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EPA’s Biological Evaluation Inadequate to Protect Endangered Species from Rodenticides
The U.S. Environmental Protection Agency's Draft Biological Evaluation (BE), Effects Determinations, and Mitigation Strategy for Federally Listed and Proposed Endangered and Threatened Species and Designated and Proposed Critical Habitats for 11 Rodenticides, is inadequate—both in its evaluation of risk and measures to mitigate risk—and should not be used as the basis registration of these rodenticides.
A detailed examination can be found in draft comments by Beyond Pesticides.
>>Tell EPA to improve its protection of endangered species from rodenticides.
The Endangered Species Act (ESA) is one of the most effective conservation laws globally, protecting 1,662 species in the U.S. and 638 species elsewhere on Earth. Over the past five decades, the ESA has played a pivotal role in preventing these extinctions by safeguarding the most critically endangered species within biological communities. The ESA establishes a framework to categorize species as "endangered" or "threatened," granting them specific protections, but the goal of the ESA is to address the broader issue of biodiversity loss by protecting habitats of species most at risk, or, as stated in the ESA, to “Provide a means whereby the ecosystems upon which endangered species and threatened species depend may be conserved, to provide a program for the conservation of such endangered species and threatened species, and to take such steps as may be appropriate to achieve the purposes of the treaties and conventions set forth in subsection (a) of this section.”
Under the ESA, the U.S. Environmental Protection Agency (EPA) is required to consult with relevant agencies when registering chemicals to assess their impact on endangered species. Unfortunately, EPA has consistently fallen short in fulfilling this statutory obligation, as highlighted over years of reporting by Beyond Pesticides. EPA admits that its Pesticide Program “has been unable to keep pace with its ESA workload, resulting not only in inadequate protections for listed species but also litigation against the Agency.”
Pesticide use is a major cause of declining biodiversity, which is manifested in extinctions, endangered species, and species vulnerable to environmental disturbances—including climate change, habitat fragmentation, and toxic chemicals. If EPA is serious about protecting biodiversity, it must look first to the ways it has created the crisis in the first place.
In this BE, EPA predicts the potential likelihood of future jeopardy for only 73 of the 136 species it judged may be affected and the potential likelihood of future adverse modification for only four of the 38 “likely to be adversely affected” critical habitats. It predicted potential jeopardy for 24 mammal species for bait station use, 31 for burrow use, and 35 for broadcast applications. For birds, EPA predicts jeopardy for six species from bait station use, one for burrow use, and 30 for broadcast applications. For reptiles, EPA predicts jeopardy for just four species from bait station use and just one species for broadcast applications. EPA made “no effect” determinations for all aquatic and terrestrial plants, aquatic and terrestrial invertebrates, and aquatic vertebrates for which no direct effects or effects on prey, pollination, habitat, or dispersal are expected from the use of the 11 rodenticides.
Despite data to the contrary, EPA has made no effect (NE) determinations for all species under the jurisdiction of the National Marine Fisheries Service (NMFS) because no consequences relevant to direct toxicity of these species or their prey, pollination, habitat, or dispersal are expected by EPA from the use of these rodenticides. These categorical NE determinations by EPA for all aquatic vertebrates, including those under the jurisdiction of NMFS, are not warranted. Anticoagulant rodenticides (ARs), contrary to the agency's assertions, can be transported to the aquatic environment (freshwater and marine). Recent detections in raw and treated wastewater, sewage sludge, estuarine sediments, suspended particulate matter, and liver tissue of sampled fish demonstrate that the aquatic environment experiences a greater risk of anticoagulant rodenticide exposure than previously thought. One AR, brodifacoum, revealed an enduring persistence (> three years) in a marine environment after broadcast treatment in an island eradication project. Monitoring studies have also demonstrated that second-generation ARs bioaccumulate in fish liver under environmentally realistic conditions and exposure scenarios. Island eradication programs also provide for increased drift and runoff potential due to the broader treatment area and amplified application rates. Fish sampled after broadcast applications of AR bait pellets during monitored island eradication operations (Palmyra Atoll and Lehua Island, Hawaii) were found to have consumed treated pellets. The fish, as well as other animals that consumed the bait, were killed.
Secondary poisoning in listed endangered species fish and aquatic reptiles is similarly possible from ingesting poisoned animals. Some invertebrates (e.g., insects, mollusks, and annelid worms) can consume poisoned baits and transfer the poison via food web to various susceptible vertebrates. Target and nontarget small mammals that have consumed poisoned baits will not always stay sedentary or concealed—many roam openly and often seek water. Those who become moribund or die in sewers, culverts, drainage ditches, or similar conduits can be swept into riparian zones or directly into water bodies (streams, rivers, lakes, tidal basins, estuaries), where they can be consumed by aquatic predators and scavengers. Encounter and ingestion of a poisoned and sickened rodent could prove fatal to aquatic vertebrate species. Mice have been reportedly consumed by listed species such as alligator snapping turtle, bull trout, Atlantic salmon, and steelhead trout. These four listed species should be considered “may be affected” and their potential jeopardy considered by the Services (U.S. Fish and Wildlife Services-USFWS and NMFS) in the required formal consultation. Additionally, marine mammals may be at serious risk from existing and planned island eradication projects and should be considered in a revised BE.
