[Federal Register Volume 63, Number 230 (Tuesday, December 1, 1998)]
[Notices]
[Pages 66199-66201]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-31962]


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DEPARTMENT OF JUSTICE

Drug Enforcement Administration
[DEA-172N]


Special Surveillance List of Chemicals, Products, Materials and 
Equipment Used in the Clandestine Production of Controlled Substances 
or Listed Chemicals

AGENCY: Drug Enforcement Administration (DEA), Justice.

ACTION: Publication of Proposed Special Surveillance List.

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SUMMARY: On October 3, 1996, the Comprehensive Methamphetamine Control 
Act of 1996 (MCA) was signed into law. The MCA provides for a civil 
penalty of not more than $250,000 for the distribution of a laboratory 
supply to a person who uses, or attempts to use, that laboratory supply 
to manufacture a controlled substance or a listed chemical, if that 
distribution was made with reckless disregard for the illegal uses to 
which such laboratory supply will be put. The term ``laboratory 
supply'' is defined as ``a listed chemical or any chemical, substance, 
or item on a special surveillance list published by the Attorney 
General which contains chemicals, products, materials, or equipment 
used in the manufacture of controlled substances and listed 
chemicals.'' DEA is hereby providing notice of its intent to publish 
this Special Surveillance List. Upon review of written comments or 
objections, DEA will publish the Special Surveillance List in a final 
notice.

DATES: Written comments or objections must be received no later than 
December 31, 1998.

ADDRESSES: Comments and objections should be submitted in quintuplicate 
to the Acting Deputy Administrator, Drug Enforcement Administration, 
Washington, DC, Attention: DEA Federal Register Representative/CCR.

FOR FURTHER INFORMATION CONTACT:

[[Page 66200]]

Frank Sapienza, Chief, Drug and Chemical Evaluation Section, Office of 
Diversion Control, Drug Enforcement Administration, Washington, DC 
20537, Telephone (202) 307-7183.

