TABLE OF CONTENTS AND LISTS OF

TABLES, FIGURES, AND MAPS

BLM Vegetation Treatments Using Herbicides i June 2007

Final Programmatic EIS

TABLE OF CONTENTS

VOLUME 1

Chapter 1. Proposed Action and Purpose and Need ................................................................................................1-1

Introduction .............................................................................................................................................1-1

Organization of the Vegetation Treatments Assessments.............................................................1-2

Proposed Action .............................................................................................................................1-3

Purpose and Need for the Proposed Action............................................................................................1-4

Decisions to be Made and Scope of Analysis ........................................................................................1-4

Scope of Analysis...........................................................................................................................1-5

Decisions to be Made .....................................................................................................................1-5

Documents that Influence the Scope of the PEIS ..................................................................................1-6

Relationship to Statutes, Regulations, and Policies ...............................................................................1-6

Federal Laws, Regulations, and Policies that Influence Vegetation Treatments.........................1-6 

NEPA Requirements of the Program.............................................................................................1-8

Interrelationships and Coordination with Agencies...............................................................................1-9

National Level Coordination....................................................................................................... 1-11

State and County Level Coordination......................................................................................... 1-11

Non-governmental Organizations............................................................................................... 1-12

Cooperative Weed Management Areas ...................................................................................... 1-12

Consultation ......................................................................................................................................... 1-12

Public Involvement and Analysis of Issues......................................................................................... 1-12

Public Scoping Meetings............................................................................................................. 1-13

Scoping Issues and Concerns...................................................................................................... 1-13

Development of the Alternatives ................................................................................................ 1-13

Issues Not Addressed in the Draft PEIS ..................................................................................... 1-13

Public Review and Comment on the Draft Programmatic EIS, ER, and BA............................ 1-14

Limitations of this PEIS....................................................................................................................... 1-14

Preview of the Remainder of the PEIS................................................................................................ 1-15

Chapter 2. Alternatives ................................................................................................................................................2-1

Introduction .............................................................................................................................................2-1

BLM Programs Responsible for Herbicide Treatments.........................................................................2-1

Wildland Fire Management............................................................................................................2-2

Rangeland Management.................................................................................................................2-3

Forest and Woodland Management ...............................................................................................2-3

Riparian Management ....................................................................................................................2-4

Wildlife, Fisheries, and Threatened and Endangered Species Management................................2-4

Other Programs...............................................................................................................................2-5

Vegetation Treatment Planning and Management.................................................................................2-5

Land Use Planning .........................................................................................................................2-5

Site Selection and Treatment Priorities..........................................................................................2-6

Vegetation Treatment Methods ..............................................................................................................2-8

Integrating Vegetation Treatments.................................................................................................2-8

Vegetation Treatment Method Selection .......................................................................................2-9

Herbicide Active Ingredients Evaluated under the Proposed Alternatives ..........................................2-9 

Herbicide Modes of Action and Treatment Methods.......................................................................... 2-13

Description of the Alternatives............................................................................................................ 2-14

Alternative A – Continue Present Herbicide Use (No Action Alternative).............................. 2-14 

Alternative B – Expand Herbicide Use and Allow for Use of New Herbicides in 17 Western

States (Preferred Alternative)...................................................................................................... 2-17
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Alternative C – No Use of Herbicides ........................................................................................ 2-19

Alternative D – No Aerial Application of Herbicides................................................................ 2-19

Alternative E – No Use of Sulfonylurea and other Acetolactate Synthase-inhibiting Active

Ingredients.................................................................................................................................... 2-20

Determination of Treatment Acreages................................................................................................. 2-21

Non-herbicide Treatment Method Acreages used in Cumulative Effects Analysis .................. 2-21

Alternatives Considered but Not Further Analyzed............................................................................ 2-22

Herbicide Treatment Standard Operating Procedures and Guidelines ............................................... 2-22

Prevention of Weeds and Early Detection and Rapid Response................................................ 2-23

Herbicide Treatment Planning .................................................................................................... 2-25

Revegetation ................................................................................................................................ 2-27

Special Precautions .............................................................................................................................. 2-28

Special Status Species ................................................................................................................. 2-28

Wilderness Areas......................................................................................................................... 2-29

Cultural Resources....................................................................................................................... 2-29

Monitoring............................................................................................................................................ 2-35

Monitoring Guidance used by BLM in Vegetation Management.............................................. 2-37

Monitoring Methods and Research............................................................................................. 2-38

Coordination and Education ................................................................................................................ 2-39

Mitigation ............................................................................................................................................. 2-40

Summary of Impacts by Alternative.................................................................................................... 2-40

Chapter 3. Affected Environments............................................................................................................................. 3-1

Introduction and Study Area.................................................................................................................. 3-1

Land Use and Ecoregions ...................................................................................................................... 3-1

Land Use........................................................................................................................................ 3-1

Ecoregions ..................................................................................................................................... 3-1

Climate ................................................................................................................................................... 3-2

Tundra Ecoregion .......................................................................................................................... 3-2

Subarctic Ecoregion....................................................................................................................... 3-2

Subtropical Steppe Ecoregion ....................................................................................................... 3-2

Subtropical Desert Ecoregion........................................................................................................ 3-2

Temperate Steppe Ecoregion ........................................................................................................ 3-2

Temperate Desert Ecoregion......................................................................................................... 3-2

Mediterranean Ecoregion .............................................................................................................. 3-3

Marine Ecoregion .......................................................................................................................... 3-3

Mountain Provinces....................................................................................................................... 3-3

Air Quality.............................................................................................................................................. 3-3

Visibility Protection in Mandatory Federal Class I Areas............................................................ 3-4

Herbicide Drift............................................................................................................................... 3-6

Topography, Geology, Minerals, Oil, and Gas ..................................................................................... 3-6

Tundra Ecoregion .......................................................................................................................... 3-6

Subarctic Ecoregion....................................................................................................................... 3-7

Temperate Desert Ecoregion......................................................................................................... 3-7

Subtropical Desert Ecoregion........................................................................................................ 3-7

Temperate Steppe Ecoregion ........................................................................................................ 3-7

Subtropical Steppe Ecoregion ....................................................................................................... 3-7

