[Federal Register Volume 64, Number 198 (Thursday, October 14, 1999)]
[Rules and Regulations]
[Pages 55625-55629]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-26771]


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DEPARTMENT OF THE TREASURY

Bureau of Alcohol, Tobacco and Firearms

27 CFR Parts 47 and 55

[T.D. ATF-419; Ref: T.D. ATF-387 and Notice No. 847]
RIN: 1512-AB63


Implementation of Public Law 104-132, the Antiterrorism and 
Effective Death Penalty Act of 1996, Relating to the Marking of Plastic 
Explosives for the Purpose of Detection (96R-029P)

AGENCY: Bureau of Alcohol, Tobacco and Firearms (ATF), Department of 
the Treasury.

ACTION: Final rule, Treasury decision.

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SUMMARY: This final rule implements certain provisions of the 
Antiterrorism and Effective Death Penalty Act of 1996 (Pub. L. 104-
132). These regulations implement the law by requiring detection agents 
for plastic explosives. The final rule also authorizes the use of four 
specific detection agents to mark plastic explosives and provides for 
the designation of other detection agents.

DATES: This rule is effective December 13, 1999.

FOR FURTHER INFORMATION CONTACT: James P. Ficaretta, Regulations 
Division, Bureau of Alcohol, Tobacco and Firearms, 650 Massachusetts 
Avenue, NW., Washington, DC 20226 (202-927-8230).

SUPPLEMENTARY INFORMATION:

Background

    Public Law 104-132, 110 Stat. 1214, the Antiterrorism and Effective 
Death Penalty Act of 1996 (hereafter, ``the Act'') was enacted on April 
24, 1996. Title VI of the Act, ``Implementation of Plastic Explosives 
Convention,'' added new requirements to the Federal explosives laws in 
18 U.S.C. Chapter 40. Section 607 of the Act states that, except as 
otherwise provided, the amendments made by Title VI shall take effect 1 
year after the date of enactment, i.e., on April

[[Page 55626]]

24, 1997. The stated purpose of Title VI is to fully implement the 
Convention on the Marking of Plastic Explosives for the Purpose of 
Detection, Done at Montreal on March 1, 1991 (hereafter, ``the 
Convention'').
    The Convention represents an important achievement in international 
cooperation in response to the threat posed to the safety and security 
of international civil aviation by virtually undetectable plastic 
explosives in the hands of terrorists. Such explosives were used in the 
tragic destruction of Pan Am flight 103 over Lockerbie, Scotland, in 
December 1988, and UTA flight 772 in September 1989. In the aftermath 
of these bombings, the international community moved to draft a 
multilateral treaty to ensure that plastic explosives would thereafter 
contain a chemical marking agent to render them detectable.