SUPPLEMENTARY INFORMATION: On October 3, 1996, the Comprehensive 
Methamphetamine Control Act of 1996 (MCA) was signed into law. The MCA 
broadens controls on listed chemicals used in the production of 
methamphetamine and other controlled substances, increases penalties 
for the trafficking and manufacturing of methamphetamine and listed 
chemicals, and expands regulatory controls to include the distribution 
of lawfully marketed drug products which contain the listed chemicals 
ephedrine, pseudoephedrine and phenylpropanolamine. The MCA (Section 
205) also provides for the publication of a Special Surveillance List 
by the Attorney General. The proposed Surveillance List identifies 
laboratory supplies which are used in the manufacture of controlled 
substances or listed chemicals. The MCA defines ``laboratory supply'' 
as ``a listed chemical or any chemical, substance, or item on a special 
surveillance list published by the Attorney General which contains 
chemicals, products, materials, or equipment used in the manufacture of 
controlled substances and listed chemicals.'' (21 U.S.C. 842 (a))
    The MCA provides for a civil penalty of not more than $250,000 for 
the distribution of a laboratory supply to a person who uses, or 
attempts to use, that laboratory supply to manufacture a controlled 
substance or a listed chemical, if that distribution was made with 
``reckless disregard'' for the illegal uses to which such a laboratory 
supply would be put. For purposes of this provision, the term 
``distribution'' includes the exportation of a laboratory supply. For 
any succeeding violation, the MCA provides for a civil fine of not more 
than $250,000 or double the last previously imposed penalty, whichever 
is greater.
    Section 205 of the MCA further states that, for purposes of 21 
U.S.C. 842(a)(11), there is a ``rebuttable presumption of reckless 
disregard at trial if the Attorney General notifies a firm in writing 
that a laboratory supply sold by the firm, or any other person or firm, 
has been used by a customer of the notified firm, or distributed 
further by that customer, for the unlawful production of controlled 
substances or listed chemicals a firm distributes and 2 weeks or more 
after the notification the notified firm distributes a laboratory 
supply to the customer.''
    The CSA contains other sections relating to the illegal manufacture 
of controlled substances. Section 841(d)(2) of Title 21 provides that 
any person who knowingly or intentionally distributes a listed chemical 
knowing, or having reasonable cause to believe, that it will be used in 
the illegal manufacture of a controlled substance, is subject to 
criminal prosecution. Section 843(a)(7) of Title 21 provides that any 
person who distributes any chemical, product, equipment or material 
which may be used to manufacture a controlled substance or listed 
chemical, knowing, or having reasonable cause to believe, that it will 
be used in the illegal manufacture of a controlled substance or listed 
chemical, is subject to criminal prosecution.
    In developing the proposed Special Surveillance List, the DEA 
consulted with both DEA and State/Local law enforcement and forensic 
laboratory authorities. The DEA examined clandestine laboratory seizure 
reports for information regarding (1) illicit drug production methods; 
(2) chemicals actually used in clandestine production of controlled 
substances and listed chemicals; and (3) the role and importance of 
chemicals used in the syntheses. In addition, the DEA considered the 
legitimate uses and market for these chemicals.
    The proposed Special Surveillance List focuses on chemicals used in 
the domestic production of controlled substances and listed chemicals. 
Therefore the list includes those chemicals used not only in the 
production of methamphetamine, but also of controlled substances such 
as PCP, LSD, methcathinone and amphetamine. The list does not focus on 
chemicals used in the production of heroin or cocaine since these drugs 
are seldom produced domestically. However, the proposed Special 
Surveillance List includes all listed chemicals as specified in 21 CFR 
1310.02 (a) or (b). The phrase ``all listed chemicals'' includes all 
chemical mixtures and all over-the-counter (OTC) pharmaceutical 
products and dietary supplements which contain a listed chemical, 
regardless of their dosage form or packaging and regardless of whether 
the chemical mixture, drug product or dietary supplement is exempt from 
regulatory controls.
    The following is the proposed Special Surveillance List for 
laboratory supplies used in the manufacture of controlled substances 
and listed chemicals:

Special Surveillance List Published Pursuant to Title 21, United States 
Code, Section 842(a)(11)

Chemicals

    All listed chemicals as specified in 21 CFR 1310.02 (a) or (b). 
This includes all chemical mixtures and all over-the-counter (OTC) 
products and dietary supplements which contain a listed chemical, 
regardless of their dosage form or packaging and regardless of 
whether the chemical mixture, drug product or dietary supplement is 
exempt from regulatory controls.

Ammonia Gas
Ammonium Formate
Bromobenzene
1,1-Carbonyldiimidazole
Cyclohexanone
1,1-Dichloro-1-fluoroethane (e.g. Freon 141B)
Diethylamine and its salts
2,5-Dimethoxyphenethylamine and its salts
Formamide
Formic Acid
Hypophosphorous Acid
Lithium Metal
Lithium Aluminum Hydride
Magnesium Metal (Turnings)
Mercuric Chloride
N-Methylformamide
Organomagnesium Halides (Grignard Reagents) (e.g. ethylmagnesium 
bromide and phenylmagnesium bromide)
Phenylethanolamine and its salts
Phosphorus Pentachloride
Potassium Dichromate
Pyridine and its salts
Red Phosphorus
Sodium Dichromate
Sodium Metal
Thionyl Chloride
ortho-Toluidine
Trichloromonofluoromethane (e.g. Freon-11, Carrene-2)
Trichlorotrifluoroethane (e.g. Freon 113)

Equipment

Hydrogenators
Tableting Machines
Encapsulating Machines
22 Liter Heating Mantels

    Individuals and firms which distribute listed chemicals and 
chemicals, products, materials, or equipment on the above list, are 
hereby officially notified that these materials may be used in the 
illicit production of certain controlled substances or listed 
chemicals.