Mediterranean Ecoregion .............................................................................................................. 3-7

Marine Ecoregion .......................................................................................................................... 3-7

Soil Resources........................................................................................................................................ 3-7

Biological Soil Crusts.................................................................................................................... 3-9

Micro and Macroorganisms........................................................................................................... 3-9

Soil Erosion.................................................................................................................................. 3-10
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Soil Compaction ......................................................................................................................... 3-10 

Water Resources and Quality .............................................................................................................. 3-11

Water Resources.......................................................................................................................... 3-11

Water Quality .............................................................................................................................. 3-15

Wetland and Riparian Areas................................................................................................................ 3-18

Vegetation ............................................................................................................................................ 3-19

Tundra Ecoregion ........................................................................................................................ 3-19

Subarctic Ecoregion..................................................................................................................... 3-20

Temperate Desert Ecoregion....................................................................................................... 3-20

Subtropical Desert Ecoregion ..................................................................................................... 3-22

Temperate Steppe Ecoregion ...................................................................................................... 3-22

Subtropical Steppe Ecoregion..................................................................................................... 3-23

Mediterranean Ecoregion ............................................................................................................ 3-24

Marine Ecoregion ........................................................................................................................ 3-25

Noxious Weeds and other Invasive Vegetation.......................................................................... 3-25

Vegetation Condition and Fire Regimes..................................................................................... 3-27

Non-timber Forest Products ........................................................................................................ 3-29

Special Status Species ................................................................................................................. 3-30

Fish and Other Aquatic Organisms ..................................................................................................... 3-30

Alaska and the Pacific Northwest ............................................................................................... 3-30

The Arid Environment................................................................................................................. 3-31

The Upper Colorado River Basin................................................................................................ 3-33

California ..................................................................................................................................... 3-34

Missouri River Basin................................................................................................................... 3-34

Special Status Species ................................................................................................................. 3-35

Wildlife Resources............................................................................................................................... 3-35

Tundra Ecoregion ........................................................................................................................ 3-36

Subarctic Ecoregion..................................................................................................................... 3-37

Temperate Desert Ecoregion....................................................................................................... 3-38

Subtropical Desert Ecoregion ..................................................................................................... 3-39

Temperate Steppe Ecoregion ...................................................................................................... 3-40

Subtropical Steppe Ecoregion..................................................................................................... 3-41

Mediterranean Ecoregion ............................................................................................................ 3-41

Marine Ecoregion ........................................................................................................................ 3-42

Special Status Species ................................................................................................................. 3-43

Livestock .............................................................................................................................................. 3-43

Wild Horses and Burros....................................................................................................................... 3-44

Paleontological and Cultural Resources.............................................................................................. 3-44

Paleontological Resources........................................................................................................... 3-44

Cultural Resources....................................................................................................................... 3-45

American Indian and Alaska Native Cultural Resources........................................................... 3-45

European Settlement Resources.................................................................................................. 3-54

Important Plant Uses and Species Used by American Indians and Alaska Natives................. 3-54 

Visual Resources.................................................................................................................................. 3-56

Wilderness and other Special Areas .................................................................................................... 3-56

Recreation............................................................................................................................................. 3-58

Rights-of-way, Facilities, and Roads................................................................................................... 3-60

Rights-of-way .............................................................................................................................. 3-60

Facilities and Roads..................................................................................................................... 3-61

Social and Economic Values ............................................................................................................... 3-61

Social/Demographic Environment.............................................................................................. 3-61

Economic Environment............................................................................................................... 3-62

Revenues Generated by BLM Lands.......................................................................................... 3-62
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BLM Vegetation Treatments Using Herbicides iv June 2007

Final Programmatic EIS

Expenditures by the BLM ........................................................................................................... 3-65

Human Health and Safety .................................................................................................................... 3-69

Background Health Risks............................................................................................................ 3-69

Risks from Diseases..................................................................................................................... 3-70

Risks from Injuries ...................................................................................................................... 3-70

Risks from Cancer ....................................................................................................................... 3-71

Risk from Using Herbicides on Public Lands ............................................................................ 3-72

Risk from Wildfire Control on Public Lands.............................................................................. 3-72

Chapter 4. Environmental Consequences ................................................................................................................. 4-1

Introduction and Effects......................................................................................................................... 4-1

How the Effects of the Alternatives Were Estimated ........................................................................... 4-1

Assumptions for Analysis ............................................................................................................. 4-1

Incomplete and Unavailable Information ..................................................................................... 4-3

Subsequent Analysis before Projects ............................................................................................ 4-4

Program Goals by Ecoregion ........................................................................................................ 4-4

Land Use................................................................................................................................................. 4-5

Air Quality.............................................................................................................................................. 4-5

Scoping Comments and Other Issues Evaluated in the Assessment........................................... 4-5 

Emission Sources........................................................................................................................... 4-6

Methodology for Assessing Impacts to Air Quality..................................................................... 4-6

Standard Operating Procedures..................................................................................................... 4-8

Impacts by Alternative................................................................................................................... 4-9

Mitigation for Herbicide Treatment Impacts .............................................................................. 4-13

Soil Resources...................................................................................................................................... 4-13

Introduction.................................................................................................................................. 4-13

Scoping Comments and Other Issues Evaluated in the Assessment.......................................... 4-13

Standard Operating Procedures................................................................................................... 4-13

Factors that Influence the Fate, Transport, and Persistence of Herbicides in Soil.................... 4-14 

Impacts by Treatment.................................................................................................................. 4-15

Impacts by Alternative................................................................................................................. 4-21

Mitigation for Herbicide Treatment Impacts .............................................................................. 4-24

Water Resources and Quality............................................................................................................... 4-24

Introduction.................................................................................................................................. 4-24

Scoping Comments and Other Issues Evaluated in the Assessment......................................... 4-24 

Standard Operating Procedures................................................................................................... 4-24

Impacts by Treatment.................................................................................................................. 4-25

Impacts by Herbicide................................................................................................................... 4-29

Impacts by Alternative................................................................................................................. 4-34

Mitigation for Herbicide Treatment Impacts .............................................................................. 4-36

Wetland and Riparian Areas ................................................................................................................ 4-36