As discussed above, fish are exposed through primary routes in the consumption of bait pellets/grains that may be washed or transported into waters. They may also consume invertebrates or small mammals that have ingested poisoned baits and moved into their habitat. However, EPA lacks dietary toxicity data for fish and cannot confidently assess the extent of risk from this route of exposure in these aquatic vertebrates. EPA must seek additional toxicity data from registrants to better evaluate rodenticide toxicity from dietary exposures of fish. In addition to lacking dietary toxicity data for rodenticides, the agency also lacks reproduction and chronic (life cycle) toxicity data on aquatic vertebrates.
In conclusion, the draft BE is unsatisfactory and must be revised before proceeding to formal ESA §7(a)(2) consultations with the Services (Fish and Wildlife Service and National Marine Fisheries Service). The flawed draft BE erroneously disregards potential aquatic exposure and fails to identify additional listed species (alligator snapping turtle, bull trout, Atlantic salmon, steelhead trout) that may be adversely affected. Aquatic animals, including fish are exposed, as previously discussed, through primary routes in the consumption of bait pellets/grains that may be washed or transported into waters from broadcast applications or improperly disposed bait stations. Secondary routes are also possible from consuming invertebrates or small mammals that have ingested poisoned bait and moved into their habitat. However, EPA lacks dietary toxicity data for fish and cannot confidently assess the extent of risk from this route of exposure.
EPA must seek additional toxicity data from registrants to better evaluate rodenticide toxicity from dietary exposures of fish. In addition to lacking dietary toxicity data for rodenticides, the agency also lacks reproduction and chronic (life cycle) toxicity data on aquatic vertebrates. Since this draft BE is intended to be a comprehensive review and analysis of all currently registered uses of 11 rodenticides, the island eradication programs special use labels should also be considered in the rodenticide BE and not solely dependent on expected USDA Animal Plant Health Inspection (APHIS) ESA consultations.
>>Tell EPA to improve its protection of endangered species from rodenticides.
The target for this Action is the U.S. Environmental Protection Agency via Regulations.gov.
Thank you for your active participation and engagement!
Comment to EPA:
The Draft Biological Evaluation (BE) is inadequate and should not be used to support the registration of the 11 rodenticides under review. Pesticide use is a major cause of declining biodiversity, which is manifested in extinctions, endangered species, and species vulnerable to environmental disturbances—including climate change, habitat fragmentation, and toxic chemicals. EPA must reverse these trends.
The BE predicts the potential likelihood of future jeopardy for only 73 of the 136 species that “may be affected” and the potential likelihood of future adverse modification for only 4 of the 38 “likely to be adversely affected” critical habitats. EPA made “no effect” determinations for all aquatic and terrestrial plants, aquatic and terrestrial invertebrates, and aquatic vertebrates for which it expects no direct effects or effects on prey, pollination, habitat, or dispersal from the use of the 11 rodenticides.
EPA made “no effect” (NE) determinations for species under the jurisdiction of the National Marine Fisheries Service (NMFS). These categorical NE determinations by EPA for all aquatic vertebrates are not warranted. Anticoagulant rodenticides (ARs) can be transported to freshwater and marine environments—as shown by recent detections in raw and treated wastewater, sewage sludge, estuarine sediments, suspended particulate matter, and liver tissue of fish. One AR, brodifacoum, persisted at least 3 years in a marine environment after broadcast treatment in an island eradication project (Palmyra Atoll and Lehua Island, Hawaii). Studies also show that second-generation ARs bioaccumulate in fish liver. Island eradication programs provide increased drift and runoff potential due to the broad treatment area and high application rates. Fish sampled after broadcast applications of AR bait pellets during monitored island eradication operations were found to have consumed treated pellets. The fish and other animals that consumed the bait were killed.
Secondary poisoning in listed endangered species aquatic species may occur by ingesting poisoned animals. Invertebrates such as insects, mollusks, and annelid worms can consume poisoned baits and transfer the poison via food web to susceptible vertebrates who may end up in water bodies where they can be consumed by aquatic predators and scavengers. Ingestion of a poisoned and sickened rodent could prove fatal to aquatic vertebrates. Mice are consumed by listed species such as alligator snapping turtle, bull trout, Atlantic salmon, and steelhead trout. These four listed species should be “may be affected” and their potential jeopardy considered by the Services (USFWS and NMFS) in the required formal consultation. Additionally, marine mammals may be at serious risk from existing and planned island eradication projects and should be considered in a revised BE.
In conclusion, the draft BE is flawed and must be revised before proceeding to formal consultations with the Services. The draft BE erroneously disregards potential aquatic exposure and fails to identify additional listed species (alligator snapping turtle, bull trout, Atlantic salmon, steelhead trout) as well as marine mammals that may be adversely affected. Aquatic animals are exposed through primary routes and secondary routes. EPA must seek additional data from registrants on dietary and chronic toxicity to aquatic vertebrates, which it currently lacks. Since this draft BE is intended to be a comprehensive review and analysis of all currently registered uses of 11 rodenticides, the island eradication programs special use labels should also be considered in the rodenticide BE and not wait on expected APHIS consultations.
Thank you for considering these comments.