    The Attorney General has delegated authority under the CSA and all 
subsequent amendments to the CSA to the Administrator of the DEA 
pursuant to 28 CFR 0.100. The Administrator, in turn, has redelegated 
this authority to the Deputy Administrator pursuant to 28 CFR 0.104.
    This surveillance list may be revised as appropriate. The list will 
be re-published as changes occur. While publication in the Federal 
Register satisfies the notification requirements for the Surveillance 
List, DEA is attempting to disseminate the list as widely as possible. 
Therefore, copies of

[[Page 66201]]

the list will be sent to appropriate industry associations and trade 
journals, and to the extent practical, to individual manufacturers and 
distributors of ``laboratory supplies.'' In addition, a current 
surveillance list will be available on the DEA homepage at http://
www.usdoj.gov/dea/.

Small Business Impact and Regulatory Flexibility Concerns

    The proposed Special Surveillance List applies to all individuals 
and firms which distribute the listed chemicals and laboratory supplies 
(chemicals, products, materials, or equipment) on the list. The notice 
does not impose any recordkeeping or reporting requirements for any of 
the laboratory supplies which are not listed chemicals. Thus the 
suveillance list will have a negligible impact on affected parties.
    The notice serves two purposes. First, it informs individuals and 
firms of the potential use of the items on the list for the production 
of listed chemicals and illicit drugs. Second, it advises individuals 
and firms that civil penalties may be imposed on them if they 
distribute a laboratory supply to a person anytime after the two week 
period following receipt of written notification by the Attoney General 
that the person has used, attempted to use, or distributed the 
laboratory supply further for the unlawful production of controlled 
substances or listed chemicals.
    DEA chose to limit the number of chemicals on the proposed Special 
Surveillance List to those most frequently used in the clandestine 
production of controlled substances or listed chemicals. Limiting the 
number of chemicals on the list minimizes the impact on wholesalers and 
retailers of the chemicals.
    The Acting Deputy Administrator hereby certifies that this proposed 
notice has been drafted in a manner consistent with the principles of 
the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). This proposed 
notice will provide an increased level of law enforcement control to 
prevent the diversion of laboratory supplies used for the production of 
listed chemicals and controlled substances. It will not however impose 
any new regulatory burden on the public. This proposed notice fulfills 
the requirement imposed by section 205 of the Methamphetamine Control 
Act (MCA) of 1996 that the Attorney General shall publish a special 
surveillance list which contains chemicals, products, materials, or 
equipment used in the manufacture of listed chemcials and controlled 
substances. A copy of this proposed notice has been provided to the 
Chief Counsel for Advocacy at the Small Business Administration.
    This proposed notice has been drafted and reviewed in accordance 
with Executive Order 12866. This proposed notice has not been 
determined to be a significant action. Therefore, this proposed notice 
has not been reviewed and approved by the Office of Management and 
Budget.
    This proposed action has been analyzed in accordance with the 
principles and criteria in Executive Order 12612, and it has been 
determined that this proposed notice does not have sufficient 
federalism implications to warrant the preparation of a Federalism 
Assessment.
    This proposed notice will not result in the expenditure by State, 
local, and tribal governments, in the aggregate, or by the private 
sector, of $100,000,000 or more in any one year, and will not 
significantly or uniquely affect small governments. Therefore, no 
actions were deemed necessary under the provisions of the Unfunded 
Mandates Reform Act of 1995.
    This proposed notice is not a major rule as defined by Section 804 
of the Small Business Regulatory Enforcement Fairness Act of 1996. This 
proposed notice will not result in an annual effect on the economy of 
$100,000,000 or more; a major increase in costs or prices; or 
significant adverse effects on competition, employment, investment, 
productivity, innovation, or on the ability of United States-based 
companies to compete with foreign-based companies in domestic and 
export markets.

    Dated: July 24, 1998.
Donnie R. Marshall,
Acting Deputy Administrator.
[FR Doc. 98-31962 Filed 11-30-98; 8:45 am]
BILLING CODE 4410-09-M