Introduction.................................................................................................................................. 4-36

Scoping Comments and Other Issues Evaluated in the Assessment......................................... 4-37 

Factors that Influence the Fate, Transport, and Persistence of Herbicides in Wetland and Riparian

Areas ............................................................................................................................................ 4-37

Methodology for Assessing Impacts to Wetland and Riparian Areas ...................................... 4-37 

Summary of Herbicide Impacts................................................................................................... 4-37

Impacts by Alternative................................................................................................................. 4-41

Mitigation for Herbicide Treatment Impacts .............................................................................. 4-44

Vegetation ............................................................................................................................................ 4-44

Introduction.................................................................................................................................. 4-44

Scoping Comments and Other Issues Evaluated in the Assessment......................................... 4-44 

Standard Operating Procedures................................................................................................... 4-44
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Final Programmatic EIS

Impacts Assessment Methodology ............................................................................................ 4-45 

Impacts Common to All Treatments........................................................................................... 4-47

Summary of Herbicide Impacts Evaluated in ERAs .................................................................. 4-63

Other Herbicides Previously Approved for Use on Public Lands ............................................ 4-64 

Impacts by Alternative ................................................................................................................ 4-64

Mitigation for Herbicide Treatment Impacts.............................................................................. 4-71

Special Status Plant Species........................................................................................................ 4-71

Fish and Other Aquatic Organisms ..................................................................................................... 4-76

Introduction.................................................................................................................................. 4-76

Scoping Comments and Other Issues Evaluated in the Assessment.......................................... 4-77

Standard Operating Procedures................................................................................................... 4-77

Impacts Assessment Methodology ............................................................................................. 4-77

Impacts by Treatment.................................................................................................................. 4-80

Impacts by Alternative ................................................................................................................ 4-89

Mitigation for Herbicide Treatment Impacts.............................................................................. 4-92

Special Status Fish and Other Aquatic Organisms..................................................................... 4-92

Wildlife Resources............................................................................................................................... 4-96

Introduction.................................................................................................................................. 4-96

Scoping Comments and Other Issues Evaluated in the Assessment......................................... 4-98 

Standard Operating Procedures................................................................................................... 4-98

Impacts Assessment Methodology ............................................................................................. 4-99

Summary of Herbicide Impacts ................................................................................................ 4-101

Impacts of Herbicide Treatments on Wildlife and Habitat by Ecoregion............................... 4-109 

Impacts by Alternative .............................................................................................................. 4-114

Mitigation for Herbicide Treatment Impacts............................................................................ 4-118

Special Status Wildlife Species................................................................................................. 4-118

Livestock ............................................................................................................................................ 4-124

Introduction................................................................................................................................ 4-124

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-124 

Standard Operating Procedures................................................................................................. 4-124

Impacts Assessment Methodology ........................................................................................... 4-125

Summary of Herbicide Impacts ................................................................................................ 4-125

Impacts by Alternative .............................................................................................................. 4-133

Mitigation for Herbicide Treatment Impacts............................................................................ 4-136

Wild Horses and Burros..................................................................................................................... 4-136

Introduction................................................................................................................................ 4-136

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-137 

Standard Operating Procedures................................................................................................. 4-137

Impacts Assessment Methodology ........................................................................................... 4-137

Summary of Herbicide Impacts ................................................................................................ 4-137

Impacts by Alternative .............................................................................................................. 4-143

Mitigation for Herbicide Treatment Impacts............................................................................ 4-146

Paleontological and Cultural Resources............................................................................................ 4-146

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-147 

Standard Operating Procedures for Addressing BLM Actions on Paleontological, Cultural, and

Subsistence Resources............................................................................................................... 4-147

Herbicide Impacts on Paleontological and Cultural Resources ............................................... 4-148

Herbicide Impacts on Native American Health........................................................................ 4-149

Impacts by Alternative .............................................................................................................. 4-150

Mitigation for Herbicide Treatment Impacts............................................................................ 4-152

Visual Resources................................................................................................................................ 4-152

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-153 

Standard Operating Procedures................................................................................................. 4-153
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Final Programmatic EIS

BLM Assessment of Visual Resource Values .......................................................................... 4-153

Summary of Herbicide Impacts................................................................................................. 4-154

Impacts by Alternative............................................................................................................... 4-154

Mitigation for Herbicide Treatment Impacts ............................................................................ 4-155

Wilderness and Special Areas............................................................................................................ 4-155

Scoping Comments and Other Issues Addressed in the Assessment...................................... 4-156 

Standard Operating Procedures................................................................................................. 4-156

Summary of Herbicide Impacts................................................................................................. 4-156

Impacts by Alternative............................................................................................................... 4-157

Mitigation for Herbicide Treatment Impacts ............................................................................ 4-159

Recreation........................................................................................................................................... 4-159

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-159 

Standard Operating Procedures................................................................................................. 4-160

Summary of Herbicide Impacts................................................................................................. 4-160

Impacts by Alternative............................................................................................................... 4-161

Mitigation for Herbicide Treatment Impacts ............................................................................ 4-163

Social and Economic Values ............................................................................................................. 4-163

Introduction................................................................................................................................ 4-163

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-164 

Standard Operating Procedures................................................................................................. 4-164

Impact Assessment Assumptions.............................................................................................. 4-165

Summary of Herbicide Impacts................................................................................................. 4-165

Impacts by Alternative............................................................................................................... 4-166

Mitigation for Herbicide Treatment Impacts ............................................................................ 4-174

Human Health and Safety .................................................................................................................. 4-174

Scoping Comments and Other Issues Evaluated in the Assessment....................................... 4-175 

Standard Operating Procedures................................................................................................. 4-175

Human Health Risk Assessment Methodology........................................................................ 4-175

Uncertainty in the Risk Assessment Process ............................................................................ 4-181

Impacts by Alternative............................................................................................................... 4-195

Mitigation................................................................................................................................... 4-196

Cumulative Effects Analysis.............................................................................................................. 4-197

Structure of the Cumulative Effects Analysis........................................................................... 4-197

Resource Protection Measures Considered in the Cumulative Effects Analysis.................... 4-201 

Other Information Considered in Cumulative Effects Analysis .............................................. 4-202