Temporary Rule

    On February 25, 1997, ATF published in the Federal Register a 
temporary rule implementing certain provisions of the Act (T.D. ATF-
387, 62 FR 8374). The new statutory provisions and the regulation 
changes necessitated by the law are as follows:
    (1) Definitions. Section 602 of the Act added three definitions to 
section 841 of title 18, U.S.C. The term ``Convention on the Marking of 
Plastic Explosives'' is defined in the law to mean the Convention on 
the Marking of Plastic Explosives for the Purpose of Detection, Done at 
Montreal on March 1, 1991.
    The term ``detection agent'' is defined as any one of the following 
substances when introduced into a plastic explosive or formulated in 
such explosive as a part of the manufacturing process in such a manner 
as to achieve homogeneous distribution in the finished explosive:
    (1) Ethylene glycol dinitrate (EGDN), 
C2H4(NO3)2, molecular 
weight 152, when the minimum concentration in the finished explosive is 
0.2 percent by mass;
    (2) 2,3-Dimethyl-2,3-dinitrobutane (DMNB), 
C6H12(NO2)2, molecular 
weight 176, when the minimum concentration in the finished explosive is 
0.1 percent by mass;
    (3) Para-Mononitrotoluene (p-MNT), 
C7H7NO2, molecular weight 137, when 
the minimum concentration in the finished explosive is 0.5 percent by 
mass;
    (4) Ortho-Mononitrotoluene (o-MNT), 
C7H7NO2, molecular weight 137, when 
the minimum concentration in the finished explosive is 0.5 percent by 
mass; and
    (5) any other substance added by the Secretary of the Treasury by 
regulation, after consultation with the Secretary of State and the 
Secretary of Defense. Permitting the Secretary to designate detection 
agents other than the four listed in the statute would facilitate the 
use of other substances without the need for legislation. However, as 
specified in the law, only those substances which have been added to 
the table in part 2 of the Technical Annex to the Convention on the 
Marking of Plastic Explosives may be designated as approved detection 
agents. ATF would have no authority to issue a regulation adding to the 
list of approved detection agents until the Technical Annex has been so 
modified.
    The last term added to section 841 of title 18, U.S.C., ``plastic 
explosive,'' is defined as an explosive material in flexible or elastic 
sheet form formulated with one or more high explosives which in their 
pure form has a vapor pressure less than 10-4 Pa at a 
temperature of 25  deg.C, is formulated with a binder material, and is 
as a mixture malleable or flexible at normal room temperature. Pursuant 
to part I of the Technical Annex to the Convention, high explosives 
include, but are not restricted to, cyclotetramethylenetetranitramine 
(HMX), pentaerythritol tetranitrate (PETN), and 
cyclotrimethylenetrinitramine (RDX).
    The above changes to regulations are prescribed in Sec. 55.180.
    (2) Requirement of Detection Agents for Plastic Explosives. The Act 
amended the Federal explosives laws in 18 U.S.C. Chapter 40 by adding 
new subsections (l)-(o) to section 842. Section 842(l) makes it 
unlawful for any person to manufacture any plastic explosive that does 
not contain a detection agent.
    Section 842(m) makes it unlawful for any person to import or bring 
into the U.S. or export from the U.S. any plastic explosive that does 
not contain a detection agent. The provisions of this section do not 
apply to the importation or bringing into the U.S. or the exportation 
from the U.S. of any plastic explosive that was imported or brought 
into or manufactured in the U.S. prior to the date of enactment of the 
Act by or on behalf of any agency of the U.S. performing military or 
police functions (including any military reserve component) or by or on 
behalf of the National Guard of any State, not later than 15 years 
after the Convention enters into force with respect to the U.S. 
Pursuant to Article XIII of the Convention, the Convention will enter 
into force on the sixtieth day following the date of deposit of the 
thirty-fifth instrument of ratification, acceptance, approval or 
accession with the Depositary, i.e., the International Civil Aviation 
Organization, provided that no fewer than five such States (nations) 
have declared that they are producer States. (A ``producer State'' 
means any State in whose territory explosives are manufactured.) Should 
thirty-five such instruments be deposited prior to the deposit of their 
instruments by five producer States, the Convention will enter into 
force on the sixtieth day following the date of deposit of the 
instrument of ratification, acceptance, approval or accession of the 
fifth producer State. For other States, the Convention will enter into 
force sixty days following the date of deposit of their instruments of 
ratification, acceptance, approval or accession.
    Section 842(n) provides that it is unlawful for any person to ship, 
transport, transfer, receive, or possess any plastic explosive that 
does not contain a detection agent. Exceptions to the prohibitions are 
provided for any plastic explosive that was imported or brought into, 
or manufactured in the U.S. prior to the date of enactment of the Act 
by any person during the period beginning on that date, i.e., April 24, 
1996, and ending 3 years after that date, i.e., April 24, 1999. 
Exceptions to the prohibitions are also provided for any plastic 
explosive that was imported or brought into, or manufactured in the 
U.S. prior to the date of enactment of the Act by or on behalf of any 
agency of the U.S. performing a military or police function (including 
any military reserve component) or by or on behalf of the National 
Guard of any State, not later than 15 years after the date of entry 
into force of the Convention on the marking of Plastic Explosives with 
respect to the U.S.
    The above changes to the regulations are prescribed in Sec. 55.180.
    Section 842(o) provides that any person, other than an agency of 
the U.S. (including any military reserve component) or the National 
Guard of any State, possessing any plastic explosive on the date of 
enactment, shall report to the Secretary within 120 days after the date 
of enactment the quantity of such explosives possessed, the 
manufacturer or importer, any marks of identification on such 
explosives, and such other information as the Secretary may prescribe 
by regulation. Regulations implementing this provision of the Act were 
prescribed in T.D. ATF-382, published in the Federal Register on July 
23, 1996 (61 FR 38084). However, T.D. ATF-387 made a technical 
amendment to Sec. 55.181 to include the control number assigned by

