift.
    2. The Agency is interested in comments regarding the inclusion of 
specific application conditions in the labeling statements, the 
selection of the specific application conditions as key measures to 
control drift, and their enforceability and practicality to be followed 
under many different application scenarios. The proposed labeling 
statements include specific limitations for application conditions, 
including maximum wind speed, application height, and nozzle placement, 
which are key variables in affecting the quantity and distance or 
deposition of drift. The proposed specific limits are based on the 
available studies on drift, particularly those dealing with cause and 
effect. Placing a limitation on these variables is a means to control 
drift and reduce pesticide exposures and associated risks to human 
health and the environment.
    3. The Agency asks for comment on the content of the proposed 
labeling statement for home and garden products. According to 
information on drift incidents provided by States, use of these 
products result in a significant portion of the total number of all 
reported drift incidents. The Agency is mindful that any wording for 
these products would need to be simpler than for other types of 
products, such as agricultural products, which are likely to be applied 
by trained applicators.
    4. Because higher risk pesticides may lead to the need for no-spray 
zones for additional risk reduction, the Agency is proposing a no-spray 
zone labeling statement that generally would be used for those 
pesticide products. The Agency is interested in comments on its 
proposal for no-spray zones and the proposed labeling statement for no-
spray zones.

C. Summary of the Agency's Position on Drift

    The Agency has the responsibility to ensure that the use of 
pesticides will not cause unreasonable adverse effects to human health 
and the environment. Those involved in pesticide application decisions 
have an important responsibility to protect people, domestic animals, 
wildlife, and the environment from pesticide exposures and potential 
harm from drift. States, tribes, and EPA have responsibilities to carry 
out enforcement to ensure compliance with pesticide use requirements.
    EPA's position on pesticide drift is that applicators must not 
allow spray or dust drift to contact people, animals, and certain 
sensitive sites, including structures people occupy at any time, and 
the associated property, parks and recreation areas, nontarget crops, 
aquatic, wetland areas, woodlands, pastures, and rangelands. The Agency 
believes this is prudent public policy. It sets high but appropriate 
standards for applicators to protect people and the environment. 
Applicators must consider and use necessary application practices and 
measures required by states or tribes in addition to mandatory drift 
control measures that are stated on product labels.
    EPA realizes this position sets high but appropriate standards for 
applicators to protect people and the environment. However, the Agency 
believes that this policy will not have an undue impact on agriculture 
or other uses of pesticides. Rather, this policy

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and new labeling will clarify expectations of applicators and set 
definitive standards for application practices. The Agency also 
believes that in addition to improved labeling a very important 
component for controlling drift is training and education of 
applicators and others involved in pesticide application decisions 
about the causes and consequences of drift, control methods, and legal 
requirements.

D. Other Options EPA Considered for Labeling

    EPA considered a variety of other options for label statements for 
spray drift mitigation, some of which were offered by stakeholders. 
These other labeling options and the Agency's reactions are discussed 
below. The Agency welcomes comment on these other options.

Label Statement Option-``Do not Allow Spray Drift''

    This option, which EPA has required on some product labels, 
oversimplifies and conflicts with the Agency's conclusions of the 
supporting scientific data that some de minimus degree of drift will 
occur as part of nearly all pesticide applications. Nevertheless, 
recognizing the inadequacies of this statement and its appearance on 
numerous product labels for many years, we believe that it has been 
effectively and practically enforced by EPA, states, and tribes. 
Enforcement authorities have used their discretion to pursue violations 
based on their evaluation of those cases where there may have existed 
the potential for an effect or concern for exposures and risks to off-
target people, animals, plants, and the environment.

Label Statement Option-``Do not Allow Drift to Cause Adverse Effects''

    EPA believes this statement is problematic from an enforcement 
perspective because the burden of proof must be shifted from the simple 
fact of drift to the ``effect'' of drift, which is less compatible with 
the nature of evidence gathered in field investigations. This would 
require the determination of the definition of ``adverse effects'' 
under numerous circumstances on a case-by-case basis.
    An additional problem with this label statement is it suggests to 
applicators that drift is acceptable unless someone recognizes and 
reports effects and appropriate authorities rule the effects are 
``adverse.''

Label Statement Option-``Minimize Drift to Sensitive Areas. If Drift 
Occurs and Causes Environmental and Economic Effects, Enforcement 
Action May be Taken''

    ``Minimize drift'' suggests the Agency finds certain levels of off-
target drift acceptable, contrary to EPA's policy as discussed above. 
Further, Agency enforcement authorities believe this statement 
compromises their responsibilities by jeopardizing their ability to 
take enforcement action when necessary. The second proposed statement 
also causes concern. Under this label statement EPA, states, and tribes 
would have to prove drift as well as both environmental and economic 
effects before taking further action.
    Since there is no label minimization standard, this statement 
essentially provides tacit permission to allow drift to occur at 
certain levels, presumably at levels up to those that do not cause 
``environmental and economic effects.'' If certain levels of drift are 
permissible, a statement that off-target drift may result in 
enforcement action is nonsensical.

List of Subjects

    Environmental protection, Pesticides.

    Dated: August 9, 2001.
Marcia E. Mulkey,
Director, Office of Pesticide Programs.
[FR Doc. 01-20798 Filed 8-21-01; 8:45 am]
BILLING CODE 6560-50-S