Analysis of Cumulative Effects by Resources.......................................................................... 4-202

Unavoidable Adverse Effects.................................................................................................... 4-243

Relationship between the Local Short-term Uses and Maintenance and Enhancement of

Long-term Productivity ............................................................................................................ 4-246 

Irreversible and Irretrievable Commitment of Resources ........................................................ 4-251

Energy Requirements and Conservation Potential ................................................................... 4-253

Natural or Depletable Resource Requirements and Conservation.......................................... 4-253 

Chapter 5. Consultation and Coordination ......................................................................................................5-1

Preview of this Section........................................................................................................................... 5-1

Public Involvement ................................................................................................................................ 5-1

Federal Register Notices and Newspaper Advertisements........................................................... 5-1

Scoping Meetings .......................................................................................................................... 5-1

Newsletters..................................................................................................................................... 5-2

Public Review and Comment on the Draft Programmatic EIS and ER, and Biological

Assessment..................................................................................................................................... 5-2

Agency Coordination and Consultation ................................................................................................ 5-3

Endangered Species Act Section 7 Consultation.......................................................................... 5-3
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BLM Vegetation Treatments Using Herbicides vii June 2007

Final Programmatic EIS

Risk Assessment Coordination ......................................................................................................5-3

Cultural and Historic Resource Consultation ................................................................................5-3

Government-to-government Consultation..............................................................................................5-3

Development of the Final Preferred Alternative....................................................................................5-4

List of Preparers of the Programmatic EIS.............................................................................................5-4

Chapter 6. References ..................................................................................................................................................6-1

Chapter 7. Glossary ......................................................................................................................................................7-1

Chapter 8. Index ...........................................................................................................................................................8-1

List of Tables

1-1 Key Issues (and Number of Comments) Identified During Scoping and Location Where Issues

Are Addressed in the PEIS and PER ...................................................................................................... 1-16

2-1 Herbicide Active Ingredients Proposed, Evaluated, and Included in Current Environmental

Impact Statements of the Bureau of Land Management........................................................................ 2-11

2-2 States in which Herbicides are Approved for Use on Public Lands Based upon Current

Environmental Impact Statements, Court Injunctions, and Changes in Registration Status ................ 2-12

2-3 Herbicides Approved and Proposed for Use on Public Lands............................................................... 2-15

2-4 Average Number of Acres Treated Annually for Each BLM State Jurisdiction during 1997-

2005 ......................................................................................................................................................... 2-17

2-5 Historic Use of Herbicides by the BLM and Projected Future Use of Herbicides by the BLM

under Each Alternative............................................................................................................................ 2-18

2-6 Comparison of the Alternatives .............................................................................................................. 2-19

2-7 Prevention Measures ............................................................................................................................... 2-24

2-8 Standard Operating Procedures for Applying Herbicides...................................................................... 2-30

2-9 Mitigation Measures................................................................................................................................ 2-41

2-10 Summary and Comparison of Effects on Resources by Alternative...................................................... 2-43

3-1 Acres of Public Lands in 17 Western States and Percent of Lands in the the State Administered

by the BLM................................................................................................................................................ 3-1

3-2 National Ambient Air Quality Impact Significance Criteria ................................................................... 3-4

3-3 Counties within the Treatment Area that are Designated Nonattainment or Maintenance Areas

for Various Pollutants................................................................................................................................ 3-5

3-4 Vegetation Classification System ........................................................................................................... 3-21

3-5 Estimated Acres of Weed Infestations on Public Lands in 2000........................................................... 3-28

3-6 Grazing Permits and Leases in Force and Active Animal Unit Months during Fiscal Year 2005 ....... 3-44

3-7 Wild Horses and Burros on Public Lands in Fiscal Year 2005.............................................................. 3-45

3-8 Interpreted Paleontological Sites on Public Lands................................................................................. 3-46

3-9 Cultural Resources on Public Lands....................................................................................................... 3-47

3-10 Culture Areas, Prehistoric Occupation Periods, and Selected Common Site Types............................. 3-48

3-11 European Settlement Resource Types .................................................................................................... 3-55

3-12 Visual Resource Management Classes and Objectives and Appropriate Management Activities....... 3-58

3-13 National Landscape Conservation System and Other Special Designation Areas on Public

Lands as of September 2005 ................................................................................................................... 3-59

3-14 Estimated Recreation Use of Public Lands during Fiscal Year 2005.................................................... 3-60

3-15 Population, Age Distribution, and Race in the Western States and Alaska........................................... 3-63

3-16 Percent Unemployment for Western U.S. and Alaska........................................................................... 3-64

3-17 Percent Employment by Industry in 2004 .............................................................................................. 3-65

3-18 Revenues Generated from Public Lands by Source for Fiscal Year 2005............................................. 3-66
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3-19 Estimated Benefits to Local Economies by Recreation on Public Lands during Fiscal Year 2005 ......3-66

3-20 Summary of BLM Jobs and Expenditures for the Management of the Lands and Resources

Program by Activity and Subactivity ......................................................................................................3-67

3-21 BLM Wildland Fire Suppression Expenditures Fiscal Year 1998 through Fiscal Year 2005...............3-68

3-22 BLM Action Fires Larger than 10,000 Acres during 1999 to 2005 .......................................................3-68

3-23 Herbicide Uses and Costs for Vegetation Treatments on Public Lands during 2005............................3-69

3-24 BLM Payments to States and Local Governments during Fiscal Year 2005.........................................3-71

3-25 Mortality Rates (per 100,000 Population) and Causes of Death by State 2002-2003............................3-72

4-1 Estimated Acres Treated Annually using Herbicides for Each State under Each Treatment

Alternative ..................................................................................................................................................4-7

4-2 Annual Emissions Summary for Herbicide Treatments under Alternative A..........................................4-8

4-3 Annual Emissions Summary for Herbicide Treatments under Alternative B ..........................................4-9

4-4 Annual Emissions Summary for Herbicide Treatments under Alternative D........................................4-10

4-5 Annual Emissions Summary for Herbicide Treatments under Alternative E ........................................4-11

4-6 Example NAAQS Compliance Analysis for Chemical Treatment ........................................................4-12