[[Page 55627]]

the Office of Management and Budget (OMB).
    (3) Criminal Sanctions. The Act amended section 844(a) of title 18, 
U.S.C., by providing that any person who violates any of the provisions 
of section 842(l)-(o) shall be fined under title 18, imprisoned for not 
more than 10 years, or both. Changes to the regulations in Sec. 55.185 
have been made to implement this provision of the law.
    (4) Exceptions. The Act amended 18 U.S.C. 845(a) to provide that 
the exemptions from the requirements of 18 U.S.C. Chapter 40 that apply 
to governmental entities and other specified uses of explosives do not 
apply to section 842(l)-(o). Changes to the regulations in 
Sec. 55.141(a) have been made to implement this provision of the law.
    The Act also made a technical amendment to 18 U.S.C. 845(a)(1) to 
clarify the current exemption from the requirements of 18 U.S.C. 
Chapter 40 for aspects of the transportation of explosives regulated by 
the U.S. Department of Transportation. The amendment makes it clear 
that the exemption applies only to those aspects of the transportation 
related to safety. Changes to the regulations in Sec. 55.141(a)(1) have 
been made to implement this change in the law.
    The Act also amended section 845 of title 18, U.S.C., by adding a 
new subsection (c). This amendment provides that it is an affirmative 
defense against any proceeding involving section 842(l)-(o) of title 
18, U.S.C., if the proponent proves by a preponderance of the evidence 
that the plastic explosive--
    (1) Consisted of a small amount of plastic explosive intended for 
and utilized solely in lawful--
    (a) Research, development, or testing of new or modified explosive 
materials;
    (b) Training in explosives detection or development or testing of 
explosives detection equipment; or
    (c) Forensic science purposes; or
    (2) Was plastic explosive that, within 3 years after the date of 
enactment of the Act, will be or is incorporated in a military device 
within the territory of the U.S. and remains an integral part of such 
military device, or is intended to be, or is incorporated in, and 
remains an integral part of a military device that is intended to 
become, or has become, the property of any agency of the U.S. 
performing military or police functions (including any military reserve 
component) or the National Guard of any State, wherever such device is 
located.
    As defined in the Act, the term ``military device'' includes, but 
is not restricted to, shells, bombs, projectiles, mines, missiles, 
rockets, shaped charges, grenades, perforators, and similar devices 
lawfully manufactured exclusively for military or police purposes.
    The affirmative defenses provided in the law could be asserted in a 
criminal case, a judicial forfeiture case, or an administrative license 
or permit denial or revocation.
    Changes to the regulations in Sec. 55.182 have been made to 
implement the provisions of section 845(c) of title 18, U.S.C.
    (5) Seizure and Forfeiture of Plastic Explosives. The Act amended 
section 596(c)(1) of the Tariff Act of 1930, 19 U.S.C. 1595a(c)(1), to 
provide for the seizure or forfeiture of plastic explosive that does 
not contain a detection agent that is introduced or attempted to be 
introduced into the U.S. Changes to the regulations in Sec. 55.186 have 
been made to implement this provision of the law.
    Miscellaneous. In order to fully implement the provisions of the 
Act, regulations are prescribed in Sec. 55.184 which authorize the 
Director to request from licensed manufacturers and licensed importers 
accurate and complete statements of process with regard to any plastic 
explosive or any detection agent that is to be introduced into a 
plastic explosive or formulated in such explosive. The regulations also 
give ATF the authority to require samples of any plastic explosive or 
detection agent from such licensees.
    As stated in Article III of the Convention, ``[e]ach State Party 
shall take the necessary and effective measures to prohibit and prevent 
the movement into or out of its territory of unmarked [plastic] 
explosives'' so as to prevent their diversion or use for purposes 
inconsistent with the Convention. In order to comply with the 
objectives of the Convention, regulations are prescribed in Sec. 55.183 
which require persons filing Form 6 applications for importation of 
plastic explosives on or after April 24, 1997, to attach to the 
application a statement certifying that the plastic explosive to be 
imported contains a detection agent or is a ``small amount'' to be used 
for research, training, or testing purposes and is exempt from the 
detection agent requirement.
    Finally, the temporary rule made certain technical amendments and 
conforming changes to the regulations in Part 55. For example, 
Secs. 55.49, 55.52, and 55.55 were amended to remove the reference to 
Sec. 55.182. Section 55.182, Classes of explosive materials, was 
replaced by Sec. 55.202 pursuant to T.D. ATF-87 (August 7, 1981; 46 FR 
40382).

