Integrated Pest Management

June 2000 - TI#21700
Introduction
IPM Policy & Guidance
Components of an IPM Program
Control Techniques
Management Practices
Self-Help Program
Record Keeping
Summary
For More Information
References

Introduction
Integrated Pest Management (IPM) is a common-sense approach to pest management practices for long-term control of pest problems. Where traditional pest control methods rely on extensive and often unnecessary use of pesticides, IPM utilizes routine monitoring to determine if pest control measures are necessary. The concept of IPM is an ecosystem-based, sustainable approach that combines physical, cultural, biological, and chemical control techniques to manage pest populations.

The overall goal of IPM is to manage urban pests and natural resources in an effective, economical, and environmentally safe manner. The purpose of this fact sheet is to provide the reader with a general overview of IPM; an introduction into the regulatory and policy drivers mandating an IPM program; the components of an IPM program; IPM control techniques; and management practices.

IPM Policy & Guidance

Federal

The two principal federal statutes that govern pesticides are the Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA) and the Federal Food, Drug, and Cosmetic Act (FFDCA). The FFDCA requires the U.S. Environmental Protection Agency (EPA) to establish the maximum permissible level of pesticide residues on food, whereas FIFRA has a much broader charter as described below.

Federal Insecticide, Fungicide, and Rodenticide Act

FIFRA was initially promulgated in 1947 to control pesticide distribution in the United States. The transfer of FIFRA to the administration of the EPA and subsequent amendments, namely the Federal Environmental Pesticide Control Act (FEPCA) of 1972, shifted the focus of FIFRA to reduce the risks associated with the toxicity and environmental impacts of pesticides.

FIFRA requires all pesticides used and manufactured in the U.S. to be registered with the EPA and labeled according to specifications set forth in Title 40 Code of Federal Regulations (CFR) Part 156, "Labeling Requirements for Pesticides and Devices." The act also mandates the EPA to classify pesticides as either general use or restricted use. If a pesticide is classified as restricted use, then the applicator must be certified in accordance with Title 40 CFR Part 171, "Certification of Pesticide Applicators."

Note: DoD requires that all of its pesticide applicators be certified.

The act further requires that pesticides be disposed of in an environmentally safe manner. EPA mandates that all solid wastes, including pesticides and pesticide rinsate, be managed in accordance with the Resource Conservation and Recovery Act (RCRA), Title 40 CFR Parts 260 through 272. However, unused pesticide products that are collected and managed as part of a waste pesticide collection or recall program mandated by FIFRA, or a voluntary recall program, may be managed under the less stringent Universal Waste Rule. More information on universal waste regulations and hazardous waste determinations can be found in PRO-ACT's: "Universal Waste Rule" and "Hazardous Waste Identification & Sampling" Fact Sheets.

Note: Chemicals (pesticides, herbicides, or insecticides) sprayed on the ground in the course of their application which is consistent with the chemicals intended use, do not constitute a hazardous waste.

Worker Protection Standard

The Worker Protection Standard (WPS) of 1992, codified at Title 40 CFR Part 170, establishes a national effort to reduce the occupational health risks among pesticide workers and handlers. The WPS implements workplace practices designed to reduce or eliminate exposure to pesticides and establishes procedures for responding to exposure-related emergencies. The WPS requires notification of pesticide applications; restricted entry into pesticide treated areas; personal protective equipment; safety training; decontamination supplies; and emergency assistance measures.

Food Quality Protection Act

FIFRA and FFDCA were last amended by the Food Quality Protection Act (FQPA) of 1996. The FQPA revises and strengthens pesticide food safety legislation by establishing a single, health-based standard of a "reasonable certainty of no harm" for all pesticides in all foods. Section 303, "Integrated Pest Management" of the act mandates that federal agencies use IPM techniques in pest management activities and promote IPM through procurement and regulatory policies.

Executive Orders

Executive Order (EO) 12856, "Federal Compliance with Right-to-Know Laws and Pollution Prevention Requirements," August 1993, requires all federal agencies to minimize the use of toxic chemicals which may impact the environment and public health, to store and dispose of these chemicals properly, and to report any releases to the environment.