4-7 Estimated Soil Half-life and Adsorption Affinity for Active Ingredients ..............................................4-15

4-8 Factors Associated with Herbicide Movement to Groundwater.............................................................4-27

4-9 Herbicide Physical Properties and Off-site Movement Potential ...........................................................4-28

4-10 Anaerobic Half-life and Relative Mobility in Soil for Herbicides Analyzed in this PEIS ....................4-39

4-11 Risk Categories Used to Describe Typical Herbicide Effects to Vegetation According to

Exposure Scenario and Ecological Receptor Group ...............................................................................4-49

4-12 Buffer Distances to Minimize Risk to Vegetation from Off-site Drift of BLM-evaluated

Herbicides.................................................................................................................................................4-54

4-13 Risk Categories Used to Describe Effects of Forest Service-evaluated Herbicides According to

Exposure Scenario and Ecological Receptor Group ...............................................................................4-57

4-14 Buffer Distances to Minimize Risk to Vegetation from Off-site Drift of Forest Serviceevaluated Herbicides ................................................................................................................................4-61

4-15 Percentage of Acres Projected to be Treated Using Herbicides in Each Ecoregion for Each

Vegetation Subclass under the No Action Alternative............................................................................4-67

4-16 Percentage of Acres Projected to be Treated Using Herbicides in Each Ecoregion for Each

Vegetation Subclass under the Preferred Alternative .............................................................................4-69

4-17 Risk Categories Used to Describe BLM-evaluated Herbicide Effects on Non Special Status Fish

and Aquatic Invertebrates According to Exposure Scenario ..................................................................4-81

4-18 Risk Categories Used to Describe Forest Service-evaluated Herbicide Effects on Fish and

Aquatic Invertebrates According to Exposure Scenario .........................................................................4-87

4-19 Buffer Distances to Minimize Risk to Non Special Status Fish and Aquatic Invertebrates from

Off-site Drift of BLM-evaluated Herbicides from Broadcast and Aerial Treatments ...........................4-93

4-20 Risk Categories Used to Describe BLM-evaluated Herbicide Effects on Special Status Fish and

Aquatic Invertebrates According to Exposure Scenario .........................................................................4-97

4-21 Buffer Distances to Minimize Risk to Special Status Fish and Aquatic Organisms from Off-site

Drift of BLM Herbicides from Broadcast and Aerial Treatments..........................................................4-98

4-22 Risk Categories Used to Describe BLM-evaluated Herbicide Effects on Non Special Status

Wildlife According to Exposure Scenario.............................................................................................4-103

4-23 Risk Categories Used to Describe Forest Service-evaluated Herbicide Effects on Wildlife

According to Exposure Scenario ...........................................................................................................4-107

4-24 Risk Categories Used to Describe BLM-evaluated Herbicide Effects on Special Status Wildlife

According to Exposure Scenario ...........................................................................................................4-121

4-25 Risk Categories Used to Describe BLM-evaluated Herbicide Effects on Livestock and Wild

Horses and Burros According to Exposure Scenario............................................................................4-127

4-26 Risk Categories Used to Describe Forest Service-evaluated Herbicide Effects on Livestock and

Wild Horses and Burros According to Exposure Scenario...................................................................4-131
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Final Programmatic EIS

4-27 BLM-evaluated Herbicide Risk Categories by Aggregate Risk Index for Occupational

Receptors ............................................................................................................................................... 4-185

4-28 BLM-evaluated Herbicide Risk Categories by Aggregate Risk Index for Public Receptors ............ 4-186

4-29 Forest Service-evaluated Herbicide Risk Categories by Hazard Quotient for Occupational

Receptors ............................................................................................................................................... 4-187

4-30 Forest Service-evaluated Herbicide Risk Categories by Hazard Quotient for Public Exposures....... 4-188

4-31 Scenarios Resulting in High Risk to Occupational Receptors from Herbicides Evaluated in the

1988-1991 BLM EISs ........................................................................................................................... 4-191

4-32 Scenarios Resulting in High Risk to Public Receptors from Herbicides Evaluated in the 1988-

1991 BLM EISs..................................................................................................................................... 4-192

4-33 Herbicide Use in the Western United States for Agricultural Lands and BLM-administered

Lands...................................................................................................................................................... 4-200

5-1 List of Preparers of the Programmatic EIS/ER/BA.................................................................................. 5-5

List of Figures

1-1 Relationship of the PEIS to BLM Field Offices..................................................................................... 1-10

1-2 How this Programmatic EIS is Organized.............................................................................................. 1-17

2-1 Summary of Acres Treated Using Herbicides during 1997-2005.................................................................. 2-17

2-2 National Early Warning and Rapid Reponse System for Invasive Plants ............................................. 2-26

3-1 Relationship between Area Occupied by Invasive Species and Time................................................... 3-27

List of Maps

(Located at the end of the chapter)

1-1 Public Lands Administered by the Bureau of Land Management......................................................... 1-19

3-1 Ecoregion Divisions ................................................................................................................................ 3-73

3-2 Class I Areas............................................................................................................................................ 3-75

3-3 Oil and Gas Wells on Public Lands ........................................................................................................ 3-77

3-4 Soil Orders on Public Lands ................................................................................................................... 3-79

3-5 Hydrologic Regions................................................................................................................................. 3-81

3-6 Wastershed Surface Water Quality on Public Lands ............................................................................. 3-83

3-7 General Groundwater Quality on Public Lands ..................................................................................... 3-85

3-8 Vegetation Types and Ecoregions on Public Lands in Alaska .............................................................. 3-87

3-9 Vegetation Types and Ecoregions on Public Lands in the Western U.S............................................... 3-89

3-10 Fire Regime Condition Classes on Public Lands ................................................................................... 3-91

3-11 Native Areas of Western North America................................................................................................ 3-93

3-12 National Landscape Conservation System Areas................................................................................... 3-95
TABLE OF CONTENTS

BLM Vegetation Treatments Using Herbicides x June 2007

Final Programmatic EIS

VOLUME 2

Appendix A. Common and Scientific Names of Plants and Animals Given in This Programmatic 

EIS......................................................................................................................................................... A-1