Notice of Proposed Rulemaking--Analysis of Comments

    On February 25, 1997, ATF also published a notice of proposed 
rulemaking cross-referenced to the temporary regulations (Notice No. 
847, 62 FR 8412). The comment period for Notice No. 847 closed on May 
27, 1997.
    ATF received four comments in response to Notice No. 847. One 
commenter expressed support for the temporary regulations. The 
remaining commenters raised several concerns with respect to the 
temporary regulations. Three commenters contend that current owners of 
unmarked plastic explosives should be ``grandfathered'' and allowed to 
retain their existing stocks and use them up at their normal attrition 
rate, beyond the 3-year period specified in the Act. To accomplish 
this, however, legislative action would be necessary.
    One commenter argues that State and local law enforcement agencies 
should be exempt from the marking requirement. Such an exemption, 
however, would also necessitate a statutory change.
    Two commenters argue that the Government should purchase all 
unmarked plastic explosives from current owners. ATF has no authority 
to use appropriated funds to purchase unmarked plastic explosives. 
These commenters also suggest that the Federal Government supply the 
detection agent to all possessors of unmarked plastic explosives so 
that they may come into compliance. As stated above, ATF has no 
authority to use appropriated funds for this purpose.
    The same commenters contend that a definition of the term ``small 
quantity'' is needed for purposes of the Act. As noted, the law 
provides that it is an affirmative defense against any proceeding 
involving section 842(l)-(o) of Title 18, U.S.C., if the proponent 
proves by a preponderance of the evidence that the plastic explosive 
consisted of a small quantity intended for and utilized solely in 
lawful--
    (a) Research, development, or testing of new or modified explosive 
materials;
    (b) Training in explosives detection or development or testing of 
explosives detection equipment; or
    (c) Forensic science purposes.
    One of the commenters states that he possesses ``a small quantity 
(less than 170 pounds) of plastic explosives'' for research purposes. 
However, he points out the following:

    By manufactures [sic] standards, small quantity is referred to 
as 500 lbs. or less, however, to detection personnel the term 
``small quantity'' may mean 10 lbs. or less.

[[Page 55628]]

A company providing explosive training may term ``small quantity'' 
as between 500-2000 lbs. of plastic explosives.

    The other commenter states that he possesses approximately 3,000 
pounds of PBX for training purposes.
    The above comments illustrate the difficulty in specifying a 
particular amount of explosive that is appropriate for all possessors. 
As indicated, the amount of explosives required for a particular type 
of research may be far greater than the amount required for another 
type of research. Accordingly, ATF believes that such determinations 
should be made on a case-by-case basis after consideration of all 
relevant facts. ATF emphasizes that the statute makes it clear that the 
burden is on the possessor to prove that the quantity of unmarked 
plastic explosives is a ``small amount'' possessed for one of the 
exempt purposes.
    Finally, one commenter suggests that an exemption be given to 
individuals using unmarked plastic explosives for training purposes. 
The commenter trains law enforcement, military, and civilian personnel 
in explosives safety. As indicated above, one of the affirmative 
defenses to any proceeding involving the plastic explosive provisions 
of the law is for a small quantity of plastic explosive utilized solely 
in training in explosive detection or development. There is no 
exception for training in explosives safety. Such an exception would 
require legislative action.

Miscellaneous--Final Rule

    The Convention on the Marking of Plastic Explosives for the Purpose 
of Detection, Done at Montreal on March 1, 1991, entered into force on 
June 21, 1998. Thirty-eight countries have ratified, including 11 
producing states. As noted, for the Convention to enter into force 
internationally, 35 countries were required to ratify, 11 of which are 
producing states. Section 55.180 of the final regulations is being 
amended to incorporate the actual date that the Convention entered into 
force.
    Accordingly, the temporary regulations published in the Federal 
Register on February 25, 1997 (T.D. ATF-387) are adopted as final upon 
the effective date of this Treasury decision.

Executive Order 12866

    It has been determined that this final rule is not a significant 
regulatory action as defined in E.O. 12866, because the economic 
effects flow directly from the underlying statute and not from this 
final rule. Therefore, this final rule is not subject to the analysis 
required by this Executive order.

Regulatory Flexibility Act

    The provisions of the Regulatory Flexibility Act relating to an 
initial and final regulatory flexibility analysis (5 U.S.C. 604) are 
not applicable to this final rule because the agency was not required 
to publish a notice of proposed rulemaking under 5 U.S.C. 553 or any 
other law. Accordingly, a regulatory flexibility analysis is not 
required.