Note: Other federal statutes provide guidance on the control, reporting, and management of pesticides, and the release of pesticides via air, land, or water in the environment. The following is not an all-inclusive list of such statutes:

  • Clean Air Act (CAA)
  • Clean Water Act (CWA)
  • Comprehensive Environmental Response and Liability Compensation Act (CERCLA)
  • Endangered Species Act (ESA)
  • Emergency Planning and Community Right-to-Know Act (EPCRA)
  • Safe Drinking Water Act (SDWA)
  • Toxic Substance Control Act (TSCA)

Department of Defense (DoD)

In 1993, the DoD developed a Measure of Merit program to ensure installations implement environmentally sound pest management programs. The measure set three goals for all DoD installations (each compared to a fiscal year (FY) 1993 baseline):

  • Have pest management plans at 100% of installations by the end of FY 1997;
  • Have 100% of installation pesticide applicators certified by the end of FY 1998; and
  • Reduce the amount of pesticides applied at installations by 50% by FY 2000.
In March 1996, the DoD entered into a Memorandum of Understanding with the EPA to reduce exposure and environmental impacts caused by pesticide usage within DoD. The DoD agreed to promote the use of IPM as a strategy for eliminating unnecessary pesticide use and to achieve a 50% reduction in pesticide usage at DoD installations by the end of FY 2000. The Memorandum of Understanding with the EPA fully committed DoD to implementing IPM techniques to achieve this goal.

The DoD also has the following policies governing pest management:

  • DoD Directive 4715.1, "Environmental Security," February 1996, establishes the Armed Forces Pest Management Board (AFPMB) which provides information, guidance, and publications (Technical Information Bulletins and Memoranda) related to pest and pesticide management.
  • DoD Instruction 4150.7, "DoD Pest Management Program," April 1996, sets policy, responsibilities, and procedures for implementing an environmentally sound IPM program to control pests and ensures installations develop, maintain, and review their pest management plans.
  • DoD Plan 4150.7-P, "DoD Plan for the Certification of Pesticide Applicators," September 1996, stipulates that personnel who apply pesticides must be certified in accordance with Title 40 CFR Part 171.
  • DoD Manual 4150.7-M, "DoD Pest Management Training and Certification," April 1997, outlines procedures for pest management training and certification of pesticide applicators.

Air Force

Air Force Instruction (AFI) 32-1053, "Pest Management Program," April 1999, provides guidance for pest management programs at all Air Force installations. The AFI emphasizes the use of IMP to control pests and to reduce the environmental impacts of pesticide usage. It contains provisions on the development of a pest management plan, contingency pest management for situations worldwide, and reporting/tracking requirements of pests and pesticide usage.

The Air Force also has guidance on "Aerial Applications of Pesticides," contained in AFI 32-1074, May 1998, and general pesticide storage, accumulation, and disposal information in AFI 32-7042, "Solid and Hazardous Waste Compliance," May 1994.

Components of an IPM Program
For an effective IPM program, pest managers must be familiar with their ecosystem and the interaction between the living organisms that make up the system. Managers need to be aware of the types of pests in the area, what common-sense practices can be taken to avoid pest problems, how and when to look for pests, and the type of control techniques available. The following framework discusses the fundamental components needed to develop a successful IPM program:
  • Identification
The initial step is to correctly identify the problem pest. Once the pest is correctly identified, information on the pest's biology and life cycle can be obtained in order to determine when (during the pest's life cycle) pest management measures will be most effective.
  • Monitoring
Through monitoring programs, pest managers can make decisions on the timing of treatments and whether or not they are necessary. Many monitoring programs rely on routine visual inspections for pests or signs of infestations.
  • Action Thresholds
The action threshold is the level at which an unacceptable amount of damage from a particular pest is determined and when controls measures will be taken. The action threshold can be determined by several factors including economics, aesthetic value, and human tolerance.
  • Control Techniques
There are four major control techniques available to pest managers: physical; cultural; biological; and chemical. One or a combination of these control techniques may be used to successfully control pests in a single building or an entire complex.
Control Techniques
Physical Control, also known as mechanical control, is the use of barriers or screens to remove or block pest entry, and traps to eliminate pests. These practices also incorporate gardening methods such as mulches, pruning, mowing, and hoeing or hand pulling to control weeds.

Cultural Control is the practice of habitat modification, sanitation, and implementation of common-sense measures to eliminate the elements pests need to survive. These practices seek to reduce pest problems by removing available food and water, and removing/destroying pest hiding or breeding sites. Selecting resistant varieties of plants and keeping plants healthy can also aid in reducing the possibility of pest infestations and plant diseases.

Biological Control is the use of native or introduced beneficial organisms that are a natural enemy of the pest. These beneficial organisms can be insects (lady beetles, mites, and lacewings), microorganisms (soil fungi, bacteria, and viruses), and nematodes.