Appendix B. Human Health Risk Assessment ........................................................................................................B-1

Introduction ............................................................................................................................................B-1

Human Health Risk Assessment Overview..................................................................................B-1

Organization of Document ............................................................................................................B-2

Hazard Identification..............................................................................................................................B-2

Chemical Characteristics and Usage.............................................................................................B-2

Dicamba .........................................................................................................................B-2

Diflufenzopyr.................................................................................................................B-2

Diquat.............................................................................................................................B-2

Fluridone ........................................................................................................................B-2

Imazapic .........................................................................................................................B-2

Sulfometuron Methyl.....................................................................................................B-3

Toxicity Profiles ............................................................................................................................B-3

General Information.......................................................................................................B-3

Dicamba .........................................................................................................................B-3

Diflufenzopyr.................................................................................................................B-6

Diquat.............................................................................................................................B-9

Fluridone ......................................................................................................................B-12

Imazapic .......................................................................................................................B-14

Sulfometuron Methyl...................................................................................................B-16

Dose-response Assessment ..................................................................................................................B-17

Types of Dose-response Values ..................................................................................................B-17

Dietary Assessment......................................................................................................B-17

Non-dietary (Occupational or Residential) Assessment............................................B-18

Available Dose-response Values.................................................................................................B-18

Dicamba .......................................................................................................................B-19

Diflufenzopyr...............................................................................................................B-20

Diquat...........................................................................................................................B-23

Fluridone ......................................................................................................................B-24

Imazapic .......................................................................................................................B-25

Sulfometuron Methyl...................................................................................................B-26

Inert Ingredients...........................................................................................................................B-27

Exposure Assessment...........................................................................................................................B-28

Overview of the BLM Vegetation Treatment Program..............................................................B-28

Land Programs .............................................................................................................B-28

Application Methods....................................................................................................B-30

Herbicide Use Parameters ...........................................................................................................B-33

Occupational Receptors...............................................................................................................B-33

Routine Use Exposure Scenarios.................................................................................B-33

Accidental Exposure Scenarios ...................................................................................B-34

Public Receptors ..........................................................................................................................B-35

Routine Use Exposure Scenarios.................................................................................B-35

Accidental Exposure Scenarios ...................................................................................B-36

Exposure Parameters for Public Receptors .................................................................B-37

Calculation of Exposure Point Concentrations...........................................................................B-51

Occupational Exposures ..............................................................................................B-52
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Final Programmatic EIS

Public Exposures..........................................................................................................B-52

Chemical-specific Parameters.....................................................................................................B-56

Absorption Factors.......................................................................................................B-56

Skin Permeability Constants........................................................................................B-56

Fish Bioconcentration Factors .....................................................................................B-57

Risk Characterization...........................................................................................................................B-57

Approach for Risk Characterization ...........................................................................................B-57

Food (%PAD) Assessment ..........................................................................................B-57

Non-food (MOE) Assessment .....................................................................................B-57

Aggregate Risk Index...................................................................................................B-58

Equations for Quantifying Potential Exposure and Risk............................................................B-58

Estimating Potential Occupational Exposures ............................................................B-59

Inhalation of Herbicide ................................................................................................B-60

Estimating Potential Exposure for Public Receptors ..................................................B-61

Dermal Contact with Herbicide...................................................................................B-61

Results of Risk Characterization.................................................................................................B-67

Occupational Receptors ...............................................................................................B-67

Public Receptors...........................................................................................................B-74

Evaluation of Currently-available Herbicide Active Ingredients..............................................B-80

Evaluation of Dose-response Values Used in Previous EISs ....................................B-81

Evaluation of Receptors and Exposure Pathways Used in the Earlier Human

Health Risk Assessments .............................................................................................B-82

Summary of Currently-available Herbicide Active Ingredient Evaluation...............B-82

Uncertainty Analysis ...................................................................................................................B-82

Hazard Identification....................................................................................................B-82

Dose-response Assessment..........................................................................................B-83

Exposure Assessment...................................................................................................B-83

Risk Characterization...................................................................................................B-84

References ............................................................................................................................................B-87

Appendix C. Ecological Risk Assessment ................................................................................................................C-1

Structure and Methodology of the Ecological Risk Assessment..........................................................C-1

Problem Formulation.....................................................................................................................C-1

Exposure Characterization ............................................................................................................C-2

Effects Characterization ................................................................................................................C-3

Literature Review...........................................................................................................C-4

Toxicity Reference Value Development .......................................................................C-4

Risk Characterization ....................................................................................................................C-5

Rare, Threatened, and Endangered Species ..................................................................C-6

Uncertainty Analysis .....................................................................................................................C-7

Application Methods and Herbicide Usage...........................................................................................C-8

Aerial Application .........................................................................................................................C-8

Ground Application.......................................................................................................................C-8

Aquatic Application.......................................................................................................................C-8

Non-target Species Exposure Characterization...................................................................................C-10

Ecological Receptors...................................................................................................................C-10

Surrogate Species.........................................................................................................C-10

Exposure Pathways......................................................................................................................C-12

Direct Spray..................................................................................................................C-15

Off-site Drift.................................................................................................................C-16

Surface Runoff .............................................................................................................C-17
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BLM Vegetation Treatments Using Herbicides xii June 2007

Final Programmatic EIS

Wind Erosion and Off-site Transport of Terrestrial Herbicide..................................C-20 

Accidental Spill............................................................................................................C-22

Non-target Species Effects Characterization.......................................................................................C-22

Terrestrial Species Effects Characterization...............................................................................C-23

Bromacil.......................................................................................................................C-23

Chlorsulfuron ...............................................................................................................C-23

Diflufenzopyr...............................................................................................................C-24

Diquat...........................................................................................................................C-24

Diuron...........................................................................................................................C-25

Fluridone ......................................................................................................................C-25

Imazapic .......................................................................................................................C-26

Overdrive®....................................................................................................................C-27

Sulfometuron Methyl...................................................................................................C-28

Tebuthiuron..................................................................................................................C-29

Aquatic Species Effects Characterization...................................................................................C-29

Bromacil.......................................................................................................................C-29

Chlorsulfuron ...............................................................................................................C-30

Diflufenzopyr...............................................................................................................C-30