Paperwork Reduction Act

    The collection of information contained in this final regulation 
has been reviewed and approved by the Office of Management and Budget 
in accordance with the requirements of the Paperwork Reduction Act (44 
U.S.C. 3507(d)) under control number 1512-0539. An agency may not 
conduct or sponsor, and a person is not required to respond to, a 
collection of information unless it displays a valid control number 
assigned by the Office of Management and Budget.
    The collection of information in this regulation is in 27 CFR 
55.184(a). This information is required to ensure compliance with the 
provisions of Public Law 104-132. This information will be used to 
ensure that plastic explosives contain a detection agent as required by 
law. The collection of information is mandatory. The likely respondents 
are individuals and businesses. The estimated average annual burden 
associated with the collection of information in this regulation is 12 
hours per respondent. Comments concerning the accuracy of this burden 
estimate and suggestions for reducing this burden should be directed to 
the Chief, Document Services Branch, Room 3110, Bureau of Alcohol, 
Tobacco and Firearms, 650 Massachusetts Avenue, NW., Washington, DC 
20226, and to the Office of Management and Budget, Attention: Desk 
Officer for the Department of the Treasury, Bureau of Alcohol, Tobacco 
and Firearms, Office of Information and Regulatory Affairs, Washington, 
DC 20503.

Disclosure

    Copies of the temporary rule, the notice of proposed rulemaking, 
all written comments, and this final rule will be available for public 
inspection during normal business hours at: ATF Public Reading Room, 
Room 6480, 650 Massachusetts Avenue, NW., Washington, DC.
    Drafting Information: The author of this document is James P. 
Ficaretta, Regulations Division, Bureau of Alcohol, Tobacco and 
Firearms.

List of Subjects

27 CFR Part 47

    Administrative practice and procedure, Arms control, Arms and 
munitions, Authority delegation, Chemicals, Customs duties and 
inspection, Imports, Penalties, Reporting and recordkeeping 
requirements, Scientific equipment, and Seizures and forfeitures.

27 CFR Part 55

    Administrative practice and procedure, Authority delegations, 
Customs duties and inspection, Explosives, Hazardous materials, 
Imports, Penalties, Reporting and recordkeeping requirements, Safety, 
Security measures, Seizures and forfeitures, Transportation, and 
Warehouses.

Authority and Issuance

    Accordingly, parts 47 and 55 are amended as follows:

    Paragraph 1. The temporary rule published on February 25, 1997 (62 
FR 8374) is adopted as final with the following changes.

PART 55--COMMERCE IN EXPLOSIVES

    Par. 2. The authority citation for 27 CFR part 55 continues to read 
as follows:

    Authority: 18 U.S.C. 847.

    Par. 3. Section 55.180 is amended by revising paragraphs (b), 
(c)(2), and (d)(2) to read as follows:


Sec. 55.180  Prohibitions relating to unmarked plastic explosives.

* * * * *
    (b) No person shall import or bring into the United States, or 
export from the United States, any plastic explosive that does not 
contain a detection agent. This paragraph does not apply to the 
importation or bringing into the United States, or the exportation from 
the United States, of any plastic explosive that was imported or 
brought into, or manufactured in the United States prior to April 24, 
1996, by or on behalf of any agency of the United States performing 
military or police functions (including any military reserve component) 
or by or on behalf of the National Guard of any State, not later than 
15 years after the date of entry into force of the Convention on the 
Marking of Plastic Explosives with respect to the United States, i.e., 
not later than June 21, 2013.
    (c) * * *
    (2) The shipment, transportation, transfer, receipt, or possession 
of any plastic explosive that was imported or

[[Page 55629]]

brought into, or manufactured in the United States prior to April 24, 
1996, by or on behalf of any agency of the United States performing a 
military or police function (including any military reserve component) 
or by or on behalf of the National Guard of any State, not later than 
15 years after the date of entry into force of the Convention on the 
Marking of Plastic Explosives with respect to the United States, i.e., 
not later than June 21, 2013.
    (d) * * *
    (2) ``Date of entry into force'' of the Convention on the Marking 
of Plastic Explosives means that date on which the Convention enters 
into force with respect to the U.S. in accordance with the provisions 
of Article XIII of the Convention on the Marking of Plastic Explosives. 
The Convention entered into force on June 21, 1998.
* * * * *
    Signed: February 10, 1999.
John W. Magaw,
Director.

    Approved: March 10, 1999.
John P. Simpson,
Deputy Assistant Secretary (Regulatory, Tariff and Trade Enforcement).
[FR Doc. 99-26771 Filed 10-13-99; 8:45 am]
BILLING CODE 4810-31-P