Chemical Control is the use of synthetic or naturally derived chemicals. Chemicals should only be used when it is necessary, and after the assessment indicates chemical use is required. Also, pest managers should select the chemical with the lowest toxicity to humans, non-target organisms, and the environment.

  • Pest Control Action
Once the determined action threshold for a pest has been reached, the decided pest control technique should be implemented. Educating building/area occupants on actions that can prevent pest problems from developing and the importance of increased tolerance to certain beneficial pests can often prevent future pest control actions.
  • Documentation & Evaluation
To complete the IPM process, the pest control measures implemented must be documented including non-chemical control and chemical usage. To further implement a successful IPM program, the control techniques utilized need to be evaluated to determine if the measures used achieved the desired result, or if the control measures need to be redesigned for maximum effectiveness. The documentation and evaluation of pest control measures will aid in future pest control decisions such as when to take measures and whether or not chemical usage is necessary.
Management Practices
Many settings at DoD installations have problems with insects, weeds, and rodents; however, solutions to pest problems are dependent on the specific situation, geographical area, the type of pest, cost of implementation, and impacts to the environment and man. Therefore, none of the management practices discussed below will work equally well in all situations; however, they serve as examples of the types of non-chemically-dependent solutions that can be implemented as part of a successful IPM program.

Fungus/Bacteria/Viruses
Fungus, bacteria, and viruses are plant pathogens that cause disease and can be spread to healthy plants by insects or contaminated tools and equipment. The physical washing and cleaning of equipment and tools after conducting lawn maintenance activities in areas identified as infected with any of these plant pathogens can prevent their spread to healthy plants.

The pathogen most commonly dealt with on DoD installations is fungus. Fungal encroachment can be slowed by improving soil fertility, aeration, irrigating for longer periods of time, and watering only in the early morning hours. If these control measures are ineffective, various fungicides are available. Although fungi can develop a resistance to these chemicals, the type of fungicide used can be alternated to slow or prevent resistance.

Weeds
A weed is described as any undesirable plant growing in unwanted areas such as fence lines, walkways, bare ground areas, and in aquatic environments. Common weeds found at many DoD installations are dandelions, sunflowers, pokeweed, poison ivy or oak, ragweed, crabgrass, and exotic or invasive plant species. Invasive species are defined as any non-native species whose introduction may cause economic or environmental harm. EO 13112, "Invasive Species," requires federal facilities to prevent the introduction of invasive species on federal lands, to control invasive populations, and to restore native vegetation in areas where infestation has occurred.

Undesirable plants will grow in landscaped areas and invade where grass is stressed or the type of grass used is not well adapted to its environment. Therefore, any management practice that increases the health of desirable grasses, such as proper fertilization and water management, will discourage weed growth. The use of native plant species in installation landscaping and mulches, as well as frequent mowing, will decrease the presence of weeds. More information on landscaping, can be found in the PRO-ACT Fact Sheet, "Environmentally Beneficial Landscaping," December 1998.

Some species of caterpillars and beetles can be used to control noxious weeds, while carp can be used to control aquatic weeds. Weeds can also be physically controlled in small areas by hand pulling or hoeing. In large areas, prescribed burning or flaming may be viable options. Should these control measures be unsuccessful, selective herbicides can be used. The proper herbicide should be selected (post-emergence or pre-emergence) and only be applied to the designated treatment area in accordance with label instructions. The Patchen WeedSeekerr, in use at several Air Force installations, uses a selective system that is able to detect chlorophyll in plants and sprays only when it is detected. This prevents overspray onto bare dirt and pavement areas, thus reducing the overall amount of herbicide used.

Insects
Insects belong to a group of organisms called arthropods, which have segmented bodies, jointed legs, and an exoskeleton. In a popular sense, insect usually refers to familiar pests such as flies, mosquitoes, ants, wasps/hornets, roaches, and aphids. Despite being classified as pests, many insects are beneficial and thrive in both above and below ground environments.

Note: Other arthropods such as spiders, ticks, and mites are not insects; however, many of the same IPM control measures apply. Therefore, they are grouped together in this section for discussion purposes.