Diquat...........................................................................................................................C-31

Diuron...........................................................................................................................C-31

Fluridone ......................................................................................................................C-32

Imazapic .......................................................................................................................C-32

Overdrive®....................................................................................................................C-33

Sulfometuron Methyl...................................................................................................C-34

Tebuthiuron..................................................................................................................C-34

Rare, Threatened, and Endangered Species Characterization....................................................C-35

Non-target Species Risk Characterization...........................................................................................C-36

Bromacil.......................................................................................................................................C-36

Direct Spray .................................................................................................................C-36

Off-site Drift.................................................................................................................C-57

Surface Runoff .............................................................................................................C-58

Wind Erosion and Transport Off-site..........................................................................C-58

Accidental Spill to Pond ..............................................................................................C-58

Potential Risk to Salmonids from Indirect Effects......................................................C-59

Chlorsulfuron...............................................................................................................................C-59

Direct Spray .................................................................................................................C-59

Off-Site Drift................................................................................................................C-59

Surface Runoff .............................................................................................................C-60

Wind Erosion and Transport Off-site..........................................................................C-60

Accidental Spill to Pond ..............................................................................................C-60

Potential Risk to Salmonids from Indirect Effects......................................................C-61

Diflufenzopyr...............................................................................................................................C-61

Direct Spray .................................................................................................................C-61

Off-site Drift.................................................................................................................C-61

Surface Runoff .............................................................................................................C-62

Wind Erosion and Transport Off-site..........................................................................C-62

Accidental Spill to Pond ..............................................................................................C-62

Potential Risk to Salmonids from Indirect Effects......................................................C-62

Diquat...........................................................................................................................................C-63

Direct Spray .................................................................................................................C-63

Off-site Drift to Terrestrial Plants................................................................................C-63
TABLE OF CONTENTS

BLM Vegetation Treatments Using Herbicides xiii June 2007

Final Programmatic EIS

Accidental Spill to Pond ..............................................................................................C-64

Potential Risk to Salmonids from Indirect Effects.....................................................C-64 

Diuron ..........................................................................................................................................C-64

Direct Spray..................................................................................................................C-64

Off-site Drift.................................................................................................................C-65

Surface Runoff .............................................................................................................C-65

Wind Erosion and Transport Off-site ..........................................................................C-66

Accidental Spill to Pond ..............................................................................................C-66

Potential Risk to Salmonids from Indirect Effects......................................................C-66

Fluridone......................................................................................................................................C-67

Direct Spray..................................................................................................................C-67

Off-site Drift to Non-target Terrestrial Plants.............................................................C-68

Accidental Spill to Pond ..............................................................................................C-68

Potential Risk to Salmonids from Indirect Effects......................................................C-68

Imazapic.......................................................................................................................................C-69

Direct Spray..................................................................................................................C-69

Off-site Drift.................................................................................................................C-69

Surface Runoff .............................................................................................................C-69

Wind Erosion and Transport Off-site ..........................................................................C-70

Accidental Spill to Pond ..............................................................................................C-70

Potential Risk to Salmonids from Indirect Effects......................................................C-70

Overdrive® ...................................................................................................................................C-71

Direct Spray..................................................................................................................C-71

Off-site Drift.................................................................................................................C-71

Surface Runoff .............................................................................................................C-72

Wind Erosion and Transport Off-site ..........................................................................C-72

Accidental Spill to Pond ..............................................................................................C-72

Potential Risk to Salmonids from Indirect Effects......................................................C-73

Sulfometuron Methyl ..................................................................................................................C-73

Direct Spray..................................................................................................................C-73

Off-site Drift.................................................................................................................C-73

Surface Runoff .............................................................................................................C-74

Wind Erosion and Transport Off-site ..........................................................................C-74

Accidental Spill to Pond ..............................................................................................C-74

Potential Risk to Salmonids from Indirect Effects......................................................C-75

Tebuthiuron .................................................................................................................................C-75

Direct Spray..................................................................................................................C-75

Off-site Drift.................................................................................................................C-76

Surface Runoff .............................................................................................................C-76

Wind Erosion and Transport Off-site ..........................................................................C-77

Accidental Spill to Pond ..............................................................................................C-77

Potential Risk to Salmonids from Indirect Effects......................................................C-77

Uncertainty Analysis............................................................................................................................C-78

Toxicity Data Availability...........................................................................................................C-78

Degradates, Inert Ingredients, Adjuvants, and Tank Mixtures...................................................C-78

Degradates....................................................................................................................C-83

Inerts .............................................................................................................................C-83

Adjuvants and Tank Mixtures......................................................................................C-84

Concentration Models .................................................................................................................C-86

AgDRIFT® ...................................................................................................................C-86

GLEAMS .....................................................................................................................C-86
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BLM Vegetation Treatments Using Herbicides xiv June 2007

Final Programmatic EIS

CALPUFF ....................................................................................................................C-87

Potential Indirect Effects on Salmonids......................................................................................C-88

Herbicide Application Recommendations...........................................................................................C-88

References ............................................................................................................................................C-91

Appendix D. Evaluation of Risks from Degradates, Polyoxyethyleneamine (POEA) and R-11, and

Endocrine Disrupting Chemicals ................................................................................................... D-1

Introduction ........................................................................................................................................... D-1

Potential Ecological Impacts of the Surfactant Polyoxyethyleneamine (POEA) and R-11................ D-1

Degradates............................................................................................................................................. D-2

Aquatic Toxicity Review.............................................................................................................. D-5

Human Health Toxicity Review................................................................................................... D-7

Conclusions................................................................................................................................... D-8

Potential Endocrine Disrupting Chemicals........................................................................................... D-8

References ........................................................................................................................................... D-33

Appendix E. Protocol for Identifying, Evaluating, and Using New Herbicides..................................................E-1

Identification and Approval of New Chemical Products and Technologies ........................................E-1

Networking ....................................................................................................................................E-1

Research and Demonstration.........................................................................................................E-1

Technical Research and Publications............................................................................................E-2

Vendor Marketing..........................................................................................................................E-2

Determining the Need for New Herbicides...........................................................................................E-2

Assessment of Hazards and Risks .........................................................................................................E-3