The use of common sense and sanitation measures can eliminate virtually all indoor and many outdoor insect pest problems and discourage new infestations. The following simple practices can be used by any organization and at any facility on an installation: Indoor Insects:

  • Have any leaking faucets and plumbing fixed;
  • Remove any food or crumbs;
  • Immediately clean up spills;
  • Place food in sealed containers;
  • Frequently vacuum, sweep, dust, or mop;
  • Wash/wipe counters, table tops, and appliances; and
  • Regularly empty trash containers and ensure containers themselves are clean.
Outdoor Insects:
  • Eliminate sources of water and replace water in birdbaths or pet pans frequently;
  • Remove any debris surrounding buildings such as rock piles, boards, and trash;
  • Trim/prune shrubs and trees away from the exterior of buildings;
  • Keep lawns mowed and remove fallen limbs, twigs, or leaves;
  • Refuse containers should be of solid construction with tight fitting lids;
  • Screens should be replaced if torn;
  • Patios and refuse containers should be regularly washed or rinsed; and
  • Refuse containers should be positioned to reduce interactions between insects and man.
Aside from eliminating sources of food, water, and shelter, insects can be prevented from entering buildings by installing barriers such as screens, doorsweeps, or caulking to seal any cracks or access points. Also, many insects can be non-chemically controlled using sticky tapes, pheromone traps, manual termination, or biological controls (see Table 1.0). These natural enemies can be purchased from a supplier and introduced into the environment or they can be attracted to an area by growing specific plants; however, caution should be taken when choosing and implementing biological controls. For more information on selecting appropriate biological control organisms, readers are encouraged to contact their State Agricultural Agency.

Table 1.0 Biological Control of Common Insects
Pests Natural Enemy
Aphids Lady Beetles (Bugs), Lacewings
Mosquitoes Fish, Birds, Bats, Frogs, Lizards, Spiders
Mites Spiders, Lacewings, Lady Beetles
Mole Crickets Spiders, Ants, Beetles, Nematodes
Fire Ants Nematodes
Japanese Beetles Parasitic Wasps, Flies, Nematodes

Despite the implementation of non-chemical methods, pest elimination may require the use of insecticides. If insecticides are determined necessary, then the least toxic insecticide should be chosen for the identified pest, and it must be applied/used in accordance with label instructions. There are various forms and types of insecticides, therefore it is important to ensure the correct form is used for the target pest:

Baits are insecticides that have been mixed with an attractant. The targeted insect eats the bait or carries it back to the colony. Baits are fairly slow acting but easy to apply; however, caution should be taken since baits can also attract non-target organisms.

Insect Growth Regulators inhibit the normal development of an insect. They are specific for the targeted insect pest and are slow acting since they do not kill the insect, but prohibit it from maturing into viable offspring producers.

Liquid & Aerosol are most effective when used to treat a colony or nest. These types of insecticides are least effective when simply applied where insect activity is observed since the insecticide is not directed at the source of the problem.

Drenches are utilized mainly on ground nesting insects such as ants. This type of insecticide is applied directly to the nest or colony so that the entire site is drenched.

Dusts may be applied lightly where insects are observed or directly to the nest/colony. Dusts should be evenly distributed and must be dry in order to be effective.

Granules are used mainly in heavily infested lawns or fields. Granules are applied directly to the nest or colony, which are then watered to penetrate the mound.

Naturally Derived Insecticides such as horticultural oils should come into direct contact with the pest in order to work effectively.

Vertebrates
Many animals aside from insects are an endless source of frustration to pest managers. Animals such as bats, birds, rats, and mice can enter buildings and may carry diseases and other pests such as ticks, lice, mites, and fleas. Furthermore, animals such as moles, gophers, possums, skunks, snakes, and raccoons can be a nuisance, causing problems in landscaped areas, golf courses, housing, and outdoor eating areas.

Vertebrate pests can be effectively controlled through habitat modification by ensuring the interiors of buildings are free of clutter and organized, that leaking faucets or plumbing are fixed, and areas where occupants take food or drink are cleaned on a regular basis. Also, the area surrounding buildings and flightlines should be kept free of insects, weeds, and debris to prevent animals such as bats, birds, rats, and mice from foraging in the area. These types of pests can further be excluded from buildings or sensitive areas by installing or implementing:

Barriers

  • Install netting, curtains, or screens on doors that must remain open;
  • Seal or screen cracks/holes in foundations, roofs, walls, windows, or vents;
  • Block openings around water and sewer pipes;
  • Install a metal barrier around anything leading to or touching the building;
  • Securely fasten outdoor trash containers and lids to prevent foraging; or
  • Install one-way exclusion devices for bats, these should be installed in warm weather during the spring or fall. Once the bats have been excluded, the access point can be sealed.
Non-Chemical Control
  • Flashing lights, sirens, rubber/plastic snakes or owls; and
  • Provide artificial housing such as bat boxes and birdhouses.
Traps
  • Various types of traps are readily available for terminating rats, mice, gophers, and moles. Even larger nocturnal pests can be trapped and relocated to remove problem animals that continue to forage in sensitive areas. Traps are a very effective pest control method; however, the most common mistake associated with their use is not setting enough of them. Also, traps should be placed wherever there is evidence of the pest.
The use of natural predators to control vertebrate pest populations has had limited degrees of success. To successfully control outdoor pests with natural predators, the entire ecosystem in which the pest is thriving should be understood in order to establish the cause for the pest population explosion and predator interactions. Using natural predators is a slow control process and cannot always be utilized. When determined necessary, pesticides can be used to control or eliminate severe pest infestations; however, these chemicals should only be used on the targeted pest and in accordance with label instructions.

Note: The Air Force Bird/Wildlife Aircraft Strike Hazard (BASH) Team provides guidance on avoidance, exclusion, and harassment to reduce bird strike potential around flightlines and during flight operations. An example of one method implemented is the use of falcons to harass birds along the flightline. For more information visit http://www-afsc.saia.af.mil/AFSC/Bash/home.html.

Self-Help Program
The Self-Help Program, established by DoD Instruction 4150.7 and AFI 32-1053, provides assistance to occupants of single-military housing units, multiple units, and duplex units for controlling pests that do not pose a significant health hazard and respond well to non-chemical IPM measures. The program may also be used in government-leased, permanent party military housing, and other facilities if approved by the installation housing office and the Base Civil Engineer.

The program mandates that users be educated on IPM measures such as habitat modification and exclusion of pests, and provides instructions/training for the safe and proper use of self-help chemicals. The program also designates a list of approved chemicals available to self-help users: no other pest control chemicals may be issued without Major Command (MAJCOM) and Headquarters Air Force Civil Engineer Support Agency (HQ AFCESA) approval.

Note: HQ AFCESA approval is only required in regards to the Self-Help Program. HQ AFCESA approval is not required for any other alternative chemical requests, which must be coordinated and approved through the installation's MAJCOM.

Finally the Self-Help Program stipulates plants infested with insects, not planted by Civil Engineering or other base organizations, cannot be controlled using chemicals available from the Self-Help Program. In these instances the self-help manager, in coordination with the installation pest management supervisor, can recommend certain IPM measures to control the pests, otherwise the consumer must purchase the appropriate chemical.

Record Keeping
In 1995, the Defense Environmental Security Corporate Information Management (DESCIM) developed the Integrated Pest Management Information System (IPMIS). IPMIS provides a standard for tracking chemical inventories, certification of pesticide applicators, and where chemicals are used. The system establishes a maintainable database used to automate recording and reporting. The IPMIS software and manual are downloadable from the AFPMB World Wide Web site at http://www.afpmb.org/ipmis.htm.
Summary
Integrated Pest Management is not a set standard for achieving pest control, rather it is a series of guidelines used in developing a practical and site-specific pest management program. IPM uses a combination of all available resources: physical, cultural, biological, and chemical to control pests in a manner that poses little or no impact to the environment and human health. It emphasizes non-chemical control techniques to eliminate and prevent pest infestation. IPM does not prohibit the use of chemicals; however, it does require lower usage rates and the use of the least toxic chemicals available for those situations where chemical usage is necessary.
For More Information...
References
  1. EO 13112, "Invasive Species," February 1999.
  2. DoD Directive 4715.1, "Environmental Security," February 1996.
  3. DoD Instruction 4150.7, "DoD Pest Management Program," April 1996.
  4. DoD Plan 4150.7-P, "DoD Plan for the Certification of Pesticide Applicators," September 1996.
  5. DoD Manual 4150.7-M, "DoD Pest Management Training and Certification," April 1997.
  6. DoD/EPA Memorandum of Understanding, "Integrated Pest Management," March 1996.
  7. Title 40 CFR Part 171, "Certification of Pesticide Applicators."
  8. Title 40 CFR Part 170, "Worker Protection Standard."
  9. AFI 32-1053, "Pest Management Program," April 1999.
  10. PRO-ACT Fact Sheet, "Universal Waste Rule," May 2000.
  11. PRO-ACT Fact Sheet, "Hazardous Waste Identification and Sampling," November 1997.
  12. "Model Pesticide Reduction Plan," Headquarters Air Force Center for Environmental Excellence, November 1996.
  13. "Air Force Self-Help Pest Management Program for Military Housing (MH) Occupants and Building Managers," HQ AFCESA, September 1998.