NEPA Documentation ...........................................................................................................................E-5

Review Existing NEPA Documents .............................................................................................E-5

Prepare a New NEPA Document..................................................................................................E-6

Special Status Species ...................................................................................................................E-6

References ..............................................................................................................................................E-8

Appendix F. Reference Manuals and Handbooks ..................................................................................................F-1

Appendix G. Tribal and Agency Consultation ....................................................................................................... G-1

Appendix H. Alaska National Interest Lands Conservation Act (ANILCA) § 810 Analysis of Subsistence Impacts........ H-1

Introduction ........................................................................................................................................... H-1

Subsistence Evaluation Factors............................................................................................................. H-1

Evaluation of Alternatives and Findings .............................................................................................. H-2

ANILCA § 810(a) Evaluations and Findings for All Alternatives and the Cumulative Case.... H-2

Environmental Justice................................................................................................................. H-13

References ........................................................................................................................................... H-14

Appendix I. Restore Native Ecosystems Alternative and BLM Policy Analysis.................................................I-1

Restore Native Ecosystems Alternative .................................................................................................I-1

Bureau of Land Management National Policy Analysis of Restore Native Ecosystems Proposal ....I-23

Appendix J. Special Status Species List................................................................................................................... J-1
TABLE OF CONTENTS

BLM Vegetation Treatments Using Herbicides xv June 2007

Final Programmatic EIS

List of Tables

B-1 Acute Toxicity Categories and Definitions ............................................................................................ B-5

B-2 Toxicity Categories for Short-term Tests ...............................................................................................B-5

B-3 Summary of Toxicological Endpoint Data.............................................................................................B-21

B-4 Summary of Herbicide Use - Dicamba...................................................................................................B-39

B-5 Summary of Herbicide Use - Diflufenzopyr ..........................................................................................B-41

B-6 Summary of Herbicide Use - Diquat ......................................................................................................B-43

B-7 Summary of Herbicide Use - Fluridone..................................................................................................B-45

B-8 Summary of Herbicide Use - Imazapic...................................................................................................B-47

B-9 Summary of Herbicide Use - Sulfometuron Methyl ..............................................................................B-49

B-10 Summary of Herbicide Risk Categories by Aggregate Risk Index .......................................................B-71

B-11 Occupational Scenarios with Aggregate Risk Indices Below One........................................................B-73

B-12 Routine Exposure Public Scenarios/Receptors with Aggregate Risk Indices Below One ...................B-77

B-13 Accidental Exposure Public Scenarios with Aggregate Risk Indices Below One ...............................B-78

C-1 Levels of Concern .................................................................................................................................... C-6

C-2 Herbicide Application Methods and Usage Statistics.........................................................................C-9

C-3 Surrogate Species Used in Quantitative ERA Evaluations ....................................................................C-11

C-4 Vertebrate Surrogate Species Evaluated by Life History.......................................................................C-12

C-5 Selected Toxicity Reference Values for Bromacil .........................................................................................C-37

C-6 Selected Toxicity Reference Values for Chlorsulfuron..................................................................................C-39

C-7 Selected Toxicity Reference Values for Diflufenzopyr .................................................................................C-41

C-8 Selected Toxicity Reference Values for Diquat .............................................................................................C-43

C-9 Selected Toxicity Reference Values for Diuron.............................................................................................C-45

C-10 Selected Toxicity Reference Values for Fluridone.........................................................................................C-47

C-11 Selected Toxicity Reference Values for Imazapic..........................................................................................C-49

C-12 Selected Toxicity Reference Values for Overdrive®......................................................................................C-51

C-13 Selected Toxicity Reference Values for Sulfometuron Methyl .....................................................................C-53

C-14 Selected Toxicity Reference Values for Tebuthiuron ....................................................................................C-55

C-15 Risk Levels Used to Describe Typical Herbicide Effects According to Exposure Scenario and 

Ecological Receptor Group .............................................................................................................................C-79

C-16 Buffer Distances (feet) to Minimize Risk from Off-site Drift of Herbicides ................................................C-89

D-1 Selected Toxicity Values for Polyoxyetheyleneamine.............................................................................D-3

D-2 Review of AgDrift Results........................................................................................................................D-3

D-3 Polyoxyethyleneamine (POEA) Risk Quotients (RQs) for Aquatic Exposure .......................................D-4

D-4 Degradates Identified for Active Ingredients ........................................................................................ D-10

D-5 Listings of Endocrine Disrupting Potential of BLM Herbicides .......................................................... D-30

I-1 Bureau of Land Management Policy Analysis of Restore Native Ecosystems Proposal....................... I-24

List of Figures

C-1 Conceptual Model for Terrestrial Herbicides.........................................................................................C-13

C-2 Conceptual Model for Aquatic Herbicides.............................................................................................C-14

D-1a Aquatic Toxicity – 2,4-D Toxicity Reference Values and Degradate Toxicity Data...............................D-21

D-1b Aquatic Toxicity – 2,4-D Toxicity Reference Values and Degradate Toxicity Data...............................D-22

D-2 Aquatic Toxicity – Diquat Toxicity Reference Values and Degradate Toxicity Data..................................D-23

D-3a Aquatic Toxicity – Diuron Toxicity Reference Values and Degradate Toxicity Data..................................D-24

D-3b Aquatic Toxicity – Diuron Toxicity Reference Values and Degradate Toxicity Data..................................D-25

D-4 Aquatic Toxicity – Fluridone Toxicity Reference Values and Degradate Toxicity Data .............................D-26

D-5 Aquatic Toxicity – Imazapyr Toxicity Reference Values and Degradate Toxicity Data..............................D-27

D-6 Aquatic Toxicity – Metsulfuron Methyl Toxicity Reference Values and Degradate Toxicity Data ............D-28

D-7 Aquatic Toxicity – Triclopyr Toxicity Reference Values and Degradate Toxicity Data..............................D-29

E-1 New Herbicide Evaluation and Approval Process .......................................................................E-3
TABLE OF CONTENTS

BLM Vegetation Treatments Using Herbicides xvi June 2007

Final Programmatic EIS

VOLUME 3

Response to Comments ..............................................................................................................................................III-1